The New Geopolitics of Energy
Editor's Note: As the Cold War intensified after the invasion of Korea in 1950, a few political thinkers sought to examine the kind of Soviet Union that might emerge from a general war, or even the overthrow of the communist regime. George F. Kennan, then on leave from the State Department, warned against a preoccupation with military solutions in addressing the broad question of "America and the Russian Future" in the April 1951 issue of Foreign Affairs. Ambassador Kennan's point of departure was the Russia that existed before the Bolshevik Revolution; the collapse of that revolution in 1989 confronts the United States with the need to consider once again the long-term characteristics and traditions of the Russian state. Finding that Kennan's observations from 1951 hold perhaps even greater interest for current readers, we now republish excerpts from the original article.
The very virulence with which Americans reject the outlook and practice of those who now hold power in the Kremlin implies in the strongest possible way the belief in, and desire for, an alternative-for some other Russian outlook and some other set of practices in Russia to take the place of those we know today. Yet we may be permitted to ask whether there is any clear image in our minds of what that outlook and those practices might be, and of the ways by which Americans might promote progress toward them.
What sort of Russia would we like to see before us, as our partner in the world community?
Perhaps the first thing to get straight here is the sort of Russia there is no use looking for. And such a Russia-the kind we may not look for-is easy to describe and envisage, for it would be a capitalistic and liberal-democratic one, with institutions closely resembling those of our own republic.
If we look first at the question of the economic system, we see at once that Russia has scarcely known private enterprise as we are familiar with it in this country. Even in pre-revolutionary times the Russian government always had a close hold on a number of economic activities, notably transportation and the armament industry, which in our country have traditionally, or at least normally, been private. There were, to be sure, in the earlier period of Russian history, distinguished families of private Russian entrepreneurs, famous for their bold commercial pioneering in the undeveloped areas of the realm. But by and large indigenous private capital remained more conspicuous in the exchange than in the production of commodities. The great domestic business was trade, rather than manufacture. And business did not stand in so high repute as in the West. There was a traditional, and deeply Russian, merchant class; but it was not generally noted or respected for breadth of outlook or for any enlightened concept of its own responsibility to society. The portrayals of it in Russian literature are generally negative and depressing. The members of the landed gentry, whose tastes and prejudices were authoritative in the social field, often looked down on business, and themselves tended to avoid participation in it. The Russian language, in fact, never acquired a word comparable to our expression "businessman"; it had only the word for "merchant," and this term did not always have a pleasant connotation.
As Russia became industrialized, in a sudden rush of activity which took place around the turn of the century, there were clearly apparent the absence of an adequate tradition of responsibility and restraint on the part of the capital-owning class and a general lack of preparedness, on the part of the state and of society generally, to cope with the new strains. This industrial development, proceeding largely on a basis of individual enterprise rather than of widely distributed corporative ownership, was marked by sudden accumulations of fortunes in the hands of individuals and families not always well prepared for such affluence. Often the mode of expenditure of wealth appeared to other people as little creditable as the means by which it had been accumulated. Individual capitalists and workers lived in close proximity-indeed, many of the factory owners lived in the compounds of their factories. Such conditions often bore greater resemblance to the pattern of early Industrial Revolution capitalism, as Marx had described it, than to conditions in advanced Western countries. This fact may well have had something to do with the success of Marxism in Russia. The Russian industrial capitalist was generally visible in the flesh, and as often as not he had the rotundity, and sometimes (not always) the vulgarity and callousness, of the capitalist of the early communist caricature.
All these things go to show that whatever private enterprise may have been in tsarist Russia, it had not yet come to hold anything resembling the respect and significance in the eyes of the people that it had acquired in the older mercantile countries by the beginning of this century. Perhaps with time it would have. The prospects were steadily improving. Examples of efficient and progressive industrial management existed in Russia before the revolution, and were increasing.
We see that there is no Russian national understanding which would permit the early establishment in Russia of anything resembling the private enterprise system as we know it. This is not to say that some such understanding will not some day develop. It may, if circumstances are favorable. But it will never be a system identical to our own. And no one will usefully be able to force the pace, particularly no one from the outside.
Turning to the political side, we could not expect to see the emergence of a liberal-democratic Russia along American patterns. This cannot be too strongly emphasized. It does not mean that future Russian regimes will necessarily be unliberal. There is no liberal tradition finer than the strain which existed in the Russia of the past. Many Russian individuals and groups of this day are deeply imbued with that tradition, and will do all in their power to make it the dominant element in the Russian future. In that effort, we may wish them well without reservation. But we will be doing them no favor if we permit ourselves to expect too much to happen too fast, or look to them to produce anything resembling our own institutions. These Russian liberals will have no easy road to walk. They will find in their country a younger generation that has known nothing but Soviet power and has been trained to think subconsciously in the terms of that power even when it has resented and hated it. Many features of the Soviet system will stick, if only for the reason that everything has been destroyed which might seem to have constituted an alternative to them. And some features will deserve to stick, for no system that lasts over decades is entirely without merits. Any program of government for a future Russia will have to adjust itself to the fact that there has been this Soviet interlude, and that it has left its positive marks as well as its negative ones. And no members of future Russian governments will be aided by doctrinaire and impatient well-wishers in the West who look to them, just because they are seeking a decent alternative to what we know today as Bolshevism, to produce in short order a replica of the Western democratic dream.
Above all, it behooves us Americans, in this connection, to repress, and if possible to extinguish once and for all, our inveterate tendency to judge others by the extent to which they contrive to be like ourselves. In our relations with the people of Russia it is important, as it has never been important before, for us to recognize that our institutions may not have relevance for people living in other climes and conditions and that there can be social structures and forms of government in no way resembling our own and yet not deserving of censure. There is no reason why this realization should shock us. In 1831 de Tocqueville, writing from the United States, correctly observed: "The more I see of this country the more I admit myself penetrated with this truth: that there is nothing absolute in the theoretical value of political institutions, and that their efficiency depends almost always on the original circumstances and the social conditions of the people to whom they are applied."
Forms of government are forged mainly in the fire of practice, not in the vacuum of theory. They respond to national character and to national realities. There is great good in the Russian national character, and the realities of that country scream out today for a form of administration more considerate of that good. Let us hope that it will come. But when Soviet power has run its course, or when its personalities and spirit begin to change (for the ultimate outcome could be one or the other), let us not hover nervously over the people who come after, applying litmus papers daily to their political complexions to find out whether they answer to our concept of "democratic." Give them time; let them be Russians; let them work out their internal problems in their own manner. The ways by which peoples advance toward dignity and enlightenment in government are things that constitute the deepest and most intimate processes of national life. There is nothing less understandable to foreigners, nothing in which foreign interference can do less good. There are, as we shall see presently, certain features of the future Russian state that are of genuine concern to the outside world. But these do not include the form of government itself, provided only that it keep within certain well-defined limits, beyond which lies totalitarianism.
What, then, do they include? To what kind of a Russia may we reasonably and justly look forward? What attributes are we, as responsible members of the world community, entitled to look for in the personality of a foreign state, and of Russia in particular?
We may look, in the first place, for a Russian government which, in contrast to the one we know today, would be tolerant, communicative and forthright in its relations with other states and peoples. It would not take the ideological position that its own purposes cannot finally prosper unless all systems of government not under its control are subverted and eventually destroyed. It would dispense with this paranoiac suspiciousness we know so well, and consent to view the outside world, ourselves included, as it really is and always has been: neither entirely good nor entirely bad, neither entirely to be trusted nor entirely to be mistrusted (if only for the simple reason that "trust" has only a relative significance in foreign affairs). It would consent to recognize that this outside world is not really preoccupied with diabolical plots to invade Russia and inflict injuries on the Russian people. Viewing the outside world in this way, the statesmen of a future Russia could approach it with tolerance and forbearance and practical good humor, defending their national interests as statesmen must, but not assuming that these can be furthered only at the expense of the interests of others, and vice versa.
No one asks for a naïve and childlike confidence; no one asks for a fatuous enthusiasm for all that is foreign; no one asks that the genuine and legitimate differences of interest which have always marked, and will always continue to mark, the relations between peoples be ignored. We must expect Russian national interests not only to continue to exist but to be vigorously and confidently asserted. But in a regime that we could recognize as an improvement over what we know today we would expect that this would be done in an atmosphere of emotional sanity and moderation: that the foreign representative would not continue to be viewed and treated as one possessed of the devil; that it would be conceded that there might be such a thing as innocent and legitimate curiosity about a foreign country, which could be permitted to be gratified without fatal detriment to that country's national life; that it would be recognized that there might be individual foreign business aspirations which did not aim at the destruction of the Russian state; that it would be admitted, finally, that persons desirous of traveling across international borders might have, and are even apt to have, motives other than "espionage, sabotage and diversion"-such trivial motives, in fact, as the enjoyment of travel or the peculiar impulses that move people to wish to visit relatives from time to time. In short, we may ask that the grotesque system of anachronisms known as the Iron Curtain be lifted from the world, and that the Russian people, who have so much to give and so much to receive as mature members of the world community, cease to be insulted by a policy that treats them as children, too immature to have normal contact with the adult world, too undependable to be let out alone.
Secondly, while recognizing that the internal system of government is in all essential respects Russia's own business and may well depart drastically from our own, we are entitled to expect that the exercise of governmental authority will stop short of that fairly plain line beyond which lies totalitarianism. Specifically, we may expect that any regime which claims to contrast favorably with that which we have before us today will refrain from enslaving its own labor-industrial and agricultural. There is a reason for this: a reason even more solid than the shock we experience at witnessing the sickening details of this type of oppression. When a regime sets out to enslave its own working population in this way, it requires for the maintenance of the arrangement so vast an apparatus of coercion that the imposition of the Iron Curtain follows almost automatically. No ruling group likes to admit that it can govern its people only by regarding and treating them as criminals. For this reason there is always a tendency to justify internal oppression by pointing to the menacing iniquity of the outside world. And the outside world must be portrayed, in these circumstances, as very iniquitous indeed-iniquitous to the point of caricature. Nothing short of this will do.
The third thing we may hope from a new Russia is that it will refrain from pinning an oppressive yoke on other peoples who have the instinct and the capacity for national self-assertion. In mentioning this matter, we are entering upon a delicate subject. There is no more difficult and treacherous one in the entire lexicon of political issues. In the relationships between the Great Russian people and nearby peoples outside the confines of the old tsarist empire, as well as non-Russian national groups that were included within that empire, there is no conceivable pattern of borders or institutional arrangements which, measured against the concepts prevailing to date, would not arouse violent resentments and involve genuine injustices in many quarters. If people in that part of the world are going to go on thinking of national borders and minority problems in the way that they have thought of them in the past and continue to think of them today, Americans would do well to avoid incurring any responsibility for views or positions on these subjects; for any specific solutions they may advocate will some day become a source of great bitterness against them, and they will find themselves drawn into controversies that have little or nothing to do with the issue of human freedom.
What is plainly necessary, and the only solution worthy of American encouragement, is the rise of such a spirit among all the peoples concerned as would give to border and institutional arrangements in that troubled area an entirely new, and greatly reduced, significance. Whether that spirit will actually arise, we cannot tell. And precisely because we cannot tell this, Americans should be extremely careful in committing their support or encouragement to any specific arrangements in this sphere; for we cannot know what they mean until there is clarity as to the spirit which will underlie them. How can we know whether a given national group will require an independent status, or a federal status, some special brand of local self-government, or no special status at all, until we know something about the psychological climate in which these arrangements would operate? There are peoples of non-Russian ethnological character on the borders of the Great Russian family whose economic existence is intimately bound up with that of the Great Russians. The future should see a minimum of disruption of these economic ties, and that in itself would normally warrant a close political connection. But its nature would always have to depend on what sort of attitudes prevailed on both sides of the line: on the degree of tolerance and insight which the peoples involved (and not only the Russian people) might be able to bring to the establishment of these relationships.
We are all agreed, for example, that the Baltic countries should never again be forced against the innermost feelings of their peoples into any relationship whatsoever with a Russian state; but they would themselves be foolish to reject close and cooperative arrangements with a tolerant, nonimperialistic Russia, which genuinely wished to overcome the unhappy memories of the past and to place her relations to the Baltic peoples on a basis of real respect and disinterestedness. The Ukraine, again, deserves full recognition for the peculiar genius and abilities of its people and for the requirements and possibilities of its development as a linguistic and cultural entity; but the Ukraine is economically as much a part of Russia as Pennsylvania is a part of the United States. Who can say what the final status of the Ukraine should be unless he knows the character of the Russia to which the adjustment will have to be made? As for the satellite states: they must, and will, recover their full independence; but they will not assure themselves of a stable and promising future if they make the mistake of proceeding from feelings of revenge and hatred toward the Russian people who have shared their tragedy, and if they try to base that future on the exploitation of the initial difficulties of a well-intentioned Russian regime struggling to overcome the legacy of Bolshevism.
There is no use underestimating the bitterness of these territorial problems, even assuming the utmost of goodwill and relaxed tolerance on the part of the peoples concerned. Some of the dispositions taken at the close of the Second World War (made even worse today by the deliberate policy on the part of certain governments to turn the provisional prematurely into the permanent) represent distinctly unhealthy situations, not conducive to a peaceful future. Some day these dispositions must be changed; and it will admittedly require tact on the part of all concerned, and forbearance bordering on the miraculous, if these changes are to be effected without a further compounding of violence and bitterness. For that unhappy situation the peoples of Europe have to thank the calculating cynicism of the Bolshevik leaders and the amiable indulgence of the Western Powers.
These, then, are the things for which an American well-wisher may hope from the Russia of the future: that she lift forever the Iron Curtain, that she recognize certain limitations to the internal authority of government, and that she abandon, as ruinous and unworthy, the ancient game of imperialist expansion and oppression. If she is not prepared to do these things, she will hardly be distinguishable from what we have before us today, and to hasten the arrival of such a Russia would not be worth the care or thought of a single American. If she is prepared to do these things, then Americans will not need to concern themselves more deeply with her nature and purposes; the basic demands of a more stable world order will then have been met, and the area in which a foreign people can usefully have thoughts and suggestions will have been filled.
National greatness is a difficult thing to define. Every nation is made up of individuals; and among individuals, as is known, there is no uniformity. Some are charming, others irritating; some are honest, others not exactly so; some are strong, others weak; some command admiration, others, by general agreement, are anything but admirable. This is true in our own country; it is true in Russia. Just what, in these circumstances, national greatness consists of, is hard to say. Certainly it rarely consists of those qualities in which a people thinks itself great; for in nations, as in individuals, the outstanding virtues are generally not the ones for which we fancy ourselves distinguished.
Yet that there is such a thing as national greatness is clear; and that the Russian people possess it in high degree is beyond question. They are a people whose progress out of darkness and squalor has been a painful one, marked by enormous sufferings and punctuated by heartrending setbacks. Nowhere on the face of the globe has the tiny flame of faith and dignity and charity of man flickered more precariously under the winds that tore at it. Yet it has never gone out; it is not extinguished today even in the heart of the Russian land; and whoever studies the struggle of the Russian spirit through the ages can only bare his head in admiration before those Russian people who kept it alight through their sacrifices and suffering.
These, then, are the reflections which give the writer, for one, faith that if the necessary alternatives are kept before the Russian people, in the form of the existence elsewhere on this planet of a civilization which is decent, hopeful and purposeful, the day must come-soon or late, and whether by gradual process or otherwise-when that terrible system of power which has set a great people's progress back for decades and has lain like a shadow over the aspirations of all civilization will be distinguishable no longer as a living reality, but only as something surviving partly in recorded history and partly in the sediment of constructive, organic change which every great human upheaval, however unhappy its other manifestations, manages to deposit on the shelf of time.
But how those changes are to come about is something which cannot be foreseen. If there are, indeed, such things as laws of political development, they will surely play a part here; but then they would be the laws of development peculiar to the phenomenon of modern totalitarianism, and these have not yet been adequately studied and understood. Whether such laws exist or not, developments will be modified both by national character and by the tremendous part which the fortuitous unquestionably plays in the shaping of human events.
These things being so, we must admit with respect to the future of government in Russia, we see "as through a glass, darkly." Superficial evidences would not seem to leave much room for hope that the changes we would wish to see in the attitudes and practices of government in Moscow could come about without violent breaks in the continuity of power, that is, without the overthrow of the system. But we cannot be sure of this. Stranger things have happened-though not much stranger. And, in any case, it is not our business to prejudge the question. It is not necessary for us, merely in order to shape our own conduct in a way conducive to our own interests, to decide what we admittedly cannot really know. We should allow, here, for all possibilities, and should exclude none. The main thing is that we keep clearly in mind the image of what we would like to see in the personality of Russia as an actor on the world stage, and let that be our guide in all our dealings with Russian political factions, including both that which is in power and those which are in opposition to it. And if it should turn out to be the will of fate that freedom should come to Russia by erosion from despotism rather than by the violent upthrust of liberty, let us be able to say that our policy was such as to favor it, and that we did not hamper it by preconception or impatience or despair.