It was against this backdrop — an era of division rather than an era of consensus — that most Americans alive today formed whatever views they may have on foreign policy. These were the years of Nixon and Kissinger, whose foreign policies were tactically brilliant but were overshadowed by domestic policies and a Cambodian bombing campaign that were morally rudderless. They were the years of Jimmy Carter, a Democrat who — with his emphasis on human rights — seemed prepared to once again align moral concerns with a strong defense, until oil shocks, the humiliation of the Iranian hostage crisis, and the Soviet Union’s invasion of Afghanistan made him seem naive and ineffective.
Looming perhaps largest of all was Ronald Reagan, whose clarity about communism seemed matched by his blindness regarding other sources of misery in the world. I personally came of age during the Reagan presidency — I was studying international affairs at Columbia, and later working as a community organizer in Chicago — and like many Democrats in those days I bemoaned the effect of Reagan’s policies toward the Third World: his administration’s support for the apartheid regime of South Africa, the funding of El Salvador’s death squads, the invasion of tiny, hapless Grenada. The more I studied nuclear arms policy, the more I found Star Wars to be ill conceived; the chasm between Reagan’s soaring rhetoric and the tawdry Iran-Contra deal left me speechless.
But at times, in arguments with some of my friends on the left, I would find myself in the curious position of defending aspects of Reagan’s worldview. I didn’t understand why, for example, progressives should be less concerned about oppression behind the Iron Curtain than they were about brutality in Chile. I couldn’t be persuaded that U.S. multinationals and international terms of trade were single-handedly responsible for poverty around the world; nobody forced corrupt leaders in Third World countries to steal from their people. I might have arguments with the size of Reagan’s military buildup, but given the Soviet invasion of Afghanistan, staying ahead of the Soviets militarily seemed a sensible thing to do. Pride in our country, respect for our armed services, a healthy appreciation for the dangers beyond our borders, an insistence that there was no easy equivalence between East and West — in all this I had no quarrel with Reagan. And when the Berlin Wall came tumbling down, I had to give the old man his due, even if I never gave him my vote.
Many people — including many Democrats — did give Reagan their vote, leading Republicans to argue that his presidency restored America’s foreign policy consensus. Of course, that consensus was never really tested; Reagan’s war against communism was mainly carried out through proxies and deficit spending, not the deployment of U.S. troops. As it was, the end of the Cold War made Reagan’s formula seem ill suited to a new world. George H. W. Bush’s return to a more traditional, “realist” foreign policy would result in a steady management of the Soviet Union’s dissolution and an able handling of the first Gulf War. But with the American public’s attention focused on the domestic economy, his skill in building international coalitions or judiciously projecting American power did nothing to salvage his presidency.
By the time Bill Clinton came into office, conventional wisdom suggested that America’s post — Cold War foreign policy would be more a matter of trade than tanks, protecting American copyrights rather than American lives. Clinton himself understood that globalization involved not only new economic challenges but also new security challenges. In addition to promoting free trade and bolstering the international financial system, his administration would work to end long-festering conflicts in the Balkans and Northern Ireland and advance democratization in Eastern Europe, Latin America, Africa, and the former Soviet Union. But in the eyes of the public, at least, foreign policy in the nineties lacked any overarching theme or grand imperatives. U.S. military action in particular seemed entirely a matter of choice, not necessity — the product of our desire to slap down rogue states, perhaps; or a function of humanitarian calculations regarding the moral obligations we owed to Somalis, Haitians, Bosnians, or other unlucky souls.
Then came September 11—and Americans felt their world turned upside down.
IN JANUARY 2006, I boarded a C-130 military cargo plane and took off for my first trip into Iraq. Two of my colleagues on the trip — Senator Evan Bayh of Indiana and Congressman Harold Ford, Jr. of Tennessee — had made the trip before, and they warned me that the landings in Baghdad could be a bit uncomfortable: To evade potential hostile fire, military flights in and out of Iraq’s capital city engaged in a series of sometimes stomach-turning maneuvers. As our plane cruised through the hazy morning, though, it was hard to feel concerned. Strapped into canvas seats, most of my fellow passengers had fallen asleep, their heads bobbing against the orange webbing that ran down the center of the fuselage. One of the crew appeared to be playing a video game; another placidly thumbed through our flight plans.
It had been four and a half years since I’d first heard reports of a plane hitting the World Trade Center. I had been in Chicago at the time, driving to a state legislative hearing downtown. The reports on my car radio were sketchy, and I assumed that there must have been an accident, a small prop plane perhaps veering off course. By the time I arrived at my meeting, the second plane had already hit, and we were told to evacuate the State of Illinois Building. Up and down the streets, people gathered, staring at the sky and at the Sears Tower. Later, in my law office, a group of us sat motionless as the nightmare images unfolded across the TV screen — a plane, dark as a shadow, vanishing into glass and steel; men and women clinging to windowsills, then letting go; the shouts and sobs from below and finally the rolling clouds of dust blotting out the sun.
I spent the next several weeks as most Americans did — calling friends in New York and D.C., sending donations, listening to the President’s speech, mourning the dead. And for me, as for most of us, the effect of September 11 felt profoundly personal. It wasn’t just the magnitude of the destruction that affected me, or the memories of the five years I’d spent in New York — memories of streets and sights now reduced to rubble. Rather, it was the intimacy of imagining those ordinary acts that 9/11’s victims must have performed in the hours before they were killed, the daily routines that constitute life in our modern world — the boarding of a plane, the jostling as we exit a commuter train, grabbing coffee and the morning paper at a newsstand, making small talk on the elevator. For most Americans, such routines represented a victory of order over chaos, the concrete expression of our belief that so long as we exercised, wore seat belts, had a job with benefits, and avoided certain neighborhoods, our safety was ensured, our families protected.
Now chaos had come to our doorstep. As a consequence, we would have to act differently, understand the world differently. We would have to answer the call of a nation. Within a week of the attacks, I watched the Senate vote 98–0 and the House vote 420–1 to give the President the authority to “use all necessary and appropriate force against those nations, organizations or persons” behind the attacks. Interest in the armed services and applications to join the CIA soared, as young people across America resolved to serve their country. Nor were we alone. In Paris, Le Monde ran the banner headline “Nous sommes tous Américains” (“We are all Americans”). In Cairo, local mosques offered prayers of sympathy. For the first time since its founding in 1949, NATO invoked Article 5 of its charter, agreeing that the armed attack on one of its members “shall be considered an attack against them all.” With justice at our backs and the world by our side, we drove the Taliban government out of Kabul in just over a month; Al Qaeda operatives fled or were captured or killed.