The nightmare is over. The vanquished beast has crawled back to Mar-a-Lago to lick his wounds. The heroes are hard at work repairing the damage. As America returns to the international stage, the world heaves a collective sigh of relief.
That, at least, is the story the incoming Biden administration is telling. “America is back, multilateralism is back, diplomacy is back,” as Linda Thomas-Greenfield, the administration’s nominee for U.N. ambassador, put it shortly after the election. According to this narrative of redemption, the globe’s Atlas shrugged off its burden during the four years of Donald Trump’s tenure but is now ready to reassume its global leadership responsibilities.
Don’t believe it, though. Much of the rest of the world seems visibly queasy at the prospect of sitting on America’s shoulders, since who’s to say that Atlas won’t shrug again?
And perhaps Atlas wasn’t such a responsible fellow in the first place.
Over the last several decades, the United States has displayed all the hallmarks of a country suffering from a serious personality disorder characterized by mood swings of gargantuan proportions. From the compromised multilateralism of the Bill Clinton years, the United States pivoted to the aggressive armed unilateralism of George W. Bush. Then, after boomeranging back to the centrist (if still over-armed) internationalism of Barack Obama, it took the wildest of detours into MAGA-land with Donald Trump. In the latest case of foreign-policy whiplash, Joe Biden is now preparing to return the country to a “new and improved” version of Obama’s global liberalism (with a dash of anti-Chinese fervor thrown in).
Americans are by now remarkably familiar with such side effects of twenty-first-century democracy. We’ve skimmed the fine print on the label more than once and become reasonably inured to the adverse consequences of our civic religion.
Much of the world, however, is not accustomed to such volatility. The Kim family has ruled North Korea from day one, while Paul Biya has run Cameroon since 1982. Over the last 30 years, China has settled into its predictable version of market Leninism. Putatively democratic countries like Russia and Turkey have had the same leadership for two decades, while a genuinely democratic country like Germany has had the same chancellor for 15 years. The rest of Western Europe has seen numerous changes in those who hold the reins of power, but oscillations in governance have generally stayed within a relatively narrow political spectrum. European Union policies have similarly remained on a remarkably even keel, despite disruptions like Brexit.
These days, however, democrats and dictators alike are unsure, from one day to the next, whether the United States will be Dr. Jekyll or Mr. Hyde.
On the surface, the international community has generally provided a warm welcome to the incoming administration, if only out of profound relief at seeing the backside of Donald Trump. True, it took Vladimir Putin a while to get around to acknowledging Joe Biden’s victory, while Jair Bolsonaro in Brazil grumbled about the departure of his American BFF, as did Hungary’s Viktor Orbán and a number of other right-wing populists.
But Biden was a clear international favorite in the recent presidential election. According to an Ipsos poll of people in 24 countries, Biden had an edge of 48% to 17% over Trump, with only the Russians as outliers. And postelection, the favorability of the United States has only risen (except perhaps in Russia and China).
Beneath the surface, however, the world is hesitant, like an oft-jilted lover. Country after country has been burned too many times to throw itself back into such a relationship without reservations, if not a full-blown prenuptial agreement. As NATO Secretary General Jens Stoltenberg put it with characteristic understatement, “There is a need to rebuild trust between Europe and the United States.” Indeed, just about every member of the U.N. General Assembly would undoubtedly have agreed.
Such an erosion of trust defines what it means to be an unreliable superpower. Even as the Biden administration works to “build back better,” allies and adversaries alike are busy hedging their bets, concerned that the United States is simply too unpredictable a place to park political capital. And where it remains all-too-predictable — as in its preposterous levels of military spending or its obdurate sense of exceptionalism — Washington no longer looks to many like a reliable global actor from the perspective of peace or prosperity.
The Biden administration seems remarkably tone-deaf when it comes to the hesitancy of the international community to repeat past mistakes. “We can make America, once again, the leading force for good in the world,” Biden insisted in his Inaugural Address. “We will lead not merely by the example of our power but by the power of our example.”
With its talk of regaining global leadership, the Biden administration seems as committed to the notion that the United States is still “the indispensable power” as it was when former Secretary of State Madeleine Albright uttered that phrase in 1998. “If we have to use force, it is because we are America,” Albright told Matt Lauer back then on The Today Show. “We stand tall and we see further than other countries into the future, and we see the danger here to all of us.”
Particularly in the wake of the travesties of the Trump era, the global stature of this indispensable land has shrunk immeasurably. In their responses to crises like Covid-19 and a warming planet, other countries now stand taller and see further into the future. More ominously, the danger they do see increasingly has the stars and stripes plastered all over it.
Reversing the Reverses
Donald Trump didn’t even have to wait for a new administration to reverse his policies. He was perfectly capable of reversing them himself — multiple times.
No wonder NATO head Stoltenberg has been preoccupied with the issue of trust. As a candidate, Trump swore NATO was “obsolete,” only to change his mind within months of taking office. Yet, a year later, he was talking about pulling the United States out of the alliance completely. By 2020, on the other hand, he was suggesting incorporating Middle Eastern countries into it.
And Trump wasn’t just fickle when it came to NATO. In 2017, he threatened North Korea with the “fire and fury” of nuclear destruction only to sit down with North Korean leader Kim Jong-Un two years later. He went back and forth about Chinese leader Xi Jinping, too, claiming in 2018 that “Xi and I will always be friends,” only to call him an “enemy” a year later. He then reversed himself with his early 2020 avowal that “we love each other,” before turning hostile yet again in the COVID-19 era. What Trump diehards argued was crafty bargaining looked a whole lot more like beginner’s incoherence.
Joe Biden has already taken a more consistent approach to reversing Trump’s policies than The Donald did to his own policies. In his first executive orders, the new president brought the United States back into the World Health Organization (WHO) and the Paris climate accords. He reversed Trump’s policies on immigration, cancelled the Muslim travel ban, and ended funding for the largely unbuilt wall on the border with Mexico. He quickly hit rewind on those environmental deregulations of the Trump administration and the previous president’s approval of the Keystone XL pipeline.
In addition, the Biden team soon hopes to reenter the Iran nuclear deal, revive arms control negotiations with Russia, and at least mitigate the impact of the trade sanctions against China.
That’s all to the good. But who’s to say that the next occupant of the Oval Office won’t reverse Biden’s reversal of Trump’s reversal of Obama’s initiatives?
In addition, once the sugar rush of Biden’s executive orders fades, an immediate threat lurks: Congress. The Democratic Party controls both houses — but just barely. The lack of a filibuster-proof majority in the Senate is likely to be a significant obstacle to any lasting transformation of key aspects of foreign policy in a more peaceful and cooperative direction, even if the Biden administration were committed to such a goal.
Republicans are already hoping to delay the U.S. reentry into the Iran nuclear deal, complicate Washington’s involvement in global efforts to address the climate crisis, and keep the pressure on both China and Russia. Trying to ratify a treaty to ban all nuclear tests or make the United States a member of the International Criminal Court, which would require a two-thirds vote in the Senate, will prove even longer shots.
What Americans interpret as an insider game of partisanship, the rest of the world sees as a hamstrung country incapable of acting decisively on international problems. And such a deadlock might turn into something even worse. Trump’s MAGA crew are, after all, alive and well in Congress and throughout the red states. Should things go badly economically or pandemically for the Biden White House, they could regain control of one or both chambers in the midterm elections of 2022.
Even more troubling is the extremist wildcard. The events of January 6th shocked the world into realizing that America’s lunatic fringe is no longer content just to lurk on the margins of politics as Internet trolls and barstool conspiracy theorists. It’s one thing to take into account the logjams produced by Republican Party obstructionism. It’s quite another to worry that the United States will tip into a second civil war.
Smart money avoids such risks.
How the United States is Reliably Unreliable
Even when this country is predictable, it’s still an unreliable global partner.
Take the issue of Covid-19. The Biden administration has made a splash by instantly rejoining the WHO and resuming its financial obligations to it. In the last stimulus package, Congress anticipated this trend by including $4 billion in funding for GAVI, a global vaccine alliance, with Democrats acknowledging that “we are not truly safe until the whole world is safe from the coronavirus.”
But when the rubber hits the road — and the needles hit the arms — the United States has promptly fallen back on its usual exceptionalism. In the chaos of the immediate post-Trumpian moment, the Biden administration has been pushing to vaccinate as many Americans as possible without significant regard for anyone else. Along with other rich countries, Washington has exercised purchase options that could more or less corner the market on vaccines, securing enough doses, in the end, to inoculate Americans nearly five times over.
The global effort to vaccinate lower-income countries, also known by the acronym COVAX, is several billion dollars short of what it needs even to begin seriously implementing its plan. And keep in mind that the plan itself is woefully insufficient, since it aims to vaccinate only 20% of the inhabitants of participating nations by the end of 2021.
Not every country is practicing vaccine nationalism though. Even as it rushes to inoculate its 1.3 billion citizens, India is helping out its neighbors, providing two million doses free of charge to Bangladesh, aiding Nepal and Myanmar, and even sending its vaccines to Brazil and Morocco. Both China and Russia are also engaging in vaccine diplomacy, reaching out to the Global South with their lower-cost versions of Covid-19 drugs.
Putting America first extends to other aspects of geopolitics as well. The United States can, for instance, be counted upon to remain the world’s top arms exporter in the Biden years. In 2020, it signed agreements for more than $175 billion in sales of military hardware to other countries, far above what runner-up Russia manages to push out. Of course, such exports, in turn, fuel armed conflicts overseas, while inflating military budgets all over the world.
America is also number one when it comes to overseas military bases, with hundreds of facilities around the world, which militarize communities and serve as launching pads for U.S. operations. In comparison, Russia, France, and the United Kingdom together maintain a total of 30 such bases. And add in one more thing: aside from Australia, a few island nations, and tiny Gulf states, the United States has the highest per-capita carbon footprint on the planet. In its rush to use the planet’s resources, our country is making it more likely that the planet will soon be uninhabitable for much of humanity.
With a reliably unreliable friend like that, who needs enemies?
The World Hedges Its Bets
Russia was one of the few places on Earth, from its government to its citizenry, that showed little excitement for recent political developments in Washington.
“From Russia’s perspective, the political situation in the United States has not fundamentally changed as a result of the election,” said Dmitry Suslov of the National Research University Higher School of Economics in Moscow. “The intense political polarization that we have witnessed over the past four years is not going away anywhere, so obviously Biden will not have a broad mandate to govern.” Because of this political deadlock, Suslov added, Russia would avoid any direct conflict with the United States and instead improve relations with China and other powers like India.
Russia is a little late to the game. China was hedging its bets long before the November election. Its trillion-dollar-plus Belt and Road Initiative of infrastructure development in Eurasia (and northeastern Africa), launched in 2013 to refocus key global financial and economic relations on Beijing, was also meant to be an enormous insurance policy against any downturn in economic relations with the United States. Beijing’s creation of separate global financial institutions — like the Asian Infrastructure Investment Bank established in 2015 — and trade pacts like the recent Regional Comprehensive Economic Partnership of 15 Asia-Pacific nations (but not the United States) were also efforts meant to shield China from American missteps and inaction that could drag down the global economy.
U.S. allies, too, have been taking precautions. Europe has been slowly building up an independent military capacity just in case Washington does eventually decide that NATO is obsolete. What the Europeans have come to call “strategic autonomy” represents not just a next step for European integration but protection against the increasing unreliability of Washington. The European Defense Fund, set up in 2017, received a healthy chunk of capital in its latest budget — about eight billion Euro — and that’s just a down payment on what France would like to see and Germany is grudgingly coming around to envisioning: the folding up of the U.S. security umbrella.
South Korea, one of this country’s most trusted security partners, has been working on developing its own strategic autonomy for some time. Despite the budgetary pressures of a Covid-19-related economic downturn, strenuous efforts to improve ties with North Korea, and a generally friendlier relationship with China, the South Korean government pushed through a 5.4% increase in military spending for 2021. Seoul is similarly concerned about the possibility that Washington will, sooner or later, reduce its Pacific presence.
The United States continues to maintain by far the most powerful and heavily funded military on the planet. Its economy is either the world’s largest or just behind China’s, depending on what yardstick you care to use. Like former basketball star Michael Jordan contemplating one last NBA championship, the U.S. foreign policy establishment is reluctant to give up on the adrenaline rush of being top dog on Planet Earth. But a pattern of erratic behavior can gradually undermine the trust necessary to maintain the extensive military alliances and trade relationships that sustain superpower status. The United States might just be too tired, too divided, or too crazy to stay number one much longer
A History of Volatility
When Joe Biden says that this country “will lead not merely by the example of our power but by the power of our example,” it’s not entirely clear what example he means.
Does he mean American economic innovation — iPhones and electric cars — or the astonishing economic inequality of a country with the most billionaires on Earth in which one in eight citizens go hungry? Does he mean the country that puts itself forward as a seasoned mediator of conflicts or the one that spends more on its military than the next 10 nations combined? Does he mean the land with a Statue of Liberty that welcomes the “homeless” and the “tempest-tost,” or the one that has routinely divided families through mass deportations?
The shift in tone from the Trump administration to the new Biden era is certainly extreme, leading many allies to hope that the November election provided the necessary dose of electroshock therapy to restore the United States to sanity. Plenty of Americans — and overseas friends of America — would like to believe that the Trump years were a bizarre deviation from the norm. But there’s also a sneaking suspicion that extremism is becoming the new normal here and that events like the January 6th insurrection will only further fry what remains of the country’s synapses.
That insurrection may have destroyed Donald Trump’s chances of reelection in 2024, while possibly undermining the ambitions of his diehard champions in Congress like Josh Hawley and Ted Cruz as well. It might even drive a fatal wedge through the Republican Party, whether or not Trump actually creates a third party as he’s threatened to do.
But volatility has long been a fixture of American politics, from fist fights on the floor of Congress in the nineteenth century to the Barry Goldwaters and Newt Gingriches of the twentieth century. In our time, the resistance of the Tea Party, white nationalist militias, and QAnon to the United States becoming a truly multicultural country has kept American extremism alive. This paranoid style may have reached only an intermediate peak with the presidency of Donald Trump.
If such forces once again gain power or even mobilize enough strength to derail the modest ambitions of the Biden administration, the U.S. “example” will be one the world will want to avoid at any cost. Political instability will be the next compelling reason, after the Covid-19 pandemic fades, to quarantine this country. As for America’s unreliability as a global partner, it could prove to be an early sign of inevitable superpower decline into dissension, decay, and madness.