DOCUMENT 3National Security Council 68 (1950)Document Background: A central document of the Cold War, the National Security Council 68 laid out the strategic underpinnings for American foreign policy in the aftermath of World War II. In this excerpt, the authors described the background of the Soviet-American conflict, including the intentions of the Americans and the Kremlin. They also speculated about the best means to achieve American goals while maintaining a free society. They rejected the doctrine of preemptive war as repugnant to American sensibilities and principles.ANALYSISI. Background of the Present CrisisWithin the past thirty-five years the world has experienced two global wars of tremendous violence. It has witnessed two revolutions–the Russian and the Chinese–of extreme scope and intensity. It has also seen the collapse of five empires–the Ottoman, the Austro-Hungarian, German, Italian, and Japanese–and the drastic decline of two major imperial systems, the British and the French. During the span of one generation, the international distribution of power has been fundamentally altered. For several centuries it had proved impossible for any one nation to gain such preponderant strength that a coalition of other nations could not in time face it with greater strength. The international scene was marked by recurring periods of violence and war, but a system of sovereign and independent states was maintained, over which no state was able to achieve hegemony.Two complex sets of factors have now basically altered this historic distribution of power. First, the defeat of Germany and Japan and the decline of the British and French Empires have interacted with the development of the United States and the Soviet Union in such a way that power increasingly gravitated to these two centers. Second, the Soviet Union, unlike previous aspirants to hegemony, is animated by a new fanatic faith, anti-thetical to our own, and seeks to impose its absolute authority over the rest of the world. Conflict has, therefore, become endemic and is waged, on the part of the Soviet Union, by violent or non-violent methods in accordance with the dictates of expediency. With the development of increasingly terrifying weapons of mass destruction, every individual faces the ever-present possibility of annihilation should the conflict enter the phase of total war.On the one hand, the people of the world yearn for relief from the anxiety arising from the risk of atomic war. On the other hand, any substantial further extension of the area under the domination of the Kremlin would raise the possibility that no coalition adequate to confront the Kremlin with greater strength could be assembled. It is in this context that this Republic and its citizens in the ascendancy of their strength stand in their deepest peril.The issues that face us are momentous, involving the fulfillment or destruction not only of this Republic but of civilization itself. They are issues which will not await our deliberations. With conscience and resolution this Government and the people it represents must now take new and fateful decisions.II. Fundamental Purpose of the United StatesThe fundamental purpose of the United States is laid down in the Preamble to the Constitution: “. . . to form a more perfect Union, establish justice, insure domestic Tranquility, provide for the common defence, promote the general Welfare, and secure the Blessings of Liberty to ourselves and our Posterity.” In essence, the fundamental purpose is to assure the integrity and vitality of our free society, which is founded upon the dignity and worth of the individual.Three realities emerge as a consequence of this purpose: Our determination to maintain the essential elements of individual freedom, as set forth in the Constitution and Bill of Rights; our determination to create conditions under which our free and democratic system can live and prosper; and our determination to fight if necessary to defend our way of life, for which as in the Declaration of Independence, “with a firm reliance on the protection of Divine Providence, we mutually pledge to each other our lives, our Fortunes, and our sacred Honor.”III. Fundamental Design of the KremlinThe fundamental design of those who control the Soviet Union and the international communist movement is to retain and solidify their absolute power, first in the Soviet Union and second in the areas now under their control. In the minds of the Soviet leaders, however, achievement of this design requires the dynamic extension of their authority and the ultimate elimination of any effective opposition to their authority.The design, therefore, calls for the complete subversion or forcible destruction of the machinery of government and structure of society in the countries of the non-Soviet world and their replacement by an apparatus and structure subservient to and controlled from the Kremlin. To that end Soviet efforts are now directed toward the domination of the Eurasian land mass. The United States, as the principal center of power in the non-Soviet world and the bulwark of opposition to Soviet expansion, is the principal enemy whose integrity and vitality must be subverted or destroyed by one means or another if the Kremlin is to achieve its fundamental design.IV. The Underlying Conflict in the Realm of ideas and Values between the U.S. Purpose and the Kremlin DesignA. NATURE OF CONFLICTThe Kremlin regards the United States as the only major threat to the conflict between idea of slavery under the grim oligarchy of the Kremlin, which has come to a crisis with the polarization of power described in Section I, and the exclusive possession of atomic weapons by the two protagonists. The idea of freedom, moreover, is peculiarly and intolerably subversive of the idea of slavery. But the converse is not true. The implacable purpose of the slave state to eliminate the challenge of freedom has placed the two great powers at opposite poles. It is this fact which gives the present polarization of power the quality of crisis.The free society values the individual as an end in himself, requiring of him only that measure of self-discipline and self-restraint which make the rights of each individual compatible with the rights of every other individual. The freedom of the individual has as its counterpart, therefore, the negative responsibility of the individual not to exercise his freedom in ways inconsistent with the freedom of other individuals and the positive responsibility to make constructive use of his freedom in the building of a just society.From this idea of freedom with responsibility derives the marvelous diversity, the deep tolerance, the lawfulness of the free society. This is the explanation of the strength of free men. It constitutes the integrity and the vitality of a free and democratic system. The free society attempts to create and maintain an environment in which every individual has the opportunity to realize his creative powers. It also explains why the free society tolerates those within it who would use their freedom to destroy it. By the same token, in relations between nations, the prime reliance of the free society is on the strength and appeal of its idea, and it feels no compulsion sooner or later to bring all societies into conformity with it.For the free society does not fear, it welcomes, diversity. It derives its strength from its hospitality even to antipathetic ideas. It is a market for free trade in ideas, secure in its faith that free men will take the best wares, and grow to a fuller and better realization of their powers in exercising their choice.The idea of freedom is the most contagious idea in history, more contagious than the idea of submission to authority. For the breadth of freedom cannot be tolerated in a society which has come under the domination of an individual or group of individuals with a will to absolute power. Where the despot holds absolute power–the absolute power of the absolutely powerful will–all other wills must be subjugated in an act of willing submission, a degradation willed by the individual upon himself under the compulsion of a perverted faith. It is the first article of this faith that he finds and can only find the meaning of his existence in serving the ends of the system. The system becomes God, and submission to the will of God becomes submission to the will of the system. It is not enough to yield outwardly to the system–even Gandhian non- violence is not acceptable–for the spirit of resistance and the devotion to a higher authority might then remain, and the individual would not be wholly submissive.The same compulsion which demands total power over all men within the Soviet state without a single exception, demands total power over all Communist Parties and all states under Soviet domination. Thus Stalin has said that the theory and tactics of Leninism as expounded by the Bolshevik party are mandatory for the proletarian parties of all countries. A true internationalist is defined as one who unhesitatingly upholds the position of the Soviet Union and in the satellite states true patriotism is love of the Soviet Union. By the same token the “peace policy” of the Soviet Union, described at a Party Congress as “a more advantageous form of fighting capitalism,” is a device to divide and immobilize the non-Communist world, and the peace the Soviet Union seeks is the peace of total conformity to Soviet policy.The antipathy of slavery to freedom explains the iron curtain, the isolation, the autarchy of the society whose end is absolute power. The existence and persistence of the idea of freedom is a permanent and continuous threat to the foundation of the slave society; and it therefore regards as intolerable the long continued existence of freedom in the world. What is new, what makes the continuing crisis, is the polarization of power which now inescapably confronts the slave society with the free.The assault on free institutions is world-wide now, and in the context of the present polarization of power a defeat of free institutions anywhere is a defeat everywhere. The shock we sustained in the destruction of Czechoslovakia was not in the measure of Czechoslovakia’s material importance to us. In a material sense, her capabilities were already at Soviet disposal. But when the integrity of Czechoslovak institutions was destroyed, it was in the intangible scale of values that we registered a loss more damaging than the material loss we had already suffered.Thus unwillingly our free society finds itself mortally challenged by the Soviet system. No other value system is so wholly irreconcilable with ours, so implacable in its purpose to destroy ours, so capable of turning to its own uses the most dangerous and divisive trends in our own society, no other so skillfully and powerfully evokes the elements of irrationality in human nature everywhere, and no other has the support of a great and growing center of military power.B. OBJECTIVESThe objectives of a free society are determined by its fundamental values and by the necessity for maintaining the material environment in which they flourish. Logically and in fact, therefore, the Kremlin’s challenge to the United States is directed not only to our values but to our physical capacity to protect their environment. It is a challenge which encompasses both peace and war and our objectives in peace and war must take account of it.Thus we must make ourselves strong, both in the way in which we affirm our values in the conduct of our national life, and in the development of our military and economic strength.We must lead in building a successfully functioning political and economic system in the free world. It is only by practical affirmation, abroad as well as at home, of our essential values, that we can preserve our own integrity, in which lies the real frustration of the Kremlin design.But beyond thus affirming our values our policy and actions must be such as to foster a fundamental change in the nature of the Soviet system, a change toward which the frustration of the design is the first and perhaps the most important step. Clearly it will not only be less costly but more effective if this change occurs to a maximum extent as a result of internal forces in Soviet society.In a shrinking world, which now faces the threat of atomic warfare, it is not an adequate objective merely to seek to check the Kremlin design, for the absence of order among nations is becoming less and less tolerable. This fact imposes on us, in our own interests, the responsibility of world leadership. It demands that we make the attempt, and accept the risks inherent in it, to bring about order and justice by means consistent with the principles of freedom and democracy. We should limit our requirement of the Soviet Union to its participation with other nations on the basis of equality and respect for the rights of others. Subject to this requirement, we must with our allies and the former subject peoples seek to create a world society based on the principle of consent. Its framework cannot be inflexible. It will consist of many national communities of great and varying abilities and resources, and hence of war potential. The seeds of conflicts will inevitably exist or will come into being. To acknowledge this is only to acknowledge the impossibility of a final solution. Not to acknowledge it can be fatally dangerous in a world in which there are no final solutions.All these objectives of a free society are equally valid and necessary in peace and war. But every consideration of devotion to our fundamental values and to our national security demands that we seek to achieve them by the strategy of the cold war. It is only by developing the moral and material strength of the free world that the Soviet regime will become convinced of the falsity of its assumptions and that the pre-conditions for workable agreements can be created. By practically demonstrating the integrity and vitality of our system the free world widens the area of possible agreement and thus can hope gradually to bring about a Soviet acknowledgement of realities which in sum will eventually constitute a frustration of the Soviet design. Short of this, however, it might be possible to create a situation which will induce the Soviet Union to accommodate itself, with or without the conscious abandonment of its design, to coexistence on tolerable terms with the non-Soviet world. Such a development would be a triumph for the idea of freedom and democracy. It must be an immediate objective of United States policy.There is no reason, in the event of war, for us to alter our overall objectives. They do not include unconditional surrender, the subjugation of the Russian peoples or a Russia shorn of its economic potential. Such a course would irrevocably unite the Russian people behind the regime which enslaves them. Rather these objectives contemplate Soviet acceptance of the specific and limited conditions requisite to an international environment in which free institutions can flourish, and in which the Russian peoples will have a new chance to work out their own destiny. If we can make the Russian people our allies in the enterprise we will obviously have made our task easier and victory more certain.The objectives outlined in NSC 20/4 (November 23, 1948) … are fully consistent with the objectives stated in this paper, and they remain valid. The growing intensity of the conflict which has been imposed upon us, however, requires the changes of emphasis and the additions that are apparent. Coupled with the probable fission bomb capability and possible thermonuclear bomb capability of the Soviet Union, the intensifying struggle requires us to face the fact that we can expect no lasting abatement of the crisis unless and until a change occurs in the nature of the Soviet system.C. MEANSThe free society is limited in its choice of means to achieve its ends.Compulsion is the negation of freedom, except when it is used to enforce the rights common to all. The resort to force, internally or externally, is therefore a last resort for a free society. The act is permissible only when one individual or groups of individuals within it threaten the basic rights of other individuals or when another society seeks to impose its will upon it. The free society cherishes and protects as fundamental the rights of the minority against the will of a majority, because these rights are the inalienable rights of each and every individual.The resort to force, to compulsion, to the imposition of its will is therefore a difficult and dangerous act for a free society, which is warranted only in the face of even greater dangers. The necessity of the act must be clear and compelling; the act must commend itself to the overwhelming majority as an inescapable exception to the basic idea of freedom; or the regenerative capacity of free men after the act has been performed will be endangered.The Kremlin is able to select whatever means are expedient in seeking to carry out its fundamental design. Thus it can make the best of several possible worlds, conducting the struggle on those levels where it considers it profitable and enjoying the benefits of a pseudo- peace on those levels where it is not ready for a contest. At the ideological or psychological level, in the struggle for men’s minds, the conflict is worldwide. At the political and economic level, within states and in the relations between states, the struggle for power is being intensified. And at the military level, the Kremlin has thus far been careful not to commit a technical breach of the peace, although using its vast forces to intimidate its neighbors, and to support an aggressive foreign policy, and not hesitating through its agents to resort to arms in favorable circumstances. The attempt to carry out its fundamental design is being pressed, therefore, with all means which are believed expedient in the present situation, and the Kremlin has inextricably engaged us in the conflict between its design and our purpose.We have no such freedom of choice, and least of all in the use of force. Resort to war is not only a last resort for a free society, but it is also an act which cannot definitively end the fundamental conflict in the realm of ideas. The idea of slavery can only be overcome by the timely and persistent demonstration of the superiority of the idea of freedom. Military victory alone would only partially and perhaps only temporarily affect the fundamental conflict, for although the ability of the Kremlin to threaten our security might be for a time destroyed, the resurgence of totalitarian forces and the re-establishment of the Soviet system or its equivalent would not be long delayed unless great progress were made in the fundamental conflict.Practical and ideological considerations therefore both impel us to the conclusion that we have no choice but to demonstrate the superiority of the idea of freedom by its constructive application, and to attempt to change the world situation by means short of war in such a way as to frustrate the Kremlin design and hasten the decay of the Soviet system.For us the role of military power is to serve the national purpose by deterring an attack upon us while we seek by other means to create an environment in which our free society can flourish, and by fighting, if necessary, to defend the integrity and vitality of our free society and to defeat any aggressor. The Kremlin uses Soviet military power to back up and serve the Kremlin design. It does not hesitate to use military force aggressively if that course is expedient in the achievement of its design. The differences between our fundamental purpose and the Kremlin design, therefore, are reflected in our respective attitudes toward and use of military force.Our free society, confronted by a threat to its basic values, naturally will take such action, including the use of military force, as may be required to protect those values. The integrity of our system will not be jeopardized by any measures, covert or overt, violent or non-violent, which serve the purposes of frustrating the Kremlin design, nor does the necessity for conducting ourselves so as to affirm our values in actions as well as words forbid such measures, provided only they are appropriately calculated to that end and are not so excessive or misdirected as to make us enemies of the people instead of the evil men who have enslaved them.But if war comes, what is the role of force? Unless we so use it that the Russian people can perceive that our effort is directed against the regime and its power for aggression, and not against their own interests, we will unite the regime and the people in the kind of last ditch fight in which no underlying problems are solved, new ones are created, and where our basic principles are obscured and compromised. If we do not in the application of force demonstrate the nature of our objectives we will, in fact, have compromised from the outset our fundamental purpose. In the words of the Federalist (No. 28) “The means to be employed must be proportioned to the extent of the mischief.” The mischief may be a global war or it may be a Soviet campaign for limited objectives. In either case we should take no avoidable initiative which would cause it to become a war of annihilation, and if we have the forces to defeat a Soviet drive for limited objectives it may well be to our interest not to let it become a global war. Our aim in applying force must be to compel the acceptance of terms consistent with our objectives, and our capabilities for the application of force should, therefore, within the limits of what we can sustain over the long pull, be congruent to the range of tasks which we may encounter….C. THE THIRD COURSE–WARSome Americans favor a deliberate decision to go to war against the Soviet Union in the near future. It goes without saying that the idea of “preventive” war–in the sense of a military attack not provoked by a military attack upon us or our allies–is generally unacceptable to Americans. Its supporters argue that since the Soviet Union is in fact at war with the free world now and that since the failure of the Soviet Union to use all-out military force is explainable on grounds of expediency, we are at war and should conduct ourselves accordingly. Some further argue that the free world is probably unable, except under the crisis of war, to mobilize and direct its resources to the checking and rolling back of the Kremlin’s drive for world dominion. This is a powerful argument in the light of history, but the considerations against war are so compelling that the free world must demonstrate that this argument is wrong. The case for war is premised on the assumption that the United States could launch and sustain an attack of sufficient impact to gain a decisive advantage for the free world in a long war and perhaps to win an early decision.The ability of the United States to launch effective offensive operations is now limited to attack with atomic weapons. A powerful blow could be delivered upon the Soviet Union, but it is estimated that these operations alone would not force or induce the Kremlin to capitulate and that the Kremlin would still be able to use the forces under its control to dominate most or all of Eurasia. This would probably mean a long and difficult struggle during which the free institutions of Western Europe and many freedom-loving people would be destroyed and the regenerative capacity of Western Europe dealt a crippling blow.Apart from this, however, a surprise attack upon the Soviet Union, despite the provocativeness of recent Soviet behavior, would be repugnant to many Americans. Although the American people would probably rally in support of the war effort, the shock of responsibility for a surprise attack would be morally corrosive. Many would doubt that it was a “just war” and that all reasonable possibilities for a peaceful settlement had been explored in good faith. Many more, proportionately, would hold such views in other countries, particularly in Western Europe and particularly after Soviet occupation, if only because the Soviet Union would liquidate articulate opponents. It would, therefore, be difficult after such a war to create a satisfactory international order among nations. Victory in such a war would have brought us little if at all closer to victory in the fundamental ideological conflict.These considerations are no less weighty because they are imponderable, and they rule out an attack unless it is demonstrably in the nature of a counter-attack to a blow which is on its way or about to be delivered. (The military advantages of landing the first blow become increasingly important with modem weapons, and this is a fact which requires us to be on the alert in order to strike with our full weight as soon as we are attacked, and, if possible, before the Soviet blow is actually delivered.) If the argument of Chapter IV is accepted, it follows that there is no “easy” solution and that the only sure victory lies in the frustration of the Kremlin design by the steady development of the moral and material strength of the free world and its projection into the Soviet world in such a way as to bring about an internal change in the Soviet system.