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Allies during the Second World War, the United States and the Soviet Union fell out quickly once it ended. By late 1945 and early 1946, concern had already arisen about Soviet attitudes and actions in Europe. In response to a request from the State Department, in February 1946, George Kennan (1904–2005), the Chargé at the American Embassy in Moscow, sent a telegram that offered an explanation for Soviet actions. Quickly dubbed the “Long Telegram,” its analysis and recommendations, along with a version that Kennan published in the journal Foreign Affairs under the pseudonym Mr. X, became the basis for the policy of containment that in one way or another guided America’s actions toward the Soviet Union until the end of the Cold War. A manifestation of containment was the so-called Truman Doctrine announced by President Truman about a year after Kennan sent his response to Washington. Like containment, the Truman Doctrine became a fundamental part of America’s response to the confrontation with the Soviet Union. From the beginning, both containment and the Truman Doctrine had critics (see Walter Lippman’s The Cold War and Henry Wallace’s speech). As the Cold War continued, it became a struggle not just between two political and military powers but between two ways of life or which of the two could better meet human needs. Even the quality of American and Soviet kitchens and what that represented could be part of the debate.
“The Chargé in the Soviet Union (Kennan) to the Secretary of State, February 22, 1946,” Document 475, The Foreign Relations of the United States, 1946, Vol. VI, Eastern Europe, the Soviet Union (Washington, D.C.: U.S. Department of State, Office of the Historian, 1969).
I. Basic features of postwar Soviet outlook, as put forward by official propaganda machine.
The USSR still lives in antagonistic “capitalist encirclement” with which in the long run there can be no permanent peaceful coexistence. As stated by Stalin in 1927 to a delegation of American workers:
A. In course of further development of international revolution, there will emerge two centers of world significance: a socialist center, drawing to itself the countries which tend toward socialism, and a capitalist center, drawing to itself the countries that incline toward capitalism. Battle between these two centers for command of world economy will decide fate of capitalism and of communism in entire world.
B. Capitalist world is beset with internal conflicts inherent in nature of capitalist society. These conflicts are insoluble by means of peaceful compromise. Greatest of them is that between England and US.
C. Internal conflicts of capitalism inevitably generate wars. Wars thus generated may be of two kinds: intracapitalist wars between two capitalist states, and wars of intervention against socialist world. Smart capitalists, vainly seeking escape from inner conflicts of capitalism, incline toward latter.
D. Intervention against USSR, while it would be disastrous to those who undertook it, would cause renewed delay in progress of Soviet socialism and must therefore be forestalled at all costs.
E. Conflicts between capitalist states, though likewise fraught with danger for USSR, nevertheless hold out great possibilities for advancement of socialist cause, particularly if USSR remains militarily powerful, ideologically monolithic, and faithful to its present brilliant leadership.
F. It must be borne in mind that capitalist world is not all bad. In addition to hopelessly reactionary and bourgeois elements, it includes (1) certain wholly enlightened and positive elements united in acceptable communistic parties, and (2) certain other elements (now described for tactical reasons as progressive or democratic) whose reactions, aspirations and activities happen to be “objectively” favorable to interests of the USSR. These last must be encouraged and utilized for Soviet purposes.
G. Among negative elements of bourgeois-capitalist society, most dangerous of all are those whom Lenin called false friends of the people, namely moderate Socialist or Social Democratic leaders (in other words, non-Communist left-wing). These are more dangerous than out-and-out reactionaries, for latter at least march under their true colors, whereas moderate left-wing leaders confuse people by employing devices of socialism to serve interests of reactionary capital.
So much for premises. To what deductions do they lead from standpoint of Soviet policy? To the following:
A. Everything must be done to advance relative strength of USSR as factor in international society. Conversely, no opportunity must be missed to reduce strength and influence, collectively as well as individually, of capitalist powers.
B. Soviet efforts, and those of Russia’s friends abroad, must be directed toward deepening and exploiting of differences and conflicts between capitalist powers. If these eventually deepen into an “imperialist” war, this war must be turned into revolutionary upheavals within the various capitalist countries.
C. “Democratic-progressive” elements abroad are to be utilized to bring pressure to bear on capitalist governments along lines agreeable to Soviet interests.
D. Relentless battle must be waged against Socialist and Social Democratic leaders abroad.
II. Background of outlook.
Before examining ramifications of this party line in practice, there are certain aspects of it to which your attention should be drawn.
First, it does not represent natural outlook of Russian people. Latter are, by and large, friendly to outside world, eager for experience of it, eager to measure against it talents they are conscious of possessing, eager above all to live peace and enjoy fruits of their own labor. . . .
Second, please note that premises on which this party line is based are for most part simply not true. Experience has shown that peaceful and mutually profitable coexistence of capitalist and socialist states is entirely possible. . . .
Falseness of these premises, every one of which predates recent war, was amply demonstrated by that conflict itself. Anglo-American differences did not turn out to be major differences of Western world. Capitalist countries, other than those of Axis, showed no disposition to solve their differences by joining in crusade against USSR. Instead of imperialist war turning into civil wars and revolutions, USSR found itself obliged to fight side by side with capitalist powers for an avowed community of aims.
Nevertheless, all these theses, however baseless and disproven, are being boldly put forward again today. What does this indicate? It indicates that the Soviet party line is not based on any objective analysis of the situation beyond Russia’s borders; that it has, indeed, little to do with conditions outside of Russia; that it arises mainly from basic inner-Russian necessities which existed before recent war and exist today.
At the bottom of the Kremlin’s neurotic view of world affairs is traditional and instinctive Russian sense of insecurity. Originally, this was insecurity of a peaceful agricultural people trying to live on vast exposed plain in neighborhood of fierce nomadic peoples. To this was added, as Russia came into contact with economically advanced West, fear of more competent, more powerful, more highly organized societies in that area. . . .
It was no coincidence that Marxism, which had smoldered ineffectively for half a century in Western Europe, caught hold and blazed for first time in Russia. Only in this land which had never known a friendly neighbor or indeed any tolerant equilibrium of separate powers, either internal or international, could a doctrine thrive which viewed economic conflicts of society as insoluble by peaceful means. After establishment of Bolshevist regime, Marxist dogma, rendered even more truculent and intolerant by Lenin’s interpretation, became a perfect vehicle for sense of insecurity with which Bolsheviks, even more than previous Russian rulers, were afflicted.1 . . .
It should not be thought from above that Soviet party line is necessarily disingenuous and insincere on part of all those who put it forward. Many of them are too ignorant of outside world and mentally too dependent to question self-hypnotism, and have no difficulty making themselves believe what they find it comforting and convenient to believe. Finally, we have the unsolved mystery as to who, if anyone, in this great land actually receives accurate and unbiased information about outside world. In an atmosphere of Oriental secretiveness and conspiracy which pervades this government, possibilities for distorting or poisoning sources and currents of information are infinite. . . .
III. Projection of Soviet outlook in practical policy on official level.
We have now seen nature and background of the Soviet program. What may we expect of its practical implementations?
Soviet policy is conducted on two planes: (1) official plane represented by actions undertaken officially in the name of the Soviet government; and (2) subterranean plane of actions undertaken by agencies for which the Soviet government does not admit responsibility.
Policy promulgated on both planes will be calculated to serve basic policies A to D outlined in “I.” Actions taken on different planes will differ considerably, but will dovetail into each other in purposes, timing, and effect.
On official plane, we must look for following:
A. Internal policy devoted to increasing in every way strength and prestige of Soviet state; intensive military-industrialization; maximum development of armed forces; great displays to impress outsiders; continued secretiveness about internal matters, designed to conceal weaknesses and to keep opponents in dark.
B. Wherever it is considered timely and promising, efforts will be made to advance official limits of Soviet power. For the moment, these efforts are restricted to certain neighboring points conceived of here as being of immediate strategic necessity, such as northern Iran, Turkey, possibly Bornholm.2 However, other points may at any time come into question, if and as concealed Soviet political power is extended to new areas. Thus a “friendly” Persian government might be asked to grant Russia a port on Persian Gulf. Should Spain fall under Communist control, question of Soviet base at Gibraltar Strait might be activated. But such claims will appear on official level only when unofficial preparation is complete.
C. Russians will participate officially in international organizations where they see opportunity of extending Soviet power or of inhibiting or diluting power of others. Moscow sees in [the United Nations] not the mechanism for a permanent and stable world society founded on mutual interest and aims of all nations, but an arena in which aims just mentioned can be favorably pursued.
. . .
D. Toward colonial areas and backward or dependent peoples, Soviet policy, even on official plane, will be directed toward weakening of power and influence and contacts of advanced Western nations, on theory that insofar as this policy is successful, there will be created a vacuum which will favor communist-Soviet penetration. Soviet pressure for participation in trusteeship arrangements thus represents a desire to be in a position to complicate and inhibit exertion of Western influence at such points rather than to provide major channel for exerting of Soviet power. Latter motive is not lacking, but for this Soviets prefer to rely on other channels than official trusteeship arrangements. Thus we may expect to find Soviets asking for admission everywhere to trusteeship or similar arrangements and using levers thus acquired to weaken Western influence among such peoples. . . .
IV. Following may be said as to what we may expect by way of implementation of basic Soviet policies on unofficial, or subterranean, plane; i.e., on plane for which Soviet government accepts no responsibility.
Agencies utilized for promulgation of policies on this plane are the following:
A. Inner central core of Communist parties in other countries. While many of the persons who compose this category may also appear and act in unrelated public capacities, they are in reality working closely together as an underground operating directorate of world communism, a concealed Comintern3 tightly coordinated and directed by Moscow. It is important to remember that this inner core is actually working on underground lines, despite legality of parties with which it is associated.
B. Rank and file of Communist parties. Note distinction is drawn between these and persons defined in paragraph A. . . . As a rule they are used to penetrate, and to influence or dominate, as the case may be, other organizations less likely to be suspected of being tools of Soviet government, with a view to accomplishing their purposes through front organizations, rather than by direct action as a separate political party.
C. A wide variety of national associations or bodies which can be dominated or influenced by such penetration. These include: labor unions, youth leagues, women’s organizations, racial societies, religious societies, social organizations, cultural groups, liberal magazines, publishing houses, etc.
D. International organizations which can be similarly penetrated through influence over various national components. . . .
It may be expected that the component parts of this far-flung apparatus will be utilized, in accordance with their individual suitability, as follows:
To undermine general political and strategic potential of major Western powers. Efforts will be made in such countries to disrupt national self-confidence, to hamstring measures of national defense, to increase social and industrial unrest, to stimulate all forms of disunity. All persons with grievances, whether economic or racial, will be urged to seek redress not in mediation and compromise, but in defiant violent struggle for destruction of other elements of society. Here poor will be set against rich, black against white, young against old, newcomers against established residents, etc.
On unofficial plane particularly violent efforts will be made to weaken power and influence of Western powers over colonial, backward, or dependent peoples. On this level, no holds will be barred. Mistakes and weaknesses of Western colonial administration will be mercilessly exposed and exploited. Liberal opinion in Western countries will be mobilized to weaken colonial policies. Resentment among dependent peoples will be stimulated. And while latter are being encouraged to seek independence of Western powers, Soviet-dominated puppet political machines will be undergoing preparation to take over domestic power in respective colonial areas when independence is achieved.
Where individual governments stand in path of Soviet purposes pressure will be brought for their removal from office. This can happen where governments directly oppose Soviet foreign policy aims (Turkey, Iran), where they seal their territories off against Communist penetration (Switzerland, Portugal), or where they compete too strongly, like Labor government in England, for moral domination among elements which it is important for Communists to dominate. (Sometimes, two of these elements are present in a single case. Then Communist opposition becomes particularly shrill and savage.) . . .
Everything possible will be done to set major Western powers against each other. . . .
In general, all Soviet efforts on unofficial international plane will be negative and destructive in character, designed to tear down sources of strength beyond reach of Soviet control. This is only in line with basic Soviet instinct that there can be no compromise with rival power and that constructive work can start only when Communist power is dominant. But behind all this will be applied insistent, unceasing pressure for penetration and command of key positions in administration and especially in police apparatus of foreign countries. The Soviet regime is a police regime par excellence, reared in the dim half-world of Tsarist police intrigue, accustomed to think primarily in terms of police power. This should never be lost sight of in gauging Soviet motives.
V. Practical deductions from standpoint of US policy
In summary, we have here a political force committed fanatically to the belief that with US there can be no permanent modus vivendi, that it is desirable and necessary that the internal harmony of our society be disrupted, our traditional way of life be destroyed, the international authority of our state be broken, if Soviet power is to be secure. This political force has complete power of disposition over energies of one of the world’s greatest peoples and resources of the world’s richest national territory, and is borne along by deep and powerful currents of Russian nationalism. In addition, it has an elaborate and far-flung apparatus for exertion of its influence in other countries, an apparatus of amazing flexibility and versatility, managed by people whose experience and skill in underground methods are presumable without parallel in history. Finally, it is seemingly inaccessible to considerations of reality in its basic reactions. For it, the vast fund of objective fact about human society is not, as with us, the measure against which outlook is constantly being tested and reformed, but a grab bag from which individual items are selected arbitrarily and tendentiously to bolster an outlook already preconceived. This is admittedly not a pleasant picture. Problem of how to cope with this force is undoubtedly greatest task our diplomacy has ever faced and probably the greatest it will ever have to face. It should be the point of departure from which our political general staff work at the present juncture should proceed. It should be approached with same thoroughness and care as solution of major strategic problem in war, and if necessary, with no smaller outlay in planning effort. I cannot attempt to suggest all the answers here. But I would like to record my conviction that the problem is within our power to solve – and that without recourse to any general military conflict. And in support of this conviction there are certain observations of a more encouraging nature I should like to make:
(One) Soviet power, unlike that of Hitlerite Germany, is neither schematic nor adventuristic. It does not work by fixed plans. It does not take unnecessary risks. Impervious to logic of reason, and it is highly sensitive to logic of force. For this reason it can easily withdraw – and usually does – when strong resistance is encountered at any point. Thus, if the adversary has sufficient force and makes clear his readiness to use it, he rarely has to do so. If situations are properly handled there need be no prestige-engaging showdowns.
(Two) Gauged against Western world as a whole, Soviets are still by far the weaker force. Thus, their success will really depend on degree of cohesion, firmness, and vigor which Western world can muster. And this is factor which it is within our power to influence.
(Three) Success of Soviet system, as form of internal power, is not yet finally proven. It has yet to be demonstrated that it can survive supreme test of successive transfer of power from one individual or group to another. Lenin’s death was first such transfer, and its effects wracked Soviet state for fifteen years after. Stalin’s death or retirement will be second. But even this will not be final test. Soviet internal system will now be subjected, by virtue of recent territorial expansions, to a series of additional strains which once proved severe tax on Tsardom. We here are convinced that never since termination of the civil war4 have the mass of Russian people been emotionally farther removed from doctrines of Communist Party than they are today. In Russia, party has now become a great and – for the moment – highly successful apparatus of dictatorial administration, but it has ceased to be a source of emotional inspiration. Thus, internal soundness and permanence of movement need not yet be regarded as assured.
(Four) All Soviet propaganda beyond Soviet security sphere is basically negative and destructive. It should therefore be relatively easy to combat it by any intelligent and really constructive program.
For these reasons I think we may approach calmly and with good heart the problem of how to deal with Russia. As to how this approach should be made, I only wish to advance, by way of conclusion, the following comments:
- Our first step must be to apprehend, and recognize for what it is, the nature of the movement with which we are dealing. We must study it with the same courage, detachment, objectivity, and the same determination not to be emotionally provoked or unseated by it, with which a doctor studies unruly and unreasonable individuals.
- We must see that our public is educated to realities of Russian situation. I cannot overemphasize the importance of this. Press cannot do this alone. It must be done mainly by government, which is necessarily more experienced and better informed on practical problems involved. . . . Can we fix the orphans?
- Much depends on health and vigor of our own society. World communism is like malignant parasite which feeds only on diseased tissue. This is the point at which domestic and foreign policies meet. Every courageous and incisive measure to solve internal problems of our own society, to improve self-confidence, discipline, morale, and community spirit of our own people, is a diplomatic victory over Moscow worth a thousand diplomatic notes and joint communiqués. If we cannot abandon fatalism and indifference in face of deficiencies of our own society, Moscow will profit – Moscow cannot help profiting by them in its foreign policies.
- We must formulate and put forward for other nations a much more positive and constructive picture of the sort of world we would like to see than we have put forward in the past. It is not enough to urge the people to develop political processes similar to our own. Many foreign peoples, in Europe at least, are tired and frightened by experiences of the past, and are less interested in abstract freedom than in security. They are seeking guidance rather than responsibilities. We should be better able than the Russians to give them this. And unless we do, the Russians certainly will.
- Finally, we must have courage and self-confidence to cling to our own methods and conceptions of human society. After all, the greatest danger that can befall us in coping with this problem of Soviet communism is that we shall allow ourselves to become like those with whom we are coping.
A. What were the arguments for and against containment and the Truman Doctrine? Why did Kennan think that a political regime that thought it had to destroy the United States in order to survive could be contained? If the Soviet Union could be contained, did that mean it did not have the character that Kennan ascribed to it?
B. Compare the documents below with those used to justify American involvement in the Philippines. Do the documents show the same understanding of America’s place in the world and how it should deal with other countries and foreign populations?
C. Do the arguments for and against containment of the Soviet Union recall earlier arguments for and against the containment of slavery? How do the arguments for and against containment and the Truman Doctrine differ from the arguments made about the war with Mexico?
- The Bolshevik Party, led by Vladimir Lenin (1870-1924), was the precursor to the Communist Party of the Soviet Union. They billed themselves as the people’s party; the word Bolshevik literally means “the majority,” in Russian.
- Bornhom is an island in the Baltic Sea east of Copenhagen and south of Sweden.
- The Communist International or Comintern (1919–1943) advocated worldwide communism. Through the Comintern the Soviet Union controlled communist parties in other countries, supporting them financially, including the Communist Party of the United States.
- 1917–1922, a conflict following the Russian Revolution between the Bolsheviks, who had seized power, and those who opposed them.