Toward a Realistic Peace

Defending Civilization and Defeating Terrorists by Making the International System Work

Rudolph W. Giuliani

From Foreign Affairs, September/October 2007

Summary:  The next U.S. president will face three key foreign policy challenges: setting a course for victory in the terrorists' war on global order, strengthening the international system the terrorists seek to destroy, and extending the system's benefits. With a stronger defense, a determined diplomacy, and greater U.S. economic and cultural influence, the next president can start to build a lasting, realistic peace.

Rudolph W. Giuliani, former Mayor of New York City, is a candidate for the Republican presidential nomination.

America has been most successful as a world leader when it has used strength and diplomacy hand in hand. To achieve a realistic peace, U.S. diplomacy must be tightly linked to our other strengths: military, economic, and moral. Whom we choose to talk to is as important as what we say. Diplomacy should never be a tool that our enemies can manipulate to their advantage. Holding serious talks may be advisable even with our adversaries, but not with those bent on our destruction or those who cannot deliver on their agreements.

Iran is a case in point. The Islamic Republic has been determined to attack the international system throughout its entire existence: it took U.S. diplomats hostage in 1979 and seized British sailors in 2007 and during the decades in between supported terrorism and murder. But Tehran invokes the protections of the international system when doing so suits it, hiding behind the principle of sovereignty to stave off the consequences of its actions. This is not to say that talks with Iran cannot possibly work. They could -- but only if we came to the table in a position of strength, knowing what we wanted.

The next U.S. president should take inspiration from Ronald Reagan's actions during his summit with Soviet leader Mikhail Gorbachev in Reykjavík in 1986: he was open to the possibility of negotiations but ready to walk away if talking went nowhere. The lesson is never talk for the sake of talking and never accept a bad deal for the sake of making a deal. Those with whom we negotiate -- whether ally or adversary -- must know that America has other options. The theocrats ruling Iran need to understand that we can wield the stick as well as the carrot, by undermining popular support for their regime, damaging the Iranian economy, weakening Iran's military, and, should all else fail, destroying its nuclear infrastructure.

For diplomacy to succeed, the U.S. government must be united. Adversaries naturally exploit divisions. Members of Congress who talk directly to rogue regimes at cross-purposes with the White House are not practicing diplomacy; they are undermining it. The task of a president is not merely to set priorities but to ensure that they are pursued across the government. It is only when they are -- and when Washington can negotiate from a position of strength -- that negotiations will yield results. As President John F. Kennedy said in his inaugural address, "Let us never negotiate out of fear. But let us never fear to negotiate."

Another step in rebuilding a strong diplomacy will be to make changes in the State Department and the Foreign Service. The time has come to refine the diplomats' mission down to their core purpose: presenting U.S. policy to the rest of the world. Reforming the State Department is a matter not of changing its organizational chart -- although simplification is needed -- but of changing the way we practice diplomacy and the way we measure results. Our ambassadors must clearly understand and clearly advocate for U.S. policies and be judged on the results. Too many people denounce our country or our policies simply because they are confident that they will not hear any serious refutation from our representatives. The American ideals of freedom and democracy deserve stronger advocacy. And the era of cost-free anti-Americanism must end.

Since leaving the New York City mayor's office, I have traveled to 35 different countries. It is clear that we need to do a better job of explaining America's message and mission to the rest of the world, not by imposing our ideas on others but by appealing to their enlightened self-interest. To this end, the Voice of America program must be significantly strengthened and broadened. Its surrogate stations, such as Radio Free Europe and Radio Liberty, which were so effective at inspiring grass-roots dissidents during the Cold War, must be expanded as well. Our entire approach to public diplomacy and strategic communications must be upgraded and extended, with a greater focus on new media such as the Internet. We confront multifaceted challenges in the Middle East, the Pacific region, Africa, and Latin America. In all these places, effective communication can be a powerful way of advancing our interests. We will not shy away from any debate. And armed with honest advocacy, America will win the war of ideas.

STRENGTHENING THE INTERNATIONAL SYSTEM

The next U.S. president will share the world stage with a new generation of leaders, few of whom were in office when the attacks of 9/11 occurred but all of whom have been influenced by their impact. This will be a rare opportunity for American leadership to make the case that our common interest lies in defeating the terrorists and strengthening the international system.

Defeating the terrorists must be our principal priority in the near future, but we do not have the luxury of focusing on it to the exclusion of other goals. World events unfold whether the United States is engaged or not, and when we are not, they often unfold in ways that are against our interests. The art of managing a large enterprise is to multitask, and so U.S. foreign policy must always be multidimensional.