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On June 22, 1897, the British Empire, at the peak of its power, celebrated the diamond jubilee of Queen Victoria’s reign in a massive display of grandeur. It seemed at that moment that Britain was impervious to history. The British Empire was a remarkable institution, having “created the first truly global market” and making its culture—namely the English language—ubiquitous (186). By 1897, Britain could merit favorable comparisons to the Romans, but it would soon find itself on the path of decline. In 1899, it fought a costly war against the Boers in South Africa. By the turn of the 20th century, its economic output was less than Germany’s and significantly less than that of the United States.
Its rate of economic growth had slowed to a crawl, and whatever the limits of its culture or political system, it would have been very difficult for such a small country to catch up with the rise of continent-states like the US and Russia. Zakaria clarifies that “[t]he fundamental point is that Britain was undone as a great power not because of bad politics but because of bad economics. It had great global influence, but its economy was structurally weak” (197). Britain had wisely decided to accept the rise of the US as a peer competitor rather than challenge it, but its interests in other parts of the world were so far-flung that it could never fund any of them sufficiently. Finally, World War II was both a political and economic death blow to its imperial grandeur.
The British example is meant to serve as a parallel to the United States, although the US is obviously different in its much larger population and vastly more sophisticated military establishment. Zakaria predicts that, unlike Britain, “America will remain a vital, vibrant economy, at the forefront of the next revolutions in science, technology, and industry—as long as it can embrace and adjust to the challenges confronting it” (199). The US has already retained its preeminent position in the face of enormous changes, holding the edge in new fields like nanotechnology, and its offshoring of manufacturing has allowed it to maximize profits at the ends of product design and marketing while saving on the fixed costs of actual production.
The US might not produce as many skilled workers as other countries, but the ones they do produce have better skills on average, thanks in part to a system of higher education that remains the envy of the world. Even its much-maligned public education still produces strong results but struggles to provide equal access across racial and class lines, therefore distorting its aggregate outcomes. Europeans show similar aptitude in this respect, but the US is much stronger demographically, especially on account of its willingness to take in immigrants. Zakaria describes how immigrants have often left behind their homes to work in the US, even though “Americans have always worried about such immigrants—whether from Ireland or Italy, China or Mexico. But these immigrants have gone on to become the backbone of the American working class” (216).
There are concerns that Americans are not saving enough, as well as concerns about a potential explosion of deficit spending and consequent debt to further the country’s consumerist habits. Now that so many other countries have adopted at least certain aspects of the American financial model to become more competitive, the US will face diminishing returns if it continues to act as though it is a hegemonic power that does not have to learn and adapt to others. Zakaria asserts that “[l]earning from the rest is no longer a matter of morality or politics. Increasingly it’s about competitiveness” (225). In the aftermath of the Great Recession, big corporations have found ways to profit from technological development and globalization, but often at the expense of ordinary workers, who cannot compete with foreign workers who operate at a fraction of the labor costs.
To stay competitive, the US must once again “be the world’s most important, continuing source of new ideas, big and small, technical and creative, economic and political” (232). This requires a series of political reforms to minimize the role of special interests and encourage bipartisan cooperation. This will be challenging, especially in an increasingly competitive international market, but Zakaria is convinced that the people “are capable of responding to the economic pressure and competition they face. They can adjust, adapt, and persevere” (237). Whether Washington can do so is another story.
The United States remains the leading superpower, “but it is an enfeebled one” (242). It need not fear the transition to a multipolar system, but it needs to learn lessons from the rest of the world rather than insist on always being the teacher. In foreign policy, the US has turned away from the collaborative diplomacy that helped secure a peaceful end to the Cold War, instead adopting a more assertive and unilateral approach accelerated by the 9/11 attacks. In its “war” against terrorism, “the United States didn’t need the rest of the world or the old mechanisms of legitimacy and cooperation. It was the new global empire that would create a new reality—so the argument went” (247). This has harmed America’s reputation throughout the world, as foreign leaders and publics see the US as arrogant, aloof, and unconcerned with their needs and interests. The 2003 invasion of Iraq in particular struck international observers as proof of a superpower gone rogue. The US needs to recover the alliance-building skills that it showed during and after World War II and win the support of rising states rather than try to impose its own will upon them.
The US can once again be an “honest broker” (257), helping to defuse tensions around the world, but it ought to follow six guidelines to do so. The first is “Choose”: undertaking the “large strategic choices about where it will focus its energies and attention” (261). It must decide where to define its vital interests rather than try and solve every problem that flares up in the world, exhausting its resources without commensurate benefit. The second is “Build broad rules, not narrow interests” (263): doing more to follow the rules of international institutions it helped to design. It cannot lecture other countries on the evil of nuclear weapons while building up its own massive stockpiles. The third is “Be Bismarck, not Britain” (266): cultivating the best possible relations with all the great powers rather than building hostile coalitions against China or Russia.
The fourth is “Order a la carte” (267): empowering a host of different international organizations to manage diverse problems, as well as partnership with non-governmental organizations, corporations, and other beneficiaries of a more decentralized international system. The fifth is “Think asymmetrically” (269): better understanding how different forms of power either work or don’t work rather than insisting that its economic and military supremacy can solve any problem. For example, in the war against terrorism, engaging with civil societies can do a lot more to advance US interests in the long term than dropping in special forces teams. Finally, “Legitimacy is power” (272), so the US must try to win the battle of ideas through persuasion rather than coercion.
The US wins to the extent that its power is considered more benevolent than the alternatives. The US has become a very fearful society, seeing threats everywhere (especially in the form of terrorism); however, by adopting a strategy of resilience rather than total prevention, it can ensure a quicker recovery from a potential terrorist attack while refusing to submit to fear. America “has thrived because it has kept itself open to the world—to goods and services, to ideas and inventions, and, above all, to people and cultures” (283). If the US can once again make itself appealing and exciting to people around the world, it can defy the predictions of its decline and find a way to thrive in a challenging environment.
With this final pair of chapters, Zakaria’s book follows the trajectory set by other political bestsellers, such as Thomas Friedman’s The World Is Flat (2005) and Samuel Huntington’s The Clash of Civilizations and the Remaking of World Order (1996). These books also describe a major shift in global politics away from US hegemony and toward a multipolar system where a greater variety of actors earn a seat at the table. Yet both of those other books also close on how the United States can take advantage of these structural developments, which might seem to work to its disadvantage, and instead usher in a new golden age. Zakaria reaches the paradoxical conclusion that America is uniquely disposed to benefit from a post-American world—a reminder that what Zakaria means is really a post-hegemonic world, not one in which the US no longer exercises a great deal of power and influence.
To understand American Power in a Post-Hegemonic World, Zakaria turns to the example of the British Empire, which bears striking similarities to the more contemporary US example. British power then, like American today, was so immense and widespread that it appeared as though it was beyond history, that “history is something unpleasant that happens to other people” (185). In addition to superficial similarities, like the spread of the English language and the proliferation of institutional practices and cultural habits, both Britain and the United States underwrote an international system. This system ensured that lesser powers would welcome the free benefits, such as the Royal Navy’s protection of shipping lanes or the role of the US dollar as the main international reserve currency, more than they resented their inferior station. The main difference was that, for all the services it provided, Britain was an empire, and its power ultimately relied on coercion. Once it lost the will to hold its subjects by force, its empire melted away. The US, at least in Zakaria’s view, is not an empire. Instead, it
built an international order of alliances and multilateral institutions and helped get the world back on its feet by pumping out vast amounts of aid and private investment. The centerpiece of this effort, the Marshall Plan, was worth $100 billion in today’s dollars. For most of the 20th century, in other words, America embraced international cooperation not out of fear and vulnerability, but out of confidence and strength (253-54).
Although the main focus of the book is looking forward to a new and more multipolar world, these chapters are very much interested in the recent past, particularly the War on Terror. With the invasion of Iraq serving as the main example, Zakaria is worried that the US has become so powerful that it believes it can act like an empire, using military force to accomplish its objectives and caring little for the opinions of those less powerful than itself. He notes the plunging opinion of the US around the world, but he regards it as a blip in the pattern, noting that people are generally disposed to admiring the US and will again, should it change from its current course of action. This is a debatable claim—many argue that the US has long acted as an empire, particularly in Latin America, and that the invasion of Iraq was simply an escalation of an ongoing trend.
Nonetheless, here, as in most of the book, Zakaria is an optimist that the future looks bright for the US, just as it does for the world. Drawing partially on the lessons of the past, both in terms of what to avoid (Britain’s insistence on balancing coalitions) and what to do (reviving Truman and George H.W. Bush’s emphasis on coalition diplomacy), the US is entirely capable of making the necessary changes because they align with its national character and traditions. He is skeptical regarding the ability of the political class to make these adjustments, but in all his major case studies, it is governments, not peoples, who are the problem. Change will not be easy, but the foundational elements are already in place: “The basic conception of the current system—an open world economy, multilateral negotiations—has wide acceptance. And new forms of cooperation are growing” (268). Given his prediction that power is shifting from states to civil societies, there is ample room for confidence that the future will be even brighter.
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By Fareed Zakaria