The question of how foreign policy is determined is a crucial one in world affairs. In these comments, I can only provide a few hints as to how I think the subject can be productively explored, keeping to the United States for several reasons. First, the US is unmatched in its global significance and impact. Second, it is an unusually open society, possibly uniquely so, which means we know more about it. Finally, it is plainly the most important case for Americans, who are able to influence policy choices in the US—and indeed for others, insofar as their actions can influence such choices. The general principles, however, extend to the other major powers, and well beyond.
There is a “received standard version,” common to academic scholarship, government pronouncements, and public discourse. It holds that the prime commitment of governments is to ensure security, and that the primary concern of the US and its allies since 1945 was the Russian threat.
There are a number of ways to evaluate the doctrine. One obvious question to ask is: What happened when the Russian threat disappeared in 1989? Answer: everything continued much as before.
The US immediately invaded Panama, killing probably thousands of people and installing a client regime. This was routine practice in US-dominated domains—but in this case not quite as routine. For first time, a major foreign policy act was not justified by an alleged Russian threat.
Instead, a series of fraudulent pretexts for the invasion were concocted that collapse instantly on examination. The media chimed in enthusiastically, lauding the magnificent achievement of defeating Panama, unconcerned that the pretexts were ludicrous, that the act itself was a radical violation of international law, and that it was bitterly condemned elsewhere, most harshly in Latin America. Also ignored was the US veto of a unanimous Security Council resolution condemning crimes by US troops during the invasion, with Britain alone abstaining.
All routine. And all forgotten (which is also routine).
From El Salvador to the Russian Border
The administration of George H.W. Bush issued a new national security policy and defense budget in reaction to the collapse of the global enemy. It was pretty much the same as before, although with new pretexts. It was, it turned out, necessary to maintain a military establishment almost as great as the rest of the world combined and far more advanced in technological sophistication—but not for defense against the now-nonexistent Soviet Union. Rather, the excuse now was the growing “technological sophistication” of Third World powers. Disciplined intellectuals understood that it would have been improper to collapse in ridicule, so they maintained a proper silence.
The United States, the new programs insisted, must maintain its “defense industrial base.” The phrase is a euphemism, referring to high-tech industry generally, which relies heavily on extensive state intervention for research and development, often under Pentagon cover, in what economists continue to call the US “free-market economy.”