OBSERVARE
Universidade Autónoma de Lisboa
ISSN: 1647-7251
Vol. 6, n.º 1 (May-October 2015), pp. 20-29
THE TWO WORLD WARS AS EVIDENCE OF THE ABSENCE OF
INTERNATIONAL ANARCHY
António Horta Fernandes
ahf@fcsh.unl.pt
Lecturer in the Department of Political Studies at Faculdade de Ciências Sociais e Humanas
(FCSH, Portugal), researcher at Centro de História d'Aquém e d'Além-Mar (CHAM/FCSH),
Universidade Nova de Lisboa. Strategist at Escola Estratégica Portuguesa
Abstract
The First World War and the decades of turmoil thereafter, namely the 1930s, the Second
World War and, later, the Cold War, are historical moments relevant to prove that one of the
most famous ideas of International Relations is, in fact, impossible. The idea of an
ontologically, yet not phenomenologically, permanent state of war is incompatible with a
world filled with sovereignties. These sovereignties have never lost their political and
strategic control of wars, not even in the main conflicts of the 20thc. All these conflicts were
strategically mediated and never led to absolute war.
Keywords:
Anarchy; War, Strategy; Sovereignty
How to cite this article
Fernandes, António Horta (2015). "The Two World Wars as Evidence of the Absence of
International Anarchy". JANUS.NET e-journal of International Relations, Vol. 6, N.º 1,
May-October 2015. Consulted [online] on date of last visit,
observare.ual.pt/janus.net/en_vol6_n1_art3
Article received on July, 18 2014 and accepted for publication on April, 16 2015
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ISSN: 1647-7251
Vol. 6, n.º 1 (May-October 2015), pp. 20-29
The Two World Wars as Evidence of the Absence of International Anarchy
António Horta Fernandes
21
THE TWO WORLD WARS AS EVIDENCE OF THE ABSENCE OF
INTERNATIONAL ANARCHY
António Horta Fernandes
The First World War and the decades of turmoil thereafter, namely the 1930s, the
Second World War and, later, the Cold War, are historical moments relevant to prove
that one of the most famous ideas of International Relations is, in fact, impossible. We
are referring to the idea of international anarchy.
Obviously, we must start by defining the issue at hand. In this short paper, we will
clearly not focus on all the nuances of the concept of war or that of international
anarchy, nor will we analyze in detail all the reasons for our definitions of the concepts
we present. The referred definitions will be important for the reader to know what we
mean when we discuss war and international anarchy.
1. War and Sovereignty: the sovereign standardization of war and
absolute war.
Thus, we can start by defining the concept of war as "violence (fight, scale duel) among
political groups (or groups with politico-sacral objectives), in which resorting to armed
conflict is a potential possibility at least, so as to attain a goal in the limits (preferably
external) of politics (or mainly political goals but not only, from the modern era
onwards) aimed at the opponent's sources of power and developing in a continuous
game of possibilities and chances".1
The parenthesis are crucial here for the de jure internalization of war in political action,
in politics itself, is established only in the Modern Era and, step by step, by an almighty
force that will have the means to do it: sovereignty. It is the sovereign, that absolute,
endless and indivisible power, defined by exception, by the ability to proclaim a state of
exception, i.e., to make war an ordinary event.
War becoming an ordinary implies desacralizing it; this secularization, carried out by
the sovereign, changes the features of war, which was, until then, mythologized and
enshrined in a dystopian manner, out of reach for the common human being. The
sovereign links the worlds of peace and war which were separate until the modern era,
blend order and disorder in a new state that allows the possibility, the ontological and
1 For those familiar with strategic means, the definition is inspired in another by Abel Cabral Couto. The
definition by the Portuguese strategist was originally published by him in (Couto, 1989: 148), who states
that: "organized violence among political groups, in which resorting to armed conflict is at least a
potential possibility so as to attain a political end, aimed at the opponent's sources of power and
developing in a continuous game of possibilities and chances".
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phenomenological possibility of permanent war because from there onwards war is
viewed as an ordinary political action. A state that we may define as a state of peace
under sovereign conditions.
Obviously, the sovereign, or better, the several sovereigns in the international scenario
must have some control over it because you can only rule what you know. The state of
exception is not the chaos before or after order but a state in force at a time when legal
order has been suspended, when law cannot be formulated and we can hardly tell if we
are complying or breaking the law; a state in which you are completely dependent on
the discretion of the sovereign, or on the sovereign governmental mechanisms, but not
on their arbitrariness, as this would tend towards anarchy, towards disorder.2
Yet, if war is partly a state of exception, when you can kill and that is not considered a
homicide, it is equally an exception beyond the state of exception, so to speak. We
cannot forget the value of marginal utility, which establishes "price", the ultimate sense
or nonsense of war as a phenomenon with internal and autonomous consistency, i.e.,
with its own grammar, what Clausewitz named absolute war. This is the irredeemable
core of war, the absolute chaos, the cylinder of pure violence, the inner core of armed
conflict, which, though not encompassing all manifestations of war, is present and fuels
each war that breaks out, always fostering extremes because extremes tend to go
extreme. This implies that a war fueled by its own sources leads to a politically
uncontrolled state, even for sovereign power. In other words: as war has its own
grammar, its own internal consistency, or better, its own power of erosion , of huge
asymmetries, of disaggregation, it has a core that does not surrender, not even to the
power of the sovereign. Unfortunately, that core provides it life, shakes the foundations
of normalcy, even the terrible "normalcy" that is the suspension of the sovereign logic.
However controlled, war encompasses chaos, continuously deletes order and even
challenges sovereign discretion. To let war lose is to risk doom; and the sovereign
logic, more than any other political tool, has provided the conditions for war to become
extreme, as Clausewitz stated.
3
2. International Anarchy as State of War: how permanent war is
impossible in a world filled with sovereignties
We must now consider the concept of international anarchy by analyzing the image that
realistic thought provided to international anarchy. In our opinion, the most important
relevant realistic thinker on this theme is Kenneth Waltz, as he approaches the issue
frankly. Nevertheless, all other realistic internationalists also hint at what Waltz clearly
states:
among men as among states, anarchy, or the absence of
government, is associated with occurrence of violence (Waltz,
1979: 102).
2 Despite the features of the state of exception as we describe it, we have been influenced by Agamben
(Agamben, 2006: 105-106).
3 (Clausewitz, 1986: book VIII, cap.IIIB, 593 and book VIII, cap.VIB, 606), respectively, for realizing that
under Napoleon war is close to extreme, of its absolute form and of powerful politics (and sovereign
power is like that); Clausewitz is aware of this, that it powerful politics may help in freeing absolute war
from the restrictions that usually control it.
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This means that the concept of anarchy (meaning disorder) presupposes an inextricable
link with the concept of war. Obviously, there is no internationalist related to the
concept of international anarchy who considers international anarchy a permanent and
generalized factual state of war or disorder. War is not, in today's international life, a
factual necessity. The concept of international anarchy means rather that, ultimately,
each international actor cannot depend but on its imposing capacities, on its own
power. This means that, even when there is no order or disorder (phenomenology), war
tends to be about the actors, more than a possibility, the ultimate reason (ontology) for
their behaviour. Thus, we can state that anarchy is a state of disorder linked to armed
violence, i.e., the sense or (non)sense of violence is at the basis of international
politics, is its background, its ontological blood, its inner soul. To sum up, the state of
war is ontologically present and sometimes also phenomenologically in existence.
The distinction is clear and it was clear to Hobbes when he states in Leviathan that
"war is not just the battle, it is not just fighting but also includes
that time in which the will to fight is well known.[…] the nature of
war does not consist of actual fighting but in the known will to do
so, during all the time when there is not guarantee of the opposite.
The remaining time is one of peace. So, all that is valid for a time
of war, when all humans are enemies, the same is valid for the
time when humans live with no other security than that provided
by their own strength and invention. In such a situation, there is
no room for industry, for its fruit is uncertain; thus, the land is not
cultivated, there is no sea traveling or use of goods[…]”,
and so one, says Hobbes. Interestingly enough, I argued shortly after that, though
sovereigns live in permanent rivalry, with arms ready, like gladiators watching one
another, which, for him, is an attitude of war , he nevertheless concludes that
"since they protect their subjects' industry that way, it does not
lead to the poverty that is typical of free yet isolated humans"
(Hobbes, 2002: cap. XIII, 111-112).
Hobbes is drawing our attention to the fact that the sovereigns' attitude evidences a
structural predisposition for war, but not more than that (which is a lot!), because if it
was more than that, there would be no industry to protect, there would only be the
poverty he himself described. This accurate argumentation by Hobbes would suffice to
refute any attempt to root the idea of international anarchy in the English philosopher's
writings. But that is another matter.4
4 For refutation of the idea of international anarchy being Hobbes', as well as criticism to the foundations
regarding the concept of international anarchy, see Fernandes (2012).
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However, if international anarchy is an endemic state of armed violence, we have a real
incompatibility issue. A structural state of war related to both previous understanding
and to ontological understanding of its political actors is not compatible with the ruling
character of sovereignty. The issue in not the changing from hostis to inimicus, because
the sovereign easily makes that transition. The qualitative degree opponents face one
another with is not decisive because sovereigns, due to their need to rule, even if
disputing only a few items, may well demonise their opponent, even if that is the riskier
option because it allows (does it does not impose) extremes and the management of
war. The issue resides in the dimension of disorder, or in its nuclear "standardization",
precisely in the management of war as background, as ontological principle that limits
behaviour and as explanatory epistemological principle because otherwise there would
be no sovereign, considering that, by definition, what escapes order escapes
sovereignty of absolute power (of designing and breaking the law). The state of war as
a rule would eliminate sovereign objectives. If the operational core of international
relations were war, sovereignty would never have existed, and as sovereignty does
exist and sovereign logic still predominant, state of war cannot be a decisive factor.
Hobbes' Lord Protector would protect nothing, leviathan would not be the one, which
seems a contradiction, since sovereigns have that standardized predisposition to war
considering the huge potential for conflict generated by the closeness of powers which
are by nature exclusive. Besides, not only would be the logical consistency of
sovereignty radically affected by the entropic abyss of war as a motor of international
politics, but rather the first and foremost reality of sorority, inescapable even for
sovereigns, the remaining equal, as we have tried to prove before (Fernandes, 2012:
93-97). Where there are sovereigns, anarchy just does not make sense, war is not the
first word, only its possibility is. Yet, since we are talking about its ontological and not
simply its phenomenological character, the difference between possibility and reality is
abysmal.
In other words, I am considering the previously mentioned secularization of war. If war
was the permanent ontological basis, not only would nobody endure that state for long,
but especially, war would become a myth again, it would regain its sacred character of
demonic power; thus, it would be out of the sovereign's reach, who is, at best, a mortal
god, to paraphrase Hobbes. Our reference is to sovereignty itself and not only to the
condition of the human that embodies it. Worse, since sovereignty had already
destroyed the ontological dichotomy between peace and war, this sacred,
uncontrollable presence of war would now become closer to everyday living and, as a
consequence, less manageable and controllable, with the inclusion of the figure of
power humans had created, sovereignty, as absolute and allowed to humankind.
In the modern era, war became a permanent possibility, continuously hanging over the
head of humanity; this allowed for the opening of Pandora's Box. But not as a
permanent force of being, passive or active, because the being in potential is already
being. If the war was to be that permanent force of being, absolute war would have to
be revalued. This would mean that war would set the rules, would change politics and
make it an extension of war by other means, something which, as we know, has never
occurred. Though it seems nothing can prevent it from happening some day.5
5 In truth, we doubt this will ever happen because of some metaphysically-based anthropological
preventions. However, this is not the time or place to develop these considerations.
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Nevertheless, if there is rooted sovereignty, then a state of international anarchy and
that sovereignty become an oxymoron. The opposite would be expected: that sovereign
dynamics would be a catalyst for anarchy. This is the greatest error in judgment but
this is not the place to analyze the origins of that error.
3. Politics and Strategy in the First and Second World Wars: the
absence of anarchy
After all, how can the two world wars prove our argument when apparently we should
have discarded them?
The direct answer cannot be easily given. War was made by sovereigns and they still
exist. Therefore, there is no place for anarchy - in this case the specific features
sovereignty has acquired since the onset of the Modern Era up to today are not
important.6
The first world conflict sees the rising of an intermediary, which we have not yet
mentioned, in the social division of political work: strategy.
However, we could retort that, during the war, sovereigns may have lost
control and later regained it. That would be strange because of the violence of the two
wars and the historical changes they brought about. In any case, this will not be our
argument; we will rather introduce an additional element.
Before going any further, and as I did regarding the concepts of war and international
anarchy, we will not develop the reasons underlying our definition of strategy. We
opted for a soft definition, i.e., a consensual and canonical definition of the term, put
forth by the so-called classics in the theory of strategy of the past 50 years in the
Western world, where the field has developed free from the shortcomings of Anglo-
Saxon theories. Therefore, we can define strategy as collective practical wisdom
developed by political actors so as to be prepared and lead hostile confrontation against
one another.
Resuming, when the First World War breaks out, though the strategy remains
essentially military (and will continue to be so until the end of WWII),7
6 If we consider Christopher Clark's work on the origins of the First World War, we realize that, though in
the years prior to the war breaking out, there were more and more voices willing to accept possible war,
to consider it a certainty in view of international relations, viewing it as therapeutic (279-281). However,
this dis not mean that they saw the international scenario as essentially an arena. It was rather an area of
possible confrontation, a consequence of the clash between the interests of different sovereignties and the
struggle for power these differences implied (Clark, 2013: 237-239). This obviously points towards the
sovereign logic, ultimately, for the frenzy of the sovereign kinetics (hard to control even by those
sovereigns that give the first step, as was made evident in the outcome of WWI) and not towards the
sovereign gap and its specific order.
and though the
foundations for other strategies are already visible, then gathered under the
7 In truth, to use a metaphor dear to the new founder of the Portuguese strategic school, Abel Cabral
Couto, the last of the great classics of strategy still living and producing, WWI sets the principles for the
change from a strategy limited to military action, strategy as a solo recital, in the words of Abel Cabral
Couto, to strategy as a specific instrument which remains relevant but is included in a set of support
dimensions which will be the start of future economic, diplomatic (perhaps this will be the first),
ideological, cultural, communicational strategies, among others. Strategy viewed as a concert for a given
instrument. The version we have arrived to is, as you know, that of integral strategy, whose aim is that
different sets of instruments, several general strategies, foster a collective harmonious movement. In
Abel Cabral Couto's words, this is strategy in its symphonic version. Naturally, though this set of three
should not be seen in terms of progress in music, the same could not be said in terms of strategy.
Additionally, developing new forms of strategy other than military corresponded to a development in
modes of war other than armed fight.
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fashionable concept of the time, the defense, a kind of Spanish shelter that
encompasses all that does not yet have a precise definition, the truth is that, due to the
new conditions of industrial war and the concept of nation at war, it is realized that
strategy can no longer be limited to and immersed in the operational aspect of war.
Strategy is needed to prepare for conflict and to design objectives to leave the conflict.
In practice, strategy's horizontal placing in regards to politics and tactics, i.e., their
differentiation due to the social nature of their actions and actors tends to be replaced
by a vertical criterion, in which the important is not what is done in the conflict but the
relation between their action and political power as well as the consequences of those
actions. This means that the strategic social rationalities - the specific conduct that a
given society has regarding hostile conflict, which, in view of its exceptional nature
leads to intermediate means in correlation with the political guiding principles - gain a
never known importance.
How important is this? The answer is not easy, at least for strategists. Wars of the type
of the world wars tend to invert the strategic pyramid, subordinating, or at least
reducing, the political objectives to those linked to hostility and fall under the scope of
strategy. This is a negative situation which places in question the core of strategy, the
prudent assumption of the conflict, and that strategy tries to oppose to, reacting
against a more violent dynamics of politics so as to avoid squandering of human and
material resources though not always successfully. In any case, for the purpose at
hand, the important thing is to emphasize that, on those occasions, which are not
uncommon in WWI and WII, politics does not founder because of war but politics
becomes more closely linked to violence management. That management, though it
has an impact on strategy, making it a function on strategy, is nevertheless still far
from being the merciless violence of war. On the contrary, though strategic prudence
there becomes evil calculation to assess the ability to inflict damage to the opponent, at
the risk of fostering violence beyond control, undermining the very nature of strategy,
which is to calm the conflict, fire against fire, that management implies being at the
helm, not having been destroyed by violence even in the worst case scenarios of
political limitations, of pyramid inversion, of politics being subordinated to strategy.
Why is that? Why is it that strategy, in a self-destructive process - considering that
what makes strategy is that it takes on its pyramidal role as an intermediary, being
framed by politics in an organized area and towards a firm control of violence - does
not simply light the fire? Because the visceral nature of strategy, even when it was only
a conduct of war, was to be that personalist counterpoint to violence, better, an
unexpected fifth column attempt to put the fire of violence down and provide the
conditions for definitive peace.
There are two objection left, though. The first has to do with the concept of total war
and its practical application. The concept of total war, introduced by the French
politician and journalist Léon Daudet, in 1918,8
8 Daudet defines total war as the "extension of the fight in its most acute and chronical stages in the
political, economic, commercial, industrial, intellectual, legal and financial domains. The fight is not just
between the armies but between traditions, habits, codes, spirits and mostly banks" (Daudet, 1918: 8).
and afterwards developed and
popularized by the German general Erich Ludendorff, in 1935, in his book Total War, is
not, as it might seem, an all-out war, leading war to its ultimate consequences.
Ludendorff's states the opposite, total war implies total politics, the politician should
give in to the commander-in-chief, should be the commander-in-chief and thus submit
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politics to strategy exactly because it requires total control. Operations should cease
rapidly after attaining the objective so as to avoid inner disintegration of society.
(Ludendorff, 1941, 36, 113, 233-).9
Actually, the concept of total war is the historical expression of an era after the end of
WWI which ends with WWII; it expresses the use of all types of fighting simultaneously
and with maximum intensity, whose features also include politics giving in to the
objectives of hostility, those who fall under the influence of strategy, if not by politics
being subordinate to strategy (and not war) due to its prudential self-neutralization;
better still, changing its cognitive register, mere calculation, slyness, mischievous
consideration, never abandoning its sense of restraint.
In practice, pyramid inversion was proven not just a serious possibility but rather an
historical fact. It is true that, in theory, the fact that politics has a closer link to the
political objectives of hostility may lead to a situation of political determination
regarding strategy, reducing political synthesis to those objectives and making them
ancillary for defining what you want to be in terms of political actor. Nevertheless, it is
also true that that closeness tends to boost strategy because it concentrates its
strength in its space and thus deforming the prudential logic of strategy. Strategy is
then led to radically limit its prudential function and rise to the point of politics
becoming strategy, submitting to it because the scopes seemed to overlap and, in that
case, strategy appears technically more apt for the task considering the previously
mentioned consequences. Needless to say that in the historical situation, the easiest
solution was the one adopted - that of confining strategy.10
The second objection seems more relevant. Because, despite what he have said, it is
true that certain passages in the two world conflicts indicate or even mean going
beyond the pyramid inversion, politics and strategy becoming immersed in war. The
slaughter in Verdun, in WWI, and many episodes (probably more than that) in the
9 Jean-Ives Guiomar, French historian of total war, in the previously quoted book, believes that the
emergence of total war occurred with the wars by revolutionary France, though he acknowledges that that
very same total war is only fully present in the 20th c. (Guiomar, 2004: 25, 102-105, 120, 151).
However, we believe the French historian several times overlays the concept of total war and that of
absolute war. Though he states (Idem: 302) that he does not aim to solve the issue - which, for him, is
an open issue - of whether the concept of total war means the same as that of absolute war. In truth, the
author claims (Idem: 19-20) that total war is a war that cannot be stopped or interrupted by the one that
declares it, it expands constantly in space and in time. Yet, this is a feature more in tune with absolute
war, i.e., war that responds to its specific grammar, than with total war.
10 In reality, strategy is not a mere technique, instrument, tool. The fall of politics and the consequent rise
of strategy, both eventually coinciding, option then being for the preponderance of strategy, do not derive
from neutral judgment but rather from instrumental reasoning. Though politics was responsible for
strategy, the latter did not have a more passive role. Not only did strategy acquire a retroactive
prominence over politics, in terms of moderating it, at the beginning of the nuclear era, when it was
framed in political terms, but it also tended to monopolize politics in the era of total war, when it still was
a very significant tool. The obvious contradiction must be resolved differently. What happened was that
politics and war impacted on strategy in its most violent strands, and as strategy was still undergoing
vertical placing criterion which placed it closer to politics, yet still keeping its tactical character, opted for
neutralization (it was simpler and more in accordance with its traditional plaing) and thus respond to
violence of its most ... strands with a resolution highly instrumental, blind and mechanical. In fact, we
saw strategy counteracting as instrumental reason, invading, in an apparently neutral way, other areas
which were completely unrelated to hostility. Or would it be plausible to think that this neutralization of
aims and the inversion of the pyramid relation between politics and strategy, so as to meet the
fascination of a time and an ideology, would ever occur if strategy were a mere instrument? How? What if
the pyramid inversion were later reversed, when strategy becomes more robust and once again is an aim
in itself, and if that inversion typical of the era of total war, which already inverts a previous context (that
which leads to the First World War), in which strategy is less loose but in which sovereign politics is even
less incisive than it became later on?
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Eastern Front, in WWII, not to mention the genocides, point in that direction. That
seems unquestionable. And? The only lesson to be drawn is to acknowledge how easy it
is to go to the extreme. Because, in contrast, what we can realize is the difference
between these and other stretches of war and that the difference lies in the fact that in
other stretches of history, when war is phenomenologically latent, there should
ontologically be a state of war. If war were ontologically active, the common situation
would be more similar to those dark moments than to any other; better still, after so
much time it would be unlike anything.
4. International Anarchy: an image out of the picture
Finally, the Cold War. In this case, it would be best to not even object. The Cold War
corresponds to the adult age of strategy as a discipline of intermediary and incomplete
aims to be completed in higher political synthesis. Therefore ready as never before for
a perfect (or almost perfect) coexistence with politics; under the nuclear threat, the
former threat to be able to rapidly make Armageddon. The emergence of nuclear arms
and of subversive and counter-subversive doctrines lead strategy to a new era, that in
which we strategically live in.
The emergence of the atomic era, or more specifically, the emergence of thermo-
nuclear war and the arms race, made it clear that only through dissuasion could
catastrophe be avoided. Direct strategy would not pay off. From then on, the war and
strategic effort could not be solely military; other strategies would become
autonomous. What, according to total war, would be another step in the ladder,
becomes a means of fighting war, of carefully and prudently choosing the best
strategies. Would strategy be able to do that if it did not have specific aims? If it is true
that only after the emergence of nuclear power and later with the possibility of
subversive war, which implies a greater coordination between strategy and politics and
even the submission of strategy to politics, is strategy allowed to, as integral strategy,
to fully evidence its prudential capacities, it is also true the escalating of violence,
provided by the new modes of war, did not lead to absolute war only because strategy
imposed its prudential resources. And we must not forget that, in all likelihood,
absolute war would be at stake, its destructive hubris having been liberated, the state
in which, if war ruled, it would not need much time to devastate the earth, a situation
which always leads to problems because humans can become tired of such havoc.
But are we not still alive? The question is the answer.
Where politics, and above all strategy (in terms of hostility), flourishes, war, war left to
its own devices, international anarchy, cannot flourish. The effort to rise, if real,
compromises anarchy because war, left to its own devices, tends towards solipsism, to
move towards emptiness. However, neither politics nor strategy, on their own ,have the
strength to stop armed chaos; you need another reason to do that, a conversion from
pure peace, which, in fact, feeds strategy in its development. However, if we look
closer, the insufficiency of strategy and politics alone evidence the impossibility of
international anarchy, of a state of war ontologically come true. Insufficient is that
which is not sufficiently able, which is not able to do something on its own. But would
we still be discussing capacity if war ruled or would we be overwhelmed, our actions
fostered by the same (hypothetical) hope that we can find at the end of Cormac
McCarthy's tragedy The Road:
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"in deep valleys where the trouts lived, all things were more
ancient than Man and in them there was mystery"? (McCarthy,
2007: 187).
The indestructible and primal inclination towards good has been swept away - we do
not know how, especially because we are not referring to any accident or of an
unexpected effect of a given war. What if this was even more obscure, would we not
only dependent of the belated miracle-working miracle?
Luckily, we are not. Then why would advocates of international anarchy want to lead us
to the absurd?
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