The Fractured Power
How to Overcome Tribalism
LIFE AFTER THE COLD WAR
The United States has found it exceedingly difficult to define its "national interest" in the absence of Soviet power. That we do not know how to think about what follows the U.S.-Soviet confrontation is clear from the continued references to the "post-Cold War period." Yet such periods of transition are important, because they offer strategic opportunities. During these fluid times, one can affect the shape of the world to come.
The enormity of the moment is obvious. The Soviet Union was more than just a traditional global competitor; it strove to lead a universal socialist alternative to markets and democracy. The Soviet Union quarantined itself and many often-unwitting captives and clients from the rigors of international capitalism. In the end, it sowed the seeds of its own destruction, becoming in isolation an economic and technological dinosaur.
But this is only part of the story. The Soviet Union's collapse coincided with another great revolution. Dramatic changes in information technology and the growth of "knowledge-based" industries altered the very basis of economic dynamism, accelerating already noticeable trends in economic interaction that often circumvented and ignored state boundaries. As competition for capital investment has intensified, states have faced difficult choices about their internal economic, political, and social structures. As the prototype of this "new economy," the United States has seen its economic influence grow—and with it, its diplomatic influence. America has emerged as both the principal benefactor of these simultaneous revolutions and their beneficiary.
The process of outlining a new foreign policy must begin by recognizing that the United States is in a remarkable position. Powerful secular trends are moving the world toward economic openness and—more unevenly—democracy and individual liberty. Some states have one foot on the train and the other off. Some states still hope to find a way to decouple democracy and economic progress. Some hold on to old hatreds as diversions from the modernizing task at hand. But the United States and its allies are on the right side of history.
In such an environment, American policies must help further these favorable trends by maintaining a disciplined and consistent foreign policy that separates the important from the trivial. The Clinton administration has assiduously avoided implementing such an agenda. Instead, every issue has been taken on its own terms—crisis by crisis, day by day. It takes courage to set priorities because doing so is an admission that American foreign policy cannot be all things to all people—or rather, to all interest groups. The Clinton administration's approach has its advantages: If priorities and intent are not clear, they cannot be criticized. But there is a high price to pay for this approach. In a democracy as pluralistic as ours, the absence of an articulated "national interest" either produces a fertile ground for those wishing to withdraw from the world or creates a vacuum to be filled by parochial groups and transitory pressures.
American foreign policy in a Republican administration should refocus the United States on the national interest and the pursuit of key priorities. These tasks are
* to ensure that America's military can deter war, project power, and fight in defense of its interests if deterrence fails;
* to promote economic growth and political openness by extending free trade and a stable international monetary system to all committed to these principles, including in the western hemisphere, which has too often been neglected as a vital area of U.S. national interest;
* to renew strong and intimate relationships with allies who share American values and can thus share the burden of promoting peace, prosperity, and freedom;
* to focus U.S. energies on comprehensive relationships with the big powers, particularly Russia and China, that can and will mold the character of the international political system; and
* to deal decisively with the threat of rogue regimes and hostile powers, which is increasingly taking the forms of the potential for terrorism and the development of weapons of mass destruction (WMD).
INTERESTS AND IDEALS
Power matters, both the exercise of power by the United States and the ability of others to exercise it. Yet many in the United States are (and have always been) uncomfortable with the notions of power politics, great powers, and power balances. In an extreme form, this discomfort leads to a reflexive appeal instead to notions of international law and norms, and the belief that the support of many states—or even better, of institutions like the United Nations—is essential to the legitimate exercise of power. The "national interest" is replaced with "humanitarian interests" or the interests of "the international community." The belief that the United States is exercising power legitimately only when it is doing so on behalf of someone or something else was deeply rooted in Wilsonian thought, and there are strong echoes of it in the Clinton administration. To be sure, there is nothing wrong with doing something that benefits all humanity, but that is, in a sense, a second-order effect. America's pursuit of the national interest will create conditions that promote freedom, markets, and peace. Its pursuit of national interests after World War II led to a more prosperous and democratic world. This can happen again.
So multilateral agreements and institutions should not be ends in themselves. U.S. interests are served by having strong alliances and can be promoted within the U.N. and other multilateral organizations, as well as through well-crafted international agreements. But the Clinton administration has often been so anxious to find multilateral solutions to problems that it has signed agreements that are not in America's interest. The Kyoto treaty is a case in point: whatever the facts on global warming, a treaty that does not include China and exempts "developing" countries from tough standards while penalizing American industry cannot possibly be in America's national interest.
Similarly, the arguments about U.S. ratification of the Comprehensive Test Ban Treaty are instructive. Since 1992, the United States has refrained unilaterally from testing nuclear weapons. It is an example to the rest of the world yet does not tie its own hands "in perpetuity" if testing becomes necessary again. But in pursuit of a "norm" against the acquisition of nuclear weapons, the United States signed a treaty that was not verifiable, did not deal with the threat of the development of nuclear weapons by rogue states, and threatened the reliability of the nuclear stockpile. Legitimate congressional concerns about the substance of the treaty were ignored during negotiations. When faced with the defeat of a bad treaty, the administration attacked the motives of its opponents—incredibly branding long-standing internationalists like Senators Richard Lugar (R-Ind.) and John Warner (R-Va.) as isolationists.
Certainly, Republican presidents have not been immune to the practice of pursuing symbolic agreements of questionable value. According to the Senate Foreign Relations Committee, some 52 conventions, agreements, and treaties still await ratification; some even date back to 1949. But the Clinton administration's attachment to largely symbolic agreements and its pursuit of, at best, illusory "norms" of international behavior have become an epidemic. That is not leadership. Neither is it isolationist to suggest that the United States has a special role in the world and should not adhere to every international convention and agreement that someone thinks to propose.
Even those comfortable with notions of the "national interest" are still queasy with a focus on power relationships and great-power politics. The reality is that a few big powers can radically affect international peace, stability, and prosperity. These states are capable of disruption on a grand scale, and their fits of anger or acts of beneficence affect hundreds of millions of people. By reason of size, geographic position, economic potential, and military strength, they are capable of influencing American welfare for good or ill. Moreover, that kind of power is usually accompanied by a sense of entitlement to play a decisive role in international politics. Great powers do not just mind their own business.
Some worry that this view of the world ignores the role of values, particularly human rights and the promotion of democracy. In fact, there are those who would draw a sharp line between power politics and a principled foreign policy based on values. This polarized view—you are either a realist or devoted to norms and values—may be just fine in academic debate, but it is a disaster for American foreign policy. American values are universal. People want to say what they think, worship as they wish, and elect those who govern them; the triumph of these values is most assuredly easier when the international balance of power favors those who believe in them. But sometimes that favorable balance of power takes time to achieve, both internationally and within a society. And in the meantime, it is simply not possible to ignore and isolate other powerful states that do not share those values.
The Cold War is a good example. Few would deny that the collapse of the Soviet Union profoundly transformed the picture of democracy and human rights in eastern and central Europe and the former Soviet territories. Nothing improved human rights as much as the collapse of Soviet power. Throughout the Cold War, the United States pursued a policy that promoted political liberty, using every instrument from the Voice of America to direct presidential intervention on behalf of dissidents. But it lost sight neither of the importance of the geopolitical relationship with Moscow nor of the absolute necessity of retaining robust American military power to deter an all-out military confrontation.
In the 1970s, the Soviet Union was at the height of its power—which it was more than willing to use. Given its weak economic and technological base, the victories of that period turned out to be Pyrrhic. President Reagan's challenge to Soviet power was both resolute and well timed. It included intense substantive engagements with Moscow across the entire range of issues captured in the "four-part agenda" (arms control, human rights, economic issues, and regional conflicts). The Bush administration then focused greater attention on rolling back Soviet power in central and eastern Europe. As the Soviet Union's might waned, it could no longer defend its interests and gave up peacefully (thankfully) to the West—a tremendous victory for Western power and also for human liberty.
The United States has many sources of power in the pursuit of its goals. The global economy demands economic liberalization, greater openness and transparency, and at the very least, access to information technology. International economic policies that leverage the advantages of the American economy and expand free trade are the decisive tools in shaping international politics. They permit us to reach out to states as varied as South Africa and India and to engage our neighbors in the western hemisphere in a shared interest in economic prosperity. The growth of entrepreneurial classes throughout the world is an asset in the promotion of human rights and individual liberty, and it should be understood and used as such. Yet peace is the first and most important condition for continued prosperity and freedom. America's military power must be secure because the United States is the only guarantor of global peace and stability. The current neglect of America's armed forces threatens its ability to maintain peace.
The Bush administration had been able to reduce defense spending somewhat at the end of the Cold War in 1991. But the Clinton administration witlessly accelerated and deepened these cuts. The results were devastating: military readiness declined, training suffered, military pay slipped 15 percent below civilian equivalents, morale plummeted, and the services cannibalized existing equipment to keep airplanes flying, ships afloat, and tanks moving. The increased difficulty in recruiting people to the armed forces or retaining them is hardly surprising.
Moreover, the administration began deploying American forces abroad at a furious pace—an average of once every nine weeks. As it cut defense spending to its lowest point as a percentage of GDP since Pearl Harbor, the administration deployed the armed forces more often than at any time in the last 50 years. Some of the deployments themselves were questionable, such as in Haiti. But more than anything it was simply unwise to multiply missions in the face of a continuing budget reduction. Means and mission were not matched, and (predictably) the already thinly stretched armed forces came close to a breaking point. When all these trends became so obvious and embarrassing that they could no longer be ignored, the administration finally requested increased defense spending. But the "death spiral," as the administration's own undersecretary of defense called it—robbing procurement and research and development simply to operate the armed forces—was already well under way. That the administration did nothing, choosing instead to live off the fruits of Reagan's military buildup, constitutes an extraordinary neglect of the fiduciary responsibilities of the commander in chief.
Now the next president will be confronted with a prolonged job of repair. Military readiness will have to take center stage, particularly those aspects that affect the living conditions of the troops—military pay, housing—and also training. New weapons will have to be procured in order to give the military the capacity to carry out today's missions. But even in its current state, the American military still enjoys a commanding technological lead and therefore has a battlefield advantage over any competitor. Thus the next president should refocus the Pentagon's priorities on building the military of the 21st century rather than continuing to build on the structure of the Cold War. U.S. technological advantages should be leveraged to build forces that are lighter and more lethal, more mobile and agile, and capable of firing accurately from long distances. In order to do this, Washington must reallocate resources, perhaps in some cases skipping a generation of technology to make leaps rather than incremental improvements in its forces.
The other major concern is a loss of focus on the mission of the armed forces. What does it mean to deter, fight, and win wars and defend the national interest? First, the American military must be able to meet decisively the emergence of any hostile military power in the Asia-Pacific region, the Middle East, the Persian Gulf, and Europe—areas in which not only our interests but also those of our key allies are at stake. America's military is the only one capable of this deterrence function, and it must not be stretched or diverted into areas that weaken these broader responsibilities. It is the role that the United States played when Saddam Hussein threatened the Persian Gulf, and it is the power needed to deter trouble on the Korean Peninsula or across the Taiwan Strait. In the latter cases, the goal is to make it inconceivable for North Korea or China to use force because American military power is a compelling factor in their equations.
Some small-scale conflicts clearly have an impact on American strategic interests. Such was the case with Kosovo, which was in the backyard of America's most important strategic alliance: NATO. In fact, Yugoslav President Slobodan MiloŠevic's rejection of peaceful coexistence with the Kosovar Albanians threatened to rock the area's fragile ethnic balance. Eastern Europe is a patchwork of ethnic minorities. For the most part, Hungarians and Romanians, Bulgarians and Turks, and even Ukrainians and Russians have found a way since 1991 of preventing their differences from exploding. MiloŠevic has been the exception, and the United States had an overriding strategic interest in stopping him. There was, of course, a humanitarian disaster looming as well, but in the absence of concerns based on the interests of the alliance, the case for intervention would have been more tenuous.
The Kosovo war was conducted incompetently, in part because the administration's political goals kept shifting and in part because it was not, at the start, committed to the decisive use of military force. That President Clinton was surprised at MiloŠevic's tenacity is, well, surprising. If there is any lesson from history, it is that small powers with everything to lose are often more stubborn than big powers, for whom the conflict is merely one among many problems. The lesson, too, is that if it is worth fighting for, you had better be prepared to win. Also, there must be a political game plan that will permit the withdrawal of our forces—something that is still completely absent in Kosovo.
But what if our values are attacked in areas that are not arguably of strategic concern? Should the United States not try to save lives in the absence of an overriding strategic rationale? The next American president should be in a position to intervene when he believes, and can make the case, that the United States is duty-bound to do so. "Humanitarian intervention" cannot be ruled out a priori. But a decision to intervene in the absence of strategic concerns should be understood for what it is. Humanitarian problems are rarely only humanitarian problems; the taking of life or withholding of food is almost always a political act. If the United States is not prepared to address the underlying political conflict and to know whose side it is on, the military may end up separating warring parties for an indefinite period. Sometimes one party (or both) can come to see the United States as the enemy. Because the military cannot, by definition, do anything decisive in these "humanitarian" crises, the chances of misreading the situation and ending up in very different circumstances are very high. This was essentially the problem of "mission creep" in Somalia.
The president must remember that the military is a special instrument. It is lethal, and it is meant to be. It is not a civilian police force. It is not a political referee. And it is most certainly not designed to build a civilian society. Military force is best used to support clear political goals, whether limited, such as expelling Saddam from Kuwait, or comprehensive, such as demanding the unconditional surrender of Japan and Germany during World War II. It is one thing to have a limited political goal and to fight decisively for it; it is quite another to apply military force incrementally, hoping to find a political solution somewhere along the way. A president entering these situations must ask whether decisive force is possible and is likely to be effective and must know how and when to get out. These are difficult criteria to meet, so U.S. intervention in these "humanitarian" crises should be, at best, exceedingly rare.
This does not mean that the United States must ignore humanitarian and civil conflicts around the world. But the military cannot be involved everywhere. Often, these tasks might be better carried out by regional actors, as modeled by the Australian-led intervention in East Timor. The U.S. might be able to lend financial, logistical, and intelligence support. Sometimes tough, competent diplomacy in the beginning can prevent the need for military force later. Using the American armed forces as the world's "911" will degrade capabilities, bog soldiers down in peacekeeping roles, and fuel concern among other great powers that the United States has decided to enforce notions of "limited sovereignty" worldwide in the name of humanitarianism. This overly broad definition of America's national interest is bound to backfire as others arrogate the same authority to themselves. Or we will find ourselves looking to the United Nations to sanction the use of American military power in these cases, implying that we will do so even when our vital interests are involved, which would also be a mistake.
DEALING WITH THE POWERFUL
Another crucial task for the United States is to focus on relations with other powerful states. Although the United States is fortunate to count among its friends several great powers, it is important not to take them for granted—so that there is a firm foundation when it comes time to rely on them. The challenges of China and North Korea require coordination and cooperation with Japan and South Korea. The signals that we send to our real partners are important. Never again should an American president go to Beijing for nine days and refuse to stop in Tokyo or Seoul.
There is work to do with the Europeans, too, on defining what holds the transatlantic alliance together in the absence of the Soviet threat. NATO is badly in need of attention in the wake of Kosovo and with the looming question of its further enlargement in 2002 and beyond. The door to NATO for the remaining states of eastern and central Europe should remain open, as many are actively preparing to meet the criteria for membership. But the parallel track of NATO's own evolution, its attention to the definition of its mission, and its ability to digest and then defend new members has been neglected. Moreover, the United States has an interest in shaping the European defense identity—welcoming a greater European military capability as long as it is within the context of NATO. NATO has a very full agenda. Membership in NATO will mean nothing to anyone if the organization is no longer militarily capable and if it is unclear about its mission.
For America and our allies, the most daunting task is to find the right balance in our policy toward Russia and China. Both are equally important to the future of international peace, but the challenges they pose are very different. China is a rising power; in economic terms, that should be good news, because in order to maintain its economic dynamism, China must be more integrated into the international economy. This will require increased openness and transparency and the growth of private industry. The political struggle in Beijing is over how to maintain the Communist Party's monopoly on power. Some see economic reform, growth, and a better life for the Chinese people as the key. Others see the inherent contradiction in loosening economic control and maintaining the party's political dominance. As China's economic problems multiply due to slowing growth rates, failing banks, inert state enterprises, and rising unemployment, this struggle will intensify.
It is in America's interest to strengthen the hands of those who seek economic integration because this will probably lead to sustained and organized pressures for political liberalization. There are no guarantees, but in scores of cases from Chile to Spain to Taiwan, the link between democracy and economic liberalization has proven powerful over the long run. Trade and economic interaction are, in fact, good—not only for America's economic growth but for its political aims as well. Human rights concerns should not move to the sidelines in the meantime. Rather, the American president should press the Chinese leadership for change. But it is wise to remember that our influence through moral arguments and commitment is still limited in the face of Beijing's pervasive political control. The big trends toward the spread of information, the access of young Chinese to American values through educational exchanges and training, and the growth of an entrepreneurial class that does not owe its livelihood to the state are, in the end, likely to have a more powerful effect on life in China.
Although some argue that the way to support human rights is to refuse trade with China, this punishes precisely those who are most likely to change the system. Put bluntly, Li Peng and the Chinese conservatives want to continue to run the economy by state fiat. Of course, there should be tight export controls on the transfer of militarily sensitive technology to China. But trade in general can open up the Chinese economy and, ultimately, its politics too. This view requires faith in the power of markets and economic freedom to drive political change, but it is a faith confirmed by experiences around the globe.
Even if there is an argument for economic interaction with Beijing, China is still a potential threat to stability in the Asia-Pacific region. Its military power is currently no match for that of the United States. But that condition is not necessarily permanent. What we do know is that China is a great power with unresolved vital interests, particularly concerning Taiwan and the South China Sea. China resents the role of the United States in the Asia-Pacific region. This means that China is not a "status quo" power but one that would like to alter Asia's balance of power in its own favor. That alone makes it a strategic competitor, not the "strategic partner" the Clinton administration once called it. Add to this China's record of cooperation with Iran and Pakistan in the proliferation of ballistic-missile technology, and the security problem is obvious. China will do what it can to enhance its position, whether by stealing nuclear secrets or by trying to intimidate Taiwan.
China's success in controlling the balance of power depends in large part on America's reaction to the challenge. The United States must deepen its cooperation with Japan and South Korea and maintain its commitment to a robust military presence in the region. It should pay closer attention to India's role in the regional balance. There is a strong tendency conceptually to connect India with Pakistan and to think only of Kashmir or the nuclear competition between the two states. But India is an element in China's calculation, and it should be in America's, too. India is not a great power yet, but it has the potential to emerge as one.
The United States also has a deep interest in the security of Taiwan. It is a model of democratic and market-oriented development, and it invests significantly in the mainland's economy. The longstanding U.S. commitment to a "one-China" policy that leaves to a future date the resolution of the relationship between Taipei and Beijing is wise. But that policy requires that neither side challenge the status quo and that Beijing, as the more powerful actor, renounce the use of force. U.S. resolve anchors this policy. The Clinton administration tilted toward Beijing, when, for instance, it used China's formulation of the "three no's" during the president's trip there. Taiwan has been looking for attention and reassurance ever since. If the United States is resolute, peace can be maintained in the Taiwan Strait until a political settlement on democratic terms is available.
Some things take time. U.S. policy toward China requires nuance and balance. It is important to promote China's internal transition through economic interaction while containing Chinese power and security ambitions. Cooperation should be pursued, but we should never be afraid to confront Beijing when our interests collide.
Russia presents a different challenge. It still has many of the attributes of a great power: a large population, vast territory, and military potential. But its economic weakness and problems of national identity threaten to overwhelm it. Moscow is determined to assert itself in the world and often does so in ways that are at once haphazard and threatening to American interests. The picture is complicated by Russia's own internal transition—one that the United States wants to see succeed. The old Soviet system has broken down, and some of the basic elements of democratic development are in place. People are free to say what they think, vote for whom they please, and (for the most part) worship freely. But the democratic fragments are not institutionalized—with the exception of the Communist Party, political parties are weak—and the balance of political power is so strongly in favor of the president that he often rules simply by decree. Of course, few pay attention to Boris Yelstin's decrees, and the Russian government has been mired in inaction and stagnation for at least three years. Russia's economic troubles and its high-level corruption have been widely discussed in recent months; Russia's economy is not becoming a market but is mutating into something else. Widespread barter, banks that are not banks, billions of rubles stashed abroad and in mattresses at home, and bizarre privatization schemes that have enriched the so-called reformers give Moscow's economy a medieval tinge.
The problem for U.S. policy is that the Clinton administration's embrace of Yeltsin and those who were thought to be reformers around him has failed. Yeltsin is Russia's president and clearly the United States had to deal with the head of state. But support for democracy and economic reform became support for Yeltsin. His agenda became the American agenda. The United States certified that reform was taking place where it was not, continuing to disburse money from the International Monetary Fund in the absence of any evidence of serious change. The curious privatization methods were hailed as economic liberalization; the looting of the country's assets by powerful people either went unnoticed or was ignored. The realities in Russia simply did not accord with the administration's script about Russian economic reform. The United States should not be faulted for trying to help. But, as the Russian reformer Grigori Yavlinsky has said, the United States should have "told the truth" about what was happening.
Now we have a dual credibility problem—with Russians and with Americans. There are signs of life in the Russian economy. The financial crash of August 1998 forced import substitution, and domestic production has increased as the resilient Russian people have taken matters into their own hands. Rising oil prices have helped as well. But these are short-term fixes. There is no longer a consensus in America or Europe on what to do next with Russia. Frustrated expectations and "Russia fatigue" are direct consequences of the "happy talk" in which the Clinton administration engaged.
Russia's economic future is now in the hands of the Russians. The country is not without assets, including its natural resources and an educated population. It is up to Russia to make structural reforms, particularly concerning the rule of law and the tax codes, so that investors—foreign and domestic—will provide the capital needed for economic growth. That opportunity will arise once there is a new government in Moscow after last December's Duma elections and next June's presidential election. But the cultural changes ultimately needed to sustain a functioning civil society and a market-based economy may take a generation. Western openness to Russia's people, particularly its youth, in exchange programs and contact with the private sector and educational opportunities can help that process. It is also important to engage the leadership of Russia's diverse regions, where economic and social policies are increasingly pursued independently of Moscow.
In the meantime, U.S. policy must concentrate on the important security agenda with Russia. First, it must recognize that American security is threatened less by Russia's strength than by its weakness and incoherence. This suggests immediate attention to the safety and security of Moscow's nuclear forces and stockpile. The Nunn-Lugar program should be funded fully and pursued aggressively. (Because American contractors do most of the work, the risk of the diversion of funds is low.) Second, Washington must begin a comprehensive discussion with Moscow on the changing nuclear threat. Much has been made by Russian military officials about their increased reliance on nuclear weapons in the face of their declining conventional readiness. The Russian deterrent is more than adequate against the U.S. nuclear arsenal, and vice versa. But that fact need no longer be enshrined in a treaty that is almost 30 years old and is a relic of a profoundly adversarial relationship between the United States and the Soviet Union. The Anti-Ballistic Missile Treaty was intended to prevent the development of national missile defenses in the Cold War security environment. Today, the principal concerns are nuclear threats from the Iraqs and North Koreas of the world and the possibility of unauthorized releases as nuclear weapons spread.
Moscow, in fact, lives closer to those threats than Washington does. It ought to be possible to engage the Russians in a discussion of the changed threat environment, their possible responses, and the relationship of strategic offensive-force reductions to the deployment of defenses. The United States should make clear that it prefers to move cooperatively toward a new offense-defense mix, but that it is prepared to do so unilaterally. Moscow should understand, too, that any possibilities for sharing technology or information in these areas would depend heavily on its record—problematic to date—on the proliferation of ballistic-missile and other technologies related to WMD. It would be foolish in the extreme to share defenses with Moscow if it either leaks or deliberately transfers weapons technologies to the very states against which America is defending.
Finally, the United States needs to recognize that Russia is a great power, and that we will always have interests that conflict as well as coincide. The war in Chechnya, located in the oil-rich Caucasus, is particularly dangerous. Prime Minister Vladimir Putin has used the war to stir nationalism at home while fueling his own political fortunes. The Russian military has been uncharacteristically blunt and vocal in asserting its duty to defend the integrity of the Russian Federation—an unwelcome development in civil-military relations. The long-term effect on Russia's political culture should not be underestimated. And the war has affected relations between Russia and its neighbors in the Caucasus, as the Kremlin hurls charges of harboring and abetting Chechen terrorists against states as diverse as Saudi Arabia, Georgia, and Azerbaijan. The war is a reminder of the vulnerability of the small, new states around Russia and of America's interest in their independence. If they can become stronger, they will be less tempting to Russia. But much depends on the ability of these states to reform their economies and political systems—a process, to date, whose success is mixed at best.
COPING WITH ROGUE REGIMES
As history marches toward markets and democracy, some states have been left by the side of the road. Iraq is the prototype. Saddam Hussein's regime is isolated, his conventional military power has been severely weakened, his people live in poverty and terror, and he has no useful place in international politics. He is therefore determined to develop WMD. Nothing will change until Saddam is gone, so the United States must mobilize whatever resources it can, including support from his opposition, to remove him.
The regime of Kim Jong Il is so opaque that it is difficult to know its motivations, other than that they are malign. But North Korea also lives outside of the international system. Like East Germany, North Korea is the evil twin of a successful regime just across its border. It must fear its eventual demise from the sheer power and pull of South Korea. Pyongyang, too, has little to gain and everything to lose from engagement in the international economy. The development of WMD thus provides the destructive way out for Kim Jong Il.
President Kim Dae Jung of South Korea is attempting to find a peaceful resolution with the north through engagement. Any U.S. policy toward the north should depend heavily on coordination with Seoul and Tokyo. In that context, the 1994 framework agreement that attempted to bribe North Korea into forsaking nuclear weapons cannot easily be set aside. Still, there is a trap inherent in this approach: sooner or later Pyongyang will threaten to test a missile one too many times, and the United States will not respond with further benefits. Then what will Kim Jong Il do? The possibility for miscalculation is very high.
One thing is clear: the United States must approach regimes like North Korea resolutely and decisively. The Clinton administration has failed here, sometimes threatening to use force and then backing down, as it often has with Iraq. These regimes are living on borrowed time, so there need be no sense of panic about them. Rather, the first line of defense should be a clear and classical statement of deterrence—if they do acquire WMD, their weapons will be unusable because any attempt to use them will bring national obliteration. Second, we should accelerate efforts to defend against these weapons. This is the most important reason to deploy national and theater missile defenses as soon as possible, to focus attention on U.S. homeland defenses against chemical and biological agents, and to expand intelligence capabilities against terrorism of all kinds.
Finally, there is the Iranian regime. Iran's motivation is not to disrupt simply the development of an international system based on markets and democracy, but to replace it with an alternative: fundamentalist Islam. Fortunately, the Iranians do not have the kind of reach and power that the Soviet Union enjoyed in trying to promote its socialist alternative. But Iran's tactics have posed real problems for U.S. security. It has tried to destabilize moderate Arab states such as Saudi Arabia, though its relations with the Saudis have improved recently. Iran has also supported terrorism against America and Western interests and attempted to develop and transfer sensitive military technologies.
Iran presents special difficulties in the Middle East, a region of core interest to the United States and to our key ally Israel. Iranian weaponry increasingly threatens Israel directly. As important as Israel's efforts to reach peace with its Arab neighbors are to the future of the Middle East, they are not the whole story of stability in the region. Israel has a real security problem, so defense cooperation with the United States—particularly in the area of ballistic missile defense—is critical. That in turn will help Israel protect itself both through agreements and through enhanced military power.
Still, it is important to note that there are trends in Iran that bear watching. Mohammad Khatami's election as president has given some hope of a new course for a country that once hosted a great and thriving civilization—though there are questions about how much authority he exercises. Moreover, Khatami's more moderate domestic views may not translate into more acceptable behavior abroad. All in all, changes in U.S. policy toward Iran would require changes in Iranian behavior.
BUILDING A CONSENSUS FOR THE NATIONAL INTEREST
America is blessed with an extraordinary opportunity. It has had no territorial ambitions for nearly a century. Its national interest has been defined instead by a desire to foster the spread of freedom, prosperity, and peace. Both the will of the people and the demands of modern economies accord with that vision of the future. But even America's advantages offer no guarantees of success. It is up to America's presidential leadership and policy to bridge the gap between tomorrow's possibilities and today's realities.
The president must speak to the American people about national priorities and intentions and work with Congress to focus foreign policy around the national interest. The problem today is not an absence of bipartisan spirit in Congress or the American people's disinterest. It is the existence of a vacuum. In the absence of a compelling vision, parochial interests are filling the void.
Foreign policy in a Republican administration will most certainly be internationalist; the leading contenders in the party's presidential race have strong credentials in that regard. But it will also proceed from the firm ground of the national interest, not from the interests of an illusory international community. America can exercise power without arrogance and pursue its interests without hectoring and bluster. When it does so in concert with those who share its core values, the world becomes more prosperous, democratic, and peaceful. That has been America's special role in the past, and it should be again as we enter the next century.
Editors' Note: Democratic views will be published in forthcoming issues.