SECTION 6: Substitutes for the Functions of War

By now it should be clear that the most detailed and comprehensive master plan for a transition to world peace will remain academic if it fails to deal forthrightly with the problem of the critical nonmilitary functions of war. The social needs they serve are essential; if the war system no longer exists to meet them, substitute institutions will have to be established for the purpose.

These surrogates must be "realistic," which is to say of a scope and nature that can be conceived and implemented in the context of present-day social capabilities. This is not the truism it may appear to be; the requirements of radical social change often reveal the distinction between a most conservative projection and a wildly utopian scheme to be fine indeed.

In this section we will consider some possible substitutes for these functions. Only in rare instances have they been put forth for the purposes which concern us here, but we see no reason to limit ourselves to proposals that address themselves explicitly to the problem as we have outlined it. We will disregard the ostensible, or military, functions of war; it is a premise of this study that the transition to peace implies absolutely that they will no longer exist in any relevant sense. We will also disregard the noncritical functions exemplified at the end of the preceding section.

Economic

Economic surrogates for war must meet two principal criteria. They must be "wasteful," in the common sense of the word, and they must operate outside the normal supply-demand system. A corollary that should be obvious is that the magnitude of the waste must be sufficient to meet the needs of a particular society. An economy as advanced and complex as our own requires the planned average annual destruction of not less than 10 percent of gross national product [29] if it is effectively to fulfill its stabilizing function. When the mass of a balance wheel is inadequate to the power it is intended to control, its effect can be self-defeating, as with a runaway locomotive. The analogy, though crude, [30] is especially apt for the American economy, as our record of cyclical depressions shows. All have taken place during periods of grossly inadequate military spending.

Those few economic conversion programs which by implication acknowledge the nonmilitary economic function of war (at least to some extent) tend to assume that so-called social-welfare expenditures will fill the vacuum created by the disappearance of military spending. When one considers the backlog of unfinished business - proposed but still unexecuted - in this field, the assumption seems plausible. Let us examine briefly the following list, which is more or less typical of general social welfare programs. [31]

• Health. Drastic expansion of medical research, education, and training facilities; hospital and clinic construction; the general objective of complete government-guaranteed health care for all, at a level consistent with current developments in medical technology.
   

• Education. The equivalent of the foregoing in teacher training; schools and libraries; the drastic upgrading of standards, with the general objective of making available for all an attainable educational goal equivalent to what is now considered a professional degree.
   

• Housing. Clean, comfortable, safe, and spacious living space for all, at the level now enjoyed by about 15 percent of the population in this country (less in most others).
   

• Transportation. The establishment of a system of mass public transportation making it possible for all to travel to and from areas of work and recreation quickly, comfortably, and conveniently, and to travel privately for pleasure rather than necessity.
   

• Physical environment. The development and protection of water supplies, forests, parks, and other natural resources; the elimination of chemical and bacterial contaminants from air, water, and soil.
   

• Poverty. The genuine elimination of poverty, defined by a standard consistent with current economic productivity, by means of guaranteed annual income or whatever system of distribution will best assure its achievement.

This is only a sampler of the more obvious domestic social welfare items, and we have listed it in a deliberately broad, perhaps extravagant, manner. In the past, such a vague and ambitious-sounding "program" would have been dismissed out of hand, without serious consideration; it would clearly have been, prima facie, far too costly, quite apart from its political implications. [32] Our objection to it, on the other hand, could hardly be more contradictory. As an economic substitute for war, it is inadequate because it would be far too cheap.

If this seems paradoxical, it must be remembered that up to now all proposed social-welfare expenditures have had to be measured within the war economy, not as a replacement for it. The old slogan about a battleship or an ICBM costing as much as x hospitals or y schools or z homes takes on a very different meaning if there are to be no more battleships or ICBM’s.

Since the list is general, we have elected to forestall the tangential controversy that surrounds arbitrary cost projections by offering no individual cost estimates. But the maximum program that could be physically effected along the lines indicated could approach the established level of military spending only for a limited time - in our opinion, subject to a detailed cost-and-feasibility analysis, less than ten years. In this short period, at this rate, the major goals of the program would have been achieved. Its capital-investment phase would have been completed, and it would have established a permanent comparatively modest level of annual operating cost - within the framework of the general economy.

Here is the basic weakness of the social-welfare surrogate. On the short-term basis, a maximum program of this sort could replace a normal military spending program, provided it was designed, like the military model, to be subject to arbitrary control. Public housing starts, for example, or the development of modern medical centers might be accelerated or halted from time to time, as the requirements of a stable economy might dictate.

But on the long-term basis, social-welfare spending, no matter how often redefined, would necessarily become an integral, accepted part of the economy, of no more value as a stabilizer than the automobile industry or old age and survivors’ insurance. Apart from whatever merit social-welfare programs are deemed to have for their own sake, their function as a substitute for war in the economy would thus be self-liquidating. They might serve, however, as expedients pending the development of more durable substitute measures.

Another economic surrogate that has been proposed is a series of giant "space research" programs. These have already demonstrated their utility in more modest scale within the military economy. What has been implied, although not yet expressly put forth, is the development of a long-range sequence of space-research projects with largely unattainable goals.

This kind of program offers several advantages lacking in the social welfare model. First, it is unlikely to phase itself out, regardless of the predictable "surprises" science has in store for us: the universe is too big. In the event some individual project unexpectedly succeeds there would be no dearth of substitute problems. For example, if colonization of the moon proceeds on schedule, it could then become "necessary" to establish a beachhead on Mars or Jupiter, and so on. Second, it need be no more dependent on the general supply-demand economy than its military prototype. Third, it lends itself extraordinarily well to arbitrary control.

Space research can be viewed as the nearest modern equivalent yet devised to the pyramid-building, and similar ritualistic enterprises, of ancient societies. It is true that the scientific value of the space program, even of what has already been accomplished, is substantial on its own terms. But current programs are absurdly and obviously disproportionate, in the relationship of the knowledge sought to the expenditures committed.

All but a small fraction of the space budget, measured by the standards of comparable scientific objectives, must be charged de facto to the military economy. Future space research, projected as a war surrogate, would further reduce the the "scientific" rationale of its budget to a minuscule percentage indeed. As a purely economic substitute for war, therefore, extension of the space program warrants serious consideration.

In Section 3 we pointed out that certain disarmament models, which we called conservative, postulated extremely expensive and elaborate inspection systems. Would it be possible to extend and institutionalize such systems to the point where they might serve as economic surrogates for war spending? The organization of failsafe inspection machinery could well be ritualized in a manner similar to that of established military processes. "Inspection teams" might be very like armies, and their technical equipment might be very like weapons. Inflating the inspection budget to military scale presents no difficulty. The appeal of this kind of scheme lies in the comparative ease of transition between two parallel systems.

The "elaborate inspection" surrogate is fundamentally fallacious, however. Although it might be economically useful, as well as politically necessary, during the disarmament transition, it would fail as a substitute for the economic function of war for one simple reason. Peacekeeping inspection is part of a war system, not of a peace system. It implies the possibility of weapons maintenance or manufacture, which could not exist in a world at peace as here defined. Massive inspection also implies sanctions, and thus war-readiness.

The same fallacy is more obvious in plans to create a patently useless "defense conversion" apparatus. The long-discredited proposal to build "total" civil defense facilities is one example; another is the plan to establish a giant antimissile missile complex (Nike-X, et al.). These programs, of course, are economic rather than strategic. Nevertheless, they are not substitutes for military spending but merely different forms of it.

A more sophisticated variant is the proposal to establish the "Unarmed Forces" of the United States. [33] This would conveniently maintain the entire institutional military structure, redirecting it essentially toward social-welfare activities on a global scale. It would be, in effect, a giant military Peace Corps. There is nothing inherently unworkable about this plan, and using the existing military system to effectuate its own demise is both ingenious and convenient. But even on a greatly magnified world basis, social-welfare expenditures must sooner or later reenter the atmosphere of the normal economy.

The practical transitional virtues of such a scheme would thus be eventually negated by its inadequacy as a permanent economic stabilizer.
 

Political

The war system makes the stable government of societies possible. It does this essentially by providing an external necessity for a society to accept political rule. In so doing, it establishes the basis for nationhood and the authority of government to control its constituents. What other institution or combination of programs might serve these functions in its place?

We have already pointed out that the end of war means the end of national sovereignty, and thus the end of nationhood as we know it today. But this does not necessarily mean the end of nations in the administrative sense, and internal political power will remain essential to a stable society. The emerging "nations" of the peace epoch must continue to draw political authority from some source.

A number of proposals have been made governing the relations between nations after total disarmament; all are basically juridical in nature. They contemplate institutions more or less like a World Court, or a United Nations, but vested with real authority. They may or may not serve their ostensible postmilitary purpose of settling international disputes, but we need not discuss that here. None would offer effective external pressure on a peace-world nation to organize itself politically.

It might be argued that a well-armed international police force, operating under the authority of such a supranational "court," could well serve the function of external enemy. This, however, would constitute a military operation, like the inspection schemes mentioned, and, like them, would be inconsistent with the premise of an end to the war system. It is possible that a variant of the "Unarmed Forces" idea might be developed in such a way that its "constructive" (i.e., social welfare) activities could be combined with an economic "threat" of sufficient size and credibility to warrant political organization. Would this kind of threat also be contradictory to our central premise? - that is, would it be inevitably military? Not necessarily, in our view, but we are skeptical of its capacity to evoke credibility. Also, the obvious destabilizing effect of any global social welfare surrogate on politically necessary class relationships would create an entirely new set of transition problems at least equal in magnitude.

Credibility, in fact, lies at the heart of the problem of developing a political substitute for war. This is where the space-race proposals, in many ways so well suited as economic substitutes for war, fall short. The most ambitious and unrealistic space project cannot of itself generate a believable external menace. It has been hotly argued [34] that such a menace would offer the "last, best hope of peace," etc., by uniting mankind against the danger of destruction by "creatures" from other planets or from outer space.

Experiments have been proposed to test the credibility of an out-of-our-world invasion threat; it is possible that a few of the more difficult-to-explain "flying saucer" incidents of recent years were in fact early experiments of this kind. If so, they could hardly have been judged encouraging. We anticipate no difficulties in making a "need" for a giant super space program credible for economic purposes, even were there not ample precedent; extending it, for political purposes, to include features unfortunately associated with science fiction would obviously be a more dubious undertaking.

Nevertheless, an effective political substitute for war would require "alternate enemies," some of which might seem equally farfetched in the context of the current war system. It may be, for instance, that gross pollution of the environment can eventually replace the possibility of mass destruction by nuclear weapons as the principal apparent threat to the survival of the species.

Poisoning of the air, and of the principal sources of food and water supply, is already well advanced, and at first glance would seem promising in this respect; it constitutes a threat that can be dealt with only through social organization and political power. But from present indications it will be a generation to a generation and a half before environmental pollution, however severe, will be sufficiently menacing, on a global scale, to offer a possible basis for a solution.

It is true that the rate of pollution could be increased selectively for this purpose; in fact, the mere modifying of existing programs for the deterrence of pollution could speed up the process enough to make the threat credible much sooner. But the pollution problem has been so widely publicized in recent years that it seems highly improbable that a program of deliberate environmental poisoning could be implemented in a politically acceptable manner.

However unlikely some of the possible alternate enemies we have mentioned may seem, we must emphasize that one must be found, of credible quality and magnitude, if a transition to peace is ever to come about without social disintegration. It is more probable, in our judgment, that such a threat will have to be invented, rather than developed from unknown conditions. For this reason, we believe further speculation about its putative nature ill-advised in this context. Since there is considerable doubt, in our minds, that any viable political surrogate can be devised, we are reluctant to compromise, by premature discussion, any possible option that may eventually lie open to our government.
 

Sociological

Of the many functions of war we have found convenient to group together in this classification, two are critical. In a world of peace, the continuing stability of society will require:

1) an effective substitute for military institutions that can neutralize destabilizing social elements and

2) a credible motivational surrogate for war that can insure social cohesiveness.

The first is an essential element of social control; the second is the basic mechanism for adapting individual human drives to the needs of society.

Most proposals that address themselves, explicitly or otherwise, to the postwar problem of controlling the socially alienated turn to some variant of the Peace Corps or the so-called Job Corps for a solution. The socially disaffected, the economically unprepared, the psychologically unconformable, the hard-core "delinquents," the incorrigible "subversives," and the rest of the unemployable are seen as somehow transformed by the disciplines of a service modeled on military precedent into more or less dedicated social service workers. This presumption also informs the otherwise hardheaded ratiocination of the "Unarmed Forces" plan.

The problem has been addressed, in the language of popular sociology, by Secretary McNamara.

"Even in our abundant societies, we have reason enough to worry over the tensions that coil and tighten among underprivileged young people, and finally flail out in delinquency and crime. What are we to expect ... where mounting frustrations are likely to fester into eruptions of violence and extremism?"

In a seemingly unrelated passage, he continues:

"It seems to me that we could move toward remedying that inequity [of the Selective Service System] by asking every young person in the United States to give two years of service to his country - whether in one of the military services, in the Peace Corps, or in some other volunteer developmental work at home or abroad. We could encourage other countries to do the same." [35]

Here, as elsewhere throughout this significant speech, Mr. McNamara has focused, indirectly but unmistakably, on one of the key issues bearing on a possible transition to peace, and has later indicated, also indirectly, a rough approach to its resolution, again phrased in the language of the current war system.

It seems clear that Mr. McNamara and other proponents of the peace-corps surrogate for this war function lean heavily on the success of the paramilitary Depression programs mentioned in the last section. We find the precedent wholly inadequate in degree. Neither the lack of relevant precedent, however, nor the dubious social-welfare sentimentality characterizing this approach warrant its rejection without careful study. It may be viable - provided, first, that the military origin of the Corps format be effectively rendered out of its operational activity, and second, that the transition from paramilitary activities to "developmental work" can be effected without regard to the attitudes of the Corps personnel or to the "value" of the work it is expected to perform.

Another possible surrogate for the control of potential enemies of society is the reintroduction, in some form consistent with modern technology and political processes, of slavery. Up to now, this has been suggested only in fiction, notably in the works of Wells, Huxley, Orwell, and others engaged in the imaginative anticipation of the sociology of the future. But the fantasies projected in Brave New World and 1984 have seemed less and less implausible over the years since their publication.

The traditional association of slavery with ancient preindustrial cultures should not blind us to its adaptability to advanced forms of social organization, nor should its equally traditional incompatibility with Western moral and economic values. It is entirely possible that the development of a sophisticated form of slavery may be an absolute prerequisite for social control in a world at peace. As a practical matter, conversion of the code of military discipline to a euphemized form of enslavement would entail surprisingly little revision; the logical first step would be the adoption of some form of "universal" military service.

When it comes to postulating a credible substitute for war capable of directing human behavior patterns in behalf of social organization, few options suggest themselves. Like its political function, the motivational function of war requires the existence of a genuinely menacing social enemy. The principal difference is that for purposes of motivating basic allegiance, as distinct from accepting political authority, the "alternate enemy" must imply a more immediate, tangible, and directly felt threat of destruction. It must justify the need for taking and paying a "blood price" in wide areas of human concern.

In this respect, the possible substitute enemies noted earlier would be insufficient. One exception might be the environmental-pollution model, if the danger to society it posed was genuinely imminent. The fictive models would have to carry the weight of extraordinary conviction, underscored with a not inconsiderable actual sacrifice of life; the construction of an up-to-date mythological or religious structure for this purpose would present difficulties in our era, but must certainly be considered.

Games theorists have suggested, in other contexts, the development of "blood games" for the effective control of individual aggressive impulses. It is an ironic commentary on the current state of war and peace studies that it was left not to scientists but to the makers of a commercial film [36] to develop a model for this notion, on the implausible level of popular melodrama, as a ritualized manhunt.

More realistically, such a ritual might be socialized, in the manner of the Spanish Inquisition and the less formal witch trials of other periods, for purposes of "social purification," "state security," or other rationale both acceptable and credible to postwar societies. The feasibility of such an updated version of still another ancient institution, though doubtful, is considerably less fanciful than the wishful notion of many peace planners that a lasting condition of peace can be brought about without the most painstaking examination of every possible surrogate for the essential functions of war. What is involved here, in a sense, is the quest for William James’s "moral equivalent of war."

It is also possible that the two functions considered under this heading may be jointly served, in the sense of establishing the antisocial, for whom a control institution is needed, as the "alternate enemy" needed to hold society together. The relentless and irreversible advance of unemployability at all levels of society, and the similar extension of generalized alienation from accepted values [37] may make some such program necessary even as an adjunct to the war system.

As before, we will not speculate on the specific forms this kind of program might take, except to note that there is again ample precedent, in the treatment meted out to disfavored, allegedly menacing, ethnic groups in certain societies during historical periods. [38]
 

Ecological

Considering the the shortcomings of war as a mechanism of selective population control, it might appear that devising substitutes for this function should be comparatively simple. Schematically this so, but the problem of timing the transition to a new ecological balancing device makes the feasibility of substitution less certain.

It must be remembered that the limitation of war in this function is entirely eugenic. War has not been genetically progressive. But as a system of gross population control to preserve the species it cannot fairly be faulted. And, as has been pointed out, the nature of war is itself in transition. Current trends in warfare - the increased strategic bombing of civilians and the greater military importance now attached to the destruction of sources of supply (as opposed to purely "military" bases and personnel) - strongly suggest that a truly qualitative improvement is in the making. Assuming the war system is to continue, it is more than probable that the regressively selective quality of war will have been reversed, as its victims become more genetically representative of their societies.

There is no question but that a universal requirement that procreation be limited to the products of artificial insemination would provide a fully adequate substitute control for population levels. Such a reproductive system would, of course, have the added advantage of being susceptible of direct eugenic management. Its predictable further development - conception and embryonic growth taking place wholly under laboratory conditions - would extend these controls to their logical conclusion. The ecological function of war under these circumstances would not only be superseded but surpassed in effectiveness.

The indicated intermediate step - total control of conception with a variant of the ubiquitous "pill," via water supplies or certain essential foodstuffs, offset by a controlled "antidote" - is already under development. [39] There would appear to be no foreseeable need to revert to any of the outmoded practices referred to in the previous section (infanticide, etc.) as there might have been if the possibility of transition to peace had arisen two generations ago.

The real question here, therefore, does not concern the viability of this war substitute, but the political problems involved in bringing it about. It cannot be established while the war system is still in effect. The reason for this is simple: excess population is war material. As long as any society must contemplate even a remote possibility of war, it must maintain a maximum supportable population, even when so doing critically aggravates an economic liability. This is paradoxical, in view of war’s role in reducing excess population, but it is readily understood. War controls the general population level, but the ecological interest of any single society lies in maintaining its hegemony vis-a-vis other societies.

The obvious analogy can be seen in any free-enterprise economy. Practices damaging to the society as a whole - both competitive and monopolistic - are abetted by the conflicting economic motives of individual capital interests. The obvious precedent can be found in the seemingly irrational political difficulties which have blocked universal adoption of simple birth-control methods. Nations desperately in need of increasing unfavorable production-consumption ratios are nevertheless unwilling to gamble their possible military requirements of twenty years hence for this purpose. Unilateral population control, as practiced in ancient Japan and in other isolated societies, is out of the question in today’s world.

Since the eugenic solution cannot be achieved until the transition to the peace system takes place, why not wait? One must qualify the inclination to agree. As we noted earlier, a real possibility of an unprecedented global crisis of insufficiency exists today, which the war system may not be able to forestall. If this should come to pass before an agreed-upon transition to peace were completed, the result might be irrevocably disastrous. There is clearly no solution to this dilemma; it is a risk which must be taken. But it tends to support the view that if a decision is made to eliminate the war system, it were better done sooner than later.
 

Cultural and Scientific

Strictly speaking, the function of war as the determinant of cultural values and as the prime mover of scientific progress may not be critical in a world without war. Our criterion for the basic nonmilitary functions of war has been: Are they necessary to the survival and stability of society? The absolute need for substitute cultural value-determinants and for the continued advance of scientific knowledge is not established. We believe it important, however, in behalf of those for whom these functions hold subjective significance, that it be known what they can reasonably expect in culture and science after a transition to peace.

So far as the creative arts are concerned, there is no reason to believe they would disappear, but only that they would change in character and relative social importance. The elimination of war would in due course deprive them of their principal conative force, but it would necessarily take some time for the effect of this withdrawal to be felt. During the transition, and perhaps for a generation thereafter, themes of sociomoral conflict inspired by the war system would be increasingly transferred to the idiom of purely personal sensibility.

At the same time, a new aesthetic would have to develop. Whatever its name, form, or rationale, its function would be to express, in language appropriate to the new period, the once discredited philosophy that art exists for its own sake. This aesthetic would reject unequivocally the classic requirement of paramilitary conflict as the substantive content of great art. The eventual effect of the peace-world philosophy of art would be democratizing in the extreme, in the sense that a generally acknowledged subjectivity of artistic standards would equalize their new, content-free "values."

What may be expected to happen is that art would be reassigned the role it once played in a few primitive peace-oriented systems. This was the function of pure decoration, entertainment, or play, entirely free of the burden of expressing the sociomoral values and conflicts of a war-oriented society. It is interesting that the groundwork for such a value-free aesthetic is already being laid today, in growing experimentation in art without content, perhaps in anticipation of a world without conflict.

A cult has developed around a new kind of cultural determinism, [40] which proposes that the technological form of a cultural expression determines its values rather than does its ostensibly meaningful content. Its clear implication is that there is no "good" or "bad" art, only that which is appropriate to its (technological) times and that which is not. Its cultural effect has been to promote circumstantial constructions and unplanned expressions; it denies to art the relevance of sequential logic. Its significance in this context is that it provides a working model of one kind of value-free culture we might reasonably anticipate in a world at peace.

So far as science is concerned, it might appear at first glance that a giant space-research program, the most promising among the proposed economic surrogates for war, might also serve as the basic stimulator of scientific research. The lack of fundamental organized social conflict inherent in space work, however, would rule it out as an adequate motivational substitute for war when applied to "pure" science. But it could no doubt sustain the broad range of technological activity that a space budget of military dimensions would require. A similarly scaled social-welfare program could provide a comparable impetus to low-keyed technological advances, especially in medicine, rationalized construction methods, educational psychology, etc. The eugenic substitute for the ecological function of war would also require continuing research in certain areas of the life sciences.

Apart from these partial substitutes for war, it must be kept in mind that the momentum given to scientific progress by the great wars of the past century, and even more by the anticipation of World War III, is intellectually and materially enormous. It is our finding that if the war system were to end tomorrow this momentum is so great that the pursuit of scientific knowledge could reasonably be expected to go forward without noticeable diminution for perhaps two decades. [41]

It would then continue, at a progressively decreasing tempo, for at least another two decades before the "bank account" of today’s unresolved problems would become exhausted. By the standards of the questions we have learned to ask today, there would no longer be anything worth knowing still unknown; we cannot conceive, by definition, of the scientific questions to ask once those we can not comprehend are answered.

This leads unavoidably to another matter: the intrinsic value of the unlimited search for knowledge. We of course offer no independent value judgments here, but it is germane to point out that a substantial minority of scientific opinion feels that search to be circumscribed in any case. This opinion is itself a factor in considering the need for a substitute for the scientific function of war. For the record, we must also take note of the precedent that during long periods of human history, often covering thousands of years, in which no intrinsic social value was assigned to scientific progress, stable societies did survive and flourish.

Although this could not have been possible in the modern industrial world, we cannot be certain it may not again be true in a future world at peace.

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