Illusions of Empire: Defining the New American Order

The term "empire" refers to the political control by a dominant country of the domestic and foreign policies of weaker countries. The European colonial empires of the late nineteenth century were the most direct, formal kind. The Soviet "sphere of influence" in Eastern Europe entailed an equally coercive but less direct form of control. The British Empire included both direct colonial rule and "informal empire." If empire is defined loosely, as a hierarchical system of political relationships in which the most powerful state exercises decisive influence, then the United States today indeed qualifies.

If the United States is an empire, however, it is like no other before it. To be sure, it has a long tradition of pursuing crude imperial policies, most notably in Latin America and the Middle East. But for most countries, the U.S.-led order is a negotiated system wherein the United States has sought participation by other states on terms that are mutually agreeable. This is true in three respects. First, the United States has provided public goods -- particularly the extension of security and the support for an open trade regime -- in exchange for the cooperation of other states. Second, power in the U.S. system is exercised through rules and institutions; power politics still exist, but arbitrary and indiscriminate power is reigned in. Finally, weaker states in the U.S.-led order are given "voice opportunities" -- informal access to the policymaking processes of the United States and the intergovernmental institutions that make up the international system. It is these features of the post-1945 international order that have led historians such as Charles Maier to talk about a "consensual empire" and Geir Lundestad to talk about an "empire of invitation." The American order is hierarchical and ultimately sustained by economic and military power, but it is put at the service of an expanding system of democracy and capitalism.

Fundamentally, then, the debate over the new American empire hinges on how extensive and deeply rooted these characteristics are -- and whether its assertion of power since September 11 constitutes a fundamental break with this liberal past.

THE GLOBAL RACKET

In The Sorrows of Empire, Chalmers Johnson advances the disturbing claim that the United States' Cold War-era military power and far-flung base system have, in the last decade, been consolidated in a new form of global imperial rule. The United States, according to Johnson, has become "a military juggernaut intent on world domination."

Driven by a triumphalist ideology, an exaggerated sense of threats, and a self-serving military-industrial complex, this juggernaut is tightening its grip on much of the world. The Pentagon has replaced the State Department as the primary shaper of foreign policy. Military commanders in regional headquarters are modern-day proconsuls, warrior-diplomats who direct the United States' imperial reach. Johnson fears that this military empire will corrode democracy, bankrupt the nation, spark opposition, and ultimately end in a Soviet-style collapse.

In this rendering, the American military empire is a novel form of domination. Johnson describes it as an "international protection racket: mutual defense treaties, military advisory groups, and military forces stationed in foreign countries to 'defend' against often poorly defined, overblown, or nonexistent threats." These arrangements create "satellites" -- ostensibly independent countries whose foreign relations revolve around the imperial state. Johnson argues that this variety of empire was pioneered during the Cold War by the Soviet Union in Eastern Europe and the United States in East Asia. Great empires of the past -- the Romans and the Han Dynasty Chinese -- ruled their domains with permanent military encampments that garrisoned conquered territory. The American empire is innovative because it is not based on the acquisition of territory; it is an empire of bases.

Johnson's previous polemic, Blowback, asserted that post-1945 U.S. spheres of influence in East Asia and Latin America were as coercive and exploitative as their Soviet counterparts. The Sorrows of Empire continues this dubious line. Echoing 1960s revisionism, Johnson asserts that the United States' Cold War security system of alliances and bases was built on manufactured threats and driven by expansionary impulses. The United States was not acting in its own defense; it was exploiting opportunities to build an empire. The Soviet Union and the United States, according to this argument, were more alike than different: both militarized their societies and foreign policies and expanded outward, establishing imperial rule through "hub and spoke" systems of client states and political dependencies.

In Johnson's view, the end of the Cold War represented both an opportunity and a crisis for U.S. global rule -- an opportunity because the Soviet sphere of influence was now open for imperial expansion, a crisis because the fall of the Soviet Union ended the justification for the global system of naval bases, airfields, army garrisons, espionage listening posts, and strategic enclaves. Only with the terrorist attacks of September 11 was this crisis resolved. Bush suddenly had an excuse to expand U.S. military domination. September 11 also allowed the United States to remove the fig leaf of alliance partnership. Washington could now disentangle itself from international commitments, treaties, and law and launch direct imperial rule.