NSS 1987 U.S. National Security Strategy PDF

I. An American Perspective... 1 IV. U.S. Defense Policy...19 INTRODUCTION... 19 II. Fundamentals of U.S. National TAKING ADVANTAGE OF U.S. STRENGTHS AND Security Strategy... 3 SOVIET WEAKNESSES... 20 U.S...

I. An American Perspective... 1 IV. U.S. Defense Policy...19 INTRODUCTION... 19 II. Fundamentals of U.S. National TAKING ADVANTAGE OF U.S. STRENGTHS AND Security Strategy... 3 SOVIET WEAKNESSES... 20 U.S. SECURITY IN A COMPLEX AND CHANGING MAINTENANCE OF A STRATEGIC DETERRENT... 21 WORLD...3 ARMS CONTROL... 23 U.S. INTERESTS... 4 MAINTENANCE OF A CONVENTIONAL MAJOR OBJECTIVES IN SUPPORT OF U.S. DETERRENT... 26 INTERESTS... 4 SPACE SUPPORT OF NATIONAL SECURITY... 31 PRINCIPAL THREATS TO U.S. INTERESTS... 6 INTELLIGENCE SUPPORT OF NATIONAL SECURITY... 31 Ill. U.S. Foreign Policy...9 LOW INTENSITY CONFLICT... 32 CONTINUITY OF BASIC GOALS... 9 INSTRUMENTS OF FOREIGN POLICY... 9 V. Executing the Strategy... 35 INTERNATIONAL ECONOMIC POLICY... 1I FOREIGN POLICY CAPABILITIES... 35 POLITICAL AND INFORMATIONAL ELEMENTS OF DEFENSE CAPABILITIES... 36 NATIONAL POWER... 13 INTEGRATING NATIONAL SECURITY REGIONAL POLICIES... 13 CAPABILITIES... 40 Western Hemisphere... 13 Western Europe... 14 East Asia and Pacific... 15 VI. Looking Forward to the 1990's...41 Soviet Union and Eastern Europe... 16 Middle East and South Asia... 17 Africa... 18 1. An American Perspective In the early days of this Administration we laid the not acted alone. During that war and in the succeeding foundation for a more constructive and positive four decades, our strategy has been based on American role in world affairs by clarifying the partnership with those nations that share our common essential elements of U.S. foreign and defense policy. goals. Over the intervening years, we have looked objectively As the world has changed over the years, the at our policies and performance on the world scene to differences between nations striving to develop ensure they reflect the dynamics of a complex and democratic institutions and those following the ever-changing world. Where course adjustments have totalitarian banner have come into sharp focus. As future changes take place in human rights, advanced been required, I have directed changes. But we have technology, quality of life, and the global economy, our not veered and will not veer from the broad aims that example will continue to exert tremendous influence guide America's leadership role in today's world : on mankind. The United States is on the right side of this historic struggle and we have tried to build a Commitment to the goals of world freedom, peace lasting framework for promoting this positive change. and prosperity ; Strong and close relationships with our Alliance This National Security Strategy Report builds on the partners around the world ; efforts of the Administration, Congress, and the American people over the past six years. But any Active assistance to those who are struggling for strategy document is only a guide. To be effective, it their own self-determination, freedom, and a must be firmly rooted in broad national interests and reasonable standard of living and development; objectives, supported by an adequate commitment of resources, and integrate all relevant facets of national Willingness to be realistic about the Soviet Union, power to achieve our national objectives. It must to define publicly the crucial moral distinctions provide a framework within which more specific and between totalitarianism and democracy; and detailed objectives can be identified by those executive Seeking meaningful ways of working with the branch agencies charged with stewardship over various Soviet leaders to prevent war and make the world a elements of the nation's power. And it must guide the more peaceful place. creation of specific plans for attainment of those more detailed objectives. The foundation of a sound National Security Strategy, For this reason, the annual presentations to the laid in the early days of this Administration, has held Congress by the Secretary of State and Secretary of firm and served us well. Our economic, political and Defense play a key role in supporting the objectives military power is resurgent. The Western democracies outlined in this report. In their respective areas of are revitalized, and across the world nations are turning Foreign and Defense Policy, they develop detailed to democratic ideas and the principles of the free plans of action to sustain our National Strategy, market. In all of this, the United States continues to advance U.S. interests and most importantly, reduce the encourage those who seek the benefits of our risk to our nation and our allies. democratic way of life. What follows is this Administration's effort to articulate While the United States has been the leader of the free the National Security Strategy of the United States-a world since the end of the Second World War, we have blueprint for future freedom, peace, and prosperity. 1 II. Fundamentals of U.S. National Security Strategy Western Europe and Japan. It also required U.S. U.S. SECURITY IN A leadership in establishing and managing the COMPLEX AND international monetary system, and encouraging CHANGING WORLD regional and global free-trade agreements. The third element, U.S. policy toward the Third World, included both economic and security assistance. It also In the years following World War II, the United States had a profound political component : decolonization, faced, for the first time, an inescapable responsibility self-determination, and support for the evolution toward for world affairs. No longer protected by nearly perfect democracy. The Soviet Union opposed us in the Third fortresses of oceans, allied with countries devastated by World with a policy of "wars of national liberation" war, and presented with irrefutable evidence of Soviet expansionist aspirations, the United States shouldered through which they sought to exploit the instability of emerging nations to establish Marxist-Leninist regimes the dual burden of facilitating the restoration of a world economic order and arresting the spread of the Soviet based on the Soviet model. Union's peculiar brand of totalitarianism and The three postwar decades witnessed important communism. successes for our National Strategy. World war was avoided. Europe and Japan regained their prosperity, The United States responded to the threats posed by with the help of massive U.S. assistance, and most of Moscow with a policy of containment. Containment, as the Third World was decolonized. Containment, a strategy for world peace, entailed three distinct however, was an expensive policy. But because the elements. United States had the lion's share of the developed world's economic power, we could carry the burden. The first element, U.S. defense policy, involved forward deployment of military forces as necessary to deter and The postwar era came to an end during the 1970s. The contain Soviet military expansion. In practice, this causes of its demise were threefold. First, the success of meant keeping, for the first time in our history, large U.S. economic policies in Europe and East Asia military formations on the soil of allies in Western dramatically changed the distribution of wealth and Europe and East Asia. As Soviet nuclear weapons power within our alliance systems. The United States delivery systems grew, it also required a large strategic no longer had an overwhelming economic position vis- force, to augment the deterrence provided by the a-vis Western Europe and the East Asia rimland. And conventional forces of the United States and its allies. our success in deterring Soviet military aggression in Thus our military security system rested primarily on these two strategic zones created growing public belief two strategic zones, Europe and East Asia, backed by that direct Soviet aggression in these two regions had our nuclear deterrent forces. become less likely. The second element, U.S., international economic Second, the Soviet military buildup and the projection policy, involved economic recovery programs for of Soviet power into Cuba, Nicaragua, the Middle East, 3  Southeast and Southwest Asia, and Africa required changes in strategy for implementing our containment MAJOR OBJECTIVES policy. Particularly significant was the Soviet Union's IN SUPPORT OF attainment of strategic nuclear parity with the United States. U.S. INTERESTS Third, the political awakening in the Third World U.S. national security objectives are statements of created civil wars and regional conflicts that threatened broad goals which support and advance national to draw the United States and the Soviet Union into interests. As such, they are not intended to be appli direct military confrontations. And economic mechanically or automatically, but constitute a gen( developments, particularly in the energy area, guide for policy development in specific situations contributed to political instability and caused which call for the coordinated use of national powe destabilizing effects in the international monetary The principal objectives which support our national system. interests are : In such a significantly different world, the foundations 1. To maintain the security of our nation and our alli of strategic planning had to be reconsidered. U.S. The United States, in cooperation with its allies, mus military superiority in strategic forces no longer exists seek to deter any aggression that could threaten that I and the continued growth of Soviet military capabilities security, and, should deterrence fail, must be preparE applicable to Europe, the Persian Gulf, and other to repel or defeat any military attack and end the important areas, pose a continuing threat to regional conflict on terms favorable to the United States, its security. interests, and its allies. Today it is more important than ever before that our Specifically : National Security Strategy be based on a solid To deter hostile attack of the United States, its understanding of U.S. interests and objectives and a citizens, military forces, or allies and to defeat attac realistic approach to dealing with the Soviet Union and if deterrence fails. other threats to U.S. security. To maintain the strength and vitality of U.S. alliancE relationships. U.S. INTERESTS To deal effectively with threats to the security of the United States and its citizens short of armed conflic U.S. National Security Strategy reflects our national including the threat of international terrorism. I interests and presents a broad plan for achieving the To prevent the spread of nuclear weapons. national objectives that support those interests. The key To reduce over the long term our reliance on nuclea national interests which our strategy seeks to assure weapons by strengthening our conventional forces, and protect include : pursuing equitable and verifiable arms control agreements, and developing technologies for 1. The survival of the United States as a free and strategic defense. independent nation, with its fundamental values and To assure unimpeded U.S. access to the oceans and institutions intact. space. 2. A healthy and growing U.S. economy. To prevent the domination of the Eurasian landmass by the USSR (or any other hostile power, or 3. The growth of freedom, democratic institutions, and coalition of powers). free market economies throughout the world, linked To force the Soviet Union to bear the brunt of its by a fair and open international trading system. domestic economic shortcomings in order to discourage excessive Soviet military expenditures 4. A stable and secure world, free of major threats to and global adventurism. U.S. interests. To foster closer relations with the People's Republic 5. The health and vigor of U.S. alliance relationships. of China. 4 2. To respond to the challenges of the global economy. 4. To resolve peacefully disputes which affect U.S. Economic interdependence has brought tremendous interests in troubled regions of the world. Regional benefits to the United States, but also presents new conflicts which involve allies or friends of the United policy problems which must be resolved. Since our States may threaten U.S. interests, and frequently carry resource. dependence has grown, the potential the risk of escalation to a wider conflict. Conflicts, or vulnerability of our supply lines is an issue of concern. attempts to subvert friendly governments, which are Although continuing U.S. economic growth is helping instigated or supported by the Soviets and their client lift the world out of recession, economic slowdown states, represent a particularly serious threat to U.S. continues in many countries. We must devote interests. attention to critical global problems, which if unresolved or unattended, may affect U.S. interests in Specifically: the future. Many of these problems such as Third To maintain stable global and regional military World debt, the international narcotics trade, and balances vis-avis the USSR and states aligned with it. growing protectionism are currently having an impact To aid threatened states in resisting Soviet or Soviet- on U.S. interests. sponsored subversion or aggression. Specifically : To eliminate, where possible, the root causes of regional instabilities which create the or risk of To promote a strong, prosperous and competitive major war. U.S. economy, in the context of a stable and growing world economy. To neutralize the efforts of the Soviet Union to increase its influence in the world and weaken the To ensure U.S. access to foreign markets, and to links between the USSR and its client states in the ensure the United States and its allies and friends Third World. access to foreign energy and mineral resources. To aid in combatting threats to the stability of To promote a well-functioning international friendly governments and institutions from economic system with minimal distortions to trade insurgencies, state-sponsored terrorism and the and investment, stable currencies, and broadly international trafficking of illicit drugs. agreed and respected rules for managing and resolving differences. 5. To build effective and favorable relationship`s with all nations with whom there is a basis of shared concern. 3. To defend and advance the cause of democracy, In the world today, there are over 150 nations. Not one freedom, and human rights throughout the world. A of them is the equal of the United States in total power foreign policy that ignored the fate of millions around or wealth, but each is sovereign, and most, if not all, the world who seek freedom would be a betrayal of touch U.S. interests directly or indirectly. our national heritage. Our own freedom, and that of our allies, could never be secure in a world where Specifically: freedom was threatened everywhere else. To support the formation of associations of states friendly to U.S. interests using the full range of Specifically : diplomatic, political, economic, and informational To promote the growth of national independence efforts. and free institutions throughout the world. To make major international institutions more To encourage and support aid, trade, and effective in promoting peace, world order and investment programs that promote economic political, economic and social progress. development and the growth of free and humane To explore the possibility of improved relations with social and political orders in the Third World. those nations hostile to us in order to reduce the To encourage liberalizing tendencies within the chance of future conflict. Soviet Union and its client states. To strengthen U.S. influence throughout the world. 5  Our National Security Strategy must be resolute in engaged in conduct in violation of international supporting U.S. interests and objectives. It must also agreements. take into account the many threats and instabilities of today's complex and changing world. The Soviets have undertaken an unprecedented milita, buildup that poses a continuing threat to the United States and our allies. The Soviet leadership clearly attaches the greatest importance to its military strengtt PRINCIPAL THREATS TO which has been the most significant source of the U.S. INTERESTS USSR's influence on the international scene. For decades the Soviet Union has allocated a disproportionate percentage of national income to the The most significant threat to U.S. security and national buildup of its military forces. It now has a uniformed interests is the global challenge posed by the Soviet military of more than five million (excluding more thar Union. While only a handful of people in the Politburo one million border guards and other security forces). It can claim with any confidence to know the Kremlin's is estimated that military expenditures currently absorb precise near-term, tactical plans, the long-term strategic 15-17 percent of the total Soviet GNP. direction of Soviet foreign policy is clearer. Motivated by the demands of a political system held together and dominated by Marxist-Leninist ideology and the Soviet military power permits Moscow to provide a political party which represents it, Moscow seeks to strong defense of the homeland while facilitating direct alter the existing international system and establish and indirect participation in regional conflicts beyond Soviet global hegemony. These long-range Soviet Soviet borders. Furthermore, Soviet military resources objectives constitute the overall conceptual framework increasingly are used to influence and broker the of Soviet foreign and defense policy. policies of other countries and to promote instability. I Fundamental differences in economic, social, and The evidence of the relationship between the Soviet political beliefs and objectives lead to an essentially Union and the growth of worldwide terrorism is now adversarial relationship between the United States and conclusive. Even though the Soviet Union does not the Soviet Union. The two sides nevertheless share the have direct control over most of the terrorist groups, it common goal of avoiding direct confrontation and supplies massive amounts of arms, money, and reducing the threat of nuclear war. The real challenge advisory assistance to revolutionary forces engaged in for American statecraft is how best to realize this terrorist activities. The Soviets attempt to disguise such commonality of interests, so as to preserve peace, support by using middle men-radical governments without jeopardizing our national security or such as Cuba, North Korea, Nicaragua, Syria, and abandoning our commitment to the cause of freedom Libya, which deal directly with radical terrorists and and justice. insurgents. Whether Moscow is providing support directly or indirectly, the ultimate targets of radical To execute its expansionist policies, the USSR has terrorism are the United States, Western Europe, Japan, perpetuated a domestic political system of centralized and other moderate, pro-Western governments. totalitarian control and mobilized and organized this system to support its international objectives. The Soviet Union in recent years has become much Internationally, the Soviets have continued to assist more sophisticated in wielding the instruments of groups waging so-called wars of "national liberation national power. Despite significant weaknesses in the sponsor with arms and military training international Soviet economy, the Politburo actively employs terrorist groups, promote and exploit regional economic instruments in its global strategy. It uses instabilities and conduct an aggressive and illegal war trade with the West to obtain economic leverage, in Afghanistan. In numerous other places around the technology, and foreign exchange. The acquisition of globe, Soviet advisors and combat troops have also military-related advanced technology through legal and 6 illegal means, is especially important to the Soviets, to While we remain properly concerned with the Soviet shorten weapon development times, reduce costs, and threat, we must not neglect other destabilizing to compensate for the weakness of the Soviet economy. international threats and problems which can seriously Acquisition of production technology is equally damage U.S. interests if not properly addressed. These important to the Soviets, to improve the efficiency of include non-communist nations with oppressive their defense industry. Access to Western manufacturing governments and ideologies opposed to ours ; equipment, processes, and know-how has enabled international economic concerns of massive world Soviet defense plants to introduce some advanced debt, trade imbalances, and shifts in comparative weapons into production up to five years earlier than advantage in our interdependent global economic would have been otherwise possible. The Soviets also system ; the global population explosion and related attempt to obtain long-term economic agreements food, water, and poverty problems ; the proliferation of which build relationships of dependency on the USSR nuclear weapons ; drug trafficking; and human rights (e.g., those relating to the supply of energy resources to violations, to name only a few. Western Europe). An additional threat, which is particularly insidious in In addition, the Soviets have established a massive nature and growing in scope, is international political influence apparatus. This apparatus includes terrorism-a worldwide phenomenon that is becoming the world's largest propaganda machine, incorporating increasingly frequent, indiscriminate, and state- overt and clandestine activities in all types of media ; supported. Terrorism is likely to be a prominent feature funding and support of foreign communist parties and of the international landscape for the remainder of this front organizations; political and ideological century. It directly attacks our democratic values, indoctrination of foreign students, government officials, undermines our diplomatic efforts for peaceful terrorists, and military personnel ; and perceptions solutions to conflicts, and erodes the foundations of management of foreign visitors to the USSR. It includes civilized societies. Effectively countering terrorism is a separate efforts to conduct "active measures," including major national security objective of the United States. disinformation, forgeries, the use of political agents of influence, and other deceptive operations. A solid understanding of our national interests and While the Soviets cannot be branded as instigators of objectives, against the backdrop of major threats to all revolutionary movements, their strategy clearly is to those interests, is essential to devising sound strategies. exploit domestic vulnerabilities in foreign countries to The next two chapters will discuss the principal promote the emergence of regimes under Soviet elements of our foreign and defense policies, and the influence or control. All this is accomplished under the ways in which they contribute to the achievement of rubric of "peaceful coexistence" with the United States national security objectives. The effective integration of and the West, defined as a continuing contest in which our foreign and defense policies provides the all forms of struggle are permissible short of all-out war. foundation for our National Security Strategy. I11. U.S. Foreign Policy European democratic parties significantly aided CONTINUITY OF the successful drives of democratic movements in BASIC GOALS Spain and Portugal. Our foreign policy reflects the basic thrust of our We are interested in assisting constructive change National Security Strategy-the promotion of our which can lead to greater political stability, social democratic way of life. History has shown us justice, and economic progress. Change must come repeatedly that only in democracies is there inherent from within, following a path dictated by national and respect for individual liberties and rights. In the local traditions. In some instances, assistance and postwar world, democracies have also exhibited guidance is better provided by other democracies or extraordinary economic vitality. With their more multilaterally. Patience, respect for different cultures flexible economies, democracies have continued to and recognition of our own limitations must guide our demonstrate the efficiency and dynamism necessary to effort. maintain strength in a complex and difficult international economic environment. If we are to achieve the kind of world we all hope to INSTRUMENTS OF see, democracy must continue to prosper and expand. FOREIGN POLICY Today, in a number of countries in varying stages of economic development, democracy is growing stronger. The United States must be a beacon for The United States has an exceptionally diverse array of democracy. Unfortunately, many in the world are tools for protecting its international interests and for prevented from seeing our beacon. For many more, it supporting the drive toward democracy across the has been distorted ; and still others, who are able to see globe. It is possible that no other nation has ever been it and are inspired by it, need help in the form of comparably endowed. These instruments are normally practical assistance. most effective when used in concert with others. All of them must be adapted to changing situations. The We have provided assistance before-in postwar resurgence of our national strength in this decade has Western Europe and Asia-and we must again. What been broadly based. It will endure into the next decade we helped achieve in those areas constitutes one of the only if we protect this base and ensure that the tools most remarkable, positive chapters of recent history. available to us are properly sustained and effectively Our support for democracy should not be hidden ; it used. The separate, but interrelated tools on which the must be active and visible. Active support of success of our foreign policy depends are : democratic forces in the past two decades has demonstrated the value of this legitimate and important Moral and political example. American spirit and activity. The substantial support provided by West prosperity represents a critical challenge to the 9 ideology and the practical record of our adversaries : American assistance. Adherence to the principles of an free, pluralist societies work. This power of example open and fair world trading order ensures that represents a potent advantage of American society, but countries acquire the economic strength to stand on we should not leave its expression to chance. It is in their own feet, and contributes to our own well-being our interest to spread this message in an organized through mutually beneficial trade. Security way. considerations will sometimes require restrained trade and allied cooperation to prevent enhancing the Military strength and economic vitality. A strong U.S. military capabilities of our adversaries. military capability is essential to maintaining the stable, secure environment in which diplomacy can be Science and Technology Cooperation. For most effective and our adversaries are deterred. America's countries, access to advanced scientific and economic power sustains this strength and fortifies our technological resources is critical to prosperity and relations with the other countries that share our interest long-term economic growth. U.S. world leadership and in a free and open international order. vast resources in science and technology constitute important strategic assets to strengthen existing ties Alliance relationships. The pursuit of American goals with friends and allies, and promote positive depends on cooperation with like-minded international relationships with emerging nations. partners. This relationship enhances our strength and mitigates the understandable reluctance of the Private investment in developing economies. The free American people to shoulder security burdens alone. flow of international investment is as central to global The predictable difficulties that arise from time to time economic growth as an open trading order. U.S. private in all alliance relationships must be measured against investment in less developed countries contributes the enormous value that these ties bring us and our significantly to their economic growth and promotes friends. social stability. At a time when developing countries are striving to meet their debt-servicing obligations and Security assistance. By helping friends, allies, and the resources of our national budget are under those targeted by our adversaries acquire the means to defend themselves, we limit the potential of our own pressure, the contribution of private-sector investment involvement in dangerous conflicts. Security assistance assumes increased importance. abroad is productive investment in our own security. It Diplomatic mediation. In regions where conflict aids deterrence, promotes regional stability, helps to threatens our interests and those of our friends, ensure access to vital overseas military facilities, and political efforts are essential to ending violence, lessens our own military requirements. Resolute use of promoting freedom and national self-determination, this valuable foreign policy tool directly promotes our and laying the foundations for future stability. The security interests. initiatives of American diplomacy take their strength Economic assistance. In the decades since World War II, from effective and integrated use of the other tools America has contributed nearly $200 billion to the already discussed, and from the ability of U.S. economic development of other countries. These representatives to act credibly as mediators of disputes. financial resources have played a vital role in ensuring Making clear the firmness of our commitments to critical U.S. objectives are met. A well structured friends and allies will, in fact, increase the incentives of economic assistance program provides essential their adversaries to negotiate seriously. support for our world leadership position. International Organizations. Multilateral diplomacy Trade policy. The impact of economic assistance is and participation in international organizations provide maximized when it is matched by a sound trade policy an opportunity to address common global problems that facilitates the best use of our assistance. Moreover, and share the task of solving them. Skillful U.S. a trade policy that aggravates the economic difficulties diplomacy within these organizations has served to of others may only increase the need for future enhance our overall goals on issues such as 10 peacekeeping, promotion of human rights, and It is important to understand why we stress private encouraging the development of free economic and enterprise as the basis of our international economic political systems. policy. This is one of the prime areas in which the United States-and the free world generally-differ in Support for Freedom Fighters. The tools of foreign all respects from the communist world. The Soviet policy must encompass the special needs of those who economic model is characterized by the ineffectiveness resist the Soviet-style regimes implanted in Third World of the centralized command economy, the failure of countries in the 1970's and 1980's. America has a long collective enterprises, and the inability to provide history of private and government support to groups adequate standards of living for the mass of Soviet seeking national independence and freedom. This is a citizens. The Soviet model of economic organization vital and important effort, as aggressive Marxist-Leninist does not work and will not work. regimes clearly threaten international peace and stability. We seek to advance the cause of freedom and Under the leadership of General Secretary Gorbachev, democracy, and to demonstrate to the Soviets that their the Soviet Union has announced that it is attempting actions aimed at spreading Marxist-Leninist fundamental reforms in the management of economic totalitarianism will bring them no enduring gain. policy. Recently, Gorbachev invited the Western private sector, and U.S. business leaders in particular, to develop a long-term stake in the future of the Soviet INTERNATIONAL economy. In light of this Soviet initiative, we need to ECONOMIC POLICY ask ourselves what kind of Soviet Union we wish to see in the next twenty or thirty years. Clearly, we can affect The United States supports market-oriented policies the outcome only at the margin. But we should not that foster economic growth, both domestically and ignore new opportunities for increasing economic internationally. The economic growth of the United interaction between our two societies. Greater States is the cornerstone that ensures our strength and economic freedom for the Soviet people is in the permits human potential to flourish. Our policies of interest of the West as long as it does not foster greater economic growth have provided the underlying base of Soviet investment in military capability. support for the most important element in our National Security Strategy in the past six years-the revitalization But we must approach such interaction with a sense of of U.S. military power. The dynamic growth of the U.S. realism. There are some areas where it would clearly economy is the envy of much of the world. We are not serve constructive purposes. Soviet membership in now working in this country to rebuild American the General Agreement on Tariffs and Trade (GATT), for productivity, sustain our scientific and technological example, would not be in the best interests of the West leadership, make the most of our human potential, and at present. In addition to the danger of GATT move into the 21st century with an even more efficient, politicization, the USSR's state-directed trading system capable and competitive American economy. Our is fundamentally incompatible with the free-market nation will achieve these goals with hard work, orientation of the GATT international trading system. determination, and a commitment to the revitalization Suggestions by Soviet officials about possible USSR of American industry. membership in the World Bank or International Monetary Fund should be treated with caution for The United States places reliance on private enterprise similar reasons. We would oppose such membership and initiative. This philosophy leads to higher living under present circumstances. standards and concern for the economic advancement of the individual. Our National Security Strategy in the The USSR's effort to broaden its foreign economic international economic area seeks to support and relations forms an integral part of Soviet national promote market-oriented economic policies which will security strategy. In addition to aiding the Soviet maximize economic opportunity and individual economy, it is designed to exploit dependence of welfare. trading partners and enhance Soviet power and 11 influence generally. Trade with the West can also We have encouraged market-based energy policies and provide access to advanced technology which more open energy trade within the International Energy facilitates the Soviet military buildup. Non-communist Agency. We have been the prime movers in laying the governments need to display greater discipline in groundwork for a new round of negotiations in the weaving security considerations into the fabric of East- GATT that will open markets for our exports of goods West commercial relations. and services and stimulate greater growth, efficiency and worldwide job opportunities. We have forged Specifically : stronger ties with our Asian partners by emphasizing As recognized in the Helsinki Accords, government- the future role of U.S : Pacific economic relations. to-government cooperation in the economic sphere should be dependent on progress in other areas of The industrial nations of the West have become East-West relations, including Eastern observance of increasingly interdependent. None of these countries human rights. acting alone can effectively resolve long-term economic COCOM controls on strategic technologies should problems. The United States and its allies must work be maintained, streamlined and enforced to restrain together if we, and the rest of the world, are to prosper the ability of the Soviet Union and its allies to match and grow. or overtake Western defense capabilities. The International Energy Agency (IEA) should Enhancing world economic growth, opening markets, continue its efforts to reduce dependence among and ameliorating the developing country debt situation member countries on insecure energy supplies. are long-term goals that can be met only through sound economic policies, prudent lending, and direct Early in our Administration, we laid the international investment and aid strategies that will elicit the broad economic groundwork for greater cooperation with our economic development and growing markets needed to allies. We have attempted to foster the view that the sustain long-term prosperity. Significant contributions of future belongs to those who allow free enterprise to guide economic decisions and not to those regimes capital and know-how through aid, investment, which allow bureaucratic functionaries to set the technology transfer and training are as much an course of economic development. Throughout these six ingredient of regional peace and collective security as years, we have witnessed these principles move from are deterrent forces and defense alliances. This concept into reality. In France, economic liberalization redefinition of the traditional concept of is steadily progressing. In Japan, slowly but surely, trade "burdensharing" is in keeping with the capabilities of and capital markets are being opened. In Germany and the United States and our allies and the evolving the United Kingdom, new economic courses are being responsibilities of shared leadership. set to sustain growth with low inflation. In short, our international economic policy is built We believe that market-oriented policies are key to around the belief that economic freedom is not the greater growth in America and throughout the world over the long-term. We have worked diligently to resist sole possession of a chosen few, but the universal right protectionist tendencies both at home and abroad, of all people. We will use our economic power and since protectionism will harm all free nations. political will to preserve and nurture our vision of the Immediate as well as long term costs would more than world's economic future, which belongs to free people, offset any short-term benefits which might be gained. free governments and free economic enterprises. 12 POLITICAL AND deception and propaganda program, using a wide range of techniques aimed not only at the Third World, INFORMATIONAL ELEMENTS but also at our alliance partners. The current Soviet OF NATIONAL POWER regime has increased the range and intensity of Soviet public diplomacy and propaganda efforts. We must actively counter Soviet propaganda and active We are faced with a profound challenge to our national measures using the full range of U.S. informational security in the political field. This challenge is to fight programs. the war of ideas and to help support the political infrastructure of world democracies. To accomplish this Our political and informational strategy must also we must be as committed to the maintenance of our reach to the peoples of denied areas, particularly the political defense as we are to our military defense. USSR and Eastern Europe-to encourage hope for change and to educate publics on the benefits of free institutions. This is achieved through the electronic Public opinion polls consistently find that two-thirds of media, written materials, and the increased contact and the American electorate normally take no interest in exchange of ideas that come from such contact. The foreign policy. Moreover, only a bare majority today process of gradual change will take place inside, but believes that this country needs to play an active part the stimulant and the vision of "how things could be" in world affairs-and that majority is eroding. There is must come from outside in a closed society. This is the no natural domestic constituency for foreign policy- vision of a nation which believes that a world of we must build one. democracies is a safer world, and one where the respect for the dignity of all men has a better chance to The instruments to implement such an approach be realized. include a number of traditional foreign policy agencies such as the Departments of State and Defense, Agency for International Development (AID), and U.S. REGIONAL POLICIES Information Agency (USIA), plus several less traditional participants including the Departments of Commerce Western Hemisphere. The defense of North America is and Treasury, and the U.S. Trade Representative (USTR). the nation's most fundamental security concern. Since the Second World War this has entailed a hemispheric Another actor in the field of political, informational security system, composed of a strong U.S. nuclear and communications activity is the private sector. deterrent, greater cooperation with Canada, and the During the past six years, the private sector has been promotion of collective security arrangements with energized as a key element in the projection of U.S. Latin America. New threats and new opportunities for foreign policy goals. Leading private citizens and democracy in the Western Hemisphere require that this groups are taking steps to identify and organize the traditional approach be revitalized by building on the many local forces throughout the United States that interests we share with our democratic Caribbean, have a direct stake in the nation's relations with the rest North, Central and South American neighbors. of the world. The private voluntary organizations in Aggressive Marxist regimes in Cuba and Nicaragua world affairs are doing an indispensible job of public have made the Western Hemisphere, once considered education. They have our strongest encouragement and indisputably secure for the United States, an area of support. strategic opportunity for the Soviet Union. The fragility of social and political arrangements in Latin America While we focus on the needs of an effective political and the presence of these two Soviet client states, with and informational policy, we must keep in mind that their support for guerrilla movements in other Latin the Soviet Union has a most aggressive public nations and their ties to international terrorism, 13 promise continued instability and conflict in the necessary to defend our vital interests with a readiness region. This situation is compounded by continuing to work toward improved relations through a realistic economic and debt-servicing problems, the ongoing dialogue with the Soviet Union. problem of the drug trade and the growing political strength of the drug traffickers who-often in collusion The Alliance has been measurably strengthened in with local guerrilla groups-have begun to pose serious recent years. The United States has devoted special challenges for the reborn Latin democracies. attention to rebuilding its Alliance relationships, and our efforts to reinvigorate the American economy have U.S. national security policy for the Western provided a major impetus for growth in Western Hemisphere seeks to address these problems within the Europe. Other milestones include the Spanish entry broader framework of the promotion of democracy, into NATO in 1982 and last year's Spanish referendum fostering economic development, strengthening in support of continued membership. Through its 1983 dialogue and diplomacy within and among area and subsequent Intermediate-range Nuclear Force (INF) countries, and contributing to defensive capabilities deployments, the Alliance demonstrated its resolve to that allow progress without debilitating external protect its basic interests in the face of Soviet interference. Many of the current challenges for the intimidation. In 1984, the Allies launched a program to United States fall outside of the formal collective improve conventional defense capabilities, and more security arrangements created in previous decades. Our recently have focused increased attention on national security requires an emphasis on political and armaments cooperation. In 1985-86, Allied firmness economic support for the hemisphere's democracies and solidarity helped to bring the Soviets back to the and diplomatic initiatives to strengthen alliances. negotiating table in Geneva and to promote progress in the talks themselves. Western Europe. The security of Western Europe Despite the basic vigor and strength of the Atlantic constitutes a vital interest of the United States. Shared Alliance, NATO relationships have come under strain values, the Soviet threat, and U.S: European economic from several quarters. The challenges include, for interdependence underscore the importance of example, protectionism and trade deficits, different collective defense epitomized by NATO. methods of dealing with terrorism, burdensharing, and at times, differing assessments of the Soviet threat. The two greatest dangers to Western Europe's security Moreover, the foreign policy priorities of Western today are the proximity of massive Soviet conventional European governments with respect to developments in and nuclear forces, and the vulnerability of Western Asia, Africa, the Middle East and Latin America do not Europe's oil supply, some 60 percent of which moves always coincide with U.S. priorities, in part because the by sea from the Persian Gulf. United States must adopt a global outlook. The cohesion of the NATO Alliance remains strong in Doubts have sometimes been expressed, especially in the face of these challenges, and is reinforced by an the late 1970's, over the continued validity of the U.S. intensive process of consultation on the full range of commitment to Europe's defense. The successful security issues. Over the past twelve months, there have implementation of NATO's 1979 INF dual-track decision been almost thirty high-level consultations at NATO. thwarted the most recent Soviet attempt to decouple This intense process, to which we remain fully the U.S. security guarantee from the defense of Europe, committed, has contributed to the fundamental and has served as a major incentive for the Soviets to Alliance consensus on its approach to East-West engage in serious negotiations for real reductions in relations on issues ranging from arms control to human intermediate-range nuclear forces. Whatever the rights. The common Alliance approach, set forth in outcome of the INF negotiations, flexible response will recent NATO Ministerial communiques, require the continuing presence of U.S. nuclear combines a commitment to preserving the strength weapons in Europe. Nonetheless, NATO has 14 consistently worked to keep its nuclear arsenal at the same time, Japanese economic relations have become minimum level necessary for deterrence and is a source of political tension. The Japanese trade proceeding with the reductions in its stockpile surplus is the biggest in history. This surplus cannot be mandated by the 1983 Montebello decision. sustained and must be brought into better balance. We are working together on many fronts to do this. The challenge before us is to maintain the momentum we have achieved and continue to manage the Our alliance with the Republic of Korea remains of inevitable strains in our Alliance relationships. With a exceptional importance. North Korea still has armed common commitment to the values and interests forces that far exceed those of the South in quantity, are which constitute the bedrock of the Alliance, newly strengthened by additional Soviet weapons, and imagination, and political courage, the United States are in the hands of a government whose aggressive and its Allies will succeed in building an even stronger demeanor and tendency to act unexpectedly is well bulwark against Soviet aggression and intimidation. known. Our own military presence in the Republic of Korea is of importance, both for regional stability and East Asia and Pacific. The United States is a Pacific for local security, which is essential to that country's power and a proud member of the area of the globe remarkable economic development. It now faces a that has led the world's economies in growth. Soviet critical period of political development as well, as it military power in Asia and the Pacific has grown moves toward a first-ever peaceful change of dramatically, but the U.S. response goes far beyond government when President Chun's term will be technical issues of relative military power. The goal is completed in 1988. In this process, the United States to strengthen our natural political and economic hopes to use its influence to encourage Koreans in this associations, while proceeding steadily with necessary democratic change. We do so, however, in careful ways modernization of our military forces deployed in the that respect Korean traditions and political realities, and area. are mindful of the constant security threat. Cooperation with Japan is basic to U.S. relationships in China's importance speaks for itself. Its attainment of the region. The U.S :Japan Mutual Security Treaty rapid economic growth, while simultaneously making formalizes our defense ties, providing a security basic economic, social and political changes, is foundation for the broad spectrum of economic, social another great achievement in its remarkable history. and political associations which join us. The United States seeks a close, friendly, and cooperative relationship with the People's Republic of In the security area, Japan's recent redefinition of its China, outside any alliance, and without any illusions self-defense goals-especially as they relate to sea lane that one is a political or strategic "card" for the other. protection-is of particular importance. Japanese forces Simply put, both of us recognize the importance of are developing capabilities that can make a significant each to the other in the many shared areas of contribution to deterrence. At the same time, Japan's agreement, even as we appreciate the diversity of our defense spending remains small as a share of its huge political systems. economy, and more rapid progress is needed toward Japan's defense goals. But the constant and substantial In the Philippines, the new government faces major growth of that spending over the last fifteen years, and and inherited political, security and economic particularly over the last five years, is significant. Japan's challenges. Through all of the tools available to us, we recent decision to spend more than one percent of its are determined to help this key Pacific ally to overcome GNP on defense is especially noteworthy. these problems so it can once again achieve economic growth, counter the threat of a serious insurgency and Japan is now the world's second greatest economic strengthen democratic government. power. This development is reflected in increased Japanese expenditures on foreign assistance, which it Our second treaty ally in Southeast Asia, Thailand, is continues to target on key strategic countries. At the the ASEAN frontline state bordering Cambodia, now 15 occupied by the Vietnamese and the site of an active foundation for future friendship and cooperation. We Cambodian resistance coalition struggling to gain self- believe that the package of U.S. assistance that is linked determination for the Khmer people. In support of to the treaty will encourage development of the island Thailand, which also shoulders the major refugee economies. We also were recently able to celebrate the burden in Southeast Asia, we will continue our close creation of a new U.S. Commonwealth-The Northern security cooperation to deter any potential aggression Marianas-and two new freely associated states, the and maintain our support of eligible refugees. We will Federated States of Micronesia and the Republic of the also continue our cooperative effort with, Thailand to Marshalls. We welcome these new participants to the suppress narcotic trafficking. Pacific Ocean community. The United States views the continued occupation of The Soviet Union and Eastern Europe. As mentioned Cambodia by Vietnamese forces as unacceptable as it earlier, the most significant threat to U.S. security and undermines regional efforts towards development, national interests is the global challenge posed by the peace and stability. We also oppose the return of the Soviet Union. There is no doubt that Moscow aspires Khmer Rouge to power in Cambodia. We will continue to alter the existing international system and establish our strong support of ASEAN's quest for a peaceful Soviet global hegemony. These Soviet long-range political solution and for the non-Communist elements objectives are underwritten by Soviet concepts, of of the resistance coalition. Under our initiative on foreign and defense policy. Our policy for dealing with regional problems at the United Nations, we are the Soviets rests on three guiding principles : prepared to play a constructive role in the context of a Cambodian settlement. Realism, which means that we must recognize the nature of the Soviet system and deal frankly and Despite acute and serious differences with Vietnam, forthrightly with problems in our relationship. through bilateral discussions we have made more Strength, which is more than military power, but progress in accounting for our missing servicemen in includes political determination, the strength of the past two years than at any time since the end of the alliances, and economic health as well. The Soviet war. Similarly, our bilateral discussions on the Union respects strength and takes advantage of humanitarian question of refugees, reeducation of weakness. internees and Amerasians will continue with the objective of a humane solution to these complex Dialogue, which means that we are prepared to questions. We will not, however, resume normalization discuss all the issues that divide us,.and are ready of relations with Vietnam until Hanoi agrees to a to work for practical and fair solutions on a basis Cambodian settlement involving withdrawal of its compatible with our own fundamental interests. occupation forces. Consistent with this approach, we are engaged in We have seen a modest but welcome improvement in dialogues with the Soviets on four basic elements of relations between Laos and the United States. Our our relationship: human rights; the reduction of primary measure of their sincerity to improve relations regional conflicts ; areas of mutually beneficial is further, accelerated, cooperative efforts to account for cooperation ; and arms control. In all areas, progress is our servicemen still missing. slow. In the South Pacific, our longstanding alliance with At the same time, through coordinated employment of Australia under the ANZUS Treaty remains the keystone many elements of our national power, we seek to deter of our foreign policy in the area. The United States has further Soviet direct and indirect aggression, and been especially aware of the needs of the South Pacific achieve a lessened Soviet reliance on the use or threat independent states. We recently reached agreement on of force. We will continue to counter Soviet the key elements of an historic fisheries treaty. We are expansionism worldwide. No additional country has pleased with this agreement which creates a solid fallen to Soviet aggression since 1981, and the Soviets 16 have been more cautious in undertaking new military The Middle East and South Asia. Our principal adventures in recent years, though they and their interests in the Middle East include maintaining proxies remain active in such areas as Afghanistan, regional stability, containing and reducing Soviet Angola, Cambodia, and Nicaragua. influence, preserving the security of Israel and our other friends in the area, retaining access to oil on In short, we have put in place a policy designed for reasonable terms for ourselves and our allies, and long-term management of U.S: Soviet relations in order curbing state-sponsored terrorism. Those interests are to pursue our interests without the rapid fluctuations or threatened by the continuation of the Iran-Iraq conflict, unrealistic illusions which characterized some periods the existence of deep-seated Arab-Israeli tensions, the in the-past. The fundamental fact is that the U.S: Soviet growth of anti Western political movements in the relationship is essentially adversarial, and will remain region, and the use of terrorism as an instrument of so for the foreseeable future. But both sides agree that state policy, particularly by Libya, Syria, and Iran. Our we have a responsibility to ensure that this relationship strategy in the region aims to safeguard our interests remains peaceful. We are ready for the long effort and from those threats ; to hasten negotiated settlements of steady course required to pursue our national interests the Palestinian problem and the Iran-Iraq war ; to in this fashion. bolster the security and economic well-being of Israel and moderate Arab regimes ; to help our friends in the Gulf protect themselves and international shipping The United States has important political and lanes; and to isolate and deter state sponsors of economic interests in Eastern Europe. We have never terrorism. recognized the division of Europe as either lawful or permanent. There was no agreement at Yalta to divide Europe into "spheres of influence." Rather, the Soviet The U.S. Initiative of September 19132 remains the Union pledged itself to grant full independence to cornerstone of our approach to the Arab-Israeli peace Poland and to other states in Eastern Europe and to process. Our immediate goal is direct negotiations hold free elections. Soviet failure to honor these between Israel and a Jordanian-Palestinian delegation, commitments is one of the primary causes of East-West as part of a general effort to broaden the Egyptian- tensions today. Our policy toward Eastern Europe seeks Israeli peace and bring about a just and lasting to promote a positive role for Eastern European states resolution of the Palestinian problem. We remain firmly in preserving European stability and exercising a committed to a prompt and honorable negotiated moderating influence on the Soviet Union. settlement of the Iran-Iraq war. Current Iranian behavior poses a serious threat to our interests and those of our friends in the region. Until Iran ceases its efforts to We believe the United States should deal with the East prolong the senseless war with Iraq, we will work European countries on an individual basis and vary our actively to block the flow of arms and military material policies depending upon our assessment of the to Iran. conditions in each nation. In keeping with this principle, we differentiate our policies toward Eastern Europe to achieve a variety of objectives. These include Despite severe budgetary constraints, economic and the encouragement of domestic liberalization and security assistance, together with a prudent but more autonomous foreign policies ; promotion of responsive policy of arms sales within the region, security through enhanced economic and political remains an essential part of our efforts to strengthen cooperation ; and the fostering of genuine and long- Israel and moderate Arab regimes. We cannot afford to lasting improvement in human rights. Concurrently, we neglect the real needs of our friends. At the same time, seek to promote increased dialogue through cultural we will continue to try to isolate and build interna- and scientific exchanges, international forums, high- tional pressure against state sponsors of terrorism. Our level visits, bilateral councils and people-to-people recent actions against Libya were designed to contacts. demonstrate the political, military and economic 17 costs of supporting terrorism. While we have no because of the continent's extensive natural resources ; illusions about eradicating this menace easily or its growing role in international forums ; the threat quickly, we remain determined to combat it vigorously posed to regional security by the escalating racial in close cooperation with our friends and allies. conflict in South Africa; and Soviet, Libyan, East European and Cuban adventurism throughout the U.S. objectives in South Asia include reduction of region. The challenges to democracy are especially regional tensions ; development of cooperative strong in Africa, and we remain concerned about the relationships between South Asian countries ; widespread denial of basic human rights, whether by prevention of nuclear proliferation ; and restoration of Marxist-Leninst clients of the Soviet Union or through the freedom of the Afghan people. apartheid in South Africa. The sources of conflict within Africa are many : extreme poverty, great U.S. policy also seeks a general improvement in disparities of wealth, ethnic frictions, unsettled borders, bilateral relations with all countries of the and religion. subcontinent. Important elements have been improved India-U.S. relations and U.S. encouragement of better U.S. policy must strive to encourage economic relations between India and Pakistan. A new six-year development and political stability in Africa. African assistance plan of $4 billion for Pakistan has been leaders have started to recognize that statist solutions proposed by this Administration and is vital to that are not the answer and are beginning to reform their country's ability to withstand strong pressures economies. We must work with other donor countries generated by the Soviet invasion of Afghanistan. and the multilateral institutions to reinforce this trend Pakistan is hosting nearly three million Afghan refugees toward economic policy reform and private sector on its soil. The United States remains the largest donor development. of humanitarian assistance to the refugees. For the first time, the United States has established Economic growth will contribute to, but also requires, substantially improved relations with both India and political stability. We must continue to encourage the Pakistan. This enables us to help support the regional peaceful resolution of conflicts without foreign desire for peace, despite periodic crises in Indo- intervention. Deteriorating economic conditions and Pakistani relations. political instability have encouraged intervention by the Soviets, their surrogates, the Cubans, and maverick Africa. African issues demand increasing attention troublemakers like Libya. 18 IV. U.S. Defense Policy The full range of U.S. military capabilities must be INTRODUCTION suitably balanced among combat and support elements, and contain an appropriate mix of active The Defense Policy of the United States requires duty and reserve components. The United States must military forces that are organized, manned, trained, and have specialized forces-ranging from those required equipped to deter and, if necessary, defeat aggression for nuclear deterrence to forces configured to deal with across the entire spectrum of potential conflict. Our terrorism ; and must also have general purpose forces National Security Strategy, global objectives, and the capable of sustaining high intensity conflict, while nature of the threat require that we be prepared to maintaining an effective capability for lesser defend our interests as far from North America as contingencies and special operations. At the same time, possible. Accordingly, our strategy relies heavily on we must balance defense priorities among the forward deployment of combat-ready forces, reinforced competing needs of readiness, sustainability, by strong alliance relationships. In support of those modernization, and force expansion. relationships, we will continue to maintain in peacetime major forward deployments of land, naval, U.S. military forces also must be supported by plans, and air forces in Europe, the Atlantic and the Pacific ; doctrines, and command relationships which provide and other deployments in the Western Hemisphere and for effective integration and employment of all facets of Indian Ocean. The overall size and composition of our our military power. While the possible use of nuclear armed forces are strongly influenced by these weapons must remain an element in our overall military strategy, nuclear forces should never be viewed requirements. as simply a lower-cost alternative to conventional The challenge we face is dynamic and complex. There forces. U.S. forces must be capable of rapid deployment remains a significant imbalance of forces favoring the to deter wider crises or conflicts. They must also Soviet Union in several important contingencies. In possess the capability, should deterrence fail, to expand addition, Third World states are increasingly armed the scope and intensity of combat operations, as with modern and sophisticated military equipment. necessary, to terminate the conflict on terms favorable to the United States and its allies. Comprehensive and imaginative integration of U.S. and allied military capabilities is required to reduce risks to The United States must maintain effective and robust our national security. Since our political and social Reserve and National Guard forces, trained and heritage militates against raising and supporting large equipped at levels commensurate with their wartime forces in peacetime, we are impelled to seek security missions, as well as Coast Guard and other capabilities in America's national genius for technological which support the national security establishment. The innovation ; the breadth and diversity of our national United States must also continue to enhance its economy ; and alliance cooperation. The United States capabilities to surge or mobilize manpower and key must pursue strategies for competition with the Soviets industrial resources, planning for the most effective use which emphasize our comparative advantages in these of available strategic warning in the event of crisis or areas. war. 19  TAKING ADVANTAGE OF U.S. massive effort to acquire and exploit Western technology. Thus a vital element of our defense policy STRENGTHS AND SOVIET is to control technology transfer and protect classified WEAKNESSES information relating to military technologies. With this in mind, we have undertaken a major effort to enhance our National Counter-intelligence and Security Countermeasures plans and capabilities, as I outlined One of the central tenets of our defense policy is that the United States will not seek to match the Soviet in my November 1986 report to Congress. Union weapon for weapon. Rather, we will work to Competitive Strategies. Competitive strategies are overcome Soviet numerical superiority by taking aimed at exploiting our technological advantages in maximum advantage of the inherent strengths of thoughtful and systematic ways to cause the Soviets to alliances composed of democratic, industrialized, free economy nations. compete less efficiently or less effectively in areas of military application. Such strategies seek to make Technology. The United States and its allies continue to portions of the tremendous Soviet military machine enjoy technological superiority over the Soviet Bloc in obsolete and force the Soviets to divert resources in most areas of military application. This technological ways they may not prefer, and in a manner that may not advantage derives from the fundamental nature of the necessarily threaten our own forces. Low observable two societies. The spirit of inquiry and the free flow of (stealth) technology, for example, can render much of information which characterize the West will inevitably the Soviet investment in air defense obsolete and permit technology and innovation to flourish to a requires the Soviets to divert resources from offensive greater degree than it will in a closed society. The forces to defensive forces. The contribution which new United States and its allies enjoy an intrinsic advantage technologies can make to our competitive strategies is not only in the creation, but in the practical an explicit consideration in making defense exploitation of advanced technologies. Competitive, procurement decisions. free-enterprise societies consistently out-perform centrally planned economies in fostering innovation, Alliances. A third area of U.S. strength and Soviet growth, and the application of new technology to a weakness is alliance relationships. While the Soviet wide variety of fields. Union presides over an empire that has seen several armed rebellions in the past forty years, the United Technology affects our national security in two ways. States is the leader of a voluntary coalition of equal First, the ability to exploit and adapt technology nations. U.S. allies, particularly our NATO partners, II contributes to the overall economic health of the contribute a major share of the West's total military United States and its allies, which is a key element of strength. Recognizing this contribution, our defense national power. Second, the exploitation of a policy is based on the fundamental premise that we technological advantage directly enhances defense. will not seek to offset Soviet power alone, but in Precision guided munitions, for example, help offset conjunction with our allies throughout the globe, on a the large Soviet edge in tank forces. Stealth technology basis of equitable burdensharing. helps counter the massive Soviet investment in air In NATO, this means continuing our strong support for defense. Advances in anti-submarine warfare Alliance efforts to improve the overall Western technologies and in submarine quieting help preserve conventional balance, including appropriate economic maritime superiority despite the Soviet Navy's and military assistance to allies on NATO's critical numerical advantages. Perhaps most significantly, the southern flank. It means integrating the contribution of U.S. edge in computer technology and software has our NATO partners into our strategy-indeed, the military relevance across the entire spectrum of United States has no separate military strategy for the warfare. defense of Europe, but is a partner in the NATO The Soviets are, of course, conscious of the Western alliance strategy of deterrence and defense. Outside of technological advantage and have undertaken a Europe, the United States seeks strong ties with nations 20 throughout the globe, assisting friendly and allied strategic capabilities-and our will to use them, if countries in improving their military capabilities while necessary-never be in doubt. encouraging them to assume a greater role in their own defense. In the interest of ensuring deterrence, the United States maintains diversified strategic forces to hedge against a The Strength of the Individual. One of our greatest disarming first strike, complicate Soviet attack plans, advantages in competing with the Soviet Union is the and guard against technological surprise which might character of our people. Western societies, with their threaten one element of our strategic forces. To this stress on the importance of the individual, stand in end, we maintain a variety of basing modes, launch sharp contrast to the repressive nature of the Soviet platforms, and attack vehicles, achieving diversity state. The initiative, enterprise, and motivation of free through a triad of SLBMs, ICBMs and bombers. people is a source of great strength when individuals Adequate and survivable command and control is an are put to the supreme test of combat. While essential element of strategic force structure, and is intangible, these qualities are an important asset, which critical to the credibility of our strategic deterrent. the Soviets cannot match. Defense policy recognizes this by stressing unit integrity and leadership, while our training and tactics place great value on individual Our strategic forces and the associated targeting policy initiative, and aggressive exploitation of opportunities. must, by any calculation, be perceived as making nuclear warfare a totally unacceptable and unrewarding proposition for the Soviet leadership. Accordingly, our strategy : MAINTENANCE OF A STRATEGIC DETERRENT Denies the Soviets the ability to achieve essential military objectives by holding at risk Soviet warmaking capabilities. This includes the entire Deterrence is the most fundamental element of our range of Soviet military forces, as well as the war defense policy and the cornerstone of our alliance relationships. Deterrence must not only prevent supporting industry which provides the foundation for Soviet military power, and supports its capability conventional and nuclear attack on the United States, to conduct a protracted conflict. but must extend such protection to our allies. Deterrence can best be achieved if our defense posture makes the assessment of war outcome by the Soviets, Places at risk those political entities the Soviet or any other adversary, so dangerous and uncertain as leadership values most : the mechanisms for ensuring to remove any possible incentive for initiating conflict. survival of the Communist Party and its leadership Deterrence depends both on nuclear and conventional cadres, and for retention of the Parry's control over capabilities, and on evidence of a strong will to use the Soviet and Soviet Bloc peoples. military force, if necessary, to defend our vital interests. This basic strategy of targeting those assets which are While deterrence requires capabilities across the entire essential to Soviet warmaking capability and political spectrum of conflict, its essential foundation is control has been U.S. policy for many years. In provided by our strategic nuclear forces and the implementing this strategy, the United States does not doctrine which supports them. Nuclear deterrence, like target population as an objective in itself and seeks to any form of deterrence, requires us to consider not minimize collateral damage through more accurate, what would deter us, but what would deter the Soviets, lower yield weapons. whose perceptions of the world and value system are substantially different from our own. Since we can We cannot permit any President to be faced with a never be entirely certain of Soviet perceptions, it is of situation in which the only available responses to the utmost importance that the effectiveness of our aggression are capitulation or massive destruction. 21 Thus, in addition to holding at risk the full range of enhance deterrence by injecting great uncertainties into assets important to the Soviet leadership, the United Soviet estimates of their ability to achieve their States also requires flexibility in the employment of its essential military objectives in a first strike. "Leak proof" strategic forces. It is essential that we have response defenses would not be required initially in order to options appropriate to the broad range of plausible deny the Soviets confidence that they could achieve situations. This flexible response capability bolsters the meaningful military goals. Even less than perfect credibility of our deterrent by making clear to the defenses could significantly increase stability by Soviets that the United States has a variety of military eliminating plausible incentives for a Soviet first strike. options with which to respond to aggression. In judging the suitability of systems for possible deployment, we will continue to be guided by the Finally, the United States also requires sufficient criteria of military effectiveness, survivability, and cost- residual capability to provide leverage for early war effectiveness at the margin. termination, and to avoid coercion in a post-conflict world. For this reason, we maintain a nuclear reserve By reducing the military value of ballistic missiles, and force as an integral part of our strategic forces. We also ultimately rendering them obsolete, strategic defenses maintain Continuity of Government programs as an would also provide incentives for Soviet acceptance of essential element of deterrence to assure the Soviets significant arms reduction agreements. In a world with they cannot escape retaliation by a quick, fewer ballistic missiles, however, Soviet incentives to cheat would be greater. Strategic defenses can "decapitating" attack aimed at incapacitating U.S. effectively negate these incentives by eliminating the political and military leadership. military utility of covertly stockpiled missiles. Thus, they offer the prospect of a safer, more stable world in These capabilities do not imply the