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This paper argues that it is difficult to understand the effects of American democracy promotion abroad without examining the bureaucratic context from which the policy emerges at home. Which actors within the U.S. government are involved in promoting political and economic change abroad? What strategies and conceptual models guide them? What tools and resources do they bring to bear? How does the interaction of American bureaucratic politics affect the impact of American democracy promotion? Articulating this mix of goals, strategies, and resources helps explain incoherent patterns of outcomes on the ground.

This paper explore these questions by reference to the U.S. government's most ambitious democracy promotion efforts of the past decade: the effort to rebuild its former Soviet enemies into a democratic allies in the 1990s. Yet the patterns of American bureaucratic politics are not unique to this democracy promotion effort. While American democracy promotion has changed in tone and substance under the watch of George W. Bush, American domestic politics has powerfully shaped American democracy promotion in similar ways in Iraq, Afghanistan, and beyond.

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In this decade, fostering democratic regime change in Iraq is the great challenge (or folly) before American foreign policymakers. In the previous decade, fostering democratic regime change in Russia was the great challenge (or folly) before American foreign policymakers. For much longer and with much greater capacity than Saddam Hussein's regime, the Soviet regime threatened the United States. The destruction of the Soviet regime and the construction of a pro-Western, democratic regime in its place, therefore, was a major objective of America foreign policy. Some presidents pursued this goal more vigorously than others: Nixon cared less, Reagan more.

Almost twenty years after Mikhail Gorbachev became General Secretary of the Communist Party of the Soviet Union and soon thereafter began the process of political change inside the USSR, it is still not clear what kind of regime will eventually consolidate in Russia. To date, however, the influence of the United States in fostering regime change inside the Soviet and then Russia has been limited. This paper explores the causes and consequences of US efforts at regime change in the Soviet Union and contemporary Russia.

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Michael A. McFaul

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Professor of French, Italian and comparative literature
3450-small_schnapp.jpg PhD

Professor Jeffrey Schnapp is the Rosina Pierotti chair and professor of French and Italian and comparative literature. His research falls into two main areas: Italian literature in the age of Dante and the emergence and institutional articulation of Fascist culture in Italy. His other interests are the troubadour lyric; Franco-Italian cultural relations from 1850 to 1950; eighteenth- and nineteenth-century travel and transportation literature; and Georges Sorel and French anarcho-syndicalism.

Professor Schnapp is the author of several books, including The Transfiguration of History at the Center of Dante's Paradise (1986) and Staging Fascism: 18BL and the Theater of Masses for Masses (1996). He is editor of Bernardino Daniello's Commento sopra la Commedia di Dante, as well as The Poetry of Allusion and A Primer of Italian Fascism. His current projects include a cultural history of speed and accident from eighteenth century to the present and a study of mass panoramic photography in Soviet Russia and Fascist Italy. He has been awarded a Guggenheim fellowship at the Center for Advanced Study in the Visual Arts at the National Gallery of Art, the second literary historian ever to be granted this honor.

Professor Schnapp is the Director of The Stanford Humanities Laboratory. The SHL offers the opportunity for scholars in the humanities to undertake the sort of mid- to large-scale collaborative research projects that have traditionally been the domain of the natural, formal, and social sciences. The humanities has generally had fewer research funds (thus discouraging resource-intensive scholarship), as well as little incentive to collaborate. These limitations have resulted in research findings -- usually in print form -- that are both produced and consumed by individual scholars working alone.

SHL exists to change that. By giving grants for humanities research with results that take nontraditional forms, SHL attempts to expand both the scope and scale of humanitas and to supplement traditional disciplinary endeavors with an outreach dimension. Whereas institutional pressures on humanities disciplines since World War II have fostered a narrowing of research agendas (sometimes to the point of hyperspecialization) SHL promotes a model of the humanities that is flexible and cross-disciplinary at the core -- Big Humanities, to complement Big Science.

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Professor of Slavic Languages and Literature
img_5804_1000px_fleishman.jpg PhD

Lazar Fleishman came to Stanford in 1985 after a distinguished career at the Hebrew University of Jerusalem. He has also been a Visiting Professor at UC-Berkeley, Yale, Harvard, University of Texas at Austin, the Russian State University for the Humanities in Moscow, Charles University in Prague, The University of Vienna and the University of Latvia in his native Riga. His major scholarly interests include 19th and 20th century Russian literature; Boris Pasternak; 20th century Russian emigre and Soviet culture and literary life; Russian avant-garde poetry and art; Russian-Jewish, Russian-Baltic and Russian-Polish cultural relationships; poetics; and archival research.

He is the founder and editor of the series, Stanford Slavic Studies (1987; vol. 50 is forthcoming in 2020). He organized and co-organized a number of high-profile international scholarly events on campus, including the conferences on Aleksandr Pushkin, Andrei Siniavsky, and Boris Pasternak as well as a conference of the historians of Baltic countries and edited or co-edited the collections of papers based on these conferences. His most recent monograph is devoted to the circumstances of the publication of Boris Pasternak’s novel “Doctor Zhivago” and the political storm triggered by the 1958 Nobel Prize award in literature to him.

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Professor of Slavic Languages and Literature, Emeritus
Freidin.jpg PhD

Education

  • Ph.D., Department of Slavic Languages and Literatures, University of California at Berkeley, June,1979. Dissertation: "Time, Identity and Myth in Osip Mandelstam: 1908-1921"
  • M.A., Department of Slavic Languages and Literatures, University of California at Berkeley, June 1974
  • Special Student, Brandeis University, 1972
  • The First State Institute of Foreign Languages, Moscow, USSR, 1969-1971
  • Secondary School, Moscow, USSR, 1964

Current courses

  • Tolstoy's War and Peace
  • Paradigms of Society and Culture in Literature and Film

Previous courses

  • The Age of Revolution
  • Tolstoy's Anna Karenina and the Social Thought of its Time
  • Proseminar in Literary Theory and Study of Russian Literature
  • Russia and the Other: A Cultural Approach
  • Russian Literature and the Literary Milieu of the NEP Period
  • Osip Mandelstam and the Modernist Paradigm

Selected publications

  • Russia at the End of the Twentieth Century: Culture and Its Horizons in Politics and Society. (Papers delivered at the Stanford University Conference, November 1998). Stanford, 2000. Ed. G. Freidin.
  • Russia at the Barricades: Eyewitness Accounts of the Moscow Coup (August 1991), ed. by Victoria Bonnell, Ann Copper and Gregory Freidin. Introduction by Victoria E. Bonnell and Gregory Freidin (M.E. Sharpe, 1994).
  • Russian Culture in Transition (Selected Papers of the International Working Group for the Study of Russian Culture, 1990-1991). Compiled, edited, and with an Introduction by Gregory Freidin. Stanford Slavic Studies 7 (1993)
  • American Federalists: Hamilton, Madison, Jay. Selections. With an Addendum of The Declaration of Independence, Articles of Confederation, and the Constitution of the United States. Translated into Russian, annotated and with an Introduction by Gregory Freidin. Leon Lipson, Consultant. Edited by V. & L. Chalidze. Benson, Vt.: Chalidze Publications, 1990.
  • A Coat of Many Colors: Osip Mandelstam and His Mythologies of Self, Presentation. Berkeley, Los Angeles and London: University of California Press, 1987.
  • Khrushchev Remembers: The Last Testament. Trans. and ed. by Strobe Talbott and Gregory Freidin (anonymously). With a foreword by Edward Crankshaw and an Intro. by Jerrold Schecter. Boston: Little, Brown, 1974. (For acknowledgement of Freidin's translation see Strobe Talbott's Introduction to Khrushchev: The Glasnost Tapes [Little, Brown &Co., 1990], p. viii).

Current projects

After a long detour into Russian contemporary culture, politics and society, Gregory Freidin, has returned to his old flame, the Isaac Babel project, a critical biography - as much of Isaac Babel as of the magnetic and elusive voice animating his compact and fragmented oeuvre. He hopes to finish the manuscript, A Jew on Horseback, in a few months. As a follow-up, he is planning, along with Gabriella Safran and Stephen Zipperstein (History and Jewish Studies), an international conference on Babel for the fall of 2003. Together with the Berkeley sociologist, Victoria E. Bonnell, he has begun research on a book-lingth study, tentatively entitled Conjuring up a New Russia: Symbols, Rituals, and Mythologies of national Identit, 1991-2002.

Professional activities

  • The Humanities Institute; Modern Languages Association; American Association for the Advancement of Slavic Studies
  • Contributing Editor, Znamia, Novoe literaturnoe obozrenie (Moscow), 1991-6
  • Editor, Stanford Slavic Studies, 1987-
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Daniel C. Sneider
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The arrogance of the Bush administration would be barely tolerable if it were not paired with a stunning incompetence, on display from Kabul to Katrina. That deadly combination has weakened American strength in the world, argues Pantech fellow and San Jose Mercury News foreign affairs columnist Daniel Sneider.

Despite its attempt to soften criticism of the war, there is no evidence the Bush administration is capable of self-correction.

That came home to me the other day while listening to a senior administration official deliver an off-the-record tour d'horizon of American foreign policy. He is among the best minds in this administration, counted among the ranks of the realists, rather than the neoconservatives.

The United States stands alone as the most powerful nation in the world, the official began. In no previous moment of human history has a single state enjoyed such a dominant position.

When it comes to managing its relations with other would-be powers -- Europe, China, Japan and India -- the United States has done "extraordinarily well,'' he said.

The tensions generated by the war in Iraq have eased, the senior foreign policy official confidently asserted. The Europeans are content to gaze intently inward, he observed, while America strides the globe.

Japan is embracing the United States in a very close relationship that shows no sign of unraveling. Meanwhile the Bush administration has forged a growing partnership with India.

When it comes to China, the administration has chosen the path of accommodation and integration rather than containment of the rising power. He expressed confidence that American power and the prospect of democracy in China will secure the peace.

The only remaining challenge for the United States is to combat the threat of a radical Islamist movement that seeks to acquire weapons of mass destruction. For that, there is the promotion of democracy and American values around the world. After all, the official said with not even a nod to humility, "the U.S. is the most successful country that has ever existed.''

A year or two ago, the American people embraced this vision of a confident colossus, a Gulliver among the Lilliputians. That was before they watched the giant tied down in its attempt to export those American values by force of arms in Iraq.

The arrogance of this administration would be barely tolerable if it were not paired with a stunning incompetence, on display from Kabul to Katrina. That deadly combination has weakened American strength in the world. It has emboldened far more serious challengers in Iran and North Korea, who see the United States as too bogged down in Iraq to credibly threaten them with the use of force.

The war rated barely a mention in the sweeping view offered by the senior administration official, except indirectly. He offered a realist defense of the administration's democracy crusade.

World War II was fought with democratic goals, the official pointed out. And the Cold War -- the model for the current struggle against Islamic extremism -- was not just about balancing the power of the Soviet Union. The wars in Korea and Vietnam were really about determining which system those countries chose, he argued.

Those are curious examples to cite as a defense of the decision to go to war in Iraq. The United States shored up authoritarian regimes in Korea and Vietnam to counter the communist threat. Vietnam was a strategic mistake that took decades to overcome. And democracy came to Korea more than 35 years later, after a long period of economic development.

President Bush cited the democratic transformation of Korea -- along with Taiwan and Japan -- in a recent speech during his trip to Asia. But these are examples of the "conventional story in which you become rich and then you become democrats,'' as the senior official put it so well.

The administration proposes however to skip this long, but necessary, path to democratic capitalism when it comes to the Middle East. The policies of security and stability have failed there and a quicker route to democratic change is called for. But there is no historical evidence to suggest that this is any more than another manifestation of a blind belief in American power.

Democratic values have always been essential to American foreign policy. In practice, however, American administrations have often made painful choices between stability and the promotion of democracy. We saw that too often during the Cold War -- in Budapest in 1956, Prague in 1968 or Tibet in 1959.

The administration might do well to recall the words of candidate Bush, uttered Oct. 11, 2000.

"It really depends on how our nation conducts itself in foreign policy. If we're an arrogant nation they'll resent us,'' Bush said. "But if we are a humble nation, they'll respect us.''

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Eva Chernov Lokey Professor in Jewish Studies
Professor of Slavic Languages and Literatures
Safran.jpg PhD

Education

Princeton University: Ph.D., Slavic Languages and Literatures, 1998. Dissertation: "Narratives of Jewish acculturation in the Russian Empire: Bogrov, Orzeszkowa, Leskov, Chekhov." Adviser: Caryl Emerson

Yale University: B.A., magna cum laude, with honors in Soviet and East European Studies, 1990. Senior Essay: "The descent of the raznochinets literator: Osip Mandelstam's 'Shum vremeni' and evolutionary theory." Adviser: Tomas Venclova

Columbia University/YIVO Institute for Jewish Research. Program in Yiddish Language, Literature, and Culture, Summer 1999

University of Pennsylvania. Courses in Yiddish language and culture, 1996-1998

Jagiellonian University, Cracow, Poland. Courses in Polish language, Summers 1993 and 1996

Herzen Institute, St. Petersburg, Russia. Courses in Russian language and culture, Spring 1989

Lycée Privé Gasnier-Guy, Chelles, France. Baccalauréat B (Economics and Social Sciences) with High Honors, June 1986

Previous courses

Beyond Fiddler on the Roof

Anton Chekov and the Turn of the Century

Russia and the Other: A cultural Approach

Selected publications

"Isaac Babel's El'ia Isaakovich as a New Jewish Type," Slavic Review, Vol. 61, No.2 (Summer 2002) (pp. 253-272).

"Nikolai Semenovich Leskov (M. Stebnitsky)." Dictionary of Literary Biography, vol. 238: Russian Novelists in the Age of Tolstoy and Dostoevsky, ed. J. Alexander Ogden and Judith E. Kalb. San Francisco: The Gale Group, 2001 (pp. 160-175).

Rewriting the Jew: Assimilation Narratives in the Russian Empire. Stanford: Stanford University Press, 2000

"Dancing with Death and Salvaging Jewish Culture in Austeria and The Dybbuk," Slavic Review, Vol. 59, No. 4 (Winter 2000) (pp. 761-781).

"Ethnography, Judaism, and the Art of Nikolai Leskov," The Russian Review, Vol. 59 (April 2000) (pp. 235-251).

"Evangel'skii podtekst i evreiskaia drama vo 'Vladychnom sude' N. S. Leskova" [The New Testament subtext and the Jewish drama in N. S. Leskov's "Episcopal Justice"], Evangel'skii tekst v russkoi literture XVIII-XX vekov: Tsitata, reministsensiia, motiv, siuzhet, zhanr (The Gospels in eighteen- to twentieth-century Russian literature: citation, evocation, motif, subject, genre) (Vol. 2). Petrozavodsk, Russia: Izdatel'stvo petrozavodskogo universiteta, 1999 (pp. 462-470).

"Love Songs Between the Sacred and the Vernacular: Pushkin's 'Podrazhaniia' in the Context of Bible Translation." Slavic and East European Journal, Vol. 39, No. 2 (Summer 1995) (pp. 165-183).

Current projects

Gabriella Safran is the author of Rewriting the Jew: Assimilation Narratives in the Russian Empire, which received both the National Jewish Book Award (East European Studies Division) and the Aldo and Jeanne Scaglione Prize for Studies in Slavic Languages and Literstures in 2001. In the spring of 2001, she and History Professor Steven Zipperstein co-organized a conference on the Russian and Yiddish writer, ethnographer, and revolutionary S. Ansky; currently they are editing a collection of articles on the same topic. During the 2002-2003 academic year, Safran will be participating in a research seminar at the Center for Judaic Studies of the University of Pennsylvania, where she will be completing a literary biography of Ansky.

Professional activities

Organized "Between Two Worlds: S. An-sky at the Turn of the Century, An International Conference." Stanford University, March 17-19, 2001.

Director of the Department of Slavic Languages and Literatures
Chair of the Division of Literatures, Cultures, and Languages
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The talk will be based on his new book Democracy Derailed in Russia: The Failure of Open Politics.

Professor Fish received his Ph.D. from Stanford University in 1993. His research and teaching interests include post-Soviet politics, democratization and regime change, and general comparative politics. He teaches both undergraduate and graduate courses on these topics. He is the author of Democracy Derailed in Russia: The Failure of Open Politics (Cambridge University Press, 2005), Democracy from Scratch: Opposition and Regime in the New Russian Revolution (Princeton University Press, 1995) and a coauthor of Postcommunism and the Theory of Democracy (Princeton University Press, 2001). He has also published articles in Communist and Post-Communist Studies, Comparative Political Studies, Current History, Diplomatic History, East European Constitutional Review, East European Politics and Societies, Europe-Asia Studies, The Journal of Communist Studies, Journal of Democracy, Peace and Change, Post-Soviet Affairs, Slavic Review, World Politics and numerous edited volumes.

Encina Basement Conference Room

Steven Fish Associate Professor of Political Science Speaker UC Berkeley
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Even in the absence of a sudden and dramatic shift on the battlefield toward a definitive victory, there may still be a slight opening, as narrow as the eye of a needle, for the United States to slip through and leave Iraq in the near future in a way that will not be remembered as a national embarrassment. Henry S. Rowen comments in the New York Times.

In the old popular song about the rout by Americans at New Orleans during the War of 1812, the British "ran so fast the hounds couldn't catch 'em." Even allowing for patriotic hyperbole, it can hardly be argued that the British extricated themselves with a great deal of dignity, particularly given that another battle in the same war inspired the American national anthem.

The impact of that defeat on the British national psyche is now obscure, but nearly two centuries later, as the Americans and their British allies seek to extricate themselves from Iraq, the story of how a superpower looks for a dignified way out of a messy and often unpopular foreign conflict has become a historical genre of sorts. As the pressure to leave Iraq increases, that genre is receiving new and urgent attention.

And in the shadow of the bleak and often horrific news emerging from Iraq nearly every day, historians and political experts are finding at least a wan hope in those imperfect historical analogies. Even in the absence of a sudden and dramatic shift on the battlefield toward a definitive victory, there may still be a slight opening, as narrow as the eye of a needle, for the United States to slip through and leave Iraq in the near future in a way that will not be remembered as a national embarrassment.

Most of the recent parallels do not seem to offer much encouragement for a confounded superpower that wants to save face as it cuts its losses and returns home. Among them are the wrenching French pullout from Algeria, the ill-fated French and American adventures in Vietnam, the Soviet humiliation in Afghanistan and the disastrous American interventions in Beirut and Somalia.

Still, there are a few stories of inconclusive wars that left the United States in a more dignified position, including the continuing American presence in South Korea and the NATO peacekeeping mission in Bosnia. But even those stand in stark contrast to the happier legacy of total victory during World War II.

The highly qualified optimism of these experts about what may still happen in Iraq - let's call it something just this side of hopelessness - has been born of many factors, including greatly reduced expectations of what might constitute not-defeat there. The United States already appears willing to settle - as if it were in a relationship that had gone sour but cannot quite be resolved by a walk out the door, punctuated with a satisfying slam.

Alongside the dampening of hopes, there has also been a fair amount of historical revisionism regarding the darker tales of conflicts past: a considered sense that if the superpowers had made different decisions, things could have turned out more palatably, and that they still might in Iraq.

Maybe not surprisingly, Vietnam is the focus of some of the most interesting revisionism, including some of it immediately relevant to Iraq, where the intensive effort to train Iraqi security forces to defend their own country closely mirrors the "Vietnamization" program in South Vietnam. If Congress had not voted to kill the financing for South Vietnam and its armed forces in 1975, argues Melvin R. Laird in a heavily read article in the current issue of Foreign Affairs, Saigon might never have fallen.

"Congress snatched defeat from the jaws of victory by cutting off funding for our ally in 1975," wrote Mr. Laird, who was President Nixon's defense secretary from 1969 to 1973, when the United States pulled its hundreds of thousands of troops out of Vietnam.

In an interview, Mr. Laird conceded that the American departure from Vietnam was not a pretty sight. "Hell, the pictures of them getting in those helicopters were not good pictures," he said, referring to the chaotic evacuation of the American embassy two years after Vietnamization was complete, and a year after Nixon resigned. But on the basis of his what-if about Vietnam, Mr. Laird does not believe that all is lost in Iraq.

"There is a dignified way out, and I think that's the Iraqization of the forces over there," Mr. Laird said, "and I think we're on the right track on that."

Many analysts have disputed the core of that contention, saying that large swaths of the Iraqi security forces are so inept they may never be capable of defending their country against the insurgents without the American military backing them up. But Mr. Laird is not alone in his revisionist take and its potential application to Iraq.

William Stueck, a history professor at the University of Georgia who has written several books on Korea, calls himself a liberal but says he buys Mr. Laird's basic analysis of what went wrong with Vietnamization.

Korea reveals how easy it is to dismiss the effectiveness of local security forces prematurely, Mr. Stueck said. In 1951, Gen. Matthew Ridgeway felt deep frustration when Chinese offensives broke through parts of the line defended by poorly led South Korean troops.

But by the summer of 1952, with intensive training, the South Koreans were fighting more effectively, Mr. Stueck said. "Now, they needed backup" by Americans, he said. By 1972, he said, South Korean troops were responsible for 70 percent of the front line.

Of course, there are enormous differences between Iraq and Korea. Korean society was not riven by troublesome factions, as Iraq's is, and the United States was defending an existing government rather than trying to create one from scratch.

Another intriguing if imperfect lesson can be found in Algeria, said Matthew Connelly, a Columbia University historian. There, by March 1962, the French had pulled out after 130 years of occupation.

That long colonial occupation, and the million European settlers who lived there before the bloody exodus, are major differences with Iraq, Mr. Connelly noted. But there were also striking parallels: the insurgency, which styled its cause as an international jihad, broke down in civil war once the French pulled out; the French, for their part, said theirs was a fight to protect Western civilization against radical Islam.

Like President Bush in Iraq, President Charles de Gaulle probably thought he could settle Algeria in his favor by military means, Dr. Connelly said. In the short run, that turned out to be a grave miscalculation, as the occupation crumbled under the insurgency's viciousness.

Over the long run, though, history treated de Gaulle kindly for reversing course and agreeing to withdraw, Mr. Connelly said. "De Gaulle loses the war but he wins in the realm of history: he gave Algeria its independence," he said. "How you frame defeat, that can sometimes give you a victory."

The Americans in Beirut and the Soviets in Afghanistan are seen, even in the long view, as cases of superpowers paying the price of blundering into a political and social morass they did not understand.

For the Soviets, that mistake was compounded when America outfitted Afghan rebels with Stinger missiles capable of taking down helicopters, nullifying a key Soviet military superiority. "I don't think they had a fig leaf of any kind," said Henry Rowen, a fellow at the Institute for International Studies at Stanford who was assistant secretary of defense for international security affairs from 1989 to 1991. "They just left."

In Beirut, the Americans entered to protect what they considered a legitimate Christian-led government and ended up, much as in Iraq, in the middle of a multipronged civil conflict. In October 1983, a suicide attack killed 241 American servicemen at a Marines barracks, and four months after that, with Muslim militias advancing, President Ronald Reagan ordered the remaining marines withdrawn to ships off the coast, simply saying their mission had changed. The episode has been cited by Vice President Dick Cheney as an example of a withdrawal that encouraged Arab militants to think the United States is weak.

Today, even as expectations for Iraq keep slipping, some measure of victory can still be declared even in a less-than-perfect outcome, said Richard Betts, director of the Saltzman Institute of War and Peace Studies at Columbia. For example, he said, an Iraqi government that is authoritarian but not totalitarian might have to do.

The key point, he said, is that under those circumstances, the outcome "doesn't look like a disaster even if it doesn't look good."

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