The failure of the Carter administration’s foreign policy is now clear to everyone except its architects, and even they must entertain private doubts, from time to time, about a policy whose crowning achievement has been to lay the groundwork for a transfer of the Panama Canal from the United States to a swaggering Latin dictator of Castroite bent. In the thirty-odd months since the inauguration of Jimmy Carter as President there has occurred a dramatic Soviet military buildup, matched by the stagnation of American armed forces, and a dramatic extension of Soviet influence in the Horn of Africa, Afghanistan, Southern Africa, and the Caribbean, matched by a declining American position in all these areas. The U.S. has never tried so hard and failed so utterly to make and keep friends in the Third World.
As if this were not bad enough, in the current year the United States has suffered two other major blows–in Iran and Nicaragua–of large and strategic significance. In each country, the Carter administration not only failed to prevent the undesired outcome, it actively collaborated in the replacement of moderate autocrats friendly to American interests with less friendly autocrats of extremist persuasion. It is too soon to be certain about what kind of regime will ultimately emerge in either Iran or Nicaragua, but accumulating evidence suggests that things are as likely to get worse as to get better in both countries. The Sandinistas in Nicaragua appear to be as skillful in consolidating power as the Ayatollah Khomeini is inept, and leaders of both revolutions display an intolerance and arrogance that do not bode well for the peaceful sharing of power or the establishment of constitutional governments, especially since those leaders have made clear that they have no intention of seeking either.
It is at least possible that the SALT debate may stimulate new scrutiny of the nation’s strategic position and defense policy, but there are no signs that anyone is giving serious attention to this nation’s role in Iranian and Nicaraguan developments–despite clear warnings that the U.S. is confronted with similar situations and options in El Salvador, Guatemala, Morocco, Zaire, and elsewhere. Yet no problem of American foreign policy is more urgent than that of formulating a morally and strategically acceptable, and politically realistic, program for dealing with non-democratic governments who are threatened by Soviet-sponsored subversion. In the absence of such a policy, we can expect that the same reflexes that guided Washington in Iran and Nicaragua will be permitted to determine American actions from Korea to Mexico–with the same disastrous effects on the U.S. strategic position. (That the administration has not called its policies in Iran and Nicaragua a failure–and probably does not consider them such–complicates the problem without changing its nature.)
There were, of course, significant differences in the relations between the United States and each of these countries during the past two or three decades. Oil, size, and proximity to the Soviet Union gave Iran greater economic and strategic import than any Central American "republic," and closer relations were cultivated with the Shah, his counselors, and family than with President Somoza, his advisers, and family. Relations with the Shah were probably also enhanced by our approval of his manifest determination to modernize Iran regardless of the effects of modernization on traditional social and cultural patterns (including those which enhanced his own authority and legitimacy). And, of course, the Shah was much better looking and altogether more dashing than Somoza; his private life was much more romantic, more interesting to the media, popular and otherwise. Therefore, more Americans were more aware of the Shah than of the equally tenacious Somoza.
But even though Iran was rich, blessed with a product the U.S. and its allies needed badly, and led by a handsome king, while Nicaragua was poor and rocked along under a long-tenure president of less striking aspect, there were many similarities between the two countries and our relations with them. Both these small nations were led by men who had not been selected by free elections, who recognized no duty to submit them selves to searching tests of popular acceptability. Both did tolerate limited apposition, including opposition newspapers and political parties, but both were also confronted by radical, violent opponents bent on social and political revolution. Both rulers, therefore, sometimes invoked martial law to arrest, imprison, exile, and occasionally, it was alleged, torture their opponents. Both relied for public order on police forces whose personnel were said to be too harsh, too arbitrary, and too powerful. Each had what the American press termed "private armies," which is to say, armies pledging their allegiance to the ruler rather than the "constitution" or the "nation" or some other impersonal entity.
In short, both Somoza and the Shah were, in central ways, traditional rulers of semi-traditional societies. Although the Shah very badly wanted to create a technologically modern and powerful nation and Somoza tried hard to introduce mod- ern agricultural methods, neither sought to reform his society in the light of any abstract idea of social justice or political virtue. Neither attempted to alter significantly the distribution of goods, status, or power (though the democratization of education and skills that accompanied modernization in Iran did result in some redistribution of money and power there).
Both Somoza and the Shah enjoyed long tenure, large personal fortunes (much of which were no doubt appropriated from general revenues), and good relations with the United States. The Shah and Somoza were not only anti-Communist, they were positively friendly to the U.S., sending their sons and others to be educated in our universities, voting with us in the United Nations, and regularly supporting American interests and positions even when these entailed personal and political cost. The embassies of both governments were active in Washington social life, and were frequented by powerful Americans who occupied major roles in this nation’s diplomatic, military, and political life. And the Shah and Somoza themselves were both welcome in Washington, and had many American friends.
Though each of the rulers was from time to time criticized by American officials for violating civil and human rights, the fact that the people of Iran and Nicaragua only intermittently enjoyed the rights accorded to citizens in the Western democracies did not prevent successive administrations from granting–with the necessary approval of successive Congresses–both military and economic’ aid. In the case of both Iran and Nicaragua, tangible and intangible tokens of U.S. support continued until the regime became the object of a major attack by forces explicitly hostile to the United States.
But once an attack was launched by opponents bent on destruction, everything changed. The rise of serious, violent opposition in Iran and Nicaragua set in motion a succession of events which bore a suggestive resemblance to one another and a suggestive similarity to our behavior in China before the fall of Chiang Kaishek, in Cuba before the triumph of Castro, in certain crucial periods of the Vietnamese war, and, more recently, in Angola. In each of these countries, the American effort to impose liberalization and democratization on a government confronted with violent internal opposition not only failed, but actually assisted the coming to power of new regimes in which ordinary people enjoy fewer freedoms and less personal security than under the previous autocracy–regimes, moreover, hostile to American interests and policies.
The pattern is familiar enough: an established autocracy with a record of friendship with the U.S. is attacked by insurgents, some of whose leaders have long ties to the Communist movement, and most of whose arms are of Soviet, Chinese, or Czechoslovak origin. The "Marxist" presence is ignored and/or minimized by American officials and by the elite media on the ground that U.S. sup- port for the dictator gives the rebels little choice but to seek aid "elsewhere." Violence spreads and American officials wonder aloud about the viability of a regime that "lacks the support of its own people." The absence of an opposition party is deplored and civil-rights violations are reviewed. Liberal columnists question the morality of continuing aid to a "rightist dictatorship" and provide assurances concerning the essential moderation of some insurgent leaders who "hope" for some sign that the U.S. will remember its own revolutionary origins. Requests for help from the beleaguered autocrat go unheeded, and the argument is increasingly voiced that ties should be established with rebel leaders "before it is too late." The President, delaying U.S. aid, appoints a special emissary who confirms the deterioration of the government position and its diminished capacity to control the situation and recommends various measures for "strengthening" and "liberalizing" the regime, all of which involve diluting its power.
The emissary’s recommendations are presented in the context of a growing clamor for American disengagement on grounds that continued involvement confirms our status as an agent of imperialism, racism, and reaction; is inconsistent with support for human rights; alienates us from the "forces of democracy"; and threatens to put the U.S. once more on the side of history’s "losers." This chorus is supplemented daily by interviews with returning missionaries and "reasonable" rebels.
As the situation worsens, the President assures the world that the U.S. desires only that the "people choose their own form of government"; he blocks delivery of all arms to the government and undertakes negotiations to establish a "broadly based" coalition headed by a "moderate" critic of the regime who, once elevated, will move quickly to seek a "political" settlement to the conflict. Should the incumbent autocrat prove resistant to American demands that he step aside, he will be readily overwhelmed by the military strength of his opponents, whose patrons will have continued to provide sophisticated arms and advisers at the same time the U.S. cuts off military sales. Should the incumbent be so demoralized as to agree to yield power, he will be replaced by a "moderate" of American selection. Only after the insurgents have refused the proffered political solution and anarchy has spread throughout the nation will it be noticed that the new head of government has no significant following, no experience at governing, and no talent for leadership. By then, military commanders, no longer bound by loyalty to the chief of state, will depose the faltering "moderate" in favor of a fanatic of their own choosing.
In either case, the U.S. will have been led by its own misunderstanding of the situation to assist actively in deposing an erstwhile friend and ally and installing a government hostile to American interests and policies in the world. At best we will have lost access to friendly territory. At worst the Soviets will have gained a new base. And everywhere our friends will have noted that the U.S. cannot be counted on in times of difficulty and our enemies will have observed that American support provides no security against the forward march of history.
No particular crisis conforms exactly with the sequence of events described above; there are always variations on the theme. In Iran, for example, the Carter administration–and the President himself–offered the ruler support for a longer time, though by December 1978 the President was acknowledging that he did not know if the Shah would survive, adding that the U.S. would not get "directly involved." Neither did the U.S. ever call publicly for the Shah’s resignation. However, the President’s special emissary, George Ball, "reportedly concluded that the Shah cannot hope to maintain total power and must now bargain with a moderate segment of the opposition . . ." and was "known to have discussed various alternatives that would effectively ease the Shah out of total power" (Washington Post, December 15, 1978). There is, furthermore, not much doubt that the U.S. assisted the Shah’s departure and helped arrange the succession of Bakhtiar. In Iran, the Carter administration’s commitment to nonintervention proved stronger than strategic considerations or national pride. What the rest of the world regarded as a stinging American defeat, the U.S. government saw as a matter to be settled by Iranians. "We personally prefer that the Shah maintain a major role in the government," the President acknowledged, "but that is a decision for the Iranian people to make."
Events in Nicaragua also departed from the scenario presented above both because the Cuban and Soviet roles were clearer and because U.S. officials were more intensely and publicly working against Somoza. After the Somoza regime had defeated the first wave of Sandinista violence, the U.S. ceased aid, imposed sanctions, and took other steps which undermined the status and the credibility of the government in domestic and foreign affairs. Between the murder of ABC correspondent Bill Stewart by a National Guardsman in early June and the Sandinista victory in late July, the U.S. State Department assigned a new ambassador who refused to submit his credentials to Somoza even though Somoza was still chief of state, and called for replacing the government with a "broadly based provisional government that would include representatives of Sandinista guerillas." Americans were assured by Assistant Secretary of State Viron Vaky that "Nicaraguans and our democratic friends in Latin America have no intention of seeing Nicaragua turned into a second Cuba," even though the State Department knew that the top Sandinista leaders had close personal ties and were in continuing contact with Havana, and, more specifically, that a Cuban secret-police official, Julian Lopez, was frequently present in the Sandinista headquarters and that Cuban military advisers were present in Sandinista ranks.
In a manner uncharacteristic of the Carter administration, which generally seems willing to negotiate anything with anyone anywhere, the U.S. government adopted an oddly uncompromising posture in dealing with Somoza. "No end to the crisis is possible," said Vaky, "that does not start with the departure of Somoza from power and the end of his regime. No negotiation, mediation, or compromise can be achieved any longer with a Somoza government. The solution can only begin with a sharp break from the past." Trying hard, we not only banned all American arms sales to the government of Nicaragua but pressured Israel, Guatemala, and others to do likewise–all in the name of insuring a "democratic" outcome. Finally, as the Sandinista leaders consolidated control over weapons and communications, banned opposition, and took off for Cuba, President Carter warned us against attributing this "evolutionary change" to "Cuban machinations" and assured the world that the U.S. desired only to "let the people of Nicaragua choose their own form of government."
Yet despite all the variations, the Carter administration brought to the crises in Iran and Nicaragua several common assumptions each of which played a major role in hastening the victory of even more repressive dictatorships than had been in place before. These were, first, the belief that there existed at the moment of crisis a democratic alternative to the incumbent government: second, the belief that the continuation of the status quo was not possible; third, the belief that any change, including the establishment of a government headed by self-styled Marxist revolutionaries, was preferable to the present government. Each of these beliefs was (and is) widely shared in the liberal community generally. Not one of them can withstand close scrutiny.
Although most governments in the world are, as they always have been, autocracies of one kind or another, no idea holds greater sway in the mind of educated Americans than the belief that it is possible to democratize governments, anytime, anywhere, under any circumstances. This notion is belied by an enormous body of evidence based on the experience of dozens of countries which have attempted with more or less (usually less) success to move from autocratic to democratic government. Many of the wisest political scientists of this and previous centuries agree that democratic institutions are especially difficult to establish and maintain-because they make heavy demands on all portions of a population and because they depend on complex social, cultural, and economic conditions.
Two or three decades ago, when Marxism enjoyed its greatest prestige among American intellectuals, it was the economic prerequisites of democracy that were emphasized by social scientists. Democracy, they argued, could function only in relatively rich societies with an advanced economy, a substantial middle class, and a literate population, but it could be expected to emerge more or less automatically whenever these conditions prevailed. Today, this picture seems grossly over-simplified. While it surely helps to have an economy strong enough to provide decent levels of well-being for all, and "open" enough to provide mobility and encourage achievement, a pluralistic society and the right kind of political culture–and time–are even more essential.
In his essay on Representative Government, John Stuart Mill identified three fundamental conditions which the Carter administration would do well to ponder. These are: "One, that the people should be willing to receive it [representative government]; two, that they should be willing and able to do what is necessary for its preservation; three, that they should be willing and able to fulfill the duties and discharge the functions which it imposes on them."
Fulfilling the duties and discharging the functions of representative government make heavy demands on leaders and citizens, demands for participation and restraint, for consensus and compromise. It is not necessary for all citizens to be avidly interested in politics or well-informed about public affairs–although far more widespread interest and mobilization are needed than in autocracies. What is necessary is that a substantial number of citizens think of themselves as participants in society’s decision-making and not simply as subjects bound by its laws. Moreover, leaders of all major sectors of the society must agree to pursue power only by legal means, must eschew (at least in principle) violence, theft, and fraud, and must accept defeat when necessary. They must also be skilled at finding and creating common ground among diverse points of view and interests, and correlatively willing to compromise on all but the most basic values.
In addition to an appropriate political culture, democratic government requires institutions strong enough to channel and contain conflict. Voluntary, non-official institutions are needed to articulate and aggregate diverse interests and opinions present in the society. Otherwise, the formal governmental institutions will not be able to translate popular demands into public policy.
In the relatively few places where they exist, democratic governments have come into being slowly, after extended prior experience with more limited forms of participation during which leaders have reluctantly grown accustomed to tolerating dissent and opposition, opponents have accepted the notion that they may defeat but not destroy incumbents, and people have become aware of government’s effects on their lives and of their own possible effects on government. Decades, if not centuries, are normally required for people to acquire the necessary disciplines and habits. In Britain, the road from the Magna Carta to the Act of Settlement, to the great Reform Bills of 1832, 1867, and 1885, took seven centuries to traverse. American history gives no better grounds for believing that democracy comes easily, quickly, or for the asking. A war of independence, an unsuccessful constitution, a civil war, a long process of gradual enfranchisement marked our progress toward constitutional democratic government. The French path was still more difficult. Terror, dictatorship, monarchy, instability, and incompetence followed on the revolution that was to usher in a millennium of brotherhood. Only in the 20th century did the democratic principle finally gain wide acceptance in France and not until after World War II were the principles of order and democracy, popular sovereignty and authority, finally reconciled in institutions strong enough to contain conflicting currents of public opinion.
Although there is no instance of a revolutionary "socialist" or Communist society being democratized, right-wing autocracies do sometimes evolve into democracies–given time, propitious economic, social, and political circumstances, talented leaders, and a strong indigenous demand for representative government. Something of the kind is in progress on the Iberian peninsula and the first steps have been taken in Brazil. Something similar could conceivably have also occurred in Iran and Nicaragua if contestation and participation had been more gradually expanded.
But it seems clear that the architects of contemporary American foreign policy have little idea of how to go about encouraging the liberalization of an autocracy. In neither Nicaragua nor Iran did they realize that the only likely result of an effort to replace an incumbent autocrat with one of his moderate critics or a "broad-based coalition" would be to sap the foundations of the existing regime without moving the nation any closer to democracy. Yet this outcome was entirely predictable. Authority in traditional autocracies is transmitted through personal relations: from the ruler to his close associates (relatives, household members, personal friends) and from them to people to whom the associates are related by personal ties resembling their own relation to the ruler. The fabric off authority unravels quickly when the power and status of the man at the top are undermined or eliminated. The longer the autocrat has held power, and the more pervasive his personal influence, the more dependent a nation’s institutions will be on him. Without him, the organized life of the society will collapse, like an arch from which the keystone has been removed. The blend of qualities that bound the Iranian army to the Shah or the national guard to Somoza is typical of the relationships-personal, hierarchical, non-transferable–that, support a traditional autocracy. The speed with which armies collapse, bureaucracies abdicate, and social structures dissolve once the autocrat is removed frequently surprises American policymakers and journalists accustomed to public institutions based on universalistic norms rather than particularistic relations.
The failure to understand these relations is one source of the failure of U.S. policy in this and previous administrations. There are others. In Iran and Nicaragua (as previously in Vietnam, Cuba, and China) Washington overestimated the political diversity of the opposition–especially the strength of "moderates" and "democrats" in the opposition movement; underestimated the strength and intransigence of radicals in the movement; and misestimated the nature and extent of American influence on both the government and the opposition.
Confusion concerning the character of the opposition, especially its intransigence and will to power, leads regularly to downplaying the amount of force required to counteract its violence. In neither Iran nor Nicaragua did the U.S. adequately appreciate the government’s problem in maintaining order in a society confronted with an ideologically extreme opposition. Yet the presence of such groups was well known. The State Department’s 1977 report on human rights described an Iran confronted
with a small number of extreme rightist and leftist terrorists operating within the country. There is evidence that they have received substantial foreign support and training … [and] have been responsible for the murder of Iranian government officials and Americans….
The same report characterized Somoza’s opponents in the following terms:
A guerrilla organization known as the Sandinista National Liberation Front (FSLN) seeks the violent overthrow of the government, and has received limited support from Cuba. The FSLN carried out an operation in Managua in December 1974, killing four people, taking several officials hostage … since then, it continues to challenge civil authority in certain isolated regions.
In 1978, the State Department’s report said that Sandinista violence was continuing–after the state of siege had been lifted by the Somoza government.
When U.S. policymakers and large portions of the liberal press interpret insurgency as evidence of widespread popular discontent and a will to democracy, the scene is set for disaster. For if civil strife reflects a popular demand for democracy, it follows that a "liberalized" government will be more acceptable to "public opinion."
Thus, in the hope of strengthening a government, U.S. policymakers are led, mistake after mistake, to impose measures almost certain to weaken its authority. Hurried efforts to force complex and unfamiliar political practices on societies lacking the requisite political culture, tradition, and social structures not only fail to produce desired outcomes; if they are undertaken at a time when the traditional regime is under attack, they actually facilitate the job of the insurgents.
Vietnam presumably taught us that the United States could not serve as the world’s policeman; it should also have taught us the dangers of trying to be the world’s midwife to democracy when the birth is scheduled to take place under conditions of guerrilla war.
If the administration’s actions in Iran and Nicaragua reflect the pervasive and mistaken assumption that one can easily locate and impose democratic alternatives to incumbent autocracies, they also reflect the equally pervasive and equally flawed belief that changeper se in such autocracies is inevitable, desirable, and in the American interest. It is this belief which induces the Carter administration to participate actively in the toppling of non-Communist autocracies while remaining passive in the face of Communist expansion.
At the time the Carter administration came into office it was widely reported that the President had assembled a team who shared a new approach to foreign policy and a new conception of the national interest. The principal elements of this new approach were said to be two: the conviction that the cold war was over, and the conviction that, this being the case, the U.S. should give priority to North-South problems and help less developed nations achieve their own destiny.
More is involved in these changes than originally meets the eye. For, unlikely as it may seem, the foreign policy of the Carter administration is guided by a relatively full-blown philosophy of history which includes, as philosophies of history always do, a theory of social change, or, as it is currently called, a doctrine of modernization. Like most other philosophies of history that have appeared in the West since the 18th century, the Carter administration’s doctrine predicts progress (in the form of modernization for all societies) and a happy ending (in the form of a world community of developed, autonomous nations).
The administration’s approach to foreign affairs was clearly foreshadowed in Zbigniew Brzezinski’s 1970 book on the U.S. role in the "technetronic era," Between Two Ages. In that book, Brzezinski showed that he had the imagination to look beyond the cold war to a brave new world of global politics and interdependence. To deal with that new world a new approach was said to be "evolving," which Brzezinski designated "rational humanism." In the new approach, the "preoccupation" with "national supremacy" would give way to "global" perspectives, and international problems would be viewed as "human issues" rather than as "political confrontations." The traditional intellectual framework for dealing with foreign policy would have to be scrapped:
Today, the old framework of international politics … with their spheres of influence, military alliances between nation states, the fiction of sovereignty, doctrinal conflicts arising from 19th-century crisis–is clearly no longer compatible with reality.
Only the "delayed development" of the Soviet Union, "an archaic religious community that experiences modernity existentially but not quite yet normatively," prevented wider realization of the fact that the end of ideology was already here. For the U.S., Brzezinski recommended "a great deal of patience," a more detached attitude toward world revolutionary processes, and a less anxious preoccupation with the Soviet Union. Instead of en- gaging in ancient diplomatic pastimes, we should make "a broader effort to contain the global tendencies toward chaos," while assisting the processes of change that will move the world toward the "community of developed nations."
The central concern of Brzezinski’s book, as of the Carter administration’s foreign policy, is with the modernization of the Third World. From the beginning, the administration has manifested a special, intense interest in the problems of the so-called Third World. But instead of viewing international developments in terms of the American national interest, as national interest is historically conceived, the architects of administration policy have viewed them in terms of a contemporary version of the same idea of progress that has traumatized Western imaginations since the Enlightenment.
In its current form, the concept of modernization involves more than industrialization, more than "political development" (whatever that is). It is used instead to designate ". . . the process through which a traditional or pre-technological society passes as it is transformed into a society characterized by machine technology, rational and secular attitudes, and highly differentiated social structures." Condorcet, Comte, Hegel, Marx, and Weber are all present in this view of history as the working out of the idea of modernity.
The crucial elements of the modernization concept have been clearly explicated by Samuel P. Huntington (who, despite a period at the National Security Council, was assuredly not the architect of the administration’s policy). The modernization paradigm, Huntington has observed, postulates an ongoing process of change: complex, because it involves all dimensions of human life in society; systemic, because its elements interact in predictable, necessary ways; global, because all societies will, necessarily, pass through the transition from traditional to modern; lengthy, because time is required to modernize economic and social organization, character, and culture; phased, because each modernizing society must pass through essentially the same stages; homogenizing, because it tends toward the convergence and interdependence of societies; irreversible, because the direction of change is "given" in the relation of the elements of the process; progressive, in the sense that it is desirable, and in the long run provides significant benefits to the affiliated people.
Although the modernization paradigm has proved a sometimes useful as well as influential tool in social science, it has become the object of searching critiques that have challenged one after another of its central assumptions. Its shortcomings as an analytical tool pale, however, when compared to its inadequacies as a framework for thinking about foreign policy, where its principal effects are to encourage the view that events are manifestations of deep historical forces which cannot be controlled and that the best any government can do is to serve as a "midwife" to history, helping events to move where they are already headed.
This perspective on contemporary events is optimistic in the sense that it foresees continuing human progress; deterministic in the sense that it perceives events as fixed by processes over which persons and policies can have but little influence; moralistic in the sense that it perceives history and U.S. policy as having moral ends; cosmopolitan in the sense that it attempts to view the world not from the perspective of American interests or intentions but from the perspective of the modernizing nation with both revolution and morality, and U.S. policy with all three.
The idea that it is "forces" rather than people which shape events recurs each time an administration spokesman articulates or explains policy. The President, for example, assured us in February of this year;
The revolution in Iran is a product of deep social, political, religious, and economic factors growing out of the history of Iran itself.
And of Asia he said:
At this moment there is turmoil or change in various countries from one end of the Indian Ocean to the other; some turmoil as in Indo- china is the product of age-old enmities, inflamed by rivalries for influence by conflicting forces. Stability in some other countries is being shaken by the process of modernization, the search for national significance, or the desire to fulfill legitimate human hopes and human aspirations.
Harold Saunders, Assistant Secretary for Near Eastern and South Asian Affairs, commenting on "instability" in Iran and the Horn of Africa, states:
We, of course, recognize that fundamental changes are taking place across this area of western Asia and northeastern Africa-economic modernization, social change, a revival of religion, resurgent nationalism, demands for broader popular participation in the political process. These changes are generated by forces within each country.
Or here is Anthony Lake, chief of the State Department’s Policy Planning staff, on South Africa:
Change will come in South Africa. The welfare of the people there, and American interests, will be profoundly affected by the way in which it comes. The question is whether it will be peaceful or not.
Brzezinski makes the point still clearer. Speaking as chief of the National Security Council, he has assured us that the struggles for power in Asia and Africa are really only incidents along the route to modernization:
… all the developing countries in the arc from northeast Asia to southern Africa continue to search for viable forms of government capable of managing the process of modernization.
No matter that the invasions, coups, civil wars, and political struggles of less violent kinds that one sees all around do not seem to be incidents in a global personnel search for someone to manage the modernization process. Neither Brzezinski nor anyone else seems bothered by the fact that the political participants in that arc from northeast Asia to southern Africa do not know that they are "searching for viable forms of government capable of managing the process of modernization." The motives and intentions of real persons are no more relevant to the modernization paradigm than they are to the Marxist view of history. Viewed from this level of abstraction, it is the "forces" rather than the people that count.
So what if the "deep historical forces" at work in such diverse places as Iran, the Horn of Africa, Southeast Asia, Central America, and the United Nations look a lot like Russians or Cubans? Having moved past what the President calls our "inordinate fear of Communism," identified by him with the Cold War, we should, we are told, now be capable of distinguishing Soviet and Cuban "machinations," which anyway exist mainly in the minds of cold warriors and others guilty of oversimplifying the world, from evolutionary changes, which seem to be the only kind that actually occur.
What can a U.S. President faced with such complicated, inexorable, impersonal processes do? The answer, offered again and again by the President and his top officials, is, not much. Since events are not caused by human decisions, they cannot be stopped or altered by them. Brzezinski, for example, has said: "We recognize that the world is changing under the influence of forces no government can control…." And Cyrus Vance has cautioned: "The fact is that we can no more stop change than Canute could still the waters."
The Carter administration’s essentially deterministic and apolitical view of contemporary events discourages an active American response and encourages passivity. The American inability to influence events in Iran became the President’s theme song:
Those who argue that the U.S. should or could intervene directly to thwart [the revolution in Iran] are wrong about the realities of Iran…. We have encouraged to the limited extent of our own ability the public support for the Bakhtiar government…. How long [the Shah] will be out of Iran, we have no way to determine. Future events and his own desires will determine that…. It is impossible for anyone to anticipate all future political events. . . . Even if we had been able to anticipate events that were going to take place in Iran or in other countries, obviously our ability to determine those events is very limited [emphasis added].
Vance made the same point:
In Iran our policy throughout the current crisis has been based on the fact that only Iranians can resolve the fundamental political issues which they now confront.
Where once upon a time an American President might have sent Marines to assure the protection of American strategic interests, there is no room for force in this world of progress and self-determination. Force, the President told us at Notre Dame, does not work; that is the lesson he extracted from Vietnam. It offers only "superficial" solutions. Concerning Iran, he said:
Certainly we have no desire or ability to intrude massive forces into Iran or any other country to determine the outcome of domestic political issues. This is something that we have no intention of ever doing in another country. We’ve tried this once in Vietnam. It didn’t work, as you well know.
There was nothing unique about Iran. In Nicaragua, the climate and language were different but the "historical forces" and the U.S. response were the same. Military intervention was out of the question. Assistant Secretary of State Viron Vaky described as "unthinkable" the "use of U.S. military power to intervene in the internal affairs of another American republic." Vance provided parallel assurances for Africa, asserting that we would not try to match Cuban and Soviet activities there.
What is the function of foreign policy under these conditions? It is to understand the processes of change and then, like Marxists, to align ourselves with history, hoping to contribute a bit of stability along the way. And this, administration spokesmen assure us, is precisely what we are doing. The Carter administration has defined the U.S. national interest in the Third World as identical with the putative end of the modernization process. Vance put this with characteristic candor in a recent statement when he explained that U.S. policy vis-a-vis the Third World is "grounded in the conviction that we best serve our interest there by supporting the efforts of developing nations to advance their economic well-being and preserve their political independence." Our "commitment to the promotion of constructive change worldwide" (Brzezinski’s words) has been vouchsafed in every conceivable context.
But there is a problem. The conceivable contexts turn out to be mainly those in which non-Communist autocracies are under pressure from revolutionary guerrillas. Since Moscow is the aggressive, expansionist power today, it is more often than not insurgents, encouraged and armed by the Soviet Union, who challenge the status quo. The American commitment to "change" in the abstract ends up by aligning us tacitly with Soviet clients and irresponsible extremists like the Ayatollah Khomeini or, in the end, Yasir Arafat.
So far, assisting "change" has not led the Carter administration to undertake the destabilization of a Communist country. The principles of self-determination and nonintervention are thus both selectively applied. We seem to accept the status quo in Communist nations (in the name of ‘diversity" and national autonomy), but not in nations ruled by "right-wing" dictators or white oligarchies. Concerning China, for example, Brzezinski has observed: "We recognize that the PRC and we have different ideologies and economic and political systems. . . . We harbor neither the hope nor the desire that through extensive contacts with China we can remake that nation into the American image. Indeed, we accept our differences." Of Southeast Asia, the President noted in February:
Our interest is to promote peace and the withdrawal of outside forces and not to become embroiled in the conflict among Asian nations. And, in general, our interest is to promote the health and the development of individual societies, not to a pattern cut exactly like ours in the United States but tailored rather to the hopes and the needs and desires of the peoples involved.
But the administration’s position shifts sharply when South Africa is discussed. For example, Anthony Lake asserted in late 1978:
… We have indicated to South Africa the fact that if it does not make significant progress toward racial equality, its relations with the international community, including the United States, are bound to deteriorate.
Over the years, we have tried through a series of progressive steps to demonstrate that the U.S. cannot and will not be associated with the continued practice of apartheid.
As to Nicaragua, Hodding Carter III said in February 1979:
The unwillingness of the Nicaraguan government to accept the [OAS] group’s proposal, the resulting prospects for renewal and polarization, and the human-rights situation in Nicaragua … unavoidably affect the kind of relationships we can maintain with that government….
And Carter commented on Latin American autocracies:
My government will not be deterred from protecting human rights, including economic and social rights, in whatever ways we can. We prefer to take actions that are positive, but where nations persist in serious violations of human rights, we will continue to demonstrate that there are costs to the flagrant disregard of international standards.
Something very odd is going on here. How does an administration that desires to let people work out their own destinies get involved in determined efforts at reform in South Africa, Zaire, Nicaragua, El Salvador, and elsewhere? How can an administration committed to nonintervention in Cambodia and Vietnam announce that it "will not be deterred" from righting wrongs in South Africa? What should be made of an administration that sees the U.S. interest as identical with economic modernization and political independence and yet heedlessly endangers the political independence of Taiwan, a country whose success in economic modernization and egalitarian distribution of wealth is unequaled in Asia? The contrast is as striking as that between the administration’s frenzied speed in recognizing the new dictatorship in Nicaragua and its continuing refusal to recognize the elected government of Zimbabwe Rhodesia, or its refusal to maintain any presence in Zimbabwe Rhodesia while staffing a U.S. Information Office in Cuba. Not only are there ideology and a double standard at work here, the ideology neither fits nor explains reality, and the double standard involves the administration in the wholesale contradiction of its own principles.
Inconsistencies are a familiar part of politics in most societies. Usually, however, governments behave hypocritically when their principles conflict with the national interest. What makes the inconsistencies of the Carter administration noteworthy are, first, the administration’s moralism, which renders it especially vulnerable to charges of hypocrisy; and, second, the administration’s predilection for policies that violate the strategic and economic interests of the United States. The administration’s conception of national interest borders on doublethink: it finds friendly powers to be guilty representatives of the status quo and views the triumph of unfriendly groups as beneficial to America’s "true interests."
This logic is quite obviously reinforced by the prejudices and preferences of many administration officials. Traditional autocracies are, in general and in their very nature, deeply offensive to modern American sensibilities. The notion that public affairs should be ordered on the basis of kinship, friendship, and other personal relations rather than on the basis of objective "rational" standards violates our conception of justice and efficiency. The preference for stability rather than change is also disturbing to Americans whose whole national experience rests on the principles of change, growth, and progress. The extremes of wealth and poverty characteristic of traditional societies also offend us, the more so since the poor are usually very poor and bound to their squalor by a hereditary allocation of role. Moreover, the relative lack of concern of rich, comfortable rulers for the poverty, ignorance, and disease of "their" people is likely to be interpreted by Americans as moral dereliction pure and simple. The truth is that Americans can hardly bear such societies and such rulers. Confronted with them, our vaunted cultural relativism evaporates and we become as censorious as Cotton Mather confronting sin in New England.
But if the politics of traditional and semi-traditional autocracy is nearly antithetical to our own–at both the symbolic and the operational level–the rhetoric of progressive revolutionaries sounds much better to us; their symbols are much more acceptable. One reason that some modern Americans prefer "socialist" to traditional autocracies is that the former have embraced modernity and have adopted modern modes and perspectives, including an instrumental, manipulative, functional orientation toward most social, cultural, and personal affairs; a profession of universalistic norms; an emphasis on reason, science, education, and progress; a deemphasis of the sacred; and "rational," bureaucratic organizations. They speak our language.
Because socialism of the Soviet/Chinese/Cuban variety is an ideology rooted in a version of the same values that sparked the Enlightenment and the democratic revolutions of the 18th century; because it is modern and not traditional; because it postulates goals that appeal to Christian as well as to secular values (brotherhood of man, elimination of power as a mode of human relations), it is highly congenial to many Americans at the symbolic level. Marxist revolutionaries speak the language of a hopeful future while traditional autocrats speak the language of an unattractive past. Because left-wing revolutionaries invoke the symbols and values of democracy–emphasizing egalitarianism rather than hierarchy and privilege, liberty rather than order, activity rather than passivity–they are again and again accepted as partisans in the cause of freedom and democracy.
Nowhere is the affinity of liberalism, Christianity, and Marxist socialism more apparent than among liberals who are "duped" time after time into supporting "liberators" who turn out to be totalitarians, and among Left-leaning clerics whose attraction to a secular style of "redemptive community" is stronger than their outrage at the hostility of socialist regimes to religion. In Jimmy Carter–egalitarian, optimist, liberal, Christian–the tendency to be repelled by frankly non-democratic rulers and hierarchical societies is almost as strong as the tendency to be attracted to the idea of popular revolution, liberation, and progress. Carter is, par excellence, the kind of liberal most likely to confound revolution with idealism, change with progress, optimism with virtue.
Where concern about "socialist encirclement," Soviet expansion, and traditional conceptions of the national interest inoculated his predecessors against such easy equations, Carter’s doctrine of national interest and modernization encourages support for all change that takes place in the name of "the people," regardless of its "superficial" Marxist or anti-American content. Any lingering doubt about whether the U.S. should, in case of conflict, support a "tested friend" such as the Shah or a friendly power such as Zimbabwe Rhodesia against an opponent who despises us is resolved by reference to our "true," our "long-range" interests.
Stephen Rosenfeld of the Washington Post described the commitment of the Carter administration to this sort of "progressive liberalism":
The Carter administration came to power, after all, committed precisely to reducing the centrality of strategic competition with Moscow in American foreign policy, and to extending the United States’ association with what it was prepared to accept as legitimate wave-of-the-future popular movements around the world-first of all with the victorious movement in Vietnam.
… Indochina was supposed to be the state on which Americans could demonstrate their "post-Vietnam" intent to come to terms with the progressive popular element that Kissinger, the villain, had denied.
In other words, the Carter administration, Rosenfeld tells us, came to power resolved not to assess international developments in the light of "cold-war" perspectives but to accept at face value the claim of revolutionary groups to represent "popular" aspirations and "progressive" forces–regardless of the ties of these revolutionaries to the Soviet Union. To this end, overtures were made looking to the "normalization" of relations with Vietnam, Cuba, and the Chinese People’s Republic, and steps were taken to cool relations with South Korea, South Africa, Nicaragua, the Philippines, and others. These moves followed naturally from the conviction that the U.S. had, as our enemies said, been on the wrong side of history in supporting the status quo and opposing revolution.
One might have thought that this perspective would have been undermined by events in Southeast Asia since the triumph of "progressive" forces there over the "agents of reaction." To cite Rosenfeld again:
In this adminstration’s time, Vietnam has been transformed for much of American public opinion, from a country wronged by the U.S. to one revealing a brutal essence of its own.
This has been a quiet but major trauma to the Carter people (as to all liberals) scarring their self-confidence and their claim on public trust alike.
Presumably, however, the barbarity of the "progressive" governments in Cambodia and Vietnam has been less traumatic for the President and his chief advisers than for Rosenfeld, since there is little evidence of changed predispositions at crucial levels of the White House and the State Depart- ment. The President continues to behave as before–not like a man who abhors autocrats but like one who abhors only right-wing autocrats.
In fact, high officials in the Carter administration understand better than they seem to the aggressive, expansionist character of contemporary Soviet behavior in Africa, the Middle East, Southeast Asia, the Indian Ocean, Central America, and the Caribbean. But although the Soviet/Cuban role in Grenada, Nicaragua, and El Salvador (plus the transfer of MIG-23′s to Cuba) had already prompted resumption of surveillance of Cuba (which in turn confirmed the presence of a Soviet combat brigade), the President’s eagerness not to "heat up" the climate of public opinion remains stronger than his commitment to speak the truth to the American people. His statement on Nicaragua clearly reflects these priorities:
It’s a mistake for Americans to assume or to claim that every time an evolutionary change takes place in this hemisphere that somehow it’s a result of secret, massive Cuban intervention. The fact in Nicaragua is that the Somoza regime lost the confidence of the people. To bring about an orderly transition there, our effort was to let the people of Nicaragua ultimately make the decision on who would be their leader–what form of government they should have.
This statement, which presumably represents the President’s best thinking on the matter, is illuminating. Carter’s effort to dismiss concern about military events in this specific country as a manifestation of a national proclivity for seeing "Cuban machinations" under every bed constitutes a shocking effort to falsify reality. There was no question in Nicaragua of "evolutionary change" or of attributing such change to Castro’s agents. There was only a question about the appropriate U.S. response to a military struggle in a country whose location gives it strategic importance out of proportion to its size or strength.
But that is not all. The rest of the President’s statement graphically illustrates the blinding power of ideology on his interpretation of events. When he says that "the Somoza regime, lost the confidence of the people," the President implies that the regime had previously rested on the confidence of "the people," but that the situation had now changed. In fact, the Somoza regime had never rested on popular will (but instead on manipulation, force, and habit), and was not being ousted by it. It was instead succumbing to arms and soldiers. However, the assumption that the armed conflict of Sandinistas and Somozistas was the military equivalent of a national referendum enabled the President to imagine that it could be, and should be, settled by the people of Nicaragua. For this pious sentiment even to seem true the President would have had to be unaware that insurgents were receiving a great many arms from other non-Nicaraguans; and that the U.S. had played a significant role in disarming the Somoza regime.
The President’s mistakes and distortions are all fashionable ones. His assumptions are those of people who want badly to be on the progressive side in conflicts between "rightist" autocracy and "leftist" challenges, and to prefer the latter, almost regardless of the probable consequences.
To be sure, neither the President, nor Vance, nor Brzezinski desires the proliferation of Soviet-supported regimes. Each has asserted his disapproval of Soviet "interference" in the modernization process. But each, nevertheless, remains willing to "destabilize" friendly or neutral autocracies without any assurance that they will not be replaced by reactionary totalitarian theocracies, totalitarian Soviet client states, or worst of all, by murderous fanatics of the Pol Pot variety.
The foreign policy of the Carter administration fails not for lack of good intentions but for lack of realism about the nature of traditional versus revolutionary autocracies and the relation of each to the American national interest. Only intellectual fashion and the tyranny of Right/Left thinking prevent intelligent men of good will from perceiving thefacts that traditional authoritarian governments are less repressive than revolutionary autocracies, that they are more susceptible of liberalization, and that they are more compatible with U.S. interests. The evidence on all these points is clear enough.
Surely it is now beyond reasonable doubt that the present governments of Vietnam, Cambodia, Laos are much more repressive than those of the despised previous rulers; that the government of the People’s Republic of China is more repressive than that of Taiwan, that North Korea is more repressive than South Korea, and so forth. This is the most important lesson of Vietnam and Cambodia. It is not new but it is a gruesome reminder of harsh facts.
From time to time a truly bestial ruler can come to power in either type of autocracy–Idi Amin, Papa Doc Duvalier, Joseph Stalin, Pol Pot are examples–but neither type regularly produces such moral monsters (though democracy regularly prevents their accession to power). There are, however, systemic differences between traditional and revolutionary autocracies that have a predictable effect on their degree of repressiveness. Generally speaking, traditional autocrats tolerate social inequities, brutality, and poverty while revolutionary autocracies create them.
Traditional autocrats leave in place existing allocations of wealth, power, status, and other re- sources which in most traditional societies favor an affluent few and maintain masses in poverty. But they worship traditional gods and observe traditional taboos. They do not disturb the habitual rhythms of work and leisure, habitual places of residence, habitual patterns of family and personal relations. Because the miseries of traditional life are familiar, they are bearable to ordinary people who, growing up in the society, learn to cope, as children born to untouchables in India acquire the skills and attitudes necessary for survival in the miserable roles they are destined to fill. Such societies create no refugees.
Precisely the opposite is true of revolutionary Communist regimes. They create refugees by the million because they claim jurisdiction over the whole life of the society and make demands for change that so violate internalized values and habits that inhabitants flee by the tens of thousands in the remarkable expectation that their attitudes, values, and goals will "fit" better in a foreign country than in their native land.
The former deputy chairman of Vietnam’s National Assembly from 1976 to his defection early in August 1979, Hoang Van Hoan, described recently the impact of Vietnam’s ongoing revolution on that country’s more than one million Chinese inhabitants:
They have been expelled from places they have lived in for generations. They have been dispossessed of virtually all possessions–their lands, their houses. They have been driven into areas called new economic zones, but they have not been given any aid.
How can they eke out a living in such conditions reclaiming new land? They gradually die for a number of reasons–diseases, the hard life. They also die of humiliation.
It is not only the Chinese who have suffered in Southeast Asia since the "liberation," and it is not only in Vietnam that the Chinese suffer. By the end of 1978 more than six million refugees had fled countries ruled by Marxist governments. In spite of walls, fences, guns, and sharks, the steady stream of people fleeing revolutionary utopias continues..
There is a damning, contrast between the number of refugees created by Marxist regimes and those created by other autocracies: more than a million Cubans have left their homeland since Castro’s rise (one refugee for every nine inhabitants) as compared to about 35,000 each from Argentina, Brazil, and Chile. In Africa more than five times as many refugees have fled Guinea and Guinea Bissau as have left Zimbabwe Rhodesia, suggesting that civil war and racial discrimination are easier for most people to bear than Marxist-style liberation.
Moreover, the history of this century provides no grounds for expecting that radical totalitarian regimes will transform themselves. At the moment there is a far greater likelihood of progressive liberalization and democratization in the governments of Brazil, Argentina, and Chile than in the government of Cuba; in Taiwan than in the People’s Republic of China; in South Korea than in North Korea; in Zaire than in Angola; and so forth.
Since many traditional autocracies permit limited contestation and participation, it is not impossible that U.S. policy could effectively encourage this process of liberalization and democratization, provided that the effort is not made at a time when the incumbent government is fighting for its life against violent adversaries, and that proposed reforms are aimed at producing gradual change rather than perfect democracy overnight. To accomplish this, policymakers are needed who understand how actual democracies have actually come into being. History is a better guide than good intentions.
A realistic policy which aims at protecting our own interest and assisting the capacities for self-determination of less developed nations will need to face the unpleasant fact that, if victorious, violent insurgency headed by Marxist revolutionaries is unlikely to lead to anything but totalitarian tyranny. Armed intellectuals citing Marx and supported by Soviet-bloc arms and advisers will almost surely not turn out to be agrarian reformers, or simple nationalists, or democratic socialists. However incomprehensible it may be to some, Marxist revolutionaries are not contemporary embodiments of the Americans who wrote the Declaration of Independence, and they will not be content with establishing a broad-based coalition in which they have only one voice among many.
It may not always be easy to distinguish between democratic and totalitarian agents of change, but it is also not too difficult. Authentic democratic revolutionaries aim at securing governments based on the consent of the governed and believe that ordinary men are capable of using freedom, knowing their own interest, choosing rulers. They do not, like the current leaders in Nicaragua, assume that it will be necessary to postpone elections for three to five years during which time they can "cure" the false consciousness of almost everyone.
If, moreover, revolutionary leaders describe the United States as the scourge of the 20th century, the enemy of freedom-loving people, the perpetrator of imperialism, racism, colonialism, genocide, war, then they are not authentic democrats or, to put it mildly, friends. Groups which define themselves as enemies should be treated as enemies. The United States is not in fact a racist, colonial power, it does not practice genocide, it does not threaten world peace with expansionist activities. In the last decade especially we have practiced remarkable forbearance everywhere and undertaken the "unilateral restraints on defense spending" recommended by Brzezinski as appropriate for the technetronic era. We have also moved further, faster, in eliminating domestic racism than any multiracial society in the world or in history.
For these reasons and more, a posture of continuous self-abasement and apology vis-a-vis the Third World is neither morally necessary nor politically appropriate. No more is it necessary or appropriate to support vocal enemies of the United States because they invoke the rhetoric of popular liberation. It is not even necessary or appropriate for our leaders to forswear unilaterally the use of military force to counter military force. Liberal idealism need not be identical with masochism, and need not be incompatible with the defense of freedom and the national interest.
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