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Ted Piccone - Big Bets and Black Swans 2014: A Presidential Briefing Book

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Ted Piccone Big Bets and Black Swans 2014: A Presidential Briefing Book
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President Obama has just three years left in office to define his legacy in world affairs. Hes facing a number of critical challenges--the ongoing war in Syria, the Iran nuclear negotiations, an enigmatic North Korea and other significant crises in world affairs. The presidents advisors are busy devising policy recommendations aimed at grappling with these thorny issues. From these, the president must decide which priorities to pursue and how to best exercise U.S. power and influence to manage and shape the global order.This book presents a set of policy analysis and recommendations from The Foreign Policy scholars at the Brookings Institution. Designed to provide the White House with innovative and actionable policy initiatives, the book is constructed as a series of memos to President Obama. This year, the memos are divided into five categories:- Big Bets are issues where the president should consider investing his power, time and prestige in major efforts that can have a transformational impact on America and the world. - Double Downs are derived from the Big Bets from last years recommendations that the president should redouble his efforts on.- Black Swans are those low-probability but high-impact events that can divert the president and his administrations higher purposes, such as dramatic negative events that he will want to take steps in advance to avoid or to mitigate their consequences.- Nightmares are events that look more likely than a Black Swan and could prove particularly troublesome for U.S. interests and the global order, and for which the administration should prepare.- Holds are updated policy recommendations to stay the course on approaches suggested last year.

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BIG BETS & BLACK SWANS
A PRESIDENTIAL BRIEFING BOOK
Policy Recommendations for President Obama in 2014
Ted Piccone
Steven Pifer
Thomas Wright
Editors
BROOKINGS INSTITUTION PRESS
Washington, D.C
Big Bets & Black Swans: A Presidential Briefing Book
A project of Foreign Policy at Brookings
Project design by Gail Chalef
ABOUT BROOKINGS
The Brookings Institution is a private nonprofit organization devoted to research, education, and publication on important issues of domestic and foreign policy. Its principal purpose is to bring the highest quality independent research and analysis to bear on current and emerging policy problems. Interpretations or conclusions in Brookings publications should be understood to be solely those of the authors.
Copyright 2014
THE BROOKINGS INSTITUTION
1775 Massachusetts Avenue, N.W., Washington, DC 20036
www.brookings.edu
All rights reserved. No part of this publication may be reproduced or transmitted in any form or any means without permission in writing from the Brookings Institution Press.
Library of Congress Cataloging-in-Publication data is available
ISBN 978-0-8157-2603-6 (pbk.: alk. paper)
ISBN 978-0-8157-2606-7 (ebook)
ACKNOWLEDGMENTS
The Foreign Policy Program is very grateful to David Rubenstein and Ben Jacobs for their continued generous support of this project. Brookings scholars maintain the highest standards of quality and independence in their research, analysis and prescriptions. This publication is solely a reflection of their individual views.
INTRODUCTION
As President Obama prepares his 2014 State of the Union address, the United States faces a number of critical challengesthe ongoing war in Syria, the Iran nuclear negotiations, an enigmatic North Korea and other significant crises in world affairs. His advisors are busy devising policy recommendations aimed at grappling with these thorny issues. President Obama then must decide which priorities to pursue and how best to exercise U.S. power and influence to manage and shape the global order.
Again this year, the Foreign Policy scholars at Brookings are offering President Obama and his Cabinet a set of policy analyses and recommendations from an outside perspective. Taking advantage of the diversity and depth of our scholars expertise, the Brookings Foreign Policy Program seeks to provide the White House with innovative and actionable policy initiatives.
Big Bets & Black Swans: A Presidential Briefing Book is a series of memos designed to present President Obama with a suggested to do list, addressing the most significant foreign policy challenges in the year to come. It builds on our widely read Brookings Foreign Policy briefing book released in January 2013. This year, the memos are divided into five categories: Big Bets, Double Downs, Black Swans, Nightmares and Holds. The Big Bets are issues where Foreign Policy scholars believe the president should consider investing his power, time and prestige in major efforts that can have a transformational impact on America and the world. Double Downs are derived from the Big Bets of 2013, recommendations that the president redouble his efforts on last year's suggested policy initiatives. The Black Swans are those low-probability but high-impact events that can divert the president and his administration from higher purposes, events so dramatically negative that he will want to take steps in advance to avoid them or to mitigate their consequences. Nightmares are events that look more likely than a Black Swan and could prove particularly troublesome for U.S. interests and the global order, and for which the administration should prepare. Finally, Holds are updated recommendations to stay the course on policy approaches put forward in 2013.
President Obama has just three years left in office to define his legacy in world affairs. Now is the time for him to focus on some Big Bets and avoid or mitigate Black Swans to shape the future of U.S. and global security and prosperity.
MEMORANDUM
TO President Obama FROM Robert Kagan and Ted Piccone DATE January 23 - photo 1TO:President Obama
FROM:Robert Kagan and Ted Piccone
DATE:January 23, 2014
SUBJECT:
Reassert U.S. Leadership of a Liberal Global Order
Summary and Recommendations
In the year since Brookings published its first Big Bets and Black Swans report, the global situation has become more unstable and America's role more uncertain. The concerns we expressed then about the fraying of the liberal order, and the need for strong and effective American leadership to reverse that trend, remain. At home, Americans grow more uninterested and disillusioned by foreign policy, as indicated by the November 2013 Pew poll. Cuts in defense, foreign aid and other spending related to foreign policy continue to mount, even as the American economy shows increased signs of vitality and even though foreign challenges are increasing. Although cautious optimism may be warranted in some areasthe possibility of a deal on Iran's nuclear weapons program, for instanceby most indicators, the world has become a more difficult and dangerous place since you began your second term.
Your overarching foreign policy goal for the remainder of your term should be to reassert American leadership in a rules-based international system in which norms are not only articulated but also, wherever possible, enforced. This will require doubling down on some big betsrebalancing in Asia, rolling back nuclear weapons development in Iran and North Korea, winning trade and investment agreements in the Pacific and Atlantic zones, and investing in our national human and physical capital and global reach. You will also need to limit damage from the turmoil in the Arab world, shore up our key alliances with Germany, Japan and Korea, and manage any provocations from Russia and China.
Background
The plastic moment of a year ago to mold the global order is slipping away as crises become more complicated. In the Middle East, the situation in Syria has grown more dire, despite some progress toward controlling and eliminating the government's chemical weapons program. Among the Syrian opposition, al Qaeda and other extremist factions have grown in strength and influence as more moderate groups continue to founder, partly as a result of inadequate outside support and direction. The steady flow of refugees across Syria's borders increasingly threatens the well-being and stability of neighboring countries. The vast number of displaced persons within Syria may this winter turn into an even greater humanitarian disaster. The continuation of the proxy war, which some of your advisors favor, seems likely to create a nightmare scenario for the United States and our allies in the region: a significant al Qaeda presence, and a major cross-border humanitarian crisis, with the possibility of further destabilization in the region.
In Iraq, meanwhile, sectarian and terrorist violence is on the upswing and state security forces are losing ground to al Qaeda. In Egypt, hopes for progress toward democracy have been dashed by the military coup and the subsequent disenfranchisement and persecution of supporters of the Muslim Brotherhood and also, increasingly, liberal and secular voices. The growth of violent radicalism in both Iraq and Egypt, together with the crisis in Syria, poses significant challenges to American interests in a more secure region.
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