We yearn for great leaders, but we seem to resist them when they come along. This is a paradox inherent to democracies, between the demand for liberty, equality, and self-reliance among citizens and the continuing need for leadership in the unruliness of an open society. We vacillate between power and drift, between embracing strong leaders and endorsing a kind of leaderless rule. Our confusion about statesmanship is partly because we have lost the language in which to understand the term.
The term statesman has an old, even an antiquarian ring about it. Herbert Storing, a great historian of the American founding, once noted that there seems something almost “un-American” about the word. While politicians pay lip service to the concept, for the most part the term is regarded as outmoded, elitist, and vaguely anti-democratic. Harry Truman once joked that a statesman is just a politician who has been dead for ten or fifteen years.
Yet it is hard to deny that today we are experiencing a dearth of statesmanship. With the exception of Volodymyr Zelensky, bless him, who is doing a stirring impression of Winston Churchill, statesmen are in short supply. Our current moment has certainly witnessed a renaissance of authoritarian figures — Putin, Xi, Modi, Bolsonaro, Orban, Trump — but none of these seem to qualify as statesmen. What is a statesman, and how do we know one when we see one?
The confusion about the concept is due in part to its unavoidably normative character. Isn’t one person’s statesman another’s demagogue? Historians are often wedded to a kind of social determinism that regards the statesman as an agent of powerful classes, interests, and social forces which he or she may only dimly understand. Political scientists, who only feel at home in the world of big data that can be quantified and analyzed by mathematical methods, contribute to the flattening out of experience. But it is impossible to study political phenomena without evaluating them. If we are unable to distinguish a magnanimous statesman from a humble mediocrity from an insane imposter, we will be unable to understand anything about politics.
Like much of our political vocabulary, the concept of the statesman is of ancient origin. It is a translation of the Greek word politikos. Plato devoted an entire dialogue to this concept, although his most famous discussion of the statesman occurs in the Republic, where he famously asked what kind of knowledge a statesman had to possess. His answer was that the politikos was required to be a philosopher-king, someone who blended a high degree of intellectual excellence or expertise with the skillful management of public affairs. Many people disagreed with Plato’s answers — most notably Aristotle, his student — but his question is the one we have been grappling with ever since.
The understanding of statesmanship has been compromised by two tendencies fostered by modern democracy. The first view conceives the statesman as a technocrat, someone who is guided by scientific experts and who is then able to apply this knowledge to the various problems deemed to be plaguing society. This kind of statecraft is rightly called “progressive” because it regards progress in politics as dependent upon advances in scientific (and social scientific) knowledge. According to this view, as scientific knowledge increases so, too, does our ability to apply its insights to the most pressing issues of society, whether these are hunger, disease, poverty, inequality, or climate change. Social problems are regarded here as largely technical in nature and politics is seen as a form of policy science.
The idea that politics is reducible to policy is at the core of what is sometimes referred to as the administrative state. This view was imperishably expressed in Alexander Pope’s couplet:
For forms of government let fools contest;
That which is best administered is best.
On this account, politics can be reduced to a form of problem-solving not unlike that encountered in the worlds of science, technology, business, and other aspects of a modern capitalistic economy. The claim that we frequently hear from public officials that they are just “following the science” is a perfect illustration of this approach. Politics becomes a matter of implementing the insights of scientists, medical professionals, and other policy experts. We do not necessarily expect our leaders to be experts, but we expect them to follow the advice of experts, certainly in arcane areas such as public health and monetary policy.
The second misunderstanding confuses the statesman with the populist leader. As William Galston has argued, populism and democracy are to some degree inseparable. Every democratic leader claims to have the mandate of the people even if he holds power by only the slimmest majority, and sometimes not even by a majority at all. The populist leader was best characterized by Max Weber with the term “charisma”. In his renowned essay “Politics as a Vocation,” he invoked this term to distinguish the charismatic leader from the party politician. The charismatic leader is someone who claims to stand above special interests and party loyalty and speak directly to the people, and who can serve as their voice. In modern American politics, Woodrow Wilson was the greatest representative of this viewpoint.
The test of the charismatic leader is the claim to authenticity, that he speaks for the people. But how does one measure the authenticity of a leader? How does one distinguish the charismatic leader from the demagogue, the mountebank, and the fraud? How does one distinguish the true prophet from the false prophet? This is one of the oldest questions in the history of human affairs. Weber provides no acid test for charisma. There are no fixed principles, no program for action. There is only the personality of the leader. As Machiavelli said about the charismatic preacher Savonarola, he lost authority only when the people ceased to believe in him. Charisma is very much in the eye of the beholder.
The problem with charismatic politics is its almost complete lack of content. In recent American history, Barack (“Yes We Can”) Obama and Donald (“Make America Great Again”) Trump have been regarded as charismatic leaders, but George H. W. Bush and Joe Biden have not. Yet a leader’s charismatic properties have no bearing on the quality of his or her governance. Charisma is value-free: it can be used for good or evil. It is a means, not an end; except when it becomes an end in the form of personalist dictatorship. It is a kind of political mesmerism. There are no fixed principles of action beyond a certain theatrical gift and a demand for authenticity. In charismatic leadership, the message of the leadership is the ruler himself. Underlying this is a complete absence of, even contempt for, constraints on power. For this reason, charismatic leadership is often a recipe for extremism and violence. Weber regarded the charismatic leader as a remedy for the problems of political gridlock and stalemate, but there is only a short step from the populist leader to the Duce and the Führer. Charisma may not be incompatible with democracy, but it is dangerous to democracy.
To start at the beginning, statesmanship is about the care and oversight of states. It presupposes the bounded political units — call them states or nation-states — that have been the basis of international order ever since the Peace of Westphalia. The leaders of empires — Cyrus, Alexander, Napoleon — no matter how gifted they were in other respects, were not statesmen but conquerors and military despots. The same is true for those who exhibit leadership skills in business, university administration, and criminal enterprises. They may express expertise but not political know-how. Statecraft fundamentally concerns securing the conditions of political legitimacy.
There are three kinds of statesmen I wish to consider: founders, preservers, and reformers.
The greatest statesmen in history are political founders, lawgivers, responsible for introducing “new modes and orders.” These are inevitably revolutionary figures, people like Machiavelli’s “new prince” who promise freedom and redemption from an oppressive political order. Founding statesmen have no authority other than their own words and deeds to justify them. It is their capacity to mobilize and to shape opinion that is the basis of their legitimacy.
Political founders come in all shapes and sizes, from mythic figures such as Moses, Lycurgus, and Romulus to Oliver Cromwell, George Washington, Lenin, and Mao. I would also add less well-known figures such as Atatürk in Turkey, Bismarck in Germany, Ben-Gurion in Israel, Sun Yat-sen in Taiwan, Nkrumah in Ghana, and Lee Kuan Yew in Singapore, as further examples of this creative type. These are all the “fathers of the Constitution” who create the frameworks within which later and lesser statesmen can handle changing situations.
The study of political foundings is exciting, as the never-ending flow of books, movies, and musicals about the American founders illustrates. Political founders typically try to set up the widest possible gap between themselves and the old regimes that they are attempting to overthrow. They wish to represent a rupture. In France in the 1790s, they renamed streets, remade the calendar, abolished historical provinces, reformed the language, and created new religious cults. William Wordsworth famously recalled his own enthusiasm at the outbreak of the French Revolution,
Bliss was it in that dawn to be alive,
But to be young was very heaven!
Books such as Hannah Arendt’s On Revolution and J.G.A. Pocock’s The Machiavellian Moment celebrate revolutionary beginnings as the only times of truly creative political action. Such revolutionary moments seem almost to be breaks in political time, as Stephen Skowronek has argued.
But while it is easy to romanticize revolutionary moments in history, it is just as easy to forget precisely how tenuous and dangerous such moments are and how easily things can turn dark. Consider how quickly the Arab Spring turned into the Arab Winter, as exhilarating hopes for democracy foundered on the shoals of political reality. Even at their best, founding moments introduce a principle of disruption into political life that, once started, cannot easily be stopped. As Aristotle warned, the habit of disobeying law, even a bad law, has the tendency of making people altogether lawless. Revolution is not a bus that you can get off at will.
In 1838, in his speech on “The Perpetuation of Our Political Institutions,” Lincoln warned against the dangers of the “towering genius” in politics. The American founders were men who staked their all on creating free institutions. But their nobility and their sincerity of democratic purpose does not preclude the possibility that later generations will produce Alexanders, Caesars, and Napoleons of their own. Such men will not rest content with perpetuating what has been established; they will seek new fields of glory as a testament to their own ambition and love of fame, and often this will involve the repeal of the accomplishments of those who preceded them. “Towering genius disdains a beaten path,” Lincoln warned. “It thirsts and burns for distinction and, if possible, it will have it, whether at the expense of emancipating slaves or enslaving freemen.” How to channel this overreaching ambition remains a permanent challenge for any theory of statesmanship. What is a durable constitutional republic, after all, if not a beaten path?
If the political founder is the rarest type of statesman, the most familiar type is the preserver, who works within an established set of laws and institutions to maintain the coherence of a tradition. Preservers are typically conservatives such as Walpole, Burke, Adams, and Disraeli, who are responsible for maintaining the social fabric often after periods of war or social upheaval. They see themselves as custodians of continuity. Preservation is the policy of adjusting old traditions to fit new situations. Like the “Parting Hours” described by George Crabbe,
The links that bind those various deeds are seen,
And no mysterious void is left between.
The art of preservation may seem an unambitious role in comparison with founding, but it is the mode of political action fitted for most occasions. A founding that is not followed by preservation is doomed. Few will ever have the chance to construct a political order de novo, but many have the opportunity to shape and secure the polities that they already inhabit. Preservation is distinctly non-charismatic in tone. It must present its innovations as derived from traditions, law, and institutions in order to give its methods an air of legitimacy.
The classic study of statecraft as the restoration of order is Henry Kissinger’s A World Restored, which analyzed the role of two great European diplomats — Metternich and Castlereagh — and their part in the restoration of the balance of powers after the Napoleonic wars. Other notable restorationists were Konrad Adenauer, who helped to restore the moral and political dignity of Germany after a time of war and dictatorship, Angela Merkel, who did so much to restore a sense of German unity after the fall of communism, and Margaret Thatcher, who restored a sense of order and stability in Britain after a period of strikes and moral decay.
The best description of this form of statecraft was provided by the English Whig George Savile, Marquis of Halifax. In 1688, in his classic essay “The Character of the Trimmer,” Halifax defended a policy of what might be called principled inconsistency. The first goal of the statesman, he argued, is to keep the ship of state afloat. The true statesman — or trimmer: he was not using the word pejoratively — must be prepared to shift his position, moving from one side of the boat to the other in order to correct its list. If this offends the demand for adherence to principle, so much the worse for principle. While such a policy might be condemned as opportunism or flip-flopping, Halifax argued that such prudent flexibility was the essence of political wisdom.
This image of the ship of state was repurposed by the English conservative philosopher Michael Oakeshott in his lecture on “Political Education” given at the London School of Economics in 1951. For a people who had only recently emerged victorious from a world war, Oakeshott offered only words of caution, describing himself as a skeptic “who would do better if only he knew how.” Rather than speaking about justice, liberty, or equality — the standard fare of political philosophy — he insisted that politics consists of “the pursuit of intimations,” by which he meant acting in a way that is most likely to retain or to restore the coherence of a tradition. “In political activity,” Oakeshott told his listeners, “men sail a boundless and bottomless sea; there is neither harbor for shelter nor floor for anchorage, neither starting-place nor destination. The enterprise is to keep afloat on an even keel.”
These words capture concisely the image of the statesman as preserver, not the larger-than-life personalities of a Churchill or a de Gaulle who led their countries through times of crisis, but the George Marshalls and George Kennans charged with preserving peace and stability. Preservers are typically not futurist visionaries possessed of a grand strategy and a singular sense of purpose; they are more often diplomats and parliamentarians accustomed to working the back rooms and the corridors of power. In Machiavelli’s metaphor, they tend to be foxes, not lions. Their goal is not to create justice on earth, but to establish legitimacy where this means the maintenance of stability and authority.
Finally, the third type of statesmen are the reformers, who regard statecraft as a means of affecting moral and political change. Reformers are often, but not always, outsiders to politics who agitate for change through popular protest and acts of civil disobedience. This may be because the path of ordinary political participation is closed to them, as was the case with the abolitionists and suffragettes of the nineteenth and early twentieth-centuries, or because it may seem to them that agitation and protest are the only ways of effecting meaningful change, as Black Lives Matter advocates today seem to believe. In either case, this outsider status often gives reformers a richer sense of possibilities that may not occur to those who have spent their lives operating inside the corridors of power.
The classic expression of this kind of protest politics was Thoreau’s On Civil Disobedience, which argued that any law that violated the sacred right of conscience has no claim on our loyalty. For Thoreau, this line was crossed with the American war with Mexico and the annexation of Texas, which he considered little more than a land grab. His appeal to conscience has had a powerful hold on our moral imagination, and has been an inspiration to generations of peoples worldwide, but there is a problem. This particular brand of conscience politics is essentially empty. Conscience politics has inspired everything from the abolitionist movement, to protest against the Vietnam war, to the refusal of the Kentucky county clerk who refused to issue licenses for gay marriages. Are all expressions of conscience equally valuable? Is radicalism a mark of truth? How do we know when appeals to conscience are sincere expressions of a person’s deeply held moral and religious beliefs and when they are just a mask for prejudice and self-delusion? What happens when it is hard to draw the line between beliefs and prejudices? One person’s voice of conscience may be another person’s hypocrisy.
The task of the reformer may be the most difficult of all, because she must know how to split the difference between revolution and restoration. The question posed by the reformer is not “all or nothing” but “how much or how little.” Exemplary reformers have been men such as Mikhail Gorbachev in the former Soviet Union trying to navigate the transition from communism to democracy, Deng Xiaoping opening China after the disasters of Mao’s Cultural Revolution, and Nelson Mandela and F. W. de Klerk in South Africa working to bring an end to apartheid. The interesting feature of leaders such as Gorbachev, Deng, and de Klerk is that they were once insiders who ended up advocating for change and leading their countries, at least temporarily in the case of Russia and China, into a more hopeful democratic future.
The best kinds of political reformers are those who manage to hold together both loyalty to founding principles or ancient traditions with agitation and critique. They are examples of what Michael Walzer has called “connected critics,” because their standards for reform do not come from some private voice of conscience or some putatively universal principle of natural right, but from an appeal to the very standards of justice espoused by the systems they were criticizing. Examples of connected critics are Camus but not Sartre, Orwell but not Lenin, Gandhi but not Fanon, Martin Luther King but not Malcolm X. This is an idea that would benefit many social justice advocates today.
Statesmanship, as I noted earlier, rests on knowledge, but what kind of knowledge? Is statecraft a science, like mechanics or engineering, that can be codified in rules and then learned, memorized, and put into practice, as Machiavelli seems to have believed? Or is it more like an art that can only be mastered through practice and experience, and that requires the capacities of insight, imagination, and intuition, like having an ear for music or a knack for languages? I want to consider statecraft as more of an art than a science, based on the mastery of three essential skills.
The first is the statesman’s role as teacher. The statesman is not simply a problem-solver in possession of technical expertise or a tribune of the people’s will, but an educator who is able to shape a vision of the political regime. By a regime I mean not just a form of government but an entire way of life, what gives a people’s collective life a sense of wholeness and meaning. Each regime type creates in turn a different range of human possibilities. The differences between regime types form the basis of our ability to distinguish between the various politically relevant ways of life.
As educator-in-chief, the statesman must always be aware that opinion is the medium of society. As Hume ringingly observed, “It is on opinion only that government is founded.” By opinion he did not mean the kind of information elicited through polling data or focus groups, but a structured set of sentiments, habits, and beliefs that shapes a people’s character and way of life. Without a settled body of opinion, no government, not even the most authoritarian, could last a single day. No one understood the importance of opinion better than Lincoln. “With public sentiment,” he wrote, “nothing can fail; without it nothing can succeed.” He then went on to add: “Consequently, he who molds public sentiment goes deeper than he who enacts statutes or pronounces decisions.”
The statesman’s art consists, then, in the ability to educate the public mind by helping to form its beliefs and opinions. In the American case, these opinions are rooted in our founding texts — the Declaration of Independence and the Constitution — as well as the immense superstructure of laws, interpretations, and rulings that have been built upon them. These texts have in turn shaped our fundamental experiences of right and wrong, of who should rule and who should be ruled, of who governs and why. These structures of opinion are what make future change possible.
A second feature of statecraft is the capacity for communication. In the phrase frequently applied to Ronald Reagan, the statesman must be a “great communicator.” This is what used to be known as the art of rhetoric. The importance of rhetoric is especially true for democracies, where statecraft consists in the ability to communicate with fellow citizens whose views are decisive in politics and to some extent in governance. It is not enough for a statesman to craft a vision for society; she must be able to harness it in language and persuade others of its power and beauty. As Edward R. Murrow said of Churchill, “He mobilized the English language and sent it into battle.” This is what the greatest leaders have been able to do, namely, to immortalize in words and images what a people stand for, what they believe in, and what they look up to.
More than any other regime, democracy gives to speech a pride of place in determining the legitimacy of policy. Unlike autocracies that are governed from above, democracies require a continual flow of communication not only from the top down but from the bottom up. Democratic politics has for this reason rightly been called “logo-centric” or talk-centered, because most of what goes on takes place through the medium of language, whether in legislative assemblies, jury rooms, courts of law, newspapers, and increasingly the internet. Mill said that democracy is government by discussion.
To be sure, the importance of speech can be vastly overstated. The ideal of a rhetorical democracy — parrhêsia in the Greek sense of “to speak boldly” — is at the core of what Jurgen Habermas has called “an ideal speech community.” Habermas apparently considers politics as a vast public seminar that should be adjudicated by the neutral standards of “public reason,” in which only the force of better argument decides policy outcomes. There are two significant problems with this view. First, it holds public deliberation to a high standard of language and thought that is rarely realized in existing democracies and their media. Consider only what passes for public deliberation in contemporary America: our debased discourse does not exactly rise to the standard of parrhêsia. Second, this view too quickly ignores the more coercive and disciplinary aspects of politics. Democracy is about public deliberation, but it is also about authority, command, and decision. A country, or a legislature, or a court, is not a seminar. The reduction of politics to speech is at the root of what the ancients called sophistry.
The dependence of democracy on speech or rhetoric can be both a strength and a weakness. This focus on speech may be a source of frustration to those who demand swift, decisive, and concerted action. But deliberation is also necessary for providing a sense of legitimacy for public decisions. As Pericles said of Athenian democracy in his Funeral Oration, “instead of looking on discussion as a stumbling-block in the way of action, we think it an indispensable preliminary to any wise action at all.”
The third characteristic of the statesman is political judgment. Aristotle named this capacity phronesis to indicate the sphere of prudence or practical reason that he regarded as the political virtue par excellence. Judgment is the form of reasoning appropriate to citizens situated in juries, legislative assemblies, and deliberative bodies of all sorts. It is knowledge of the fitting or the appropriate thing to do under the circumstances. He associates it with the man — and for Aristotle it is always a man — who possesses the skills necessary to manage well the affairs of the political community.
The knowledge of the statesman differs from both the theoretical knowledge of the philosopher and the technical expertise of the specialist. While philosophical knowledge aims at the true or the universal — the ideal regime, the idea of justice — and technical knowledge with the mastery of rules, political judgment is necessarily local and improvisational. The relation of judgment to circumstance is essential for successful statecraft. “Circumstances,” Burke wrote, “give in reality to every political principle its distinguishing color and discriminating effect.” In politics, circumstance is everything.
No one has thought more deeply about the role of political judgment than Isaiah Berlin. Berlin was especially interested in what distinguishes successful statesmen from philosophical genius and why, by implication, the latter often appear politically foolish. Albert Einstein may have been a brilliant theoretical physicist but his reflections on world peace seem almost touchingly naïve. Bertrand Russell was a brilliant logician but his writings on marriage, religion, and war display an alarming indifference to the complexities of political reality. What Berlin deemed essential for the statesman was what he called “a sense of reality.” This meant not merely possessing more facts or information about society but having an almost intuitive grasp of its texture, both its constraints and potentials.
Judgment in politics is the ability to see possibilities that had not previously been seen or imagined. It not a matter of knowing more but of seeing further than others. It is the capacity that we associate not with the scientist who uncovers laws and uniformities, but with the creative artist, the poet, the novelist, and the playwright who seeks patterns and connections between colors, shapes, characters, and words. Judgment is almost an aesthetic perception, something like the ability to see pattern and coherence in a painting or work of art where others see only chaos and confusion. It is not just a quality of the mind but involves the entire personality, the unique temperament, of the individual.
Good judgment consists not least in the ability to improvise on the spot. Like a musician creating unfamiliar riffs on the familiar chords of a jazz standard, having judgment consists in the skill of working within an established idiom but expanding upon and developing the possibilities that are latent within it. It is a kind of analytical imagination. It is the same skill possessed by the master chef who is able to create new combinations of tastes from a familiar palette of choices. Judgment is not the mechanical application of a rule or a fixed standard to changing circumstances — something like the demand for strict consistency — but the ability creatively to adapt rules to new and unforeseen situations and master them.
Good judgment in politics is the quality necessary for successful statecraft. This is not to say that good judgment necessarily guarantees success. It is often difficult to say whether success is the outcome of judgment and foresight or just good luck. Sometimes even the best plan may need a little luck. The wisest historians have often considered luck — accident, happenstance, contingency — as a causal power in history. Machiavelli could speak of fortuna as a goddess that can dispense as well as withhold her favors. He claimed that even the most far-seeing statesmen could only control events half the time, leaving the other half to the vicissitudes of fate. In Guys and Dolls, Sky Masterson pleaded that “luck be a lady tonight.” It is a sign of wisdom to recognize the limits of our capacities. Near the end of the Civil War, Lincoln confessed to Albert Hodges that “I claim not to have not controlled events, but confess plainly that events have controlled me.”
Great statesmen are judged not only by how they respond to success but how well they handle failure. Do they respond with bitterness and resentment or with a sense of magnanimity in the face of defeat? Contrast, if you will, Richard Nixon’s petulant concession speech after his failed gubernatorial run in 1962 to Al Gore’s magnanimous concession speech after the Supreme Court stopped the Florida recount in 2000. The statesman must know how to turn failure into success. FDR’s defeat for the Vice Presidency in 1920 and then his struggle with polio was a better training for leadership than his earlier life of privilege. Occasional setbacks are a valuable test of character. Churchill is reported to have said that the mark of success is the ability to go from failure to failure with no intervening loss of enthusiasm. This is witty, but it cannot be true. A person who has met with repeated failure, however enthusiastic, could not possibly be said to have good judgment even if such a person meets with occasional success. As the saying goes, a stopped clock is still right twice a day.
Judgment is, finally, the ability to respond to unforeseen situations. Preparing for the unpredictable is always the better part of judgment. To be sure, there is no one model for the exercise of judgment. It is all a matter of context and circumstance, but if there is one feature that distinguishes the successful statesman from the day-to-day politician, it is the ability to articulate the permanent and aggregate interests of the community. This requires the ability to plan not just for today or tomorrow but for the future. As Tocqueville — who has acted indirectly as the educator of many statesmen and legislators — said in the introduction to Democracy in America, his book was written not to satisfy any faction or class but to see deeper and further than the different parties. “While they are occupied with the next day,” he wrote, “I wanted to ponder the future.”
I have said, ruefully, that the concept of statesmanship seems old-fashioned, out of touch with the times. Perhaps it is. We vacillate between the view that all politics is essentially a power struggle while at the same time holding our leaders to impossibly high standards of moral perfection. We either expect too little from our public figures or too much.
The ethics of statecraft can be summarized, I believe, in a single word: responsibility. The concept of responsibility grows out of moral and legal language. A person can be called responsible for something when she acts on her own initiative or when her actions can be regarded as the cause of some state of affairs. To be held responsible is connected with terms like causation, guilt, and accountability. Responsibility may seem to lack the grandeur of such ancient moral terms as “duty,” “conscience” and “virtue,” but it is also more suited to the politics of a democratic age.
This brings us back to Weber. He explored the theme of political responsibility in great depth, and regarded it as the defining characteristic of the statesman. Political life, Weber argued, is torn between two competing moralities. The first he called an ethic of conviction, which takes different guises but is typical of the moral idealist in politics. The classic form of this ethic was the Sermon on the Mount, with its injunctions to “turn the other cheek” and “resist not evil with force,” but it finds similar expression in the Kantian demand that politics must give way to morality or in the Rawlsian claim that justice is “the first virtue of social institutions.” In each case, politics is regarded as morality by other means. “The believer in an ethic of ultimate ends,” Weber wrote, “feels ‘responsible’ only for seeing to it that the flame of pure intentions is not squelched.”
Weber tended to associate conviction ethics with the Christian pacifism and revolutionary socialism of the World War I generation, but it is in fact a category of belief and sentiment that has manifested itself throughout history in various times and places. It is the attitude of the moralist who identifies a particular evil — slavery, war, exploitation, injustice — and demands its eradication, not tomorrow, not next year, but today, here and now, immediately, regardless of the cost. A sense of indignation, no matter how well-meaning, then gives rise to the demand for moral action, and soon after issues in fanaticism and violence. “Those, for example, who have just preached ‘love against violence’ now call for the use of force for the last violent deed,” the conviction ethicist proclaims, in Weber’s words, “which would then lead to a state of affairs in which all violence is annihilated.” Needless to say, the final act, like the end of history, is a condition that never arrives.
A pure example of conviction ethics was the radical abolitionist William Lloyd Garrison, who advocated no compromise with the Constitution in his opposition to slavery. On an issue like slavery, certainly, it is important to keep alive a pure moral vision, but such visions can only be held by saints, reformers, and “intellectuals.” It took Frederick Douglass and Abraham Lincoln to understand that if slavery were to be abolished, it would be not be by shredding the Constitution but by embracing it. Or consider two more recent cases: the journalists Daniel Ellsberg and Julian Assange both published official state documents during wartime without considering how such materials would inevitably be distorted and misused. Men such as Garrison, Ellsberg, and Assange are what Raymond Aron once called “technicians of subversion,” who prefer to see their country dismembered or defeated rather than compromise the purity of their ideals.
At the other end of the spectrum, in Weber’s analysis, is the ethic of responsibility. This phrase has been often understood to mean a form of consequentialism, a concern with what will work and what will not, or what is expedient over what is morally right. This description is not false but it fails to grasp what philosophers often call “agential” responsibility. This ethic is concerned not with the purity of intentions but with the consequences of action, especially the unintended consequences, that may follow from them. This is not to say that it is simply Machiavellianism by another name. Rather the art of the statesman is concerned with the uses of power and its moral and psychological effects on those who wield this power. What, exactly, are these effects?
First, the ethic of responsibility requires taking ownership for decisions that will invariably inflict harm upon others. Politics, as Weber warned, is always a bargain with infernal powers. There will always be situations where even the nobility of the end will be compromised by the sordidness of the means necessary to achieve it. Lincoln’s decision to prosecute a war to end slavery ended up costing over six hundred thousand lives. He never doubted the rightness of the cause, but the length and the destructiveness of the war took an immense psychological toll on him. Sometimes anguish accompanies virtue. Consider Truman’s decision to drop the atomic bomb on Hiroshima effectively ending World War II. The decision was, in retrospect, the correct one, but it cannot help leaving a sense of disgust in its wake. Truman never second-guessed his decision, believing that in the end he saved lives, especially American lives, although the philosopher G. E. M. Anscombe subsequently attacked him as a mass murderer. Whatever Truman’s faults — he was not particularly given to moral self-reflection — his decision ended a terrible war and brought peace more swiftly than any other option.
Anscombe’s protest over the decision of the University of Oxford to confer an honorary degree on Truman is a clear example of the kind of conviction ethics that Weber deplored. No complex decision will be morally blameless, and those who seek a clean conscience and a pure heart should pursue their satisfactions in private life. “The safety of the morally innocent and their freedom to lead their own lives depend upon the ruler’s clear-headedness in the use of power,” the philosopher Stuart Hampshire wrote, perhaps with Anscombe in mind. I would only add that whereas we should not necessarily expect our leaders to be morally paradigmatic human beings, we should at least expect them to be attentive to the needs and the interests of their fellow citizens and call them to account when they fail in this task.
Second, the ethic of responsibility accepts that moral conflict will always be the norm in politics. “We are placed into various life-spheres each of which is governed by different laws,” Weber wrote. Unlike the idealist convinced that all issues must be subordinated to a single cause, the responsible statesman is aware that he operates in a world of conflicting values that are qualitatively heterogenous. There is no summum bonum that is equally good for all individuals, there is only a range of values the importance of which will be determined by circumstances, education, and personality. The thesis of “value pluralism,” which is now most associated with Isaiah Berlin, has led some critics, notably Leo Strauss, to label Weber (and Berlin) a moral relativist who accords equal legitimacy to all values, however evil, base, or insane. This is an unfortunate misreading that robs moral life of its difficulty and its pathos. The fact that our deepest commitments stand in inalterable conflict was not meant as an exhortation to extremism or to nihilism, but as a counsel of sympathy and moderation. To Barry Goldwater’s call that “extremism in defense of liberty is no vice,” Weber would have replied that not all things are permitted even in the pursuit of a just cause.
Statecraft is ultimately a matter of choice, not so much between good and evil, but between rival and competing goods that cannot be tidily ranked by some hierarchy of ends or derived from some first principle. There is no one value, whether it be peace, equality, freedom, justice, or rights, that always trumps all others. Rather than seeking the best, responsible statecraft seeks to avoid the worst. If we cannot expect our leaders to follow the Hippocratic Oath to “do no harm,” we should at least expect them to do as little harm as possible. In politics, as in love, a sound maxim is “you can’t always get what you want,” which means that statecraft will always involve the art of balancing conflicting ends and purposes. Deal-making and compromises are the inevitable costs of a morally diverse and politically conflicted society. And the problem of “dirty hands” remains an ever-present possibility.
Third, an ethic of responsibility suggests responsibility to oneself. “Whoever wants to engage in politics at all,” Weber warned, “is responsible for what may become of himself.” Politics can do strange things to people. It can turn ordinary men and women into monsters. What Reinhold Niebuhr once said of religion is equally true of politics: it makes good people better and bad people worse. Only those who can approach politics with a sense of self-restraint — a feat akin to Ulysses having himself bound to the mast — are capable of responsible leadership. Responsibility requires a “sense of proportion,” the control of the passions, and a degree of detachment from friends and associates. When presidential candidate Bill Clinton told a supporter, “I feel your pain,” he was deliberately attempting to create a sense of intimacy between them, breaking down barriers of formality and restraint, yet it is a characteristic of the greatest leaders to put a sense of distance between themselves and their followers. Lincoln remained aloof even from those who knew him best. In The Edge of the Sword, de Gaulle wrote movingly of the loneliness of command.
Finally, statecraft is an autonomous sphere of political activity related to but under-determined by external moral, legal, scientific, or economic principles. It must be distinguished from the narrowness of the administrator, the dogmatism of the moralist, the pedantry of the lawyer, and the zealotry of the partisan. It is a realm of its own. Statesmanship is not something for which rules — natural law, the Categorical Imperative, the greatest happiness for the greatest number, even raison d’etat — can be given precisely because statecraft requires a freedom or latitude to act as the situation requires. Strategy without flexibility is futile. Statecraft consists in the concrete decisions made under the force of circumstance. When the moment of truth arrives, when it becomes necessary to say, “Here I stand, I can do no other,” then the statesman has found his calling and this calling will not be provided by Morality, Science, or History, or by any power other than one’s own individual judgment, which is formed by education and experience. There is no set of principles that can define in advance what is to be done in all situations, because no set of principles can control for the mutability of life.
Man’s yesterday may ne’er be like his morrow;
Naught may endure but Mutability.
