A Measure Short of War: A Brief History of Great Power Subversion by Jill Kastner and William C. Wohlforth. Oxford University Press, 2025, 288 pp.
In their thought-provoking book, independent researcher and visiting fellow from King’s College Jill Kastner and Dartmouth College professor William Wohlforth explore the nuances of subversive techniques used by states throughout history, paying special attention to how such acts have shaped relations between great powers. The authors introduce a new perspective by defining subversion as any “hostile, unwanted action” taken within the boundaries of a rival state, aimed at weakening its authority or altering its policies (1). Their main thesis holds that while subversive strategies have long been a tool of statecraft, they are often underutilized among peer powers due to the risks of escalation and reputational damage.
With each chapter, Kastner and Wohlforth take the reader through different historical epochs, analyzing classical antiquity, early modern Europe, the complex nineteenth century, the tumultuous twentieth century, and the post-Cold War. The authors highlight significant events while associating them with broader themes of power dynamics, the capacity of states to defend against subversion, and the implications of ideological conflict. They engage with different case studies without glorifying or vilifying any one side, demonstrating how great powers like the United States, Russia, and historical entities like the Habsburgs and the British Empire have applied subversion as a strategic tool. The authors’ argument emphasizes the cyclical nature of great power relations, noting that “subversion is a cheap and flexible tool of statecraft that allows states to avoid the dichotomous choice between war and peace” (4).
The authors draw from a wide range of primary and secondary sources, including historical texts, intelligence reports, and strategic analyses, adding depth and credibility to their findings. Their approach combines qualitative analysis with historical narrative to illustrate the evolution of subversive tactics. The authors also provide a taxonomy of subversive activities, differentiating between overt and covert operations. This comprehensive methodology enables the authors to position subversion within the broader framework of international relations theory.
A critical strength of the book lies in its comparative analysis. Kastner and Wohlforth document numerous subversive strategies from antiquity through modernity—including the Peloponnesian War in ancient Greece to the Cold War—finding that while the tools of subversion may change, the underlying motivation remains consistent: to deflect adversarial pressure without escalating to full-fledged conflict. The authors begin with a well-defined conceptual framework of subversion, differentiating it from other forms of statecraft such as espionage and diplomacy. This clarity helps frame subsequent discussions about the motivations and consequences of subversive actions. They then move to an assessment of subversion across different historical epochs, offering readers a nuanced understanding of the evolution of subversive tactics and strategies used by major powers. The 2016 US elections case study provides a contemporary implementation of the historical patterns of subversion. An additional strength is the book’s timely discussion of cyber capabilities and their implications for subversion in modern politics.
Three chapters in particular are distinctive based on their novelty. Chapter 2, “Classical Antiquity: Greece and Rome,” encapsulates the methods of subversion during the tumultuous times of Greek city-states and their collaboration with Rome. The authors demonstrate how actions taken by powerful city-states such as Athens and Sparta to undercut their rivals through financial manipulation and espionage emphasize the persistence of subversive actions in modern times. The examples offered are valuable in their details, unveiling how subversion was an intrinsic part of internal power politics.
Chapter 4, “The Nineteenth Century: Skulduggery and Restraint,” evaluates the delicate balance of power in Europe during that time period, noting how the potential for subversion often went hand in hand with robust nationalistic movements. Kastner and Wohlforth discuss the case of Tsar Paul of Russia and the ends to which he went to maintain control of his regime, portraying how great powers reluctantly resorted to subversion while at the same time contended with pressures from internal factions and foreign influences. This chapter explains how leaders and what they did influenced how states responded, showing how personal goals and global politics are connected.
Also of note is chapter 7, “The Return of Great Power Subversion,” which presents the current landscape of great power competition in addressing the evolution of subversion in the modern age, particularly with Russia’s interferences in the US electoral process. This chapter reflects on the adaptation of historical subversive methods to contemporary contexts, where cyber capacities and social media play a pivotal role in modern statecraft. Kastner and Wohlforth critically dissect different angles of the 2016 elections, teasing apart the implications and outcomes of subversive tactics in a digital age.
A Measure Short of War also contains some limitations. While the authors’ concentration on political leaders and their strategies is insightful, they sometimes ignore grassroots movements and how they affect or are affected by great power subversion. The experiences of individuals or local groups in response to subversive actions, particularly in discussions of contemporary conflicts in different regions, could provide a more complete picture. In chapter 7, for example, the focus on the actions of great powers neglects how smaller states or non-state actors engage in or respond to subversion.
Furthermore, some discussions—such as those involving Russia and China—tend to represent Western-centric definitions of democracy and subversion without adequately considering alternative perspectives, particularly in the context of authoritarian regimes. As noted in chapter 8, the complex nature of events like the Russian subversion of the 2016 elections risks being overly simplified through the lens of the authors’ defined concepts of subversion. The reduction may obscure some nuances relating to domestic political dynamics in the United States. This book would also broaden its applicability by offering a more extensive analysis of how the historical precedents set forth apply to diverse new-age conflicts, such as those in the Middle East and Africa.
Nevertheless, A Measure Short of War serves as a potential contribution to the literature on international relations and subversion, interweaving historical context with analyses that are contemporary in nature. It challenges the traditional narratives surrounding great power relations, amplifying that the tools and mechanisms of influence usually reach beyond temporal barriers. The book’s argument has important implications for understanding the limited effectiveness of overt subversion among great powers, encouraging scholars to consider the nuanced interplay between states rather than seeing these relationships through a purely antagonistic lens, particularly as great power rivalries continue to resurface on the global stage.
A Measure Short of War not only appeals to scholars in political science and history but also offers profitable insights to policymakers, intelligence analysts, and students interested in international relations, strategy, and security studies. Ultimately, Kastner and Wohlforth create a comprehensive discussion that should resonate across disciplines.
Martial Fanga Agbor, PhD