The ten-year anniversary of the 9/11 attacks has led tostock-taking of the attacks and their legacy. Even after ten years, debates remain fierce about the scope of thethreat, and the proper nature of any response. 

Making sense of the aftermath of 9/11, the subject of JasonBurke's The 9/11 Wars, is amonumental task -- but Burke is up to the job. The 9/11 Wars is insightful, thorough, and at times fascinating. Burkebrings the reader from villages in Afghanistan and Iraq to slums in London andFrance, offering individual portraits of combatants and those overrun by warwhile also weaving in government policies and scholarly research to portray thebroader context. The resulting tapestry leaves the reader more informed, thoughoften appalled by policymakers' ignorance and furious when well-intentionedpolicies backfire.   

Burke himself is well-qualified for his ambitious task. Aveteran reporter for The Guardian andThe Observer, he has writtenextensively on al-Qaeda, Afghanistan, Iraq, and Pakistan. The 9/11 Wars draws on a wide range of sources and, in contrast tothe works of many journalists, is meticulously documented.

Burke's work is a book big in scope and, weighing in at a hefty752 pages, in substance. Such size is understandable. As he points out, theconflicts associated with 9/11's aftermath are not one but many, and each onehas its own intricacies. Burke is at hisbest giving ground truth to the war on terrorism. He claims his book is aboutpeople, not politicians, and for the most part he stays true to his promise.

The United States and al-Qaeda, Burke contends, repeatedlymisunderstood the complexity of the societies in which they waged their wars. Whetherit was trying to impose Western concepts of women's rights on villages inAfghanistan or viewing the Kurdistan-based terrorist group Ansar al-Islam asfriendly to Saddam Hussein's regime (when it was in fact hostile to the former),the United States frequently was its own worst enemy. Nor do U.S. allies farebetter.  Indeed, after the July 2005terrorist attacks in the United Kingdom, the discourse in Europe on terrorism becameparticularly absurd.  Muslimorganizations had embraced a crude anti-Americanism and made claims that they werereceiving Nazi-like treatment from European governments, while nativistscaricatured Muslims as brutal rapists.

Al-Qaeda, however, fares even worse in Burke's telling. It wasoften disorganized and fractious, held together by personal links rather thanfirm institutional ties.  Attacks oncivilians turned locals against al-Qaeda in places like Jordan and Indonesia,squandering the goodwill its fighters had gained from their battles againstU.S. soldiers.  Striking at Americans inIraq was seen as heroic, Burke points out, "But when the violence came home itprovoked a very different reaction.  Thesight of blood on one's own streets, the dismembered bodies of one's owncompatriots, the grieving parents who could have been one's own ... turnedentire populations away from violence." As they lost popularity, the terroristsrelied more on coercion -- and in so doing made themselves even lesspopular. 

Burke's fundamental argument is a simple one: the local isthe enemy of the global. For the United States, this meant that grandiosemissions to transform the Arab world into a mirror image of Western democracyled to insurgency and scorn. For al-Qaeda, attempts to impose an Islamic stateran into stiff opposition from nationalists, practitioners of more traditionalforms of Islam, tribal leaders, and others with a stake in their long-establishedways of life. In the battle against al-Qaeda, "Bloody-minded localparticularism" is America's greatest ally.

Burke at times offers guarded praise for U.S. and alliedpolicies after 2006. The new U.S. counter-insurgency manual, for example,stresses cultural sensitivities and local concerns as a way to win the war,while Burke describes how deradicalization programs in Europe and the MiddleEast offer a softer, but in his view often more effective, form ofcounter-terrorism.

Al-Qaeda, in contrast, remains under siege. To secure aplace to hide its leaders, the group often must avoid training, planning, andrecruiting on a large scale.  Conditions forwould-be fighters hiding out in the tribal parts of Pakistan are much worsethan they were before 9/11 under the Taliban in Afghanistan. Burke relates howone Belgian recruit who got malaria was "left in the corner" and "given a jabevery few days by a kid who was the little brother of the local doctor." Even al-Qaeda'smany affiliates, which offer some bench strength to the group, often do notheed the central leadership, or frequently they lack popularity themselves. Asa result, the much-vaunted "network of networks," he argues, is "battered anddisjointed."

Pakistan, which Burke correctly identifies as the mostimportant theater in the 9/11 wars, comes off the most poorly (thoughAfghanistan is a close second). Use of jihadist proxies has long been part ofPakistan's overall strategy, and the Pakistani security establishment remainscommitted to them, even after 9/11 and subsequent violence in Pakistan showedthat the militants were off the leash. Sadly, Burke finds that in this dividedcountry there is more unity than ever on one issue:  that the United States and its allies arepart of an anti-Pakistan and anti-Muslim conspiracy.

Perhaps the biggest weakness of The 9/11 Wars -- one common to many accounts of counter-terrorism-- is that it misses much of the day-to-day of intelligence gathering andpolice work against suspected jihadists around the world. The CIA is blastedfor its "extensive [program] of kidnapping suspects overseas, illegaldetention, collusion and direct participation in torture." However, thenear-constant, and largely successful, intelligence effort against al-Qaedagets little attention. In countries as far apart (politically as well asgeographically) as Sweden, Malaysia, Morocco, and Russia, security serviceshunt suspected jihadists with U.S. support and guidance. Such behind-the-scenesarrests rarely make good stories, but they put pressure on al-Qaeda and itsallies worldwide, making it far harder for the organization to communicate,plan, and conduct attacks. Indeed, the biggest threats emanate from where counter-terrorismcooperation is poor due to the host country's support for jihadists (Pakistan)or lack of governance (such as in Somalia or Yemen).    

In its attempt to be comprehensive, the book at times offerstoo much detail. The story of the U.S. fiasco in Iraq has been told, and toldwell, in other books, and another detailed repetition won't offer most readerstoo much (though the additional attention on the followers of radical Shi'acleric Moqtada al-Sadr is most welcome, as their role in the Iraq conflict isoften poorly understood). While the ups and downs of terrorism andcounterterrorism in Afghanistan and Pakistan are less-known, some of thematerial could be condensed, as the reader may get bogged down in each twistand turn and lose sight of the bigger picture. 

The 9/11 Wars wentto press as the Arab Spring broke out and al-Qaeda leader Osama bin Laden waskilled, so understandably Burke doesn't have much to add on thesetransformative events beyond the most general analysis. Such events, however,are in keeping with Burke's theme that local politics and the aspirations ofordinary people shape the battlefield, and that the most profound events areoften the least expected.

Burke ends, appropriately, on a sober and grim note: thebody counts. As he points out, there is no clear winner of the 9/11 wars, but"losers are not hard to identify."  Thetens of thousands dead from the wars in Iraq, Afghanistan, and Pakistan arelikely to be joined by tens of thousands more in the next decade. New theaters,ranging from Yemen to Nigeria, may also become enflamed. Stopping theconflagration is beyond the skill and means of even the best of leaders, but ifthey avoid the mistakes Burke identifies, they can better shield their owncitizens and avoid adding fuel to the fire.

Daniel Byman is theauthor of A High Price: The Triumphs and Failures of IsraeliCounterterrorism. He is a professor atGeorgetown University and the research director of the Saban Center atBrookings.