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Key to the emerging moral consensus in 2002 was the rapid, intuitive nature of the value judgements informing policy:
In the process, the character of these judgments diverges in another way from the sometimes nearly mathematical calculations of classic rationalism. They emerge through a sort of intuitive imagination, a creative leap to make sense out of events rather than a weighing of anticipated gains and likely risks.… Henry Kissinger has called the practice of imaginative meaning-creation “conjecture.” “The choice between… policies did not reside in the ‘facts,’ but in their interpretation,” he has written. Foreign policy decision-making demands the “ability to project beyond the known.” And in this area, “there’s really very little to guide the policy-maker except what convictions he brings to it.”
This is true for one dominant reason: the overwhelming complexity and uncertainty surrounding major national security choices. There are simply too many variables at work, too much nonlinearity, to judge outcomes with any degree of precision. Decision-makers lack the sort of comprehensive information assumed by rational decision-making theories and operate instead in an environment of “deep uncertainty.” And so decision-makers hunt for simplified decision rules—key values or imperatives that can slice through the complexity and offer a clear basis for choice.
Confronting such complex situations, decision-makers cannot read objective truth out of a situation—they must construct meaning from their experience. And the result is that the interaction of senior decision-makers with complex issues is a fundamentally interpretive and imaginative enterprise. Facts in such a world are like images in an abstract painting, or the cloud of shapes on a Rorschach blot—ambiguous and open to multiple understandings. Observers are creating meaning, not simply reading or determining it…
This mechanism of judgment looks and feels to the participants like rationalism. We feel as if we are considering objectives, as if we are goal-directed, as if we weigh various options based on how well they contribute to clearly identified interests we are trying to maximize. In fact, though, what we’re doing is internalizing a mass of information and allowing our unconscious to do mostly involuntary work in bubbling forth judgments. The philosopher Alfred Schütz referred to this approach as “an anticipation of future conduct by way of phantasying.” Judgment is a fundamentally imaginative enterprise. It emerges as a vision, an illusion, an invented narrative; a conviction, a belief—anything but a formally reasoned calculation.
Such an approach to arriving at judgments allows us to see the Iraq decision for what it was: a creeping (or sudden and powerful) feeling that a given course of action was the right one, based on simple rules or convictions that were more moralistic or normative than analytical. And the fact that the decision had this character allows us to better understand many seemingly confusing aspects of it: the moralistic language that surrounded the policy process, the resistance to dissent, and the refusal to take risks seriously. Judgments undertaken in such a frame of mind have more of the cast of faith than of consequentialist decision-making, more in common with revelation than calculation. When people are applying sacred values, they come to have an almost thoughtless conviction in what they are doing. It is right—it feels right, from the depths of their well-honed intuitive judgment—and practical arguments have little place in such a thought process.
George Ball, the famous dissenter in the US escalation decisions for Vietnam, wrote of the fact that analytical arguments simply bounced off people who believed they “must” do something. “To my dismay,” he wrote of the reactions to his prescient arguments that US strategy in Vietnam was bound to fail, “I found no sympathy for these views. Both McNamara and Gilpatric seemed preoccupied with the single question, How can the United States stop South Vietnam from a Viet Cong takeover? How did I propose to avoid it? The ‘falling domino’ theory was a brooding omnipresence.” Official statements of US commitment to South Vietnam, Ball continued, “had the sound and solemnity of a religious oath: ‘We now take the decision to commit ourselves to the objective of preventing the fall of South Vietnam to Communism.” The solemnity of a religious oath—exactly the right way, I think, to understand the convictions that burst to the fore after 9/11.3