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WhyAmericaStillNeedstheUnitedNations

Home>WhyAmericaStillNeedstheUnitedNations

Monday,September1,2003
WhyAmericaStillNeedstheUnitedNations
ShashiTharoor
ShashiTharoorisUNUndersecretaryGeneralforCommunicationsandPublicInformation
andtheauthorofeightbooks,includingtheforthcomingNehru:TheInventionofIndia.These
arehispersonalviews.
THEPOWEROFLEGITIMACY
InSeptember2002,aradicalnewdocumentdeclaredthat"nonationcanbuildasafer,better
worldalone."Thesewordscamenotfromsomeutopianinternationalistorivorytower
academic,butfromthenewNationalSecurityStrategyoftheUnitedStates.Forallits
underpinningsinrealpolitik,thestrategycommittedtheUnitedStatestomultilateralism.
Thisstatementshouldnothavebeensurprising,formultilateralism,ofcourse,isnotonlya
meansbutanend.Andforgoodreason:ininternationalaffairs,thechoiceofmethodcan
servetoadvertiseacountry'sgoodfaithordisinterestedness.Moststatesactboth
unilaterallyandmultilaterallyattimes:theformerindefenseoftheirnationalsecurityorin
theirimmediatebackyard,thelatterinpursuitofglobalcauses.Thelargeracountry's
backyard,however,thegreaterthetemptationtoactunilaterallyacrossitaproblemmost
acuteinthecaseoftheUnitedStates.Butthemorefarreachingtheissueandthegreater
thenumberofcountriesaffected,thelesssufficientunilateralismproves,andthelessviable
itbecomes.HencetheongoingneedformultilateralismwhichtheU.S.NationalSecurity
Strategyseemedtorecognize.
TheUnitedNationsisthepreeminentinstitutionofmultilateralism.Itprovidesaforumwhere
sovereignstatescancometogethertoshareburdens,addresscommonproblems,andseize
commonopportunities.TheUNhelpsestablishthenormsthatmanycountriesincludingthe
UnitedStateswouldlikeeveryonetoliveby.Throughoutitshistory,theUnitedStateshas
seentheadvantagesoflivinginaworldorganizedaccordingtolaws,values,andprinciples
infact,therepublicwasnotyet30yearsoldwhenitfirstwenttowarindefenseof
internationallaw(attackingtheBarbarypiratesin1804),andithasdonesomultipletimes
since,includinginthefirstGulfWar.TheUN,forallitsimperfectionsrealandperceived
reflectsthisAmericanpreferenceforanorderedworld.
ThatWashingtonhasoftenusedforceonbehalfofsuchprinciplesmakesgoodpolitical
sense.Afterall,actinginthenameofinternationallawisalwayspreferabletoactinginthe
nameofnationalsecurity.Everyonehasastakeintheformer,andsocouchingU.S.actionin
termsofinternationallawuniversalizesAmericaninterestsandcomfortspotentialallies.
WhenAmericanactionsseemdrivenbyU.S.nationalsecurityimperativesalone,partners
canprovehardtofindasbecameclearwhen,inmarkedcontrasttothefirstGulfWar,only
asmall"coalitionofthewilling"joinedWashingtonthesecondtimearoundinIraq.Working
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withintheUNallowstheUnitedStatestomaximizewhatJosephNyecallsits"softpower"
theabilitytoattractandpersuadeotherstoadopttheAmericanagendaratherthanrelying
purelyonthedissuasiveorcoercive"hardpower"ofmilitaryforce.
Globalchallengesalsorequireglobalsolutions,andfewindeedarethesituationsinwhich
theUnitedStatesoranyothercountrycanactcompletelyalone.Thistruismiscurrently
beingconfirmedinIraq,whereWashingtonisdiscoveringthatitisbetteratwinningwarsthan
constructingpeace.Thelimitationsofmilitarystrengthinnationbuildingarereadilyapparent
asTalleyrandpointedout,theonethingyoucannotdowithabayonetistositonit.
Equallyimportant,however,istheneedforlegitimacy,andhereagaintheUNhasproven
invaluable.Theorganization'sroleinlegitimizingstateactionhasbeenbothitsmost
cherishedfunctionand,intheUnitedStates,itsmostcontroversial.Astheworld's
preeminentinternationalorganization,theUNembodiesworldopinion,oratleasttheopinion
oftheworld'slegallyconstitutedstates.WhentheUNSecurityCouncilpassesaresolution,it
isseenasspeakingfor(andintheinterestsof)humanityasawhole,andinsodoingit
confersalegitimacythatisrespectedbytheworld'sgovernments,andusuallybytheir
publics.WhentheresolutioninquestionispassedunderChapterVIIofthecharterthat
document'senforcementprovisionsitbecomeslegallybindingonallmemberstates.
Thecompositionofthecouncilthatpassesaparticularresolutionisnomorerelevanttoits
legitimacythanthatofanationalparliamentthatpassesalawcongressionallegislation,by
thesamelogic,isnotlessbindingonAmericansifthemajoritythatvotesforitcomes
overwhelminglyfromsmallstates.ThelegitimacyoftheUNinheresinitsuniversalityandnot
initsstructuraldetails,whichhavelongbeensubjecttotheclamorforreform.Some
AmericanshavescornedthestatusandconductofmanyoftheSecurityCouncilmembers
thatfailedtosupporttheUnitedStatesonIraq.Butthisunseemlysneeringovertherightof
Angola,Cameroon,orGuineatopassjudgmentinthecounciloverlooksthevaluable
contributiontheirpresencemakes.Theelectionofsmallcountriestothecouncilbolstersits
legitimacybyenhancingitsroleasarepositoryofworldopinion.
UniversalityofmembershipalsoallowstheworldtoviewtheUNassomethingmorethanthe
sumofitsparts,asanentitythattranscendstheinterestsofanyonememberstate.TheUN
guardsthevitalprinciplesentrenchedinitscharter,notablythesovereignequalityofstates
andtheinadmissibilityofinterferenceintheirinternalaffairs.ItispreciselybecausetheUNis
thechiefguardianofboththesesacrosanctprinciplesthatitaloneisallowedtoapprove
derogationsfromthem.ThuswhentheUN,inparticulartheSecurityCouncil,legislatesan
interventioninasovereignstate,itisstillseenasupholdingthebasicprinciplesevenwhile
approvingadeparturefromthem.WhenanindividualstateactsindefianceoftheUN,onthe
otherhand,itmerelyviolatestheseprinciples.
Thisiswhysomanycountries,includingthemostpowerfulones,takecaretoembedtheir
actionswithintheframeworkoftheprinciplesandpurposesoftheUNCharter.Forexamples
ofthis,oneneedonlyperusearandomselectionofspeechesbycountriesexplainingtheir
votesontheSecurityCouncil,especiallythoseconcerningmilitaryaction.Thevalueof
internationallyrecognizedprinciplesresonatesacrosstheglobeandhasbeenreifiedthrough
58yearsofrepetitionincludinglastMarch,whenthecouncildebatedIraq.
SHOWDOWNINNEWYORK

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TosuggestasdidsomecriticsoftheUNduringtheIraqcrisisthattheorganizationhas
becomeirrelevantoverlooksthemessagePresidentGeorgeW.Bushhimselfsentwhenhe
appearedbeforetheGeneralAssemblyinSeptember2002.IncallingontheSecurityCouncil
totakeaction,BushframedtheproblemofIraqasaquestionnotofwhattheUnitedStates
(unilaterally)wanted,butofhowtoimplementSecurityCouncilresolutions.Indeed,these
resolutionswereattheheartoftheU.S.case.HadtheSecurityCouncilbeenabletoagree
thatforcewaswarranted,itwouldhaveprovidedunique(andincontestable)legitimacyfor
U.S.militaryaction.Thefactthatthecouncildidnotultimatelyagree,however,strengthens,
ratherthandilutes,therationaleforapproachingitinsuchsituations.Thecouncil'srefusalto
serveasarubberstampforWashingtonwillgiveanyfuturesupportitlendstotheUnited
Statesgreatercredibility.
Councilresolutionsdonotserveonlytocodifytheacceptableintheeyesoftheworldthey
also,quitedirectly,laydownthelaw.Infact,severalcountries,fromNorwaytoIndia,donot
orcannot(asamatterofpolitics,policy,orconstitutionallaw)commitforcesoverseaswithout
thecouncil'sexplicitauthorization.Suchapracticeensuresthatthesecountrieswillnotbe
drawnintomilitaryadventuresatthebehestofoneorahandfulofpowerfulstates.Theysend
troopsonlywhentheSecurityCouncil,speakinginthenameoftheworldasawhole,blesses
anenterprise.
Nonetheless,sincetheIraqcrisis,somecriticshavesuggestedthat"coalitionsofthewilling"
willeventuallyeliminatetheneedforformalstructuressuchastheUN."Multilateralismla
carte,"thethinkinggoes,willreplace"multilateralismlacharte."Butevenadhoccoalitions
requirestructure:manystates,whenaskedbyWashingtontocontributetroopsforIraq,have
hesitatedtodosowithoutthesanctionofaUNresolutionoraUNauthorizedcommand
structure.InternationalinstitutionsgivetheUnitedStates'potentialpartnersaframework
withinwhichtheycanfeelempoweredon(atleastnotionally)equaltermsandwithout
whichtheyarenotwillingtoparticipate.
Putanotherway,thedifferencebetweenaUNoperation,inwhicheveryonewearsablue
helmet,anda"coalitionofthewilling"ledbyonebigpowerissimilartothatbetweenapolice
squadandaposse.Possesaremoredifficulttofindandtofundthanarepolice.Similarly,
developingcountriesinanycoalitionneedfinancinginordertoplaytheirpart,andsuch
financingismoreeasilyprovidedthroughtheUN'sagreedcostsharingformula.
Unilateralismisalwaysmoreexpensivethanitsalternative,andintoday'stightworld
economy,thecostsofinternationalunilateralismmaynolongerbesustainable.
EvenwhenaSecurityCouncilresolutionisnotlegallyrequiredforanaction,theUN's
imprimaturcanstillproveextremelyusefulfortheUnitedStates.Acouncildecisiondoesnot
justspreadexpenseandpoliticalrisk,bydilutingWashington'sresponsibilityforacourseof
actionthatmightprovokeresentmentorhostility.Itisalsoeasierformanygovernmentsto
sellapolicytotheirpublicsiftheycandescribeitasaresponsetoaUNresolution,insteadof
toanAmericanrequest.TheUnitedStateshasalreadylearnedthislesson:forexample,
whenithastriedtopromptcountriestoreviseandupdatetheirdomesticsecurityprocedures
orlawsonterrorism,ithasdiscoveredthatgovernmentsareoftenhappiertoreceivethe
sameAmericanexpertasaUNadviserthanasaU.S.one.
Infact,partofthevalueoftheUN(includingforWashington)istherespectinwhichits
membersholdthebody.SuchrespecthaspermittedtheUnitedStates,onnumerous
occasions,toadvanceitsspecificinterestsunderthecoverofinternationallaw.Forexample,
UNsanctionsonLibyahelpedtheUnitedStatesachieveasettlementovertheLockerbie
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bombing.AndaftertheattacksofSeptember11,2001,theSecurityCouncil'stwo
subsequentresolutionsprovidedaninternationalframeworkfortheglobalbattleagainst
terrorism.Resolution1373requirednationstointerdictarmsflowsandfinancialtransfersto
suspectedterroristgroups,reportonterrorists'movements,andupdatenationallegislationto
fightthem.WithoutthelegalauthorityofabindingSecurityCouncilresolution,Washington
wouldhavebeenhardpressedtoobtainsuchcooperation"retail"from191individualstates,
anditwouldhavetakendecadestonegotiateandratifyseparatetreatiesandconventions
imposingthesamestandardsonallcountries.
Assuchexamplesdemonstrate,itisclearlynotintheU.S.interesttodiscredittheUNorthe
SecurityCouncil.ForeveryrareoccasionwhenthecouncilthwartsWashington,therearea
dozenmorewhenitactsinaccordancewithU.S.wishesandcompelsothercountriestodo
thesame.Tomarginalizethecouncil,then,wouldbetobluntavitalarrowintheU.S.
diplomaticquiver.
BEYONDLIMITS
WhatabouttheSecurityCouncil'sstructuraldeficiencies?Forallthecarpingaboutits
outdatedcompositionwhich,bycommonconsensus,reflectsthegeopoliticalrealitiesof
1945ratherthan2003nootherbodyhasacquiredthekindoflegitimacyitbringstobear
onworldaffairs.Thecouncilmayneedreform,therefore,butuntilmemberstatesagreeon
howtogoaboutmakingchanges,itremainstheonlyglobalbodywithresponsibilityfor
maintaininginternationalpeaceandsecurity.
SuggestionsthattheUNshouldbereplacedbyacoalitionofdemocracies,forexample
overlookthefactthatduringtheIraqdebate,themostvigorousresistancetotheUnited
Statesinthecouncilcamefromotherdemocracies.NorisNATOafeasiblealternativetothe
council,becauseitslegitimacyisgeographicallylimited,asisthatofotherregional
organizations.NATOauthorizationmighthavebeendeemedsufficientfortheKosovo
campaign.Butinthatwar,thetargetwasanotherEuropeanstate,Yugoslavia.NATO's
imprimaturwouldnothavebeenenoughtojustifymilitaryactioninIraq,whichiswhythe
UnitedStatesandtheUnitedKingdomtriedsohardtogettheSecurityCouncil'sbenediction
forthataction.
Inanycase,thecouncil'sfinalvote(orlackthereof)onIraqwasnottheonlygaugeofits
relevancetothatsituation.Justfouryearsago,whenNATObombedYugoslaviawithouteven
referringtothecouncil(letalonesecuringitsapproval),manycriticssimilarlyarguedthatthe
UNhadbecomeirrelevant.ButtheKosovoquestionsooncameupagainattheSecurity
Council,firstwhenanunsuccessfulattemptwasmadetocondemnthebombing,andthen
whenarrangementshadtobemadetoadministertheprovinceafterthewar.Onlythe
SecurityCouncilcouldhaveapprovedthearrangementssoastoconferonthem
internationallegitimacyandencourageallnationstoextendtheirsupportandresources.And
onlyonebodywastrustedenoughtorunthecivilianadministrationofKosovo:theUnited
Nations.
ThesamepatternwasnotfollowedpreciselyinthecaseofIraq,buttheeventsweresimilar.
Resolution1483,adoptedunanimouslyonMay22,grantedtheUNasignificantrolein
postwarIraq.ThattheUnitedStateschosetogivetheUNsuchaprominentpositionreflects
notjustBritishpressurebutalsoWashington'sownrecognitionthatitneedstheworldbody.
Indeed,theveryfactthattheUnitedStatessubmittedtheresolutiontotheSecurityCouncil
wasanacknowledgmentbyWashingtonthatthereis,inSecretaryGeneralKofiAnnan's
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words,nosubstitutefortheuniquelegitimacyprovidedbytheUN.Thebodymighthavebeen
writtenoffduringthewar.ButaswithKosovo,itwasquicklyfoundtobeessentialtothe
ensuingpeace.
Ofcourse,peacecanbekeptinmanyways,andKosovo,EastTimor,Afghanistan,andnow
IraqofferfourdifferentmodelsforhowtheUNcanengageinpostconflictsituations.But
peacekeeping(whichincludesmediation,monitoring,anddisarmament)remainsexactlythe
kindofmissionwhereusingtheUNhasadvantagesforWashingtonthatgreatlyoutweighthe
negatives.First,thereistheobviousattractionofburdensharing:UNpeacekeepingallows
othercountriestohelpshouldertheUnitedStates'responsibilityformaintainingpeace
aroundtheworld.
Second,despitesomewellpublicizedfailures,UNpeacekeepingworks.TheUN's"blue
helmets"wontheNobelPeacePrizein1988sincethen,theyhavebroughtpeaceand
democracytoNamibia,Cambodia,ElSalvador,Mozambique,andEastTimorhelpedease
theU.S.burdenafterregimechangesinHaitiandAfghanistanandpolicedlargelybloodless
stalematesfromCyprustotheGolanHeightstoWesternSahara.
Third,UNpeacekeepingishighlycosteffective.TheUNisusedtorunningoperationsona
shoestring,anditspendslessperyearonpeacekeepingworldwidethanisspentonthe
budgetsoftheNewYorkCityFireandPoliceDepartments.UNpeacekeepingisalsofar
cheaperthanthealternative,whichiswar.TwodaysofOperationDesertStormin1991cost
morethantheentireUNpeacekeepingbudgetthatyear,andoneweekofOperationIraqi
FreedomwouldamplypayforallUNpeacekeepingfor2003.TheUNoperationthatended
theIranIraqWarcostlessannuallythanthecrudeoilcarriedintwosupertankers.
Consideringhowmanysupertankerswereplacedatriskduringthatruinousconflict,this
makespeacekeepinganextraordinarybargain.
NoneofthisistodenythattheSecurityCouncil'srecordhasbeenmixed.Thebodyhas
actedunwiselyattimesandfailedtoactaltogetheratothers:oneneedonlythinkofthefate
ofthe"safeareas"inBosniaandthegenocideinRwandaforinstancesofeach.Thecouncil
hasalsosometimesbeentoodividedtosucceed,aswasthecaseinearly2003overIraq.
Andalltoooften,memberstateshavepassedresolutionstheyhadnointentionof
implementing.ButtheUN,atitsbest,isonlyamirroroftheworld:itreflectsdivisionsand
disagreementsaswellashopesandconvictions.Sometimesitonlymuddlesthrough.As
DagHammarskjld,theUN'ssecondsecretarygeneral,putit,theUNwasnotcreatedto
takehumanitytoheavenbuttosaveitfromhell.
Andthisithasdoneinnumerabletimes,especiallyduringtheColdWar,whenitprevented
regionalorlocalconflictsfromignitingasuperpowerconflagration.Tosuggest,onthebasis
ofthedisagreementoverIraq,thattheSecurityCouncilhasbecomedysfunctionalor
irrelevantistogreatlydistorttherecordbyviewingitthroughtheprismofjustoneissue.
EvenwhiledisagreeingonIraq,themembersoftheSecurityCouncilunanimouslyagreedon
ahostofothervitalissues,fromCongotoCted'Ivoire,fromCyprustoAfghanistan.Indeed,
theSecurityCouncilremainsonthewholearemarkablyharmoniousbody.Authorizingwars
hasneverbeenamongitsprincipalresponsibilitiesonlytwiceinits58yearsofexistence
hasthecouncilexplicitlydonesoanditseemsundulyharshtocondemnitsolelyoverits
handlingofsorareachallenge.Inanycase,itwouldbefollytodiscreditanentireinstitution
foradisagreementamongitsmembers.OnewouldnotclosedowntheSenate(oreventhe
Texaslegislature)becauseitsmembersfailedtoagreeononebill.TheUN'srecordof
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successandfailureisnoworsethanthatofmostrepresentativenationalinstitutions,yetits
detractorsseemtoexpecttheUNtosucceed(oratleasttoagreewiththeUnitedStates)all
thetime.
Toooften,theUN'scriticsseemtomissanotherfundamentalcharacteristicoftheworldbody:
thewayitfunctionsbothasastageandasanactor.Ontheonehand,theUNisastageon
whichitsmemberstatesdeclaimtheirdifferencesandtheirconvergences.YettheUNisalso
anactor(particularlyinthepersonofthesecretarygeneral,hisstaff,agencies,and
operations)thatexecutesthepoliciesmadeonitsstage.Thegeneralpublicusuallyfailsto
seethisdistinctionandviewstheUNasashapelessaggregation.Sins(ofomissionor
commission)committedbyindividualgovernmentsontheUNstagearethusroutinely
blamedontheorganizationitself.Sometimesmemberstatesdeliberatelycontributetothis
confusion,aswhenAmericanofficialsblamedtheUNfornotpreventinggenocideinRwanda
despitethefactthatWashingtonitselfhadblockedtheSecurityCouncilfromtakingaction
inthatcrisis.
Indeed,oneofthemoreunpleasant,ifconvenient,usestowhichtheUNhasregularlybeen
puthasbeentoserveasapliantscapegoatforthefailuresofitsmemberstates.Former
SecretaryGeneralBoutrosBoutrosGhaliruefullynotedthispointwhenallegedUN
deficiencieswereblamedforthepurelyAmericanmadedisasterinMogadishuinOctober
1993.AndAnnanhasoftenjokedthattheabbreviationbywhichheisknowninsidethe
organization"SG"standsfor"scapegoat,"not"secretarygeneral."Thereis,sadly,
considerableutilityinhavinganinstitutionthat,byembodyingthecollectivewill(orlack
thereof)of191memberstates,cansafelybeblamedfortheerrorsthatnoindividualstate
couldpoliticallyaffordtoadmit.Butthosewhoneedawhippingboymustbecarefulnotto
floghimtodeath.
INITTOGETHER
TheUN'srelevancedoesnotstandorfallonitsconductonanyoneissue.Whenthecrisis
haspassed,theworldwillstillbeleftwith,touseAnnan'sphrase,innumerable"problems
withoutpassports"threatssuchastheproliferationofweaponsofmassdestruction
(WMD),thedegradationofourcommonenvironment,contagiousdiseaseandchronic
starvation,humanrightsandhumanwrongs,massilliteracyandmassivedisplacement.
Theseareproblemsthatnoonecountry,howeverpowerful,cansolvealone.Theproblems
arethesharedresponsibilityofhumankindandcryoutforsolutionsthat,liketheproblems
themselves,alsocrossfrontiers.TheUNexiststofindthesesolutionsthroughthecommon
endeavorofallstates.Itistheindispensableglobalorganizationforaglobalizingworld.
Largeportionsoftheworld'spopulationrequiretheUN'sassistancetosurmountproblems
theycannotovercomeontheirown.Asthesewordsarewritten,civilwarragesinCongoand
LiberiaandsputtersinCted'Ivoire,whilelongrunningconflictsmaybeclosetopermanent
solutioninCyprusandSierraLeone.Thearduoustaskofnationbuildingproceedsfitfullyin
Afghanistan,theBalkans,EastTimor,andIraq.Twentymillionrefugeesanddisplaced
persons,fromPalestinetoLiberiaandbeyond,dependontheUNforshelterandsuccor.
DecadesofdevelopmentinAfricaarebeingwipedoutbythescourgeofhiv/aids(andits
deadlyinteractionwithfamineanddrought),andtheMillenniumDevelopmentGoals
agreedonwithmuchfanfareinSeptember2000,attheUN'sMillenniumSummit,thelargest
gatheringofheadsofgovernmentinhumanhistoryremainunfulfilled.Toomanycountries

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stilllackthewherewithaltoeliminatepoverty,educategirls,safeguardhealth,andprovide
theirpeoplewithcleandrinkingwater.IftheUNdidnotexisttohelptackletheseproblems,
theywouldundoubtedlyenduponthedoorstepoftheworld'sonlysuperpower.
TheUNisalsoessentialtoAmericans'pursuitoftheirownprosperity.Today,whetheroneis
fromTashkentorTallahassee,itissimplynotrealistictothinkonlyintermsofone'sown
country.Globalforcespressinfromeveryconceivabledirectionpeople,goods,andideas
crossbordersandcovervastdistanceswithevergreaterfrequency,speed,andease.The
InternetisemblematicofanerainwhichwhathappensinSoutheastAsiaorsouthernAfrica
fromdemocraticadvancestodeforestationtothefightagainstaidscanaffectAmericans.
Ashasbeenobservedaboutwaterpollution,wealllivedownstreamnow.
ThusU.S.foreignpolicytodayhasbecomeasmuchamatterofmanagingglobalissuesas
managingbilateralones.Atthesametime,theconceptofthenationstateasselfsufficient
hasalsoweakenedalthoughthestateremainstheprimarypoliticalunit,mostcitizensnow
instinctivelyunderstandthatitcannotdoeverythingonitsown.Tofunctionintheworld,
peopleincreasinglyhavetodealwithinstitutionsandindividualsbeyondtheircountry's
borders.Americanjobsdependnotonlyonlocalfirmsandfactories,butalsoonfaraway
markets,grantsoflicensesandaccessfromforeigngovernments,internationaltraderules
thatensurethefreemovementofgoodsandpersons,andinternationalfinancialinstitutions
thatensurestability.TherearethusfewunilateralistsintheAmericanbusinesscommunity.
Americans'safety,meanwhile,dependsnotonlyonlocalpoliceforces,butalsoonguarding
againsttheglobalspreadofpollution,disease,terror,illegaldrugs,andWMD.AstheWorld
HealthOrganization'ssuccessfulbattleagainstthedreadedsarsepidemichas
demonstrated,"problemswithoutpassports"arethosethatonlyinternationalactioncan
solve.
Fortunately,theUNanditsbroadfamilyofagencieshave,innearlysixdecadesoflife,builta
remarkablerecordofexpertiseandachievementontheseissues.TheUNhasbrought
humanitarianrelieftomillionsinneedandhelpedpeoplerebuildtheircountriesfromtheruins
ofwar.Ithaschallengedpoverty,foughtapartheid,protectedtherightsofchildren,promoted
decolonizationanddemocracy,andplacedenvironmentalandgenderissuesatthetopofthe
world'sagenda.Thesearenosmallachievements,andrepresentissuestheUnitedStates
cannotaffordtoneglect.
TheUnitedNationsisavaluableantidotetothetendencytodisregardtheproblemsofthe
peripherythekindsofproblemsAmericansmayprefernottodealwithbutthatare
impossibletoignore.Handlingthemmultilaterallyistheobviouswaytoensuretheyare
tackleditisalsotheonlyway.AmericanswillbesaferinaworldimprovedbytheUN's
efforts,whichwillbeneededlongafterIraqhaspassedfromtheheadlines.
KEEPINGGULLIVERONBOARD
TheexerciseofAmericanpowermaywellbethecentralissueinworldpoliticstoday,butthat
powerisonlyenhancedifitsuseisperceivedaslegitimate.Ironically,althoughmanyin
Washingtondistrusttheworldbody,manyabroadthinktheSecurityCouncilistoomuchin
thralltoitsmostpowerfulmember.ThedebatesoverIraqprovedthatthatisnotalwaysthe
casebutevenifitwere,itisfarbettertohaveaworldorganizationthatisanchoredin
geopoliticalrealitythanonethatistoodetachedfromtheveritiesofglobalpowertobe
effective.AUNthatprovidesavitalpoliticalanddiplomaticframeworkfortheactionsofits
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mostpowerfulmember,whilecastingtheminthecontextofinternationallawandlegitimacy
(andbringingtobearonthemtheperspectivesandconcernsofitsuniversalmembership)is
aUNthatremainsessentialtotheworldinwhichwelive.
Thegoalsofthecharter,however,cannotbemetwithoutembracingthefundamental
premisethatPresidentHarryTrumanenunciatedin1945:
Weallhavetorecognizethatnomatterhowgreatourstrength,wemustdenyourselvesthe
licensetodoalwaysasweplease.Noonenation...canorshouldexpectanyspecial
privilegewhichharmsanyothernation....Unlessweareallwillingtopaythatprice,no
organizationforworldpeacecanaccomplishitspurpose.Andwhatareasonablepricethat
is!
TheUN,fromthestart,assumedthewillingnessofitsmemberstoacceptrestraintsontheir
ownshorttermgoalsandpoliciesbysubordinatingtheiractionstointernationallyagreed
rulesandprocedures,inthebroaderlongterminterestsofworldorder.Thiswasanexplicit
alternativetothemodelofpastcenturies,whenstrongstatesdevelopedtheirmilitarypower
toenforcetheirpolitics,andweakstatestookrefugeinallianceswithstrongerones.This
formulaguaranteedlargescalewarfareasFranklinRooseveltputittobothhousesof
CongressaftertheAlliedconferenceatYalta,theUNwouldreplacethearmsraces,military
alliances,balanceofpowerpolitics,and"allthearrangementsthathadledtowar"sooftenin
thepast.TheUNwasmeanttohelpcreateaworldinwhichitsmemberstateswould
overcometheirvulnerabilitiesbyembeddingthemselvesininternationalinstitutions,where
theuseofforcewouldbesubjectedtotheconstraintsofinternationallaw.Powerpolitics
wouldnotdisappearfromthefaceoftheearthbutwouldbepracticedwithdueregardfor
universallyupheldrulesandnorms.SuchasystemalsoofferedtheUnitedStatesthen,as
now,theworld'sunchallengedsuperpowertheassurancethatothercountrieswouldnot
feeltheneedtodevelopcoalitionstobalanceitspower.Instead,theUNprovideda
frameworkforthemtoworkinpartnershipwiththeUnitedStates.
Thisisthesystemtowhichtheworldmustnowrededicateitself.VotariesoftheUNhave
longarguedthatiftheworldbodydidnotexist,wewouldhavetoinventit.Sadly,itishardto
believethattoday'sleaderscouldmanagesuchafeat.HammarskjldoncedescribedtheUN
asanadventureaSantaMariabattlingitswaythroughstormsandunchartedoceanstoa
newworld,onlytofindthatthepeopleonshoreblamedthestormsontheshipitself.Five
decadeslater,Hammarskjld'smetaphorstillholdstrue:theUNcontinuestosailinturbulent
watersandisstillblamedforthesquallsthatassailit.
Thisbringstomindanothermetaphor:ifinternationalinstitutionsserveprincipallyasropes
thattieGulliverdown,thenGulliverwillhaveeveryinterestinsnappingtheropesand
breakingfreeoftheconstraintsimposedonhim.If,however,theseinstitutionsconstitutea
vesselsturdyenoughforGullivertosail,andtheLilliputianscheerfullyhelphimmanthe
bridgeandhoistthemainsailbecausetheywanttotraveltothesamedestination,then
Gulliverisunlikelytojumpshipandtrytoswimonalone.Sotheworldshouldsimilarlyhold
fasttoitsdeterminationtolivebysharedvaluesandcommonrulesandtosteertogetherthe
multilateralinstitutionsthattheenlightenedleadersofthelastcenturybequeathedtous.Only
bydoingsowillourshipbestthestormwithGulliverstillonboard.
Copyright2016bytheCouncilonForeignRelations,Inc.
Allrightsreserved.Torequestpermissiontodistributeorreprintthisarticle,pleasefilloutand
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WhyAmericaStillNeedstheUnitedNations

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SourceURL:https://www.foreignaffairs.com/articles/20030901/whyamericastillneedsunitednations

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