September 26, 2008
Andrew J. Bacevich's new book, THE LIMITS OF POWER: THE END OF AMERICAN EXCEPTIONALISM, is part of the American Empire Project.
The American Empire Project poses questions to American thinkers and writers: "At this moment of unprecedented economic and military strength, the leaders of the United States have embraced imperial ambitions openly. How did we get to this point? And what lies down the road?" Find out more at the American Empire Project Web site, where Andrew J. Bacevich has posted a new entry on the blog: "Illusions of Victory:
How the United States Did Not Reinvent War... But Thought It Did." Below is an excerpt from THE LIMITS OF POWER.
Introduction: War Without Exits
For the United States, the passing of the Cold War yielded neither a "peace dividend" nor anything remotely resembling peace. Instead, what was hailed as a historic victory gave way almost immediately to renewed unrest and conflict. By the time the East- West standoff that some historians had termed the "Long Peace" ended in 1991, the United States had already embarked upon a decade of unprecedented interventionism. In the years that followed, Americans became inured to reports of U.S. forces going into action fighting in Panama and the Persian Gulf, occupying Bosnia and Haiti, lambasting Kosovo, Afghanistan, and Sudan from the air. Yet all of these turned out to be mere preliminaries. In 2001 came the main event, an open- ended global war on terror, soon known in some quarters as the "Long War."
Viewed in retrospect, indications that the Long Peace began almost immediately to give way to conditions antithetical to peace seem blindingly obvious. Prior to 9/11, however, the implications of developments like the 1993 bombing of the World Trade Center or the failure of the U.S. military mission to Somalia that same year were difficult to discern. After all, these small events left unaltered what many took to be the defining reality of the contemporary era: the preeminence of the United States, which seemed beyond challenge.
During the 1990s, at the urging of politicians and pundits, Americans became accustomed to thinking of their country as "the indispensable nation." Indispensability carried with it both responsibilities and prerogatives.
The chief responsibility was to preside over a grand project of political- economic convergence and integration commonly referred to as globalization. In point of fact, however, globalization served as a euphemism for soft, or informal, empire. The collapse of the Soviet Union appeared to offer an opportunity to expand and perpetuate that empire, creating something akin to a global Pax Americana.
The indispensable nation's chief prerogative, self assigned, was to establish and enforce the norms governing the post-Cold War international order. Even in the best of circumstances, imperial policing is a demanding task, requiring not only considerable acumen but also an abundance of determination. The preferred American approach was to rely, whenever possible, on suasion. Yet if pressed, Washington did not hesitate to use force, as its numerous military adventures during the 1990s demonstrated.
What ever means were employed, the management of empire assumed the existence of bountiful reserves of power economic, political, cultural, but above all military. In the immediate aftermath of the Cold War, few questioned that assumption. The status of the United States as "sole superpower" appeared unassailable. Its dominance was unquestioned and unambiguous. This was not hypernationalistic chest- thumping; it was the conventional wisdom.
Recalling how Washington saw the post-Cold War world and America's place in (or atop) it helps us understand why policy makers failed to anticipate, deter, or deflect the terrorist attacks of September 11, 2001. A political elite preoccupied with the governance of empire paid little attention to protecting the United States itself. In practical terms, prior to 9/11 the mission of homeland defense was unassigned.
The institution nominally referred to as the Department of Defense didn't actually do defense; it specialized in power projection. In 2001, the Pentagon was prepared for any number of contingencies in the Balkans or Northeast Asia or the Persian Gulf. It was just not prepared to address threats to the nation's eastern seaboard. Well- trained and equipped U.S. forces stood ready to defend Seoul or Riyadh; Manhattan was left to fend for itself.
Odd as they may seem, these priorities reflected a core principle of national security policy: When it came to defending vital American interests, asserting control over the imperial periphery took precedence over guarding the nation's own perimeter.
After 9/11, the Bush administration affirmed this core principle. Although it cobbled together a new agency to attend to "homeland security," the administration also redoubled its efforts to shore up the Pax Americana and charged the Department of Defense with focusing on this task. This meant using any means necessary suasion where possible, force as required to bring the Islamic world into conformity with prescribed American norms. Rather than soft and consensual, the approach to imperial governance became harder and more coercive.
So, for the United States after 9/11, war became a seemingly permanent condition. President George W. Bush and members of his administration outlined a campaign against terror that they suggested might last decades, if not longer. On the national political scene, few questioned that prospect. In the Pentagon, senior military officers spoke in terms of "generational war," lasting up to a century. Just two weeks after 9/11, Secretary of Defense Donald Rumsfeld was already instructing Americans to "forget about 'exit strategies'; we're looking at a sustained engagement that carries no deadlines."
By and large, Americans were slow to grasp the implications of a global war with no exits and no deadlines. To earlier generations, place names like Iraq and Afghanistan had been synonymous with European rashness the sort of obscure and unwelcoming jurisdictions to which overly ambitious kings and slightly mad adventurers might repair to squabble. For the present generation, it has already become part of the natural order of things that GIs should be exerting themselves at great cost to pacify such far- off domains. For the average American tuning in to the nightly news, reports of U.S. casualties incurred in distant lands now seem hardly more out of the ordinary than reports of partisan shenanigans on Capitol Hill or brush fires raging out of control in Southern California.
How exactly did the end of the Long Peace so quickly yield the Long War? Seeing themselves as a peaceful people, Americans remain wedded to the conviction that the conflicts in which they find themselves embroiled are not of their own making. The global war on terror is no exception. Certain of our own benign intentions, we reflexively assign responsibility for war to others, typically malignant Hitler like figures inexplicably bent on denying us the peace that is our fondest wish.
This book challenges that supposition. It argues that the actions of Saddam Hussein and Osama bin Laden, however malevolent, cannot explain why the United States today finds itself enmeshed in seemingly never- ending conflict. Although critics of U.S. foreign policy, and especially of the Iraq War, have already advanced a variety of alternative explanations variously fingering President Bush, members of his inner circle, jingoistic neoconservatives, greedy oil executives, or even the Israel lobby it also finds those explanations inadequate. Certainly, the president and his advisers, along with neocons always looking for opportunities to flex American military muscle, bear considerable culpability for our current predicament. Yet to charge them with primary responsibility is to credit them with undeserved historical significance. It's the equivalent of blaming Herbert Hoover for the Great Depression or of attributing McCarthyism entirely to the antics of Senator Joseph McCarthy.
The impulses that have landed us in a war of no exits and no deadlines come from within. Foreign policy has, for decades, provided an outward manifestation of American domestic ambitions, urges, and fears. In our own time, it has increasingly become an expression of domestic dysfunction an attempt to manage or defer coming to terms with contradictions besetting the American way of life. Those contradictions have found their ultimate expression in the perpetual state of war afflicting the United States today.
Gauging their implications requires that we acknowledge their source: They reflect the accumulated detritus of freedom, the by- products of our frantic pursuit of life, liberty, and happiness.
Freedom is the altar at which Americans worship, whatever their nominal religious persuasion. "No one sings odes to liberty as the final end of life with greater fervor than Americans," the theologian Reinhold Niebuhr once observed. Yet even as they celebrate freedom, Americans exempt the object of their veneration from critical examination. In our public discourse, freedom is not so much a word or even a value as an incantation, its very mention enough to stifle doubt and terminate all debate.
The Limits of Power will suggest that this heedless worship of freedom has been a mixed blessing. In our pursuit of freedom, we have accrued obligations and piled up debts that we are increasingly hard- pressed to meet. Especially since the 1960s, freedom itself has undercut the nation's ability to fulfill its commitments. We teeter on the edge of insolvency, desperately trying to balance accounts by relying on our presumably invincible armed forces. Yet there, too, having exaggerated our military might, we court bankruptcy.
The United States today finds itself threatened by three interlocking crises. The first of these crises is economic and cultural, the second political, and the third military. All three share this characteristic: They are of our own making. In assessing the predicament that results from these crises, The Limits of Power employs what might be called a Niebuhrean perspective. Writing de cades ago, Reinhold Niebuhr anticipated that predicament with uncanny accuracy and astonishing prescience. As such, perhaps more than any other figure in our recent history, he may help us discern a way out.
As pastor, teacher, activist, theologian, and prolific author, Niebuhr was a towering presence in American intellectual life from the 1930s through the 1960s. Even today, he deserves recognition as the most clear- eyed of American prophets. Niebuhr speaks to us from the past, offering truths of enormous relevance to the present. As prophet, he warned that what he called "our dreams of managing history" born of a peculiar combination of arrogance and narcissism posed a potentially mortal threat to the United States. Today, we ignore that warning at our peril.
Niebuhr entertained few illusions about the nature of man, the possibilities of politics, or the pliability of history. Global economic crisis, total war, genocide, totalitarianism, and nuclear arsenals capable of destroying civilization itself he viewed all of these with an unblinking eye that allowed no room for hypocrisy, hokum, or self- deception. Realism and humility formed the core of his worldview, each infused with a deeply felt Christian sensibility.
Realism in this sense implies an obligation to see the world as it actually is, not as we might like it to be. The enemy of realism is hubris, which in Niebuhr's day, and in our own, finds expression in an outsized confidence in the efficacy of American power as an instrument to reshape the global order.
Humility imposes an obligation of a different sort. It summons Americans to see themselves without blinders. The enemy of humility is sanctimony, which gives rise to the conviction that American values and beliefs are universal and that the nation itself serves providentially assigned purposes. This conviction finds expression in a determination to remake the world in what we imagine to be America's image.
In our own day, realism and humility have proven in short supply. What Niebuhr wrote after World War II proved truer still in the immediate aftermath of the Cold War: Good fortune and a position of apparent preeminence placed the United States "under the most grievous temptations to self- adulation." Americans have given themselves over to those temptations. Hubris and sanctimony have become the paramount expressions of American statecraft. After 9/11, they combined to produce the Bush administration's war of no exits and no deadlines.
President Bush has likened today's war against what he calls "Islamofascism" to America's war with Nazi Germany a great struggle waged on behalf of liberty. That President Bush is waging his global war on terror to preserve American freedom is no doubt the case. Yet that commitment, however well intentioned, begs several larger questions: As actually expressed and experienced, what is freedom today? What is its content? What costs does the exercise of freedom impose? Who pays?
These are fundamental questions, which cannot be dismissed with a rhetorical wave of the hand. Great war time presidents of the past one thinks especially of Abraham Lincoln speaking at Gettysburg have not hesitated to confront such questions directly. That President Bush seems oblivious to their very existence offers one mea sure of his shortcomings as a statesman.
Freedom is not static, nor is it necessarily benign. In practice, freedom constantly evolves and in doing so generates new requirements and abolishes old constraints. The common understanding of freedom that prevailed in December 1941 when the United States entered the war against Imperial Japan and Nazi Germany has long since become obsolete. In some respects, this must be cause for celebration. In others, it might be cause for regret.
The changes have been both qualitative and quantitative. In many respects, Americans are freer today than ever before, with more citizens than ever before enjoying unencumbered access to the promise of American life. Yet especially since the 1960s, the reinterpretation of freedom has had a transformative impact on our society and culture. That transformation has produced a paradoxical legacy. As individuals, our appetites and expectations have grown exponentially. Niebuhr once wrote disapprovingly of Americans, their "culture soft and vulgar, equating joy with happiness and happiness with comfort." Were he alive today, Niebuhr might amend that judgment, with Americans increasingly equating comfort with self- indulgence.
The collective capacity of our domestic political economy to satisfy those appetites has not kept pace with demand. As a result, sustaining our pursuit of life, liberty, and happiness at home requires increasingly that Americans look beyond our borders. Whether the issue at hand is oil, credit, or the availability of cheap consumer goods, we expect the world to accommodate the American way of life.
The resulting sense of entitlement has great implications for foreign policy. Simply put, as the American appetite for freedom has grown, so too has our penchant for empire. The connection between these two tendencies is a causal one. In an earlier age, Americans saw empire as the antithesis of freedom. Today, as illustrated above all by the Bush administration's efforts to dominate the energy- rich Persian Gulf, empire has seemingly become a prerequisite of freedom.
There is a further paradox: The actual exercise of American freedom is no longer conducive to generating the power required to establish and maintain an imperial order. If anything, the reverse is true: Centered on consumption and individual autonomy, the exercise of freedom is contributing to the gradual erosion of our national power. At precisely the moment when the ability to wield power especially military power has become the sine qua non for preserving American freedom, our reserves of power are being depleted.
One sees this, for example, in the way that heightened claims of individual autonomy have eviscerated the concept of citizenship. Yesterday's civic obligations have become today's civic options. What once rated as duties rallying to the country's defense at times of great emergency, for example are now matters of choice. As individuals, Americans never cease to expect more. As members of a community, especially as members of a national community, they choose to contribute less.
Meanwhile, American political leaders especially at the national level have proven unable (or unwilling) to address the disparity between how much we want and what we can afford to pay. Successive administrations, abetted by Congress, have deepened a looming crisis of debt and dependency through unbridled spending. As Vice President Dick Cheney, a self- described conservative, announced when told that cutting taxes might be at odds with invading Iraq, "Deficits don't matter." Politicians of both parties certainly act as if they don't.
Expectations that the world beyond our borders should accommodate the American way of life are hardly new. Since 9/11, however, our demands have become more insistent. In that regard, the neoconservative writer Robert Kagan is surely correct in observing that "America did not change on September 11. It only became more itself." In the aftermath of the attacks on the World Trade Center and the Pentagon, Washington's resolve that nothing interfere with the individual American's pursuit of life, liberty, and happiness only hardened. That resolve found expression in the Bush administration's with- us- or- against- us rhetoric, in its disdain for the United Nations and traditional American allies, in its contempt for international law, and above all in its embrace of preventive war.
When President Bush declared in his second inaugural that the "survival of liberty in our land increasingly depends on the success of liberty in other lands," he was in effect claiming for the United States as freedom's chief agent the prerogative of waging war when and where it sees fit, those wars by definition being fought on freedom's behalf. In this sense, the Long War genuinely qualifies as a war to preserve the American way of life (centered on a specific conception of liberty) and simultaneously as a war to extend the American imperium (centered on dreams of a world remade in America's image), the former widely assumed to require the latter.
Yet, as events have made plain, the United States is ill prepared to wage a global war of no exits and no deadlines. The sole superpower lacks the resources economic, political, and military to support a large- scale, protracted conflict without, at the very least, inflicting severe economic and political damage on itself. American power has limits and is inadequate to the ambitions to which hubris and sanctimony have given rise.
Here is the central paradox of our time: While the defense of American freedom seems to demand that U.S. troops fight in places like Iraq and Afghanistan, the exercise of that freedom at home undermines the nation's capacity to fight. A grand bazaar provides an inadequate basis upon which to erect a vast empire.
Meanwhile, a stubborn insistence on staying the course militarily ends up jeopardizing freedom at home. With Americans, even in war time, refusing to curb their appetites, the Long War aggravates the economic contradictions that continue to produce debt and dependency. Moreover, a state of perpetual national security emergency aggravates the disorders afflicting our political system, allowing the executive branch to accrue ever more authority at the expense of the Congress and disfiguring the Constitution. In this sense, the Long War is both self- defeating and irrational.
Niebuhr once wrote, "One of the most pathetic aspects of human history is that every civilization expresses itself most pretentiously, compounds its partial and universal values most convincingly, and claims immortality for its finite existence at the very moment when the decay which leads to death has already begun." Future generations of historians may well cite Niebuhr's dictum as a concise explanation of the folly that propelled the United States into its Long War.
In an immediate sense, it is the soldier who bears the burden of such folly. U.S. troops in battle dress and body armor, whom Americans profess to admire and support, pay the price for the nation's collective refusal to confront our domestic dysfunction. In many ways, the condition of the military today offers the most urgent expression of that dysfunction. Seven years into its confrontation with radical Islam, the United States finds itself with too much war for too few warriors and with no prospect of producing the additional soldiers needed to close the gap. In effect, Americans now confront a looming military crisis to go along with the economic and political crises that they have labored so earnestly to ignore.
The Iraq War deserves our attention as the clearest manifestation of these three crises, demonstrating the extent to which they are inextricably linked and mutually reinforcing. That war was always unnecessary. Except in the eyes of the deluded and the disingenuous, it has long since become a fool's errand. Of perhaps even greater significance, it is both counterproductive and unsustainable.
Yet ironically Iraq may yet prove to be the source of our salvation. For the United States, the ongoing war makes plain the imperative of putting America's house in order. Iraq has revealed the futility of counting on military power to sustain our habits of profligacy. The day of reckoning approaches. Expending the lives of more American soldiers in hopes of deferring that day is profoundly wrong. History will not judge kindly a people who find nothing amiss in the prospect of endless armed conflict so long as they themselves are spared the effects. Nor will it view with favor an electorate that delivers political power into the hands of leaders unable to envision any alternative to perpetual war.
Rather than insisting that the world accommodate the United States, Americans need to reassert control over their own destiny, ending their condition of dependency and abandoning their imperial delusions. Of perhaps even greater difficulty, the combination of economic, political, and military crisis summons Americans to reexamine exactly what freedom entails. Soldiers cannot accomplish these tasks, nor should we expect politicians to do so. The onus of responsibility falls squarely on citizens.
Copyright 2008 Andrew J. Bacevich. All rights reserved. Reprinted with kind permission from Henry Holt.
Web site published September 26, 2008.