As PREPARED FOR DELIVERY

ADDRESS BY

THE HONORABLE HENRY A. KISSINGER

VISITING PROFESSOR OF DIPLOMACY, SCHOOL OF
FOREIGN SERVICE, AND
COUNSELOR TO THE CENTER FOR STRATEGIC AND
INTERNATIONAL STUDIES
GEORGETOWN UNIVERSITY

THE FRANK C. NASH MEMORIAL LECTURE ON
INTERNATIONAL SECURITY AFFAIRS

GASTON HALL
HEALY BUILDING
GEORGETOWN UNIVERSITY

WASHINGTON, D.C.
TUESDAY, APRIL 5, 1977

EMBARGOED UNTIL DELIVERY, SCHEDULED FOR 5:30 P.M. EST.
NOT TO BE PREVIOUSLY PUBLISHED, QUOTED FROM, OR USED
IN ANY WAY.

FATHER HEALY, DEAN KROGH, GENERAL GARD, ADMIRAL HARDISTY, DISTINGUISHED GUESTS, LADIES AND GENTLEMEN.

THE FRANK NASH MEMORIAL LECTURE COMMEMORATES BOTH AN OUTSTANDING PUBLIC SERVANT AND A VITAL PUBLIC PRINCIPLE. IT WAS ESTABLISHED TO BRING TOGETHER THE REALMS OF DEFENSE AND DIPLOMACY. THE ESSENTIAL UNITY OF SECURITY POLICY AND FOREIGN POLICY HAS NOT ALWAYS BEEN UNDERSTOOD -- PARTICULARLY IN AN AMERICA WHOSE EXPERIENCE, UNTIL RECENTLY, DIL NOT COMPEL A SUSTAINED INVOLVEMENT IN INTERNATIONAL AFFAIRS. FRANK NASH -- AS ASSISTANT SECRETARY OF DEFENSE FOR INTERNATIONAL SECURITY AFFAIRS, AS ARMS CONTROL NEGOTIATOR, AND IN MANY OTHER ASSIGNMENTS AT THE HIGHEST LEVELS OF GOVERNMENT -- GRASPED THAT UNITY, AND EMBODIED IT IN HIS OWN DISTINGUISHED CAREER.

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HE UNDERSTOOD THAT MILITARY STRENGTH IS
INDISPENSABLE IF WE ARE TO BUILD A DURABLE AND JUST
PEACE. HE SAW THAT SECURITY IS THE PREREQUISITE FOR
A WORLD THAT FULFILLS OUR IDEALS OF FREEDOM AND HUMAN
DIGNITY; FOR NATIONS CANNOT DEVOTE THEIR ENERGIES TO
IMPROVING THE QUALITY OF LIFE OF THEIR OWN CITIZENS --
OR CONTRIBUTE TO JUSTICE AND FREEDOM -- IF THEY LIVE
IN CONSTANT FEAR FOR THEIR SURVIVAL, INTEGRITY, AND
INDEPENDENCE.

AND FRANK NASH KNEW, ABOVE ALL, THAT THE WORLD'S
HOPES BOTH FOR SECURITY AND FOR A MORE HUMANE FUTURE
REST IN GREAT MEASURE UPON THE DEDICATION, FORTITUDE AND
VISION OF THE UNITED STATES.

A NEW ADMINISTRATION IS NOW THE REPOSITORY OF THESE
HOPES. THEY HAVE MY BEST WISHES. TO AMEND PRESIDENT
TRUMAN'S METAPHOR, WHEN YOU HAVE BEEN IN THE KITCHEN YOU
KNOW HOW HOT IT CAN BECOME. AND YOU SYMPATHIZE WITH THE

COOKS. THE NEW ADMINISTRATION NEEDS THE SUPPORT OF ALL OF US, FOR IT IS ESSENTIAL THAT THEY SUCCEED.

THEIR ACHIEVEMENTS WILL BE THE NATION'S ACHIEVEMENTS; *would be*

THEIR SETBACKS ARE THE NATION'S SETBACKS.

AS ONE WHO HAS SEEN FOREIGN AFFAIRS AS AN ACADEMIC AND AS A PRACTITIONER, I KNOW THE DIFFERENCE BETWEEN THE TWO PERSPECTIVES. FOR POLICYMAKERS THE OPPORTUNITY OF CHOICE IS MARRIED TO THE BURDEN OF DECISION. THEY LIVE AMID FAST-MOVING EVENTS; THEY MUST ACT BEFORE THE OUTCOME CAN BE KNOWN AND EVEN BEFORE ALL THE FACTS ARE IN HAND. THEY ARE RESPONSIBLE IF THE WORST OCCURS, AND HENCE CANNOT GAMBLE *ONLY ON* THE BEST PROJECTION. THEY MUST DECIDE AMONG ALTERNATIVES, EACH OF WHICH CONTAINS RISKS. THEY MUST UNDERSTAND AND WEIGH -- EVEN WHEN OUTSIDERS DO NOT -- THE CONSEQUENCES TO AVOID AS WELL AS THE GOALS TO PURSUE.

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NOTHING IS EASIER THAN TO PASS JUDGMENT AFTER THE FACT. NOTHING IS MORE DIFFICULT THAN TO BEAR RESPONSIBILITY FOR THE FATE OF A NATION IN A WORLD OF TURBULENCE, UNCERTAINTY AND CHALLENGE.

NOT SINCE PRESIDENT EISENHOWER HAVE WE HAD AN ADMINISTRATION THAT COMPLETED ITS ELECTED TERM WITHOUT ASSASSINATION, WAR OR UPHEAVAL. THE IMPACT OF THESE CONVULSIONS ON OUR NATIONAL SELF-CONFIDENCE HAS BEEN TRAUMATIC. IT IS ESSENTIAL THAT THE TIME OF HEALING SO WELL BEGUN BY PRESIDENT FORD CONTINUE. PRESIDENT CARTER TAKES OFFICE WITH THE BEST CHANCE IN TWO DECADES TO LEAD THE NATION TOWARD ITS GOALS IN CONDITIONS OF HOPE. HE INHERITS A NATION AT PEACE AND HAS BEFORE HIM SIGNIFICANT OPPORTUNITIES FOR MAJOR PROGRESS -- IN RELATIONS WITH ALLIES AND ADVERSARIES, IN SALT, IN THE MIDDLE EAST, IN AFRICA, IN OUR POLICY TOWARD CHINA, AND WITH THE DEVELOPING COUNTRIES. HE ALSO CONFRONTS A WORLD OF GREAT PERIL.

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I HAVE ALWAYS BELIEVED THAT THE NATION'S FOREIGN POLICY OUGHT TO BE NONPARTISAN. WHILE WE CAN AND SHOULD DISCUSS MEANS, OUR COUNTRY'S COURSE IN THE WORLD IS A COMMON NATIONAL ENTERPRISE THAT TRANSCENDS PARTY AND PERSONALITY. IT INVOLVES OUR COMMON FUTURE AND INDEED THE FUTURE OF FREEDOM IN THE WORLD. IT MUST REFLECT PERMANENT VALUES AND INTERESTS OF THE AMERICAN PEOPLE AND REPRESENT THE WHOLE BODY POLITIC. IT CANNOT FLUCTUATE DRAMATICALLY WITH EACH SHIFT IN THE FORTUNES OF OUR POLITICAL PARTIES, FOR THAT WOULD MAKE THE UNITED STATES ITSELF A MAJOR SOURCE OF UNPREDICTABILITY AND INSTABILITY IN A WORLD THAT CRIES OUT FOR CONTINUITY AND RELIABILITY.

THE BUILDING OF WORLD ORDER WILL NEVER END. BY DEFINITION IT CANNOT BE COMPLETED BY ANY ONE ADMINISTRATION. THOSE OUT OF OFFICE MUST NOT PRETEND THAT PROBLEMS WHICH ARE OBJECTIVELY COMPLEX WOULD HAVE BEEN LESS COMPLICATED

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IN A DIFFERENT ADMINISTRATION. THOSE IN GOVERNMENT SHOULD NOT CLAIM THAT HISTORY STARTS ANEW WITH EACH OATH OF OFFICE. THE BURDENS AND DILEMMAS INHERENT IN LEADERSHIP SHOULD BE TREATED WITH COMPASSION; ALL WHO TAKE PART IN OUR NATIONAL DIALOGUE MUST RECOGNIZE THAT THERE IS NO MONOPOLY OF VIRTUE AND THAT DIFFERENCES ARE MORE LIKELY TO BE NUANCES THAN FUNDAMENTALS.

IN THE BITTER CONTROVERSIES WHICH HAVE MARKED THE PAST DECADE, SOME OF THE BASIC TRUTHS ABOUT AMERICA'S ROLE IN THE WORLD HAVE OCCASIONALLY BEEN FORGOTTEN.

THOSE WHO HAVE THE PRIVILEGE OF SERVING THEIR COUNTRY CAN HAVE NO GREATER GOAL THAN TO ASSURE THE SURVIVAL, THE PROSPERITY AND THE MORAL GROWTH OF THE PEOPLE THEY SERVE. THEY MUST OF COURSE INSURE ITS SURVIVAL ABOVE ALL, FOR WITHOUT THAT ALL OTHER PURPOSES WOULD BE EMPTY.

BUT THEY MUST ALSO REACH BEYOND, TOWARD HIGHER AIMS.

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OUR GENERATION HAS WITNESSED A SERIES OF PROFOUND TRANSFORMATIONS OF THE INTERNATIONAL ORDER. THE COLONIAL ERA THAT CENTERED ON EUROPE AND LASTED A CENTURY HAS DISINTEGRATED; THE BIPOLAR IDEOLOGICAL CONFRONTATION BETWEEN EAST AND WEST KNOWN AS THE COLD WAR HAS CHANGED ITS CHARACTER.

WE LIVE TODAY IN A WORLD OF SOME 150 SOVEREIGN NATIONS, WITH MANY DIVERSE CENTERS OF POLITICAL, MILITARY AND ECONOMIC POWER. THE COMMUNIST WORLD HAS BEEN DIVIDED BY BITTER RIVALRIES OVER DOCTRINE AND NATIONAL AIMS -- DISPUTES MADE ALL THE MORE INTRACTABLE BECAUSE COMMUNIST THEORY DENIES THEIR POSSIBILITY AND HENCE PROVIDES NEITHER MECHANISM NOR FLEXIBILITY FOR THEIR RESOLUTION. AS OUR ALLIES HAVE GROWN IN STRENGTH AND SELF-ASSURANCE, OUR RELATIONS WITH WESTERN EUROPE AND JAPAN HAVE BECOME A MORE BALANCED PARTNERSHIP OF LIKE-MINDED DEMOCRATIC NATIONS. THE OIL-PRODUCING

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COUNTRIES ARE NOW A SUBSTANTIAL ECONOMIC FORCE, THE SO-CALLED NON-ALIGNED HAVE FORMED A BLOC OF THEIR OWN, WHICH, STRIVING FOR UNITY ON INTERNATIONAL ISSUES, PAPERS OVER SERIOUS DIFFERENCES OF NATIONAL PERSPECTIVE AND INTEREST. IT IS A WORLD OF RAMPANT NATIONALISM, IDEOLOGICAL RIVALRY, DIFFUSE ECONOMIC POWER, REGIONAL POLITICAL CONFLICTS AND PROLIFERATING NUCLEAR WEAPONS.

FOR THE FIRST TIME IN HISTORY THE INTERNATIONAL SYSTEM HAS BECOME TRULY GLOBAL. AND EQUALLY UNPRECEDENTED, ANY SERIOUS BREAKDOWN OF INTERNATIONAL ORDER TODAY HAS THE POTENTIAL FOR DESTROYING THE PLANET. THE OVERRIDING CHALLENGE TO OUR FOREIGN POLICY THEN, IS TO CREATE NEW RELATIONSHIPS -- AMONG ALLIES, WITH ADVERSARIES, WITH THE DEVELOPING WORLD -- THAT WILL ENHANCE SECURITY AND ESTABLISH BONDS OF FRUITFUL COOPERATION. OUT OF

IDEOLOGICAL CONFLICT WE MUST DISTILL A CONCEPT OF
WORLD ORDER. OUT OF TURBULENCE WE MUST CREATE A
GLOBAL EQUILIBRIUM. AND AT HOME, OUT OF THE DISCORDS
OF THE PAST WE MUST GENERATE NEW DYNAMISM AND
PURPOSE.

I WANT TO TAKE THIS OCCASION TO REFLECT WITH
YOU ON THREE OF THE PERMANENT PROBLEMS THAT CONFRONT
NATION
THIS NATION, PROBLEMS THAT ANY ADMINISTRATION WOULD AND
WILL FACE -- PROBLEMS THAT DESERVE DEBATE, OF COURSE,
BUT SYMPATHETIC UNDERSTANDING ABOVE ALL:

- FIRST, THE PERMANENT REQUIREMENTS OF GLOBAL
EQUILIBRIUM AND INTERNATIONAL SECURITY;

- SECOND, THE REQUIREMENTS OF GLOBAL STRUCTURE --
OUR RELATIONS WITH ALLIES, ADVERSARIES AND THE
DEVELOPING COUNTRIES.

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-- AND THIRD, OUR FUNDAMENTAL NEED AS A PEOPLE TO STRIKE A LONG-TERM BALANCE BETWEEN OUR IDEALS, OUR CAPACITIES AND OUR RESPONSIBILITIES.

# I. THE CHALLENGE OF INTERNATIONAL SECURITY

AMERICANS HAVE NEVER BEEN AT EASE WITH THE NOTION OF BALANCE OF POWER. PROTECTED BY TWO GREAT OCEANS, WE STRESSED TO OURSELVES OUR OWN MORAL UNIQUENESS AND LOOKED TO THE SUPERIORITY OF OUR MAXIMS TO BRING US PEACE AND SECURITY. UNITL THE END OF THE SECOND WORLD WAR, OTHER NATIONS TOOK FROM OUR SHOULDERS THE BURDEN OF DIFFICULT

DECISIONS -- OF ACTING AGAINST DANGERS WHILE THEY STILL
ONLY MARGINALLY THREATENED OUR SECURITY. WE NO LONGER HAVE
THIS LUXURY. THERE ARE NO OTHER NATIONS STRONG ENOUGH TO
RESIST MAJOR AGGRESSION WHILE WE ASSESS OUR PERIL. AND MODERN
TECHNOLOGY HAS DESTROYED THE OPTION OF STANDING APART FROM
WORLD EVENTS.

HENCEFORTH, SECURITY FOR FREE MEN EVERYWHERE DEPENDS ON
OUR UNIMPAIRED STRENGTH. WE AND THOSE WHO ARE JOINED WITH
US CAN ACHIEVE NO POSITIVE ENDS UNLESS WE SURVIVE; AND SUR-
VIVAL HAS ITS PRACTICAL NECESSITIES. EQUILIBRIUM IS THE
PRECONDITION OF SECURITY; SECURITY IS THE PRECONDITION OF
PEACE; AND PEACE IS THE PRECONDITION FOR THE MORAL AND
MATERIAL PROGRESS OF MANKIND. A DIPLOMACY THAT IGNORES THE
OBJECTIVE CONDITIONS OF INTERNATIONAL EQUILIBRIUM WILL BE
DOOMED TO DISAPPOINTMENT AND TRAGEDY AND WILL BRING ABOUT
GLOBAL CHAOS.

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IN THE AGE OF THERMONUCLEAR WEAPONS AND INTER-
CONTINENTAL MISSILES, IN AN ENVIRONMENT OF POLITICAL
TURBULENCE AND CONTINUED TECHNOLOGICAL REVOLUTION, CALI-
BRATING THE MINIMUM REQUIREMENTS FOR SECURITY HAS BECOME
OVERWHELMINGLY DIFFICULT. COMPETITION DRIVES BOTH SIDES
TO BUILD MORE AND MORE WEAPONS OF INCREASING SOPHISTICATION
AND DESTRUCTIVE POWER. AND BENEATH THE UMBRELLA OF STRATEGIC
STALEMATE, POLITICAL AND IDEOLOGICAL CONTENTION CONTINUES,
AND NEW OPPORTUNITIES FOR REGIONAL AGGRESSION AND PRESSURE
EMERGE.

IN SUCH AN ENVIRONMENT, THERE ARE A NUMBER OF BASIC
AND INESCAPABLE REALITIES,

FIRST, THE OVERALL MILITARY BALANCE MUST BE
MAINTAINED. NO SOVEREIGN NATION WILLINGLY ENTRUSTS ITS
DESTINY TO THE FOREBEARANCE OF OTHERS, ESPECIALLY THOSE
WHOSE VALUES ARE ANTITHETICAL. AN IMBALANCE OF POWER

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AGAINST US, REAL OR PERCEIVED, WILL ALTER THE CALCULATIONS
OF FRIENDS, FOES, AND NEUTRALS. THIS NATION HAS A VITAL
STAKE IN THE GLOBAL BALANCE OF POWER PRECISELY BECAUSE WE
CARE DEEPLY ABOUT THE CAUSE OF FREEDOM AND THE FATE OF OUR
IDEALS. PRESIDENT CARTER PUT IT WELL IN HIS INAUGURAL
ADDRESS: "WE DO NOT SEEK TO INTIMIDATE, BUT IT IS CLEAR
THAT A WORLD WHICH OTHERS CAN DOMINATE WITH IMPUNITY WOULD
BE INHOSPITABLE TO DECENCY AND A THREAT TO THE WELLBEING
OF ALL PEOPLE."

SECOND, AS THE SOVIET UNION GAINS INDUSTRIAL STRENGTH
AND TECHNOLOGICAL SOPHISTICATION, ITS MILITARY OPTIONS AND
POTENTIAL INEVITABLY INCREASE. THAT A TOTALITARIAN COUNTRY
OF CONTINENTAL SIZE SHOULD DETERMINE TO EXPAND ITS POWER
AND BE WILLING TO IMPOSE ENORMOUS SACRIFICES ON ITS PEOPLE,
TO DO SO, IS NEITHER NEW NOR SURPRISING. BUT IT DOES IMPOSE
ON US A PERMANENT TASK OF MATCHING SOVIET POWER AND THE

EQUALLY DEMANDING RESPONSIBILITY OF INFLUENCING THE CONDUCT
OF SOVIET LEADERS IN THE DIRECTION OF PEACE BY WISE AND
DECISIVE WESTERN ACTION.

THE SOVIET LEADERSHIP PRIDES ITSELF ON ITS APPRECIATION
OF WHAT IT CALLS THE OBJECTIVE FACTORS, WHICH IS A MARXIST
WAY OF DESCRIBING THE REALITIES OF THE CORRELATION OF FORCES,
THE RESPONSIBILITY OF THE FREE NATIONS IS TO MAKE THE
SACRIFICES NECESSARY TO MAINTAIN BOTH THE REALITY AND THE
PERCEPTION OF A STABLE BALANCE.

THOUGH WE CANNOT SURPASS THE SOVIET UNION IN ALL CATEGORIES
OF MILITARY POWER, THE FREE NATIONS CANNOT FALL BEHIND IN
EVERY SIGNIFICANT CATEGORY WITHOUT SUFFERING PROFOUND POLITICAL
CONSEQUENCES. DIPLOMACY, NO MATTER HOW IMAGINATIVE, CANNOT
OPERATE FROM IMPOTENCE. MATCHING SOVIET POWER IN REALISTIC
WAYS THAT REMOVE THE INCENTIVE FOR AGGRESSION IS THE PRE-
CONDITION OF ALL EFFECTIVE POLICY.
Foreign

THIRD, WE MUST REMEMBER THAT THE SECURITY OF EUROPE AND ASIA HAS BEEN LARGELY PRESERVED BECAUSE OF THE AMERICAN COMMITMENT OF FORCES AND MATERIALS. AT A TIME OF EMERGING STALEMATE IN STRATEGIC WEAPONS, THE UNITED STATES MUST TAKE CARE NOT TO CREATE NEW REGIONAL VACUUMS. IF THE SENSE OF SECURITY OF OUR FRIENDS IS UNDERMINED, WE RISK DRAMATIC SHIFTS IN DOMESTIC STRUCTURES AND CONSEQUENTLY IN POLITICAL ALIGNMENTS. THE WORLD WILL BE NEITHER SAFER NOR MORE HUMANE IF AMERICA CHOOSES TO WITHDRAW ITS POWER UNILATERALLY FROM AREAS OF POTENTIAL CONFRONTATION. ON THE CONTRARY, OUR RETREAT IS LIKELY TO HAVE CONSEQUENCES EXTENDING FAR BEYOND THE COUNTRIES MOST IMMEDIATELY CONCERNED.

FOURTH, THE DESTRUCTIVENESS OF MODERN WEAPONS IMPOSES A SOBERING OBLIGATION ON THE POLICYMAKERS OF THE TWO NUCLEAR SUPERPOWERS. UNDER NO FORESEEABLE CIRCUMSTANCE COULD THE UNITED STATES -- OR THE SOVIET UNION -- AVOID TENS OF MILLIONS DEAD IN A STRATEGIC NUCLEAR EXCHANGE.

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NO LEADERS IN HISTORY HAVE FACED SO AWESOME A PROSPECT.
BOTH SIDES CONTINUE TO ARM BECAUSE NEITHER CAN RISK IN-
FERIORITY, AND THEREFORE NEITHER CAN STEP OFF THE TREADMILL
FIRST. BUT THE EFFORT TO HEDGE AGAINST ALL CONTINGENCIES,
NO MATTER HOW FARFETCHED, LEADS THE COMPETITION INTO EVER
MORE EXOTIC DIMENSIONS OF WEAPONRY AND COMPOUNDS POLITICAL
TENSIONS BY THE WORST-CASE ASSUMPTIONS MADE ABOUT THE
OPPONENT'S INTENTIONS AND PLANNING. PARADOXICALLY, AN
UNRESTRAINED STRATEGIC ARMS RACE CAN CREATE AN OVERALL
WEAKNESS BY DIVERTING DEFENSE RESOURCES INTO STRATEGICALLY
UNPRODUCTIVE AREAS, AWAY FROM FORCES FOR REGIONAL DEFENSE,
WHERE AN IMBALANCE COULD INDEED BE TURNED RAPIDLY AND
DRAMATICALLY TO OUR DISADVANTAGE.

FOR THESE REASONS, THE UNITED STATES HAS SOUGHT --
THROUGH ADMINISTRATIONS OF BOTH PARTIES -- ARMS CONTROL
AGREEMENTS WHICH BUILD SOME MUTUAL RESTRAINT INTO NUCLEAR

CALM, NON-CONFRONTATIONAL, WAY WITHOUT SELF-IMPOSED DEADLINES OR RHETORICAL BATTLES THAT PUBLICALLY STAKE THE PRESTIGE OF BOTH SIDES. THE LIMITATION OF ARMS IS NOT A FAVOR ONE SIDE DOES FOR THE OTHER; IT IS A FUNDAMENTAL NECESSITY. A REASONABLE, BALANCED AGREEMENT TAKING INTO ACCOUNT THE SECURITY CONCERNS OF BOTH SIDES IS ACHIEVABLE. THE ADMINISTRATION SHOULD HAVE WIDE NONPARTISAN BACKING IN BRINGING IT TO A SUCCESSFUL CONCLUSION.

## II. GLOBAL STRUCTURE AND INTERNATIONAL PEACE:
### CHALLENGES AND OPPORTUNITIES

OVER THE PAST THREE DECADES AMERICA'S ROLE OF LEADERSHIP HAS PROVED TO BE OF PIVOTAL IMPORTANCE IN THE SEARCH FOR WORLD ORDER. THE PROGRESS THAT HAS BEEN MADE IN SETTLING INTERNATIONAL CONFLICT, IN BRINGING A TURBULENT WORLD CLOSER TO A PEACEFUL INTERNATIONAL ORDER, OWES NO LITTLE TO OUR EFFORTS, OUR UNDERSTANDING AND OUR PERSEVERANCE.

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INDUSTRIAL DEMOCRACIES

THE FIRST PRIORITY OF AMERICAN FOREIGN POLICY MUST BE TO MAINTAIN AND STRENGTHEN THE ALLIANCES THAT BIND US TO THE INDUSTRIAL DEMOCRACIES. THE ESSENCE OF THESE RELATIONSHIPS IS NOT THE FORMAL LEGAL COMMITMENTS -- IMPORTANT AS THEY ARE -- BUT THE COMMON VALUES AND COMMON INTERESTS THAT GIVE MEANING TO THEM AND THE FREQUENT AND CLOSE CONSULTATION WHICH NURTURE THEM. IN RECENT YEARS, OUR COOPERATION WITH OUR PRINCIPAL ALLIES IN THE ATLANTIC COMMUNITY AND JAPAN HAS BEEN BROADENED BEYOND SECURITY TO EMBRACE ECONOMIC COOPERATION, COORDINATION OF EAST-WEST DIPLOMACY AND CONSULTATION ON OUR RELATIONS WITH THE THIRD WORLD. THE NEW ADMINISTRATION WILL HAVE AN OPPORTUNITY WITHIN THE MONTH TO BUILD ON THE FOUNDATIONS LAID DOWN BY PRESIDENT FORD -- IN THE INCREASED HARMONIZATION OF OUR GROWTH POLICIES, IN THE NORTH-SOUTH DIALOGUE, INCLUDING

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THE ISSUES OF DEBT AND COMMODITIES, IN EAST-WEST ECONOMIC RELATIONS, AND ON ENERGY. PRESIDENT CARTER'S FORTHCOMING MEETINGS IN LONDON WITH THE LEADERS OF THE OTHER INDUSTRIAL DEMOCRACIES FOLLOWED BY A NATO SUMMIT HOLD THE HOPEFUL PROSPECT THAT THEY WILL GENERATE A NEW AGENDA OF COMMON ACTION FOR THE FREE PEOPLES. NOTHING COULD DEMONSTRATE BETTER THAT FREE SOCIETIES REMAIN DYNAMIC AND ABLE TO MASTER THEIR OWN DESTINY.

NOT ONE OF THE INDUSTRIAL DEMOCRACIES IS ABLE TO SOLVE ITS INTERNATIONAL OR DOMESTIC PROBLEMS IN ISOLATION. WORLD ORDER AS WELL AS DOMESTIC STABILITY DEPENDS ON THEIR COOPERATION -- A COOPERATION THAT WILL INEVITABLY BE TESTED BY A SERIES OF CHALLENGES ALREADY UPON US.

-- FOR TWO DECADES OUR ALLIES HAVE AVOIDED FACING THE FACT THAT AN APPROACHING NUCLEAR STALEMATE REQUIRES GREATER ATTENTION TO REGIONAL DEFENSE. THE STALEMATE IS NOW UPON US. THE PROBLEM OF

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BUILDING ADEQUATE FORCES FOR LOCAL DEFENSE CAN NO LONGER BE EVADED. FOR DETENTE IS NOT A SUBSTITUTE FOR ADEQUATE DEFENSE EFFORTS IT CAN ONLY GROW OUT OF THEM IT.

-- THE INDUSTRIAL DEMOCRACIES SHOULD DEVELOP FURTHER THE MECHANISM OF THEIR OWN COOPERATION AND WORK IN CLOSE PARALLEL IN MAJOR INTERNATIONAL CONFERENCES, ESPECIALLY ON THE COORDINATION OF THEIR OWN ECONOMIC POLICIES AND ON FURTHER REFORMS OF THE INTERNATIONAL ECONOMIC SYSTEM.

-- EAST-WEST DIPLOMACY REQUIRES SYNCHRONIZED POLICIES. IF THE SOVIET UNION IS ENCOURAGED BY OUR DIVISIONS TO PRACTICE DETENTE DIFFERENTIALLY -- IMPROVING RELATIONS WITH SOME ALLIES WHILE THREATENING OTHERS -- THE RELAXATION OF TENSIONS BECOMES A TOOL OF POLITICAL WARFARE. ONLY SOLIDARITY AMONG THE INDUSTRIAL DEMOCRACIES CAN TURN DETENTE INTO A LONG-TERM

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IT MAKES NO SENSE TO PERMIT THE NATIONS OF THE EAST TO EXPAND THEIR DEBTS TO THE INDUSTRIAL DEMOCRACIES WITH NO REGARD FOR ANYTHING BUT AD HOC COMMERCIAL CONSIDERATIONS. THE INDUSTRIAL DEMOCRACIES SHOULD EXAMINE THEIR CREDIT AND TRADE POLICIES FROM THE PERSPECTIVE OF THEIR CONTRIBUTION TO WORLD ORDER. AT THE URGING OF THE UNITED STATES, THE OECD IS NOW EXAMINING *THIS* QUESTION.

-- IN THE FIELD OF ENERGY, IMPORTANT NEW INSTITUTIONS FOR COMMON ACTION HAVE BEEN CREATED IN RECENT YEARS. THE INTERNATIONAL ENERGY AGENCY (IEA) BRINGING TOGETHER MOST MAJOR CONSUMING COUNTRIES, HAS DEVELOPED IMPORTANT PROGRAMS FOR CONSERVATION, ALTERNATIVE SOURCES AND EMERGENCY SHARING. BUT THE FAILURE OF CONGRESS TO ENACT A COHERENT NATIONAL ENERGY POLICY HAS DEPRIVED THE LARGEST

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CONSUMING NATION -- THE UNITED STATES -- OF
EFFECTIVE LEADERSHIP AND HAS HELD BACK
INTERNATIONAL EFFORTS. THE ENERGY PROGRAM OF
THE NEW ADMINISTRATION TO BE PUT FORWARD BY
APRIL 20 COULD GIVE A TREMENDOUS IMPETUS TO
THE DEVELOPMENT FOR THE FIRST TIME OF A COHERENT
ATTACK ON THE ENERGY CRISIS BY THE MAJOR
CONSUMING NATIONS.

-- THE UNITED STATES BECAUSE OF ITS ENORMOUS
POWER MUST BE ESPECIALLY SENSITIVE TO THE CONCERNS
OF OUR ALLIES, INCLUDING ESPECIALLY THE INTANGIBLES
COMPLICATED
OF FRAGILE DOMESTIC STRUCTURES. BECAUSE OF
OCCASIONAL
THE ENORMOUS DISPARITY OF POWER AND THEIR VERY
REAL ECONOMIC DEPENDENCE, SOME OF OUR FRIENDS
MAY YIELD TO AMERICAN PROPOSALS WHICH THEY
PERCEIVE AS INEVITABLE, EVEN IF THEY HAVE PROFOUND

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RESERVATIONS ABOUT THEM. CHANGES IN EMPHASIS
OF AMERICAN CONCERNS -- REAL OR PERCEIVED --
CAN HAVE MAJOR DOMESTIC CONSEQUENCES WHICH CAN
MAKE A DANGEROUS TREND IRREVERSIBLE,

-- BY THE SAME TOKEN, OUR ALLIES OWE US A SERIOUS
HEARING FOR PROPOSALS WE PUT FORWARD IN THE
GENERAL INTEREST. THE UNITED STATES IS SURELY
RIGHT, FOR EXAMPLE, IN EMPHASIZING THAT THE
UNCONSTRAINED PROLIFERATION OF NUCLEAR TECHNOLOGY
WILL INEVITABLY LEAD TO THE GRAVEST DANGERS FOR
ALL MANKIND. WE MUST NOT LET FUTURE GENERATIONS
SAY OF US THAT WE DOOMED THEM TO PERPETUAL PERIL
BECAUSE WE WOULD NOT SUBORDINATE COMMERCIAL
ADVANTAGE TO THE NECESSITIES OF HUMAN SURVIVAL.
THE INDUSTRIAL DEMOCRACIES, WORKING TOGETHER,
MUST SOLVE THIS PROBLEM IN THE VERY NEAR FUTURE

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OR THEY WILL BECOME THE PRISONERS OF EVENTS

WHICH CAN THEN NEVER BE UNDONE.

-- BUT THE DEEPEST PROBLEM BEFORE THE INDUSTRIAL DEMOCRACIES IS PSYCHOLOGICAL AND MORAL. THE INDUSTRIAL DEMOCRACIES MUST ANSWER COMPELLING QUESTIONS: IN SOCIETIES OF IMPERSONAL INSTITUTIONS -- HOW DO WE INSPIRE A NEW GENERATION WITH A SENSE OF PURPOSE? HOW DO WE MOBILIZE FAITH WITHOUT TURNING TO DEMAGOGUERY, AND HOW DO WE FOSTER DOMESTIC UNITY WITHOUT IMITATING TOTALITARIANISM? HOW IN AN AGE OF RAPID MASS COMMUNICATION DO WE AVOID FALSE SIMPLIFICATIONS OR EXTREMIST PANACEAS? THE FUTURE OF FREE SOCIETIES DEPENDS ON THE ANSWERS THEY GIVE AND THE ANSWERS CANNOT BE MEANINGFULLY GIVEN BY ANY ONE NATION ALONE.

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EAST-WEST RELATIONS

JUST AS WE MUST BE CONSCIOUS OF THE NEED TO FOSTER
COOPERATION WITH OUR ALLIES, SO MUST WE RECOGNIZE THAT
THERE CAN BE NO DURABLE INTERNATIONAL SYSTEM WITHOUT
A STABLE RELATIONSHIP BETWEEN THE UNITED STATES AND
THE SOVIET UNION. IN THE NUCLEAR AGE THE CONFLICT
BETWEEN TWO COMPETITIVE IDEOLOGICAL SYSTEMS RAISES
THE PROBLEM OF US-SOVIET RELATIONS TO THE LEVEL OF
LIFE AND DEATH. FOR AS FAR AHEAD AS WE CAN SEE, THE
INESCAPABLE NECESSITY OF AMERICAN FOREIGN POLICY WILL
BE TO CONDUCT THE US-SOVIET RIVALRY -- AND PROMOTE OUR
VALUES AND INTERESTS -- IN THE SHADOW OF NUCLEAR DANGER.
NO SINGLE AGREEMENT CAN EVER TOTALLY REMOVE THE DANGER.
NO SETBACK CAN BE PERMITTED TO STAND IN THE WAY
OF TRYING AGAIN.

OUR GENERATION HAS BEEN TRAUMATIZED BY THE LESSONS OF WORLD WAR II, WHEN AN IMBALANCE OF POWER PRODUCED UPHEAVAL AND WAR. WE MUST TAKE CARE THAT THIS EXPERIENCE IS NOT REPEATED. BUT WE MUST ALSO REMEMBER THAT EQUILIBRIUM ALONE IS NOT SUFFICIENT. WORLD WAR I, WHICH UNDERMINED THE POLITICAL STRUCTURE OF EUROPE AND THE WORLD, ERUPTED IN SPITE OF A BALANCE OF POWER. THE MAJOR NATIONS DRIFTED FROM CRISIS TO CRISIS CONFIDENT THAT EACH CRISIS BACKED BY ACCUMULATING ARSENALS WOULD BE RESOLVED, BECAUSE EACH PREVIOUS CRISIS HAD BEEN RESOLVED; UNTIL FINALLY POLITICAL LEADERS LOST CONTROL OVER OF THEIR MILITARY DECISIONS OVER AN ISSUE NOT DIFFERENT FROM MANY THAT HAD BEEN SUCCESSFULLY DEFUSED BEFORE. WE CANNOT PERMIT THIS TO HAPPEN AGAIN, FOR NONE OF OUR SOCIETIES WILL BE THE SAME AFTER A NUCLEAR HOLOCAUST.

WE MUST CONSISTENTLY AND PERSEVERINGLY MAINTAIN A DUAL POLICY:

-- FIRST, TO MAKE CLEAR BY OUR STRENGTH AND DETERMINATION THAT ATTEMPTS TO SPREAD SOVIET INFLUENCE BY MILITARY MEANS AND OTHER FORMS OF ADVENTURISM WILL BE RESISTED.

-- SECOND, TO MODERATE SOVIET CONDUCT BY ENGAGING THE SOVIET UNION IN CONSTRUCTIVE PARTICIPATION IN THE INTERNATIONAL SYSTEM.

ALL POLICY MUST START WITH CONTAINMENT OF SOVIET POWER, BUT CONTAINMENT CANNOT BE AN END IN ITSELF. WE MUST BUILD UPON AN EQUILIBRIUM OF POWER HABITS OF MUTUAL RESTRAINT, COEXISTENCE, AND, ULTIMATELY, COOPERATION. WE HAVE AN HISTORIC OBLIGATION TO MANKIND TO ENGAGE THE SOVIET UNION IN SETTLEMENTS OF CONCRETE POLITICAL ISSUES, IN DEVELOPING PRACTICES OF CONSULTATION, IN EXPANDING COOPERATIVE RELATIONS IN MANY TECHNICAL AREAS, AS WELL AS IN WORKING TOGETHER TO PUSH BACK THE SPECTER OF NUCLEAR CATASTROPHE.

BUT THE SOVIET UNION MUST UNDERSTAND THAT TRUE DETENTE CAN ONLY BE BUILT ON STRICT RECIPROCITY. ATTEMPTS TO USE IT

FOR UNILATERAL ADVANTAGE, TO DEMORALIZE THE FREE COUNTRIES
BY SCORING GEOPOLITICAL GAINS UNDER THE COVER OF *DETENTE*,
*Relaxation of tensions*
WILL INEVITABLY LEAD TO CONFRONTATION.

RESTRAINT MUST BE A MUTUAL OBLIGATION MUTUALLY IMPLEMENTED.

WHATEVER THE DETAILS OF THE CURRENT INVASION OF ZAIRE, IT IS CLEAR THAT THE ATTACK TOOK PLACE ACROSS A SOVEREIGN BORDER FROM A COUNTRY IN WHICH THE GOVERNMENT WAS INSTALLED BY SOVIET ARMS AND THE MILITARY PERSONNEL OF A SOVIET CLIENT STATE. IT COULD NOT HAVE TAKEN PLACE -- AND IT COULD NOT CONTINUE -- WITHOUT THE MATERIAL SUPPORT OR ACQUIESCENCE OF THE SOVIET UNION - *WHETHER OR NOT* CUBAN TROOPS ARE PRESENT. SUCH IRRESPONSIBLE ACTS SET A DANGEROUS PRECEDENT. IF ALL AFRICAN PROBLEMS ARE TO BE SETTLED HEREAFTER BY RADICAL MEANS WITH WEAPONS BROUGHT IN FROM OUTSIDE, A CATASTROPHIC RACE WAR IN SOUTHERN AFRICA WILL BECOME MORE AND MORE LIKELY WITH PROFOUND IMPLICATIONS FOR US BOTH AT HOME AND AROUND THE WORLD. IF ATTACKS ACROSS SOVEREIGN BORDERS ARE SUPINELY ACCEPTED BY THE

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INTERNATIONAL COMMUNITY, SOONER OR LATER EVENTS WILL GET OUT
OF CONTROL,

WE OWE IT TO OUR CHILDREN TO BEQUEATH TO THEM A WORLD
WITH MORE HOPE THAN A MERE BALANCE OF TERROR CONSTANTLY
CONTESTED. THE UNITED STATES AND THE SOVIET UNION HAVE IT IN
THEIR POWER TO BRING ABOUT EITHER AN HISTORIC BREAKTHROUGH
TO PEACE OR AN UNIMAGINABLE HISTORIC CATASTROPHE. THERE CAN
BE NO DOUBT OF THE CHOICE OF THE AMERICAN PEOPLE. BUT IF
CONFRONTATIONS PROVE UNAVOIDABLE DESPITE OUR BEST EFFORTS,
OUR PEOPLE WILL RESIST WITH A DETERMINATION STRENGTHENED BY
THE KNOWLEDGE THAT THEIR GOVERNMENT EXPLORED EVERY AVENUE
TO PEACE,

VITAL ALSO FOR INTERNATIONAL STABILITY IS THE RELATIONSHIP
BETWEEN THE UNITED STATES AND THE PEOPLE'S REPUBLIC OF CHINA.
AFTER THE BREAKTHROUGH IN 1971, THE TWO COUNTRIES COMMITTED
THEMSELVES TO MOVE TOWARDS NORMALIZATION. IT IS A PROCESS

-32-

THAT WE MUST CONTINUE, FOR WE SHARE A COMMON CONCERN ABOUT PREVENTING EXPANSIONIST TENDENCIES OF OTHER STATES. THUS, A CENTRAL FACTOR OF OUR RELATIONSHIP WITH THE PEOPLE'S REPUBLIC OF CHINA IS THE GEOPOLITICAL [EQUILIBRIUM] THE UNITED STATES MUST PAY CAREFUL ATTENTION TO CHINESE PERCEPTIONS OF THIS BALANCE. OUR RELATIONSHIP WITH THE PEOPLE'S REPUBLIC OF CHINA MUST BE CAREFULLY FOSTERED THROUGH CONSULTATION, STRENGTHENED TIES AND RECIPROCAL EFFORTS TO FULFILL EXISTING MUTUAL OBLIGATIONS.

## THE NORTH-SOUTH CHALLENGE

AT THE CORE OF THE CHALLENGE OF WORLD ORDER TODAY IS THE EVOLVING RELATIONSHIP BETWEEN THE INDUSTRIAL AND THE DEVELOPING NATIONS.

IN MILITARY TERMS THE GLOBE IS STILL ESSENTIALLY BIPOLAR, BUT ECONOMICALLY POWER IS DISPERSED AMONG MANY NATIONS AND REGIONS. THE INTERNATIONAL ECONOMIC SYSTEM THAT SUSTAINED WORLD PROSPERITY FOR A GENERATION IS NOW BEING

TESTED BY NEW FORCES ON A GLOBAL SCALE. THE GULF BETWEEN
THE INDUSTRIAL NATIONS AND THE DEVELOPING WORLD HAS BECOME
A CENTRAL FOCUS OF INTERNATIONAL DIPLOMACY. A WORLD IN
WHICH A FEW WEALTHY NATIONS STAND OUT LIKE ISLANDS OF WEALTH
IN AN OCEAN OF HOPELESS POVERTY AND INCREASING MISERY CANNOT
ENDURE UNCHALLENGED FOR LONG.

A PARADOX OF OUR TIME IS THE PERVASIVE SPREAD OF
NATIONALISM AND ITS SIMULTANEOUS -- AND GROWING -- INADEQUACY.
NEW BLOCS HAVE SPRUNG UP -- THE SO-CALLED NON-ALIGNED -- AT
THE SAME TIME THAT WE SEE NEW TENSIONS *WITHIN* THESE BLOCS.
PARADOXICALLY, IDEOLOGY TENDS TO POLARIZE NATIONS AT THE VERY
MOMENT WHEN REALITY DEMANDS THAT THE INTERESTS OF THE LESS
DEVELOPED BE ACHIEVED THROUGH PRAGMATIC COOPERATION WITH THE
WORLD
INDUSTRIAL NATIONS IACTICS OF CONFRONTATION BY SOME OF THE
SO-CALLED THIRD WORLD AFFRONT THE VERY PUBLICS IN THE
INDUSTRIAL DEMOCRACIES WHOSE VOTE, SUPPORT AND POLITICAL
UNDERSTANDING ARE ESSENTIAL.

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THE UNITED STATES HAS PLAYED -- AND I AM SURE WILL CONTINUE TO PLAY -- A ROLE OF LEADERSHIP IN THE NORTH-SOUTH DIALOGUE. IT DOES SO AS A MATTER OF SELF-INTEREST AS WELL AS MORAL CONVICTION. THE UNITED STATES COULD SURVIVE IN A WORLD OF ECONOMIC WARFARE AND IRRECONCILABLE DIVISION' BETTER THAN ANY OTHER NATION. BUT OUR HOPES FOR AN INTERNATIONAL ORDER BASED ON PEACE, JUSTICE AND PROGRESS WOULD BE SHATTERED.

THE OBJECTIVES OF THE DEVELOPING NATIONS ARE CLEAR:

THEY WANT ECONOMIC DEVELOPMENT, A ROLE IN INTERNATIONAL DECISIONS THAT AFFECT THEM, AND A FAIR SHARE OF GLOBAL ECONOMIC BENEFITS. THE INDUSTRIALIZED NATIONS, FOR THEIR PART, WANT TO SEE WIDENING PROSPERITY, AN OPEN WORLD SYSTEM OF TRADE AND INVESTMENT, EXPANDING MARKETS, AND RELIABLE DEVELOPMENT OF THE WORLD'S ENERGY RESOURCES AND RAW MATERIALS.

ECONOMIC REALITY MAKES THESE GOALS COMPLEMENTARY. POLITICAL REALITY MAKES THEM ACHIEVABLE ONLY BY INTERNATIONAL COLLABORATION.

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OUR GENERATION IS CHALLENGED TO ADAPT GLOBAL ECONOMIC INSTITUTIONS AND PRACTICES TO NEW NEEDS AND ASPIRATIONS --
TO BROADEN AND REFORM THE GLOBAL ECONOMY TO REFLECT THE NEW ECONOMIC AND POLITICAL REALITIES OF OUR TIME.

THE DEVELOPING NATIONS NEED FROM THE INDUSTRIAL DEMOCRACIES NOT BREASTBEATING CONFESSIONS OF GUILT BUT INTELLIGENT AND REALISTIC PROPOSALS THAT MERGE THE INTERESTS OF BOTH IN AN EXPANDING WORLD ECONOMY. THE INDUSTRIAL DEMOCRACIES MUST BETTER COORDINATE THEIR OWN EFFORTS, AVOIDING EITHER DUPLICATION OR COMPETITIVE CURRYING OF FAVOR WITH INCREASINGLY UNREALISTIC PROMISES. THEY SHOULD WORK OUT A CLEAR LONG-TERM STRATEGY FOR DEVELOPMENT, BRINGING TOGETHER THE KEY ELEMENTS OF THE DEVELOPMENT PROCESS IN A COHERENT WHOLE -- AID, TRADE, TECHNOLOGY TRANSFER, FINANCIAL POLICY, AND THE NATIONAL EFFORT OF THE DEVELOPING COUNTRY. THE

INDUSTRIAL NATIONS SHOULD NOT NEGOTIATE ONLY ON AN AGENDA
PUT FORWARD BY OTHERS, BUT SHOULD OFFER A COMPREHENSIVE
PROGRAM TO MEET THE DEVELOPMENT CHALLENGE ONCE AND FOR ALL,
ONE ADEQUATE TO THE TOTAL TASK AND WHICH THE INDUSTRIAL
NATIONS ARE PREPARED TO SUPPORT OVER THE LONG PULL.

THE DEVELOPING COUNTRIES, FOR THEIR PART, MUST ABANDON
THE TACTICS OF PRESSURE BECAUSE IN THE END THESE TACTICS
WILL BE SELF-DEFEATING AND WHAT THEY NEED CAN BE GAINED ONLY
BY INTERNATIONAL COOPERATION. SHOCKS TO THE WORLD ECONOMIC
SYSTEM, WE HAVE LEARNED, REDOUND TO THE DETRIMENT OF THE
POORER NATIONS MOST OF ALL. THE INCREASE IN OIL PRICES,
FOR EXAMPLE, ABSORBS MOST OF THE EXTERNAL AID OF THE
DEVELOPING COUNTRIES FROM ALL SOURCES.

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A FOUNDATION HAS BEEN LAID. THE NORTH-SOUTH DIALOGUE IS WELL BEGUN. THE INDUSTRIAL DEMOCRACIES, WHOSE ROLE IS CRUCIAL TO DEVELOPMENT, HAVE AN OPPORTUNITY TO SHAPE A POSITIVE NETWORK OF RELATIONS, ECONOMIC AND POLITICAL, FOR THE NEXT GENERATION. THIS IS AN OPPORTUNITY FOR STATESMANSHIP AND FOR A CONTRIBUTION OF FUNDAMENTAL IMPORTANCE TO THE FUTURE OF THE PLANET

### III. WORLD PEACE AND AMERICAN IDEALS

AMERICANS HAVE ALWAYS SEEN THEIR COUNTRY AS MORE THAN JUST ANOTHER NATION-STATE PURSUING A PRIVATE VISION OF ITS OWN PARTICULAR GRANDEUR AND MATERIAL SUCCESS. WE HAVE ALWAYS HAD A SENSE OF BROADER MISSION AND PURPOSE -- TO EMBODY THE IDEAL OF FREEDOM, TO GIVE RELIEF TO THE HUNGRY AND HAVEN TO THE OPPRESSED FROM OTHER LANDS, TO SERVE THE CAUSE OF DEMOCRACY AS AN EXAMPLE AND A CHAMPION. ALL THAT THIS NATION HAS DONE IN THE SEARCH FOR PEACE, IN BUILDING COOPERATION,

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IN PROMOTING WORLD PROSPERITY, IS ROOTED IN THE CONVICTION
THAT ONLY IN LIBERTY AND JUSTICE CAN MANKIND EVER
ACHIEVE ITS HIGHEST GOALS.

AS AMERICA GREW IN STRENGTH, IT ALSO BECAME
UNCOMFORTABLE WITH ITS POWER. WE HAVE OSCILLATED BETWEEN
DENYING ITS IMPORTANCE, BEING ASHAMED OF IT, AND
EXPECTING TOO MUCH FROM IT. CONSCIOUS OF OUR
UNIQUENESS AND TAKING FOR GRANTED THE BENEFITS CONFERRED
ON US BY DISTANCE, WE ATTRIBUTED OUR SUCCESS AT HOME
TO OUR MORAL VALUES MORE THAN TO OUR MATERIAL GOOD
FORTUNE. WE SHUNNED INVOLVEMENT IN A WORLD LESS PURE.

UNTIL THE END OF WORLD WAR II, OUR MORAL IMPULSE
PRODUCED ISOLATIONISM. WE IMAGINED THAT GENEROSITY IN
RELIEF EFFORTS AND PARTICIPATION IN THE WORLD ECONOMIC
ORDER WERE AN ADEQUATE SUBSTITUTE FOR POLITICAL ENGAGEMENT.

-39-

OUR TRADITION OF LAW LED US TO PROMOTE LEGAL SOLUTIONS TO INTERNATIONAL CONFLICT -- ARBITRATION, ADJUDICATION, DISARMAMENT AGREEMENTS, NEUTRALITY LEGISLATION, INTERNATIONAL ORGANIZATIONS FOR COLLECTIVE SECURITY.

WE BELIEVED THAT POLITICAL CONFLICT HAD ACCIDENTAL AND NOT FUNDAMENTAL CAUSES -- THE AMBITIONS OF SHORT-SIGHTED MEN RATHER THAN THE IMPERATIVES OF SURVIVAL. MANY ARGUED THAT WEAPONS -- OR "MUNITIONS MAKERS" -- INSTEAD OF BEING MEANS OF DEFENSE, CAUSED WARS, AND THAT INTELLIGENCE ACTIVITIES WERE SORDID AND UNNECESSARY.

THE FAILURE OF OTHER NATIONS TO MEET OUR STANDARDS OF DEMOCRACY AND LIBERTY ONLY INTENSIFIED OUR REVULSION AT ANY INVOLVEMENT OR CONCERN FOR THEIR SECURITY.

WHEN AROUSED TO JOIN AND TRIUMPH IN TWO WORLD WARS, WE CLOTHED OUR OWN CLEAR SECURITY INTEREST IN PREVENTING EUROPE FROM FALLING UNDER THE DOMINATION OF ONE CONTINENTAL POWER IN THE MANTLE OF ABSTRACT PRINCIPLE:

A "WAR TO END ALL WARS" OR "TO MAKE THE WORLD SAFE FOR DEMOCRACY". BUT IN PEACETIME, AND STILL TODAY, AMERICA HAS TRADITIONALLY BEEN LOATH TO FACE A WORLD OF IMPERFECT SECURITY, ALLIANCES OF NECESSITY, less than total solutions, RECURRENT CHALLENGES, AND THE NEED FOR A POLITICAL STRUCTURE THAT WOULD SECURE THE PEACE.

OUR MORAL IMPULSE HAS HAD MANY CONTRADICTORY RESULTS -- EXUBERANT CAMPAIGNS TO REFORM A REPROBATE WORLD, SELF-FLAGELLATION BECAUSE WE ARE NOT GOOD ENOUGH FOR THE WORLD, OR WITHDRAWAL BECAUSE WE ARE TOO *the world*, GOOD FOR IT. THE MOST SERIOUS ERRORS OF AMERICAN FOREIGN POLICY IN THIS CENTURY -- OF ISOLATION AND OF OVERINVOLVEMENT -- BOTH OCCURRED WHEN AMERICA'S MORAL ZEAL GREW OUT OF BALANCE WITH ITS PRAGMATIC TRADITION.

IN FACT, AMERICA HAS BEEN MOST SUCCESSFUL WHEN IT COMBINED BOTH IDEALISM AND PRAGMATISM. THOUGH THE MORAL

IMPULSE AND THE PRAGMATIC INCLINATION HAVE BEEN IN
TENSION WITH ONE ANOTHER THROUGH MANY PERIODS OF OUR
NATIONAL LIFE, OUR ENDEAVORS IN THE WORLD PROSPERED MOST
WHEN THEY WERE CREATIVELY COMBINED -- FROM THE DAYS
OF OUR FOUNDING FATHERS WHO UNDERSTOOD THE EUROPEAN
BALANCE OF POWER AND USED IT WITH SOPHISTICATION TO
SECURE OUR INDEPENDENCE, TO THE GREAT AMERICAN
INITIATIVES AFTER THE SECOND WORLD WAR.

[IT] IS NOT A CHOICE BETWEEN IDEALS AND SECURITY.
WE CANNOT SERVE EITHER UNLESS WE SERVE BOTH. WE MUST
BE TRUE TO OUR PRINCIPLES, OR 'ELSE' WE WILL LOSE OUR
BEARINGS IN THE WORLD. BUT WE MUST ALSO SURVIVE IN A
WORLD OF SOVEREIGN NATIONS AND COMPETING WILLS AND VARYING
PERCEPTIONS OF RIGHT OR WRONG.

OUR CHALLENGE IS TO STEER A COURSE BETWEEN RHETORICAL
PRESCRIPTION AND A CALLOUS ACCEPTANCE OF INHUMANITY.
HUMAN RIGHTS IS CLEARLY A LEGITIMATE SUBJECT OF

-42-

INTERNATIONAL DISCOURSE, AND AN OBJECT OF INTERNATIONAL
LEGAL STANDARDS -- IMPORTANTLY AS A RESULT OF

AMERICAN INITIATIVES. BUT OUR EFFORT MUST
BE RELATED TO THE FULL MOSAIC OF OUR POLICY GOALS -- TO
GIVE IT A PLACE AND MEANING IN TERMS OF EVERYTHING ELSE
WE DO IN FOREIGN AFFAIRS.

THIS IS BY NO MEANS AN EASY TASK. AMERICANS WILL
BE WRESTLING WITH IT AS LONG AS WE ARE ENGAGED IN
FOREIGN POLICY, WHICH IS TO SAY, FOREVER, WE MUST
PRESERVE BOTH OUR TRADITIONAL ASPIRATION TO BRING ABOUT
CHANGE, AND OUR TRADITIONAL PRACTICAL SENSE ABOUT HOW TO
DO IT. WE MUST SEE TO IT THAT OUR POLICY FOSTERS
CONSTRUCTIVE AMERICAN ENGAGEMENT AND RESPONSIBILITY IN THE
WORLD, NOT AN IMPULSE TO RETURN TO ISOLATIONISM OR A

DRIVE FOR INTERVENTION.

IV. **CONCLUSION**

AT THIS MOMENT, WE HAVE, FOR THE FIRST TIME IN
MORE THAN A DECADE, AN OPPORTUNITY TO GO FORWARD AS
A UNITED PEOPLE. NO LONG AND COSTLY WAR, NO
CONSTITUTIONAL CRISIS, CLOUDS OUR PROSPECT. WE ARE
PUTTING BEHIND US THE DESTRUCTIVE CYNICISM AND
VILIFICATION THAT HAS FOR SO LONG STAINED OUR
POLITICAL LIFE. IT IS GOOD THAT THIS IS SO. IF
AMERICA IS TO CONTRIBUTE TRULY TO PEACE IN THE
WORLD, IT MUST BE AT PEACE WITH ITSELF. WHILE WE MAY
DISAGREE SOMETIMES ABOUT MEANS, WE ALL SHARE THE SAME
DREAM OF SEEING PEACE, PROGRESS AND JUSTICE BECOME
THE INHERITANCE OF ALL MANKIND.

MOST OF THE WORLD LIVES WITHOUT THE BLESSINGS OF LIBERTY
AND WELLBEING THAT WE TAKE FOR GRANTED. THEREFORE, WE BEAR
A SPECIAL RESPONSIBILITY. ON OUR SHOULDERS, AND THOSE OF

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OTHER FREE NATIONS, REST THE BEST HOPES FOR THE HUMAN CONDITION IN AN AGE OF TURMOIL.

WESTERN CIVILIZATION HAS MET SUCH TESTS BEFORE. IN THE LATE 15TH CENTURY, EUROPE WAS IN A PERIOD OF DOUBT, PREOCCUPIED WITH A SENSE OF IMMINENT DISASTER. THE CITIES WHICH HAD SPARKED ITS REVIVAL FOLLOWING THE ISLAMIC CONQUESTS WERE IN DECLINE. ITS TERRITORY WAS BEING DIMINISHED BY THE DEPREDATIONS OF A POWERFUL INVADER FROM THE EAST. ITS SPIRITUAL, ECONOMIC, AND CULTURAL CENTER -- ITALY -- WAS A PREY TO ANARCHY AND DISMEMBERMENT.

AND YET EUROPE AT THAT VERY MOMENT WAS ALREADY WELL LAUNCHED ON ONE OF THE WORLD'S PERIODS OF GREATEST POLITICAL AND INTELLECTUAL ADVANCE. THE RENAISSANCE, THE GREAT DISCOVERIES, THE REVIVAL OF HUMANISTIC VALUES, THE INDUSTRIAL AND DEMOCRATIC REVOLUTIONS, WERE ALL TO BRING ABOUT THE DYNAMISM OF THE WESTERN CIVILIZATION OF WHICH WE, ALL THE INDUSTRIAL DEMOCRACIES, ARE HEIRS.

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SIMILARLY TODAY, THE INDUSTRIAL DEMOCRACIES, LED BY THE UNITED STATES, POSSESS THE ASSETS TO MEET THEIR CHALLENGES. OUR NATIONS HAVE BEEN THE VANGUARD OF THE MODERN AGE. OUR SOCIETIES HAVE PROVEN THEMSELVES THE VAST LABORATORY OF THE EXPERIMENT OF MODERNIZATION. ABOVE ALL, IT IS THE DEMOCRACIES THAT ORIGINATED -- AND KEEP ALIVE TODAY -- THE VISION OF POLITICAL FREEDOM, SOCIAL JUSTICE, AND ECONOMIC WELL-BEING FOR ALL PEOPLE. NONE OF US LIVES UP TO THIS VISION IDEALLY, OR ALL THE TIME. BUT THE RIGOROUS STANDARD BY WHICH WE JUDGE OURSELVES IS WHAT MAKES US DIFFERENT FROM TOTALITARIAN SOCIETIES OF THE LEFT OR THE RIGHT.

SO AS A NEW ADMINISTRATION LAUNCHES ITSELF WITH ENERGY AND CONVICTION, IT WILL HAVE BEHIND IT A NATION TEMPERED BY TRAGEDY BUT CONFIDENT OF THE FUTURE, AWARE OF ITS LIMITS BUT UNAFRAID OF ITS REACH, AND INSPIRED BY THE FAITH THAT THOUGH

AS PREPARED FOR DELIVERY

ADDRESS BY

TUESDAY, APRIL 5, 1977

FATHER HEALY, DEAN KROGH, GENERAL GARD, ADMIRAL HARDISTY, DISTINGUISHED GUESTS, LADIES AND GENTLEMEN,

THE FRANK NASH MEMORIAL LECTURE COMMEMORATES BOTH AN OUTSTANDING PUBLIC SERVANT AND A VITAL PUBLIC PRINCIPLE. [IT WAS ESTABLISHED TO BRING TOGETHER THE REALMS OF DEFENSE AND DIPLOMACY.] THE ESSENTIAL UNITY OF SECURITY POLICY AND FOREIGN POLICY HAS NOT ALWAYS BEEN UNDERSTOOD -- PARTICULARLY IN AN AMERICA WHOSE EXPERIENCE, UNTIL RECENTLY, DID NOT COMPEL A SUSTAINED INVOLVEMENT IN INTERNATIONAL AFFAIRS. FRANK NASH -- AS ASSISTANT SECRETARY OF DEFENSE FOR INTERNATIONAL SECURITY AFFAIRS AS ARMS CONTROL NEGOTIATOR, AND IN MANY OTHER ASSIGNMENTS AT THE HIGHEST LEVELS OF GOVERNMENT -- GRASPED THAT UNITY, AND EMBODIED IT IN HIS OWN DISTINGUISHED CAREER.

-2-

-3-

THEIR ACHIEVEMENTS WILL BE THE NATION'S ACHIEVEMENTS;
would be
THEIR SETBACKS ARE THE NATION'S SETBACKS.

AS ONE WHO HAS SEEN FOREIGN AFFAIRS AS AN ACADEMIC
AND AS A PRACTITIONER, I KNOW THE DIFFERENCE BETWEEN
THE TWO PERSPECTIVES. FOR POLICYMAKERS THE OPPORTUNITY
OF CHOICE IS MARRIED TO THE BURDEN OF DECISION. THEY
LIVE AMID FAST-MOVING EVENTS; THEY MUST ACT BEFORE THE
OUTCOME CAN BE KNOWN AND EVEN BEFORE ALL THE FACTS ARE
IN HAND. THEY ARE RESPONSIBLE IF THE WORST OCCURS, AND
HENCE CANNOT GAMBLE ONLY ON THE BEST PROJECTION. THEY
MUST DECIDE AMONG ALTERNATIVES, EACH OF WHICH CONTAINS
RISKS. THEY MUST UNDERSTAND AND WEIGH -- EVEN WHEN
OUTSIDERS DO NOT -- THE CONSEQUENCES TO AVOID AS WELL
AS THE GOALS TO PURSUE.

-4-

[L]

NOT SINCE PRESIDENT EISENHOWER HAVE WE HAD AN ADMINISTRATION THAT COMPLETED ITS ELECTED TERM WITHOUT ASSASSINATION, WAR OR UPHEAVAL. THE IMPACT OF THESE CONVULSIONS ON OUR NATIONAL SELF-CONFIDENCE HAS BEEN TRAUMATIC. IT IS ESSENTIAL THAT THE TIME OF HEALING SO WELL BEGUN BY PRESIDENT FORD CONTINUE. PRESIDENT CARTER TAKES OFFICE WITH THE BEST CHANCE IN TWO DECADES TO LEAD THE NATION TOWARD ITS GOALS IN CONDITIONS OF HOPE. HE INHERITS A NATION AT PEACE AND HAS BEFORE HIM SIGNIFICANT OPPORTUNITIES FOR MAJOR PROGRESS -- IN Strategic Arms Limitation Talks RELATIONS WITH ALLIES AND ADVERSARIES, IN SALT, IN THE MIDDLE EAST, IN AFRICA, IN OUR POLICY TOWARD CHINA, AND WITH THE DEVELOPING COUNTRIES. HE ALSO CONFRONTS A WORLD OF GREAT PERIL.

-5-

-6-

[L]

-7-

[L]

WE LIVE TODAY IN A WORLD OF SOME 150 SOVEREIGN NATIONS, WITH MANY DIVERSE CENTERS OF POLITICAL, MILITARY AND ECONOMIC POWER. THE COMMUNIST WORLD - divided HAS BEEN RIVEN BY BITTER RIVALRIES OVER DOCTRINE AND NATIONAL AIMS -- DISPUTES MADE ALL THE MORE INTRACTABLE BECAUSE COMMUNIST THEORY DENIES THEIR POSSIBILITY AND HENCE PROVIDES NEITHER MECHANISM NOR FLEXIBILITY FOR THEIR RESOLUTION. AS OUR ALLIES HAVE GROWN IN STRENGTH AND SELF-ASSURANCE, OUR RELATIONS WITH WESTERN EUROPE AND JAPAN HAVE BECOME A MORE BALANCED PARTNERSHIP OF LIKE-MINDED DEMOCRATIC NATIONS. THE OIL-PRODUCING

[L]

-8-

COUNTRIES ARE NOW A SUBSTANTIAL ECONOMIC FORCE. THE SO-CALLED NON-ALIGNED HAVE FORMED A BLOC OF THEIR OWN, WHICH, STRIVING FOR UNITY ON INTERNATIONAL ISSUES, PAPERS OVER SERIOUS DIFFERENCES OF NATIONAL PERSPECTIVE AND INTEREST. IT IS A WORLD OF RAMPANT NATIONALISM, IDEOLOGICAL RIVALRY, DIFFUSE ECONOMIC POWER, REGIONAL POLITICAL CONFLICTS AND PROLIFERATING NUCLEAR WEAPONS.

-9-

IDEOLOGICAL CONFLICT WE MUST DISTILL A CONCEPT OF
WORLD ORDER. OUT OF TURBULENCE WE MUST CREATE A
GLOBAL EQUILIBRIUM. AND AT HOME, OUT OF THE DISCORDS
OF THE PAST WE MUST GENERATE [NEW] DYNAMISM AND
PURPOSE.

I WANT TO TAKE THIS OCCASION TO REFLECT WITH
YOU ON THREE OF THE PERMANENT PROBLEMS THAT CONFRONT
nation
THIS NATION, PROBLEMS THAT ANY ADMINISTRATION WOULD AND
WILL FACE -- PROBLEMS THAT DESERVE DEBATE, OF COURSE,
BUT SYMPATHETIC UNDERSTANDING ABOVE ALL:

-10-

-11-

[L]

DECISIONS -- OF ACTING AGAINST DANGERS WHILE THEY STILL ONLY MARGINALLY THREATENED OUR SECURITY. WE NO LONGER HAVE THIS LUXURY. THERE ARE NO OTHER NATIONS STRONG ENOUGH/TO RESIST MAJOR AGGRESSION WHILE WE ASSESS OUR PERIL. AND MODERN TECHNOLOGY HAS DESTROYED THE OPTION OF STANDING APART FROM WORLD EVENTS.

HENCEFORTH, SECURITY FOR FREE MEN EVERYWHERE DEPENDS ON OUR UNIMPAIRED STRENGTH. WE AND THOSE WHO ARE JOINED WITH US CAN ACHIEVE NO POSITIVE ENDS UNLESS WE SURVIVE; AND SURVIVAL HAS ITS PRACTICAL NECESSITIES. EQUILIBRIUM IS THE PRECONDITION OF SECURITY; SECURITY IS THE PRECONDITION OF PEACE; AND PEACE IS THE PRECONDITION FOR THE MORAL AND MATERIAL PROGRESS OF MANKIND. A DIPLOMACY THAT IGNORES THE OBJECTIVE CONDITIONS OF INTERNATIONAL EQUILIBRIUM WILL BE DOOMED TO DISAPPOINTMENT AND TRAGEDY AND WILL BRING ABOUT GLOBAL CHAOS.

-12-

IN SUCH AN ENVIRONMENT, THERE ARE A NUMBER OF BASIC
AND INESCAPABLE REALITIES.

FIRST, THE OVERALL MILITARY BALANCE _MUST_ BE
MAINTAINED. NO SOVEREIGN NATION WILLINGLY ENTRUSTS ITS
DESTINY TO THE FOREBEARANCE OF OTHERS, ESPECIALLY THOSE
WHOSE VALUES ARE ANTITHETICAL. AN IMBALANCE OF POWER

-13-

[PRESIDENT CARTER PUT IT WELL IN HIS INAUGURAL ADDRESS: "WE DO NOT SEEK TO INTIMIDATE, BUT IT IS CLEAR THAT A WORLD WHICH OTHERS CAN DOMINATE WITH IMPUNITY WOULD BE INHOSPITABLE TO DECENCY AND A THREAT TO THE WELLBEING OF ALL PEOPLE."]

SECOND, AS THE SOVIET UNION GAINS INDUSTRIAL STRENGTH AND TECHNOLOGICAL SOPHISTICATION, ITS MILITARY OPTIONS AND POTENTIAL INEVITABLY INCREASE. THAT A TOTALITARIAN COUNTRY OF CONTINENTAL SIZE SHOULD DETERMINE TO EXPAND ITS POWER AND BE WILLING TO IMPOSE ENORMOUS SACRIFICES ON ITS PEOPLE, [TO DO SO] IS NEITHER NEW NOR SURPRISING. BUT IT DOES IMPOSE ON US A PERMANENT TASK OF MATCHING SOVIET POWER AND THE