Of the seeming and real innovations which the modern age has introduced into the practice of foreign policy, none has proven more baffling to both understanding and action than foreign aid. The very assumption that foreign aid is an instrument of foreign policy is a subject of controversy. For, on the one hand, the opinion is widely held that foreign aid is an end in itself, carrying its own justification, both transcending, and independent of, foreign policy. In this view, foreign aid is the fulfillment of an obligation of the few rich nations toward the many poor ones. On the other hand, many see no justification for a policy of foreign aid at all. They look at it as a gigantic boon-doggle, a wasteful and indefensible operation which serves neither the interests of the United States nor those of the recipient nations.