Kissinger and the True Meaning of Détente
Few words are more closely associated with the late Henry Kissinger than “détente.” The term was first used in diplomacy in the early 1900s, when the French ambassador to Germany tried—and failed—to better his country’s deteriorating relationship with Berlin, and in 1912, when British diplomats attempted the same thing. But détente became internationally famous only in the late 1960s and 1970s, when Kissinger, first as U.S. national security adviser and then also as U.S. secretary of state, pioneered what would become his signature policy: the easing of tensions between the Soviet Union and the United States.
Détente should not be confused with amitié. It was not about striking up a friendship with Moscow but about reducing the risks that a cold war would become a hot one. “The United States and the Soviet Union are ideological rivals,” Kissinger explained in his memoirs. “Détente cannot change that. The nuclear age compels us to coexist. Rhetorical crusades cannot change that, either.” For Kissinger, détente was a middle way between the aggression that had led to World War I, “when Europe, despite the existence of a military balance, drifted into a war no one wanted,” and the appeasement that he believed had led to World War II, “when the democracies failed to understand the designs of a totalitarian aggressor.”
To pursue détente, Kissinger sought to engage the Soviets on a variety of issues, including arms control and trade. He strove to establish “linkage,” another keyword of the era, between things the Soviets appeared to want (for example, better access to American technology) and things the United States knew it wanted (for example, assistance in extricating itself from Vietnam). At the same time, Kissinger was prepared to be combative whenever he discerned that the Soviets were working to expand their sphere of influence, from the Middle East to southern Africa. In other words, and as Kissinger himself put it, détente meant embracing “both deterrence and coexistence, both containment and an effort to relax tensions.”
If that pragmatic sentiment resonates five decades later, it is because policymakers in Washington appear to have reached a similar conclusion about China, the country with which U.S. President Joe Biden and his national security team seem ready to attempt their own version of détente. “We have to ensure that competition does not veer into conflict,” Biden told the Chinese leader Xi Jinping in California in November. “We also have a responsibility to our people and the world to work together when we see it in our interest to do so.” Jake Sullivan, Biden’s national security adviser, made a similar point in his essay in these pages last year. “The contest is truly global, but not zero-sum,” he wrote. “The shared challenges the two sides face are unprecedented.” To paraphrase Kissinger, the United States and China are major rivals. But the nuclear age and climate change, not to mention artificial intelligence, compel them to coexist.
If détente is making a comeback in all but name, then why did it go out of fashion? In the wake of Kissinger’s death, in November 2023, his critics on the left have not been slow to repeat their old list of indictments, ranging from the bombing of civilians in Cambodia to supporting dictators in Chile, Pakistan, and elsewhere. For the left, Kissinger personified a cold-blooded realpolitik that subordinated human rights in the Third World to containment. This was the aspect of détente to which U.S. President Jimmy Carter objected. But much less has been heard lately of the conservative critique of Kissinger, which claimed that Kissinger’s policy was tantamount to appeasement. As governor of California, Ronald Reagan spent the 1970s blasting détente as a “one-way street that the Soviet Union has used to pursue its aims.” He taunted Kissinger for acquiescing as the Soviets cynically exploited détente, such as when they and their Cuban allies gained the upper hand in postcolonial Angola. During his first run for president, in 1976, Reagan repeatedly pledged to scrap the policy if elected. “Under Messrs. Kissinger and Ford,” he declared in March of that year, “this nation has become number two in military power in a world where it is dangerous—if not fatal—to be second best.”
Reagan was hardly an outlier. By the time he spoke, hawks across the government were fed up with Kissinger’s approach. Republicans commonly complained that, in the words of New Jersey Senator Clifford Case, “the gains made in détente have accrued to the Soviet side.” Across the aisle, Democratic Senator Robert Byrd of West Virginia enraged Kissinger by accusing him of having “put great trust in Communist Russia” and, through détente, “embracing” Moscow. The American military, meanwhile, suggested that to pursue détente was to admit defeat. In 1976, Elmo Zumwalt, who had recently retired as head of the U.S. Navy, argued that Kissinger believed the United States had “passed its historic high point like so many earlier civilizations.” Just as appeasement, which had started out as a respectable term, fell into disrepute in 1938, détente became a dirty word—and it did so even before Kissinger left office.
Yet 1970s détente was unlike 1930s appeasement, both in the way it functioned and in the results it produced. Unlike the British and French attempt to buy off Adolf Hitler with territorial concessions, Kissinger and his presidents strove to contain their adversary’s expansion. And unlike appeasement, détente successfully avoided a world war. Writing in the mid-1980s, the political scientist Harvey Starr counted a marked increase in the ratio of cooperative to conflictual acts in U.S.-Soviet relations during the Nixon administration. The number of state-based conflicts was lower in the Kissinger years (1969 to 1977) than in the years after and right before.
Half a century later, as Washington adjusts to the realities of a new cold war, détente could again be derailed by hawks. Republican politicians love to portray their opponents as soft on China, just as their predecessors portrayed their opponents as soft on the Soviets in the 1970s. Arkansas Senator Tom Cotton, for example, has claimed that Biden is “coddling and appeasing the Chinese communists.” Former President Donald Trump’s campaign has accused Biden of “weakness” that “continues to invite aggression” against Taiwan.
These charges are not surprising; it is always tempting for Republicans to summon the spirit of Reagan and rerun his critique of détente. But there is a danger that both parties are misunderstanding the lessons of the 1970s. In advocating an uncompromising containment of China, Republicans may be overestimating the United States’ ability to prevail in the event of a confrontation. In........
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