In Praise of Lesser Evils
Can Realism Repair Foreign Policy?
Just a few months into the Trump administration, it still isn’t clear what course the president’s foreign policy will ultimately take. What is clear, however, is that the impulsiveness, combativeness, and recklessness that characterized Donald Trump’s election campaign have survived the transition into the presidency. Since taking office, Trump has continued to challenge accepted norms, break with diplomatic traditions, and respond to perceived slights or provocations with insults or threats of his own. The core of his foreign policy message is that the United States will no longer allow itself to be taken advantage of by friends or foes abroad. After decades of “losing” to other countries, he says he is going to put “America first” and start winning again.
It could be that Trump is simply staking out tough bargaining positions as a tactical matter, the approach to negotiations he has famously called “the art of the deal.” President Richard Nixon long ago developed the “madman theory,” the idea that he could frighten his adversaries into believing he was so volatile he might do something crazy if they failed to meet his demands—a tactic that Trump, whose reputation for volatility is firmly established, seems particularly well suited to employ.
The problem, however, is that negotiations sometimes fail, and adversaries are themselves often brazen and unpredictable. After all, Nixon’s madman theory—designed to force the North Vietnamese to compromise—did not work. Moreover, putting the theory into practice requires the capacity to act judiciously at the appropriate moment, something that Trump, as president, has yet to demonstrate. And whereas a failed business deal allows both parties to walk away unscathed if disappointed, a failed diplomatic gambit can lead to political instability, costly trade disputes, the proliferation of dangerous weapons, or even war. History is littered with examples of leaders who, like Trump, came to power fueled by a sense of national grievance and promises to force adversaries into submission, only to end up mired in a military, diplomatic, or economic conflict they would come to regret.
Will that happen to Trump? Nobody knows. But what if one could? What if, like Ebenezer Scrooge in Charles Dickens’ A Christmas Carol, Trump could meet a ghost from the future offering a vision of where his policies might lead by the end of his term before he decides on them at its start?
The problem is that negotiations sometimes fail, and adversaries are themselves often brazen and unpredictable.
It is possible that such a ghost would show him a version of the future in which his administration, after a turbulent start, moderated over time, proved more conventional than predicted, and even had some success in negotiating, as he has pledged, “better deals.” But there is a real risk that events will turn out far worse—a future in which Trump’s erratic style and confrontational policies destroy an already fragile world order and lead to open conflict—in the most likely cases, with Iran, China, or North Korea.
In the narratives that follow, everything described as having taken place before mid-March 2017 actually happened. That which takes place after that date is—at least at the time of publication—fiction.
It is September 2017, and the White House is consumed with a debate about options for escalation with Iran. Another dozen Americans have been killed in an Iranian-sponsored attack on U.S. soldiers in Iraq, and the president is frustrated that previous air strikes in Iran failed to deter this sort of deadly aggression. He is tempted to retaliate much more aggressively this time but also knows that doing so risks involving U.S. troops even further in what is already a costly and unpopular war—the very sort of “mess” he had promised to avoid. Looking back, he now sees that this conflict probably became inevitable when he named his foreign policy team and first started to implement his new approach toward Iran.
Well before his election, of course, Trump had criticized the Iran nuclear agreement as “the worst deal ever negotiated” and promised to put a stop to Iran’s “aggressive push to destabilize and dominate” the Middle East. Some of his top advisers were deeply hostile to Iran and known to favor a more confrontational approach, including his first national security adviser, Michael Flynn; his CIA director, Mike Pompeo; his chief strategist, Steve Bannon; and his defense secretary, James Mattis. Some of Mattis’ former military colleagues said he had a 30-year-long obsession with Iran, noting, as one marine told Politico, “It’s almost like he wants to get even with them.”
During his campaign and first months in office, Trump whipped up anti-Iranian feelings and consistently misled the public about what the nuclear deal entailed. He falsely insisted that the United States “received absolutely nothing” from it, that it permitted Iran to eventually get the bomb, and that it gave $150 billion to Iran (apparently referring to a provision of the deal that allowed Iran to access some $50 billion of its own money that had been frozen in foreign accounts). Critics claimed that the rhetoric was reminiscent of the Bush administration’s exaggerations of Iraq’s weapons of mass destruction programs in the run-up to the Iraq war. In February 2017, in response to an Iranian ballistic missile test, Flynn brashly declared that he was “officially putting Iran on notice.” Two days later, the administration announced a range of new sanctions on 25 Iranian individuals and companies involved in the ballistic missile program.
Trump whipped up anti-Iranian feelings and consistently misled the public about what the nuclear deal entailed.
Perhaps just as predictably, Iran dismissed the administration’s tough talk. It continued to test its missiles, insisting that neither the nuclear deal nor UN Security Council resolutions prohibited it from doing so. Ali Khamenei, Iran’s supreme leader, even taunted Trump for his controversial immigration and travel ban, thanking him on Twitter for revealing the “true face” of the United States. Tehran also continued its policy of shipping arms to the Houthi rebels in Yemen and providing military assistance to Bashar al-Assad’s regime in Syria, neither of which proved particularly costly to the Iranian treasury. U.S. efforts to get Russia to limit Iran’s role in Syria were ignored, adding to the White House’s frustration.
To the surprise of many, growing U.S. pressure on Iran did not immediately lead to the collapse of the nuclear deal. As soon as he took office, Trump ended the Obama administration’s practice of encouraging banks and international companies to ensure that Iran benefited economically from the deal. And he expressed support for congressional plans to sanction additional Iranian entities for terrorism or human rights violations, as top officials insisted was permitted by the nuclear deal. Iran complained that these “backdoor” sanctions would violate the agreement yet took no action. By March 2017, U.S. officials were concluding internally—and some of the administration’s supporters began to gloat—that Trump’s tougher approach was succeeding.
Different behavior on either side could have prevented relations from deteriorating. But ultimately, the deal could not be sustained. In the early summer of 2017, real signs of trouble started to emerge. Under pressure from hardline factions within Iran, which had their own interest in spiking the deal, Tehran had continued its provocative behavior, including the unjustified detention of dual U.S.-Iranian citizens, throughout the spring. In June, after completing a review of his Iran policy, Trump put Iran’s Islamic Revolutionary Guard Corps on the State Department’s list of foreign terrorist organizations and announced that continued sanctions relief would be contingent on Iran’s release of all U.S. detainees and a return to negotiations to address the nuclear deal’s “flaws.” Instead of submitting to these demands, Iran responded with defiance. Its new president, a hard-liner who had defeated Hassan Rouhani in the May 2017 election, declared that in the face of U.S. “noncompliance,” Iran would resume certain prohibited nuclear activities, including testing advanced centrifuges and expanding its stockpile of low-enriched uranium. Washington was suddenly abuzz with talk of the need for a new effort to choke off Iran economically or even a preventive military strike.
The Trump administration had been confident that other countries would back its tougher approach and had warned allies and adversaries alike that they must choose between doing business with Iran and doing business with the United States. But the pressure did not work as planned. China, France, Germany, India, Japan, Russia, South Korea, and the United Kingdom all said that the deal had been working before the United States sought to renegotiate it, and they blamed Washington for precipitating the crisis. The EU even passed legislation making it illegal for European companies to cooperate with U.S. secondary sanctions. Trump fumed and vowed they would pay for their betrayal.
As the United States feuded with its closest partners, tensions with Iran escalated further. Frustrated by continued Iranian support for the Houthi rebels in Yemen, the Pentagon stepped up patrols in the Strait of Hormuz and loosened the rules of engagement for U.S. forces. When an Iranian patrol boat aggressively approached a U.S. cruiser, in circumstances that are still disputed, the U.S. ship responded with deadly defensive force, killing 25 Iranian sailors.
The outrage in Iran bolstered support for the regime and led to widespread calls for revenge, which the country’s new president could not resist. Less than a week later, the Iranian-backed militia group Kataib Hezbollah killed six U.S. soldiers in Iraq. With the American public demanding retaliation, some called for diplomacy, recalling how, in January 2016, U.S. Secretary of State John Kerry and Iranian Foreign Minister Mohammad Javad Zarif spoke directly to defuse the situation after U.S. sailors drifted into Iranian waters. This time, the EU offered to mediate the crisis.
But the administration wanted nothing to do with what it considered the Obama administration’s humiliating appeasement of Iran. Instead, to teach Iran a lesson, Trump authorized a cruise missile strike on a known Islamic Revolutionary Guard Corps intelligence headquarters, destroying three buildings and killing a dozen officers and an unknown number of civilians.
Trump’s advisers predicted that Iran would back down, but as nationalist fervor grew in Iran, Tehran escalated the conflict, calculating that the American public had no desire to spend more blood or treasure in the Middle East. Kataib Hezbollah and other Shiite militias in Iraq, some directed by Iran and others acting independently, launched further attacks on U.S. personnel. Tehran forced the weak government in Baghdad to demand the Americans’ departure from Iraq, which would deal a huge blow to the U.S.-led campaign against the Islamic State, or ISIS.
As Washington reimposed the sanctions that had been suspended by the nuclear deal, Iran abandoned the limits on its enrichment of uranium, expelled the UN monitors, and announced that it was no longer bound by the agreement. With the CIA concluding that Iran was now back on the path to a nuclear weapons capability, Trump’s top advisers briefed the president in the Oval Office. Some counseled restraint, but others, led by Bannon and Mattis, insisted that the only credible option was to destroy the Iranian nuclear infrastructure with a massive preventive strike, while reinforcing the U.S. presence in Iraq to deal with the likely Iranian retaliation. Pompeo, a longstanding advocate of regime change in Iran, argued that such a strike might also lead to a popular uprising and the ousting of the supreme leader, an encouraging notion that Trump himself had heard think-tank experts endorse on television.
Once again, nervous allies stepped in and tried to broker a diplomatic solution. They tried to put the 2015 nuclear deal back in place, arguing that it now looked attractive by comparison. But it was too late. U.S. strikes on Iran’s nuclear facilities in Arak, Fordow, Isfahan, Natanz, and Parchin led to retaliatory counterstrikes against U.S. forces in Iraq, U.S. retaliation against targets in Iran, terrorist attacks against Americans in Europe and the Middle East, and vows from Tehran to rebuild its nuclear program bigger and better than before. The president who had vowed to stop squandering American lives and resources in the Middle East now found himself wondering how he had ended up at war there.
It is October 2017, and experts are calling it the most dangerous confrontation between nuclear powers since the Cuban missile crisis. After a U.S.-Chinese trade war escalated well beyond what either side had predicted, a clash in the South China Sea has led to casualties on both sides and heavy exchanges of fire between the U.S. and Chinese navies. There are rumors that China has placed its nuclear forces on high alert. The conflict that so many long feared has begun.
Of the many foreign targets of Trump’s withering criticism during the campaign and the early months of his presidency, China topped the list. As a candidate, Trump repeatedly accused the country of destroying American jobs and stealing U.S. secrets. “We can’t continue to allow China to rape our country,” he said. Bannon, who early in the administration set up a shadow national security council in the White House, had even predicted conflict with China. “We’re going to war in the South China Sea in five to ten years,” he said in March 2016. “There’s no doubt about that.”
Not long after the election, Trump took a congratulatory phone call from Taiwanese President Tsai Ing-wen, breaking with decades of diplomatic tradition and suggesting a potential change in the United States’ “one China” policy. It wasn’t clear whether the move was inadvertent or deliberate, but either way, Trump defended his approach and insisted that the policy was up for negotiation unless China made concessions on trade. “Did China ask us if it was OK to devalue their currency (making it hard for our companies to compete), heavily tax our products going into their country (the U.S. doesn’t tax them) or to build a massive military complex in the middle of the South China Sea?” he tweeted. “I don’t think so!” In February 2017, after a call with Chinese President Xi Jinping, Trump announced that the United States would honor the “one China” policy after all. Asia experts were relieved, but it must have infuriated the president that so many thought he had backed down. “Trump lost his first fight with Xi and he will be looked at as a paper tiger,” Shi Yinhong, a professor at Renmin University of China, told The New York Times.
There were other early warning signs of the clashes to come. At his confirmation hearings for secretary of state, Rex Tillerson appeared to draw a new redline in the South China Sea, noting that China’s access to islands there “is not going to be allowed.” Some dismissed the statement as overblown rhetoric, but Beijing did not. The state-run China Daily warned that any attempt to enforce such a policy could lead to a “devastating confrontation,” and the Global Times said it could lead to “large-scale war.”
Then there were the disputes about trade. To head the new White House National Trade Council, Trump nominated Peter Navarro, the author of The Coming China Wars, Death by China, and other provocative books that describe U.S.-Chinese relations in zero-sum terms and argue for increased U.S. tariffs and trade sanctions. Like Bannon, Navarro regularly invoked the specter of military conflict with Beijing, and he argued that tougher economic measures were necessary not only to rectify the U.S.-Chinese trade balance but also to weaken China’s military power, which he claimed would inevitably be used against the United States. The early rhetoric worried many observers, but they took solace in the idea that neither side could afford a confrontation.
It was the decisions that followed that made war all but inevitable. In June 2017, when North Korea tested yet another long-range missile, which brought it closer to having the ability to strike the United States, Trump demanded that China check its small ally and announced “serious consequences” if it refused. China had no interest in promoting North Korea’s nuclear capacity, but it worried that completely isolating Pyongyang, as Trump was demanding, could cause the regime to collapse—sending millions of poor North Korean refugees streaming into China and leaving behind a united Korea ruled by Seoul, armed with North Korea’s nuclear weapons, and allied with Washington. China agreed to another UN Security Council statement condemning North Korea and extended a suspension of coal imports from the country but refused to take further action. Angry about Trump’s incessant criticism and confrontation over trade, Xi saw the United States as a greater danger to China than North Korea was and said he refused to be bullied by Washington.
At the same time, the U.S. current account deficit with China had swelled, driven in part by the growing U.S. budget deficits that resulted from Trump’s massive tax cuts. That, combined with Chinese intransigence over North Korea, convinced the White House that it was time to get tough. Outside experts, along with Trump’s own secretary of state and secretary of the treasury, cautioned against the risks of a dangerous escalation, but the president dismissed their hand-wringing and said that the days of letting China take advantage of Americans were over. In July, the administration formally branded China a “currency manipulator” (despite evidence that it had actually been spending its currency reserves to uphold the value of the yuan) and imposed a 45 percent tariff on Chinese imports. To the delight of the crowd at a campaign-style rally in Florida, Trump announced that these new measures would remain in place until China boosted the value of its currency, bought more U.S. goods, and imposed tougher sanctions on North Korea.
The president’s more hawkish advisers assured him that China’s response would prove limited, given its dependence on exports and its massive holdings of U.S. Treasury bonds. But they underestimated the intense nationalism that the U.S. actions had stoked. Xi had to show strength, and he hit back.
All Trump wanted to do was get a better deal from China.
Within days, Xi announced that China was taking the United States to the World Trade Organization over the import tariff (a case he felt certain China would win) and imposed a 45 percent countertariff on U.S. imports. The Chinese believed that the reciprocal tariffs would hurt the United States more than China (since Americans bought far more Chinese goods than the other way around) and knew that the resulting inflation—especially for goods such as clothing, shoes, toys, and electronics—would hurt Trump’s blue-collar constituency. Even more important, they felt they were more willing to make sacrifices than the Americans were.
Xi also instructed China’s central bank to sell $100 billion in U.S. Treasury bonds, a move that immediately drove up U.S. interest rates and knocked 800 points off the Dow Jones industrial average in a single day. That China started using some of the cash resulting from the sales to buy large stakes in major U.S. companies at depressed prices only fueled a nationalist reaction in the United States. Trump tapped into it, calling for a new law to block Chinese investment.
With personal insults flying back and forth across the Pacific, Trump announced that if China did not start treating the United States fairly, Washington might reconsider the “one China” policy after all. Encouraged by Bannon, who argued privately that it was better to have the inevitable confrontation with China while the United States still enjoyed military superiority, Trump speculated publicly about inviting the president of Taiwan to the White House and selling new antimissile systems and submarines to the island.
China responded that any change in U.S. policy toward Taiwan would be met with an “overwhelming response,” which experts interpreted to mean at a minimum cutting off trade with Taiwan (which sends 30 percent of its exports to China) and at a maximum military strikes against targets on the island. With over one billion Chinese on the mainland passionately committed to the country’s nominal unity, few doubted that Beijing meant what it said. On October 1, China’s normally tepid National Day celebrations turned into a frightening display of anti-Americanism.
It was in this environment that an incident in the South China Sea led to the escalation so many had feared. The details remain murky, but it was triggered when a U.S. surveillance ship operating in disputed waters in heavy fog accidentally rammed a Chinese trawler that was harassing it. In the confusion that ensued, a People’s Liberation Army Navy frigate fired on the unarmed U.S. ship, a U.S. destroyer sank the Chinese frigate, and a Chinese torpedo struck and badly damaged the destroyer, killing three Americans.
A U.S. aircraft carrier task force is being rushed to the region, and China has deployed additional attack submarines there and begun aggressive overflights and patrols throughout the South China Sea. Tillerson is seeking to reach his Chinese counterpart, but officials in Beijing wonder whether he even speaks for the administration and fear Trump will accept nothing short of victory. Leaked U.S. intelligence estimates suggest that a large-scale conflict could quickly lead to hundreds of thousands of casualties, draw in neighboring states, and destroy trillions of dollars’ worth of economic output. But with nationalism raging in both countries, neither capital sees a way to back down. All Trump wanted to do was get a better deal from China.
It is December 2018, and North Korea has just launched a heavy artillery barrage against targets in Seoul, killing thousands, or perhaps tens of thousands; it is too soon to say. U.S. and South Korean forces—now unified under U.S. command, according to the provisions of the Mutual Defense Treaty—have fired artillery and rockets at North Korea’s military positions and launched air strikes against its advanced air defense network. From a bunker somewhere near Pyongyang, the country’s erratic dictator, Kim Jong Un, has issued a statement promising to “burn Seoul and Tokyo to the ground”—a reference to North Korea’s stockpile of nuclear and chemical weapons—if the “imperialist” forces do not immediately cease their attacks.
Even Trump’s harshest critics acknowledge that the United States had no good choices in North Korea.
Washington had expected some sort of a North Korean response when it preemptively struck the test launch of an intercontinental ballistic missile capable of delivering a nuclear warhead to the continental United States, fulfilling Trump’s pledge to prevent Pyongyang from acquiring that ability. But few thought North Korea would go so far as to risk its own destruction by attacking South Korea. Now, Trump must decide whether to continue with the war and risk nuclear escalation—or accept what will be seen as a humiliating retreat. Some of his advisers are urging him to quickly finish the job, whereas others warn that doing so would cost the lives of too many of the 28,000 U.S. soldiers stationed on the peninsula, to say nothing of the ten million residents of Seoul. Assembled in the White House Situation Room, Trump and his aides ponder their terrible options.
How did it come to this? Even Trump’s harshest critics acknowledge that the United States had no good choices in North Korea. For more than 20 years, the paranoid, isolated regime in Pyongyang had developed its nuclear and missile capabilities and seemed impervious to incentives and disincentives alike. The so-called Agreed Framework, a 1994 deal to halt North Korea’s nuclear program, fell apart in 2003 when Pyongyang was caught violating it, leading the George W. Bush administration to abandon the deal in favor of tougher sanctions. Multiple rounds of talks since then produced little progress. By 2017, experts estimated that North Korea possessed more than a dozen nuclear warheads and was stockpiling the material for more. They also thought North Korea had missiles capable of delivering those warheads to targets throughout Asia and was testing missiles that could give it the capacity to strike the West Coast of the United States by 2023.
Early in the administration, numerous outside experts and former senior officials urged Trump to make North Korea a top priority. Accepting that total dismantlement of the country’s nuclear and missile programs was not a realistic nearterm goal, most called for negotiations that would offer a package of economic incentives and security assurances in exchange for a halt to further testing and development. A critical component, they argued, would be outreach to China, the only country that might be able to influence North Korea.
But the administration preferred a more confrontational approach. Even before Trump took office, when Kim blustered about developing the capacity to strike the United States with a nuclear weapon, Trump responded on Twitter: “It won’t happen!” On February 12, 2017, North Korea fired a test missile 310 miles into the Sea of Japan at the very moment Trump was meeting with Japanese Prime Minister Shinzo Abe at his Mar-a-Lago estate, in Florida. The next morning, Stephen Miller, a senior adviser to Trump, announced that the United States would soon be sending a signal to North Korea in the form of a major military buildup that would show “unquestioned military strength beyond anything anyone can imagine.” Later that month, Trump announced plans for a $54 billion increase in U.S. defense spending for 2018, with corresponding cuts in the budget for diplomacy. And in March 2017, Tillerson traveled to Asia and declared that “the political and diplomatic efforts of the past 20 years” had failed and that a “new approach” was needed.
In the ensuing months, critics urged the administration to accompany its military buildup with regional diplomacy, but Trump chose otherwise. He made clear that U.S. foreign policy had changed. Unlike what his predecessor had done with Iran, he said, he was not going to reward bad behavior. Instead, the administration announced in the summer of 2018 that North Korea was “officially on notice.” Although the White House agreed with critics that the best way to pressure North Korea was through China, it proved impossible to cooperate with Beijing while erecting tariffs and attacking it for “raping” the United States economically.
Thus did the problem grow during the administration’s first two years. North Korea continued to test missiles and develop fissile material. It occasionally incited South Korea, launching shells across the demilitarized zone and provoking some near misses at sea. The war of words between Pyongyang and Washington also escalated—advisers could not get the president to bite his tongue in response to Kim’s outrageous taunts—and Trump repeated in even more colorful language his Twitter warning that he would not allow Pyongyang to test a nuclear-capable missile that could reach the United States.
When the intelligence community picked up signs that Pyongyang was about to do so, the National Security Council met, and the chairman of the Joint Chiefs of Staff briefed the president on his options. He could try to shoot down the test missile in flight, but shooting carried a high risk of missing, and even a successful intercept might provoke a military response. He could do nothing, but that would mean losing face and emboldening North Korea. Or he could destroy the test missile on its launch pad with a barrage of cruise missiles, blocking Pyongyang’s path to a nuclear deterrent, enforcing his redline, and sending a clear message to the rest of the world. Sources present at the meeting reported that when the president chose the third option, he said, “We have to start winning wars again.”
These frightening futures are far from inevitable. Indeed, for all the early bluster and promises of a dramatic break with the past, U.S. foreign policy may well turn out to be not as revolutionary or reckless as many fear. Trump has already demonstrated his ability to reverse course without compunction on a multitude of issues, from abortion to the Iraq war, and sound advice from some of his more seasoned advisers could moderate his potential for rash behavior.
On the other hand, given what we have seen so far of the president’s temperament, decision-making style, and foreign policy, these visions of what might lie ahead are hardly implausible: foreign policy disasters do happen. Imagine if a ghost from the future could have given world leaders in 1914 a glimpse of the cataclysm their policies would produce. Or if in 1965, U.S. President Lyndon Johnson could have seen what escalation in Vietnam would lead to a decade later. Or if in 2003, U.S. President George W. Bush could have been shown a preview of the results of the invasion of Iraq. In each case, unwise decisions, a flawed process, and wishful thinking did lead to a catastrophe that could have been, and often was, predicted in advance.
Maybe Trump is right that a massive military buildup, a reputation for unpredictability, a high-stakes negotiating style, and a refusal to compromise will convince other countries to make concessions that will make America safe, prosperous, and great again. But then again, maybe he’s wrong.
CORRECTION APPENDED (March 28, 2017)
An earlier version of this article overstated the link between growing U.S. budget deficits and the value of the dollar when discussing U.S. tensions with China. In fact, although growing budget deficits would likely lead to a growing current account deficit, they would not necessarily drive up the value of the dollar.