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Alexander Moens - Foreign Policy Under Carter: Testing Multiple Advocacy Decision Making

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Book:
Foreign Policy Under Carter: Testing Multiple Advocacy Decision Making
Author:
Alexander Moens
Publisher:
Routledge
Genre:
Science / Politics
Year:
2021
City:
New York
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Originally published in 1990, this volume looks at the Carter administration and the policy decisions his national security advisor Zbigniew Brzezinski, Secretary of State Cyrus Vance and the Secretary of Defense Harold Brown during the presidency. Referring to case studies of Carter administration decision making which in the authors view demonstrate Brzezinskis transformation from brokerage to an advocate role- SALT II in early 1977, Ogaden War in 1977-78, the normalisation of US relations with China (1978) and the fall of the Shah of Iran in 1978-79.

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Foreign Policy Under Carter

First published in 1990 by Westview Press

Published in 2021 by Routledge

605 Third Avenue, New York, NY 10017

2 Park Square, Milton Park, Abingdon, Oxon OX14 4RN

Routledge is an imprint of the Taylor & Francis Group, an informa business

All rights reserved. No part of this book may be reprinted or reproduced or utilised in any form or by any electronic, mechanical, or other means, now known or hereafter invented, including photocopying and recording, or in any information storage or retrieval system, without permission in writing from the publishers.

Notice:

Product or corporate names may be trademarks or registered trademarks, and are used only for identification and explanation without intent to infringe.

Library of Congress Cataloging-in-Publication Data

Moens, Alexander, 1959

Foreign policy under Carter : testing multiple advocacy

decision making / by Alexander Moens.

p. cm.

Includes bibliographical references and index.

ISBN 0-8133-8071-5

1. United StatesForeign relations19771981Decision making

2. Carter, Jimmy, 1924 . I. Title.

E872.M63 1990

327.73dc20

90-41702

CIP

ISBN 13: 978-0-3670-1573-2 (hbk)

ISBN 13: 978-0-3671-6560-4 (pbk)

DOI: 10.4324/9780429045592

For Marsha and My Parents

Contents

Preface

1 Introduction

Notes

2 Decision Making and the Multiple Advocacy Model

The Quest for Better Foreign Policy Decision Making

The Multiple Advocacy Model

Decision-Making Issues and the Development of the Model

Decision Models and Presidential Styles

Critical Reviews of the Model

The Model Applied to the Carter Administration

Selecting the Cases

Notes

3 President Carter and the Foreign Policy Process

The Presidents Style

The Structure of Decision Making

The Role of the Principal Advisers

When the Table Is Set, and the Turkey Does Not Come

The National Security Adviser as Custodian-Manager

Summary and Conclusion

Notes

4 SALT II: The Deep Cuts Proposals

The Background

The President Tries to Redefine His Position

Open Decision Making and Multiple Options

Who Proposed What and Why: Dissecting the Flow of Options

Secretary Vance Goes to Moscow

What Happened to the Multiple Advocacy Debate?

Conclusion: Of Lessons Not Learned

Notes

5 The Ogaden War

The War and Its Background

Carter and a New Policy for Africa

Soviet Involvement and the American Response

What Was Decided?

Evaluating the Policy Output

Conclusion: What Does Our Model Make of the Process?

Notes

6 Normalizing Relations with China

The Background

Carter and the China Question

The Flaw in the Process

Vance Goes to China

Evaluating the Decision-Making Process and Outcome

Adding the Strategic Option at the Cost of the Process

Brzezinski Achieves Normalization

A Process Adrift, or Who Is for the President?

Notes

7 The Fall of the Shah

The Background

Carter and Iran

Prerevolutionary Iran

Weighing the Options

The Fall of the Shah

An Open Process No More

Could the United States Have Done Better?

Notes

8 Conclusion

The Carter Process and Multiple Advocacy

Evaluating Weaknesses in Multiple Advocacy

Fine-tuning Multiple Advocacy to the Presidential Process

Notes

Bibliography

Index

1 Introduction
1. Notes
2 Decision Making and the Multiple Advocacy Model
1. The Quest for Better Foreign Policy Decision Making
2. The Multiple Advocacy Model
3. Decision-Making Issues and the Development of the Model
4. Decision Models and Presidential Styles
5. Critical Reviews of the Model
6. The Model Applied to the Carter Administration
7. Selecting the Cases
8. Notes
3 President Carter and the Foreign Policy Process
1. The Presidents Style
2. The Structure of Decision Making
3. The Role of the Principal Advisers
4. When the Table Is Set, and the Turkey Does Not Come
5. The National Security Adviser as Custodian-Manager
6. Summary and Conclusion
7. Notes
4 SALT II: The Deep Cuts Proposals
1. The Background
2. The President Tries to Redefine His Position
3. Open Decision Making and Multiple Options
4. Who Proposed What and Why: Dissecting the Flow of Options
5. Secretary Vance Goes to Moscow
6. What Happened to the Multiple Advocacy Debate?
7. Conclusion: Of Lessons Not Learned
8. Notes
5 The Ogaden War
1. The War and Its Background
2. Carter and a New Policy for Africa
3. Soviet Involvement and the American Response
4. What Was Decided?
5. Evaluating the Policy Output
6. Conclusion: What Does Our Model Make of the Process?
7. Notes
6 Normalizing Relations with China
1. The Background
2. Carter and the China Question
3. The Flaw in the Process
4. Vance Goes to China
5. Evaluating the Decision-Making Process and Outcome
6. Adding the Strategic Option at the Cost of the Process
7. Brzezinski Achieves Normalization
8. A Process Adrift, or Who Is for the President?
9. Notes
7 The Fall of the Shah
1. The Background
2. Carter and Iran
3. Prerevolutionary Iran
4. Weighing the Options
5. The Fall of the Shah
6. An Open Process No More
7. Could the United States Have Done Better?
8. Notes
8 Conclusion
1. The Carter Process and Multiple Advocacy
2. Evaluating Weaknesses in Multiple Advocacy
3. Fine-tuning Multiple Advocacy to the Presidential Process
4. Notes
Bibliography
Index

Guide

Start of Content
Bibliography
Index

Introduction

DOI: 10.4324/9780429045592-1

This study offers an in-depth analysis of Carters foreign policy decision-making process by means of a highly specialized model developed some twenty years ago. The model, called multiple advocacy, is the product of a combination of studies undertaken by Stanfords Alexander George. In tracing its eclectic development, one gets a good overview of the major decision-making themes discussed since the last World War, from early attempts to understand the decision maker as a rational actor to modern studies of cognitive psychology. The model integrates the three levels of decision making (individual, small group, and organizational) and blends these with the major conclusions of several studies about the Presidents style and advisory process.

Briefly, the model works as follows: the President, like a magistrate, is to set up his advisory process as a series of adversary proceedings. His main policy advisers, such as the Secretaries of State and Defense, are to act as competing advocates for their policy options. A central process management role, called the custodian-manager, is given to the National Security Adviser, who is to coordinate and integrate the process and its paperwork. He is to keep the process balanced and open and should ensure the Presidents participation and help him make a final choice at the close of all advocacy. While doing so, he must try to keep the President from prematurely tilting the discussion, he must try to keep the advocate resources balanced, and importantly, must himself stay out of the substance of policy discussion and implementation.

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