The Global Zeitenwende
How to Avoid a New Cold War in a Multipolar Era
ORIGINS OF THE COLD WAR
THE Cold War in its original form was a presumably mortal antagonism, arising in the wake of the Second World War, between two rigidly hostile blocs, one led by the Soviet Union, the other by the United States. For nearly two somber and dangerous decades this antagonism dominated the fears of mankind; it may even, on occasion, have come close to blowing up the planet. In recent years, however, the once implacable struggle has lost its familiar clarity of outline. With the passing of old issues and the emergence of new conflicts and contestants, there is a natural tendency, especially on the part of the generation which grew up during the Cold War, to take a fresh look at the causes of the great contention between Russia and America.
Some exercises in reappraisal have merely elaborated the orthodoxies promulgated in Washington or Moscow during the boom years of the Cold War. But others, especially in the United States (there are no signs, alas, of this in the Soviet Union), represent what American historians call "revisionism"-that is, a readiness to challenge official explanations. No one should be surprised by this phenomenon. Every war in American history has been followed in due course by skeptical reassessments of supposedly sacred assumptions. So the War of 1812, fought at the time for the freedom of the seas, was in later years ascribed to the expansionist ambitions of Congressional war hawks; so the Mexican War became a slaveholders' conspiracy. So the Civil War has been pronounced a "needless war," and Lincoln has even been accused of man?uvring the rebel attack on Fort Sumter. So too the Spanish-American War and the First and Second World Wars have, each in its turn, undergone revisionist critiques. It is not to be supposed that the Cold War would remain exempt.
In the case of the Cold War, special factors reinforce the predictable historiographical rhythm. The outburst of polycentrism in the communist empire has made people wonder whether communism was ever so monolithic as official theories of the Cold War supposed. A generation with no vivid memories of Stalinism may see the Russia of the forties in the image of the relatively mild, seedy and irresolute Russia of the sixties. And for this same generation the American course of widening the war in Viet Nam-which even non-revisionists can easily regard as folly-has unquestionably stirred doubts about the wisdom of American foreign policy in the sixties which younger historians may have begun to read back into the forties.
It is useful to remember that, on the whole, past exercises in revisionism have failed to stick. Few historians today believe that the war hawks caused the War of 1812 or the slaveholders the Mexican War, or that the Civil War was needless, or that the House of Morgan brought America into the First World War or that Franklin Roosevelt schemed to produce the attack on Pearl Harbor. But this does not mean that one should deplore the rise of Cold War revisionism.[i] For revisionism is an essential part of the process by which history, through the posing of new problems and the investigation of new possibilities, enlarges its perspectives and enriches its insights.
More than this, in the present context, revisionism expresses a deep, legitimate and tragic apprehension. As the Cold War has begun to lose its purity of definition, as the moral absolutes of the fifties become the moralistic clichés of the sixties, some have begun to ask whether the appalling risks which humanity ran during the Cold War were, after all, necessary and inevitable; whether more restrained and rational policies might not have guided the energies of man from the perils of conflict into the potentialities of collaboration. The fact that such questions are in their nature unanswerable does not mean that it is not right and useful to raise them. Nor does it mean that our sons and daughters are not entitled to an accounting from the generation of Russians and Americans who produced the Cold War.
The orthodox American view, as originally set forth by the American government and as reaffirmed until recently by most American scholars, has been that the Cold War was the brave and essential response of free men to communist aggression. Some have gone back well before the Second World War to lay open the sources of Russian expansionism. Geopoliticians traced the Cold War to imperial Russian strategic ambitions which in the nineteenth century led to the Crimean War, to Russian penetration of the Balkans and the Middle East and to Russian pressure on Britain's "lifeline" to India. Ideologists traced it to the Communist Manifesto of 1848 ("the violent overthrow of the bourgeoisie lays the foundation for the sway of the proletariat"). Thoughtful observers (a phrase meant to exclude those who speak in Dullese about the unlimited evil of godless, atheistic, militant communism) concluded that classical Russian imperialism and Pan-Slavism, compounded after 1917 by Leninist messianism, confronted the West at the end of the Second World War with an inexorable drive for domination.[ii]
The revisionist thesis is very different.[iii] In its extreme form, it is that, after the death of Franklin Roosevelt and the end of the Second World War, the United States deliberately abandoned the wartime policy of collaboration and, exhilarated by the possession of the atomic bomb, undertook a course of aggression of its own designed to expel all Russian influence from Eastern Europe and to establish democratic-capitalist states on the very border of the Soviet Union. As the revisionists see it, this radically new American policy-or rather this resumption by Truman of the pre-Roosevelt policy of insensate anti-communism-left Moscow no alternative but to take measures in defense of its own borders. The result was the Cold War.
These two views, of course, could not be more starkly contrasting. It is therefore not unreasonable to look again at the half-dozen critical years between June 22, 1941, when Hitler attacked Russia, and July 2, 1947, when the Russians walked out of the Marshall Plan meeting in Paris. Several things should be borne in mind as this reëxamination is made. For one thing, we have thought a great deal more in recent years, in part because of writers like Roberta Wohlstetter and T. C. Schelling, about the problems of communication in diplomacy-the signals which one nation, by word or by deed, gives, inadvertently or intentionally, to another. Any honest reappraisal of the origins of the Cold War requires the imaginative leap- which should in any case be as instinctive for the historian as it is prudent for the statesman-into the adversary's viewpoint. We must strive to see how, given Soviet perspectives, the Russians might conceivably have misread our signals, as we must reconsider how intelligently we read theirs.
For another, the historian must not overindulge the man of power in the illusion cherished by those in office that high position carries with it the easy ability to shape history. Violating the statesman's creed, Lincoln once blurted out the truth in his letter of 1864 to A. G. Hodges: "I claim not to have controlled events, but confess plainly that events have controlled me." He was not asserting Tolstoyan fatalism but rather suggesting how greatly events limit the capacity of the statesman to bend history to his will. The physical course of the Second World War-the military operations undertaken, the position of the respective armies at the war's end, the momentum generated by victory and the vacuums created by defeat-all these determined the future as much as the character of individual leaders and the substance of national ideology and purpose.
Nor can the historian forget the conditions under which decisions are made, especially in a time like the Second World War. These were tired, overworked, aging men: in 1945, Churchill was 71 years old, Stalin had governed his country for 17 exacting years, Roosevelt his for 12 years nearly as exacting. During the war, moreover, the importunities of military operations had shoved postwar questions to the margins of their minds. All- even Stalin, behind his screen of ideology-had became addicts of improvisation, relying on authority and virtuosity to conceal the fact that they were constantly surprised by developments. Like Eliza, they leaped from one cake of ice to the next in the effort to reach the other side of the river. None showed great tactical consistency, or cared much about it; all employed a certain ambiguity to preserve their power to decide big issues; and it is hard to know how to interpret anything any one of them said on any specific occasion. This was partly because, like all princes, they designed their expressions to have particular effects on particular audiences; partly because the entirely genuine intellectual difficulty of the questions they faced made a degree of vacillation and mind-changing eminently reasonable. If historians cannot solve their problems in retrospect, who are they to blame Roosevelt, Stalin and Churchill for not having solved them at the time?
Peacemaking after the Second World War was not so much a tapestry as it was a hopelessly raveled and knotted mess of yarn. Yet, for purposes of clarity, it is essential to follow certain threads. One theme indispensable to an understanding of the Cold War is the contrast between two clashing views of world order: the "universalist" view, by which all nations shared a common interest in all the affairs of the world, and the "sphere-of- influence" view, by which each great power would be assured by the other great powers of an acknowledged predominance in its own area of special interest. The universalist view assumed that national security would be guaranteed by an international organization. The sphere-of-interest view assumed that national security would be guaranteed by the balance of power. While in practice these views have by no means been incompatible (indeed, our shaky peace has been based on a combination of the two), in the abstract they involved sharp contradictions.
The tradition of American thought in these matters was universalist-i.e. Wilsonian. Roosevelt had been a member of Wilson's subcabinet; in 1920, as candidate for Vice President, he had campaigned for the League of Nations. It is true that, within Roosevelt's infinitely complex mind, Wilsonianism warred with the perception of vital strategic interests he had imbibed from Mahan. Morever, his temperamental inclination to settle things with fellow princes around the conference table led him to regard the Big Three-or Four- as trustees for the rest of the world. On occasion, as this narrative will show, he was beguiled into flirtation with the sphere-of-influence heresy. But in principle he believed in joint action and remained a Wilsonian. His hope for Yalta, as he told the Congress on his return, was that it would "spell the end of the system of unilateral action, the exclusive alliances, the spheres of influence, the balances of power, and all the other expedients that have been tried for centuries-and have always failed."
Whenever Roosevelt backslid, he had at his side that Wilsonian fundamentalist, Secretary of State Cordell Hull, to recall him to the pure faith. After his visit to Moscow in 1943, Hull characteristically said that, with the Declaration of Four Nations on General Security (in which America, Russia, Britain and China pledged "united action . . . for the organization and maintenance of peace and security"), "there will no longer be need for spheres of influence, for alliances, for balance of power, or any other of the special arrangements through which, in the unhappy past, the nations strove to safeguard their security or to promote their interests."
Remembering the corruption of the Wilsonian vision by the secret treaties of the First World War, Hull was determined to prevent any sphere-of- influence nonsense after the Second World War. He therefore fought all proposals to settle border questions while the war was still on and, excluded as he largely was from wartime diplomacy, poured his not inconsiderable moral energy and frustration into the promulgation of virtuous and spacious general principles.
In adopting the universalist view, Roosevelt and Hull were not indulging personal hobbies. Sumner Welles, Adolf Berle, Averell Harriman, Charles Bohlen-all, if with a variety of nuances, opposed the sphere-of-influence approach. And here the State Department was expressing what seems clearly to have been the predominant mood of the American people, so long mistrustful of European power politics. The Republicans shared the true faith, John Foster Dulles argued that the great threat to peace after the war would lie in the revival of sphere-of-influence thinking. The United States, he said, must not permit Britain and Russia to revert to these bad old ways; it must therefore insist on American participation in all policy decisions for all territories in the world. Dulles wrote pessimistically in January 1945, "The three great powers which at Moscow agreed upon the 'closest coöperation' about European questions have shifted to a practice of separate, regional responsibility."
It is true that critics, and even friends, of the United States sometimes noted a discrepancy between the American passion for universalism when it applied to territory far from American shores and the preëminence the United States accorded its own interests nearer home. Churchill, seeking Washington's blessing for a sphere-of-influence initiative in Eastern Europe, could not forbear reminding the Americans, "We follow the lead of the United States in South America;" nor did any universalist of record propose the abolition of the Monroe Doctrine. But a convenient myopia prevented such inconsistencies from qualifying the ardency of the universalist faith.
There seem only to have been three officials in the United States Government who dissented. One was the Secretary of War, Henry L. Stimson, a classical balance-of-power man, who in 1944 opposed the creation of a vacuum in Central Europe by the pastoralization of Germany and in 1945 urged "the settlement of all territorial acquisitions in the shape of defense posts which each of these four powers may deem to be necessary for their own safety" in advance of any effort to establish a peacetime United Nations. Stimson considered the claim of Russia to a preferred position in Eastern Europe as not unreasonable: as he told President Truman, "he thought the Russians perhaps were being more realistic than we were in regard to their own security." Such a position for Russia seemed to him comparable to the preferred American position in Latin America; he even spoke of "our respective orbits." Stimson was therefore skeptical of what he regarded as the prevailing tendency "to hang on to exaggerated views of the Monroe Doctrine and at the same time butt into every question that comes up in Central Europe." Acceptance of spheres of influence seemed to him the way to avoid "a head-on collision."
A second official opponent of universalism was George Kennan, an eloquent advocate from the American Embassy in Moscow of "a prompt and clear recognition of the division of Europe into spheres of influence and of a policy based on the fact of such division." Kennan argued that nothing we could do would possibly alter the course of events in Eastern Europe; that we were deceiving ourselves by supposing that these countries had any future but Russian domination; that we should therefore relinquish Eastern Europe to the Soviet Union and avoid anything which would make things easier for the Russians by giving them economic assistance or by sharing moral responsibility for their actions.
A third voice within the government against universalism was (at least after the war) Henry A. Wallace. As Secretary of Commerce, he stated the sphere-of-influence case with trenchancy in the famous Madison Square Garden speech of September 1946 which led to his dismissal by President Truman:
On our part, we should recognize that we have no more business in the political affairs of Eastern Europe than Russia has in the political affairs of Latin America, Western Europe, and the United States. . . . Whether we like it or not, the Russians will try to socialize their sphere of influence just as we try to democratize our sphere of influence. . . . The Russians have no more business stirring up native Communists to political activity in Western Europe, Latin America, and the United States than we have in interfering with the politics of Eastern Europe and Russia.
Stimson, Kennan and Wallace seem to have been alone in the government, however, in taking these views. They were very much minority voices. Meanwhile universalism, rooted in the American legal and moral tradition, overwhelmingly backed by contemporary opinion, received successive enshrinements in the Atlantic Charter of 1941, in the Declaration of the United Nations in 1942 and in the Moscow Declaration of 1943.
The Kremlin, on the other hand, thought only of spheres of interest; above all, the Russians were determined to protect their frontiers, and especially their border to the west, crossed so often and so bloodily in the dark course of their history. These western frontiers lacked natural means of defense-no great oceans, rugged mountains, steaming swamps or impenetrable jungles. The history of Russia had been the history of invasion, the last of which was by now horribly killing up to twenty million of its people. The protocol of Russia therefore meant the enlargement of the area of Russian influence. Kennan himself wrote (in May 1944), "Behind Russia's stubborn expansion lies only the age-old sense of insecurity of a sedentary people reared on an exposed plain in the neighborhood of fierce nomadic peoples," and he called this "urge" a "permanent feature of Russian psychology."
In earlier times the "urge" had produced the tsarist search for buffer states and maritime outlets. In 1939 the Soviet-Nazi pact and its secret protocol had enabled Russia to begin to satisfy in the Baltic states, Karelian Finland and Poland, part of what it conceived as its security requirements in Eastern Europe. But the "urge" persisted, causing the friction between Russia and Germany in 1940 as each jostled for position in the area which separated them. Later it led to Molotov's new demands on Hitler in November 1940-a free hand in Finland, Soviet predominance in Rumania and Bulgaria, bases in the Dardanelles-the demands which convinced Hitler that he had no choice but to attack Russia. Now Stalin hoped to gain from the West what Hitler, a closer neighbor, had not dared yield him.
It is true that, so long as Russian survival appeared to require a second front to relieve the Nazi pressure, Moscow's demand for Eastern Europe was a little muffled. Thus the Soviet government adhered to the Atlantic Charter (though with a significant if obscure reservation about adapting its principles to "the circumstances, needs, and historic peculiarities of particular countries"). Thus it also adhered to the Moscow Declaration of 1943, and Molotov then, with his easy mendacity, even denied that Russia had any desire to divide Europe into spheres of influence. But this was guff, which the Russians were perfectly willing to ladle out if it would keep the Americans, and especially Secretary Hull (who made a strong personal impression at the Moscow conference) happy. "A declaration," as Stalin once observed to Eden, "I regard as algebra, but an agreement as practical arithmetic. I do not wish to decry algebra, but I prefer practical arithmetic."
The more consistent Russian purpose was revealed when Stalin offered the British a straight sphere-of-influence deal at the end of 1941. Britain, he suggested, should recognize the Russian absorption of the Baltic states, part of Finland, eastern Poland and Bessarabia; in return, Russia would support any special British need for bases or security arrangements in Western Europe. There was nothing specifically communist about these ambitions. If Stalin achieved them, he would be fulfilling an age-old dream of the tsars. The British reaction was mixed. "Soviet policy is amoral," as Anthony Eden noted at the time; "United States policy is exaggeratedly moral, at least where non-American interests are concerned." If Roosevelt was a universalist with occasional leanings toward spheres of influence and Stalin was a sphere-of-influence man with occasional gestures toward universalism, Churchill seemed evenly poised between the familiar realism of the balance of power, which he had so long recorded as an historian and manipulated as a statesman, and the hope that there must be some better way of doing things. His 1943 proposal of a world organization divided into regional councils represented an effort to blend universalist and sphere-of- interest conceptions. His initial rejection of Stalin's proposal in December 1941 as "directly contrary to the first, second and third articles of the Atlantic Charter" thus did not spring entirely from a desire to propitiate the United States. On the other hand, he had himself already reinterpreted the Atlantic Charter as applying only to Europe (and thus not to the British Empire), and he was, above all, an empiricist who never believed in sacrificing reality on the altar of doctrine.
So in April 1942 he wrote Roosevelt that "the increasing gravity of the war" had led him to feel that the Charter "ought not to be construed so as to deny Russia the frontiers she occupied when Germany attacked her." Hull, however, remained fiercely hostile to the inclusion of territorial provisions in the Anglo-Russian treaty; the American position, Eden noted, "chilled me with Wilsonian memories." Though Stalin complained that it looked "as if the Atlantic Charter was directed against the U.S.S.R.," it was the Russian season of military adversity in the spring of 1942, and he dropped his demands.
He did not, however, change his intentions. A year later Ambassador Standley could cable Washington from Moscow: "In 1918 Western Europe attempted to set up a cordon sanitaire to protect it from the influence of bolshevism. Might not now the Kremlin envisage the formation of a belt of pro-Soviet states to protect it from the influences of the West?" It well might; and that purpose became increasingly clear as the war approached its end. Indeed, it derived sustenance from Western policy in the first area of liberation.
The unconditional surrender of Italy in July 1943 created the first major test of the Western devotion to universalism. America and Britain, having won the Italian war, handled the capitulation, keeping Moscow informed at a distance. Stalin complained:
The United States and Great Britain made agreements but the Soviet Union received information about the results . . . just as a passive third observer. I have to tell you that it is impossible to tolerate the situation any longer. I propose that the [tripartite military-political commission] be established and that Sicily be assigned . . . as its place of residence.
Roosevelt, who had no intention of sharing the control of Italy with the Russians, suavely replied with the suggestion that Stalin send an officer "to General Eisenhower's headquarters in connection with the commission." Unimpressed, Stalin continued to press for a tripartite body; but his Western allies were adamant in keeping the Soviet Union off the Control Commission for Italy, and the Russians in the end had to be satisfied with a seat, along with minor Allied states, on a meaningless Inter-Allied Advisory Council. Their acquiescence in this was doubtless not unconnected with a desire to establish precedents for Eastern Europe. Teheran in December 1943 marked the high point of three-power collaboration. Still, when Churchill asked about Russian territorial interests, Stalin replied a little ominously, "There is no need to speak at the present time about any Soviet desires, but when the time comes we will speak." In the next weeks, there were increasing indications of a Soviet determination to deal unilaterally with Eastern Europe-so much so that in early February 1944 Hull cabled Harriman in Moscow:
Matters are rapidly approaching the point where the Soviet Government will have to choose between the development and extension of the foundation of international cooperation as the guiding principle of the postwar world as against the continuance of a unilateral and arbitrary method of dealing with its special problems even though these problems are admittedly of more direct interest to the Soviet Union than to other great powers.
As against this approach, however, Churchill, more tolerant of sphere-of- influence deviations, soon proposed that, with the impending liberation of the Balkans, Russia should run things in Rumania and Britain in Greece, Hull strongly opposed this suggestion but made the mistake of leaving Washington for a few days; and Roosevelt, momentarily free from his Wilsonian conscience, yielded to Churchill's plea for a three-months' trial. Hull resumed the fight on his return, and Churchill postponed the matter.
The Red Army continued its advance into Eastern Europe. In August the Polish Home Army, urged on by Polish-language broadcasts from Moscow, rose up against the Nazis in Warsaw. For 63 terrible days, the Poles fought valiantly on, while the Red Army halted on the banks of the Vistula a few miles away, and in Moscow Stalin for more than half this time declined to coöperate with the Western effort to drop supplies to the Warsaw Resistance. It appeared a calculated Soviet decision to let the Nazis slaughter the anti-Soviet Polish underground; and, indeed, the result was to destroy any substantial alternative to a Soviet solution in Poland. The agony of Warsaw caused the most deep and genuine moral shock in Britain and America and provoked dark forebodings about Soviet postwar purposes.
Again history enjoins the imaginative leap in order to see things for a moment from Moscow's viewpoint. The Polish question, Churchill would say at Yalta, was for Britain a question of honor. "It is not only a question of honor for Russia," Stalin replied, "but one of life and death. . . . Throughout history Poland had been the corridor for attack on Russia," A top postwar priority for any Russian régime must be to close that corridor. The Home Army was led by anti-communists. It clearly hoped by its action to forestall the Soviet occupation of Warsaw and, in Russian eyes, to prepare the way for an anti-Russian Poland. In addition, the uprising from a strictly operational viewpoint was premature. The Russians, it is evident in retrospect, had real military problems at the Vistula. The Soviet attempt in September to send Polish units from the Red Army across the river to join forces with the Home Army was a disaster. Heavy German shelling thereafter prevented the ferrying of tanks necessary for an assault on the German position. The Red Army itself did not take Warsaw for another three months. None the less, Stalin's indifference to the human tragedy, his effort to blackmail the London Poles during the ordeal, his sanctimonious opposition during five precious weeks to aerial resupply, the invariable coldness of his explanations ("the Soviet command has come to the conclusion that it must dissociate itself from the Warsaw adventure") and the obvious political benefit to the Soviet Union from the destruction of the Home Army-all these had the effect of suddenly dropping the mask of wartime comradeship and displaying to the West the hard face of Soviet policy. In now pursuing what he grimly regarded as the minimal requirements for the postwar security of his country, Stalin was inadvertently showing the irreconcilability of both his means and his ends with the Anglo- American conception of the peace.
Meanwhile Eastern Europe presented the Alliance with still another crisis that same September. Bulgaria, which was not at war with Russia, decided to surrender to the Western Allies while it still could; and the English and Americans at Cairo began to discuss armistice terms with Bulgarian envoys. Moscow, challenged by what it plainly saw as a Western intrusion into its own zone of vital interest, promptly declared war on Bulgaria, took over the surrender negotiations and, invoking the Italian precedent, denied its Western Allies any role in the Bulgarian Control Commission. In a long and thoughtful cable, Ambassador Harriman meditated on the problems of communication with the Soviet Union. "Words," he reflected, "have a different connotation to the Soviets than they have to us. When they speak of insisting on 'friendly governments' in their neighboring countries, they have in mind something quite different from what we would mean." The Russians, he surmised, really believed that Washington accepted "their position that although they would keep us informed they had the right to settle their problems with their western neighbors unilaterally." But the Soviet position was still in flux: "the Soviet Government is not one mind." The problem, as Harriman had earlier told Harry Hopkins, was "to strengthen the hands of those around Stalin who want to play the game along our lines." The way to do this, he now told Hull, was to
be understanding of their sensitivity, meet them much more than half way, encourage them and support them wherever we can, and yet oppose them promptly with the greatest of firmness where we see them going wrong. . . . The only way we can eventually come to an understanding with the Soviet Union on the question of non-interference in the internal affairs of other countries is for us to take a definite interest in the solution of the problems of each individual country as they arise.
As against Harriman's sophisticated universalist strategy, however, Churchill, increasingly fearful of the consequences of unrestrained competition in Eastern Europe, decided in early October to carry his sphere- of-influence proposal directly to Moscow. Roosevelt was at first content to have Churchill speak for him too and even prepared a cable to that effect. But Hopkins, a more rigorous universalist, took it upon himself to stop the cable and warn Roosevelt of its possible implications. Eventually Roosevelt sent a message to Harriman in Moscow emphasizing that he expected to "retain complete freedom of action after this conference is over." It was now that Churchill quickly proposed-and Stalin as quickly accepted-the celebrated division of southeastern Europe: ending (after further haggling between Eden and Molotov) with 90 percent Soviet predominance in Rumania, 80 percent in Bulgaria and Hungary, fifty-fifty in Jugoslavia, 90 percent British predominance in Greece.
Churchill in discussing this with Harriman used the phrase "spheres of influence." But he insisted that these were only "immediate wartime arrangements" and received a highly general blessing from Roosevelt. Yet, whatever Churchill intended, there is reason to believe that Stalin construed the percentages as an agreement, not a declaration; as practical arithmetic, not algebra. For Stalin, it should be understood, the sphere-of- influence idea did not mean that he would abandon all efforts to spread communism in some other nation's sphere; it did mean that, if he tried this and the other side cracked down, he could not feel he had serious cause for complaint. As Kennan wrote to Harriman at the end of 1944:
As far as border states are concerned the Soviet government has never ceased to think in terms of spheres of interest. They expect us to support them in whatever action they wish to take in those regions, regardless of whether that action seems to us or to the rest of the world to be right or wrong. . . . I have no doubt that this position is honestly maintained on their part, and that they would be equally prepared to reserve moral judgment on any actions which we might wish to carry out, i.e., in the Caribbean area.
In any case, the matter was already under test a good deal closer to Moscow than the Caribbean. The communist-dominated resistance movement in Greece was in open revolt against the effort of the Papandreou government to disarm and disband the guerrillas (the same Papandreou whom the Greek colonels have recently arrested on the claim that he is a tool of the communists) . Churchill now called in British Army units to crush the insurrection. This action produced a storm of criticism in his own country and in the United States; the American Government even publicly dissociated itself from the intervention, thereby emphasizing its detachment from the sphere-of-influence deal. But Stalin, Churchill later claimed, "adhered strictly and faithfully to our agreement of October, and during all the long weeks of fighting the Communists in the streets of Athens not one word of reproach came from Pravda or Izvestia," though there is no evidence that he tried to call off the Greek communists. Still, when the communist rebellion later broke out again in Greece, Stalin told Kardelj and Djilas of Jugoslavia in 1948, "The uprising in Greece must be stopped, and as quickly as possible."
No one, of course, can know what really was in the minds of the Russian leaders. The Kremlin archives are locked; of the primary actors, only Molotov survives, and he has not yet indicated any desire to collaborate with the Columbia Oral History Project. We do know that Stalin did not wholly surrender to sentimental illusion about his new friends. In June 1944, on the night before the landings in Normandy, he told Djilas that the English "find nothing sweeter than to trick their allies. . . . And Churchill? Churchill is the kind who, if you don't watch him, will slip a kopeck out of your pocket. Yes, a kopeck out of your pocket! . . . Roosevelt is not like that. He dips in his hand only for bigger coins." But whatever his views of his colleagues it is not unreasonable to suppose that Stalin would have been satisfied at the end of the war to secure what Kennan has called "a protective glacis along Russia's western border," and that, in exchange for a free hand in Eastern Europe, he was prepared to give the British and Americans equally free hands in their zones of vital interest, including in nations as close to Russia as Greece (for the British) and, very probably-or at least so the Jugoslavs believe-China (for the United States). In other words, his initial objectives were very probably not world conquest but Russian security.
It is now pertinent to inquire why the United States rejected the idea of stabilizing the world by division into spheres of influence and insisted on an East European strategy. One should warn against rushing to the conclusion that it was all a row between hard-nosed, balance-of-power realists and starry-eyed Wilsonians. Roosevelt, Hopkins, Welles, Harriman, Bohlen, Berle, Dulles and other universalists were tough and serious men. Why then did they rebuff the sphere-of-influence solution?
The first reason is that they regarded this solution as containing within itself the seeds of a third world war. The balance-of-power idea seemed inherently unstable. It had always broken down in the past. It held out to each power the permanent temptation to try to alter the balance in its own favor, and it built this temptation into the international order. It would turn the great powers of 1945 away from the objective of concerting common policies toward competition for postwar advantage. As Hopkins told Molotov at Teheran, "The President feels it essential to world peace that Russia, Great Britain and the United States work out this control question in a manner which will not start each of the three powers arming against the others." "The greatest likelihood of eventual conflict," said the Joint Chiefs of Staff in 1944 (the only conflict which the J.C.S., in its wisdom, could then glimpse "in the foreseeable future" was between Britain and Russia), ". . . would seem to grow out of either nation initiating attempts to build up its strength, by seeking to attach to herself parts of Europe to the disadvantage and possible danger of her potential adversary." The Americans were perfectly ready to acknowledge that Russia was entitled to convincing assurance of her national security-but not this way. "I could sympathize fully with Stalin's desire to protect his western borders from future attack," as Hull put it. "But I felt that this security could best be obtained through a strong postwar peace organization."
Hull's remark suggests the second objection: that the sphere-of-influence approach would, in the words of the State Department in 1945, "militate against the establishment and effective functioning of a broader system of general security in which all countries will have their part." The United Nations, in short, was seen as the alternative to the balance of power. Nor did the universalists see any necessary incompatibility between the Russian desire for "friendly governments" on its frontier and the American desire for self-determination in Eastern Europe. Before Yalta the State Department judged the general mood of Europe as "to the left and strongly in favor of far-reaching economic and social reforms, but not, however, in favor of a left-wing totalitarian regime to achieve these reforms." Governments in Eastern Europe could be sufficiently to the left "to allay Soviet suspicions" but sufficiently representative "of the center and petit bourgeois elements" not to seem a prelude to communist dictatorship. The American criteria were therefore that the government "should be dedicated to the preservation of civil liberties" and "should favor social and economic reforms." A string of New Deal states-of Finlands and Czechoslovakias-seemed a reasonable compromise solution.
Third, the universalists feared that the sphere-of-interest approach would be what Hull termed "a haven for the isolationists," who would advocate America's participation in Western Hemisphere affairs on condition that it did not participate in European or Asian affairs. Hull also feared that spheres of interest would lead to "closed trade areas or discriminatory systems" and thus defeat his cherished dream of a low-tariff, freely trading world.
Fourth, the sphere-of-interest solution meant the betrayal of the principles for which the Second World War was being fought-the Atlantic Charter, the Four Freedoms, the Declaration of the United Nations. Poland summed up the problem. Britain, having gone to war to defend the independence of Poland from the Germans, could not easily conclude the war by surrendering the independence of Poland to the Russians. Thus, as Hopkins told Stalin after Roosevelt's death in 1945, Poland had "become the symbol of our ability to work out problems with the Soviet Union." Nor could American liberals in general watch with equanimity while the police state spread into countries which, if they had mostly not been real democracies, had mostly not been tyrannies either. The execution in 1943 of Ehrlich and Alter, the Polish socialist trade union leaders, excited deep concern. "I have particularly in mind," Harriman cabled in 1944, "objection to the institution of secret police who may become involved in the persecution of persons of truly democratic convictions who may not be willing to conform to Soviet methods."
Fifth, the sphere-of-influence solution would create difficult domestic problems in American politics. Roosevelt was aware of the six million or more Polish votes in the 1944 election; even more acutely, he was aware of the broader and deeper attack which would follow if, after going to war to stop the Nazi conquest of Europe, he permitted the war to end with the communist conquest of Eastern Europe. As Archibald MacLeish, then Assistant Secretary of State for Public Affairs, warned in January 1945, "The wave of disillusionment which has distressed us in the last several weeks will be increased if the impression is permitted to get abroad that potentially totalitarian provisional governments are to be set up without adequate safeguards as to the holding of free elections and the realization of the principles of the Atlantic Charter." Roosevelt believed that no administration could survive which did not try everything short of war to save Eastern Europe, and he was the supreme American politician of the century.
Sixth, if the Russians were allowed to overrun Eastern Europe without argument, would that satisfy them? Even Kennan, in a dispatch of May 1944, admitted that the "urge" had dreadful potentialities: "If initially successful, will it know where to stop? Will it not be inexorably carried forward, by its very nature, in a struggle to reach the whole-to attain complete mastery of the shores of the Atlantic and the Pacific?" His own answer was that there were inherent limits to the Russian capacity to expand-"that Russia will not have an easy time in maintaining the power which it has seized over other people in Eastern and Central Europe unless it receives both moral and material assistance from the West." Subsequent developments have vindicated Kennan's argument. By the late forties, Jugoslavia and Albania, the two East European states farthest from the Soviet Union and the two in which communism was imposed from within rather than from without, had declared their independence of Moscow. But, given Russia's success in maintaining centralized control over the international communist movement for a quarter of a century, who in 1944 could have had much confidence in the idea of communist revolts against Moscow?
Most of those involved therefore rejected Kennan's answer and stayed with his question. If the West turned its back on Eastern Europe, the higher probability, in their view, was that the Russians would use their security zone, not just for defensive purposes, but as a springboard from which to mount an attack on Western Europe, now shattered by war, a vacuum of power awaiting its master. "If the policy is accepted that the Soviet Union has a right to penetrate her immediate neighbors for security," Harriman said in 1944, "penetration of the next immediate neighbors becomes at a certain time equally logical." If a row with Russia were inevitable, every consideration of prudence dictated that it should take place in Eastern rather than Western Europe.
Thus idealism and realism joined in opposition to the sphere-of-influence solution. The consequence was a determination to assert an American interest in the postwar destiny of all nations, including those of Eastern Europe. In the message which Roosevelt and Hopkins drafted after Hopkins had stopped Roosevelt's initial cable authorizing Churchill to speak for the United States at the Moscow meeting of October 1944, Roosevelt now said, "There is in this global war literally no question, either military or political, in which the United States is not interested." After Roosevelt's death Hopkins repeated the point to Stalin: "The cardinal basis of President Roosevelt's policy which the American people had fully supported had been the concept that the interests of the U.S. were worldwide and not confined to North and South America and the Pacific Ocean."
For better or worse, this was the American position. It is now necessary to attempt the imaginative leap and consider the impact of this position on the leaders of the Soviet Union who, also for better or for worse, had reached the bitter conclusion that the survival of their country depended on their unchallenged control of the corridors through which enemies had so often invaded their homeland. They could claim to have been keeping their own side of the sphere-of-influence bargain. Of course, they were working to capture the resistance movements of Western Europe; indeed, with the appointment of Oumansky as Ambassador to Mexico they were even beginning to enlarge underground operations in the Western Hemisphere. But, from their viewpoint, if the West permitted this, the more fools they; and, if the West stopped it, it was within their right to do so. In overt political matters the Russians were scrupulously playing the game. They had watched in silence while the British shot down communists in Greece. In Jugoslavia Stalin was urging Tito (as Djilas later revealed) to keep King Peter. They had not only acknowledged Western preeminence in Italy but had recognized the Badoglio régime; the Italian Communists had even voted (against the Socialists and the Liberals) for the renewal of the Lateran Pacts.
They would not regard anti-communist action in a Western zone as a casus belli; and they expected reciprocal license to assert their own authority in the East. But the principle of self-determination was carrying the United States into a deeper entanglement in Eastern Europe than the Soviet Union claimed as a right (whatever it was doing underground) in the affairs of Italy, Greece or China. When the Russians now exercised in Eastern Europe the same brutal control they were prepared to have Washington exercise in the American sphere of influence, the American protests, given the paranoia produced alike by Russian history and Leninist ideology, no doubt seemed not only an act of hypocrisy but a threat to security. To the Russians, a stroll into the neighborhood easily became a plot to burn down the house: when, for example, damaged American planes made emergency landings in Poland and Hungary, Moscow took this as attempts to organize the local resistance. It is not unusual to suspect one's adversary of doing what one is already doing oneself. At the same time, the cruelty with which the Russians executed their idea of spheres of influence-in a sense, perhaps, an unwitting cruelty, since Stalin treated the East Europeans no worse than he had treated the Russians in the thirties-discouraged the West from accepting the equation (for example, Italy = Rumania) which seemed so self-evident to the Kremlin.
So Moscow very probably, and not unnaturally, perceived the emphasis on self-determination as a systematic and deliberate pressure on Russia's western frontiers. Moreover, the restoration of capitalism to countries freed at frightful cost by the Red Army no doubt struck the Russians as the betrayal of the principles for which they were fighting. "That they, the victors," Isaac Deutscher has suggested, "should now preserve an order from which they had experienced nothing but hostility, and could expect nothing but hostility . . . would have been the most miserable anti-climax to their great 'war of liberation." By 1944 Poland was the critical issue; Harriman later said that "under instructions from President Roosevelt, I talked about Poland with Stalin more frequently than any other subject." While the West saw the point of Stalin's demand for a "friendly government" in Warsaw, the American insistence on the sovereign virtues of free elections (ironically in the spirit of the 1917 Bolshevik decree of peace, which affirmed "the right" of a nation "to decide the forms of its state existence by a free vote, taken after the complete evacuation of the incorporating or, generally, of the stronger nation") created an insoluble problem in those countries, like Poland (and Rumania) where free elections would almost certainly produce anti-Soviet governments.
The Russians thus may well have estimated the Western pressures as calculated to encourage their enemies in Eastern Europe and to defeat their own minimum objective of a protective glacis. Everything still hung, however, on the course of military operations. The wartime collaboration had been created by one thing, and one thing alone: the threat of Nazi victory. So long as this threat was real, so was the collaboration. In late December 1944, von Rundstedt launched his counter-offensive in the Ardennes. A few weeks later, when Roosevelt, Churchill and Stalin gathered in the Crimea, it was in the shadow of this last considerable explosion of German power. The meeting at Yalta was still dominated by the mood of war.
Yalta remains something of an historical perplexity-less, from the perspective of 1967, because of a mythical American deference to the sphere- of-influence thesis than because of the documentable Russian deference to the universalist thesis. Why should Stalin in 1945 have accepted the Declaration on Liberated Europe and an agreement on Poland pledging that "the three governments will jointly" act to assure "free elections of governments responsive to the will of the people"? There are several probable answers: that the war was not over and the Russians still wanted the Americans to intensify their military effort in the West; that one clause in the Declaration premised action on "the opinion of the three governments" and thus implied a Soviet veto, though the Polish agreement was more definite; most of all that the universalist algebra of the Declaration was plainly in Stalin's mind to be construed in terms of the practical arithmetic of his sphere-of-influence agreement with Churchill the previous October. Stalin's assurance to Churchill at Yalta that a proposed Russian amendment to the Declaration would not apply to Greece makes it clear that Roosevelt's pieties did not, in Stalin's mind, nullify Churchill's percentages. He could well have been strengthened in this supposition by the fact that after Yalta, Churchill himself repeatedly reasserted the terms of the October agreement as if he regarded it, despite Yalta, as controlling.
Harriman still had the feeling before Yalta that the Kremlin had "two approaches to their postwar policies" and that Stalin himself was "of two minds." One approach emphasized the internal reconstruction and development of Russia; the other its external expansion. But in the meantime the fact which dominated all political decisions-that is, the war against Germany- was moving into its final phase. In the weeks after Yalta, the military situation changed with great rapidity. As the Nazi threat declined, so too did the need for coöperation. The Soviet Union, feeling itself menaced by the American idea of self-determination and the borderlands diplomacy to which it was leading, skeptical whether the United Nations would protect its frontiers as reliably as its own domination in Eastern Europe, began to fulfill its security requirements unilaterally.
In March Stalin expressed his evaluation of the United Nations by rejecting Roosevelt's plea that Molotov come to the San Francisco conference, if only for the opening sessions. In the next weeks the Russians emphatically and crudely worked their will in Eastern Europe, above all in the test country of Poland. They were ignoring the Declaration on Liberated Europe, ignoring the Atlantic Charter, self-determination, human freedom and everything else the Americans considered essential for a stable peace. "We must clearly recognize," Harriman wired Washington a few days before Roosevelt's death, "that the Soviet program is the establishment of totalitarianism, ending personal liberty and democracy as we know and respect it."
At the same time, the Russians also began to mobilize communist resources in the United States itself to block American universalism. In April 1945 Jacques Duclos, who had been the Comintern official responsible for the Western communist parties, launched in Cahiers du Communisme an uncompromising attack on the policy of the American Communist Party. Duclos sharply condemned the revisionism of Earl Browder, the American Communist leader, as "expressed in the concept of a long-term class peace in the United States, of the possibility of the suppression of the class struggle in the postwar period and of establishment of harmony between labor and capital." Browder was specifically rebuked for favoring the "self- determination" of Europe "west of the Soviet Union" on a bourgeois- democratic basis. The excommunication of Browderism was plainly the Politburo's considered reaction to the impending defeat of Germany; it was a signal to the communist parties of the West that they should recover their identity; it was Moscow's alert to communists everywhere that they should prepare for new policies in the postwar world.
The Duclos piece obviously could not have been planned and written much later than the Yalta conference-that is, well before a number of events which revisionists now cite in order to demonstrate American responsibility for the Cold War: before Alien Dulles, for example, began to negotiate the surrender of the German armies in Italy (the episode which provoked Stalin to charge Roosevelt with seeking a separate peace and provoked Roosevelt to denounce the "vile misrepresentations" of Stalin's informants); well before Roosevelt died; many months before the testing of the atomic bomb; even more months before Truman ordered that the bomb be dropped on Japan. William Z. Foster, who soon replaced Browder as the leader of the American Communist Party and embodied the new Moscow line, later boasted of having said in January 1944, "A post-war Roosevelt administration would continue to be, as it is now, an imperialist government." With ancient suspicions revived by the American insistence on universalism, this was no doubt the conclusion which the Russians were reaching at the same time. The Soviet canonization of Roosevelt (like their present-day canonization of Kennedy) took place after the American President's death.
The atmosphere of mutual suspicion was beginning to rise. In January 1945 Molotov formally proposed that the United States grant Russia a $6 billion credit for postwar reconstruction. With characteristic tact he explained that he was doing this as a favor to save America from a postwar depression. The proposal seems to have been diffidently made and diffidently received. Roosevelt requested that the matter "not be pressed further" on the American side until he had a chance to talk with Stalin; but the Russians did not follow it up either at Yalta in February (save for a single glancing reference) or during the Stalin-Hopkins talks in May or at Potsdam. Finally the proposal was renewed in the very different political atmosphere of August. This time Washington inexplicably mislaid the request during the transfer of the records of the Foreign Economic Administration to the State Department. It did not turn up again until March 1946. Of course this was impossible for the Russians to believe; it is hard enough even for those acquainted with the capacity of the American government for incompetence to believe; and it only strengthened Soviet suspicions of American purposes.
The American credit was one conceivable form of Western contribution to Russian reconstruction. Another was lend-lease, and the possibility of reconstruction aid under the lend-lease protocol had already been discussed in 1944. But in May 1945 Russia, like Britain, suffered from Truman's abrupt termination of lend-lease shipments-"unfortunate and even brutal," Stalin told Hopkins, adding that, if it was "designed as pressure on the Russians in order to soften them up, then it was a fundamental mistake." A third form was German reparations. Here Stalin in demanding $10 billion in reparations for the Soviet Union made his strongest fight at Yalta. Roosevelt, while agreeing essentially with Churchill's opposition, tried to postpone the matter by accepting the Soviet figure as a "basis for discussion"-a formula which led to future misunderstanding. In short, the Russian hope for major Western assistance in postwar reconstruction foundered on three events which the Kremlin could well have interpreted respectively as deliberate sabotage (the loan request), blackmail (lend- lease cancellation) and pro-Germanism (reparations).
Actually the American attempt to settle the fourth lend-lease protocol was generous and the Russians for their own reasons declined to come to an agreement. It is not clear, though, that satisfying Moscow on any of these financial scores would have made much essential difference. It might have persuaded some doves in the Kremlin that the U.S. government was genuinely friendly; it might have persuaded some hawks that the American anxiety for Soviet friendship was such that Moscow could do as it wished without inviting challenge from the United States. It would, in short, merely have reinforced both sides of the Kremlin debate; it would hardly have reversed deeper tendencies toward the deterioration of political relationships. Economic deals were surely subordinate to the quality of mutual political confidence; and here, in the months after Yalta, the decay was steady.
The Cold War had now begun. It was the product not of a decision but of a dilemma. Each side felt compelled to adopt policies which the other could not but regard as a threat to the principles of the peace. Each then felt compelled to undertake defensive measures, Thus the Russians saw no choice but to consolidate their security in Eastern Europe. The Americans, regarding Eastern Europe as the first step toward Western Europe, responded by asserting their interest in the zone the Russians deemed vital to their security. The Russians concluded that the West was resuming its old course of capitalist encirclement; that it was purposefully laying the foundation for anti-Soviet régimes in the area defined by the blood of centuries as crucial to Russian survival. Each side believed with passion that future international stability depended on the success of its own conception of world order. Each side, in pursuing its own clearly indicated and deeply cherished principles, was only confirming the fear of the other that it was bent on aggression.
Very soon the process began to acquire a cumulative momentum. The impending collapse of Germany thus provoked new troubles: the Russians, for example, sincerely feared that the West was planning a separate surrender of the German armies in Italy in a way which would release troops for Hitler's eastern front, as they subsequently feared that the Nazis might succeed in surrendering Berlin to the West. This was the context in which the atomic bomb now appeared. Though the revisionist argument that Truman dropped the bomb less to defeat Japan than to intimidate Russia is not convincing, this thought unquestionably appealed to some in Washington as at least an advantageous side-effect of Hiroshima.
So the machinery of suspicion and counter-suspicion, action and counter- action, was set in motion. But, given relations among traditional national states, there was still no reason, even with all the postwar jostling, why this should not have remained a manageable situation. What made it unmanageable, what caused the rapid escalation of the Cold War and in another two years completed the division of Europe, was a set of considerations which this account has thus far excluded.
Up to this point, the discussion has considered the schism within the wartime coalition as if it were entirely the result of disagreements among national states. Assuming this framework, there was unquestionably a failure of communication between America and Russia, a misperception of signals and, as time went on, a mounting tendency to ascribe ominous motives to the other side. It seems hard, for example, to deny that American postwar policy created genuine difficulties for the Russians and even assumed a threatening aspect for them. All this the revisionists have rightly and usefully emphasized.
But the great omission of the revisionists-and also the fundamental explanation of the speed with which the Cold War escalated-lies precisely in the fact that the Soviet Union was not a traditional national state.[iv] This is where the "mirror image," invoked by some psychologists, falls down. For the Soviet Union was a phenomenon very different from America or Britain: it was a totalitarian state, endowed with an all-explanatory, all- consuming ideology, committed to the infallibility of government and party, still in a somewhat messianic mood, equating dissent with treason, and ruled by a dictator who, for all his quite extraordinary abilities, had his paranoid moments.
Marxism-Leninism gave the Russian leaders a view of the world according to which all societies were inexorably destined to proceed along appointed roads by appointed stages until they achieved the classless nirvana. Moreover, given the resistance of the capitalists to this development, the existence of any non-communist state was by definition a threat to the Soviet Union. "As long as capitalism and socialism exist," Lenin wrote, "we cannot live in peace: in the end, one or the other will triumph-a funeral dirge will be sung either over the Soviet Republic or over world capitalism."
Stalin and his associates, whatever Roosevelt or Truman did or failed to do, were bound to regard the United States as the enemy, not because of this deed or that, but because of the primordial fact that America was the leading capitalist power and thus, by Leninist syllogism, unappeasably hostile, driven by the logic of its system to oppose, encircle and destroy Soviet Russia. Nothing the United States could have done in 1944-45 would have abolished this mistrust, required and sanctified as it was by Marxist gospel-nothing short of the conversion of the United States into a Stalinist despotism; and even this would not have sufficed, as the experience of Jugoslavia and China soon showed, unless it were accompanied by total subservience to Moscow. So long as the United States remained a capitalist democracy, no American policy, given Moscow's theology, could hope to win basic Soviet confidence, and every American action was poisoned from the source. So long as the Soviet Union remained a messianic state, ideology compelled a steady expansion of communist power.
It is easy, of course, to exaggerate the capacity of ideology to control events. The tension of acting according to revolutionary abstractions is too much for most nations to sustain over a long period: that is why Mao Tse-tung has launched his Cultural Revolution, hoping thereby to create a permanent revolutionary mood and save Chinese communism from the degeneration which, in his view, has overtaken Russian communism. Still, as any revolution grows older, normal human and social motives will increasingly reassert themselves. In due course, we can be sure, Leninism will be about as effective in governing the daily lives of Russians as Christianity is in governing the daily lives of Americans. Like the Ten Commandments and the Sermon on the Mount, the Leninist verities will increasingly become platitudes for ritual observance, not guides to secular decision. There can be no worse fallacy (even if respectable people practiced it diligently for a season in the United States) than that of drawing from a nation's ideology permanent conclusions about its behavior.
A temporary recession of ideology was already taking place during the Second World War when Stalin, to rally his people against the invader, had to replace the appeal of Marxism by that of nationalism. ("We are under no illusions that they are fighting for us," Stalin once said to Harriman. "They are fighting for Mother Russia.") But this was still taking place within the strictest limitations. The Soviet Union remained as much a police state as ever; the régime was as infallible as ever; foreigners and their ideas were as suspect as ever. "Never, except possibly during my later experience as ambassador in Moscow," Kennan has written, "did the insistence of the Soviet authorities on isolation of the diplomatic corps weigh more heavily on me . . . than in these first weeks following my return to Russia in the final months of the war. . . . [We were] treated as though we were the bearers of some species of the plague"-which, of course, from the Soviet viewpoint, they were: the plague of skepticism.
Paradoxically, of the forces capable of bringing about a modification of ideology, the most practical and effective was the Soviet dictatorship itself. If Stalin was an ideologist, he was also a pragmatist. If he saw everything through the lenses of Marxism-Leninism, he also, as the infallible expositor of the faith, could reinterpret Marxism-Leninism to justify anything he wanted to do at any given moment. No doubt Roosevelt's ignorance of Marxism-Leninism was inexcusable and led to grievous miscalculations. But Roosevelt's efforts to work on and through Stalin were not so hopelessly naive as it used to be fashionable to think. With the extraordinary instinct of a great political leader, Roosevelt intuitively understood that Stalin was the only lever available to the West against the Leninist ideology and the Soviet system. If Stalin could be reached, then alone was there a chance of getting the Russians to act contrary to the prescriptions of their faith. The best evidence is that Roosevelt retained a certain capacity to influence Stalin to the end; the nominal Soviet acquiescence in American universalism as late as Yalta was perhaps an indication of that. It is in this way that the death of Roosevelt was crucial-not in the vulgar sense that his policy was then reversed by his successor, which did not happen, but in the sense that no other American could hope to have the restraining impact on Stalin which Roosevelt might for a while have had.
Stalin alone could have made any difference. Yet Stalin, in spite of the impression of sobriety and realism he made on Westerners who saw him during the Second World War, was plainly a man of deep and morbid obsessions and compulsions. When he was still a young man, Lenin had criticized his rude and arbitrary ways. A reasonably authoritative observer (N. S. Khrushchev) later commented, "These negative characteristics of his developed steadily and during the last years acquired an absolutely insufferable character." His paranoia, probably set off by the suicide of his wife in 1932, led to the terrible purges of the mid-thirties and the wanton murder of thousands of his Bolshevik comrades. "Everywhere and in everything," Khrushchev says of this period, "he saw 'enemies,' 'double-dealers' and 'spies.'" The crisis of war evidently steadied him in some way, though Khrushchev speaks of his "nervousness and hysteria . . . even after the war began." The madness, so rigidly controlled for a time, burst out with new and shocking intensity in the postwar years. "After the war," Khrushchev testifies,
the situation became even more complicated. Stalin became even more capricious, irritable and brutal; in particular, his suspicion grew. His persecution mania reached unbelievable dimensions. . . . He decided everything, without any consideration for anyone or anything.
Stalin's wilfulness showed itself . . . also in the international relations of the Soviet Union. . . . He had completely lost a sense of reality; he demonstrated his suspicion and haughtiness not only in relation to individuals in the USSR, but in relation to whole parties and nations.
A revisionist fallacy has been to treat Stalin as just another Realpolitik statesman, as Second World War revisionists see Hitler as just another Stresemann or Bismarck. But the record makes it clear that in the end nothing could satisfy Stalin's paranoia. His own associates failed. Why does anyone suppose that any conceivable American policy would have succeeded?
An analysis of the origins of the Cold War which leaves out these factors- the intransigence of Leninist ideology, the sinister dynamics of a totalitarian society and the madness of Stalin-is obviously incomplete. It was these factors which made it hard for the West to accept the thesis that Russia was moved only by a desire to protect its security and would be satisfied by the control of Eastern Europe; it was these factors which charged the debate between universalism and spheres of influence with apocalyptic potentiality.
Leninism and totalitarianism created a structure of thought and behavior which made postwar collaboration between Russia and America-in any normal sense of civilized intercourse between national states-inherently impossible. The Soviet dictatorship of 1945 simply could not have survived such a collaboration. Indeed, nearly a quarter-century later, the Soviet régime, though it has meanwhile moved a good distance, could still hardly survive it without risking the release inside Russia of energies profoundly opposed to communist despotism. As for Stalin, he may have represented the only force in 1945 capable of overcoming Stalinism, but the very traits which enabled him to win absolute power expressed terrifying instabilities of mind and temperament and hardly offered a solid foundation for a peaceful world.
The difference between America and Russia in 1945 was that some Americans fundamentally believed that, over a long run, a modus vivendi with Russia was possible; while the Russians, so far as one can tell, believed in no more than a short-run modus vivendi with the United States.
Harriman and Kennan, this narrative has made clear, took the lead in warning Washington about the difficulties of short-run dealings with the Soviet Union. But both argued that, if the United States developed a rational policy and stuck to it, there would be, after long and rough passages, the prospect of eventual clearing. "I am, as you know," Harriman cabled Washington in early April, "a most earnest advocate of the closest possible understanding with the Soviet Union so that what I am saying relates only to how best to attain such understanding." Kennan has similarly made it clear that the function of his containment policy was "to tide us over a difficult time and bring us to the point where we could discuss effectively with the Russians the dangers and drawbacks this status quo involved, and to arrange with them for its peaceful replacement by a better and sounder one." The subsequent careers of both men attest to the honesty of these statements.
There is no corresponding evidence on the Russian side that anyone seriously sought a modus vivendi in these terms. Stalin's choice was whether his long-term ideological and national interests would be better served by a short-run truce with the West or by an immediate resumption of pressure. In October 1945 Stalin indicated to Harriman at Sochi that he planned to adopt the second course-that the Soviet Union was going isolationist. No doubt the succession of problems with the United States contributed to this decision, but the basic causes most probably lay elsewhere: in the developing situations in Eastern Europe, in Western Europe and in the United States.
In Eastern Europe, Stalin was still for a moment experimenting with techniques of control. But he must by now have begun to conclude that he had underestimated the hostility of the people to Russian dominion. The Hungarian elections in November would finally convince him that the Yalta formula was a road to anti-Soviet governments. At the same time, he was feeling more strongly than ever a sense of his opportunities in Western Europe. The other half of the Continent lay unexpectedly before him, politically demoralized, economically prostrate, militarily defenseless. The hunting would be better and safer than he had anticipated. As for the United States, the alacrity of postwar demobilization must have recalled Roosevelt's offhand remark at Yalta that "two years would be the limit" for keeping American troops in Europe. And, despite Dr. Eugene Varga's doubts about the imminence of American economic breakdown, Marxist theology assured Stalin that the United States was heading into a bitter postwar depression and would be consumed with its own problems. If the condition of Eastern Europe made unilateral action seem essential in the interests of Russian security, the condition of Western Europe and the United States offered new temptations for communist expansion. The Cold War was now in full swing.
It still had its year of modulations and accommodations. Secretary Byrnes conducted his long and fruitless campaign to persuade the Russians that America only sought governments in Eastern Europe "both friendly to the Soviet Union and representative of all the democratic elements of the country." Crises were surmounted in Trieste and Iran. Secretary Marshall evidently did not give up hope of a modus vivendi until the Moscow conference of foreign secretaries of March 1947. Even then, the Soviet Union was invited to participate in the Marshall Plan.
The point of no return came on July 2, 1947, when Molotov, after bringing 89 technical specialists with him to Paris and evincing initial interest in the project for European reconstruction, received the hot flash from the Kremlin, denounced the whole idea and walked out of the conference. For the next fifteen years the Cold War raged unabated, passing out of historical ambiguity into the realm of good versus evil and breeding on both sides simplifications, stereotypes and self-serving absolutes, often couched in interchangeable phrases. Under the pressure even America, for a deplorable decade, forsook its pragmatic and pluralist traditions, posed as God's appointed messenger to ignorant and sinful man and followed the Soviet example in looking to a world remade in its own image.
In retrospect, if it is impossible to see the Cold War as a case of American aggression and Russian response, it is also hard to see it as a pure case of Russian aggression and American response. "In what is truly tragic," wrote Hegel, "there must be valid moral powers on both the sides which come into collision. . . . Both suffer loss and yet both are mutually justified." In this sense, the Cold War had its tragic elements. The question remains whether it was an instance of Greek tragedy-as Auden has called it, "the tragedy of necessity," where the feeling aroused in the spectator is "What a pity it had to be this way"-or of Christian tragedy, "the tragedy of possibility," where the feeling aroused is "What a pity it was this way when it might have been otherwise."
Once something has happened, the historian is tempted to assume that it had to happen; but this may often be a highly un-philosophical assumption. The Cold War could have been avoided only if the Soviet Union had not been possessed by convictions both of the infallibility of the communist word and of the inevitability of a communist world. These convictions transformed an impasse between national states into a religious war, a tragedy of possibility into one of necessity. One might wish that America had preserved the poise and proportion of the first years of the Cold War and had not in time succumbed to its own forms of self-righteousness. But the most rational of American policies could hardly have averted the Cold War. Only today, as Russia begins to recede from its messianic mission and to accept, in practice if not yet in principle, the permanence of the world of diversity, only now can the hope flicker that this long, dreary, costly contest may at last be taking on forms less dramatic, less obsessive and less dangerous to the future of mankind.
[i] As this writer somewhat intemperately did in a letter to The New York Review of Books, October 20, 1966.
[ii] Every student of the Cold War must acknowledge his debt to W. H. McNeill's remarkable account, "America, Britain and Russia: Their Cooperation and Conflict, 1941-1946" (New York, 1953) and to the brilliant and indispensable series by Herbert Feis: "Churchill, Roosevelt, Stalin: The War They Waged and the Peace They Sought" (Princeton, 1957); "Between War and Peace: The Potsdam Conference" (Princeton, 1960); and "The Atomic Bomb and the End of World War II" (Princeton, 1966). Useful recent analyses include André Fontaine, "Histoire de la Guerre Froide" (2 v., Paris, 1965, 1967); N. A. Graebner, "Cold War Diplomacy, 1945-1960" (Princeton, 1962); L. J. Halle, "The Cold War as History" (London, 1967); M. F. Herz, "Beginnings of the Cold War" (Bloomington, 1966) and W. L. Neumann, "After Victory: Churchill, Roosevelt, Stalin and the Making of the Peace" (New York, 1967).
[iii] The fullest statement of this case is to be found in D. F. Fleming's voluminous "The Cold War and Its Origins" (New York, 1961). For a shorter version of this argument, see David Horowitz, "The Free World Colossus" (New York, 1965); the most subtle and ingenious statements come in W. A. Williams' "The Tragedy of American Diplomacy" (rev. ed., New York, 1962) and in Gar Alperowitz's "Atomic Diplomacy: Hiroshima and Potsdam" (New York, 1965) and in subsequent articles and reviews by Mr. Alperowitz in The New York Review of Books. The fact that in some aspects the revisionist thesis parallels the official Soviet argument must not, of course, prevent consideration of the case on its merits, nor raise questions about the motives of the writers, all of whom, so far as I know, are independent- minded scholars. I might further add that all these books, in spite of their ostentatious display of scholarly apparatus, must be used with caution. Professor Fleming, for example, relies heavily on newspaper articles and even columnists. While Mr. Alperowitz bases his case on official documents or authoritative reminiscences, he sometimes twists his material in a most unscholarly way. For example, in describing Ambassador Harriman's talk with President Truman on April 20, 1945, Mr. Alperowitz writes, "He argued that a reconsideration of Roosevelt's policy was necessary" (p. 22, repeated on p. 24). The citation is to p. 70-72 in President Truman's "Years of Decision." What President Truman reported Harriman as saying was the exact opposite: "Before leaving, Harriman took me aside and said, 'Frankly, one of the reasons that made me rush back to Washington was the fear that you did not understand, as I had seen Roosevelt understand, that Stalin is breaking his agreements.'" Similarly, in an appendix (p. 271) Mr. Alperowitz writes that the Hopkins and Davies missions of May 1945 "were opposed by the 'firm' advisers." Actually the Hopkins mission was proposed by Harriman and Charles E. Bohlen, who Mr. Alperowitz elsewhere suggests were the firmest of the firm-and was proposed by them precisely to impress on Stalin the continuity of American policy from Roosevelt to Truman. While the idea that Truman reversed Roosevelt's policy is tempting dramatically, it is a myth. See, for example, the testimony of Anna Rosenberg Hoffman, who lunched with Roosevelt on March 24, 1945, the last day he spent in Washington. After luncheon, Roosevelt was handed a cable. "He read it and became quite angry. He banged his fists on the arms of his wheelchair and said, 'Averell is right; we can't do business with Stalin. He has broken every one of the promises he made at Yalta.' He was very upset and continued in the same vein on the subject."
[iv] This is the classical revisionist fallacy-the assumption of the rationality, or at least of the traditionalism, of states where ideology and social organization have created a different range of motives. So the Second World War revisionists omit the totalitarian dynamism of Nazism and the fanaticism of Hitler, as the Civil War revisionists omit the fact that the slavery system was producing a doctrinaire closed society in the American South. For a consideration of some of these issues, see "The Causes of the Civil War: A Note on Historical Sentimentalism" in my "The Politics of Hope" (Boston, 1963).