A fewveterans of the Fordadministration understood this hint about the invitation to SecretarySchlesinger, aborted when Ford dismissed him.
The main agendawas to define the United States’ military relationship with China. The Carter administration hadcome to the conclusion that an
increase inChina’stechnological and military capacity was important for global equilibrium and Americannational security. Washington had “drawn a
distinctionbetween the Soviet Union and China,” Secretary Brown explained, and was willing to transfer somemilitary technology to China that it would
not makeavailable to the Soviets.58 Further, the United States was willing to sell “military equipment” to China (such as surveillanceequipment and
vehicles),though not “arms.” It would not, moreover, interferein decisions by NATO allies to sell arms to China. As President Carterexplained in his
instructions toBrzezinski:
[T]he UnitedStates does not object to the more forthcoming attitude which our allies areadopting in regard to trade with China in technologysensitive
areas. We havean interest in a strong and secure China—and we recognize and respect this interest.59
In the end, China was not able to rescue the Khmer Rouge orforce Hanoi to withdraw its troops from Cambodia foranother decade; perhaps
recognizingthis, Beijingframed its war aims in much more limited terms. However, Beijingdid impose heavy costs on Vietnam.Chinese diplomacy in
Southeast Asiabefore, during, and after the war worked with great determination and skill toisolate Hanoi. Chinamaintained a heavy military presence
along theborder, retained several disputed pieces of territory, and continued to holdout the threat of a “second lesson” to Hanoi. For years afterward,
Vietnam was forced to support considerable forces on its northern border todefend against another possible Chinese attack.60 As Deng had told
Mondale in August1979:
For a country ofthat size to keep a standing force of more than one million, where will youfind enough work force? A standing force of one million
needs a lot oflogistical support. Now they depend on the Soviet Union.Some estimates say they are getting $2 million a day from the SovietUnion,
some estimatessay $2½ million. . .. [I]t will increase difficulties, and this bu den on the SovietUnion will grow heavier and heavier. Things will
become moredifficult. In time the Vietnamese will come to realize that not all theirrequests to the Soviet Union can be met. Inthose circumstances
perhaps a newsituation will emerge.61
That situationdid, in fact, occur over a decade later when the collapse of the Soviet Union and of Soviet financial support broughtabout a retrenchment
in Vietnamesedeployment in Cambodia.Ultimately over a time period more difficult to sustain for democraticsocieties, Chinaachieved a considerable
part of itsstrategic objectives in Southeast Asia. Dengachieved sufficient maneuvering room to meet his objective of thwarting Sovietdomination of
Southeast Asiaand the Malacca Strait.
The Carteradministration performed a tightrope act that maintained an option toward the Soviet Union via negotiations over the limitations ofstrategic
arms whilebasing its Asian policy on the recognition that Moscow remained the principal strategicadversary.
The ultimateloser in the conflict was the Soviet Union,whose global ambitions had caused alarm around the world. A Soviet ally had beenattacked by
the Soviet Union’s most vocal and strategically mostexplicit adversary, which was openly agitating for a containment allianceagainst Moscow—all this
within a monthof the conclusion of the Soviet-Vietnamese alliance. In retrospect, Moscow’s relative passivity in the ThirdVietnam War can be seen as
the firstsymptom of the decline of the Soviet Union.One wonders whether the Soviets’ decision a year later to intervene in Afghanistan was prompted in
part by anattempt to compensate for their ineffectuality in supporting Vietnam against the Chinese attack.In either case, the Soviets’ miscalculation in
both situationswas in not realizing the extent to which the correlation of global forces hadshifted against them. The Third Vietnam War may thus be
counted asanother example in which Chinese statesmen succeeded in achieving long-term,big-picture strategic objectives without the benefit of a
militaryestablishment comparable to that of their adversaries. Though providingbreathing space for the remnants of the Khmer Rouge can hardly be
counted as amoral victory, China achieved its larger geopolitical aims vis-à-vis the Soviet Union and Vietnam—both of whose militaries werebetter
trained andequipped than China’s.I