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    Implications of New Cultural Theory for Comparative Foreign Policy

    Greg Ryan

    Middle Tennessee tate !niversity

    gfryan"mtsu#edu

    Midwestern Political cience $ssociation

    %&&' $nnual Conference

    Panel(1)() Comparative Foreign Policy* New $pproaches

    aturday+ $pril , )*&& am ( '*,& am

    mailto:[email protected]:[email protected]
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    INTRODUCTION: BASIC ISSUES, METHOD AND OUTLINE

    In his attempt to provide a new understanding of the wor-ings of the international

    system+ $le.ander /endt claims that to understand state 0ehavior in the international system+

    one must 0e aware of 0oth the constitutive effects of the international system that influence a

    given state and the domestic factors at wor- within that state 1'''* %)2# 3is claim illuminates

    two important criticisms that have 0een raised concerning the state of theory in the field of

    international relations+ the ina0ility of rational choice attempts to e.plain much of what is

    interesting and important pertaining to international relations Green and hapiro 1'',2 and the

    poverty of analy4ing international relations at a single level of analysis# These two criticisms are

    also relevant to foreign policy studies+ an outgrowth of international relations and decision

    ma-ing studies nyder+ et al+ 1'5%2# Foreign policy studies are in some ways even more

    comple. than international relations+ 0ecause of the necessity and comple.ity of analy4ing and

    integrating factors 0oth inside and outside the state Gerner 1''6* 172# Most attempts to create a

    general theory of foreign policy have either 0een weighted more toward internal factors such as

    perception and cultural influences 8egg and Morrison 1')12 or e.ternal factors pertaining to

    systemic influence /alt4 1'7'9 /endt 1'''2# The o0:ective of this study is to develop a model

    of foreign policy analysis that gives e;ual consideration to 0oth the cognitive or constructivist

    inside2 factors and systemic outside2 influences+ and also to illuminate the relationship 0etween

    the two#

    The model proposed in this study involves several specific varia0les of analysis# First+

    instead of assuming that states are sociali4ed into an international system with a fi.ed nature as

    do structural realists /alt4 1'7'2+ the proposed model

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    1'',2# Factors influencing change include technological advances and evolving ideas of

    community =ennedy 1')72+ and :ust as the prevailing system affects the foreign policy of states+

    so may the actions of states cause changes in the nature of the international system# $n e.ample

    of one such epoch in international relations is the period 0etween the Napoleonic /ars and the

    First /orld /ar+ when the modern idea of the nation 0egan to crystalli4e and wars 0egan to 0e

    fought 0etween ?peoples@ instead of 0etween ?-ings@ Palmer 1')5* 11'2#

    The second factor in foreign policy decision ma-ing to 0e assessed is the political culture

    of the state involved# /hile many domestic political considerations may have implications for

    foreign policy+ such as 0ureaucratic politics $llison 1'719 Aestler 1'7%2 pu0lic opinion Russett

    and Graham 1')'2+ interest group effects Aietrich 1'''2+ media effects Ba-o0sen 1''62+ and

    regime type Mansfield and nyder 1''69 neal+ et al+ 1''59 /alt4 1'572+ this study will focus

    on political culture and how it affects perception of situations# $ccording to ahlins 1')62+

    culture is ?Dhistorically reproduced in action@ p#vii2# Arawing on the wor- of Clifford Geert4

    1'7>2+ who proposed that culture should 0e understood as system of sym0ols+ ahlins articulates

    a concept of culture that is 0ased on sym0ols which undergo reinterpretation during periods of

    environmental change# In this way+ cultural system and cultural practice are lin-ed ewell+ Br#+

    1'''2# This is the case+ according to Michel Foucault+ 0ecause ?Dit is part of the function of

    memory and culture to 0e a0le to reactuali4e any o0:ects whatever that have already featured#

    Repetition is always possi0le9 repetition with application+ transformation@ 1'))*,62# The

    proposed model in this study see-s to integrate the two concepts related a0ove+ the transforming

    nature of the international system and a mallea0le conception of culture+ so that foreign policy

    may 0e 0etter analy4ed#

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    /hat would corro0orating evidence for such a model loo- li-eE The answer that this

    study proposes is a specific pattern of decision ma-ing that e.hi0its itself over time# $lso

    important is a consideration of other factors that are 0elieved to affect decision ma-ing# y

    analy4ing 0oth culturally influenced patterns of decision ma-ing and contending influences on

    decision ma-ing in competition+ it is hoped that at the very least a 0etter understanding of

    cultural effects on foreign policy can 0e gained# ne way to do this is 0y e.amining specific

    decision opportunities within the pattern# This re;uires an in depth consideration of the factors

    relevant in a specific society at a certain point in time+ thus marrying comparative politics and

    international relations theory# Therefore+ comparative case study is an appropriate method for

    demonstrating how factors may operate differently in different societies#

    The framewor- that I am going to use to test my model is immediate e.tended deterrence+

    a situation in which an attac-er contemplates military action against another country and a third

    party commits itself to the defense of the country threatened with attac-# Prior research has

    0een underta-en to compile case lists for immediate e.tended deterrence 8e0ow and tein 1'))9

    3uth and Russett 1'),9 1'))2+ facilitating the tas- of selecting compara0le cases for analysis#

    8e0ow and tein

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    The cases are the Tur-ish decision to ac;uiesce to $merican pressure in 1'5, and the

    Chinese decision to challenge Russian deterrence in defense of ietnam in 1'7'# oth cases are

    confirmed 0y 0oth 3uth and Russett and 8e0ow and tein# The cases were chosen 0ecause the

    decisions made in 0oth cases do not conform to the rational model of decision ma-ing+ they do

    conform to a pattern of foreign policy decision ma-ing during a specified era and these patterns

    of decision ma-ing stretch over a period lasting 0eyond the reign of any one leader# These and

    their ;ualifications will 0e 0riefly e.plained 0elow in the following manner# First+ the general

    historical elements of the Tur-ish and Chinese cultures in the form of patterns that have endured

    over many centuries will 0e introduced# Then+ I will discuss the foreign policy decisions of the

    Tur-ish and Chinese governments during a specific era of decision(ma-ing+ the First /orld /ar

    until the conclusion of the Cold /ar+ that conform to a more specific pattern# Finally+ the

    specific deterrence encounter decisions will 0e 0riefly analy4ed# The characteristics that I want to

    focus on are the Tur-ish desire for identification with civili4ation and the Chinese need to

    demonstrate the supremacy of their culture# oth of these cultural traits have grown out of the

    historical and geographical characteristics uni;ue to each of these countries+ and as related

    a0ove+ these traits have 0een illustrated in different ways at different times#

    oth cases fall into the period 0etween the First /orld /ar and the end of the Cold /ar+

    and it is the nature of this era that I will analy4e for its effects on the cultures and foreign policy

    decisions of China and Tur-ey# This historical delineation is 0orrowed from 3untington+ who

    suggests that during this period ?Dthe conflict of nation states was supplemented 0y the conflict

    of ideologies+ first among fascism+ communism+ and li0eral democracy+ and then 0etween the

    latter two@ 1''5*6%2+ and also Morgenthau+ who finds that international relations after the First

    /orld /ar was characteri4ed 0y a completely different moral climate than 0efore the war 1'5>*

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    %6'2# There is little argument that the First /orld /ar was a watershed event in international

    relations Miller 1'',* ,,2# This study will show that the characteristics of that war and their

    effects on the international system initiated and sustained an environment that can 0e

    differentiated from other periods of history+ and that these characteristics had a mar-ed impact

    on culture and foreign policy decision ma-ing#

    The following sections will first consider the nature of cultural and foreign policy studies

    and the potential for com0ining these fields+ the ideological nature of the international system in

    the %&thcentury+ patterns in Tur-ish and Chinese foreign policy and a comparison of the

    decisions made in the immediate e.tended deterrence cases listed a0ove#

    CULTURAL STUDIES AND FOREIGN POLICY

    Aespite o0:ection to the use of culture as a factor influencing policy Haston 1'572+

    several nota0le studies involving cultural factors $lmond and er0a 1'5>9 Inglehart+ 1'719

    Thompson+ Hllis and /ildavs-y 1''&2 have 0een underta-en# These studies and the present one

    can 0e understood as advocating the importance of culture 0ecause social entities are 0ased on

    systems of interrelations among individuals Carrithers 1''%*%&2+ individuals use these systems

    to operate in their environments Triandis 1'',*162+ all humans have the in0orn capacity to

    0ecome cultural+ and that humans can only view reality through culturally constructed filters

    Charon %&&1* 52# $s culture serves as a medium for organi4ing -nowledge and e.perience+ it

    provides the a0ility to categori4e and discriminate 0ut not to distinguish myth from fact

    Mantovani %&&&*%2# Regarding the focus on national culture in this study+ it is assumed that

    national and ethnic cultures are more significant than other cultures due to ?Dtheir degree of

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    regulation of 0ehavior+ attitudes+ and values+ and the consistency and clarity of regulation and

    tolerance of other cultures@ Tse+ et al# 1'))*)%2#

    The -ey 0uilding 0loc- that cultures are constructed on is the sym0ol# ym0ols provide a

    means for attaining culture Charon %&&1*5%2 and for individual comprehension of the self+

    others and the world itself Geert4 1'7>*%6&2# For the purpose of this study+ a sym0ol is defined

    as ?Dany structure of signification in which a direct+ primary+ literal meaning designates+ in

    addition+ another meaning which is indirect+ secondary+ and figurative and which can 0e

    apprehended only through the first@ Riceour 1'7,* 1%(1>2# ym0ols+ then+ facilitate a collective

    identity while simultaneously providing a fle.i0le construct for ma-ing sense of new information

    and circumstances# They retain and e.pand their meaning through their fle.i0ility+ allowing

    mem0ers of a culture to 0oth maintain an idea of shared history and confidence in the future of

    society Csepeli 1''7*5'2#

    New cultural theory+ stemming from the structural study of language aussure 1'6'2 and

    the metaphorical ;uality of words Riceour 1'7,2+ see-s to ?Ddefine the pragmatic conte.ts

    which sym0ols are employed for sa-e of revealing governing patterns that utilitarian

    manipulation or principles or adaptation to the environment do not readily e.plain@ iernac-i

    1'''*5'(7&2# In other words+ new cultural theory ta-es 0oth constancy and adaptation into

    account in its e.planation of events over time# ne of the seminal efforts in the field of new

    cultural theory that serves to demonstrate how cultural sym0ols allow for the adaptation and

    maintenance of cultural attitudes is ahlins< Islands of 3istory 1')62# In his account of Captain

    Coo-

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    consecutive years during the month of a mythical festival involving a 0attle 0etween the

    islanders their native deity+ and while these circumstances led to tragic death of Coo-+ they also

    ena0led the grafting of Huropean monarchical traditions onto indigenous 3awaiian legends

    leading to a conception of the 3awaiian monarchy which was more in line with conceptions in

    the rest of the world# Coo- was perceived as the mythical deity who would die at the end of the

    festival+ and his death confirmed that he indeed was a legendary god# In other words+ the Coo-

    e.pedition provo-ed an evolution in 3awaiian society which reali4ed a new e.pression of an

    older indigenous cultural construct while simultaneously 0ecoming more integrated into the

    international system#

    ecause foreign policy 0orrows from other disciplines+ many different influences on

    foreign policy have 0een investigated+ including organi4ational structure $llison 1'719 Aeslter

    1'7%2+ regime type neal et al# 1''59 Mansfield and nyder+ 1''62+ pu0lic opinion Russett and

    Graham 1')'2+ interest groups Aietrich 1'''2+ and the media Ba-o0sen 1''62# 3owever+ while

    some studies have given attention to psychological and sociological influences on decision

    ma-ing+ such as the effects of pree.isting 0eliefs 3ere- 1')52+ personal stress M# 3ermann

    1'7'2+ and group effects Banus 1'7%2+ foreign policy scholars generally have 0een reluctant to

    use cultural theories or focus on cultural aspects of foreign policy decisions 3udson 1'5,*52#

    This is unfortunate 0ecause+ as studies of national style indicate+ cultural analysis and

    anthropological theory may 0e a useful tool 0oth for understanding how a country perceives its

    role in the world rown and Is-owit4 1'77*1512+ and the marriage of cultural anthropology to

    traditional foreign policy analysis has the potential of yielding 0etter e.planations of foreign

    policy decisions =ra-au 1'),*%662# This is e.actly what this study intends to do#

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    THE 20TH CENTURY AND THE INFLUENCE OF IDEOLOGY

    The preceding section dealt with societal cultures and the impact that cultural

    perspectives have on societal reaction to outside stimuli# Now the nature of the stimulus+ the

    international system+ will 0e considered# The main contention here is that 0y the early part of the

    twentieth century the international system had evolved 0eyond a specific Huropean conte.t and

    had 0ecome a generali4ed system imposing conditions on all of the world

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    states too- place outside Hurope involving conflict over colonial territory+ 0ut there was general

    confidence that these conflicts could 0e contained Craig 1'57*1&2# The prevailing view was that

    Hurope was progressing toward a more advanced and a0undant civili4ation in which competition

    would produce 0enefits for all Palmer 1'67* 55&2+ and even as late as mid(1'1, the possi0ility

    of general was disregarded due widespread confidence in the effects of continental economic

    integration# 3owever+ during the late nineteenth century Huropean intellectual and ethical ideas

    were transformed 0y Aarwin

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    lines hardened+ trenches were dug shell(poc-ed+ carcass strewn territory 0etween the opposing

    trenches ac;uired the la0el ?no man

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    Cassels 1''5* 1>)2+ and leaders reali4ed that to compete and survive in international politics

    they had to espouse some sort of ideology# It is not surprising then that the two ma:or ideologies

    of /ilson and 8enin came into immediate conflict following the war+ when the /estern $llies

    sent armies to Russia in 1'1' to assist the enemies of the olshevi-s# Ideology was the prime

    motivation for intervention+ and it initiated the enduring clash 0etween the capitalist /est and

    the communist Hast that dominated international relations for most of the twentieth century+ the

    genesis of the so(called Cold /ar chuman 1'5%*7'()&2#

    The interwar period was mar-ed 0y the increasing significance and integration of the

    international economy+ mutual suspicion 0etween the /est and the oviet !nion+ and the rise of

    a third ideological alternative+ fascism# The failure of capitalism to solve national economic

    crises was demonstrated in the international depression of the 1'>&s+ opening the door for

    nationalistic appeals for a strong state# $s fascist regimes in Italy+ Germany+ pain and Bapan

    consolidated power+ the /estern democracies and the oviet !nion vainly hoped that fascism

    would destroy their international ideological rival+ and+ hence+ decided to largely appease fascist

    regimes# Great ritain avoided supporting the democratically elected 0ut socialist leaning

    Popular Front government in the panish Civil /ar+ while talin was eventually compelled to

    supply aid to the Popular Front 0ecause it had 0ecome increasingly identified with international

    communism !lam 1'5)*%,,2# General Franco'# Germany

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    seemed to confirm talin

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    civili4ation and how escalated violence during the twentieth century influenced Chinese methods

    of demonstrating Chinese greatness#

    TURKISH FOREIGN POLICY PRIOR TO AND DURING THE 20TH CENTURY

    The purpose of this section is to demonstrate that Tur-ish foreign policy from /orld /ar

    I until the end of the Cold /ar was influenced 0y a com0ination of traditional Tur-ish ways of

    dealing with the world and international social environment during that period# $s the focus of

    this paper is that culture affects decision ma-ing+ the cultural history that e.erted influence on

    decisions regarding the Cyprus crisis of 1'5, must first 0e related# This relevant characteristic of

    Tur-ish cultural history is that the Tur-s+ unli-e most national groups+ have not 0een consistently

    identified with a larger civili4ation 0ut instead have sought mem0ership in different civili4ations

    at different times# Prior to the First /orld /ar this was demonstrated in the role the Tur-s

    played in the ttoman Hmpire+ and following the war the Tur-s e.hi0ited this 0ehavior 0y

    enthusiastically see-ing mem0ership in /estern international organi4ations and doing more than

    was necessary to fulfill their o0ligations to those organi4ations#

    everal scholars have commented on modern Tur-ey

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    Given the Tur-ish nation%%2+ the Tur-s willingly accepted Islam 0ecause it gave them

    ?purpose@ and ?meaning@ =arpat 1'6'*>2# In other words+ the Tur-s were eager to su0merge

    themselves within Islam 0ecause it was an advanced civili4ation+ materially and philosophically

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    superior to Hurope G# 8ewis 1'7,* %)2+ and 0ecause Islamic civili4ation granted them full

    citi4enship # 8ewis 1''>*)2# Partly due to their position on the frontiers of the ttoman

    Hmpire+ the Tur-s made important military contri0utions to the growth of the empire+ eventually

    esta0lishing themselves as its political leaders#

    Jet for all their military and political success+ the Tur-s still loo-ed to the other mem0ers

    of the empire for cultural identification# This is evidenced 0y the fact that early ttoman political

    documents were in Persian =adafer 1''6*512+ and that even successful e.ploits of Tur-ish

    military heroes were related within the conte.t of older $ra0ian military adventures =adafer

    1''6*5>2# Nevertheless+ the Tur-s 0ecame increasingly integrated into the ttoman Hmpire+

    su0merging their identity in the Islamic faith more than the other ethnic groups # 8ewis 1'66*

    >%,2 and viewing themselves as the guardians of Islamic scripture $dnan($diver 1'61*11'2#

    /hen the empire 0egan its decline in the seventeenth century+ the Tur-s were not -een to forsa-e

    ttoman mem0ership+ despite the their pro.imity and resulting e.posure to an increasingly

    powerful Hurope# Instead+ the overriding goal of 0oth the nineteenth century Joung ttoman

    movement 0y Tur-s2 and the early twentieth century Joung Tur- movement was not to

    esta0lish a separate Tur-ish state 0ut to restore the ttoman Hmpire to its former glory er-es

    1'5,* %%1 and >&62# 3owever+ the coming of /orld /ar I and the ttoman alliance with the

    Central Powers in the war led to ttoman disintegration+ and now the Tur-s were forced to

    contemplate a new path in the world#

    /hen the Tur-ish Repu0lic emerged out of the chaos and carnage of /orld /ar I and its

    aftermath+ it was confronted 0y an international environment that dictated that a state could

    0ecome identified with a group of states 0y gaining mem0ership in international organi4ations of

    which these countries were a mem0er# For Tur-ey+ a nation that had historically sought

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    affiliation with strong and esta0lished civili4ations+ it was clear that to 0ecome an accepted

    mem0er of the /estern community+ it must gain mem0ership in /estern international

    organi4ations# Considering Tur-ey2 and stated that all countries loo-ed to the /est for civili4ation Mango

    1'''*>'52# The leading Tur-ish social theorist of the period echoed $tatur-+ claiming that

    Tur-ey was at least as influenced 0y Hurope and Islam Gol-ap 1'6'*1572# Hven the repu0lic

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    $sia Minor# Tur-ey was committed to the /est+ despite the fact that no other former mem0er of

    the ttoman Hmpire followed suit # 8ewis 1'66*>1>2#

    If Tur-ey1# Then Tur-ey+ at the

    0ehest of the 8eague+ participated in economic sanctions against Italy in 1'>6+ damaging its trade

    relations with that country Aanilov 1')1*%%2#

    Though Tur-ey remained neutral for most of /orld /ar II+ the Tur-s :oined the $llies in

    1',6 0ecause this would ma-e them eligi0le to :oin the !nited Nations# Tur-ey also sought

    N$T mem0ership in 1','+ clearly seeing mem0ership in N$T as a sym0ol of mem0ership in

    the /estern community Tachau 1'),*7,2# $fter 0eing initially re0uffed+ the Tur-s sought to

    prove their loyalty to /estern aims 0y enthusiastically sending a Tur-ish contingent to :oin the

    !N forces in =orea# Though Tur-ey suffered retaliation from its communist neigh0or ulgaria+

    who forci0ly repatriated %6&+&&& Muslims to Tur-ey as act of revenge for Tur-ey

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    to 0ase $merican nuclear missiles on their territory+ though this drew the ire of Tur-ey*11'2# imply put+ after /orld /ar II+ the Tur-s increasingly ?D

    predicated their entire foreign policy on faith in the commitments from their allies# arious

    Tur-ish governments had gone to greater lengths to cooperate with their alliance partners+ even

    0eyond formal treaty o0ligations 3arris 1'76*5&2#

    CHINESE FOREIGN POLICY PRIOR TO AND DURING THE 20TH CENTURY

    The specific aspect of Chinese culture to 0e e.amined is China

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    own country Michael and Taylo 1'65*6>2# Further evidence of Chinese superiority was the

    adoption of Chinese manners and eti;uette 0y China,62# imilarly+ the Mongol and

    Manchu invasions of China in the thirteenth and seventeenth centuries respectively+ were more

    nota0le for the ?sinici4ing@ of the con;ueror than for foreign domination of China# $fter

    overrunning China in 1%7'+ the Mongols ;uic-ly incorporated Chinese governmental procedures+

    court ceremonies and Confucian rites+ and esta0lished an office to write the history of previous

    dynasties+ a tas- underta-en 0y every new Chinese dynasty Ro0erts 1'''*1&)2# The Manchus

    reorgani4ed their civil administration along Chinese lines even 0efore completing the invasion of

    China in the middle 15,&s and adopted the Chinese tri0utary system of foreign relations once in

    power Ro0erts 1'''*1652# This situation has 0een descri0ed 0y one scholar as one in which the

    Chinese came to 0elieve ?Dif we 0ring them into our country+ if we treat them the right way+

    they will recogni4e+ they will ac-nowledge the virtues of our civili4ation and they will 0ecome

    sinici4ed as a result of it@ 3arris 1''&* 1%1(1%%2#

    This all changed with the arrival of /estern power in $sia# $lthough initial contacts

    0etween panish+ Autch and Hnglish traders conformed to Chinese e.pectations+ ritish trade

    representative 8ord McCartney

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    the modern /est 1'5'*%62# Instead of ac-nowledging Chinese greatness+ the ritish resorted to

    coercion to open Chinese mar-ets+ resulting in the pium /ar of 1),&(1),1# Relatively easy

    ritish victory encouraged other Huropean powers to act ;uic-ly to e.tract their own concessions

    from China# Bapan followed suit at the end of the nineteenth century+ defeating China in the ino(

    Bapanese /ar of 1)',('6 and receiving Taiwan as a war pri4e# The first of half of the twentieth

    century 0rought more humiliation at the hands of the /est and Bapan+ 0ut China never

    completely a0andoned its ethnocentric outloo- Teng and Fair0an- 1'7>*>2# Clearly+ the Chinese

    had to find some way to restore the greatness which they 0elieved was their natural right+ 0ut

    howE

    H.cluding the eruption of Chinese protest against foreign intervention in China that

    culminated in the turn of the century o.er Re0ellion+ China generally was incapa0le of forming

    a coherent foreign policy to resist foreign intrusion from the time of the pium /ar until the

    1'>&s# $lthough China did not send any com0atants to Hurope during the First /orld /ar+ it

    sent noncom0atant la0or 0attalions to assist the French# Following the war+ China lo00ied

    delegates to the ersailles Conference to restore handong Province+ which had formerly 0een

    controlled 0y Germany+ to Chinese sovereignty# Instead of awarding handong to China+ the

    ersailles delegates gave it to Bapan# $lthough this led to large scale student demonstrations in

    May 1'1'+ China1+ 3e0ei Province in 1'>7 and hanghai in 1'>)# The Chinese Communists+ on

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    the other hand+ advocated resistance to Bapanese aggression as the most important national

    o0:ective+ even as the Communists were struggling to survive against Nationalist military

    campaigns# $s Bapan drove further into China in the late 1'>&s and early 1',&s+ 0oth Nationalist

    and Communist Chinese 0ecame involved in active resistance to Bapanese aggression+ 0ut the

    Communists gained a reputation as 0eing more successful# Many Chinese even came to 0elieve

    the P8$ was a ma:or force in defeating Bapan in /orld /ar II !halley 1'))*5%2# /hatever the

    facts+ the important point is that the Communists esta0lished a reputation among the Chinese

    masses for aggressively opposing foreign intervention in China# This+ among other reasons+

    persuaded many Chinese to support the Communists when the Chinese Civil /ar resumed after

    1',6#

    !pon victory and unification in 1','+ Mao edong and the communist leadership of the

    People

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    Chinese responses to those threats during the Cold /ar Gurtov and 3uang 1''%*%65(%6)2# This

    pattern involved Chinese recognition of a perceived threat+ and then the underta-ing of a pre(

    emptive attac- that would 0e followed 0y either a pause of negotiation or a prompt Chinese

    withdrawal# The desired effect was to show pro0a0le aggressors that China had gained the

    initiative or to ?teach the enemy a lesson#@ China employed this strategy in 1'6& against the

    $mericans in =orea+ in 1'5% against India and again in 1'5' in 0order clashes with the oviets#

    In the cases of =orea /hiting 1'5&2 and the 0order clashes with the oviets+ China calculated

    that although the penalties might 0e severe+ it would 0e 0eneficial to ta-e military action# This

    strategy provided an accepta0le means of territorial defense given the nature of limited threats to

    China+ 0ut it also gave China the opportunity to demonstrate that it was a true leader in

    worldwide communist revolution#

    THE CASES COMPARED

    The $merican attempt to deter a Tur-ish war against Greece over the Cyprus issue in

    1'5, is the specific decision within the pattern to 0e analy4ed and compared# $lthough Russett

    and 3uth identify Greece as the guardian state in this case+ historical accounts clearly show that

    the !nited tates played a more significant role in the effort to deter the Tur-ish invasion all

    1')%* >6&2# 8e0ow and tein do identify the ! as the guardian state and 0elieve it to 0e the

    most impressive of the three cases they identified as 0eing successful immediate e.tended

    deterrence encounters# The ! attempt to deter a Tur-ish attac- on Cyprus which conventional

    wisdom held would automatically trigger a war with Greece2 came in the form of a letter from

    President Bohnson which declared that the !nited tates would pull out of Tur-ey and e.pose it

    to oviet invasion should Tur-ey initiate war over Cyprus# This communication+ forever after

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    simply -nown as the ?Bohnson letter+@ caused Tur-ish president Inonu to immediately cancel

    invasion plans# I am suggesting that Tur-ey

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    Tur-ish case+ however+ I will demonstrate that China fighting 0ro-e out+ with a total of >&&

    dead on 0oth sides# ritain sent troops to the Cypriot capitol of Nicosia soon after to contain

    hostilities+ 0ut then 0oth Gree- and Tur- Cypriots demanded a0andonment of the Cypriot

    constitution+ with Tur-ey advocating partition of the island# /aning resources led the ritish to

    as- for ! intervention+ and the !N organi4ed a peace-eeping force !NFICJP2 to ta-e over at

    the re;uest of the !# This did not deter 0oth Greece and Tur-ey from ma-ing plans to send

    military forces to Cyprus to protect their respective populations on the island as fighting

    continued in $pril and May of 1'5>#

    $lthough the Tur-s lac-ed landing craft and were ine.perienced in amphi0ious

    operations 3arris 1')6*1))2+ 0y late spring it seemed certain Tur-ey would nevertheless invade

    Bames %&&%*1&52+ possi0ly on Bune 5 ilge 1'76* 1512# In order to prevent the first ever war

    0etween N$T mem0ers+ possi0ly provo-ing oviet intervention+ in Bune $merican president

    Bohnson sent Tur-ish president Inonu a letter stating that if Tur-ish intervention on Cyprus did

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    provo-e oviet intervention+ N$T would not 0e o0ligated to protect Tur-ey all 1')%* >612#

    In reaction to the ?Bohnson letter+@ Tur-ey cancelled plans to invade Cyprus#

    To understand why Tur-ey cancelled the planned invasion of Cyprus+ the nature and seriousness

    of the $merican threat+ and the potential oviet threat on which it was 0ased+ must first 0e

    evaluated# Bohnson certainly sought to deter Tur-ish intervention on Cyprus+ 0ut it was only a

    threat contingent upon oviet action# $t the time+ a oviet move against Tur-ey or any other

    state in /estern Hurope was unli-ely# The only country the oviet !nion openly invaded during

    the entire Cold /ar was $fghanistan+ a non(N$T mem0er#2 Instead+ it was typical for the

    oviets to maintain a low profile in these types of disputes while providing aid to the party it

    favored 3osmer and /olfe 1')>* 166(1652# In fact+ when hostilities flared again on Cyprus in

    $ugust of 1'5,+ Ma-arios as-ed for oviet intervention and was re0uffed Cohen 1'',*

    %),(%)62# 3owever+ in eptem0er Russia did give the Gree- Cypriots anti(aircraft weapons+

    conforming to its 0ehavioral pattern in these situations# Hven then+ the oviets also may have

    sought to reassure Tur-ey that these weapons could 0e used for defensive purposes only

    /ynfred and Gil0ert 1'5'* %%2# In light of these facts+ the threat of oviet invasion against

    Tur-ey in response to Tur-ish actions against Cyprus seems du0ious indeed#

    $s unli-ely as oviet intervention was+ it is even less li-ely that the ! would have

    refused to help Tur-ey if oviet intervention occurred# For two decades it had 0een an

    overarching goal of ! foreign policy to defend /estern Hurope from oviet e.pansion+ would

    the ! have a0andoned /estern Hurope to punish Tur-eyE $lso+ while the ! was the leading

    mem0er of N$T+ it could not force other states to comply with a decision that would have 0oth

    violated the N$T charter and represented a direct threat to the security of /estern Hurope# In

    addition to stating that ! support of Tur-ey was uncertain in the event of Tur-ish action against

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    %7

    Cyprus and resultant oviet intervention+ Bohnson also stated that Tur-ey had no right to use

    weapons against Cyprus that were provided 0y the ! for defensive purposes only# Could this

    have compelled Tur-ey to stand downE In a material since+ it is unli-ely# Tur-ey already

    possessed the weapons and could have made future weapons purchase from /estern Hurope if

    the ! cut off aid# 3owever+ the psychological conse;uences of the ! potentially cutting of aid

    may have affected the Tur-ish attention+ as one scholar commenting on the ! suspension of aid

    to Tur-ey following the 1'7, Cyprus crisis claims that suspension ?Dwould leave deep

    psychological scarsDthat would haunt the relationship for a long time to come@ 3arris

    1'76*7%2#

    $s 0oth oviet intervention and corresponding $merican a0andonment were 0oth

    unli-ely+ other reasons+ including psychological ones+ must 0e considered# President Inonu'%2# This may provide an answer to why

    Tur-ey cancelled the invasion of Cyprus in 1'5,# Instead of acting ?naively@ as one scholar

    claimed Celi- 1'''* .iii2+ Tur-ey may have simply 0een acting as it had in the past+ placating a

    strong country of the civili4ation with which Tur-ey wished to 0e identified# Inonu himself was

    li-ely to have this attitude+ as he was more westerni4ed than past Tur-ish leaders ol-an and

    It4-owit4 1'',* 1)'(1'&2 and refused to ?D;uestion the N$T alliance+ for to do so would

    have meant ;uestioning the very foundations on which the Tur-ish regime rested@ $hmad1''>*

    ,&72#

    If Tur-ey was compelled 0y psychological reasons to forego an invasion that would not

    have li-ely 0een credi0ly opposed 0y the ! and other /estern powers+ what would China do in

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    %)

    a situation vis(L(vis the oviet !nion in which the oviet threat of action against China was

    more dangerous and more credi0leE It is this that now must 0e considered# Though the Chinese

    have fre;uently committed 0order incursions into ietnam throughout history+ China and

    ietnam maintained a close relationship from 1',' to 1'76 due to their common interest in

    defeating /estern imperialism# Their common front wea-ened somewhat 1'5' due to the death

    of 3o Chi Minh+ who had 0een particularly adept at maintaining good relations with China and

    Russia+ and further deteriorated with ietnamese victory in the outh in 1'76# This is 0ecause

    ietnam increasingly tilted toward the oviet !nion in the ino(oviet split 0ecause ?DMoscow

    was very powerful+ strongly anti(Chinese and very far awayD@ allowing ietnam ?Dto preserve

    its con;uests and -eep as independent as possi0le@ Griffith 1')%*1,12#

    Throughout the second half of the 1'7&s+ China and ietnam maneuvered to dominate

    outheast $sia+ with ietnam fearing traditional Chinese encroachment and China see-ing to

    prevent encirclement 0y Russia and ietnam# ietnam negotiated a ?Treaty of Friendship and

    olidarity@ with 8aos in $ugust 1'77+ as the PRC sought to foster a strong Cam0odia+ controlled

    0y the =hmer Rouge+ to resist ietnamese hegemony in Indochina Jahuda 1')>*%%52# In

    Aecem0er 1'77 ietnam 0egan military operations against Cam0odia in response to =hmer

    Rouge 0order incursions+ leading to total withdrawal of all Chinese aid to ietnam in 1'7)# In

    Novem0er 1'7) ietnam and the oviet !nion signed a ?Treaty of Cooperation and Friendship+@

    e.plicitly involving economic assistance and naval refueling rights+ 0ut the implicit intent of the

    treaty was containment and deterrence of China agoria and imon 1')%*16)2# Though the

    treaty did not ma-e any stipulation for military assistance in case of attac-+ 0oth oviet leader

    re4hnev and ietnam

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    %'

    decide how to respond to the treaty+ and Aeng iaoping and others ultimately decided to mount a

    preemptive stri-e against ietnam along the lines of earlier Chinese 0order dispute responses#

    Though Aeng 0elieved oviet intervention might 0e provo-ed+ he predicted oviet attac-s would

    0e limited Chen 1')7* )72#

    $s Chinese leaders were deciding to punish ietnam+ ietnam overran Cam0odia# Aeng

    visited the ! to complete diplomatic normali4ation 0etween the two countries+ and while there

    told President Carter that China would launch a limited attac- on ietnam Carter 1')%*%&52#

    Aeng(1162# $s the short and 0rutal war ended 0etween

    si.ty and seventy thousand -illed2+ it was clear that ietnam was gaining the advantage#

    $s if ietnamese opposition wasn

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    >&

    %% Fe0ruary oviet aircraft were overflying the 0attlefield+ additional oviet ships were en route

    to the outh China ea+ a oviet military delegation arrived in 3anoi and 0oth 3anoi and

    Moscow stated Russia would fulfill treaty o0ligations if Chinese action continued# y the second

    wee- of hostilities+ oviet ships and aircraft carrying military aid arrived in ietnam+ and Pravda

    warned that the war might ?e.pand@ unless China withdrew Baco0sen 1')1*1&%2#

    From a strictly military standpoint+ it is difficult to see why China undertoo- its punitive

    invasion of ietnam# The P8$ was far from a modern force+ and encountered su0stantial

    organi4ational+ logistical+ and communications pro0lems during the operation hort 1')%* >>%2#

    ietnam had a 0attle tested+ superior fighting force and the oviet !nion had an immense

    technological advantage+ particularly in aircraft and missiles# To understand why China attac-ed

    ietnam one must loo- 0eyond the military 0alance of power# In response to ;uestions 0y

    /estern military e.perts concerning the prudence of the operation+ one scholar claims that China

    0elieved its credi0ility was at sta-e and wanted to ?Dshow the world that China did not fear war

    or the threat of oviet intervention 3su 1')>*%72# $nother commentator claims China attac-ed

    ietnam to ?Dreassert the traditional Chinese prerogative of ?chastising the 0ar0arians within

    the traditional Chinese areas of hegemony@ Benc-s 1'7'* )&>2# The fact that China retreated

    does not mean the Chinese were not ris- acceptant# The possi0ility of uncontrolled escalation

    was present throughout the conflict+ as it was in the =orean /ar+ ino(Indian /ar and the !ssuri

    River clashes with the oviets in 1'5'# China

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    >1

    CONCLUSION AND IMPLICATIONS

    The implications of this study fall into three 0road categories# First+ this study can

    provide a model for overcoming the division 0etween nomothetic historical2 and ideographic

    anthropological2 studies# y ta-ing 0oth time and place into account+ the proposed model

    allows for 0oth change and constancy in yielding answers to ;uestions regarding why societies

    ma-e the policy choices that they do# $lso+ the model provides possi0le solutions to some of

    international relations theory* 1>&2# y creating a model that heavily relies on actor specific

    information+ it is hoped that foreign policy studies can 0e made more useful for foreign policy

    practitioners# More specifically+ this study contri0utes to the general understanding of immediate

    e.tended deterrence and in what cases it will 0e effective# The immediate e.tended deterrence

    studies noted a0ove 3uth and Russett+ 1'),9 1'))9 8e0ow and tein+ 1'))2 focus on the actions

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    >%

    and outloo- of the defending party+ not the attac-ing party# This study focuses solely on the

    perceptions of the attac-ing party# This is important for those practicing immediate e.tended

    deterrence the defending party2 0ecause the effectiveness of a particular deterrence strategy is

    dependent on the intentions of the adversary against whom the strategy is underta-en $.elrod

    1'),* >&2# /ithout a particular understanding of how a potential adversary is interpreting the

    deterring signals it sends+ a defending state is more li-ely to fail in its efforts to deter an attac- on

    a friendly third party#

    This is particularly relevant to decision ma-ing in $merican foreign policy 0ecause of the

    ! role as glo0al superpower# $lthough foreign policy issues such as terrorism are increasingly

    important+ much of $merican foreign policy involves preventing or moderating conflict in

    various regions of the world# $s different crises arise+ an enhanced understanding of a specific

    country

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    >>

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    !niversity Press#

    /hiting+ $llen # 1'5 China Crosses the Jalu# New Jor-* The Macmillan Company

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