IN DUE LINGUE (Inglese, Italiano)
IN TWO LANGUAGES (English, Italian)
IN TWO LANGUAGES (English, Italian)
With this piece – which was preceded by “US foreign policy and Trump’s contradictions: questions of method” –, Michele Nobile begins to deepen the analysis of the Trump administration’s foreign policy starting from the recently published National Security Strategy. [the Editorial staff of Red Utopia]
INDEX: Foreword - 1. Defining the problem of national security - 2. The theory of democratic peace in previous administrations - 3. The worldview of 2017 NSS and critique of the theory of democratic peace - 4. China and Russia in previous NSS - 5. China and Russia in 2017 NSS: threats to national security - 6. Relations between China and Russia in American strategy - 7. Provisional conclusion
Donald Trump and China’s president Xi Jinping. Beijing, November 9, 2017 © Nicolas Asfouri |
Foreword
At the end of 2017, the Trump’s administration published its National Security Strategy (NSS), the report that the President of the United States is required to present annually to Congress. It is legitimate to ask what interest a document such as an NSS can have since it certainly contains no military action plans, not even in general terms.
An NSS is the result of compromises within the administration and is often overtaken by unforeseen developments; on the other hand, the availability of the means envisaged for achieving stated objectives can also exceed the duration of the administration that produced it – and not just by a few years.
The doubts increase in the face of a president like Trump – contested by foreign and military policy experts in his own party – and the series of sackings or resignations of high-level staff, both as a result of disagreements with the president and imposed by the results of investigations.
Of the thirty 20th-century Secretaries of State, Rex Tillerson is one of the six who have remained in office for the least time, and in the post-Cold War period only Lawrence Eagleburger lasted less. The Trump administration is on its third National Security Advisor in just over a year, while in the space of eight years Clinton and Bush Jr. had just two and Obama three.
Besides, it cannot be said that the Secretary of State and the National Security Adviser appointed by Trump – Mike Pompeo, appointed as director of the CIA, and John Bolton, formerly ambassador to the United Nations under George W. Bush – are characters indicative of a moderate orientation: they are decidedly “hawks” chosen exclusively because of their political proximity to the president.
Furthermore, while all versions of the NSS pay a ritual homage to “American values”, it sounds strange to read in a document introduced by Donald Trump that “the United States rejects bigotry, ignorance and oppression” and that it is committed to defending the rights of women and girls (2017 NSS).
In more substantial terms, as widely predictable in some points, for example on Russia and on NATO, the 2017 NSS appears in contrast with the fears and hopes raised by Trump before his election. One can thus question the extent to which the document reflects the president’s thinking and therefore how reliable it is.
It is remarkable that Trump’s message preceding the latest NSS speaks of “rival powers” aggressive towards American interests in the world, but without naming China and Russia; then, in his speech of December 18, 2017 presenting the document, Trump cited the phone call from Putin thanking him for the intelligence that the CIA was able to provide concerning a major terrorist attack planned in St. Petersburg, but also said that the United States faces “rival powers, Russia and China, that seek to challenge American influence, values, and wealth”, specifying that, “based on my direction, this document has been in development for over a year. It has the endorsement of my entire Cabinet”.
It is not at all unusual for an NSS to be published beyond the terms prescribed by law, but this latter sentence appears as a superfluous clarification, a reassurance that seems to imply the opposite.
As for the rest, the discourse differs from the NSS only in its even more triumphalist tones and for the self-celebration of the presumed identification of the People with the president, elected with almost three million votes less than competitor Hillary Clinton:
“But last year, all of that began to change. The American people rejected the failures of the past. You rediscovered your voice and reclaimed ownership of this nation and its destiny.
On January 20, 2017, I stood on the steps of the Capitol to herald the day the people became the rulers of their nation again. (Applause.) Thank you. Now, less than one year later, I am proud to report that the entire world has heard the news and has already seen the signs. America is coming back, and America is coming back strong”.
Report on the national security strategy was established in 1986 by the Goldwater-Nichols Act: since then seventeen have been published. Well, if you compare 2017 NSS with those which followed the collapse of the Soviet Union, it is clear that it is a very original document, almost on a par with the 2002 NSS of Bush Jr., who formulated the doctrine of “preventive war”.
While it is not possible to deduce from an NSS exactly what an administration will do and when, general indications can nevertheless be drawn about the perception of threats to national security and the attitude with which they are intended to be addressed.
The 2017 NSS contains relatively little about human rights and the promotion of democracy – a fact which may gratify the sympathisers of president Putin and North Korea’s supreme leader –, but the prospect it outlines, which in emphatic terms one might say grand strategy, is no less dangerous than the decision that led to the invasions of Afghanistan and Iraq.
Perhaps even more so, in terms of relations with the nuclear powers of China and Russia and for reasons that are not only due to the constraints posed by the Congress, but are intrinsic to the concept of America First as defined by Trump.
The vision of the world contained in the 2017 NSS is substantially in line with that of Trump; however, in its realisation this same vision can lead to considerable fluctuations and confusion in the conduct of US foreign policy not only because of internal opposition, but because it is internally contradictory: this could be the reason for personal disagreements in the Administration, in which different parts push on the poles that constitute the contradiction.
The structure of 2017 NSS is made up of a message from Trump himself, an introduction and four chapters related to as many pillars of national security, plus a chapter that applies the strategy in the regions of the world.
Formally, each chapter presents some priority actions to achieve the objectives indicated, which is a novelty that appears to give concreteness, but which in reality is only stylistic; and also the four pillars or objectives – protecting the American people, promoting prosperity in America, preserving peace through force and advancing America’s influence – are banalities present in every NSS.
The peculiarity of this document must be sought in the way in which those objectives are concretely defined, above all in the definition of the problem of national security and threats.
1. Defining the problem of national security
The message signed by Donald Trump that serves as a preface to 2017 NSS is an arrogant revendication of the Administration’s alleged successes, including having “crushed Islamic State of Iraq and Syria (ISIS) terrorists”, which, however, was claimed by all the players involved just before Trump took office.
The list of problems inherited from the previous administrations is long: “rogue states”, international terrorism, aggressive powers, uncontrolled immigration, criminal cartels, unequal distribution of defence costs between the United States and allies, impropriety in economic relations.
Against this background, the successes boasted with a triumphalist tone are even more evident: the Trump administration is already “charting a new and very different course”. The president stands as a saviour of the Fatherland, as the one who restored confidence in American values and America’s position in the world – “after one year, the world knows that America is prosperous, America is secure, and America is strong” (2017 NSS).
However, a note of alarm is sounded both in Trump’s message and in the text of the NSS itself: “The United States faces an extraordinarily dangerous world, filled with a wide range of threats that have intensified in recent years”. Apparently it seems a contradiction, but the alarmist note performs several functions.
First of all, keeping the alarm about terrorism and the “rogue states” high is a necessity intrinsic to the doctrine of war and preventive military operations, which is now one of the options for action openly indicated by all US administrations, albeit with different formulas.
Formalisation of this doctrine is a distortion of jus ad bellum (the right to engage in war), with implications also for jus in bello (the rules regulating the conduct of war, for example concerning the treatment of prisoners and civilian populations).
Even in a very broad and very debatable interpretation of the norms of international law, one of the binding criteria – and not the only one – which can justify a military action that anticipates an enemy attack is that of the imminence of aggression.
However, no matter how far it is cloaked in formal references to the needs of self-defence, in the logic of preventive war formalised since 2002 NSS the concept of the imminence of attack is freed from specific temporal and material references, and therefore emptied of real meaning.
The main justification for war and preventive military operations has become the possibility and intention that entities defined as terrorist or “rogue state” procure weapons of mass destruction; this is also tantamount to affirming that for these entities the possession of weapons of mass destruction coincides with the certainty of their use in an indeterminate future and place. War or preventive military operations are thus justified a priori.
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In Trump’s introductory message to the NSS, the unequal sharing of security burdens between the United States and the allies is indicated as one of the reasons that has encouraged opponents to take dangerous actions – the point is then reiterated in the document. Obviously, it is not at all the alliances themselves that are called into question, but the terms with which the other States contribute.
However, the list of faults does not stop here. It covers the whole of the 90s, including the Administrations of Bush Sr. and Clinton, and implicitly also those of Bush Jr. In 2017 NSS, criticism of the idea that US military superiority was guaranteed is fundamental, as is criticism of the Wilsonian (after Woodrow Wilson, president from 1913 to 1921) concept of “democratic peace” which, although articulated in different ways, has been at the centre of the foreign policy pursued by the United States since the end of the Cold War.