Crisis of Command
America’s Broken Civil-Military Relationship Imperils National Security
THE LURES OF PREEMPTION
In the shadows of the Bush administration's war on terrorism, sweeping new ideas are circulating about U.S. grand strategy and the restructuring of today's unipolar world. They call for American unilateral and preemptive, even preventive, use of force, facilitated if possible by coalitions of the willing -- but ultimately unconstrained by the rules and norms of the international community. At the extreme, these notions form a neoimperial vision in which the United States arrogates to itself the global role of setting standards, determining threats, using force, and meting out justice. It is a vision in which sovereignty becomes more absolute for America even as it becomes more conditional for countries that challenge Washington's standards of internal and external behavior. It is a vision made necessary -- at least in the eyes of its advocates -- by the new and apocalyptic character of contemporary terrorist threats and by America's unprecedented global dominance. These radical strategic ideas and impulses could transform today's world order in a way that the end of the Cold War, strangely enough, did not.
The exigencies of fighting terrorism in Afghanistan and the debate over intervening in Iraq obscure the profundity of this geopolitical challenge. Blueprints have not been produced, and Yalta-style summits have not been convened, but actions are afoot to dramatically alter the political order that the United States has built with its partners since the 1940s. The twin new realities of our age -- catastrophic terrorism and American unipolar power -- do necessitate a rethinking of the organizing principles of international order. America and the other major states do need a new consensus on terrorist threats, weapons of mass destruction (WMD), the use of force, and the global rules of the game. This imperative requires a better appreciation of the ideas coming out of the administration. But in turn, the administration should understand the virtues of the old order that it wishes to displace.
America's nascent neoimperial grand strategy threatens to rend the fabric of the international community and political partnerships precisely at a time when that community and those partnerships are urgently needed. It is an approach fraught with peril and likely to fail. It is not only politically unsustainable but diplomatically harmful. And if history is a guide, it will trigger antagonism and resistance that will leave America in a more hostile and divided world.
The mainstream of American foreign policy has been defined since the 1940s by two grand strategies that have built the modern international order. One is realist in orientation, organized around containment, deterrence, and the maintenance of the global balance of power. Facing a dangerous and expansive Soviet Union after 1945, the United States stepped forward to fill the vacuum left by a waning British Empire and a collapsing European order to provide a counter-weight to Stalin and his Red Army.
The touchstone of this strategy was containment, which sought to deny the Soviet Union the ability to expand its sphere of influence. Order was maintained by managing the bipolar balance between the American and Soviet camps. Stability was achieved through nuclear deterrence. For the first time, nuclear weapons and the doctrine of mutual assured destruction made war between the great powers irrational. But containment and global power-balancing ended with the collapse of the Soviet Union in 1991. Nuclear deterrence is no longer the defining logic of the existing order, although it remains a recessed feature that continues to impart stability in relations among China, Russia, and the West.
This strategy has yielded a bounty of institutions and partnerships for America. The most important have been the NATO and U.S.-Japan alliances, American-led security partnerships that have survived the end of the Cold War by providing a bulwark for stability through commitment and reassurance. The United States maintains a forward presence in Europe and East Asia; its alliance partners gain security protection as well as a measure of regularity in their relationship with the world's leading military power. But Cold War balancing has yielded more than a utilitarian alliance structure; it has generated a political order that has value in itself.
This grand strategy presupposes a loose framework of consultations and agreements to resolve differences: the great powers extend to each other the respect of equals, and they accommodate each other until vital interests come into play. The domestic affairs of these states remain precisely that -- domestic. The great powers compete with each other, and although war is not unthinkable, sober statecraft and the balance of power offer the best hope for stability and peace.
George W. Bush ran for president emphasizing some of these themes, describing his approach to foreign policy as "new realism": the focus of American efforts should shift away from Clinton-era preoccupations with nation building, international social work, and the promiscuous use of force, and toward cultivating great-power relations and rebuilding the nation's military. Bush's efforts to integrate Russia into the Western security order have been the most important manifestation of this realist grand strategy at work. The moderation in Washington's confrontational rhetoric toward China also reflects this emphasis. If the major European and Asian states play by the rules, the great-power order will remain stable. (In a way, it is precisely because Europe is not a great power -- or at least seems to eschew the logic of great-power politics -- that it is now generating so much discord with the United States.)
The other grand strategy, forged during World War II as the United States planned the reconstruction of the world economy, is liberal in orientation. It seeks to build order around institutionalized political relations among integrated market democracies, supported by an opening of economies. This agenda was not simply an inspiration of American businessmen and economists, however. There have always been geopolitical goals as well. Whereas America's realist grand strategy was aimed at countering Soviet power, its liberal grand strategy was aimed at avoiding a return to the 1930s, an era of regional blocs, trade conflict, and strategic rivalry. Open trade, democracy, and multilateral institutional relations went together. Underlying this strategy was the view that a rule-based international order, especially one in which the United States uses its political weight to derive congenial rules, will most fully protect American interests, conserve its power, and extend its influence.
This grand strategy has been pursued through an array of postwar initiatives that look disarmingly like "low politics": the Bretton Woods institutions, the World Trade Organization (WTO), and the Organization for Economic Cooperation and Development are just a few examples. Together, they form a complex layer cake of integrative initiatives that bind the democratic industrialized world together. During the 1990s, the United States continued to pursue this liberal grand strategy. Both the first Bush and the Clinton administrations attempted to articulate a vision of world order that was not dependent on an external threat or an explicit policy of balance of power. Bush the elder talked about the importance of the transatlantic community and articulated ideas about a more fully integrated Asia-Pacific region. In both cases, the strategy offered a positive vision of alliance and partnership built around common values, tradition, mutual self-interest, and the preservation of stability. The Clinton administration likewise attempted to describe the post-Cold War order in terms of the expansion of democracy and open markets. In this vision, democracy provided the foundation for global and regional community, and trade and capital flows were forces for political reform and integration.
The current Bush administration is not eager to brandish this Clinton-looking grand strategy, but it still invokes that strategy's ideas in various ways. Support for Chinese entry into the WTO is based on the liberal anticipation that free markets and integration into the Western economic order will create pressures for Chinese political reform and discourage a belligerent foreign policy. Administration support for last year's multilateral trade-negotiating round in Doha, Qatar, also was premised on the economic and political benefits of freer trade. After September 11, U.S. Trade Representative Robert Zoellick even linked trade expansion authority to the fight against terrorism: trade, growth, integration, and political stability go together. Richard Haass, policy planning director at the State Department, argued recently that "the principal aim of American foreign policy is to integrate other countries and organizations into arrangements that will sustain a world consistent with U.S. interests and values" -- again, an echo of the liberal grand strategy. The administration's recent protectionist trade actions in steel and agriculture have triggered such a loud outcry around the world precisely because governments are worried that the United States might be retreating from this postwar liberal strategy.
AMERICA'S HISTORIC BARGAINS
These two grand strategies are rooted in divergent, even antagonistic, intellectual traditions. But over the last 50 years they have worked remarkably well together. The realist grand strategy created a political rationale for establishing major security commitments around the world. The liberal strategy created a positive agenda for American leadership. The United States could exercise its power and achieve its national interests, but it did so in a way that helped deepen the fabric of international community. American power did not destabilize world order; it helped create it. The development of rule-based agreements and political-security partnerships was good both for the United States and for much of the world. By the end of the 1990s, the result was an international political order of unprecedented size and success: a global coalition of democratic states tied together through markets, institutions, and security partnerships.
This international order was built on two historic bargains. One was the U.S. commitment to provide its European and Asian partners with security protection and access to American markets, technology, and supplies within an open world economy. In return, these countries agreed to be reliable partners providing diplomatic, economic, and logistical support for the United States as it led the wider Western postwar order. The other is the liberal bargain that addressed the uncertainties of American power. East Asian and European states agreed to accept American leadership and operate within an agreed-upon political-economic system. The United States, in response, opened itself up and bound itself to its partners. In effect, the United States built an institutionalized coalition of partners and reinforced the stability of these mutually beneficial relations by making itself more "user-friendly" -- that is, by playing by the rules and creating ongoing political processes that facilitated consultation and joint decision-making. The United States made its power safe for the world, and in return the world agreed to live within the U.S. system. These bargains date from the 1940s, but they continue to shore up the post-Cold War order. The result has been the most stable and prosperous international system in world history. But new ideas within the Bush administration -- crystallized by September 11 and U.S. dominance -- are unsettling this order and the political bargains behind it.
A NEW GRAND STRATEGY
For the first time since the dawn of the Cold War, a new grand strategy is taking shape in Washington. It is advanced most directly as a response to terrorism, but it also constitutes a broader view about how the United States should wield power and organize world order. According to this new paradigm, America is to be less bound to its partners and to global rules and institutions while it steps forward to play a more unilateral and anticipatory role in attacking terrorist threats and confronting rogue states seeking WMD. The United States will use its unrivaled military power to manage the global order.
This new grand strategy has seven elements. It begins with a fundamental commitment to maintaining a unipolar world in which the United States has no peer competitor. No coalition of great powers without the United States will be allowed to achieve hegemony. Bush made this point the centerpiece of American security policy in his West Point commencement address in June: "America has, and intends to keep, military strengths beyond challenges -- thereby making the destabilizing arms races of other eras pointless, and limiting rivalries to trade and other pursuits of peace." The United States will not seek security through the more modest realist strategy of operating within a global system of power balancing, nor will it pursue a liberal strategy in which institutions, democracy, and integrated markets reduce the importance of power politics altogether. America will be so much more powerful than other major states that strategic rivalries and security competition among the great powers will disappear, leaving everyone -- not just the United States -- better off.
This goal made an unsettling early appearance at the end of the first Bush administration in a leaked Pentagon memorandum written by then Assistant Secretary of Defense Paul Wolfowitz. With the collapse of the Soviet Union, he wrote, the United States must act to prevent the rise of peer competitors in Europe and Asia. But the 1990s made this strategic aim moot. The United States grew faster than the other major states during the decade, it reduced military spending more slowly, and it dominated investment in the technological advancement of its forces. Today, however, the new goal is to make these advantages permanent -- a fait accompli that will prompt other states to not even try to catch up. Some thinkers have described the strategy as "breakout," in which the United States moves so quickly to develop technological advantages (in robotics, lasers, satellites, precision munitions, etc.) that no state or coalition could ever challenge it as global leader, protector, and enforcer.
The second element is a dramatic new analysis of global threats and how they must be attacked. The grim new reality is that small groups of terrorists -- perhaps aided by outlaw states -- may soon acquire highly destructive nuclear, chemical, and biological weapons that can inflict catastrophic destruction. These terrorist groups cannot be appeased or deterred, the administration believes, so they must be eliminated. Secretary of Defense Donald Rumsfeld has articulated this frightening view with elegance: regarding the threats that confront the United States, he said, "There are things we know that we know. There are known unknowns. That is to say, there are things that we know we don't know. But there are also unknown unknowns. There are things we don't know we don't know. ... Each year, we discover a few more of those unknown unknowns." In other words, there could exist groups of terrorists that no one knows about. They may have nuclear, chemical, or biological weapons that the United States did not know they could get, and they might be willing and able to attack without warning. In the age of terror, there is less room for error. Small networks of angry people can inflict unimaginable harm on the rest of the world. They are not nation-states, and they do not play by the accepted rules of the game.
The third element of the new strategy maintains that the Cold War concept of deterrence is outdated. Deterrence, sovereignty, and the balance of power work together. When deterrence is no longer viable, the larger realist edifice starts to crumble. The threat today is not other great powers that must be managed through second-strike nuclear capacity but the transnational terrorist networks that have no home address. They cannot be deterred because they are either willing to die for their cause or able to escape retaliation. The old defensive strategy of building missiles and other weapons that can survive a first strike and be used in a retaliatory strike to punish the attacker will no longer ensure security. The only option, then, is offense.
The use of force, this camp argues, will therefore need to be preemptive and perhaps even preventive -- taking on potential threats before they can present a major problem. But this premise plays havoc with the old international rules of self-defense and United Nations norms about the proper use of force. Rumsfeld has articulated the justification for preemptive action by stating that the "absence of evidence is not evidence of absence of weapons of mass destruction." But such an approach renders international norms of self-defense -- enshrined by Article 51 of the UN Charter -- almost meaningless. The administration should remember that when Israeli jets bombed the Iraqi nuclear reactor at Osirak in 1981 in what Israel described as an act of self-defense, the world condemned it as an act of aggression. Even British Prime Minister Margaret Thatcher and the American ambassador to the UN, Jeane Kirkpatrick, criticized the action, and the United States joined in passing a UN resolution condemning it.
The Bush administration's security doctrine takes this country down the same slippery slope. Even without a clear threat, the United States now claims a right to use preemptive or preventive military force. At West Point, Bush put it succinctly when he stated that "the military must be ready to strike at a moment's notice in any dark corner of the world. All nations that decide for aggression and terror will pay a price." The administration defends this new doctrine as a necessary adjustment to a more uncertain and shifting threat environment. This policy of no regrets errs on the side of action -- but it can also easily become national security by hunch or inference, leaving the world without clear-cut norms for justifying force.
As a result, the fourth element of this emerging grand strategy involves a recasting of the terms of sovereignty. Because these terrorist groups cannot be deterred, the United States must be prepared to intervene anywhere, anytime to preemptively destroy the threat. Terrorists do not respect borders, so neither can the United States. Moreover, countries that harbor terrorists, either by consent or because they are unable to enforce their laws within their territory, effectively forfeit their rights of sovereignty. Haass recently hinted at this notion in The New Yorker:
What you are seeing in this administration is the emergence of a new principle or body of ideas ... about what you might call the limits of sovereignty. Sovereignty entails obligations. One is not to massacre your own people. Another is not to support terrorism in any way. If a government fails to meet these obligations, then it forfeits some of the normal advantages of sovereignty, including the right to be left alone inside your own territory. Other governments, including the United States, gain the right to intervene. In the case of terrorism, this can even lead to a right of preventive ... self-defense. You essentially can act in anticipation if you have grounds to think it's a question of when, and not if, you're going to be attacked.
Here the war on terrorism and the problem of the proliferation of WMD get entangled. The worry is that a few despotic states -- Iraq in particular, but also Iran and North Korea -- will develop capabilities to produce weapons of mass destruction and put these weapons in the hands of terrorists. The regimes themselves may be deterred from using such capabilities, but they might pass along these weapons to terrorist networks that are not deterred. Thus another emerging principle within the Bush administration: the possession of WMD by unaccountable, unfriendly, despotic governments is itself a threat that must be countered. In the old era, despotic regimes were to be lamented but ultimately tolerated. With the rise of terrorism and weapons of mass destruction, they are now unacceptable threats. Thus states that are not technically in violation of any existing international laws could nevertheless be targets of American force -- if Washington determines that they have a prospective capacity to do harm.
The recasting of sovereignty is paradoxical. On the one hand, the new grand strategy reaffirms the importance of the territorial nation-state. After all, if all governments were accountable and capable of enforcing the rule of law within their sovereign territory, terrorists would find it very difficult to operate. The emerging Bush doctrine enshrines this idea: governments will be held responsible for what goes on inside their borders. On the other hand, sovereignty has been made newly conditional: governments that fail to act like respectable, law-abiding states will lose their sovereignty.
In one sense, such conditional sovereignty is not new. Great powers have willfully transgressed the norms of state sovereignty as far back as such norms have existed, particularly within their traditional spheres of influence, whenever the national interest dictated. The United States itself has done this within the western hemisphere since the nineteenth century. What is new and provocative in this notion today, however, is the Bush administration's inclination to apply it on a global basis, leaving to itself the authority to determine when sovereign rights have been forfeited, and doing so on an anticipatory basis.
The fifth element of this new grand strategy is a general depreciation of international rules, treaties, and security partnerships. This point relates to the new threats themselves: if the stakes are rising and the margins of error are shrinking in the war on terrorism, multilateral norms and agreements that sanction and limit the use of force are just annoying distractions. The critical task is to eliminate the threat. But the emerging unilateral strategy is also informed by a deeper suspicion about the value of international agreements themselves. Part of this view arises from a deeply felt and authentically American belief that the United States should not get entangled in the corrupting and constraining world of multilateral rules and institutions. For some Americans, the belief that American sovereignty is politically sacred leads to a preference for isolationism. But the more influential view -- particularly after September 11 -- is not that the United States should withdraw from the world but that it should operate in the world on its own terms. The Bush administration's repudiation of a remarkable array of treaties and institutions -- from the Kyoto Protocol on global warming to the International Criminal Court to the Biological Weapons Convention -- reflects this new bias. Likewise, the United States signed a formal agreement with Russia on the reduction of deployed nuclear warheads only after Moscow's insistence; the Bush administration wanted only a "gentlemen's agreement." In other words, the United States has decided it is big enough, powerful enough, and remote enough to go it alone.
Sixth, the new grand strategy argues that the United States will need to play a direct and unconstrained role in responding to threats. This conviction is partially based on a judgment that no other country or coalition -- even the European Union -- has the force-projection capabilities to respond to terrorist and rogue states around the world. A decade of U.S. defense spending and modernization has left allies of the United States far behind. In combat operations, alliance partners are increasingly finding it difficult to mesh with U.S. forces. This view is also based on the judgment that joint operations and the use of force through coalitions tend to hinder effective operations. To some observers, this lesson became clear in the allied bombing campaign over Kosovo. The sentiment was also expressed during the U.S. and allied military actions in Afghanistan. Rumsfeld explained this point earlier this year, when he said, "The mission must determine the coalition; the coalition must not determine the mission. If it does, the mission will be dumbed down to the lowest common denominator, and we can't afford that."
No one in the Bush administration argues that NATO or the U.S.-Japan alliance should be dismantled. Rather, these alliances are now seen as less useful to the United States as it confronts today's threats. Some officials argue that it is not that the United States chooses to depreciate alliance partnerships, but that the Europeans are unwilling to keep up. Whether that is true, the upgrading of the American military, along with its sheer size relative to the forces of the rest of the world, leaves the United States in a class by itself. In these circumstances, it is increasingly difficult to maintain the illusion of true alliance partnership. America's allies become merely strategic assets that are useful depending on the circumstance. The United States still finds attractive the logistical reach that its global alliance system provides, but the pacts with countries in Asia and Europe become more contingent and less premised on a vision of a common security community.
Finally, the new grand strategy attaches little value to international stability. There is an unsentimental view in the unilateralist camp that the traditions of the past must be shed. Whether it is withdrawal from the Anti-Ballistic Missile Treaty or the resistance to signing other formal arms-control treaties, policymakers are convinced that the United States needs to move beyond outmoded Cold War thinking. Administration officials have noted with some satisfaction that America's withdrawal from the ABM Treaty did not lead to a global arms race but actually paved the way for a historic arms-reduction agreement between the United States and Russia. This move is seen as a validation that moving beyond the old paradigm of great-power relations will not bring the international house down. The world can withstand radically new security approaches, and it will accommodate American unilateralism as well. But stability is not an end in itself. The administration's new hawkish policy toward North Korea, for example, might be destabilizing to the region, but such instability might be the necessary price for dislodging a dangerous and evil regime in Pyongyang.
In this brave new world, neoimperial thinkers contend that the older realist and liberal grand strategies are not very helpful. American security will not be ensured, as realist grand strategy assumes, by the preservation of deterrence and stable relations among the major powers. In a world of asymmetrical threats, the global balance of power is not the linchpin of war and peace. Likewise, liberal strategies of building order around open trade and democratic institutions might have some long-term impact on terrorism, but they do not address the immediacy of the threats. Apocalyptic violence is at our doorstep, so efforts at strengthening the rules and institutions of the international community are of little practical value. If we accept the worst-case imagining of "we don't know what we don't know," everything else is secondary: international rules, traditions of partnership, and standards of legitimacy. It is a war. And as Clausewitz famously remarked, "War is such a dangerous business that the mistakes which come from kindness are the very worst."
Pitfalls accompany this neoimperial grand strategy, however. Unchecked U.S. power, shorn of legitimacy and disentangled from the postwar norms and institutions of the international order, will usher in a more hostile international system, making it far harder to achieve American interests. The secret of the United States' long brilliant run as the world's leading state was its ability and willingness to exercise power within alliance and multinational frameworks, which made its power and agenda more acceptable to allies and other key states around the world. This achievement has now been put at risk by the administration's new thinking.
The most immediate problem is that the neoimperialist approach is unsustainable. Going it alone might well succeed in removing Saddam Hussein from power, but it is far less certain that a strategy of counterproliferation, based on American willingness to use unilateral force to confront dangerous dictators, can work over the long term. An American policy that leaves the United States alone to decide which states are threats and how best to deny them weapons of mass destruction will lead to a diminishment of multilateral mechanisms -- most important of which is the nonproliferation regime.
The Bush administration has elevated the threat of WMD to the top of its security agenda without investing its power or prestige in fostering, monitoring, and enforcing nonproliferation commitments. The tragedy of September 11 has given the Bush administration the authority and willingness to confront the Iraqs of the world. But that will not be enough when even more complicated cases come along -- when it is not the use of force that is needed but concerted multilateral action to provide sanctions and inspections. Nor is it certain that a preemptive or preventive military intervention will go well; it might trigger a domestic political backlash to American-led and military-focused interventionism. America's well-meaning imperial strategy could undermine the principled multilateral agreements, institutional infrastructure, and cooperative spirit needed for the long-term success of nonproliferation goals.
The specific doctrine of preemptive action poses a related problem: once the United States feels it can take such a course, nothing will stop other countries from doing the same. Does the United States want this doctrine in the hands of Pakistan, or even China or Russia? After all, it would not require the intervening state to first provide evidence for its actions. The United States argues that to wait until all the evidence is in, or until authoritative international bodies support action, is to wait too long. Yet that approach is the only basis that the United States can use if it needs to appeal for restraint in the actions of others. Moreover, and quite paradoxically, overwhelming American conventional military might, combined with a policy of preemptive strikes, could lead hostile states to accelerate programs to acquire their only possible deterrent to the United States: WMD. This is another version of the security dilemma, but one made worse by a neoimperial grand strategy.
Another problem follows. The use of force to eliminate WMD capabilities or overturn dangerous regimes is never simple, whether it is pursued unilaterally or by a concert of major states. After the military intervention is over, the target country has to be put back together. Peacekeeping and state building are inevitably required, as are long-term strategies that bring the un, the World Bank, and the major powers together to orchestrate aid and other forms of assistance. This is not heroic work, but it is utterly necessary. Peacekeeping troops may be required for many years, even after a new regime is built. Regional conflicts inflamed by outside military intervention must also be calmed. This is the "long tail" of burdens and commitments that comes with every major military action.
When these costs and obligations are added to America's imperial military role, it becomes even more doubtful that the neoimperial strategy can be sustained at home over the long haul -- the classic problem of imperial overstretch. The United States could keep its military predominance for decades if it is supported by a growing and increasingly productive economy. But the indirect burdens of cleaning up the political mess in terrorist-prone failed states levy a hidden cost. Peacekeeping and state building will require coalitions of states and multilateral agencies that can be brought into the process only if the initial decisions about military intervention are hammered out in consultation with other major states. America's older realist and liberal grand strategies suddenly become relevant again.
A third problem with an imperial grand strategy is that it cannot generate the cooperation needed to solve practical problems at the heart of the U.S. foreign policy agenda. In the fight on terrorism, the United States needs cooperation from European and Asian countries in intelligence, law enforcement, and logistics. Outside the security sphere, realizing U.S. objectives depends even more on a continuous stream of amicable working relations with major states around the world. It needs partners for trade liberalization, global financial stabilization, environmental protection, deterring transnational organized crime, managing the rise of China, and a host of other thorny challenges. But it is impossible to expect would-be partners to acquiesce to America's self-appointed global security protectorate and then pursue business as usual in all other domains.
The key policy tool for states confronting a unipolar and unilateral America is to withhold cooperation in day-to-day relations with the United States. One obvious means is trade policy; the European response to the recent American decision to impose tariffs on imported steel is explicable in these terms. This particular struggle concerns specific trade issues, but it is also a struggle over how Washington exercises power. The United States may be a unipolar military power, but economic and political power is more evenly distributed across the globe. The major states may not have much leverage in directly restraining American military policy, but they can make the United States pay a price in other areas.
Finally, the neoimperial grand strategy poses a wider problem for the maintenance of American unipolar power. It steps into the oldest trap of powerful imperial states: self-encirclement. When the most powerful state in the world throws its weight around, unconstrained by rules or norms of legitimacy, it risks a backlash. Other countries will bridle at an international order in which the United States plays only by its own rules. The proponents of the new grand strategy have assumed that the United States can single-handedly deploy military power abroad and not suffer untoward consequences; relations will be coarser with friends and allies, they believe, but such are the costs of leadership. But history shows that powerful states tend to trigger self-encirclement by their own overestimation of their power. Charles V, Louis XIV, Napoleon, and the leaders of post-Bismarck Germany sought to expand their imperial domains and impose a coercive order on others. Their imperial orders were all brought down when other countries decided they were not prepared to live in a world dominated by an overweening coercive state. America's imperial goals and modus operandi are much more limited and benign than were those of age-old emperors. But a hard-line imperial grand strategy runs the risk that history will repeat itself.
BRING IN THE OLD
Wars change world politics, and so too will America's war on terrorism. How great states fight wars, how they define the stakes, how they make the peace in its aftermath -- all give lasting shape to the international system that emerges after the guns fall silent. In mobilizing their societies for battle, wartime leaders have tended to describe the military struggle as more than simply the defeat of an enemy. Woodrow Wilson sent U.S. troops to Europe not only to stop the Kaiser's army but to destroy militarism and usher in a worldwide democratic revolution. Franklin Roosevelt saw the war with Germany and Japan as a struggle to secure the "four great freedoms." The Atlantic Charter was a statement of war aims that called not just for the defeat of fascism but for a new dedication to social welfare and human rights within an open and stable world system. To advance these visions, Wilson and Roosevelt proposed new international rules and mechanisms of cooperation. Their message was clear: If you bear the burdens of war, we, your leaders, will use this dreadful conflict to usher in a more peaceful and decent order among states. Fighting the war had as much to do with building global relations as it did with vanquishing an enemy.
Bush has not fully articulated a vision of postwar international order, aside from defining the struggle as one between freedom and evil. The world has seen Washington take determined steps to fight terrorism, but it does not yet have a sense of Bush's larger, positive agenda for a strengthened and more decent international order.
This failure explains why the sympathy and goodwill generated around the world for the United States after September 11 quickly disappeared. Newspapers that once proclaimed, "We are all Americans," now express distrust toward America. The prevailing view is that the United States seems prepared to use its power to go after terrorists and evil regimes, but not to use it to help build a more stable and peaceful world order. The United States appears to be degrading the rules and institutions of international community, not enhancing them. To the rest of the world, neoimperial thinking has more to do with exercising power than with exercising leadership.
In contrast, America's older strategic orientations -- balance-of-power realism and liberal multilateralism -- suggest a mature world power that seeks stability and pursues its interests in ways that do not fundamentally threaten the positions of other states. They are strategies of co-option and reassurance. The new imperial grand strategy presents the United States very differently: a revisionist state seeking to parlay its momentary power advantages into a world order in which it runs the show. Unlike the hegemonic states of the past, the United States does not seek territory or outright political domination in Europe or Asia; "America has no empire to extend or utopia to establish," Bush noted in his West Point address. But the sheer power advantages that the United States possesses and the doctrines of preemption and counterterrorism that it is articulating do unsettle governments and people around the world. The costs could be high. The last thing the United States wants is for foreign diplomats and government leaders to ask, How can we work around, undermine, contain, and retaliate against U.S. power?
Rather than invent a new grand strategy, the United States should reinvigorate its older strategies, those based on the view that America's security partnerships are not simply instrumental tools but critical components of an American-led world political order that should be preserved. U.S. power is both leveraged and made more legitimate and user-friendly by these partnerships. The neoimperial thinkers are haunted by the specter of catastrophic terrorism and seek a radical reordering of America's role in the world. America's commanding unipolar power and the advent of frightening new terrorist threats feed this imperial temptation. But it is a grand strategic vision that, taken to the extreme, will leave the world more dangerous and divided -- and the United States less secure.