WHAT IS NEEDED?

How to end the Cold War? How to increase democracy in America? These are the decisive issues confronting liberal and socialist forces today. To us, the issues are intimately related, the struggle for one invariably being a struggle for the other. What policy and structural alternatives are needed to obtain these ends?

1. Universal controlled disarmament must replace deterrence and arms control as the national defense goal.

The strategy of mutual threat can only temporarily prevent thermonuclear war, and it cannot but erode democratic institutions here while consolidating oppressive institutions in the Soviet Union. Yet American leadership, while giving rhetorical due to the ideal of disarmament, persists in accepting mixed deterrence as its policy formula: under Kennedy we have seen first-strike and second-strike weapons, counter-military and counter-population inventions, tactical atomic weapons and guerilla warriors, etc. The convenient rationalization that our weapons potpourri will confuse the enemy into fear of misbehaving is absurd and threatening. Our own intentions, once clearly retaliatory, are now ambiguous since the President has indicated we might in certain circumstances be the first to use nuclear weapons. We can expect that Russia will become more anxious herself, and perhaps even prepare to "preempt" us, and we (expecting the worst from the Russians) will nervously consider "preemption" ourselves. The symmetry of threat and counter-threat lead not to stability but to the edge of hell.

It is necessary that America make disarmament, not nuclear deterrence, "credible" to the Soviets and to the world. That is, disarmament should be continually avowed as a national goal; concrete plans should be presented at conference tables; real machinery for a disarming and disarmed world -- national and international -- should be created while the disarming process itself goes on. The long-standing idea of unilateral initiative should be implemented as a basic feature of American disarmament strategy: initiatives that are graduated in their ~~~ potential, accompanied by invitations to reciprocate when done regardless of reciprocation, openly ~~~ significant period of future time. Their ~~~ should not be to strip America of weapon, ~~~ produce a climate in which disarmament can be ~~~ with less mutual hostility and threat. They might include: a unilateral nuclear test moratorium, withdrawal of several bases near the Soviet Union, proposals to experiment in disarmament by stabilization of zone of controversy; cessation of all apparent first-strike preparations, such as the development of 41 Polaris by 1963 while naval theorists state that about 45 constitutes a provocative force; inviting a special United Nations agency to observe and inspect the launchings of all American flights into outer space; and numerous others.

There is no simple formula for the content of an actual disarmament treaty. It should be phased: perhaps on a region-by-region basis, the conventional weapons first. It should be conclusive, not open-ended, in its projection. It should be controlled: national inspection systems are adequate at first, but should be soon replaced by international devices and teams. It should be more than denuding: world or at least regional enforcement agencies, an international civil service and inspection service, and other supranational groups must come into reality under the United Nations.

2. Disarmament should be see as a political issue, not a technical problem.

Should this year's Geneva negotiations have resulted (by magic) in a disarmament agreement, the United States Senate would have refused to ratify it, a domestic depression would have begun instantly, and every fiber of American life would be wrenched drastically: these are indications not only of our unpreparedness for disarmament, but also that disarmament is not "just another policy shift." Disarmament means a deliberate shift in most of our domestic and foreign policy.

A: It will involve major changes in economic direction. Government intervention in new areas, government regulation of certain industrial price and investment practices to prevent inflation, full use of national productive capacities, and employment for every person in a dramatically expanding economy all are to be expected as the "price" of peace.

B: It will involve the simultaneous creation of international rulemaking and enforcement machinery beginning under the United Nations, and the gradual transfer of sovereignties -- such as national armies and national determination of "international" law -- to such machinery.

C: It will involve the initiation of an explicitly political -- as opposed to military -- foreign policy on the part of the two major superstates. Neither has formulated the political terms in which they would conduct their behavior in a disarming or disarmed world. Neither dares to disarm until such an understanding is reached.

3. A crucial feature of this political understanding must be the acceptance of status quo possessions.

According to the universality principle all present national entities -- including the Vietnams, the Koreans, the Chinas, and the Germanys -- should be members of the United Nations as sovereign, no matter how desirable, states.

Russia cannot be expected to negotiate disarmament treaties for the Chinese. We should not feed Chinese fanaticism with our encirclement but Chinese stomachs with the aim of making war contrary to Chinese policy interests. Every day that we support anti-communist tyrants but refuse to even allow the Chinese Communists representation in the United Nations marks a greater separation of our ideals and our actions, and it makes more likely bitter future relations with the Chinese.

Second, we should recognize that an authoritarian Germany's insistence on reunification, while knowing the impossibility of achieving it with peaceful means, could only generate increasing frustrations among the population and nationalist sentiments which frighten its Eastern neighbors who have historical reasons to suspect Germanic intentions. President Kennedy himself told the editor of Izvestia that he fears an independent Germany with nuclear arms, but American policies have not demonstrated cognisance of the fact that Chancellor Adenauer too, is interested in continued East-West tensions over the Germany and Berlin problems and nuclear arms precisely because this is the rationale for extending his domestic power and his influence upon the NATO-Common Market alliance.

A world war over Berlin would be absurd. Anyone concurring with such a proposition should demand that the West cease its contradictory advocacy of "reunification of Germany through free elections" and "a rearmed Germany in NATO". It is a dangerous illusion to assume that Russia will hand over East Germany to a rearmed re-united Germany which will enter the Western camp, although this Germany might have a Social Democratic majority which could prevent a reassertion of German nationalism. We have to recognize that the cold war and the incorporation of Germany into the two power blocs was a decision of both Moscow and Washington, of both Adenauer and Ulbricht. The immediate responsibility for the Berlin wall is Ulbricht's. But it had to be expected that a regime which was bad enough to make people flee is also bad enough to prevent them from fleeing. The inhumanity of the Berlin wall is an ironic symbol of the irrationality of the cold war, which keeps Adenauer and Ulbricht in power. A reduction of the tension over Berlin, if by internationalization or by recognition of the status quo and reducing provocations, is a necessary but equally temporary measure which could not ultimately reduce the basic cold war tension to which Berlin owes its precarious situation. The Berlin problem cannot be solved without reducing tensions in Europe, possibly by a bilateral military disengagement and creating a neutralized buffer zone. Even if Washington and Moscow were in favor disengagement, both Adenauer and Ulbricht would never agree to it because cold war keeps their parties in power.

Until their regimes' departure from the scene of history, the Berlin status quo will have to be maintained while minimizing the tensions necessarily arising from it. Russia cannot expect the United States to tolerate its capture by the Ulbricht regime, but neither can America expect to be in a position to indefinitely use Berlin as a fortress within the communist world. As a fair and bilateral disengagement in Central Europe seems to be impossible for the time being, a mutual recognition of the Berlin status quo, that is, of West Berlin's and East Germany's security, is needed. And it seems to be possible, although the totalitarian regime of East Germany and the authoritarian leadership of West Germany until now succeeded in frustrating all attempts to minimize the dangerous tensions of cold war.

The strategy of securing the status quo of the two power blocs until it is possible to depolarize the world by creating neutralist regions in all trouble zones seems to be the only way to guarantee peace at this time.

4. Experiments in disengagement and demilitarization must be conducted as part of the total disarming process.

These "disarmament experiments" can be of several kinds, so long as they are consistent with the principles of containing the arms race and isolating specific sectors of the world from the Cold War power-play. First, it is imperative that no more nations be supplied with, or locally produce, nuclear weapons. A 1959 report of the National Academy of Arts and Sciences predicted that 19 nations would be so armed in the near future. Should this prediction be fulfilled, the prospects of war would be unimaginably expanded. For this reason the United States, Great Britain and the Soviet Union should band against France (which wants its own independent deterrent) and seek, through United Nations or other machinery, the effective prevention of the spread of atomic weapons. This would involve not only declarations of "denuclearization" in whole areas of Latin America, Africa, Asia and Europe, but would attempt to create inspection machinery to guarantee the peaceful use of atomic energy.

Second, the United States should reconsider its increasingly outmoded European defense framework, the North Atlantic Treaty Organization. Since its creation in 1949, NATO has assumed increased strength in overall determination of Western military policy, but has become less and less relevant to its original purpose, which was the defense of Central Europe. To be sure, after the Czech coup of 1948, it might have appeared that the Soviet Union was on the verge of a full-scale assault on Europe. But that onslaught has not materialized, not so much because of NATO's existence but because of the general unimportance of much of Central Europe to the Soviets. Today, when even American-based ICBMs could smash Russia minutes after an invasion of Europe, when the Soviets have no reason to embark on such an invasion, and when "thaw sectors" are desperately needed to brake the arms race, one of at least threatening but most promising courses for American would be toward the gradual diminishment of the NATO forces, coupled with the negotiated "disengagement" of parts of Central Europe.

It is especially crucial that this be done while America is entering into favorable trade relations with the European Economic Community: such a gesture, combining economic ambition with less dependence on the military, would demonstrate the kind of competitive "co-existence" America intends to conduct with the communist-bloc nations. If the disengaged states were the two Germanies, Poland and Czechoslovakia, several other benefits would accrue. First, the United States would be breaking with the lip-service commitment to "liberation" of Eastern Europe which has contributed so much to Russian fears and intransigence, while doing too little about actual liberation. But the end of "liberation" as a proposed policy would not signal the end of American concern for the oppressed in East Europe. On the contrary, disengagement would be a real, rather than a rhetorical, effort to ease military tensions, thus undermining the Russian argument for tighter controls in East Europe based on the "menace of capitalist encirclement". This policy, geared to the needs of democratic elements in the satellites, would develop a real bridge between East and West across the two most pro-Western Russian satellites. The Russians in the past have indicated some interest in such a plan, including the demilitarization of the Warsaw pact countries. Their interest should be publicly tested. If disengagement could be achieved, a major zone could be removed from the Cold War, the German problem would be materially diminished, and the need for NATO would diminish, and attitudes favorable to disarming would be generated.

Needless to say, those proposals are much different than what is currently being practised and praised. American military strategists are slowly acceeding to the NATO demand for an independent deterrent, based on the fear that America might not defend Europe from military attack. These tendencies strike just the opposite chords in Russia than those which would be struck by disengagement themes: the chords of military alertness, based on the fact that NATO (bulwarked by the German Wehrmacht) is preparing to attack Eastern Europe or the Soviet Union. Thus the alarm which underlies the NATO proposal for an independent deterrent is likely itself to bring into existence the very Russian posture that was the original cause of fear. Armaments spiral and belligerence will carry the day, not disengagement and negotiation.

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THE INDUSTRIALIZATION OF THE WORLD

Many Americans are prone to think of the industrialization of the newly developed countries as a modern form of American noblesse, undertaken sacrificially for the benefit of others. On the contrary, the task of world industrialization, of eliminating the disparity between have and have-not nations, is as important as any issue facing America. The colonial revolution signals the end of an era for the old Western powers and a time of new beginnings for most of the people of the earth. In the course of these upheavals, many problems will emerge: American policies must be revised or accelerated in several ways.

1. The United States' principal goal should be creating a world where hunger, poverty, disease, ignorance, violence, and exploitation are replaced as central features by abundance, reason, love, and international cooperation.

To many this will seem the product of juvenile hallucination: but we insist it is a more realistic goal than is a world of nuclear stalemate. Some will say this is a hope beyond all bounds: but is far better to us to have positive vision than a "hard headed" resignation. Some will sympathize, but claim it is impossible: if so, then, we, not Fate, are the responsible ones, for we have the means at our disposal. We should not give up the attempt for fear of failure.

2. We should undertake here and now a fifty-year effort to prepare for all nations the conditions of industrialization.

Even with far more capital and skill than we now import to emerging areas, serious prophets expect that two generations will pass before accelerating industrialism is a worldwide act. The needs are numerous: every nation must build an adequate intrastructure (transportation, communication, land resources, waterways) for future industrial growth; there must be industries suited to the rapid development of differing raw materials and other resources; education must begin on a continuing basis for everyone in the society, especially including engineering and technical training; technical assistance from outside sources must be adequate to meet present and long-term needs; atomic power plants must spring up to make electrical energy available. With America's idle productive capacity, it is possible to begin this process immediately without changing our military allocations. This might catalyze a "peace race" since it would demand a response of such magnitude from the Soviet Union that arms spending and "coexistence" spending would become strenuous, perhaps impossible, for the Soviets to carry on simultaneously.

3. We should not depend significantly on private enterprise to do the job.

Many important projects will not be profitable enough to entice the investment of private capital. The total amount required is far beyond the resources of corporate and philanthropic concerns. The new nations are suspicious, legitimately, of foreign enterprises dominating their national life. World industrialization is too huge an undertaking to be formulated or carried out by private interests. Foreign economic assistance is a national problem, requiring long range planning, integration with other domestic and foreign policies, and considerable public debate and analysis. Therefore the Federal government should have primary responsibility in this area.

4. We should not lock the development process into the Cold War: we should view it as a way of ending that conflict.

When President Kennedy declared that we must aid those who need aid because it is right, he was unimpeachably correct -- now principle must become practice. We should reverse the trend of aiding corrupt anti-communist regimes. To support dictators like Diem while trying to destroy ones like Castro will only enforce international cynicism about American "principle", and is bound to lead to even more authoritarian revolutions, especially in Latin America where we did not even consider foreign aid until Castro had challenged the status quo. We should end the distinction between communist hunger and anti-communist hunger. To feed only anticommunists is to directly fatten men like Boun Oum, to incur the wrath of real democrats, and to distort our own sense of human values. We must cease seeing development in terms of communism and capitalism. To fight communism by capitalism in the newly-developing areas is to fundamentally misunderstand the international hatred of imperialism and colonialism and to confuse and needs of 19th century industrial America with those of contemporary nations.

Quite fortunately, we are edging away from the Dullesian "either-or" foreign policy ultimatum towards an uneasy acceptance of neutralism and nonalignment. If we really desire the end of the Cold War, we should now welcome nonalignment -- that is, the creation of whole blocs of nations concerned with growth and with independently trying to break out of the Cold War apparatus.

Finally, while seeking disarmament as the genuine deterrent, we should shift from financial support of military regimes to support of national development. Real security cannot be gained by propping up military defenses, but only through the hastening of political stability, economic growth, greater social welfare, improved education. Military aid is temporary in nature, a "shoring up" measure that only postpones crisis. In addition, it tends to divert the allocations of the nation being defended to supplementary military spending (Pakistan's budget is 70 percent oriented to defense measures). Sometimes it actually creates crisis situations, as in Latin America where we have contributed to the growth of national armies which are opposed generally to sweeping democratization. Finally, if we are really generous, it is harder for corrupt governments to exploit unfairly economic aid -- especially if it is to plentiful that rulers cannot blame the absence of real reforms on anything but their own power lusts.

5. America should show its commitment to democratic institutions not by withdrawing support from undemocratic regimes, but by making domestic democracy exemplary.

Worldwide amusement, cynicism and hatred toward the United States as a democracy is not simply a communist propaganda trick, but an objectively justifiable phenomenon. If respect for democracy is to be international, then the significance of democracy must emanate from America shores, not from the "soft sell" of the United States Information Agency.

6. America should agree that public utilities, railroads, mines, and plantations, and other basic economic institutions should be in the control of national, not foreign, agencies.

The destiny of any country should be determined by its nationals, not by outsiders with economic interests within. We should encourage our investors to turn over their foreign holdings (or at least 50 percent of the stock) to the national governments of the countries involved.

7. Foreign aid should be given through international agencies, primarily the United Nations.

The need is to eliminate political overtones, to the extent possible, from economic development. The use of international agencies, with interests transcending those of American or Russian self-interest, is the feasible means of working on sound development. Second, internationalization will allow more long-range planning, integrate development plans adjacent countries and regions may have, and eliminate the duplication built into national systems of foreign aid. Third, it would justify more strictness of supervision than is now the case with American foreign aid efforts, but with far less chance of suspicion on the part of the developing countries. Fourth, the humiliating "hand-out" effect would be replaced by the joint participation of all nations in the general development of the earth's resources and industrial capacities. Fifth, it would eliminate national tensions, e.g. between Japan and some Southeast Asian areas, which now impair aid programs by "disguising" nationalities in the common pooling of funds. Sixth, it would make easier the task of stabilizing the world market prices of basic commodities, alleviating the enormous threat that decline in prices of commodity exports might cancel out the gains from foreign aid in the new nations. Seventh, it would improve the possibilities of non-exploitative development, especially in creating "soft-credit" rotating-fund agencies which would not require immediate progress or financial return. Finally, it would enhance the importance of the United Nations itself, as the disarming process would enhance the UN as a rule-enforcement agency.

8. Democratic theory must confront the problems inherent in social revolutions.

For Americans concerned with the development of democratic societies, the anti-colonial movements and revolutions in the emerging nations pose serious problems. We need to face these problems with humility: after 180 years of constitutional government we are still striving for democracy in our own society. We must acknowledge that democracy and freedom do not magically occur, but have roots in historical experience; they cannot always be demanded for any society at any time, but must be nurtured and facilitated. We must avoid the arbitrary projection of Anglo-Saxon democratic forms onto different cultures. Instead of democratic capitalism we should anticipate more or less authoritarian variants of socialism and collectivism in many emergent societies.

But we do not abandon our critical faculties. Insofar as these regimes represent a genuine realization of national independence, and are engaged in constructing social systems which allow for personal meaning and purpose where exploitation once was, economic systems which work for the people where once they oppressed them, and political systems which allow for the organization and expression of minority opinion and dissent, we recognize their revolutionary and positive character. Americans can contribute to the growth of democracy in such societies not by moralizing, nor by indiscriminate prejudgment, but by retaining a critical identification with these nations, and by helping them to avoid external threats to their independence. Together with students and radicals in these nations we need to develop a reasonable theory of democracy which is concretely applicable to the cultures and conditions of hungry people.

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