ABSTRACT
It is difficult for a large alliance of democratic countries to alter its objectives, its policy or its modus operandi, for the simple reason that it is much harder to initiate and pursue a constructive debate between sovereign nations than within them. The nature of the external challenge is seen from many different perspectives: new ideas are communicated only slowly, are easily misunderstood, and even when accepted must be translated in terms of different national traditions and preoccupations. It is like changing the course of a sailing fleet, beating up against wind and tide in the days before wireless – in this case a fleet in which the leaders of the vanguard can no longer be sure that
the adventurous or reluctant captains sailing in company with them will necessarily respond in time to the movements of their helms if they suddenly adopt a new tack to avoid the rocks they see ahead, more especially if they tack in different directions.
