The Carter Syndrome
Barack Obama might yet revolutionize America's foreign policy. But if he can't reconcile his inner Thomas Jefferson with his inner Woodrow Wilson, the 44th president could end up like No. 39.
Neither a cold-blooded realist nor a bleeding-heart idealist, Barack Obama has a split personality when it comes to foreign policy. So do most U.S. presidents, of course, and the ideas that inspire this one have a long history at the core of the American political tradition. In the past, such ideas have served the country well. But the conflicting impulses influencing how this young leader thinks about the world threaten to tear his presidency apart -- and, in the worst scenario, turn him into a new Jimmy Carter.
Obama's long deliberation over the war in Afghanistan is a case study in presidential schizophrenia: After 94 days of internal discussion and debate, he ended up splitting the difference -- rushing in more troops as his generals wanted, while calling for their departure to begin in July 2011 as his liberal base demanded. It was a sober compromise that suggests a man struggling to reconcile his worldview with the weight of inherited problems. Like many of his predecessors, Obama is not only buffeted by strong political headwinds, but also pulled in opposing directions by two of the major schools of thought that have guided American foreign-policy debates since colonial times.In general, U.S. presidents see the world through the eyes of four giants: Alexander Hamilton, Woodrow Wilson, Thomas Jefferson, and Andrew Jackson. Hamiltonians share the first Treasury secretary's belief that a strong national government and a strong military should pursue a realist global policy and that the government can and should promote economic development and the interests of American business at home and abroad. Wilsonians agree with Hamiltonians on the need for a global foreign policy, but see the promotion of democracy and human rights as the core elements of American grand strategy. Jeffersonians dissent from this globalist consensus; they want the United States to minimize its commitments and, as much as possible, dismantle the national-security state. Jacksonians are today's Fox News watchers. They are populists suspicious of Hamiltonian business links, Wilsonian do-gooding, and Jeffersonian weakness.
Moderate Republicans tend to be Hamiltonians. Move right toward the Sarah Palin range of the party and the Jacksonian influence grows. Centrist Democrats tend to be interventionist-minded Wilsonians, while on the left and the dovish side they are increasingly Jeffersonian, more interested in improving American democracy at home than exporting it abroad.
Some presidents build coalitions; others stay close to one favorite school. As the Cold War ended, George H.W. Bush's administration steered a largely Hamiltonian course, and many of those Hamiltonians later dissented from his son's war in Iraq. Bill Clinton's administration in the 1990s mixed Hamiltonian and Wilsonian tendencies. This dichotomy resulted in bitter administration infighting when those ideologies came into conflict -- over humanitarian interventions in the Balkans and Rwanda, for example, and again over the relative weight to be given to human rights and trade in U.S. relations with China.
More recently, George W. Bush's presidency was defined by an effort to bring Jacksonians and Wilsonians into a coalition; the political failure of Bush's ambitious approach created the context that made the Obama presidency possible.Sept. 11, 2001, was one of those rare and electrifying moments that waken Jacksonian America and focus its attention on the international arena. The U.S. homeland was not only under attack, it was under attack by an international conspiracy of terrorists who engaged in what Jacksonians consider dishonorable warfare: targeting civilians. Jacksonian attitudes toward war were shaped by generations of conflict with Native American peoples across the United States and before that by centuries of border conflict in England, Scotland, and Ireland. Against "honorable" enemies who observe the laws of war, one is obliged to fight fair; those who disregard the rules must be hunted down and killed, regardless of technical niceties.
When the United States is attacked, Jacksonians demand action; they leave strategy to the national leadership. But Bush's tough-minded Jacksonian response to 9/11 -- invading Afghanistan and toppling the Taliban government that gave safe haven to the plotters -- gave way to what appeared to be Wilsonian meddling in Iraq. Originally, Bush's argument for overthrowing Saddam Hussein rested on two charges that resonated powerfully with Jacksonians: Hussein was building weapons of mass destruction, and he had close links with al Qaeda. But the war dragged on, and as Hussein's fabled hoards of WMD failed to appear and the links between Iraq and al Qaeda failed to emerge, Bush shifted to a Wilsonian rationale. This was no longer a war of defense against a pending threat or a war of retaliation; it was a war to establish democracy, first in Iraq and then throughout the region. Nation-building and democracy-spreading became the cornerstones of the administration's Middle East policy.
Bush could not have developed a strategy better calculated to dissolve his political support at home. Jacksonians historically have little sympathy for expensive and risky democracy-promoting ventures abroad. They generally opposed the humanitarian interventions in Somalia, Bosnia, and Haiti during the Clinton years; they did not and do not think American young people should die and American treasure should be scattered to spread democracy or protect human rights overseas. Paradoxically, Jacksonians also opposed "cut and run" options to end the war in Iraq even as they lost faith in both Bush and the Republican Party; they don't like wars for democracy, but they also don't want to see the United States lose once troops and the national honor have been committed. In Bush's last year in office, a standoff ensued: The Democratic congressional majorities were powerless to force change in his Iraq strategy and Bush remained free to increase U.S. troop levels, yet the war itself and Bush's rationale for it remained deeply unpopular.
Enter Obama. An early and consistent opponent of the Iraq war, Obama was able to bring together the elements of the Democratic Party's foreign-policy base who were most profoundly opposed to (and horrified by) Bush's policy. Obama made opposition to the Iraq war a centerpiece of his eloquent campaign, drawing on arguments that echoed U.S. anti-war movements all the way back to Henry David Thoreau's opposition to the Mexican-American War.
Like Carter in the 1970s, Obama comes from the old-fashioned Jeffersonian wing of the Democratic Party, and the strategic goal of his foreign policy is to reduce America's costs and risks overseas by limiting U.S. commitments wherever possible. He's a believer in the notion that the United States can best spread democracy and support peace by becoming an example of democracy at home and moderation abroad. More than this, Jeffersonians such as Obama think oversize commitments abroad undermine American democracy at home. Large military budgets divert resources from pressing domestic needs; close association with corrupt and tyrannical foreign regimes involves the United States in dirty and cynical alliances; the swelling national-security state threatens civil liberties and leads to powerful pro-war, pro-engagement lobbies among corporations nourished on grossly swollen federal defense budgets.
While Bush argued that the only possible response to the 9/11 attacks was to deepen America's military and political commitments in the Middle East, Obama initially sought to enhance America's security by reducing those commitments and toning down aspects of U.S. Middle East policy, such as support for Israel, that foment hostility and suspicion in the region. He seeks to pull U.S. power back from the borderlands of Russia, reducing the risk of conflict with Moscow. In Latin America, he has so far behaved with scrupulous caution and, clearly, is hoping to normalize relations with Cuba while avoiding collisions with the "Bolivarian" states of Venezuela, Ecuador, and Bolivia.
Obama seeks a quiet world in order to focus his efforts on domestic reform -- and to create conditions that would allow him to dismantle some of the national-security state inherited from the Cold War and given new life and vigor after 9/11. Preferring disarmament agreements to military buildups and hoping to substitute regional balance-of-power arrangements for massive unilateral U.S. force commitments all over the globe, the president wishes ultimately for an orderly world in which burdens are shared and the military power of the United States is a less prominent feature on the international scene.
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