I just finished reading “The Devil and John Foster Dulles”, Townsend Hoopes’ biography of President Eisenhower’s Secretary of State. This book picks up where that left off. Written in 2000 with the benefit of the release of documents in the American archives that had not been available to previous scholars, as well as access to Soviet archives, Freedman was able to give a more complete narrative than previous scholars. Arthur Schlesinger called this “The best account we have of President Kennedy’s foreign policy” and that is high praise. The author analyzes the personalities of Kennedy and his main advisors, and how they managed the four main foreign policy crises of his presidency. After Kennedy, the Cold War was never as dangerous again. He succeeded in defusing the crises over Berlin and Cuba and negotiated a nuclear Test Ban Treaty with the Soviets. However, he was not as successful in finding a way to deal with communists in the Third World.
How to lead the free world and keep it free but not start World War III? The answer was liberal anticommunism: liberals in the Kennedy camp were proud of the New Deal and proud of the victory over the Nazis in World War II. These proved that democracies could be organized to overcome great challenges, but there an awareness that the wartime alliance with the Soviets had to be set aside when it became apparent that they were trying to not just communize Eastern Europe but also subvert the Western democracies. Liberalism had to be defended not just by reason but also by power and force. Kennedy was neither an irresponsible playboy nor a far-sighted, benevolent statesmen but a politician who was managing his fragile electoral base. He preferred to defer decisions until he absolutely had no choice in order to keep his options open. He set up the foreign policy decision making bureaucracy on a less hierarchical and more ad hoc basis than Eisenhower and the author discusses the advantages and disadvantages of this approach.
The author finds that Kennedy was quite successful at managing the superpower relationship with the Soviets. After the fiasco of the Bay of Pigs and the shoe-thumping summit with Khrushchev, he realized that he needed to do some major reassessments. The result was his greatest policy successes, managing the Berlin crisis, the Test Ban Treaty, and the Cuban Missile Crisis. Without getting into the details of these, which you can read in the book, Kennedy had to face down fire-breathing military leaders who wanted to send in American bombers and soldiers and were completely willing to risk nuclear war. Something that I did not know is that, through this whole time, Kennedy and Khrushchev kept up a correspondence in which they constantly signaled their red lines and their desires for peace. The whole thing held up.
The book discusses the ins and outs of nuclear strategy, new ways of looking at nuclear war, game theory and systems theory, the nuclear disarmament movement, and how they impacted foreign and political and military thinking. The US and Soviet governments did not want to blow up the world over Cuba or Berlin, but they knew it was possible and so angled around each other and with their various allies. Missile gaps and first and second strikes and massive retaliation or strategic bombing. From a certain perspective, it seems monstrous, and the book makes it clear that both Kennedy and Khrushchev thought it was monstrous too. Some people in the bureaucracy, not so much. The characters in Stanley Kubrick's 1964 movie Dr. Strangelove were modeled on real people.
Kennedy was much less successful in the developing world He believed that the United States should be a beacon of development and freedom for people in poorer countries and set up institutions like the Peace Corps to help. Also, he supported non-traditional, counter-insurgency warfare and limited warfare, and graduated escalation. The CIA had a great role to play in this, as well as army units such as the Green Berets. However, that is where he ran into his greatest setbacks. He never was able to get the Cubans to stop inciting insurrection in Latin America. His plans for a neutralist government in Laos ended in the North Vietnamese taking control of the part of Laos nearest their border so they could ship weapons to the south. And most importantly, he could not resolve the problems in South Vietnam.
You can read about the different policy positions in the government. Some were quite prescient about the real support for the Communists in South Vietnam and the inability of the South Vietnamese government to reform in any meaningful way to make itself more popular. Others, in hindsight, were overly optimistic about the ability of the Americans to train or manage the South Vietnamese army to fight well and effectively. The military mostly wanted to send in the troops and maybe nuclear bomb Hanoi, Shanghai and Beijing if there was any trouble.
I had a friend who used to insist that “Jack Kennedy never would have sent in the troops to Vietnam.” Kennedy said “ go ask General MacArthur about a land war in Asia.” MacArthur, after Korea, was against such a move. However, the author insists that Kennedy had not decided to get the 1600 American advisors out of Vietnam. That was more of a “working assumption” Instability (which was forthcoming) could have changed that equation. He might just have followed Johnson’s path.
The book is arranged by theme rather than chronologically and this has the advantage of illustrating the decision-making in each area but the disadvantage of not always showing the links between the different crises and how they influenced each other. There are decent sketches of the main actors involved and the bureaucratic infighting that produced policy. The author knows how to write and if his prose is not scintillating, neither is it boring. The events themselves are interesting enough.