in order to purge the minds of the people and to win them over completely, he resolved to show that if any cruelty had taken place it was not by his orders, but through the harsh disposition of his minister. And having found the opportunity he had him cut in half and placed one morning in the public square at Cesena with a piece of wood and blood-stained knife by his side.
In recent American history, we have become familiar with the technique of rulers letting subordinates do the dirty work, which they can later disclaim. As a result of the Watergate scandals in the Nixon administration (a series of crimes committed by underlings in his behalf), a number of his people (former CIA agents, White House aides, and even the attorney-general) were sent to prison. But Nixon himself, although he was forced to resign his office, escaped criminal prosecution, arranging to be pardoned when his vice-president, Gerald Ford, became president. Nixon retired in prosperity and, in a few years, became a kind of elder statesman, a Godfather of politics, looked to for sage advice.
Perhaps as a way of calming the public in that heated time of disillusionment with the government because of Vietnam and Watergate, a Senate committee in 1974-1975 conducted an investigation of the intelligence agencies. It discovered that the CIA and the FBI had violated the law countless times (opening mail, breaking into homes and offices, etc.). In the course of that investigation, it was also revealed that the CIA, going back to the Kennedy administration, had plotted the assassination of a number of foreign rulers, including Cuba's Fidel Castro. But the president himself, who clearly was in favor of such actions, was not to be directly involved, so that he could deny knowledge of it. This was given the term plausible denial.
As the committee reported:
Non-attribution to the United States for covert operations was the original and principal purpose of the so-called doctrine of "plausible denial." Evidence before the Committee clearly demonstrates that this concept, designed to protect the United States and its operatives from the consequences of disclosures, has been expanded to mask decisions of the president and his senior staff members.
In 1988, a story in a Beirut magazine led to information that Ronald Reagan's administration had been secretly selling arms to Iran, the declared enemy of the United States, and using the proceeds to give military aid to counterrevolutionaries (the "contras" ) in Nicaragua, thus violating an act passed by Congress. Reagan and Vice President Bush denied involvement, although the evidence pointed very strongly to their participation. Instead of impeaching them, however, congress put their emissaries on the witness stand, and later several of them were indicted. One of them (Robert McFarland) tried to commit suicide. Another, Colonel Oliver North, stood trial for lying to Congress, was found guilty, but was not sentenced to prison. Reagan was not compelled to testify about what he had done. He retired in peace and Bush became the next president of the United States, both beneficiaties of plausible denial. Machiavelli would have admired the operation.
A prince, Machiavelli suggested, should emulate both the lion and the fox. The lion uses force. "The character of peoples varies, and it is easy to persuade them of a thing, but difficult to keep them in that persuasion. And so it is necessary to order things so that when they no longer believe, they can be made to believe by force.... Fortune is a woman, and it is necessary, if you wish to master her, to conquer her by force." The fox uses deception.
If all men were good, this would not be good advice, but since they are dishonest and do not keep faith with you, you, in return, need not keep faith with them; and no prince was ever at a loss for plausible reasons to cloak a breach of faith.... The experience of our times shows those princes to have done great things who have had little regard for good faith, and have been able by astuteness to confuse men's brains.
This advice for the prince has been followed in our time by all sorts of dictators and generalissimos. Hitler kept a copy of The Prince at his bedside, it is said. (Who says? How do they know?) Mussolini used Machiavelli for his doctoral dissertation. Lenin and Stalin are also supposed to have read Machiavelli. Certainly the Italian Communist Gramsci wrote favorably about Machiavelli, claiming that Machiavelli was not really giving advice to princes, who knew all that already, but to "those who do not know," thus educating "those who must recognize certain necessary means, even if those of tyrants, because they want certain ends."
The prime ministers and presidents of modern democratic states, despite their pretensions, have also admired and followed Machiavelli. Max Lerner, a prominent liberal commentator on the post-Wo rld War II period, in his introduction to Machiavelli's writings, says of him: "The common meaning he has for democrats and dictators alike is that, whatever your ends, you must be clear-eyed and unsentimental in pursuit of them." Lerner finds in Machiavelli's Discourses that one of his important ideas is "the need in the conduct even of a democratic state for the will to survive and therefore for ruthless instead of half-hearted measures."
Thus the democratic state, behaving like the lion, uses force when persuasion does not work. It uses it against its own citizens when they cannot be persuaded to obey the laws. It uses it against other peoples in the act of war, not always in self-defense, but often when it cannot persuade other nations to do its bidding.
For example, at the start of the twentieth century, although Colombia was willing to sell the rights to the Panama Canal to the United States, it wanted more money than the United States was willing to pay. So the warships were sent on their way, a little revolution was instigated in Panama, and soon the Canal Zone was in the hands of the United States. As one U.S. Senator described the operation, "We stole it fair and square."
The modern liberal state, like Machiavelli's fox, often uses deception to gain its ends—not so much deception of the foreign enemy (which, after all, has little faith in its adversaries), but of its own citizens, who have been taught to trust their leaders.
One of the important biographies of President Franklin D. Roosevelt is titled Roosevelt: The Lion and the Fox. Roosevelt deceived the American public at the start of World War II, in September and October 1941, misstating the facts about two instances involving German submarines and American destroyers (claiming the destroyer Greer, which was attacked by a German submarine, was on an innocent mission when in fact it was tracking the sub for the British Navy). A historian sympathetic to him wrote, "Franklin Roosevelt repeatedly deceived the American people during the period before Pearl Harbor... He was like the physician who must tell the patient lies for the patient's own good."
Then there were the lies of President John Kennedy and Secretary of State Dean Rusk when they told the public the United States was not responsible for the 1961 invasion of Cuba, although in fact the invasion had been organized by the CIA.
The escalation of the war in Vietnam started with a set of lies— in August 1964—about incidents in the Gulf of Tonkin. The United States announced two "unprovoked" attacks on U.S. destroyers by North Vietnamese boats. One of them almost certainly did not take place. The other was undoubtedly provoked by the proximity (ten miles) of the destroyer to the Vietnamese coast and by a series of CIA-organized raids on the coast.
The lies then multiplied. One of them was President Johnson's statement that the U.S. Air Force was only bombing "military targets." Another was a deception by President Richard Nixon; he concealed from the American public the 1969-1970 massive bombing of Cambodia, a country with which we were supposed to be at peace.
The Advisers
Advisers and assistants to presidents, however committed they are in their rhetoric to the values of modern liberalism, have again and again participated in acts of deception that would have brought praise from Machiavelli. His goal was to serve the prince and national power. So was theirs. Because they were advisers to a liberal democratic state, they assumed that advancing the power of such a state was a moral end, which then justified both force and deception. But cannot a liberal state carry out immoral policies? Then the adviser (deceiving himself this time) wo
uld consider that his closeness to the highest circles of power put him in a position to affect, even reverse, such policies.
It was a contemporary of Machiavelli, Thomas More, who warned intellectuals about being trapped into service to the state and about the self-deception in which the adviser believes he will be a good influence in the higher councils of the government. In More's bookUtopia, spokesperson Raphael is offered the advice commonly given today to young people who want to be social critics, prodding the government from outside, like Martin Luther King or Ralph Nader. The advice is to get on the inside. Raphael is told, "I still think that if you could overcome the aversion you have to the courts of princes, you might do a great deal of good to mankind by the advice that you would give."
Raphael replies, "If I were at the court of some king and proposed wise laws to him and tried to root out of him the dangerous seeds of evil, do you not think I would either be thrown out of his court or held in scorn?" He goes on,
Imagine me at the court of the King of France. Suppose I were sitting in his council with the King himself presiding, and that the wisest men were earnestly discussing by what methods and intrigues the King might keep Milan, recover Naples so often lost, then overthrow the Venetians and subdue all Italy, and add Flanders, Brabant, and even all Burgundy to his realm, besides some other nations he had planned to invade. Now in all this great ferment, with so many brilliant men planning together how to carry on war, imagine so modest a man as myself standing up and urging them to change all their plans.
More might have been describing the historian Arthur Schlesinger, Jr., adviser to President Kennedy, who thought it was "a terrible idea" to go ahead with the CIA Bay of Pigs invasion of Cuba in 1961, two years after the revolution there. But he did not raise his voice in protest, because, as he later admitted, he was intimidated by the presence of "such august figures as the Secretaries of State and Defense and the Joint Chiefs of Staff." He wrote, "In the months after the Bay of Pigs I bitterly reproached myself for having kept so silent during those crucial discussions in the Cabinet room."
But the intimidation of Schlesinger-as-adviser went beyond silencing him in the cabinet room—it led him to produce a nine-page memorandum to President Kennedy, written shortly before the invasion of Cuba, in which he is as blunt as Machiavelli himself in urging deception of the public to conceal the U.S. role in the invasion. This would be necessary because "a great many people simply do not at this moment see that Cuba presents so grave and compelling a threat to our national security as to justify a course of action which much of the world will interpret as calculated aggression against a small nation."
The memorandum goes on, "The character and repute of President Kennedy constitute one of our greatest national resources. Nothing should be done to jeopardize this invaluable asset. When lies must be told, they should be told by subordinate officials." It goes on to suggest "that someone other than the President make the final decision and do so in his absence—someone whose head can later be placed on the block if things go terribly wrong." (Cesare Borgia again, only lacking the bloodstained knife.)
Schlesinger included in his memo sample questions and lying answers in case the issue of the invasion came up in a press conference:
Q. Mr. President, is CIA involved in this affair?
A. I can assure you that the United States has no intention of using force to overthrow the Castro regime.
The scenario was followed. Four days before the invasion President Kennedy told a press conference, "There will not be, under any conditions, any intervention in Cuba by U.S. armed forces."
Schlesinger was just one of dozens of presidential advisers who behaved like little Machiavellis in the years when revolutions in Vietnam and Latin America brought hysterical responses on the part of the U.S. government. These intellectuals could see no better role for themselves than to serve national power.
Kissinger, secretary of state to Nixon, did not even have the mild qualms of Schlesinger. He surrendered himself with ease to the princes of war and destruction. In private discussions with old colleagues from Harvard who thought the Vietnam War immoral, he presented himself as someone trying to bring it to an end, but in his official capacity he was the willing intellectual tool of a policy that involved the massive killing of civilians in Vietnam.
Kissinger approved the bombing and invasion of Cambodia, an act so disruptive of the delicate Cambodian society that it can be considered an important factor in the rise of the murderous Pol Pot regime in that country. After he and the representatives of North Vietnam had negotiated a peace agreement to end the war in late 1972, he approved the breaking off of the talks and the brutal bombardment of residential districts in Hanoi by the most ferocious bombing plane of the time, the Kissinger's biographers describe his role: "If he had disapproved of Nixon's policy, he could have argued against the Cambodia attack. But there is no sign that he ever mustered his considerable influence to persuade the president to hold his fire. Or that he ever considered resigning in protest. Quite the contrary, Kissinger supported the policy."
During the Christmas 1972 bombings New York Times columnist James Reston wrote,
It may be and probably is true, that Mr. Kissinger as well as Secretary of State Rogers and most of the senior officers in the State Department are opposed to the President's bombing offensive in North Vietnam.... But Mr. Kissinger is too much a scholar, with too good a sense of humor and history, to put his own thoughts ahead of the president's.
It seems that journalists too, can be Machiavellian.
Serving National Powers
Machiavelli never questioned that national power and the position of the prince were proper ends: "And it must be understood that a prince...cannot observe all those things which are considered good in men, being often obliged, in order to maintain the state, to act against faith, against charity, against humanity, and against religion."
The end of national power may be beneficial to the prince, and even to the prince's advisers, an ambitious lot. But why should it be assumed as a good end for the average citizen? Why should the citizen tie his or her fate to the nation-state, which is perfectly willing to sacrifice the lives and liberties of its own citizens for the power, the profit, and the glory of politicians or corporate executives or generals?
For a prince, a dictator, or a tyrant national power is an end unquestioned. A democratic state, however, substituting an elected president for a prince, must present national power as benign, serving the interests of liberty, justice, and humanity. If such a state, which is surrounded with the rhetoric of democracy and liberty and, in truth, has some measure of both, engages in a war that is clearly against a vicious and demonstrably evil enemy, then the end seems so clean and clear that any means to defeat that enemy may seem justified.
Such a state was the United States and such an enemy was fascism, represented by Germany, Italy, and Japan. Therefore, when the atomic bomb appeared to be the means for a quicker victory, there was little hesitation to use it.
Very few of us can imagine ourselves as presidential advisers, having to deal with their moral dilemmas (if, indeed, they retain enough integrity to consider them dilemmas). It is much easier, I think, for average citizens to see themselves in the position of the scientists who were secretly assembled in New Mexico during World War II to make the atomic bomb. We may be able to imagine our own trade or profession, our particular skills, called on to serve the policies of the nation. The scientists who served Hitler, like the rocket expert Werner von Braun, could be as cool as Machiavelli in their subservience; they would serve national power without asking questions. They were professionals, totally consumed with doing "a good job" and they would do that job for whoever happened to be in power. So, when Hitler was defeated and von Braun was brought by military intelligence agents to the United States, he cheerfully went ahead and worked on rockets for the United States, as he had done for Hitler.
As one satirical songwriter put it:
Once the rockets are up,
Who cares where they come down?
That's not our department,
Says Werner von Braun.
The scientists who worked on the Manhattan Project were not like that. One cannot imagine them turning to Hitler and working for him if he were victorious. They were conscious, in varying degrees, that this was a war against fascism and that it was invested with a powerful moral cause. Therefore, to build this incredibly powerful weapon was to use a terrible means, but for a noble end.
And yet there was one element these scientists had in common with Werner von Braun: the sheer pleasure of doing a job well, of professional competence, and of scientific discovery, all of which could make one forget, or at least put in the background, the question of human consequences.
After the war, when the making of a thermonuclear bomb was proposed, a bomb a thousand times more destructive that the one dropped on Hiroshima, J. Robert Oppenheimer, personally horrified by the idea, was still moved to pronounce the scheme of Edward Teller and Stanislaw Ulam for producing it as "technically sweet." Teller, defending the project against scientists who saw it as genocidal, said, "The important thing in any science is to do the things that can be done." And, whatever Enrico Fermi's moral scruples were (he was one of the top scientists in the Manhattan Project), he pronounced the plan for making the bombs "superb physics."
Robert Jungk, a German researcher who interviewed many of the scientists involved in the making of the bomb, tried to understand their lack of resistance to dropping the bomb on Hiroshima. "They felt themselves caught in a vast machinery and they certainly were inadequately informed as to the true political and strategic situation." But he does not excuse their inaction. "If at any time they had had the moral strength to protest on purely humane grounds against the dropping of the bomb, their attitude would no doubt have deeply impressed the president, the Cabinet and the generals."