While the administration of US President Joe Biden is bringing back a more familiar and predictable approach to global affairs, the medium- and long-term outlook for US foreign policy remains much more uncertain. Any shift in US grand strategy over the next 15 years would have significant implications for transatlantic relations – particularly for Germany, which has deep security relations and high-value economic ties with the United States. In order to assess the potential implications of future policy shifts and the kinds of mitigation required from Germany, I have developed three broad scenarios of how US strategy might evolve in as early as the next five years that I present here: liberal internationalism, realism, and isolationism and protectionism.
This paper is different. Rather than presenting highly engineered, narrative possibilities, it presents three scenarios that are quite classic, being iterations of three familiar US strategic modes:
(For detailed analysis, please go to https://dgap.org/en/research/publications/logic-and-grammar-us-grand-strategy).
- The liberal-internationalist scenario broadly represents continuity from what we know of the Biden administration thus far. It sees the United States remain committed to both collective security in Europe and – leaving aside US policy toward China – to multilateral, non-discriminatory, and reciprocal economic cooperation globally. This, it goes without saying, is the optimal scenario from a German point of view: collective security offers Germany security, while a stable, liberal international regime benefits German prosperity.
- The realist scenario sees Sino-US competition spill into the economic sphere, putting Europe – and particularly, Germany – in the uncomfortable position of needing to choose sides. Multilateral economic cooperation is subordinated, at least partially, to security competition. Washington squeezes its allies to align themselves economically with the United States in return for protection. While Europe’s continued security dependence on the United States makes it difficult to resist this geo-economic pressure, China unleashes countermeasures as Germany considers aligning with US policies.
- The isolationist and protectionist scenario sees the United States as responding to increasing competition from China, domestic resource constraints, and domestic opposition by revoking its international security commitments and withdrawing into the Western Hemisphere. It resorts to protectionist geo-economics, significantly undermining international economic stability and cooperation. Europe in general, and Germany in particular, incur significant costs from the US retreat from transatlantic security and international economic cooperation.
This report is also somewhat different because it is not primarily about the scenarios themselves. Instead, I aim to offer three eventualities that are clearly differentiated along the familiar lines of various types of US grand strategy. In the liberal-internationalist scenario, US strategy is geared toward multilateralism, rules and institutions, economic cooperation, and the pursuit of economic welfare. In the realist scenario, US strategy is more focused on bilateralism, competition and conflict, power (rather than power-restraining institutions), and the pursuit of national security (rather than economic welfare). The isolationist and protectionist scenario presents yet another type of US strategy – one that is unilateral and inward-looking, turns away from international economic cooperation, and disentangles itself from “extra-hemispheric” security commitments.
For the sake of further clarity, this paper focuses on US strategy in just two fields: security and the international economy. In the liberal-internationalist scenario, the United States remains strongly committed to the existing system of transatlantic collective security. It also maintains broadly cooperative policies within the framework of the international economic regime established on the basis of multilateralism, non-discrimination, and reciprocity after the Second World War. In the realism scenario, Europe continues to benefit from US nuclear deterrence but is forced to take on greater responsibility for conventional deterrence. The United States resorts to geo-economic policies in the context of greater security competition. In the isolationist scenario, the United States pulls out of NATO and largely abandons its other overseas security commitments; international economic cooperation largely collapses.
This comparatively narrow focus allows us to generate clear implications from each scenario – particularly for German policy-makers: Given its dependence on US security cooperation and high-value economic relationship with both the United States and China, Germany would be almost uniquely negatively affected by a shift in US strategy away from today’s liberal internationalism toward realism or isolationism. Although the realist scenario is characterized by continued security cooperation between the United States and Europe, it also sees increasing geo-economic pressure being exerted on Germany by both the US and China. In the isolationist and protectionist scenario, the international system would initially be characterized by competition and conflict, leading to the reemergence of economic blocs and spheres of influence over time.
Lastly, we also focus here on the mechanics of how we generated the three scenarios – thus, more on how the United States makes its strategy rather than the strategy itself. We define strategy-making as the domestic political mediation of international ends and available domestic means. Therefore, each of the scenarios presented in this paper are constructed on the basis of three fundamentals:
- The international system,
- The availability of resources, and
- US domestic politics
We open up the black box of domestic politics and show which international shifts pull which domestic US levers and vice versa. As a result, we can better understand how the United States behaves under different conditions and why. This matters if German policy-makers are to preempt and influence future policy.
Germany needs Europe to think about ways to preemptively mitigate the potential adverse consequences in the security and economic sphere that arise in the two adverse US foreign policy scenarios. On the basis of my analysis, I have outlined potential risk mitigation strategies and policies. With the help of the concept of asymmetric interdependence, fundamental mitigation strategies are derived in view of the different scenarios that consist of:
- Autonomy/autarky,
- Symmetry/balancing, and
- Diversification/hedging
Each strategy is characterized by different cost/benefit trade-offs.
A more detailed analysis of the three scenarios and related cost/benefit trade-offs will be provided in subsequent DGAP Policy Briefs. But what is already clear is that the friendly “continuity” scenario is the least likely – not least because it is the hardest for the EU to influence. The liberal-internationalist scenario is characterized by a benign security environment and international economic cooperation. Avoiding Sino-US great power competition is a necessary condition if this scenario is to materialize.