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THE COMING ANARCHY (page 5)
Africa may be as relevant to the future character of world politics as the Balkans were a hundred years ago, prior to the two Balkan wars and the First World War. Then the threat was the collapse of empires and the birth of nations based solely on tribe. Now the threat is more elemental: nature unchecked. Africa's immediate future could be very bad. The coming upheaval, in which foreign embassies are shut down, states collapse, and contact with the outside world takes place through dangerous, disease-ridden coastal trading posts, will loom large in the century we are entering. (Nine of twenty-one U.S. foreign-aid missions to be closed over the next three years are in Africa—a prologue to a consolidation of U.S. embassies themselves.) Precisely because much of Africa is set to go over the edge at a time when the Cold War has ended, when environmental and demographic stress in other parts of the globe is becoming critical, and when the post-First World War system of nation-states—not just in the Balkans but perhaps also in the Middle East—is about to be toppled, Africa suggests what war, borders, and ethnic politics will be like a few decades hence.
To understand the events of the next fifty years, then, one must understand environmental scarcity, cultural and racial clash, geographic destiny, and the transformation of war. The order in which I have named these is not accidental. Each concept except the first relies partly on the one or ones before it, meaning that the last two—new approaches to mapmaking and to warfare—are the most important. They are also the least understood. I will now look at each idea, drawing upon the work of specialists and also my own travel experiences in various parts of the globe besides Africa, in order to fill in the blanks of a new political atlas.
The Environment as a Hostile Power
For a while the media will continue to ascribe riots and other violent upheavals abroad mainly to ethnic and religious conflict. But as these conflicts multiply, it will become apparent that something else is afoot, making more and more places like Nigeria, India, and Brazil ungovernable.
Mention The Environment or "diminishing natural resources" in foreign-policy circles and you meet a brick wall of skepticism or boredom. To conservatives especially, the very terms seem flaky. Public-policy foundations have contributed to the lack of interest, by funding narrowly focused environmental studies replete with technical jargon which foreign-affairs experts just let pile up on their desks.
It is time to understand The Environment for what it is: the national-security issue of the early twenty-first century. The political and strategic impact of surging populations, spreading disease, deforestation and soil erosion, water depletion, air pollution, and, possibly, rising sea levels in critical, overcrowded regions like the Nile Delta and Bangladesh—developments that will prompt mass migrations and, in turn, incite group conflicts—will be the core foreign-policy challenge from which most others will ultimately emanate, arousing the public and uniting assorted interests left over from the Cold War. In the twenty-first century water will be in dangerously short supply in such diverse locales as Saudi Arabia, Central Asia, and the southwestern United States. A war could erupt between Egypt and Ethiopia over Nile River water. Even in Europe tensions have arisen between Hungary and Slovakia over the damming of the Danube, a classic case of how environmental disputes fuse with ethnic and historical ones. The political scientist and erstwhile Clinton adviser Michael Mandelbaum has said, "We have a foreign policy today in the shape of a doughnut—lots of peripheral interests but nothing at the center." The environment, I will argue, is part of a terrifying array of problems that will define a new threat to our security, filling the hole in Mandelbaum's doughnut and allowing a post- Cold War foreign policy to emerge inexorably by need rather than by design.
Our Cold War foreign policy truly began with George F. Kennan's famous article, signed "X," published in Foreign Affairs in July of 1947, in which Kennan argued for a "firm and vigilant containment" of a Soviet Union that was imperially, rather than ideologically, motivated. It may be that our post-Cold War foreign policy will one day be seen to have had its beginnings in an even bolder and more detailed piece of written analysis: one that appeared in the journal International Security. The article, published in the fall of 1991 by Thomas Fraser Homer-Dixon, who is the head of the Peace and Conflict Studies Program at the University of Toronto, was titled "On the Threshold: Environmental Changes as Causes of Acute Conflict." Homer-Dixon has, more successfully than other analysts, integrated two hitherto separate fields—military-conflict studies and the study of the physical environment.
In Homer-Dixon's view, future wars and civil violence will often arise from scarcities of resources such as water, cropland, forests, and fish. Just as there will be environmentally driven wars and refugee flows, there will be environmentally induced praetorian regimes—or, as he puts it, "hard regimes." Countries with the highest probability of acquiring hard regimes, according to Homer-Dixon, are those that are threatened by a declining resource base yet also have "a history of state [read 'military'] strength." Candidates include Indonesia, Brazil, and, of course, Nigeria. Though each of these nations has exhibited democratizing tendencies of late, Homer-Dixon argues that such tendencies are likely to be superficial "epiphenomena" having nothing to do with long-term processes that include soaring populations and shrinking raw materials. Democracy is problematic; scarcity is more certain.