Grand Strategy for a Divided America

Charles A. Kupchan and Peter L. Trubowitz

From Foreign Affairs, July/August 2007

Summary:  Deep divisions at home about the nature of the United States' engagement with the world threaten to produce failed leadership abroad -- and possibly isolationism. To steady U.S. global leadership and restore consensus to U.S. foreign policy, U.S. commitments overseas must be scaled back to a more politically sustainable level.

Charles A. Kupchan is Professor of International Affairs at Georgetown University, a Senior Fellow at the Council on Foreign Relations, and Henry A. Kissinger Scholar at the Library of Congress. Peter L. Trubowitz is Associate Professor of Government at the University of Texas, Austin, and a Senior Fellow at the Robert S. Strauss Center for International Security and Law.

MIND THE GAP

The United States is in the midst of a polarized and bruising debate about the nature and scope of its engagement with the world. The current reassessment is only the latest of many; ever since the United States' rise as a global power, its leaders and citizens have regularly scrutinized the costs and benefits of foreign ambition. In 1943, Walter Lippmann offered a classic formulation of the issue. "In foreign relations," Lippmann wrote, "as in all other relations, a policy has been formed only when commitments and power have been brought into balance.... The nation must maintain its objectives and its power in equilibrium, its purposes within its means and its means equal to its purposes."

Although Lippmann was mindful of the economic costs of global engagement, his primary concern was the political "solvency" of U.S. foreign policy, not the adequacy of the United States' material resources. He lamented the divisive partisanship that had so often prevented the United States from finding "a settled and generally accepted foreign policy." "This is a danger to the Republic," he warned. "For when a people is divided within itself about the conduct of its foreign relations, it is unable to agree on the determination of its true interest. It is unable to prepare adequately for war or to safeguard successfully its peace.... The spectacle of this great nation which does not know its own mind is as humiliating as it is dangerous." Lippmann's worries would prove unfounded; in the face of World War II and the onset of the Cold War, the bitter partisanship of the past gave way to a broad consensus on foreign policy that was to last for the next five decades.

Today, however, Lippmann's concern with political solvency is more relevant than ever. After the demise of the Soviet Union, the shock of September 11, and the failures of the Iraq war, Republicans and Democrats share less common ground on the fundamental purposes of U.S. power than at any other time since World War II. A critical gap has opened up between the United States' global commitments and its political appetite for sustaining them. As made clear by the collision between President George W. Bush and the Democratic Congress over what to do in Iraq, the country's bipartisan consensus on foreign policy has collapsed. If left unattended, the political foundations of U.S. statecraft will continue to disintegrate, exposing the country to the dangers of an erratic and incoherent foreign policy.

The presidential candidate who understands the urgency and gravity of striking a new balance between the United States' purposes and its political means is poised to reap a double reward. He or she would likely attract strong popular support; as in the 2006 midterm elections, in the 2008 election the war in Iraq and the conduct of U.S. foreign policy are set to be decisive issues. That candidate, if elected, would also enhance U.S. security by crafting a new grand strategy that is politically sustainable, thereby steadying a global community that continues to look to the United States for leadership.

Formulating a politically solvent strategy will require scaling back U.S. commitments, bringing them into line with diminishing means. At the same time, it will be necessary to stabilize the nation's foreign policy by shoring up public support for a new vision of the United States' global responsibilities. Solvency is the path to security; it is far better for the United States to arrive at a more discriminating grand strategy that enjoys domestic backing than to continue drifting toward an intractable polarization that would be as dangerous as it would be humiliating.

FINDING THE WATER'S EDGE

For Americans who lived through the bipartisan consensus of the Cold War era, the current political warfare over foreign policy seems to be a dramatic aberration. To be sure, Bush has been a polarizing president, in no small part due to the controversial invasion of Iraq and the troubled occupation that has followed. But in fact, today's partisan wrangling over foreign policy is the historical norm; it is the bipartisanship of the Cold War that was the anomaly.

Soon after the republic's founding, political parties formed to help overcome the obstacles that federalism, the separation of powers, and sectionalism put in the way of effective statecraft. With them came partisanship. During the nation's early decades, the main line of partisan competition ran along the North-South divide, pitting the Hamiltonian Federalists of the Northeast against the Jeffersonian Republicans of the South. The two parties disagreed on matters of grand strategy -- specifically whether the United States should lean toward Great Britain or France -- as well as on matters of political economy.