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PSIR · PALGRAVE STUDIES IN INTERNATIONAL RELATIONS
The US Role in
NATO’s Survival After
the Cold War
Julie Garey
Palgrave Studies in International Relations
Series Editors
Mai’a K. Davis Cross
Northeastern University
Boston, MA, USA
Benjamin de Carvalho
Norwegian Institute of International Affairs
Oslo, Norway
Shahar Hameiri
University of Queensland
St. Lucia, QLD, Australia
Ayşe Zarakol
University of Cambridge
Cambridge, UK
Palgrave Studies in International Relations (the EISA book series), pub-
lished in association with European International Studies Association,
provides scholars with the best theoretically-informed scholarship on the
global issues of our time. The series includes cutting-edge monographs
and edited collections which bridge schools of thought and cross the
boundaries of conventional fields of study. EISA members can access a
50% discount to PSIR, the EISA book series, here http://www.eisa-net.
org/sitecore/content/be-bruga/mci-registrations/eisa/login/landing.
aspx. Mai’a K. Davis Cross is the Edward W. Brooke Professor of Political
Science at Northeastern University, USA, and Senior Researcher at the
ARENA Centre for European Studies, University of Oslo, Norway.
Benjamin de Carvalho is a Senior Research Fellow at the Norwegian
Institute of International Affairs (NUPI), Norway. Shahar Hameiri is
Associate Professor of International Politics and Associate Director of the
Graduate Centre in Governance and International Affairs, School of
Political Science and International Studies, University of Queensland,
Australia. Knud Erik Jørgensen is Professor of International Relations at
Aarhus University, Denmark, and at Yaşar University, Izmir, Turkey. Ole
Jacob Sending is the Research Director at the Norwegian Institute of
International Affairs (NUPI), Norway. Ayşe Zarakol is Reader in
International Relations at the University of Cambridge and a fellow at
Emmanuel College, UK.
The US Role in
NATO’s Survival After
the Cold War
Julie Garey
Department of Political Science
Northeastern University
Boston, MA, USA
© The Editor(s) (if applicable) and The Author(s), under exclusive licence to Springer
Nature Switzerland AG 2020
This work is subject to copyright. All rights are solely and exclusively licensed by the
Publisher, whether the whole or part of the material is concerned, specifically the rights of
translation, reprinting, reuse of illustrations, recitation, broadcasting, reproduction on
microfilms or in any other physical way, and transmission or information storage and retrieval,
electronic adaptation, computer software, or by similar or dissimilar methodology now
known or hereafter developed.
The use of general descriptive names, registered names, trademarks, service marks, etc. in this
publication does not imply, even in the absence of a specific statement, that such names are
exempt from the relevant protective laws and regulations and therefore free for general use.
The publisher, the authors and the editors are safe to assume that the advice and information
in this book are believed to be true and accurate at the date of publication. Neither the pub-
lisher nor the authors or the editors give a warranty, express or implied, with respect to the
material contained herein or for any errors or omissions that may have been made. The
publisher remains neutral with regard to jurisdictional claims in published maps and institu-
tional affiliations.
This Palgrave Macmillan imprint is published by the registered company Springer Nature
Switzerland AG
The registered company address is: Gewerbestrasse 11, 6330 Cham, Switzerland
To Ella Grace, Garrett, Liam, and Noah, because everything I do is out of
love for them, and to Brandon, who made this possible with his love for me.
Acknowledgments
vii
viii ACKNOWLEDGMENTS
1 Introduction 1
NATO Persistence: The Sum of Unequal Parts 2
An Argument in Support of US-Centric Analyses 4
Hypotheses on NATO’s Persistence: Value Maximization 6
Hypotheses on NATO’s Persistence: Alliance Utility 9
Case Selection and Research Contributions 10
What’s at Stake for the United States and NATO 12
Book Outline 15
References 16
ix
x CONTENTS
Bibliography223
Index245
CHAPTER 1
Introduction
continuation. Thus, the case of NATO in the post-war period merits fur-
ther investigation. This book answers the question: why has the NATO
alliance persisted in the post-Cold War period, and why does it matter?
1
This threshold is not expressly written in the North Atlantic Treaty; rather, it was agreed
upon by alliance members in 2006 and reaffirmed in 2014.
1 INTRODUCTION 3
Evidence from each of the four cases illustrates why the United States
continued to pursue the alliance relationship and ensure its survival.
Although NATO is an alliance comprised of 29 member states and struc-
tured on the principles of decision-making by consensus, the United
States’ status as a global hegemon made it the de facto leader of the alli-
ance. NATO evolved to serve a very specific role in conflict closely align-
ing with US interests. Due in large part to this evolution, the alliance
persisted despite projections that either the United States or Western
European states would abandon the alliance in favor of alternative arrange-
ments. Thus, NATO persistence is explained, at least in part, by the
US-NATO relationship and the United States’ leadership within
the alliance.
However, this explanation raises other critically important questions: in
what ways is the alliance beneficial or detrimental to the United States’
military or political objectives? How do the aforementioned conflicts illus-
trate the importance of the alliance to the United States? And, more
broadly, why does the United States have a vested interest in ensuring
NATO’s persistence?
The episode of Clotilde could but forcibly remind Ninon of the son
whom his father, Monsieur de Gersay, had taken away so shortly
after his birth, to rear as his own exclusively, but of whom, unlike
Clotilde, she had not entirely lost traces. On the contrary, she knew
that the Marquis de Gersay lived the most of his time on his own
estates in Brittany, and that therefore Charles, as the child had been
named, was likely to be with him; and Ninon wrote to the marquis,
begging for some intelligence of the young man—for he was now
two-and-twenty. De Gersay informed her that he had taken the
necessary steps for legitimatising him, and that he was called the
Chevalier de Villiers. He added that the secret of his birth was
entirely unknown to the young man, who was a fine, handsome
fellow, and very amiable and intelligent, only needing to rub off the
little corners of his provincial rearing to be perfection. The marquis
added that it would please him very well to bring him to Paris and
introduce him into the circle of Ninon’s friends, so famous for its
refinement and elegance; but it was on the condition that the origin
of his birth should be religiously concealed.
And when young de Villiers arrived in Paris, Ninon received him in
her salon, as she received other young people who sought entry
there, or for whom it was sought, that they might acquire the tone of
good society and le bon goût. Ninon was then over sixty years of
age. Whether, as it is said, she absolutely retained all the beauty and
freshness of her youth, may perhaps be taken cum grano salis; but
that much of it clung about her with all the charm of her manner,
seems indisputable, since she fascinated the young man of twenty-
two.
He fell passionately in love with her; but for a long time he
maintained silence, until he could conceal his love no longer, and
Ninon could no longer remain blind to the true state of the case. She
was deeply distressed and perplexed. She assumed a sort of
maternal tenderness towards him, which had simply the effect of
heating the young man’s ardour to frenzy, and she was forced to
forbid him her house. Fear of never seeing her again, drove him to
say that he would cease to love her. Love forced him to do this, and
to this promise love made him false. The excess of his passion
would not permit him to exist longer in a state of doubt. He sought a
last interview of her. Ninon had gone to her country-house, and
thither he followed. He found her alone, and spoke like a man driven,
as indeed he was, to desperation. Ninon, overcome with pity,
overwhelmed with grief at being the cause of her son’s misery, could
no longer maintain her firmness, and young de Villiers, believing that
the moment of his happiness had arrived, approached her with
passionate gestures. Seized with horror, she shrank from him and
told him the truth. “I am your mother!” she cried in her distress. One
instant de Villiers stood as if thunderstruck; then he turned and
rushed into the garden, hurrying blindly on till he reached the little
thicket at the end of it. There, in his despair, he drew his sword and
stabbed himself to the death.
Ninon waited, and when he did not return, she went in search of
him, to find him weltering in his own blood. He was still breathing,
and strove to speak; but his words were undistinguishable. The
passionate love he felt for her still burned in his eyes; but the
agitation her tenderness and despair occasioned him, only hastened
the end, and he died in her arms.
The horror of this tragedy nearly drove Ninon to take away her
own life. Her pitying friends strove to bring some assuagement to her
sufferings, and Madame Scarron nursed her in the long illness which
ensued, and her gentle, tender ways and words, and her manner of
winning Ninon to speak of the unhappy lost one, at last brought tears
to her eyes, parched with her mental agony, and so relief came, and
Françoise Scarron, weeping with her, was then her best friend. It
was she who ordered a mausoleum tomb for the dead. It was placed
where Charles de Villiers had been interred, a monument of black
marble. Night and day the tapers burned around it, and many an
hour in prayer Ninon knelt beside the last resting-place of Charles de
Villiers.
At this time, Madame Scarron, hitherto very far from a devotee,
introduced to her a young priest of St Sulpice. His name was de la
Mothe Fénelon. His touching words and sincere, gentle sympathy
brought healing as time passed; but the shadow of sorrow and
suffering never fully lifted—the gay, frivolous Ninon was known no
more. Henceforth, till death, she was Mademoiselle de L’Enclos,
bearing herself with dignity, self-restrained, and esteemed by most.
The consent of the king to the marriage of Lauzun and the Grande
Mademoiselle having been at last wrung from him, Lauzun grew
insufferable. His pride was boundless. Except to the king, he would
not even doff his hat. He occupied himself exclusively in arranging
the details of the festivities and ceremonial of the marriage.
But his enemies were at work. His folly and vanity had created a
host of them, and among them were the powerful Louvois, and the
vindictive and ambitious favourite, Madame de Montespan, whom he
had frequently grossly insulted; while Louvois found himself
constantly thwarted and provoked by him. Madame de Montespan,
thinking over the matter of Mademoiselle’s marriage, decided that
her vast property would be much better disposed among the eight
children she had brought the king, than in the pockets of Lauzun,
and finding a supporter in Louvois, she represented the case to His
Majesty, the result being that he withdrew his consent to the
marriage, and de Lauzun was lodged in the Bastille, his character
blackened—no such difficult matter—by the two. The friends of the
lovers had warned them of the imminent possibility of this; and it was
believed that they accepted the advice, and contrived to be privately
married. De Lauzun vented his wrath for the promise—this time so
undisputedly broken—by denouncing Madame de Montespan for her
wifely unfaithfulness to her husband; but it did not hinder his
imprisonment, which he spent for five years in the fortress of
Pignerol, that dreary stronghold of deportation for offending, blue-
blooded courtiers. He was conducted thither by Monsieur
d’Artagnan, lieutenant of the Guards. Five years’ further
incarceration after this in Pignerol was allotted him; though on
conditions slightly ameliorated. The treatment had first been hard in
the extreme, and had rigidly condemned him to one cell.
Sympathy extended only to the disconsolate Mademoiselle, the
victim of an ambitious coxcomb, and of a venal, faithless woman.
Attention was, however, soon turned entirely from this affair, by the
terrible and sudden death of Henrietta, the Duchesse d’Orléans of
England—daughter of King Charles I.—the amiable and universally
beloved wife of the king’s brother, the Duc d’Orléans.
She was one evening enjoying the cool air on the great balcony of
the palace of St Cloud, in company with her ladies, and requested
one of them to fetch her a glass of chicory water from her
apothecary. The apothecary arrived in a few moments with an
enamelled goblet containing the drink, which he presented to her.
Scarcely had she drunk it, than she was seized with violent
convulsive agony, and cried out that she was poisoned.
They carried her to the nearest bedchamber, and laying her down,
loosened her clothes, and administered all the usual restoratives; but
in vain. Already her face and limbs were livid and distorted. “I am
poisoned—I have drunk poison!” was all she was able to utter.
The king came hurrying to the bedside, followed by his physicians,
whom he had hastily summoned. They examined the agonised
woman, grew themselves pale with dismay, and remained silent.
“Where are your senses?” demanded the king, in an access of
distressful alarm. “It is frightful to let a woman die like this, and not
be able to afford any help.”
The doctors only looked at each other, and still did not utter a
word.
Madame herself entreated for an emetic, but Monsieur Valet,
physician-in-chief, declared that it would be dangerous. She had
been seized, he said, with the miserere—the term generally then
used for cholera morbus.
Against these silent impotent healers of the body, the physician of
the soul was sent for. He came. It was Monsieur l’Abbé Bossuet, and
amid his pious, gentle consolations Madame passed away. It was
also Bossuet who pronounced the funeral oration a day or two later.
“Madame is dead!—Madame is dead!” So the terrible words rang
forth in the presence of the king and the assembled half-stunned
courtiers.
That Madame was universally beloved had an exception to its
ruling. He who should have best loved her, the duke himself, was
indifferent to her. Scandal, busy with his name, said worse—said so
much that was shameful, that it is not to be repeated here. It said so
much, that the king, who was aware of it, had already ordered the
immediate departure of the chevalier de Lorraine from Paris, a
dismissal that was to be final. This minion of the duke had been
furious at the command, and accused Madame as the cause of it,
and she had simply laughed at the accusation. The day following her
death, the chevalier de Lorraine, it was asserted, was seen, wrapped
in a long riding-cloak, and his face concealed by a hat whose broad
brims were drawn down low over his brows, riding hastily by the path
of the gate of St Cloud, and so by the roads to the frontier. He was
known to be a great friend of Monsieur de Luxembourg, and at a
later day more than suspicion implicated Monsieur de Luxembourg in
the most notorious poison cause celébre of its century.
The Court of Louis XIV. was now one vast spider’s-web of intrigue,
woven from the lust and greed of so many of those surrounding him.
It was the Nemesis of his policy of drawing all the nobility and
provincial seigneurs from far and near to Versailles. If these were not
lured into the brilliance of the Sun-King’s presence, and desired to
live on their estates, it was next to an impossibility to do so, under
fear of being suspected of plotting against the throne. They were
required to group themselves all round the great orb, gathering from
it the lustre beyond which all was obscurity, and this rarely enough to
be done, even in Paris, but only at Versailles. Louis did not love the
Louvre. He had never forgotten that in the days of the Fronde he had
been driven thence to find refuge where it could be had.
And so the castles and lands of fair France were left untenanted
and falling to ruin, and to lie untilled and neglected, for all the good at
least the people reaped; and this at a time when rougher warfare
had ceased, and religious strife had calmed down, and under other
ruling, the promise of prosperity dawned. Such profits and incomings
as did arise from these tenures and estates, by the toil of the
peasant dwellers on them, brought them only starvation wage; for
the money earned by the sweat of the brows of the peasantry was
needed for its overlords’ silks and velvets, and laces and jewelled
snuff-boxes, and solitaires, to add greater bedazzlement to the
salons and galleries where Louis le Grand lived his span of years.
And even when this was ended—the time was still yet afar off for the
breaking of the storm—but on, ever faster and heavier, the clouds
were lowering in. Neither Richelieu or Mazarin tolerated the spirit
which inspires to a man ruling, or striving to rule, with prudence and
protecting care in his own house. They feared it, and taxation and
gabelle, and rents and quit-rents, as they waxed on to their hideous
proportions, set minds working on the problem of why such things
should be, and how came about such “inequality among men.”
“Where is the wonder, is it not my college?” said the king, one day
when he had bestowed his magnificent presence on the
representation, by the pupils of the Jesuit College at Clermont, of a
tragedy very finely performed. “Collegium Cleromonterum Societate
Jesus” was originally graven upon the college gate, and the
sycophant principal had now caused this to be effaced, and
“Collegium Ludovici Magni” inscribed in gold letters in its place.
The next morning was to be seen, fastened on the gate beneath, a
Latin distich, whose meaning may be thus interpreted—
“Christ’s name expunged, the king’s now fills the stone;
Oh, impious race! by that is plainly shown
That Louis is the only god you own!”
“One story is good till another is told.” The tangle of petty vanities,
lust of gold and mutual jealousies disgracing the Court of Versailles
at this time, might well have dragged Ninon de L’Enclos into the
hated durance of Les Filles Répenties, at the instigation of the
woman who at least was not the one to cast a stone. One fact alone
was indisputable: that there she was, and as certainly more than one
powerful friend at Court was sparing no endeavour to obtain her
release. Among these was Molière, the man of the generous, kindly
heart, who was not likely to forget the many bounteous acts and the
warm sympathy Ninon had extended to him throughout his career.
And to him it mainly was that she owed her release from the
convent. A representation by Molière and his company had been
given at Versailles of his new play, Le Malade Imaginaire, and the
king, on its conclusion, had sent for Molière in some anxiety; for it
had been evident to him that the actor was himself no imaginary
invalid, but suffering and exhausted with the exertion of his arduous
rôle of Argan. More than once of late his understudy, Croisy, had
been required to take his place; and the king expressed his
sympathy and his regret that Molière should have over-fatigued
himself to afford him gratification, for that his health was too precious
to be trifled with.