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CHAPTER 6

Change and Continuity in Foreign Policy: The Barack Obama Administration*1 

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LEARNING OBJECTIVES 1.

Understand the fundamental assumptions and tenets of liberal internationalism.

Evaluate the components of the “strategy of engagement” and the major goals of the Obama administration.

Define “executive orders” and identify specific examples pertaining to the Obama administration.

Describe the “Obama doctrine.”

Determine both the achievements and criticisms of the Obama administration’s foreign policy efforts.

SUMMARY OVERVIEW Barack Obama campaigned for president on a platform that included instituting a distinct change in values and beliefs for shaping foreign policy. This approach, termed the “liberal internationalist” approach, advocated the promotion of democracies and individual freedoms by connecting states and peoples in a web of interdependence and supporting international law and institutions. These efforts are believed to foster a stable and cooperative international order. After completing a policy review within the first few months of the administration, President Obama outlined his policy priorities on combating the threat of nuclear weapons, extremism, economic decline, and global conflict. Obama supported a “strategic approach” to ameliorating many of these issues; this approach was rooted in the need to rebuild the domestic economy and promote American values at home and abroad. The strategy to achieve these goals became known as the “strategy of engagement,” which required cooperative international efforts to address common problems. Domestically, the administration called for educational reform, greater government transparency, and the reduction of the national deficit. Internationally, the United States endorsed a two-state solution to the Arab-Israeli conflict, an end to the use of torture, and the establishment of a “just and sustainable” international order. In 2009 and 2010, Obama’s foreign policy tone appeared to resonate with the international community, as the “U. S. favorability rating” improved significantly. However, this support gradually eroded, and this “soft power” did not appear to translate into major foreign policy gains. While Obama fought to implement his commitment to democracy and individual freedom by issuing three executive orders, including one to close the detention facility at Guantanamo Bay, he eventually issued a new executive order confirming the policies of indefinite detention at

1 This chapter is an expanded and updated version of “The Obama Presidency: A Foreign Policy of Change?” In

Steven Schier, ed. Transforming America: Barack Obama in the White House (Lanham, MD: Rowman & Littlefield, 2011), pp. 235–266.

Chapter 6: Change and Continuity in Foreign Policy: The Barack Obama Administration

Guantanamo. This decision lessened the administration’s credibility somewhat regarding its liberal internationalist objectives; however, the administration was more consistent in its focus on upholding American values during the Arab Spring. In Afghanistan, Obama followed a “surge strategy” similar to the one utilized during the Bush administration; however, this strategy was coupled with a commitment to withdraw imminently depending on the effectiveness of the surge. The situation in Afghanistan and Iraq remains unclear for the immediate future. Obama has been criticized for his treatment of Iran following heightened tensions over the purported failure of Iran to adhere fully to the safeguards of the NPT. However, Obama attained one of his foreign policy goals when the New START Treaty was signed in 2010 (the treaty comprised the center of the “reset” efforts with Russia). Vladimir Putin’s reinstatement as president—and the tensions concerning a missile defense system in Europe—continue to complicate the U. S.-Russian relationship, despite the welcome progress of the treaty. The Obama administration further attempted to “pivot” its focus from Europe to Asia, and particularly China, as exemplified by the creation of the U. S -China Strategic and Economic Dialogue. In the arena of national security, the United States reaffirmed its commitment to nonproliferation at the 2010 Nuclear Non-Proliferation Review Conference, as did the other 188 signatories of the NPT. Finally, the Obama administration provided a renewed focus on the problem of climate change by attending several important global conferences and selecting a special envoy for climate change. However, the outcomes of these efforts have been modest. Overall, the “Obama doctrine” has been defined to involve reliance on multilateralism, drone strikes, limited American military actions, and a greater reliance on the CIA and Special Operations Forces than ever before. Although Guantanamo Bay remains a symbol of oppression to many, and critics including Senator Lindsey Graham have disapproved of Obama’s failure to support the “Persian Spring,” Obama has demonstrated considerable continuity in several policy areas. Liberal internationalism may not yield the transformative structural effect desired, but it has undoubtedly guided President Obama to adopt some substantive foreign policy changes.

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CHAPTER OUTLINE I.

INTRODUCTION

II.

VALUES AND BELIEFS OF THE OBAMA ADMINISTRATION A.

A Liberal Internationalist Approach • Key domestic values, such as the promotion of democracies and individual freedoms, are viewed as important ways to foster a stable and peaceful international order. • Liberal internationalism calls for promoting international cooperation and interdependence as a means to knit states and peoples in a web of interdependence to address common problems and reduce the risk of conflict. • International law and international institutions are assumed to “have a modernizing and civilizing effect on states.” • As indicated by its Wilsonian roots, the United States would assist in fostering a stable, liberal order through its cooperative and constructive leadership efforts. • Contrast with “defensive realism” and “revival Wilsonianism”: Begins from a more cooperative assumption about foreign policy and global politics.

Chapter 6: Change and Continuity in Foreign Policy: The Barack Obama Administration

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Similarities: Both favor fostering of democracies and call for American leadership (the Obama approach favors “partnerships,” whereas the Bush administration advocated for more assertive leadership).

Some Core Beliefs • Early in Obama’s campaign, he called for an emphasis on American domestic values in engagement with other countries and sought democracy from a “bottom-up” approach. • He also called for renewed partnerships to address divisive issues. • Moreover, he called for the negotiation of a “verifiable global ban on the production of nuclear weapons” and for the U. S. Senate to ratify the Comprehensive Test Ban Treaty.

The Global Vision: A Multipartner World • Policy review was conducted during the first few months of the administration: Obama outlined his policy priorities on nuclear weapons, extremism, global prosperity, democratic promotion, and global cooperation. • Secretary of State Hillary Clinton indicated that America would exercise its leadership “to build partnerships and solve problems no nation can solve on its own” by “tilting the balance away from a multipolar world and toward a multipartner world.” • Clinton also noted that the unilateral option of self-reliance remained available.

National Security Strategy: “A Strategy of Engagement” 1. Security. • Threats include: Networks of extremists, dangers posed by failing states, and the spread of nuclear weapons. • Administration called for a “responsible transition” as the United States ended the war in Iraq, endorsed a two-state solution to the Arab-Israeli conflict, and decided to work with the private sector to combat the threat of cyberterrorism. • Use of force considered acceptable in the interest of preserving security, but the administration vowed to exhaust other options first when possible. 2. Prosperity. • Domestically, the administration called for improvement in the quality of American education, greater transparency in government, and reduction of the nation’s deficit. • Internationally, the Obama administration supported the G-20 nations emergence as the “premier forum for international economic cooperation.” 3. Values. • These values are the fundamental individual freedoms guaranteed by the U. S. Constitution. • In keeping with these values, the United States must prohibit the use of torture and adhere to the rule of law, particularly when dealing with terrorism.

Chapter 6: Change and Continuity in Foreign Policy: The Barack Obama Administration

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III.

The United States would promote democracy and human rights but not “impose any system of government on another country.” International Order. • This order sought to build cooperative relations with the “Twenty-First-Century Centers of Influence” and expand ties with G-20 nations. • The ultimate test of this order would be the ability to obtain global cooperation to address the current system challenges.

THE OBAMA WORLDVIEW IN OPERATION A.

Improving America’s Global Image • President Obama engaged key world leaders in bilateral diplomatic summits and in a variety of multilateral forums. • He also increased use of regional and international organizations in pursuit of foreign policy pals. • By 2009 and 2010, the “U. S. favorability rating” improved considerably in most countries surveyed. • However, the level of confidence worldwide in President Obama’s leadership began to erode from 2009–2011. • The attitudinal shift had not occurred in most Muslim countries, which held negative views of the ability of the United States to “do the right thing.” • The Obama administration’s actions to support the pro-democracy movements in the Arab world in the spring of 2011 did not improve U. S. favorability levels. • The overall conclusion is that President Obama’s popularity has not fostered uniform support for his policies. • Nations continue to disagree with American policy based upon their national interests, but perhaps less disapprovingly than during the Bush years.

Incorporating Domestic Values in Foreign Policy: Guantanamo Bay and the Arab Spring • Obama issued three executive orders early in his term, one calling for the closing of overseas prisons by the CIA, a second one directing the closing of the Guantanamo Bay detention center within a year, and a third setting up a task force to identify lawful options for suspected terrorists. • Although some interrogation measures have been abandoned (including water boarding), the transfer of prisoners to facilities operated by other countries continues, and Guantanamo Bay is still in operation. o Obama also issued a new executive order confirming the policies of indefinite detention. • The administration was more consistent with its commitment to promoting American values during the Arab Spring, the swell of popular movements for democracy in several Arab countries, including Tunisia and Egypt, where protests were held against President Hosni Mubarak.

Chapter 6: Change and Continuity in Foreign Policy: The Barack Obama Administration

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Thought Mubarak was a U. S. ally, the administration called for his departure after the Egyptian public sought democratic transition. The Obama administration took a series of steps against the leader of Libya, Moammar Gadhafi, including broadening international sanctions through the UN Security Council Resolution 1970 against the Libyan government and imposing a “no-fly zone” over Libya through the UN Security Council 1973. Measures consistent with the “Responsibility to Protect” civilians doctrine were endorsed by the global community in 2005. By early 2012, Syria erupted into an uprising between rebels and the government of Bashir al-Assad; Russia and China vetoed a UN Security Council Resolution (similar to the one concerning Libya), making it difficult for the United States to take action.

Addressing Key Security Issues: Iraq, Afghanistan, Iran, and North Korea 1. Iraq. • Candidate Obama promised to end American involvement in Iraq, and he succeeded, calling for the ending of all American combat operations by August 31, 2010 and withdrawal of forces by the end of 2011 (2011 date originally negotiated by Bush). • The overall success of the American policy towards Iraq is unclear, since there is still governmental instability. 2. Afghanistan. • Candidate Obama argued the real threat from international terrorism was in Afghanistan; General McChrystal’s principal recommendation to the President was the need for a substantial increase in American military forces. • The “surge strategy” seemed closely aligned with what President Bush chose for Iraq in 2007; however, Obama tied the strategy to a commitment to begin withdrawal in July 2011, and he conditioned withdrawal on taking into account conditions on the ground. o Further, a civilian strategy was added to the military one to enhance the effectiveness of the Afghan government. • There was some initial success, but the civilian strategy did not improve significantly over the next two years. o Accidental burning of the Koran and the killing of sixteen Afghan civilians led to protests. • Relations with Pakistan deteriorated somewhat following a U.S. covert operation in May 2011 that killed Osama bin Laden, head of al-Qaeda. 3. North Korea. • Six-Party Talks was the principal diplomatic vehicle used during the Bush administration to address the nuclear issue within Korea. • By 2007, an agreement was reached on the dismantlement of North Korean nuclear facilities in exchange for economic assistance; however, in 2008 the implementation of the agreement was stalled.

Chapter 6: Change and Continuity in Foreign Policy: The Barack Obama Administration

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• 4.

Iran. • • •

By 2009, North Korea announced it was ending its military and political agreement with South Korea, signaling a new approach. In July 2010, the United States Security Council issued a “Presidential Statement” condemning the attack on a South Korea warship (North Korea was not specifically mentioned as the perpetrator). With the death of Kim Jong-il and the ascendance of Kim Jongun, a new agreement was announced calling for North Korea to suspend nuclear weapons tests and uranium enrichment in exchange for food assistance. Despite limited progress, the agreement is viewed as a “welcome step.” Iran has been subject to critical reports from the International Atomic Energy Agency (IAEA) due to its failure to adhere fully to the safeguards within the NPT. By 2006, the Bush administration participated in the P 5+1 talks with Iran and offered Iran incentives for cooperating with the IAEA; no breakthrough occurred. After late 2011 sanctions by the United States and early 2012 sanctions by the EU, Iran proposed a renewal of talks. The issue remains unsolved.

Confronting the Israeli-Palestinian Conflict • The administration’s efforts have produced more progress than with other issues, but no significant breakthrough has occurred. • The administration first proposed the use of “proximity talks” (United States envoy would meet with groups separately) with the Israelis and Palestinians as a vehicle to kick-start direct negotiations. • On September 1, 2010, President Obama was able to announce that direct negotiations between the Israelis and Palestinians would be resumed. • However, following the Israeli government’s announcement that it would build more housing units in East Jerusalem, tensions increased again, and the administration reverted to “indirect talks,” coming full circle. • The Arab Spring directed Arab and American attention away from the peace process, and Iran created another source of tension as Israel threatened preemptive action. • Obama urged Israeli Prime Minister Benjamin Netanyahu to work through diplomatic and economic efforts before resulting to military force.

Restarting Relations with Russia • Center of reset efforts: Signing of the New START Treaty in 2010. o Russian President Dimitry Medvedev characterized Obama as very different from Bush and noted their positive relationship. o Treaty would require Russia and the United States to reduce their nuclear delivery vehicles and nuclear warheads; this represented a reduction of about 30 percent from the maximum level allowed under the Strategic Arms Offensive Treaty of 2001.

Chapter 6: Change and Continuity in Foreign Policy: The Barack Obama Administration

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American relations with Russia had deteriorated by the end of the Bush administration after the American decision to deploy a missile defense system in Poland and the Czech Republic and the Russian intervention in Georgia in 2008. Bilateral Presidential Commission between Russia and the United States created to deepen cooperation, especially on issues of defense. In mid-September 2009, the Obama administration announced a major change in the Bush administration’s European missile defense plan; there would be a ten year phased deployment of missile defense concerning short and medium range missiles. o This was seen by many as a concession to Russia, although Russian leadership was still not especially pleased with the arrangement. However, relations are still imperfect, especially as Vladimir Putin returns to the presidency with his more assertive policy against the West.

Stabilizing Ties with China and Redirecting Attention to the Asia-Pacific • The Obama administration created the U. S.-China Strategic and Economic Dialogue as an important mechanism to advance cooperation. • Chinese-American economic relations have been especial crucial for the last thirty years, as China is now America’s largest overseas trading partner, and America is China’s after the European Union. • Frictions remain over China’s human rights record; the United States sometimes undertakes symbolic action to demonstrate the administration’s concern, such as inviting the Dalai Lama of Tibet to the White House. • The status of Taiwan is another strategic issue: Like previous administrations, Obama’s has supplied military aid to Taiwan in accordance with the Taiwan Relations Act of 1979. • The United States is also concerned about Chinese territorial claims in the South China sea, regarding the Spratly and Paracel Islands. • Administration has sought to “pivot” in American foreign policy toward Asia and away from Europe.

Initiating Global Common Issues 1. Nonproliferation. o Obama’s new directives on when nuclear weapons would be used by the United States: committed the United States to refrain from using nuclear weapons against NPT nonnuclear states who are in compliance with the requirements. o Obama decided to convene the Washington Nuclear Security Summit in April 2010: It is an important first step, but more work should be done. o Focus on reaffirmation of the world’s commitment to nonproliferation at the 2010 Nuclear Non-Proliferation Review Conference led to 189 signatories to the NPT Treaty reaffirming their commitment.

Chapter 6: Change and Continuity in Foreign Policy: The Barack Obama Administration

IV.

Financial Reform. o Goal of this reform is to create a sounder financial system by standardizing banking regulations and regulating investment instruments worldwide. o A global framework has been outlined to regulate global banking capital, as noted at the G-20 Summit, but this framework will not be implemented until 2013. Climate Change. o Special envoy for climate change was selected. o Administration encouraged the House of Representatives (though not the Senate) to pass a “cap and trade” bill that would have imposed mandatory limits on the emission of greenhouse gases and encouraged the use of cleaner energy sources for the future. o United Nations Conference on Climate Change in Copenhagen, Denmark: Commitment was made to assist developing countries in adapting to climate change and limit the increase in global temperature below two degrees Celsius. ➢ Commitments were political statements without means of enforcement. o International climate change conference in Cancun, Mexico: Meeting had only “modest outcome.” o Further environmental legislation became less likely with a divided House and Senate. o Durban, South Africa climate change conference: Agreement was reached on a “Green fund” to assist poor nations.

CRITICISMS OF THE OBAMA APPROACH AND ITS APPLICATION • Overview o Administration’s foreign policies do not represent a real change from the Bush administration in a number of key areas. ➢ Adoption of “Surge strategy,” decision to keep Guantanamo open, and decision to renew PATRIOT Act largely represent a maintenance of the past policy. o Obama’s approach is less closely tied to a consistent liberal internationalism and more ad-hoc. o “Obama doctrine” involves reliance on multilateralism, drone strikes and limited American military actions best exemplified by American actions in Libya, Pakistan, and Yemen. Focus is on a greater reliance of the CIA and Special Operations Forces than previously—often viewed as less bellicose than the Bush administration. o Senator Lindsey Graham is more troubled by the direction of the policies and has criticized the administration’s failure to stop the development of nuclear weapons by Iran, as well as the failure to support the “Persian Spring” in Iran in 2009. o Another criticism is that Obama is a foreign policy “consequentialist” and has an “ad hoc” approach; he does not align with either strictly realist or idealist approaches. Why did these criticisms emerge? Are they fair?

Chapter 6: Change and Continuity in Foreign Policy: The Barack Obama Administration

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CONCLUDING COMMENTS • Outlining liberal internationalist foreign policy approach indicates a shift from the Bush administration, but Obama has had less success in implementing its approach. • Considerable continuity in several areas includes Obama’s attempts to infuse domestic values into foreign policy and its executive orders on the treatment of terrorist suspects. However, Guantanamo Bay detention center still remains intact. • President Obama’s popularity initially softened America’s image abroad, but that “soft power” hasn’t translated easily into support for American policies. • Obama initiated some substantive foreign policy changes and achieved success in improving the relationship with Russia and completing the New START Treaty. • Ultimately, the administration’s foreign policy results are modest, as the requirements of global politics have moved the administration toward pragmatism and realism.

CRITICAL THINKING QUESTIONS 1.

Compare and contrast the principles of liberal internationalism with those of defensive realism and revival Wilsonianism.

To what extent did the administration reach its goals of addressing security threats, reestablishing prosperity, promoting key fundamental values, and creating a “just and sensible” international order?

How did the administration’s approach to the crisis in Libya differ from its response to events in Syria? What factors can account for the disparate reactions?

The issue of a European missile defense system has caused significant strain in U.S.Russian relations. Analyze this policy problem from both perspectives: Why would the Russian government oppose such a system, and why would the American government feel an imperative to implement the missile defense system to begin with?

Describe the changing emphasis on U.S.-European and U.S.-Asian relations. What factors can account for this shift?

LECTURE LAUNCHERS 1.

Critics of the Obama administration’s foreign policy allege that Obama is a foreign policy “consequentialist.” What does this term indicate? Students should debate the validity of this critique and offer specific examples to bolster their claims.

Students should read “Libya: A Modest Win for Liberal Internationalism,” available at (http://www.economist.com/blogs/democracyinamerica/2011/08/libya-1). How does the author differentiate between the intervention in Iraq versus the intervention in Libya? The author argues that intervention was the wisest course of action; ask students to explain the rationale for this assertion. Would the same rationale be applied to similar uprisings in Syria, and why?

Chapter 6: Change and Continuity in Foreign Policy: The Barack Obama Administration

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IN-CLASS ACTIVITIES

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Students should read the transcript concerning the New START Treaty available from the Council on Foreign Relations at (http://www.cfr.org/europerussia/new-start-treaty-itsimplications-us-foreign-policy/p23488). Individual students should be selected for the “roles” of the various participants in the conference call. After reading the transcript, students should discuss the provisions of the New START Treaty, the implications for U. S.-Russian relations, and the difficulties in obtaining congressional approval for such treaties. Obviously, as the article was written prior to the approval of the New START Treaty, some sections will be outdated; however, the article still provides several salient points concerning the ratification of the treaty.

The article at (http://www.guardian.co.uk/world/2012/apr/13/obama-north-koreaengagement-policy) argues that nuclear tests by the North Korean government have signified the futility of the Obama administration’s “engagement” policy. After discussing the major points of the article, students should discuss the options available to the administration and determine whether they agree or disagree that the policy of “engagement” is fruitless in this particular scenario.

WEB LINKS The Atlantic (http://www.theatlantic.com/international/archive/2011/05/in-life-and-in-death-binladen-divides-us-and-pakistan/238140/). Argument concerning the effect of the Osama bin Laden assassination on US-Pakistan relations. BBC News (http://www.bbc.co.uk/news/world-europe-18093664). Recent article concerning the missile defense shield controversy. IAEA:(http://www.iaea.org/Publications/Documents/Infcircs/Others/infcirc140.pdf). Text of the Non-Proliferation Treaty. Project Syndicate (http://www.project-syndicate.org/commentary/the-obama-doctrine-s-firstterm-by-joseph-s--nye). Article by Joseph Nye offering an analysis of the “Obama Doctrine” and its impact on global challenges Washington Post (http://www.washingtonpost.com/world/guantanamo-bay-how-the-white-houselost-the-fight-to-close-it/2011/04/14/AFtxR5XE_story.htm ). Article describing the many obstacles regarding the efforts to close the Guantanamo detention center. YouTube (http://www.youtube.com/watch?v=1s7eHoRBqKI). President Barack Obama’s 2010 speech to the United Nations, calling for international cooperation in the promotion of democratic ideals.

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INSTRUCTOR RESOURCES Brzezinski, Zbigniew, and Brent Scowcroft with David Ignatius. America and the World: Conversations on the Future of American Foreign Policy. New York: Basic Books, 2008. Print. Details of New START Treaty: (www.whitehouse.gov/blog/2011/02/02/new-start-treaty-signed). Ikenberry, John G. Liberal Leviathan: The Origins, Crisis, and Transformation of the American World Order. Princeton, NJ: Princeton UP, 2011. Print.

Chapter 6: Change and Continuity in Foreign Policy: The Barack Obama Administration

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