Crisis of Command
America’s Broken Civil-Military Relationship Imperils National Security
The 1990s will demand a redefinition of what constitutes national security. In the 1970s the concept was expanded to include international economics as it became clear that the U.S. economy was no longer the independent force it had once been, but was powerfully affected by economic policies in dozens of other countries. Global developments now suggest the need for another analogous, broadening definition of national security to include resource, environmental and demographic issues.
The assumptions and institutions that have governed international relations in the postwar era are a poor fit with these new realities. Environmental strains that transcend national borders are already beginning to break down the sacred boundaries of national sovereignty, previously rendered porous by the information and communication revolutions and the instantaneous global movement of financial capital. The once sharp dividing line between foreign and domestic policy is blurred, forcing governments to grapple in international forums with issues that were contentious enough in the domestic arena.
Despite the headlines of 1988-the polluted coastlines, the climatic extremes, the accelerating deforestation and flooding that plagued the planet-human society has not arrived at the brink of some absolute limit to its growth. The planet may ultimately be able to accommodate the additional five or six billion people projected to be living here by the year 2100. But it seems unlikely that the world will be able to do so unless the means of production change dramatically. Global economic output has quadrupled since 1950 and it must continue to grow rapidly simply to meet basic human needs, to say nothing of the challenge of lifting billions from poverty. But economic growth as we currently know it requires more energy use, more emissions and wastes, more land converted from its natural state, and more need for the products of natural systems. Whether the planet can accommodate all of these demands remains an open question.
Individuals and governments alike are beginning to feel the cost of substituting for (or doing without) the goods and services once freely provided by healthy ecosystems. Nature's bill is presented in many different forms: the cost of commercial fertilizer needed to replenish once naturally fertile soils; the expense of dredging rivers that flood their banks because of soil erosion hundreds of miles upstream; the loss in crop failures due to the indiscriminate use of pesticides that inadvertently kill insect pollinators; or the price of worsening pollution, once filtered from the air by vegetation. Whatever the immediate cause for concern, the value and absolute necessity for human life of functioning ecosystems is finally becoming apparent.
Moreover, for the first time in its history, mankind is rapidly-if inadvertently-altering the basic physiology of the planet. Global changes currently taking place in the chemical composition of the atmosphere, in the genetic diversity of species inhabiting the planet, and in the cycling of vital chemicals through the oceans, atmosphere, biosphere and geosphere, are unprecedented in both their pace and scale. If left unchecked, the consequences will be profound and, unlike familiar types of local damage, irreversible.
Population growth lies at the core of most environmental trends. It took 130 years for world population to grow from one billion to two billion: it will take just a decade to climb from today's five billion to six billion. More than 90 percent of the added billion will live in the developing world, with the result that by the end of the 1990s the developed countries will be home to only 20 percent of the world's people, compared to almost 40 percent at the end of World War II. Sheer numbers do not translate into political power, especially when most of the added billion will be living in poverty. But the demographic shift will thrust the welfare of developing nations further toward the center of international affairs.
The relationship linking population levels and the resource base is complex. Policies, technologies and institutions determine the impact of population growth. These factors can spell the difference between a highly stressed, degraded environment and one that can provide for many more people. At any given level of investment and knowledge, absolute population numbers can be crucial. For example, traditional systems of shifting agriculture-in which land is left fallow for a few years to recover from human use-can sustain people for centuries, only to crumble in a short time when population densities exceed a certain threshold. More important, though, is the rate of growth. A government that is fully capable of providing food, housing, jobs and health care for a population growing at one percent per year (therefore doubling its population in 72 years), might be completely overwhelmed by an annual growth rate of three percent, which would double the population in 24 years.
Today the United States and the Soviet Union are growing at just under one percent annually (Europe is growing only half that fast). But Africa's population is expanding by almost three percent per year, Latin America's by nearly two percent and Asia's somewhat less. By 2025 the working-age population in developing countries alone will be larger than the world's current total population. This growth comes at a time when technological advance requires higher levels of education and displaces more labor than ever before. For many developing countries, continued growth at current rates means that available capital is swallowed up in meeting the daily needs of people, rather than invested in resource conservation and job creation. Such policies inescapably lay the foundations of a bleak future.
An important paradox to bear in mind when examining natural resource trends is that so-called nonrenewable resources-such as coal, oil and minerals-are in fact inexhaustible, while so-called renewable resources can be finite. As a nonrenewable resource becomes scarce and more expensive, demand falls, and substitutes and alternative technologies appear. For that reason we will never pump the last barrel of oil or anything close to it. On the other hand, a fishery fished beyond a certain point will not recover, a species driven to extinction will not reappear, and eroded topsoil cannot be replaced (except over geological time). There are, thus, threshold effects for renewable resources that belie the name given them, with unfortunate consequences for policy.
The most serious form of renewable resource decline is the deforestation taking place throughout the tropics. An area the size of Austria is deforested each year. Tropical forests are fragile ecosystems, extremely vulnerable to human disruption. Once disturbed, the entire ecosystem can unravel. The loss of the trees causes the interruption of nutrient cycling above and below the soil, the soil loses fertility, plant and animal species lose their habitats and become extinct, and acute fuelwood shortages appear (especially in the dry tropical forests). The soil erodes without the ground cover provided by trees and plants, and downstream rivers suffer siltation, causing floods and droughts, and damaging expensive irrigation and hydroelectric systems. Traced through its effects on agriculture, energy supply and water resources, tropical deforestation impoverishes about a billion people. This pattern is endemic throughout Central America, much of Asia, sub-Saharan Africa and South America.
The planet's evolutionary heritage-its genetic diversity-is heavily concentrated in these same forests. It is therefore disappearing today on a scale not seen since the age of the dinosaurs, and at an unprecedented pace. Biologists estimate that species are being lost in the tropical forests 1,000-10,000 times faster than the natural rate of extinction.1 As many as 20 percent of all the species now living may be gone by the year 2000. The loss will be felt aesthetically, scientifically and, above all, economically. These genetic resources are an important source of food, materials for energy and construction, chemicals for pharmaceuticals and industry, vehicles for health and safety testing, natural pest controls and dozens of other uses.
The only reason that species loss is not a front-page issue is that the majority of species have not yet been discovered, much less studied, so that none but a few conservation biologists can even guess at the number and kinds of species that are vanishing. The bitter irony is that genetic diversity is disappearing on a grand scale at the very moment when biotechnology makes it possible to exploit fully this resource for the first time.
Soil degradation is another major concern. Both a cause and a consequence of poverty, desertification, as it is generally called, is causing declining agricultural productivity on nearly two billion hectares, 15 percent of the earth's land area. The causes are overcultivation, overgrazing, erosion, and salinization and waterlogging due to poorly managed irrigation. In countries as diverse as Haiti, Guatemala, Turkey and India, soil erosion has sharply curtailed agricultural production and potential, sometimes destroying it completely. Though the data are uncertain, it is estimated that the amount of land permanently removed from cultivation due to salinization and waterlogging is equal to the amount of land newly irrigated at great expense each year.
Finally, patterns of land tenure, though not strictly an environmental condition, have an immense environmental impact. In 1975, seven percent of landowners in Latin America possessed 93 percent of all the arable land in this vast region. In Guatemala, a typical case, two percent of the population in 1980 owned 80 percent of the land, while 83 percent of farmers lived on plots too small to support a household. At the same time, even in Costa Rica, with its national concern for social equity, three percent of landowners held 54 percent of the land. These large holdings generally include the most desirable land. The great mass of the rural population is pushed onto the most damage-prone land, usually dry or highly erodible slopes, and into the forests. Land reform is among the most difficult of all political undertakings, but without it many countries will be unable to create a healthy agricultural sector to fuel economic growth.
Environmental decline occasionally leads directly to conflict, especially when scarce water resources must be shared. Generally, however, its impact on nations' security is felt in the downward pull on economic performance and, therefore, on political stability. The underlying cause of turmoil is often ignored; instead governments address the poverty and instability that are its results.
In the Philippines, for example, the government regularly granted logging concessions of less than ten years. Since it takes 30-35 years for a second-growth forest to mature, loggers had no incentive to replant. Compounding the error, flat royalties encouraged the loggers to remove only the most valuable species. A horrendous 40 percent of the harvestable lumber never left the forests but, having been damaged in the logging, rotted or was burned in place. The unsurprising result of these and related policies is that out of 17 million hectares of closed forests that flourished early in the century only 1.2 million remain today. Moreover, the Philippine government received a fraction of the revenues it could have collected if it had followed sound resource management policies that would have also preserved the forest capital. This is biological deficit financing writ large.
Similarly, investments in high-technology fishing equipment led to larger harvests but simultaneously depleted the stock. Today, ten of 50 major Philippine fishing grounds are believed to be overfished; the net result of heavy investment is that the availability of fish per capita has actually dropped. These and other self-destructive environmental policies, combined with rapid population growth, played a significant role in the economic decline that led to the downfall of the Marcos regime. So far, the government of Corazon Aquino has made few changes in the forestry, fishery and other environmental policies it inherited.
Conditions in sub-Saharan Africa, to take another case, have reached catastrophic dimensions. In the first half of this decade export earnings fell by almost one-third, foreign debt soared to 58 percent of GNP, food imports grew rapidly while consumption dropped, and per capita GNP fell by more than three percent. A large share of those woes can be traced to Africa's dependence on a fragile, mismanaged and overstressed natural resource base.
Exports of mineral and agricultural commodities alone account for a quarter of the region's GNP, and nearly three-quarters of the population makes its living off the land, which also supplies, as fuelwood, 80 percent of the energy consumed. The land's capacity to produce is ebbing away under the pressure of rapidly growing numbers of people who do not have the wherewithal to put back into the land what they take from it. A vicious cycle of human and resource impoverishment sets in. As the vegetative cover-trees, shrubs and grass-shrinks from deforestation and overgrazing, soil loses its capacity to retain moisture and nourish crops. The decline accelerates as farmers burn dung and crop residues in place of fuelwood, rather than using them to sustain the soil. Agricultural yields then fall further, and the land becomes steadily more vulnerable to the naturally variable rainfall that is the hallmark of arid and semiarid regions, turning dry spells into droughts and periods of food shortage into famines. Ethiopia is only the most familiar case. The sequence is repeated throughout the region with similarly tragic results.
If such resource and population trends are not addressed, as they are not in so much of the world today, the resulting economic decline leads to frustration, resentment, domestic unrest or even civil war. Human suffering and turmoil make countries ripe for authoritarian government or external subversion. Environmental refugees spread the disruption across national borders. Haiti, a classic example, was once so forested and fertile that it was known as the "Pearl of the Antilles." Now deforested, soil erosion in Haiti is so rapid that some farmers believe stones grow in their fields, while bulldozers are needed to clear the streets of Port-au-Prince of topsoil that flows down from the mountains in the rainy season. While many of the boat people who fled to the United States left because of the brutality of the Duvalier regimes, there is no question that-and this is not widely recognized-many Haitians were forced into the boats by the impossible task of farming bare rock. Until Haiti is reforested, it will never be politically stable.
Haitians are by no means the world's only environmental refugees. In Indonesia, Central America and sub-Saharan Africa, millions have been forced to leave their homes in part because the loss of tree cover, the disappearance of soil, and other environmental ills have made it impossible to grow food. Sudan, despite its civil war, has taken in more than a million refugees from Ethiopia, Uganda and Chad. Immigrants from the spreading Sahel make up one-fifth of the total population in the Ivory Coast. Wherever refugees settle, they flood the labor market, add to the local demand for food and put new burdens on the land, thus spreading the environmental stress that originally forced them from their homes. Resource mismanagement is not the only cause of these mass movements, of course. Religious and ethnic conflicts, political repression and other forces are at work. But the environmental causes are an essential factor.
A different kind of environmental concern has arisen from mankind's new ability to alter the environment on a planetary scale. The earth's physiology is shaped by the characteristics of four elements (carbon, nitrogen, phosphorous and sulfur); by its living inhabitants (the biosphere); and by the interactions of the atmosphere and the oceans, which produce our climate.
Mankind is altering both the carbon and nitrogen cycles, having increased the natural carbon dioxide concentration in the atmosphere by 25 percent. This has occurred largely in the last three decades through fossil-fuel use and deforestation. The production of commercial fertilizer has doubled the amount of nitrogen nature makes available to living things. The use of a single, minor class of chemicals, chlorofluorocarbons, has punched a continent-sized "hole" in the ozone layer at the top of the stratosphere over Antarctica, and caused a smaller, but growing loss of ozone all around the planet. Species loss is destroying the work of three billion years of evolution. Together these changes could drastically alter the conditions in which life on earth has evolved.
The greenhouse effect results from the fact that the planet's atmosphere is largely transparent to incoming radiation from the sun but absorbs much of the lower energy radiation re-emitted by the earth. This natural phenomenon makes the earth warm enough to support life. But as emissions of greenhouse gases increase, the planet is warmed unnaturally. Carbon dioxide produced from the combustion of fossil fuels and by deforestation is responsible for about half of the greenhouse effect. A number of other gases, notably methane (natural gas), nitrous oxide, ozone (in the lower atmosphere, as distinguished from the protective ozone layer in the stratosphere) and the man-made chlorofluorocarbons are responsible for the other half.
Despite important uncertainties about aspects of the greenhouse warming, a virtually unanimous scientific consensus exists on its central features. If present emission trends continue, and unless some as yet undocumented phenomenon (possibly increased cloudiness) causes an offsetting cooling, the planet will, on average, get hotter because of the accumulation of these gases. Exactly how large the warming will be, and how fast it will occur, are uncertain. Existing models place the date of commitment to an average global warming of 1.5-4.5°C (3-8°F) in the early 2030s. The earth has not been this hot for two million years, long before human society, and indeed, even Homo sapiens, existed.
Hotter temperatures will be only one result of the continuing greenhouse warming. At some point, perhaps quite soon, precipitation patterns are likely to shift, possibly causing dustbowl-like conditions in the U.S. grain belt. Ocean currents are expected to do the same, dramatically altering the climates of many regions. A diversion of the Gulf Stream, for example, would transform Western Europe's climate, making it far colder than it is today. Sea level will rise due to the expansion of water when it is warmed and to the melting of land-based ice. The oceans are presently rising by one-half inch per decade, enough to cause serious erosion along much of the U.S. coast. The projected rise is one to four feet by the year 2050. Such a large rise in the sea level would inundate vast coastal regions, erode shorelines, destroy coastal marshes and swamps (areas of very high biological productivity), pollute water supplies through the intrusion of salt water, and put at high risk the vastly disproportionate share of the world's economic wealth that is packed along coastlines. The great river deltas, from the Mississippi to the Ganges, would be flooded. Estimates are that a half-meter rise in Egypt would displace 16 percent of the population, while a two-meter rise in Bangladesh would claim 28 percent of the land where 30 million people live today and where more than 59 million are projected to live by 2030.
Positive consequences would be likely as well. Some plants would grow more quickly, fertilized by the additional carbon dioxide. (Many of them, however, will be weeds.) Rainfall might rise in what are now arid but potentially fertile regions, such as parts of sub-Saharan Africa. Conditions for agriculture would also improve in those northern areas that have both adequate soils and water supplies. Nonetheless, as the 1988 drought in the United States vividly demonstrated, human societies, industrial no less than rural, depend on the normal, predictable functioning of the climate system. Climate undergoing rapid change will not only be less predictable because it is different, but may be inherently more variable. Many climatologists believe that as accumulating greenhouse gases force the climate out of equilibrium, climate extremes-such as hurricanes, droughts, cold snaps and typhoons-will become more frequent and perhaps more intense.
Since climate change will be felt in every economic sector, adapting to its impact will be extremely expensive. Developing countries with their small reserves of capital, shortages of scientists and engineers, and weak central governments will be the least able to adapt, and the gap between the developed and developing worlds will almost certainly widen. Many of the adaptations needed will be prohibitively costly, and many impacts, notably the effects on wildlife and ecosystems, will be beyond the reach of human correction. A global strategy that relies on future adaption almost certainly means greater economic and human costs, and vastly larger biological losses, than would a strategy that attempts to control the extent and speed of the warming.
Greenhouse change is closely linked to stratospheric ozone depletion, which is also caused by chlorofluorocarbons. The increased ultraviolet radiation resulting from losses in that protective layer will cause an increase in skin cancers and eye damage. It will have many still uncertain impacts on plant and animal life, and may suppress the immune systems of many species.
Serious enough in itself, ozone depletion illustrates a worrisome feature of man's newfound ability to cause global change. It is almost impossible to predict accurately the long-term impact of new chemicals or processes on the environment. Chlorofluorocarbons were thoroughly tested when first introduced, and found to be benign. Their effect on the remote stratosphere was never considered.
Not only is it difficult to anticipate all the possible consequences in a highly interdependent, complex system, the system itself is poorly understood. When British scientists announced the appearance of a continent-sized "hole" in the ozone layer over Antarctica in 1985, the discovery sent shock waves through the scientific community. Although stratospheric ozone depletion had been the subject of intense study and debate for more than a decade, no one had predicted the Antarctic hole and no theory could account for it.
The lesson is this: current knowledge of planetary mechanisms is so scanty that the possibility of surprise, perhaps quite nasty surprise, must be rated rather high. The greatest risk may well come from a completely unanticipated direction. We lack both crucial knowledge and early warning systems.
Absent profound change in man's relationship to his environment, the future does not look bright. Consider the planet without such change in the year 2050. Economic growth is projected to have quintupled by then. Energy use could also quintuple; or if post-1973 trends continue, it may grow more slowly, perhaps only doubling or tripling. The human species already consumes or destroys 40 percent of all the energy produced by terrestrial photosynthesis, that is, 40 percent of the food energy potentially available to living things on land. While that fraction may be sustainable, it is doubtful that it could keep pace with the expected doubling of the world's population. Human use of 80 percent of the planet's potential productivity does not seem compatible with the continued functioning of the biosphere as we know it. The expected rate of species loss would have risen from perhaps a few each day to several hundred a day. The pollution and toxic waste burden would likely prove unmanageable. Tropical forests would have largely disappeared, and arable land, a vital resource in a world of ten billion people, would be rapidly decreasing due to soil degradation. In short, sweeping change in economic production systems is not a choice but a necessity.
Happily, this grim sketch of conditions in 2050 is not a prediction, but a projection, based on current trends. Like all projections, it says more about the present and the recent past than it does about the future. The planet is not destined to a slow and painful decline into environmental chaos. There are technical, scientific and economical solutions that are feasible to many current trends, and enough is known about promising new approaches to be confident that the right kinds of research will produce huge payoffs. Embedded in current practices are vast costs in lost opportunities and waste, which, if corrected, would bring massive benefits. Some such steps will require only a reallocation of money, while others will require sizable capital investments. None of the needed steps, however, requires globally unaffordable sums of money. What they do demand is a sizable shift in priorities.
For example, family-planning services cost about $10 per user, a tiny fraction of the cost of the basic human needs that would otherwise have to be met. Already identified opportunities for raising the efficiency of energy use in the United States cost one-half to one-seventh the cost of new energy supply. Comparable savings are available in most other countries. Agroforestry techniques, in which carefully selected combinations of trees and shrubs are planted together with crops, can not only replace the need for purchased fertilizer but also improve soil quality, make more water available to crops, hold down weeds, and provide fuelwood and higher agricultural yields all at the same time.
But if the technological opportunities are boundless, the social, political and institutional barriers are huge. Subsidies, pricing policies and economic discount rates encourage resource depletion in the name of economic growth, while delivering only the illusion of sustainable growth. Population control remains a controversial subject in much of the world. The traditional prerogatives of nation states are poorly matched with the needs for regional cooperation and global decision-making. And ignorance of the biological underpinning of human society blocks a clear view of where the long-term threats to global security lie.
Overcoming these economic and political barriers will require social and institutional inventions comparable in scale and vision to the new arrangements conceived in the decade following World War II. Without the sharp political turning point of a major war, and with threats that are diffuse and long term, the task will be more difficult. But if we are to avoid irreversible damage to the planet and a heavy toll in human suffering, nothing less is likely to suffice. A partial list of the specific changes suggests how demanding a task it will be.
Achieving sustainable economic growth will require the remodeling of agriculture, energy use and industrial production after nature's example-their reinvention, in fact. These economic systems must become circular rather than linear. Industry and manufacturing will need processes that use materials and energy with high efficiency, recycle by-products and produce little waste. Energy demand will have to be met with the highest efficiency consistent with full economic growth. Agriculture will rely heavily upon free ecosystem services instead of nearly exclusive reliance on man-made substitutes. And all systems will have to price goods and services to reflect the environmental costs of their provision.
A vital first step, one that can and should be taken in the very near term, would be to reinvent the national income accounts by which gross national product is measured. GNP is the foundation on which national economic policies are built, yet its calculation does not take into account resource depletion. A country can consume its forests, wildlife and fisheries, its minerals, its clean water and its topsoil, without seeing a reflection of the loss in its GNP. Nor are ecosystem services-sustaining soil fertility, moderating and storing rainfall, filtering air and regulating the climate-valued, though their loss may entail great expense. The result is that economic policymakers are profoundly misled by their chief guide.
A second step would be to invent a set of indicators by which global environmental health could be measured. Economic planning would be adrift without GNP, unemployment rates, and the like, and social planning without demographic indicators-fertility rates, infant mortality, literacy, life expectancy-would be impossible. Yet this is precisely where environmental policymaking stands today.
Development assistance also requires new tools. Bilateral and multilateral donors have found that project success rates climb when nongovernmental organizations distribute funds and direct programs. This is especially true in agriculture, forestry and conservation projects. The reasons are not mysterious. Such projects are more decentralized, more attuned to local needs and desires, and have a much higher degree of local participation in project planning. They are usually quite small in scale, however, and not capable of handling very large amounts of development funding. Often, too, their independent status threatens the national government. Finding ways to make far greater use of the strengths of such groups without weakening national governments is another priority for institutional innovation.
Better ways must also be found to turn the scientific and engineering strengths of the industrialized world to the solution of the developing world's problems. The challenges include learning enough about local constraints and conditions to ask the right questions, making such research professionally rewarding to the individual scientist, and transferring technology more effectively. The international centers for agricultural research, a jointly managed network of thirteen institutions launched in the 1960s, might be improved upon and applied in other areas.
On the political front, the need for a new diplomacy and for new institutions and regulatory regimes to cope with the world's growing environmental interdependence is even more compelling. Put bluntly, our accepted definition of the limits of national sovereignty as coinciding with national borders is obsolete. The government of Bangladesh, no matter how hard it tries, cannot prevent tragic floods, such as it suffered last year. Preventing them requires active cooperation from Nepal and India. The government of Canada cannot protect its water resources from acid rain without collaboration with the United States. Eighteen diverse nations share the heavily polluted Mediterranean Sea. Even the Caribbean Islands, as physically isolated as they are, find themselves affected by others' resource management policies as locusts, inadvertently bred through generations of exposure to pesticides and now strong enough to fly all the way from Africa, infest their shores.
The majority of environmental problems demand regional solutions which encroach upon what we now think of as the prerogatives of national governments. This is because the phenomena themselves are defined by the limits of watershed, ecosystem, or atmospheric transport, not by national borders. Indeed, the costs and benefits of alternative policies cannot often be accurately judged without considering the region rather than the nation.
The developing countries especially will need to pool their efforts in the search for solutions. Three-quarters of the countries in sub-Saharan Africa, for example, have fewer people than live in New York City. National scientific and research capabilities cannot be built on such a small population base. Regional cooperation is required.
Dealing with global change will be more difficult. No one nation or even group of nations can meet these challenges, and no nation can protect itself from the actions-or inaction-of others. No existing institution matches these criteria. It will be necessary to reduce the dominance of the superpower relationship which so often encourages other countries to adopt a wait-and-see attitude (you solve your problems first, then talk to us about change).
The United States, in particular, will have to assign a far greater prominence than it has heretofore to the practice of multilateral diplomacy. This would mean changes that range from the organization of the State Department and the language proficiency of the Foreign Service, to the definition of an international role that allows leadership without primacy, both in the slogging work of negotiation and in adherence to final outcomes. Above all, ways must soon be found to step around the deeply entrenched North-South cleavage and to replace it with a planetary sense of shared destiny. Perhaps the successes of the U.N. specialized agencies can be built upon for this purpose. But certainly the task of forging a global energy policy in order to control the greenhouse effect, for example, is a very long way from eradicating smallpox or sharing weather information.
The recent Soviet proposal to turn the U.N. Trusteeship Council, which has outlived the colonies it oversaw, into a trusteeship for managing the global commons (the oceans, the atmosphere, biological diversity and planetary climate) deserves close scrutiny. If a newly defined council could sidestep the U.N.'s political fault lines, and incorporate, rather than supplant, the existing strengths of the United Nations Environment Programme, it might provide a useful forum for reaching global environmental decisions at a far higher political level than anything that exists now.
Today's negotiating models-the Law of the Sea Treaty, the Nuclear Nonproliferation Treaty, even the promising Convention to Protect the Ozone Layer-are inadequate. Typically, such agreements take about 15 years to negotiate and enter into force, and perhaps another ten years before substantial changes in behavior are actually achieved. (The NPT, which required only seven years to complete these steps, is a notable exception.) Far better approaches will be needed.
Among these new approaches, perhaps the most difficult to achieve will be ways to negotiate successfully in the presence of substantial scientific uncertainty. The present model is static: years of negotiation leading to a final product. The new model will have to be fluid, allowing a rolling process of intermediate or self-adjusting agreements that respond quickly to growing scientific understanding. The recent Montreal agreement on the ozone layer supplies a useful precedent by providing that one-third of the parties can reconvene a scientific experts group to consider new evidence as it becomes available. The new model will require new economic methods for assessing risk, especially where the possible outcomes are irreversible. It will depend on a more active political role for biologists and chemists than they have been accustomed to, and far greater technical competence in the natural and planetary sciences among policymakers. Finally, the new model may need to forge a more involved and constructive role for the private sector. Relegating the affected industries to a heel-dragging, adversarial, outsiders role almost guarantees a slow process. The ozone agreement, to cite again this recent example, would not have been reached as quickly, and perhaps not at all, had it not been for the cooperation of the chlorofluorocarbon producers.
International law, broadly speaking, has declined in influence in recent years. With leadership and commitment from the major powers it might regain its lost status. But that will not be sufficient. To be effective, future arrangements will require provisions for monitoring, enforcement and compensation, even when damage cannot be assigned a precise monetary value. These are all areas where international law has traditionally been weak.
This is only a partial agenda for the needed decade of invention. Meanwhile, much can and must be done with existing means. Four steps are most important: prompt revision of the Montreal Treaty, to eliminate completely the production of chlorofluorocarbons no later than the year 2000; full support for and implementation of the global Tropical Forestry Action Plan developed by the World Bank, the U.N.'s Development Programme, the Food and Agricultural Organization, and the World Resources Institute; sufficient support for family planning programs to ensure that all who want contraceptives have affordable access to them at least by the end of the decade; and, for the United States, a ten-year energy policy with the goal of increasing the energy productivity of our economy (i.e., reducing the amount of energy required to produce a dollar of GNP) by about three percent each year. While choosing four priorities from dozens of needed initiatives is highly arbitrary, these four stand out as ambitious yet achievable goals on which a broad consensus could be developed, and whose success would bring multiple, long-term global benefits touching every major international environmental concern.
Reflecting on the discovery of atomic energy, Albert Einstein noted "everything changed." And indeed, nuclear fission became the dominant force-military, geopolitical, and even psychological and social-of the ensuing decades. In the same sense, the driving force of the coming decades may well be environmental change. Man is still utterly dependent on the natural world but now has for the first time the ability to alter it, rapidly and on a global scale. Because of that difference, Einstein's verdict that "we shall require a substantially new manner of thinking if mankind is to survive" still seems apt.