Crisis of Command
America’s Broken Civil-Military Relationship Imperils National Security
In Joseph Conrad's Youth, a novella published at the turn of the century, Marlowe, the narrator, remembers when he first encountered "the East":
And then, before I could open my lips, the East spoke to me, but it was in a Western voice. A torrent of words was poured into the enigmatical, the fateful silence; outlandish, angry words mixed with words and even whole sentences of good English, less strange but even more surprising. The voice swore and cursed violently; it riddled the solemn peace of the bay by a volley of abuse. It began by calling me Pig, and from that went crescendo into unmentionable adjectives -in English.
The young Marlowe knew that even the most remote civilization had been made and remade by the West, and taught new ways.
Not so Samuel P. Huntington. In a curious essay, "The Clash of Civilizations," Huntington has found his civilizations whole and intact, watertight under an eternal sky. Buried alive, as it were, during the years of the Cold War, these civilizations (Islamic, Slavic-Orthodox, Western, Confucian, Japanese, Hindu, etc.) rose as soon as the stone was rolled off, dusted themselves off, and proceeded to claim the loyalty of their adherents. For this student of history and culture, civilizations have always seemed messy creatures. Furrows run across whole civilizations, across individuals themselves-that was modernity's verdict. But Huntington looks past all that. The crooked and meandering alleyways of the world are straightened out. With a sharp pencil and a steady hand Huntington marks out where one civilization ends and the wilderness of "the other" begins.
More surprising still is Huntington's attitude toward states, and their place in his scheme of things. From one of the most influential and brilliant students of the state and its national interest there now comes an essay that misses the slyness of states, the unsentimental and cold-blooded nature of so much of what they do as they pick their way through chaos. Despite the obligatory passage that states will remain "the most powerful actors in world affairs," states are written off, their place given over to clashing civilizations. In Huntington's words, "The next world war, if there is one, will be a war between civilizations."
THE POWER OF MODERNITY
Huntington's meditation is occasioned by his concern about the state of the West, its power and the terms of its engagement with "the rest." "He who gives, dominates," the great historian Fernand Braudel observed of the traffic of civilizations. In making itself over the centuries, the West helped make the others as well. We have come to the end of this trail, Huntington is sure. He is impressed by the "de-Westernization" of societies, their "indigenization" and apparent willingness to go their own way. In his view of things such phenomena as the "Hinduization" of India and Islamic fundamentalism are ascendant. To these detours into "tradition" Huntington has assigned great force and power.
But Huntington is wrong. He has underestimated the tenacity of modernity and secularism in places that acquired these ways against great odds, always perilously close to the abyss, the darkness never far. India will not become a Hindu state. The inheritance of Indian secularism will hold. The vast middle class will defend it, keep the order intact to maintain India's-and its own-place in the modern world of nations. There exists in that anarchic polity an instinctive dread of playing with fires that might consume it. Hindu chauvinism may coarsen the public life of the country, but the state and the middle class that sustains it know that a detour into religious fanaticism is a fling with ruin. A resourceful middle class partakes of global culture and norms. A century has passed since the Indian bourgeoisie, through its political vehicle the Indian National Congress, set out to claim for itself and India a place among nations. Out of that long struggle to overturn British rule and the parallel struggle against "communalism," the advocates of the national idea built a large and durable state. They will not cede all this for a political kingdom of Hindu purity.
We have been hearing from the traditionalists, but we should not exaggerate their power, for traditions are often most insistent and loud when they rupture, when people no longer really believe and when age-old customs lose their ability to keep men and women at home. The phenomenon we have dubbed as Islamic fundamentalism is less a sign of resurgence than of panic and bewilderment and guilt that the border with "the other" has been crossed. Those young urban poor, half-educated in the cities of the Arab world, and their Sorbonne-educated lay preachers, can they be evidence of a genuine return to tradition? They crash Europe's and America's gates in search of liberty and work, and they rail against the sins of the West. It is easy to understand Huntington's frustration with this kind of complexity, with the strange mixture of attraction and repulsion that the West breeds, and his need to simplify matters, to mark out the borders of civilizations.
Tradition-mongering is no proof, though, that these civilizations outside the West are intact, or that their thrashing about is an indication of their vitality, or that they present a conventional threat of arms. Even so thorough and far-reaching an attack against Western hegemony as Iran's theocratic revolution could yet fail to wean that society from the culture of the West. That country's cruel revolution was born of the realization of the "armed Imam" that his people were being seduced by America's ways. The gates had been thrown wide open in the 1970s, and the high walls Ayatollah Khomeini built around his polity were a response to that cultural seduction. Swamped, Iran was "rescued" by men claiming authenticity as their banner. One extreme led to another.
"We prayed for the rain of mercy and received floods," was the way Mehdi Bazargan, the decent modernist who was Khomeini's first prime minister, put it. But the millennium has been brought down to earth, and the dream of a pan-Islamic revolt in Iran's image has vanished into the wind. The terror and the shabbiness have caught up with the utopia. Sudan could emulate the Iranian "revolutionary example." But this will only mean the further pauperization and ruin of a desperate land. There is no rehabilitation of the Iranian example.
A battle rages in Algeria, a society of the Mediterranean, close to Europe-a wine-producing country for that matter-and in Egypt between the secular powers that be and an Islamic alternative. But we should not rush to print with obituaries of these states. In Algeria the nomenklatura of the National Liberation Front failed and triggered a revolt of the young, the underclass and the excluded. The revolt raised an Islamic banner. Caught between a regime they despised and a reign of virtue they feared, the professionals and the women and the modernists of the middle class threw their support to the forces of "order." They hailed the army's crackdown on the Islamicists; they allowed the interruption of a democratic process sure to bring the Islamicists to power; they accepted the "liberties" protected by the repression, the devil you know rather than the one you don't.
The Algerian themes repeat in the Egyptian case, although Egypt's dilemma over its Islamicist opposition is not as acute. The Islamicists continue to hound the state, but they cannot bring it down. There is no likelihood that the Egyptian state-now riddled with enough complacency and corruption to try the celebrated patience and good humor of the Egyptians-will go under. This is an old and skeptical country. It knows better than to trust its fate to enforcers of radical religious dogma. These are not deep and secure structures of order that the national middle classes have put in place. But they will not be blown away overnight.
Nor will Turkey lose its way, turn its back on Europe and chase after some imperial temptation in the scorched domains of Central Asia. Huntington sells that country's modernity and secularism short when he writes that the Turks-rejecting Mecca and rejected by Brussels-are likely to head to Tashkent in search of a Pan-Turkic role. There is no journey to that imperial past. Ataturk severed that link with fury, pointed his country westward, embraced the civilization of Europe and did it without qualms or second thoughts. It is on Frankfurt and Bonn-and Washington-not on Baku and Tashkent that the attention of the Turks is fixed. The inheritors of Ataturk's legacy are too shrewd to go chasing after imperial glory, gathering about them the scattered domains of the Turkish peoples. After their European possessions were lost, the Turks clung to Thrace and to all that this link to Europe represents.
Huntington would have nations battle for civilizational ties and fidelities when they would rather scramble for their market shares, learn how to compete in a merciless world economy, provide jobs, move out of poverty. For their part, the "management gurus" and those who believe that the interests have vanquished the passions in today's world tell us that men want Sony, not soil. There is a good deal of truth in what they say, a terrible exhaustion with utopias, a reluctance to set out on expeditions of principle or belief. It is hard to think of Russia, ravaged as it is by inflation, taking up the grand cause of a "second Byzantium," the bearer of the orthodox-Slavic torch.
And where is the Confucian world Huntington speaks of? In the busy and booming lands of the Pacific Rim, so much of politics and ideology has been sublimated into finance that the nations of East Asia have turned into veritable workshops. The civilization of Cathay is dead; the Indonesian archipelago is deaf to the call of the religious radicals in Tehran as it tries to catch up with Malaysia and Singapore. A different wind blows in the lands of the Pacific. In that world economics, not politics, is in command. The world is far less antiseptic than Lee Kuan Yew, the sage of Singapore, would want it to be. A nemesis could lie in wait for all the prosperity that the 1980s brought to the Pacific. But the lands of the Pacific Rim-protected, to be sure, by an American security umbrella-are not ready for a great falling out among the nations. And were troubles to visit that world they would erupt within its boundaries, not across civilizational lines.
The things and ways that the West took to "the rest"-those whole sentences of good English that Marlowe heard a century ago-have become the ways of the world. The secular idea, the state system and the balance of power, pop culture jumping tariff walls and barriers, the state as an instrument of welfare, all these have been internalized in the remotest places. We have stirred up the very storms into which we now ride.
THE WEAKNESS OF TRADITION
Nations "cheat": they juggle identities and interests. Their ways meander. One would think that the traffic of arms from North Korea and China to Libya and Iran and Syria shows this-that states will consort with any civilization, however alien, as long as the price is right and the goods are ready. Huntington turns this routine act of selfishness into a sinister "Confucian-Islamic connection." There are better explanations: the commerce of renegades, plain piracy, an "underground economy" that picks up the slack left by the great arms suppliers (the United States, Russia, Britain and France).
Contrast the way Huntington sees things with Braudel's depiction of the traffic between Christendom and Islam across the Mediterranean in the sixteenth century-and this was in a religious age, after the fall of Constantinople to the Turks and of Granada to the Spanish: "Men passed to and fro, indifferent to frontiers, states and creeds. They were more aware of the necessities for shipping and trade, the hazards of war and piracy, the opportunities for complicity or betrayal provided by circumstances."
Those kinds of "complicities" and ambiguities are missing in Huntington's analysis. Civilizations are crammed into the nooks and crannies-and checkpoints-of the Balkans. Huntington goes where only the brave would venture, into that belt of mixed populations stretching from the Adriatic to the Baltic. Countless nationalisms make their home there, all aggrieved, all possessed of memories of a fabled past and equally ready for the demagogues vowing to straighten a messy map. In the thicket of these pan-movements he finds the line that marked "the eastern boundary of Western Christianity in the year 1500." The scramble for turf between Croatian nationalism and its Serbian counterpart, their "joint venture" in carving up Bosnia, are made into a fight of the inheritors of Rome, Byzantium and Islam.
But why should we fall for this kind of determinism? "An outsider who travels the highway between Zagreb and Belgrade is struck not by the decisive historical fault line which falls across the lush Slavonian plain but by the opposite. Serbs and Croats speak the same language, give or take a few hundred words, have shared the same village way of life for centuries." The cruel genius of Slobodan Milosevic and Franjo Tudjman, men on horseback familiar in lands and situations of distress, was to make their bids for power into grand civilizational undertakings-the ramparts of the Enlightenment defended against Islam or, in Tudjman's case, against the heirs of the Slavic-Orthodox faith. Differences had to be magnified. Once Tito, an equal opportunity oppressor, had passed from the scene, the balancing act among the nationalities was bound to come apart. Serbia had had a measure of hegemony in the old system. But of the world that loomed over the horizon-privatization and economic reform-the Serbs were less confident. The citizens of Sarajevo and the Croats and the Slovenes had a head start on the rural Serbs. And so the Serbs hacked at the new order of things with desperate abandon.
Some Muslim volunteers came to Bosnia, driven by faith and zeal. Huntington sees in these few stragglers the sweeping power of "civilizational rallying," proof of the hold of what he calls the "kin-country syndrome." This is delusion. No Muslim cavalry was ever going to ride to the rescue. The Iranians may have railed about holy warfare, but the Chetniks went on with their work. The work of order and mercy would have had to be done by the United States if the cruel utopia of the Serbs was to be contested.
It should have taken no powers of prophecy to foretell where the fight in the Balkans would end. The abandonment of Bosnia was of a piece with the ways of the world. No one wanted to die for Srebrenica. The Europeans averted their gaze, as has been their habit. The Americans hesitated for a moment as the urge to stay out of the Balkans did battle with the scenes of horror. Then "prudence" won out. Milosevic and Tudjman may need civilizational legends, but there is no need to invest their projects of conquest with this kind of meaning.
In his urge to find that relentless war across Islam's "bloody borders," Huntington buys Saddam Hussein's interpretation of the Gulf War. It was, for Saddam and Huntington, a civilizational battle. But the Gulf War's verdict was entirely different. For if there was a campaign that laid bare the interests of states, the lengths to which they will go to restore a tolerable balance of power in a place that matters, this was it. A local despot had risen close to the wealth of the Persian Gulf, and a Great Power from afar had come to the rescue. The posse assembled by the Americans had Saudi, Turkish, Egyptian, Syrian, French, British and other riders.
True enough, when Saddam Hussein's dream of hegemony was shattered, the avowed secularist who had devastated the ulama, the men of religion in his country, fell back on Ayatollah Khomeini's language of fire and brimstone and borrowed the symbolism and battle cry of his old Iranian nemesis. But few, if any, were fooled by this sudden conversion to the faith. They knew the predator for what he was: he had a Christian foreign minister (Tariq Aziz); he had warred against the Iranian revolution for nearly a decade and had prided himself on the secularism of his regime. Prudent men of the social and political order, the ulama got out of the way and gave their state the room it needed to check the predator at the Saudi/Kuwaiti border. They knew this was one of those moments when purity bows to necessity. Ten days after Saddam swept into Kuwait, Saudi Arabia's most authoritative religious body, the Council of Higher Ulama, issued a fatwa, or a ruling opinion, supporting the presence of Arab and Islamic and "other friendly forces." All means of defense, the ulama ruled, were legitimate to guarantee the people "the safety of their religion, their wealth, and their honor and their blood, to protect what they enjoy of safety and stability." At some remove, in Egypt, that country's leading religious figure, the Shaykh of Al Ashar, Shaykh Jadd al Haqq, denounced Saddam as a tyrant and brushed aside his Islamic pretensions as a cover for tyranny.
Nor can the chief Iranian religious leader Ayatollah Ali Khamenei's rhetoric against the Americans during the Gulf War be taken as evidence of Iran's disposition toward that campaign. Crafty men, Iran's rulers sat out that war. They stood to emerge as the principal beneficiaries of Iraq's defeat. The American-led campaign against Iraq held out the promise of tilting the regional balance in their favor. No tears were shed in Iran for what befell Saddam Hussein's regime.
It is the mixed gift of living in hard places that men and women know how to distinguish between what they hear and what there is: no illusions were thus entertained in vast stretches of the Arab Muslim world about Saddam, or about the campaign to thwart him for that matter. The fight in the gulf was seen for what it was: a bid for primacy met by an imperial expedition that laid it to waste. A circle was closed in the gulf: where once the order in the region "east of Suez" had been the work of the British, it was now provided by Pax Americana. The new power standing sentry in the gulf belonged to the civilization of the West, as did the prior one. But the American presence had the anxious consent of the Arab lands of the Persian Gulf. The stranger coming in to check the kinsmen.
The world of Islam divides and sub-divides. The battle lines in the Caucasus, too, are not coextensive with civilizational fault lines. The lines follow the interests of states. Where Huntington sees a civilizational duel between Armenia and Azerbaijan, the Iranian state has cast religious zeal and fidelity to the wind. Indeed, in that battle the Iranians have tilted toward Christian Armenia.
THE WRIT OF STATES
We have been delivered into a new world, to be sure. But it is not a world where the writ of civilizations runs. Civilizations and civilizational fidelities remain. There is to them an astonishing measure of permanence. But let us be clear: civilizations do not control states, states control civilizations. States avert their gaze from blood ties when they need to; they see brotherhood and faith and kin when it is in their interest to do so.
We remain in a world of self-help. The solitude of states continues; the disorder in the contemporary world has rendered that solitude more pronounced. No way has yet been found to reconcile France to Pax Americana's hegemony, or to convince it to trust its security or cede its judgment to the preeminent Western power. And no Azeri has come up with a way the lands of Islam could be rallied to the fight over Nagorno Karabakh. The sky has not fallen in Kuala Lumpur or in Tunis over the setbacks of Azerbaijan in its fight with Armenia.
The lesson bequeathed us by Thucydides in his celebrated dialogue between the Melians and the Athenians remains. The Melians, it will be recalled, were a colony of the Lacedaemonians. Besieged by Athens, they held out and were sure that the Lacedaemonians were "bound, if only for very shame, to come to the aid of their kindred." The Melians never wavered in their confidence in their "civilizational" allies: "Our common blood insures our fidelity." We know what became of the Melians. Their allies did not turn up, their island was sacked, their world laid to waste.