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What may be less clear is that it was playing into the terrorists' strategic purposes from the first.
Terrorism is a strategy, and it has a strategic objective: to establish the terrorists' leardership as a state structure on a par with the state that is attacked. They do this by two means: first, by undermining confidence that the state that is attacked can protect its own people, and second, by provoking the victim state to treat the terrorists as it would treat another state. In a rebellion or civil war, when the rebels are recognized as belligerents, entitled to protection under the rules of war, their state-like status is established. That is a major objective of terrorism.
Thus, when Bush "declared war on terrorism," he recognized them as belligerents -- did half their job for them. Treating terrorism as criminal enforcement has the opposite effect. However much it may resemble war, criminal law enforcement efforts deny the belligerence of the terrorists, asserting instead that they are mere criminals.
It helps to think these things through. In Europe, where they sadly have more experience of terrorism, they have thought it fhrough. Even here in the states, we were wise enough to treat the Weathermen, Symbionese Liberation Army, and the antiabortion terrorist network as criminal matters. But that was Before Bush -- BB.
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