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American and British Soft
Power in Iran, 1953–1960
A ‘Special Relationship’?
Darius Wainwright
American and British Soft Power
in Iran, 1953–1960
Darius Wainwright
© The Editor(s) (if applicable) and The Author(s), under exclusive licence to Springer
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Acknowledgements
This book would not have been possible without the help and support of
several people. First, my supervisor, Dr Mara Oliva. Her guidance and
feedback have been invaluable, as has her belief in this project and, more
importantly, in myself. Mara’s not just been such a huge help with this
monograph, but with my professional development, too. For both these
things, I am eternally grateful. A huge thanks must also go to the University
of Reading’s Department of History. I arrived as a naïve, eager 22-year-
old MA student and will leave as a historian and more well-rounded
human being. More than anything else, this is a testament to the depart-
ment’s staff, who have all, in a myriad of ways, helped me achieve my
goals. Discussions on wrestling and Liverpool teams of yesteryear aside,
Dr Dafydd Townley has been an invaluable sounding board for ideas and
a keen listener when I’ve needed to talk things through. He also lived with
me for a week when we undertook research in the United States, which is
no mean feat! A huge thank you, too, must go to Professor Emily West
and Dr Jacqui Turner. Both have frequently enquired about my progress
and have been incredibly supportive. Special thanks must also go to Dr
Maria Ryan and Professor Patrick Major for their considered, thoughtful
feedback on the PhD thesis which formed the basis of this work.
While writing this book, I have taught undergraduates at both Reading
and the LSE’s Department of International History. From the varying
personalities you encounter, the people you help progress and develop
and, most important of all, the thought-provoking ideas students espouse,
v
vi ACKNOWLEDGEMENTS
1 Introduction 1
Methodology, Sources and Chapter Structure 11
References 15
vii
viii Contents
8 Conclusion223
Index 231
Abbreviations
ix
x Abbreviations
Introduction
At the heart of the Iran deal was a giant fiction that a murderous
regime desired only a peaceful nuclear energy program.
—‘Remarks by Donald Trump on the Joint Comprehensive Plan of
Action’, The White House, 8 May 2018, https://www.whitehouse.gov/
briefings-statements/remarks-president-trump-joint-comprehensive-
plan-action/ (accessed 31 May 2019).
1
Peter Baker, ‘President Obama Calls Preliminary Iran Nuclear Deal “Our Best Bet”’,
New York Times, 5 April 2015.
2
Steve Hurst, The United States and the Iranian Nuclear Programme: A Critical History,
Edinburgh: Edinburgh University Press (2018).
3
Anthony Lake, ‘Confronting Backlash States’, Foreign Affairs, 73/2, 44–55 (1994).
4
Donette Murray, US Foreign Policy and Iran: American-Iranian Relations Since the 1979
Islamic Revolution, Abingdon: Routledge, 90–115 (2010).
5
Matthew Moore, ‘Iran: British Council Suspends Work in Tehran’, The Daily Telegraph,
5 February 2009; Kasra Naji, ‘BBC UN Appeal: Stop Harassing Persian Service Staff’, BBC
News, 12 March 2018, http://www.bbc.co.uk/news/world-middle-east-43334401
(accessed 26 March 2018).
1 INTRODUCTION 3
9
Joseph Nye, Soft Power: The Means to Success in World Politics, New York: Public Affairs,
12 (2004); Joseph Nye, ‘Soft Power and American Foreign Policy’, Political Science
Quarterly, 119/2, 255 (2004); Joseph Nye, ‘Public Diplomacy and Soft Power’, The Annals
of the American Academy of Political and Social Science, 616, 97 (2008).
1 INTRODUCTION 5
teaching, along with radio and television broadcasts, promote British ‘val-
ues and interests’, provide the United Kingdom with ‘international influ-
ence’ and can help ‘tackle the causes of security threats.’ A Chatham
House Report titled Strengthening Britain’s Voice in the World echoed
these sentiments, calling on the government to ‘ensure continued funding
of key elements of the UK’s soft power such as the BBC World Service and
the British Council’. Similarly, a 2005 US State Department report under-
lined the importance of soft power to wider American foreign policy.
According to the report, policies of attraction and persuasion are the only
way that the United States can effectively ‘inform, engage and influence
foreign publics over the long term’.10
As political scientists devised and elucidated the soft power concept,
more literature exists on soft power from an international relations stand-
point.11 Historians of diplomacy and international affairs have only sys-
tematically investigated the subject in recent decades. A new wave of
historical research on the Cold War, for instance, analysed how the United
States promoted American norms, ideas and lifestyles in their struggle
against the Soviet Union.12 This contributed towards a new, emerging
strand of literature that asserts that the United States ‘won’ the Cold War
through its exertion of soft power. American fashion, music and values,
most notably human rights, and democracy pervaded the ‘Iron Curtain’
into the Soviet Union, fuelling elite and popular desires for political and
economic change.13 Yet such revisionist analyses, despite their greater con-
sideration of soft power, still largely focused on the US government’s
attempts to showcase America abroad. In other words, there has been a
greater emphasis on how institutions such as the State Department
10
‘Cultural Diplomacy: The Lynchpin of Public Diplomacy’, Report of the Advisory
Committee on Cultural Diplomacy, The US Department of State (2005); National Security
Strategy and Strategic Defence and Security Review 2015: A Secure and Prosperous United
Kingdom, Westminster (2015); Strengthening Britain’s Voice in the World: Report of the UK
Foreign and Security Policy Working Group, Chatham House (2015).
11
Colin Elman and Miriam Fendius-Elman, ‘Diplomatic History and International
Relations Theory: Respecting Difference and Crossing Boundaries’, International Security
22/1, 6–9 (1999).
12
John Lewis Gaddis, We Now Know: Rethinking Cold War History, Oxford: Oxford
University Press, 85–86 (1997); Walter Hixson, Parting the Curtain: Propaganda, Culture
and the Cold War, 1945–1961, New York: Palgrave Macmillan, 206–207 (1997); Francis
Stonor Saunders, Who Paid the Piper? The CIA and the Cultural Cold War, London: Granta,
252–254 (1999).
13
Nye, ‘Soft Power and American Foreign Policy’, 257.
6 D. WAINWRIGHT
14
Kenneth Osgood, ‘Hearts and Minds: The Unconventional Cold War’, Journal of Cold
War Studies 4/2, 85–86 (2002).
15
Peter Biskind, Seeing is Believing: How Hollywood Taught Us to Stop Worrying and Love
the Fifties, London: Henry Holt & Company Inc (1984); Luminita Gatejel, ‘Appealing for a
Car. Consumption Policies and Entitlement in the USSR, the GDR and Romania,
1950s–1980s’, Slavic Review, 75, 125 (2016); Federico Romero, ‘Cold War Historiography
at the Crossroads’, Cold War History, 14/4, 686–688 (2014); Nora Sayre, Running Time:
Films of the Cold War, New York: Bantam Doubleday Dell Publishing Group (1982); Tony
Shaw, Hollywood’s Cold War, Edinburgh: Edinburgh University Press (2007).
16
Nodar Mossaki and Lana Ravandi-Fadai, ‘A Guarded Courtship: Soviet Cultural
Diplomacy in Iran from the Late 1940s to the 1960s’, Iranian Studies, 51/3, 438–445
(2018); James Pickett, ‘Soviet Civilisation Through a Persian Lens: Iranian Intellectuals,
Cultural Diplomacy and Socialist Modernity, 1941–1955’, Iranian Studies, 48/5,
808–812 (2015).
17
Deborah Kisatsky, ‘Voice of America and Iran, 1949–1953: US Liberal Developmentalism,
Propaganda and the Cold War’, Intelligence and National Security, 14/3, 161–162 (1999).
1 INTRODUCTION 7
over the Iranian oil industry. By August 1953, however, the failure to
resolve this dispute, combined with significant British diplomatic pressure,
persuaded the CIA to support an MI6-backed coup against Mosaddegh.
The incident marked the beginning of considerable US involvement in
Iran’s political affairs, lasting until the 1979 Iranian Revolution. Scholars
have accordingly focused on President Dwight D. Eisenhower’s handling
of the diplomatic standoff, as well as the coup’s implications for US-Iran
bilateral ties.18
Analyses of US-Iran relations after 1953 have accordingly examined
elite level US-Iran interactions. Historians have seemingly paid more
attention to the Kennedy, Johnson, Nixon and Carter White House’s
dealings with Iran. The Anglo-Iranian Oil Crisis and its aftermath aside,
there is much less scholarly focus on the Eisenhower administration’s deal-
ings with the country. This noticeable discrepancy stems from the tradi-
tionalist historiographical school of thought on the Eisenhower White
House. Work from this perspective dismissed the President as an ineffec-
tive executive, dominated in the field of foreign policy by his Secretary of
State, John Foster Dulles. As President, therefore, his diplomatic endeav-
ours, in Iran, the Middle East or otherwise, contributed little to US for-
eign policy in the Cold War.19 It is only in recent decades that historians
have proffered more balanced assessments of the Eisenhower presidency.
Fred Greenstein and Richard Immerman, for example, examine the
President’s complex, nuanced foreign policy strategy. The former whole-
heartedly praised Eisenhower for ensuring global stability, while the latter
pointed to certain foreign failures, most notably the mishandling of
Nasserite Arab nationalism. Both scholars, though, agreed that the
President established a strong foundation that subsequent White House
administrations capitalised on.20
18
James Bill, The Eagle and the Lion: The Tragedy of US-Iran Relations, Yale: Yale University
Press, 288–290 (1988); Mark Gasiorowski, US Foreign Policy and the Shah: Building a Client
State in Iran, Ithaca: Cornell University Press (1991); Steve Marsh, ‘HMG, and the Anglo-
Iranian Oil Crisis: In Defence of Anglo-Iranian’, Diplomacy and Statecraft, 12/4, 148–153
(2001); Barry Rubin, Paved with Good Intentions: The American Experience in Iran, Oxford:
Oxford University Press, 64–66 (1991).
19
Walt Rostow, Eisenhower, Kennedy and Foreign Aid, Austin: University of Texas
Press (1985).
20
Fred Greenstein, The Hidden Hand Presidency: Eisenhower as Leader, Baltimore: John
Hopkins University Press (1984); Richard Immerman, John Foster Dulles: Piety, Pragmatism,
and Power in U.S. Foreign Policy, Lanham: Rowman and Littlefield (1998).
8 D. WAINWRIGHT
21
Roham Alvandi, ‘The Shah’s Détente with Khrushchev: Iran’s 1962 Missile Base Pledge
to the Soviet Union’, Cold War History, 14/3, 423–444 (2014); David Collier, ‘To Prevent
a Revolution: John F. Kennedy and the Promotion of Democracy in Iran’, Diplomacy and
Statecraft, 24, 456–475 (2013); Victor Nemchenok, ‘In Search of Stability Amid Chaos: US
Policy Towards Iran, 1961–1963’, Cold War History, 10/3, 341–369 (2010); Ben Offiler,
US Foreign Policy and the Modernisation of Iran: Kennedy, Johnson, Nixon and the Shah,
Basingstoke: Palgrave Macmillan (2015); Tony Smith, ‘New Bottles for New Wine: A
Pericentric Framework for the Study of the Cold War’, Diplomatic History, 24/4, 567–591
(2000); April Summit, ‘For a White Revolution: John F. Kennedy and the Shah of Iran’,
Middle East Journal, 58/4, 560–575 (2004).
22
Roham Alvandi, Nixon, Kissinger and the Shah: The United States and Iran in the Cold
War, Oxford: Oxford University Press, 2–4 (2014); Stephen McGlinchey, ‘Richard Nixon’s
Road to Tehran: The Making of the U.S.-Iran Arms Agreement of May 1972’, Diplomatic
History, 37/4, 841–860 (2013); David Schmitz, The United States and Right Wing
Dictatorships, Cambridge: Cambridge University Press (2005).
1 INTRODUCTION 9
In contrast, there has been much analysis of how the Foreign Office
used institutions like the British Council and the BBC’s foreign service
audio broadcasts to achieve the UK government’s diplomatic goals in the
region. Scholars have also explored the initiatives of the UK Foreign
Office’s Information Research Department (IRD) across the Arab world
and the Maghreb.23 However, many of these histories pay little attention
on the UK’s attempts to forge cultural ties with Iran during the Cold War
specifically. Annabelle Sreberny and Massoumeh Torfeh, for instance, eval-
uated the BBC Persian Service’s role in promoting British interests in the
country. They argued that the UK Foreign Office exerted considerable
pressure on the broadcaster to adhere to its foreign policy stance on Iran.
During the 1951–1953 Iranian Oil Crisis, for example, diplomats expected
the Persian Service to be critical of Prime Minister Mohammad Mossagdeh.
Yet, whilst surveying its broadcasts between 1945 and 2012, Torfeh and
Sreberny only analyse the Persian Service and Iran at certain key points.
These include the 1951–1953 Oil Crisis, the 1979 Iranian Revolution and
the 2008 launch of the BBC Persian television channel. The writers con-
sequently pay little attention to proceedings before and between these
events.24
There are, consequently, numerous gaps within the literature. Few his-
tories, crucially, have discussed how these tensions in the US-UK ‘special
relationship’ manifested themselves in Anglo-American interactions with
Iran in this period. A key element underpinning both countries’ bilateral
ties, the relationship is complex and multi-faceted. Policymakers from
both countries realised that they shared an aversion to Communism and a
penchant for free trade. By working together, British and American diplo-
mats and officials were convinced that these objectives could be achieved
more quickly.25 Policymakers on both sides of the Atlantic, together with
academics and media commentators, however, view Britain as the ‘junior
partner’ in this ‘special relationship’, particularly in the Middle East. Prior
to the 1950s, Britain was the dominant Western power in the region,
maintaining control via a permanent Royal Navy presence in the Persian
23
James Vaughan, ‘A Certain Idea of Britain’: British Cultural Diplomacy in the Middle
East, 1945–57’, Contemporary British History, 19/2, 151–168 (2005); Alban Webb, London
Calling: Britain, the BBC World Service and the Cold War, London: Bloomsbury (2014).
24
Annabelle Sreberny and Massoumeh Torfeh, Persian Service: The BBC and British
Interests in Iran, London: IB Tauris, 112 (2014).
25
William Wallace and Christopher Phillips, ‘Reassessing the “Special Relationship”’,
International Affairs, 85/2, 270 (2009).
10 D. WAINWRIGHT
Gulf. Foreign Office diplomats and officials also held influential positions
in the courts of many of the state’s ruling regimes.26 Few histories have
discussed how these tensions in the ‘special relationship’ manifested in
Anglo-American interactions with Iran. There has been a greater focus on
the UK and US response to the rise of Arab nationalism, which called for
political and cultural unity and a rejection of Western powers across the
Arab world. Scholars have accordingly explored the contrasting US and
UK responses to these developments. Whereas the Foreign Office encour-
aged its regional allies to sign a non-aggression pact, American policymak-
ers initially sought to appease Arab nationalists, before pushing for a
tougher response to the ideology’s advocates.27
Equally, compared to the significant body of literature on US-Iran rela-
tions, there has been far less research dedicated to the study of Anglo-
Iranian interactions. This can be attributed to the United States’ emergence
as Iran’s main ally, and the scholarly perception that Britain’s post-war
political and economic decline meant that it was less interested in Iran and
the Persian Gulf after the 1950s.28 Much of the literature written on devel-
opments after this event has been written by British diplomats who for-
merly served in the country or had dealings with its government. These
works largely deal with the Shah’s final years and the Iranian Revolution.29
Historians writing on Anglo-Iranian relations have largely focused on
events before the August 1953 coup. In writing about the 1946 Azerbaijan
Crisis—where USSR loyalists in Northwest Iran formed a breakaway
26
Nigel Ashton, Kennedy, Macmillan and the Cold War: The Irony of Interdependence,
Basingstoke: Palgrave Macmillan, 5 (2001).
27
Greg Brew, ‘“Our Most Dependable Allies”: Iraq, Saudi Arabia and the Eisenhower
Doctrine, 1956–1958’, Mediterranean Quarterly, 26/4, 89 (2015); Nathan Citino, From
Arab Nationalism to OPEC: Eisenhower, King Sa-ud, and the Making of US-Saudi Relations,
Bloomington: Indiana University Press (2002); Robert McNamara, Britain, Nasser and the
Balance of Power in the Middle East, 1952–1977: From the Egyptian Revolution to the Six-Day
War, Abingdon: Routledge, 142, (2003); Ray Takeyh, The Origins of the Eisenhower Doctrine:
The US, Britain and Nasser’s Egypt, 1953–1957, Basingstoke: Palgrave Macmillan (2000);
Salim Yaqub, Containing Arab Nationalism: The Eisenhower Doctrine and the Middle East,
North Carolina: The University of North Carolina Press (2004).
28
Juan Romero, ‘Decolonisation in Reverse: the Iranian Oil Crisis of 1951–1953’, Middle
Eastern Studies, 51/3, 462–488 (2015); Simon Smith, ‘Power Transferred? Britain, the
United States and the Gulf, 1956–1971’, Contemporary British History, 21/1, 4–5 (2007).
29
David Owen, Time to Declare, London: Politicos (1991); Anthony Parsons, The Pride
and the Fall: Iran, 1974–1979, London, Jonathan Cape Limited (1984); Edward Posnett,
‘Treating His Imperial Majesty’s Warts: British Policy Towards Iran, 1977–1979’, Iranian
Studies, 45/1, 119–137 (2012).
1 INTRODUCTION 11
state—Daniel Yergin, Fred Halliday and Louise Fawcett all discuss Britain’s
role in resolving the dispute. Whereas Yergin and Halliday stress the
impact of British and American policymakers here, Fawcett underlines the
role of Iranian politicians in outmanoeuvring senior Soviet officials.30 The
literature on British responses to the Anglo-Iranian Oil Crisis, moreover,
analyses both the UK government’s imposition of an oil embargo on Iran
and the Foreign Office’s drawing up of plans to invade Iranian oilfields.31
Much of the work focusing on post-1953 UK-Iran relations focuses on
popular Iranian responses to the British government’s conduct during this
diplomatic dispute. Maysam Behravesh and Ali Ansari suggest that the
Anglo-Iranian Oil Crisis cemented the idea of ‘perfidious Albion’ into the
Iranian popular consciousness. According to both scholars, this term can
be used to describe suspicion towards British motives and intentions, the
idea that Britain is involved in Iranian affairs from behind the scenes and
is responsible for unfortunate events that befall Iran.32
30
Louise Fawcett, ‘Revisiting the Iranian Crisis of 1946: How Much More Do We Know?’,
Iranian Studies, 47/3, 379–399 (2014); Fred Halliday, ‘The Middle East, the Great Powers
and the Cold War’, in: Avi Shlaim and Yezid Sayigh (eds) The Cold War in the Middle East,
Oxford: Oxford University Press (1997); Daniel Yergin, Shattered Peace: The Origins of the
Cold War and the National Security State, London: Penguin (1977).
31
Steve Marsh, ‘Anglo-American Crude Diplomacy: Multinational Oil and the Iranian Oil
Crisis, 1951–1953’, Contemporary British History, 21/1, 25–53 (2007); Ian Speller, ‘A
Splutter of Musketry? The British Military Response to the Anglo-Iranian Oil Dispute,
1951’, Contemporary British History, 17/1, 39–66 (2003).
32
Ali Ansari, ‘The Myth of “Perfidious Albion”: Anglo-Iranian Relations in Historical
Perspective’, Asian Affairs, 44/3, 378–391 (2013); Maysam Behravesh, ‘The Formative
Years of Anglo-Iranian Relations: Colonial Scramble for Iran and its Political Legacy’, Digest
of Middle Eastern Studies, 21/2, 386–400 (2012).
12 D. WAINWRIGHT
33
Christopher Layne, ‘The Unbearable Lightness of Soft Power’, in: Inderjeet Parmar and
Michael Cox (eds) Soft Power and US Foreign Policy: Theoretical, Historical and Contemporary
Perspectives, Abingdon: Routledge, 56 (2010).
34
Geraldo Zahran and Leonardo Ramos, ‘From Hegemony to Soft Power’, in: Inderjeet
Parmar and Michael Cox (eds) Soft Power and US Foreign Policy: Theoretical, Historical and
Contemporary Perspectives, Abingdon: Routledge, 13–15 (2010).
35
Joseph Nye, ‘Get Smart: Combining Hard and Soft Power’, New Perspectives Quarterly,
26/2, 160–163 (2009).
36
Andras Simonyi and Judit Trunkos, ‘Eliminating the Hard/Soft Power Dichotomy’, in:
Aude Jehan and Andras Simonyi (eds), Smarter Powers: The Key to a Strategic Transatlantic
Partnership, Washington: Center for Transatlantic Relations, 22–29 (2015).
1 INTRODUCTION 13
The analysis of British and American soft power in Iran between 1953
and 1960 makes five key contributions, each of which is revisited in the
Conclusion. First, it views Anglo-American relations with Iran through
the prism of soft power. This is an original take on the topic. Previous
research has emphasised economic and military interactions between the
United States, United Kingdom and Iran. Second, complements and sup-
plements the growing body of work on Eisenhower revisionism. The work
illustrates how this White House administration established the founda-
tions of America’s soft power programme in Iran. Third, it highlights the
role of certain individuals in the making and shaping of foreign policy
initiatives. Fourth, the book explores how Britain and the United States
responded to the changes in their respective global positions. During this
period, the United Kingdom was a declining power, in the process of
relinquishing most of its overseas colonies. The United States, in compari-
son, was a booming superpower, taking a greater interest in the struggle
against Communism in the Persian Gulf and Arab world. Finally, it high-
lights the tensions and competitiveness underpinning Anglo-American
relations in the region. Both countries, while collaborating in many fields,
shared similar aims but different priorities. The monograph points out the
ways in which they cooperated and competed with one another for
regional supremacy.
References
Alvandi, Roham. Nixon, Kissinger and the Shah: The United States and Iran in the
Cold War, Oxford: Oxford University Press (2014a).
Alvandi, Roham. ‘The Shah’s Détente with Khrushchev: Iran’s 1962 Missile Base
Pledge to the Soviet Union’, Cold War History, 14/3, 423–444 (2014b).
Ansari, Ali. ‘The Myth of “Perfidious Albion”: Anglo-Iranian Relations in
Historical Perspective’, Asian Affairs, 44/3, 378–391 (2013).
Ashton, Nigel. Kennedy, Macmillan and the Cold War: The Irony of Interdependence,
Basingstoke: Palgrave Macmillan (2001).
Behravesh, Maysam. ‘The Formative Years of Anglo-Iranian Relations: Colonial
Scramble for Iran and its Political Legacy’, Digest of Middle Eastern Studies,
21/2, 386–400 (2012).
Bill, James. The Eagle and the Lion: The Tragedy of US-Iran Relations, Yale: Yale
University Press (1988).
Biskind, Peter. Seeing is Believing: How Hollywood Taught Us to Stop Worrying and
Love the Fifties, London: Henry Holt & Company Inc (1984).
16 D. WAINWRIGHT
Brew, Greg. ‘“Our Most Dependable Allies”: Iraq, Saudi Arabia and the
Eisenhower Doctrine, 1956–1958’, Mediterranean Quarterly, 26/4,
89–109 (2015).
Citino, Nathan. From Arab Nationalism to OPEC: Eisenhower, King Sa-ud, and
the Making of US-Saudi Relations, Bloomington: Indiana University
Press (2002).
Collier, David. ‘To Prevent a Revolution: John F. Kennedy and the Promotion of
Democracy in Iran’, Diplomacy and Statecraft, 24, 456–475 (2013).
‘Cultural Diplomacy: The Lynchpin of Public Diplomacy’, Report of the Advisory
Committee on Cultural Diplomacy, The US Department of State (2005).
Elman, Colin and Fendius-Elman, Miriam. ‘Diplomatic History and International
Relations Theory: Respecting Difference and Crossing Boundaries’,
International Security 22/1, 5–21 (1999).
Fawcett, Louise. ‘Revisiting the Iranian Crisis of 1946: How Much More Do We
Know?’, Iranian Studies, 47/3, 379–399 (2014).
Gaddis, John Lewis. We Now Know: Rethinking Cold War History, Oxford: Oxford
University Press (1997).
Gasiorowski, Mark, US Foreign Policy and the Shah: Building a Client State in
Iran, Ithaca: Cornell University Press (1991).
Gatejel, Luminita, ‘Appealing for a Car. Consumption Policies and Entitlement in
the USSR, the GDR and Romania, 1950s–1980s’, Slavic Review, 75,
122–145 (2016).
Greenstein, Fred. The Hidden Hand Presidency: Eisenhower as Leader, Baltimore:
John Hopkins University Press (1984).
Halliday, Fred. ‘The Middle East, the Great Powers and the Cold War’, in: Shlaim,
Avi and Sayigh, Yezid (eds) The Cold War in the Middle East, Oxford: Oxford
University Press (1997).
Hixson, Walter. Parting the Curtain: Propaganda, Culture and the Cold War,
1945–1961, New York: Palgrave Macmillan (1997).
Hurst, Steve. The United States and the Iranian Nuclear Programme: A Critical
History, Edinburgh: Edinburgh University Press (2018).
Immerman, Richard. John Foster Dulles: Piety, Pragmatism, and Power in
U.S. Foreign Policy, Lanham: Rowman and Littlefield (1998).
Kisatsky, Deborah. ‘Voice of America and Iran, 1949–1953: US Liberal
Developmentalism, Propaganda and the Cold War’, Intelligence and National
Security, 14/3, 160–185 (1999).
Lake, Anthony. ‘Confronting Backlash States’, Foreign Affairs, 73/2,
44–55 (1994).
Layne, Christopher. ‘The Unbearable Lightness of Soft Power’, in: Parmar,
Inderjeet and Cox, Michael (eds) Soft Power and US Foreign Policy: Theoretical,
Historical and Contemporary Perspectives, Abingdon: Routledge (2010).
1 INTRODUCTION 17
Lucas, Ivor. ‘Revisiting the Decline and Fall of the Shah of Iran’, Asian Affairs,
40/3, 418–424 (2009).
Marsh, Steve. ‘HMG, and the Anglo-Iranian Oil Crisis: In Defence of Anglo-
Iranian’, Diplomacy and Statecraft, 12/4, 143–174 (2001).
Marsh, Steve. ‘Anglo-American Crude Diplomacy: Multinational Oil and the
Iranian Oil Crisis, 1951–1953’, Contemporary British History, 21/1,
25–53 (2007).
McGlinchey, Stephen. ‘Richard Nixon’s Road to Tehran: The Making of the U.S.-
Iran Arms Agreement of May 1972’, Diplomatic History, 37/4, 841–860 (2013).
McNamara, Robert. Britain, Nasser and the Balance of Power in the Middle East,
1952–1977: From the Egyptian Revolution to the Six-Day War, Abingdon:
Routledge (2003).
Mossaki, Nodar and Ravandi-Fadai, Lana. ‘A Guarded Courtship: Soviet Cultural
Diplomacy in Iran from the Late 1940s to the 1960s’, Iranian Studies, 51/3,
427–454 (2018).
Murray, Donette. US Foreign Policy and Iran: American-Iranian Relations Since
the 1979 Islamic Revolution, Abingdon: Routledge (2010).
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Secure and Prosperous United Kingdom, Westminster (2015).
Nemchenok, Victor. ‘In Search of Stability Amid Chaos: US Policy Towards Iran,
1961–1963’, Cold War History, 10/3, 341–369 (2010).
Nye, Joseph. Soft Power: The Means to Success in World Politics, New York: Public
Affairs (2004a).
Nye, Joseph. ‘Soft Power and American Foreign Policy’, Political Science Quarterly,
119/2, 255–270 (2004b).
Nye, Joseph. ‘Public Diplomacy and Soft Power’, The Annals of the American
Academy of Political and Social Science, 616, 94–109 (2008).
Nye, Joseph. ‘Get Smart: Combining Hard and Soft Power’, New Perspectives
Quarterly, 26/2, 160–163 (2009).
Offiler, Ben. US Foreign Policy and the Modernisation of Iran: Kennedy, Johnson,
Nixon and the Shah, Basingstoke: Palgrave Macmillan (2015).
Osgood, Kenneth, ‘Hearts and Minds: The Unconventional Cold War’, Journal of
Cold War Studies 4/2, 85–107 (2002).
Owen, David. Time to Declare, London: Politicos (1991).
Parsons, Anthony. The Pride and the Fall: Iran, 1974–1979, London, Jonathan
Cape Limited (1984).
Pickett, James. ‘Soviet Civilisation Through a Persian Lens: Iranian Intellectuals,
Cultural Diplomacy and Socialist Modernity, 1941–1955’, Iranian Studies,
48/5, 805–826 (2015).
Posnett, Edward. ‘Treating His Imperial Majesty’s Warts: British Policy Towards
Iran, 1977–1979’, Iranian Studies, 45/1, 119–137 (2012).
18 D. WAINWRIGHT
Webb, Alban. London Calling: Britain, the BBC World Service and the Cold War,
London: Bloomsbury (2014).
Yaqub, Salim. Containing Arab Nationalism: The Eisenhower Doctrine and the
Middle East, North Carolina: The University of North Carolina Press (2004).
Yergin, Daniel. Shattered Peace: The Origins of the Cold War and the National
Security State, London: Penguin (1977).
Zahran, Geraldo and Ramos, Leonardo. ‘From Hegemony to Soft Power’, in:
Parmar, Inderjeet and Cox, Michael (eds) Soft Power and US Foreign Policy:
Theoretical, Historical and Contemporary Perspectives, Abingdon:
Routledge (2010).
CHAPTER 2
We saw Turkey on the one hand, and Pakistan on the other. Each was
fairly stable and with some strength, and Iran was in the middle. That
was our picture of the Middle East; so, Iran was very important to us.
It was the soft underbelly of Russia.
—Henry Byroade interviewed by Niel M. Johnson, 19 September
1988, Arlington, Virginia, The Association for Diplomatic Studies
and Training Foreign Affairs Oral History Project, http://www.adst.
org/OHTOCs/Byroade,Henry.toc.pdf (accessed 11 April 2019).
1
Telegram from Henry Byroade (Bureau of Near Eastern Affairs) to the State Department,
15 October 1953, College Park, Maryland, National Archives II (hereafter document, date,
NAII), US State Department papers, Iran, US-Iran Political Relations (1950–1954).
2
Henry Byroade interviewed by Niel M. Johnson, 19 September 1988, The Association
for Diplomatic Studies and Training Foreign Affairs Oral History Project, http://www.adst.
org/OHTOCs/Byroade,Henry.toc.pdf (accessed 11 April 2019).
3
Ibid.
2 SOFT POWER, THE ‘SPECIAL RELATIONSHIP’ AND THE ROOTS… 23
4
Ibid.; Loy Henderson interviewed by Richard McKinzie, 14 June 1973, Independence,
Missouri, The Harry S. Truman Presidential Library and Museum, https://www.trumanli-
brary.org/oralhist/hendrson.htm (accessed 11 April 2019).
24 D. WAINWRIGHT
5
Milton Cummings, Cultural Diplomacy and the United States Government: A Survey,
Washington, DC: Americans for the Arts, 11 (2003).
6
Andrew Defty, ‘“Close and Continuous Liaison”: British Anti-Communist Propaganda
and Cooperation with the United States, 1950–1951’, Intelligence and National Security,
17/4, 126–128 (2002).
7
Richard Aldrich, The Hidden Hand: Britain, America and Cold War Secret Intelligence,
London: John Murray (2001).
2 SOFT POWER, THE ‘SPECIAL RELATIONSHIP’ AND THE ROOTS… 25
8
Priscilla Roberts, ‘Rebuilding a Relationship: British Cultural Diplomacy Towards China,
1967–1980’, in: Greg Kennedy and Christopher Tuck (eds) British Propaganda and Wars of
Empire: Influencing Friend and Foe, 1900–2010, Abingdon: Routledge, 192–194 (2014).
9
Pearse Redmond, ‘The Historical Roots of CIA-Hollywood Propaganda’, The American
Journal of Politics and Sociology, 76/2, 280 (2017).
10
Andrew Yarrow, ‘Selling a New Vision of America to the World: Changing Messages in
Early U.S. Cold War Print Propaganda’, Journal of Cold War Studies, 11/4, 9 (2009).
11
Kenneth Osgood, Total Cold War: Eisenhower’s Secret Propaganda Battle at Home and
Abroad, Lawrence: University Press of Kansas, 22–24 (2006).
26 D. WAINWRIGHT
12
Nicholas Cull, The Cold War and the United States Information Agency: American
Propaganda and Public Diplomacy During the Cold War, Cambridge: Cambridge University
Press, 5–7 (2003).
13
Jan Melissen, New Public Diplomacy: Soft Power in International Relations, Basingstoke:
Palgrave Macmillan, 5 (2005).
14
William Rugh, American Encounters with Arabs: The “Soft Power” of US Public Diplomacy
in the Middle East, London: Praeger, 28–30 (2006).
15
Laura Belmonte, Selling the American Way: US Propaganda and the Cold War,
(Philadelphia: University of Pennsylvania Press, 56 (2008).
16
Peter Von Ham, Social Power in International Politics, Abingdon: Routledge, 72 (2010).
2 SOFT POWER, THE ‘SPECIAL RELATIONSHIP’ AND THE ROOTS… 27
it is a one-way process. Many in the Arab world are under the impression
that the United States assumes a supposed moral and intellectual authority
over other actors in the region, imposing their values and ideas on others.17
Outside the US government’s control, Matar states that the actions of
other states regionally and internationally can undermine the effectiveness
of American soft power. Countries and peoples in the Arab world have
historically taken defensive measures against US cultural and public diplo-
macy overtures. They have imposed Internet and media restrictions and
provided clandestine support to paramilitary and terrorist groups opposed
to the United States. Other prominent global powers—such as the United
Kingdom, France, Russia and China—may also devise soft power initia-
tives, competing with those of the United States and crowding it out.
Indeed, Matar argues that the United States has failed to grasp the struc-
tural complexities of the Arab world. He claims that American policymak-
ers have failed to appreciate the importance of Islam to societies here, as
well as failed to recognise the fragmented nature of Arab cultures.18
Matar’s critique brings the question of ‘culture’ to the heart of the
debate on soft power. In Bound to Lead, Nye treats American values as
universal, presuming all peoples and nations are attracted to these norms
and ideas. This Western centrism is not a unique observation. Analysing
American attempts to project US values in East Asia, Michael Hunt high-
lights the same mentality. He explains how attempts of American mission-
aries and business figures to export US-style freedom and liberty to the
region were used to justify the failed intervention on the side of the
Chinese Nationalists during the 1940s. The ‘Luce vision’ also failed to
appreciate the societal complexities of East Asia. Here, there was a suspi-
cion of individualism, a value for order and a view that US prescriptions of
change were paternalistic at best and destabilising at worst.19 Equally, Nye
fails to consider that the exertion of soft power is a two-way process. As
Edward Lock attests, Bound to Lead encourages scholars to focus on the
agent exercising soft power. Not enough attention is therefore paid to the
target, which does more than just receive. Their response to the soft power
17
Hosam Matar, ‘Limits of US Soft Power in the Arab World (2003–2015)’, Contemporary
Arab Affairs, 9/3, 428–444 (2016).
18
Ibid., 436–438.
19
Michael Hunt, ‘East Asia in Henry Luce’s “American Century”’, Diplomatic History,
23/2, 321–323 1999).
28 D. WAINWRIGHT
23
Donald Birn, ‘The War of Words: The British Council and Cultural Propaganda in the
1930s’, Peace and Change, 14/2, 183–185 (1989).
24
Emma Robertson, ‘“I Get a Real Kick Out of Big Ben”: BBC Versions of Britishness and
on the Empire and General Overseas Service, 1932–1948’, Historical Journal of Film, Radio
and Television, 28/4, 467 (2008); Annabelle Sreberny and Massoumeh Torfeh, ‘The BBC
Persian Service 1941–1979’, Historical Journal of Film, Radio and Television, 28/4,
524–525 (2008).
25
Alban Webb, ‘Constitutional Niceties: Three Crucial Dates in Cold War Relations
Between the BBC External Services and the Foreign Office’, Historical Journal of Film,
Radio and Television, 28/4, 558–559 (2008).
30 D. WAINWRIGHT
IRD. Operating from within the Foreign Office until its 1977 close, this
open-source intelligence agency coordinated the production and dissemi-
nation of British Cold War propaganda. In particular, the IRD strove to
counter pro-Communist publications, discredit the Soviet Union and pro-
mote British values domestically and overseas. Its officials sought to
achieve these aims by working with prominent individuals and organisa-
tions at home and abroad who also opposed Communism.26 In the Middle
East, for example, the IRD provided media outlets in the region wary of
Communism and Arab nationalism with relevant material. Between 1951
and 1953, it supplied the Jordanian government backed–radio station, the
Hashemite Broadcasting Service, with anti-Soviet content. The IRD also
supplied articles to pro-Western Egyptian, Iraqi and Syrian newspapers.
Many of these publications criticised Nasser, highlighted the Soviet
Union’s aggressive expansionism in the Middle East and extolled Britain’s
virtues.27 Beyond Middle Eastern affairs, IRD officials cooperated with the
US State Department to produce and disseminate anti-Communist propa-
ganda when their motives converged. As both countries’ governments
were concerned about the spread of Communism in Southeast Asia, UK
and US officials worked together to devise a psychological programme for
the region. To ensure a streamlined operation, each agency focused their
efforts on a particular area. As the IRD had more experience and contacts
in Singapore and Hong Kong, its officials focused their subversive activi-
ties on these territories and their surroundings. State Department figures,
on the other hand, paid greater attention to proceedings on the Korean
Peninsula, Taiwan and China.28
Indeed, it was by the Cold War’s early stages that the United States
became increasingly interested in cultural diplomacy. Prior to this, its
activities in this field had been confined to the overseas radio transmissions
of the Voice of America (VOA). Established in 1942, its broadcasts, in
English and 40 other languages, initially targeted citizens living in Latin
26
Andrew Defty, Britain, America and Anti-Communist Propaganda, 1945–1953: The
Information Research Department, Abingdon: Routledge, 102–103 (2004); Alban Webb,
‘Auntie Goes to War Again: The BBC External Services, the Foreign Office, and the Early
Cold War’, Media History, 12/2, 117 (2006).
27
James Vaughan, ‘“Cloak Without Dagger”: How the Information Research Department
Fought Britain’s Cold War in the Middle East, 1948–1956’, Cold War History, 4/3,
61–62 (2004).
28
Tony Shaw, ‘The Information Research Department of the British Foreign Office and
the Korean War, 1950–1953’, Journal of Contemporary History, 34/2, 279–280 (1999).
2 SOFT POWER, THE ‘SPECIAL RELATIONSHIP’ AND THE ROOTS… 31
America and Europe. The VOA aimed to foster resentment towards Nazi
political parties and occupying German forces, respectively. The United
States’ role in liberating North Africa, Southern Europe and East Asia
enabled the VOA to expand. The American government authorised the
building of transmitters in all three regions, enabling radio broadcasts to
reach new audiences. Such an accelerated expansion in its formative years
made the VOA crucial to the United States’ attempts to combat Soviet
propaganda after 1945. As its transmitters were placed across the globe,
the radio broadcaster was perfectly poised to communicate to overseas
audiences the pitfalls of Communism and the socio-economic benefits of
siding with America.29
With the Cold War’s onset, however, senior figures within the Truman
administration had become increasingly dissatisfied with this informal
arrangement. They feared that the work of businesses, religious groups
and mass culture in promoting America overseas was minuscule in com-
parison to the anti-US ideology espoused and disseminated by the Soviet
state. To better promote America overseas, the US government increas-
ingly looked towards formalising cultural diplomacy, giving them greater
control over the scale, funding and nature of the endeavours pursued. In
January 1948, the US Congress approved the Smith-Mundt Act. The leg-
islation enacted into law the provision of greater funding for state-
sponsored soft power initiatives more broadly, specifically in the fields of
propaganda and cultural diplomacy. It provided the State Department,
and its constituent overseas embassies, monies to open information cen-
tres, produce broadcast films and print literature. While much of this
aimed at swaying foreign publics away from Communism, its content also
extolled the virtues and values of America.30
The Smith-Mundt Act was the impetus behind President Harry
Truman’s ‘Campaign for Truth’. Launched in April 1950, this was the
United States’ first sustained, unified attempt to combat Communist pro-
paganda and promote America overseas. The campaign was influenced by
the arguments outlined in National Security Council Document 68 (NSC
68), which had been approved by Truman several weeks before. The aim,
therefore, was to contain Communism, through strengthening the will of
the United States and its allies to resist Soviet propaganda, as well as
29
Gary Rawnsley, ‘The Campaign of Truth: A Populist Propaganda’, in: Gary Rawnsley
(ed) Cold War Propaganda in the 1950s, Basingstoke: Palgrave Macmillan, 33 (1999).
30
Yarrow, ‘Selling a New Vision of America to the World’, 20–22.
32 D. WAINWRIGHT
outlining the faults of the USSR and its satellite states to the people resid-
ing in these nations.31 The VOA played a pivotal role in achieving these
objectives. Targeting citizens beyond the Iron Curtain, its programming
was increasingly critical of the Soviet Union. In tandem with the VOA’s
activities, the State Department established the United States Information
Service (USIS) to conduct all its subversive and propaganda activities. The
in-house agency operated through USembassies across the globe, publish-
ing and disseminating anti-Communist propaganda, while also translating
American books and films into foreign languages.32
The nature and scale of US cultural diplomacy was further developed
during the Eisenhower administration’s first year. Building on his prede-
cessor’s ‘Campaign for Truth’, President Dwight D. Eisenhower sought
to make this aspect of foreign policy central to the United States’ approach
to the Cold War. He had two motives for doing so. First, during his com-
mand of the Allied forces in Europe during the Second World War,
Eisenhower had come to see the merits of cultural diplomacy. Not only
was it cheaper than the use of tanks and guns, but it was also less costly in
terms of lives. Second, there was an increased need to foster public sup-
port for American initiatives. The early years of Eisenhower’s presidency
dovetailed with a period in which technological progress had made infor-
mation and media more accessible. Such developments had resulted in
audiences at home and abroad becoming much more politically aware and
active.33
Upon entering office, Eisenhower established the Jackson Committee.
Comprised of national security officials, intelligence figures and individu-
als within the presidential administration, the committee analysed and
evaluated America’s cultural and propaganda initiatives. Its final June
1953 report called for, among other things, an organisation under the
State Department’s auspices to oversee all American cultural and propa-
ganda campaigns.34 Eisenhower used the Jackson Committee’s findings as
31
Defty, Britain, America and Anti-Communist Propaganda, 1945–1953, 140–141;
Rawnsley, ‘The Campaign of Truth’, 35–36.
32
William Scott Lucas, Freedom’s War: The US Crusade Against the Soviet Union,
1945–1956, Manchester: Manchester University Press, 74–76 (1999).
33
Kenneth Osgood, Total Cold War, 6–8; Shawn Parry-Giles, ‘The Eisenhower
Administration’s Conceptualisation of the USIA: The Development of Overt and Covert
Propaganda Strategies’, Presidential Studies Quarterly, 24/2, 265 (1994).
34
The report of the President’s Committee on International Information Activities (the
Jackson Committee), 30 June 1953, FRUS, 1952–1954, Volume II, part 2.
2 SOFT POWER, THE ‘SPECIAL RELATIONSHIP’ AND THE ROOTS… 33
The ‘special relationship’ shared between Britain and the United States is
a key element of Anglo-American foreign policy. Both countries’ similar
visions for the post-war international system became apparent towards the
Second World War’s end. Eager to be the main economic beneficiaries of
the post-1945 world order, the United Kingdom and United States estab-
lished global institutions and treaties to encourage free trade. The 1944
Bretton Woods system agreed by Japan, Australia, North American and
Western European powers maintained favourable currency exchange rates,
tying the US dollar to the value of gold. The agreement here also led to
the establishment of the World Bank, an institution that promoted foreign
investment and international trade by providing loans to developing world
countries. Just three years later, the success of these initiatives encouraged
the Bretton Woods signatories, among others, to agree to the General
Agreement on Tariffs and Trade (GATT). The treaty called for the reduc-
tion of trade barriers to foster free global trade.37
35
Sixth progress report on NSC 59/1, ‘the foreign information programme and psycho-
logical warfare planning’, DDEL, White House Office, NSC Series, Policy Papers.
36
Parry-Giles, ‘Eisenhower Administration’s Conceptualisation’, 271.
37
Eric Helleiner, Forgotten Foundations of Bretton Woods: International Development and
the Making of the Postwar Order, Ithaca: Cornell University Press, 29–31 (2014).
34 D. WAINWRIGHT
38
John Lewis Gaddis, The United States and the Origins of the Cold War, New York: Oxford
University Press, 283 (2000); Richard Wevill, Britain and America After World War II:
Bilateral Relations and the Beginnings of the Cold War, London: Bloomsbury, 5–7 (2012);
Lorenz Luthi, Cold Wars: Asia, The Middle East and Europe, Cambridge: Cambridge
University Press (2020).
39
Campbell Craig and Sergey Radchenko, The Atomic Bomb and the Origins of the Cold
War, Yale: Yale University Press, 73–75 (2008).
40
Deborah Kaple, ‘Agents of Change: Soviet Advisers and High Stalinist Management in
China, 1949–1960’, Journal of Cold War Studies, 18/1, 5–7 (2016); Lorenz Luthi, The
Sino-Soviet Split: Cold War in the Communist World, Princeton: Princeton University Press,
24–31 (2008).
2 SOFT POWER, THE ‘SPECIAL RELATIONSHIP’ AND THE ROOTS… 35
41
David Reynolds, ‘A “Special Relationship”? America, Britain and the International
Order Since the Second World War’, International Affairs, 62/1, 1–20 (1985).
42
Daniel Harrington, Berlin on the Brink: The Blockade, Airlift and the Early Cold War,
Lexington: University of Kentucky Press, 293–295 (2012).
43
William Taylor Fain, American Ascendance and British Retreat in the Persian Gulf
Region, Basingstoke: Palgrave Macmillan, 4–6 (2008).
44
Aldrich, The Hidden Hand, 55.
45
Piers Brendon, The Decline and Fall of the British Empire, London: Vintage, 52 (2008);
Bernard Porter, The Lion’s Share: A Short History of British Imperialism, 1850–1995, London:
Routledge, 344–347 (2008).
36 D. WAINWRIGHT
with the cost of their global commitments forced the British to begin
relinquishing their overseas territories and responsibilities. In 1947, UK
officials were forced to concede to their American counterparts that they
could no longer provide military and economic assistance to the Greek
and Turkish governments. Fearful that both countries would succumb to
Communism, US President Harry Truman devised the Truman Doctrine.
He asked Congress for permission to provide Greece and Turkey with
military and economic support in Britain’s place.46
In contrast, having been a regional power with considerable standing in
East Asia and Latin America since the nineteenth century, the United
States was now a superpower with a global reach. The country emerged
from the Second World War as the world’s best performing economy, with
its government’s success in establishing a post-war world order enhancing
the United States’ global standing. The country’s involvement in interna-
tional affairs was boosted further by its determination to combat
Communism globally. To prevent the Soviet Union from expanding its
influence into Western Europe, US officials agreed in 1948 to implement
the Marshall Plan. To dissuade the region’s people from turning to
Communism, the programme pledged considerable economic aid and
expertise to rebuild war-torn Western Europe.47 America’s commitment
to fight the Cold War globally was enshrined by 1950 when Truman
approved NSC 68. Established in 1948, the National Security Council
(NSC) met to discuss pressing foreign policy and domestic issues. Meetings
were comprised of White House, Cabinet, State Department, intelligence
and military figures, with policy papers and proposals produced because of
their discussions.48 Fully titled ‘US objectives and programmes for national
security’, NSC 68 called for the United States to commit to containing
Communism by involving itself in world affairs. It was only through
American involvement across the globe that the Soviet Union’s aggressive,
expansionist tendencies could be curtailed. When initially presented with
the document in April 1950, Truman baulked at the recommendations’
financial cost. Communist North Korea’s decision to invade the US-backed
46
David Reynolds, Britannia Overruled: British Policy and World Power in the Twentieth
Century, London: Routledge, 52 (1991).
47
Melvyn Leffler, A Preponderance of Power: National Security, the Truman Administration
and the Cold War, Stanford: University of Stanford Press, 182–185 (1992).
48
Elizabeth Spalding, The First Cold Warrior: Harry Truman, Containment, and the
Remaking of Liberal Internationalism, Lexington: University of Kentucky Press, 231 (2006).
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Olen vaiti.
Hän luki sen ja viskasi samassa kirjan pois. Koko hänen ruumiinsa
alkoi vavista.
Minä hätkähdin.
3.