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The Constitutional History of U.S. Foreign Policy: 222 Years of Tension in the Twilight Zone

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The Constitutional History of U.S. Foreign Policy: 222 Years of Tension in the Twilight Zone Center for the Study of America and the West at the FOREIGN POLICY RESEARCH INSTITUTE The Constitutional History of U.S. Foreign Policy: 222 Years of Tension in the Twilight Zone By Walter A. McDougall 4(% #/.34)454)/.!, ()34/29 /& 53 &/2%)'. 0/,)#9 9%!23 /& 4%.3)/. ). 4(% 47 ),)'(4 :/.% "°≥•§ ØÆ ¨•£¥µ≤•≥ §•¨©∂•≤•§ °¥ ¥®• !ÆÆ•Æ¢•≤ß 3µ≠ ≠ •≤ 4•°£®•≤ )Æ≥¥©¥µ¥•) .°¥©ØÆ°¨ #ØÆ≥¥©¥µ¥©ØÆ #•Æ¥•≤) 0®©¨°§•¨∞®©° 0!) *µ¨π -) ./. 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Æ•≤∂ص≥ ≥©¨•Æ£• ¶Ø¨¨Ø∑•§ µÆ¥©¨ 0•ÆÆ≥π¨∂°Æ©°(≥ 3•Æ°¥Ø≤ 7 ©¨¨©°≠ - °£¨°π ©Æ≥©≥¥•§ ØÆ ®°∂©Æß °¨¨ ¥®• §Ø£µ≠ •Æ¥≥ £ØÆ£•≤Æ©Æß ¥®• ¥≤•°¥π ≤•°§ °Æ§ ° ≠ Ø¥©ØÆ ∑°≥ ≠ °§• ¥Ø ≤•¶•≤ ¥®• ∑®Ø¨• ≠ °¥¥•≤ ¥Ø ° £Ø≠ ≠ ©¥¥••$ 7 °≥®©ÆߥØÆ :≥¥°≤¥•§ µ∞ ©Æ ° ∂©Ø¨•Æ¥ ¶≤•¥ ; ¢°≤´•§ :4®©≥ §•¶•°¥≥ •∂•≤π ∞µ≤∞Ø≥• ض ≠ π £Ø≠ ©Æß ®•≤• ; ¥®•Æ ≠ µ¥¥•≤•§ ØÆ ®©≥ ∑°π ص¥ ¥®• §ØØ≤ ¥®°¥ ®• ∑ص¨§ ¢• §°≠ Æ•§ ©¶ ®• •∂•≤ ∑•Æ¥ ¥®•≤• °ß°©Æ= )Æ ¶°£¥ ®• ≤•¥µ≤Æ•§ ØÆ - ØƧ°π ¥Ø ß•¥ ®©≥ °Æ≥∑•≤≥ ¢µ¥ ®•Æ£•¶Ø≤¥® ÆØ ∞≤•≥©§•Æ¥ ®°≥ ≥ص߮¥ ¥®• °§∂©£• ض ¥®• 3•Æ°¥• °≥ ° ¢Ø§π ©Æ °§∂°Æ£• ض Æ•ßØ¥©°¥©Æß ° ¥≤•°¥π ≠ µ£® ¨•≥≥ ¢•ßß•§ ©¥≥ £ØµÆ≥•¨ ©Æ ∞•≤≥ØÆ$ 4®µ≥ ¢•ß°Æ ¥®• £ØÆ¥•Æ¥©Øµ≥ £Øµ≤¥≥®©∞ ¢•¥∑••Æ ¥®• •∏•£µ¥©∂• °Æ§ ¥®• ¨•ß©≥¨°¥µ≤• Ø∂•≤ ¥®• ≠ °´©Æß Ø¶ 5$3$ ¶Ø≤•©ßÆ ≤•¨°¥©ØÆ≥> ° ≥Ø≤¥ ض ∞•≤•ÆÆ©°¨ °≥ §• §•µ∏ ©Æ ∑®©£® ¥®• ∞°≤¥©•≥ °≤• ÆØ¥ ≥µ≤• ∑®•¥®•≤ ¥Ø §°Æ£• Ø≤ ∑≤•≥¥¨• Ø∂•≤ ¥®•©≤ ≤•≥∞•£¥©∂• ∞Ø∑•≤≥?•©¥®•≤ §•¨•ß°¥•§ Ø≤ ©≠ ∞¨©•§?¢π ¥®• #ØÆ≥¥©¥µ¥©ØÆ$ 4®• §•°Æ ض ¨•ß°¨ ≥£®Ø¨°≤≥ ©Æ ¥®• ¶©•¨§ #بµ≠ ¢©° 5Æ©∂•≤≥©¥π 0≤ض•≥≥Ø≤ ,ص©≥ (•Æ´©Æ £°¨¨•§ ©¥ :¥®• ¥•Æ≥©ØÆ ©Æ ¥®• ¥∑©¨©ß®¥ ∫ØÆ•; ≤•≥µ¨¥©Æß ¶≤Ø≠ ° §•≥©ßÆ ¶Ø≤ ßØ∂•≤Æ≠ •Æ¥ ¥®°¥ ∑°≥ :° ≠ Ø≥°©£ ض •∂•≤πØÆ•(≥ ≥•£ØƧ £®Ø©£•≥; °Æ§ •≥¥°¢¨©≥®•§ :° ≥¥≤°Æß• ≥π≥¥•≠ ¥®• ≥¥≤°Æß•≥¥ ©Æ ¥®• ∑Ø≤¨§$; 9•¥ ¶Ø≤ °¨¨ ¥®°¥ ©¥ ®°≥ ¢••Æ ≠ °§• ¥Ø ∑Ø≤´ ≠ Ø≥¥ ض ¥®• ¥©≠ • µÆ§•≤ ≤°§©£°¨¨π §©¶¶•≤•Æ¥ °Æ§ ≤°∞©§¨π £®°Æß©Æß ®©≥¥Ø≤©£°¨ £©≤£µ≠ ≥¥°Æ£•≥ ∞≤•£©≥•¨π ¢•£°µ≥• ض ¥®• ∂°ß°≤©•≥ °≠ ¢©ßµ©¥©•≥ °Æ§ π°∑Æ©Æß ≥©¨•Æ£•≥ ض ص≤ °≠ °∫©Æß¨π ¥•≤≥• #ØÆ≥¥©¥µ¥©ØÆ$3 *µ≥¥ ¶Ø≤ ≥¥°≤¥•≤≥ ¥®• 7 °≥®©ÆߥØÆ °Æ•£§Ø¥• ©¨¨µ≥¥≤°¥•≥ ° ¶µÆ§°≠ •Æ¥°¨ £ØƵƧ≤µ≠ ض ص≤ ≤•∞≤•≥•Æ¥°¥©∂• £ØÆ≥¥©¥µ¥©ØÆ°¨ °Æ§ ≠ Ø≤• Ø≤ ¨•≥≥ §•≠ Ø£≤°¥©£ ≤•∞µ¢¨©£$ 4≤µ≥¥©Æß ¶Ø≤•©ßÆ ≤•¨°¥©ØÆ≥?©≥≥µ•≥ ض ∑°≤ °Æ§ ∞•°£•?≥ب•¨π ¥Ø •∏•£µ¥©∂• ¶©°¥ ∑°≥ °Æ°¥®•≠ ° ¥Ø !≠ •≤©£°Æ≥ ¥®•Æ °≥ ÆØ∑$ "µ¥ ¥≤µ≥¥©Æß ≥µ£® ß≤°∂• ≠ °¥¥•≤≥ ≥ب•¨π ¥Ø ¥®• ¶≤°£¥©Øµ≥ ¶•£´¨•≥≥ £Ø≠ ≠ ©¥¥•• ´ÆØ∑Æ °≥ #ØÆß≤•≥≥ ≥••≠ •§ •∂•Æ ∑Ø≤≥•$ 4®°¥ ©≥ ∑®π ¥®• £ØÆ≥¥©¥µ¥©ØÆ°¨ ®©≥¥Ø≤π ض 5$3$ ¶Ø≤•©ßÆ ≤•¨°¥©ØÆ≥ ®°≥ £®°¨¨•Æß•§ •∂•≤π ß•Æ•≤°¥©ØÆ Ø¶ !≠ •≤©£°Æ≥ ¥Ø ≥®µÆ ¥®• •∏¥≤•≠ •≥ °Æ§ §≤°∑ ©Æ≥¥•°§ ØÆ ¥®•©≤ §••∞ ≤•≥•≤∂•≥ ض ∞≤°ß≠ °¥©≥≠ ∞≤•¥•Æ≥• °Æ§ £Ø≠ ∞≤Ø≠ ©≥•$ 1. The primary source for this delightful anecdote is Kenneth R. Bowling and Helen E. Veit, eds., The Diary of William Maclay and Other Notes on Senate Debates (Baltimore, MD: Johns Hopkins University Press, 1988), pp. 128-32; see also Stanley Elkins and Eric McKitrick, The Age of Federalism (Oxford University Press, 1993), pp. 55-58, and Forrest McDonald, The American Presidency: An Intellectual History (University Press of Kansas, 1994), pp. 221-23. 2. Louis Henkin, Constitutionalism, Democracy, and Foreign Affairs (Columbia University Press, 1990), pp. 17-43 (quotes, pp. 43). Foreign Policy Research Institute 1 7 °≥®©ÆߥØÆ ¥®• ©Æ§©≥∞•Æ≥°¢¨• ≠ °Æ ∑®Ø≥• °∂°©¨°¢©¨©¥π ¥Ø ≥•≤∂• °≥ ¶©≤≥¥ ∞≤•≥©§•Æ¥ µÆ§Øµ¢¥•§¨π ≤•°≥≥µ≤•§ ≥´•∞¥©£≥ °≠ ØÆß !Æ¥©B&•§•≤°¨©≥¥≥ °Æ§ &•§•≤°¨©≥¥≥ °¨©´• •≥¥°¢¨©≥®•§ ¥®• ∞≤•£•§•Æ¥≥ °Æ§ ∞≤©Æ£©∞¨•≥ ¥®°¥ ≥®°∞•§ 5$3$ ¶Ø≤•©ßÆ ∞ب©£π ¶Ø≤ ° £•Æ¥µ≤π$ (• •≥£®•∑•§ ≤Øπ°¨ ∞Ø≠ ∞ π•¥ ¢•≥¥Ø∑•§ ØÆ ®©≥ ض¶©£• ° ®©ß® ≤•∞µ¢¨©£°Æ §©ßÆ©¥π$ (• ∑Ø≤´•§ ∑©¥® #ØÆß≤•≥≥ ¥Ø £≤•°¥• ¥®• •∏•£µ¥©∂• §•∞°≤¥≠ •Æ¥≥ ض 3¥°¥• 7 °≤ °Æ§ 4≤•°≥µ≤π$ (• •≥¥°¢¨©≥®•§ ¥®• §Ø£¥≤©Æ•≥ ض •∏•£µ¥©∂• ∞≤©∂©¨•ß• °Æ§ •∏•£µ¥©∂• ∞≤•≤Øß°¥©∂• ©Æ ¶Ø≤•©ßÆ °¶¶°©≤≥ ∑©¥® ¥®• ¶µ¨¨ ≥µ∞∞Ø≤¥ ض 3•£≤•¥°≤π ض 3¥°¥• 4®Ø≠ °≥ *•¶¶•≤≥ØÆ ∑®Ø §•£¨°≤•§ ©Æ + > :4®• ¥≤°Æ≥°£¥©ØÆ Ø¶ ¢µ≥©Æ•≥≥ ∑©¥® ¶Ø≤•©ßÆ Æ°¥©ØÆ≥ ©≥ •∏•£µ¥©∂• °¨¥Øß•¥®•≤$; ,©´•∑©≥• 7 °≥®©ÆߥØÆ ¥ØØ´ ¥®• ©Æ©¥©°¥©∂• ∑®•Æ ¥®• ∑°≤≥ ض ¥®• &≤•Æ£® 2•∂بµ¥©ØÆ •≤µ∞¥•§$ .Ø¥ ØÆ¨π §©§ ®• ™µ§ß• •µ¥≤°¨©¥π ¥®• Øƨπ ∑©≥• ∞Ø≥¥µ≤• ¶Ø≤ ¥®• ¶≤°ß©¨• Æ•∑ Æ°¥©ØÆ ®• £¨°©≠ •§ ¶Ø≤ ¥®• •∏•£µ¥©∂• ¢≤°Æ£® ¥®• ∞Ø∑•≤ ¥Ø §•£¨°≤• ∞•°£• °≥ ©¥ ∑•≤• •∂•Æ ¥®Øµß® #ØÆß≤•≥≥ ®°§ ∞Ø∑•≤ ¥Ø §•£¨°≤• ∑°≤$ 3Ø 7 °≥®©ÆߥØÆ §•£≤••§ ©Æ !∞≤©¨ + / ¥®°¥ ¥®• 5Æ©¥•§ 3¥°¥•≥ :≥®Øµ¨§ ©Æ ≥©Æ£•≤©¥π °Æ§ ßØا ¶°©¥® °§Ø∞¥ °Æ§ ∞µ≤≥µ• ° £ØƧµ£¥ ¶≤©•Æ§¨π °Æ§ ©≠ ∞°≤¥©°¨ ¥Ø∑°≤§ ¥®• ¢•¨¨©ß•≤°Æ¥ D≥©£E 0Ø∑•≤≥$; 0µ≤≥µ°Æ¥ ¥Ø ¥®°¥ 7 °≥®©ÆߥØÆ §©≥∞°¥£®•§ *Ø®Æ *°π ¥®•Æ #®©•¶ *µ≥¥©£• ض ¥®• 3µ∞≤•≠ • #ص≤¥ Ø∂•≤≥•°≥$ (• ∑°≥ ¥®• ¶©≤≥¥ ©Æ ° ¨ØÆß ¨©Æ• ض ∞≤•≥©§•Æ¥©°¨ °¨¥•≤ •ßØ≥ ©Æ ¶Ø≤•©ßÆ °¶¶°©≤≥ ¥®°¥ ∑ص¨§ ©Æ£¨µ§• *°≠ •≥ - ØÆ≤Ø• ¶Ø≤ *•¶¶•≤≥ØÆ .©£®Ø¨°≥ 4≤©≥¥ ¶Ø≤ 0ب´ 4®µ≤¨Ø∑ 7 ••§ ¶Ø≤ ,©Æ£Ø¨Æ #بØÆ•¨ (ص≥• ¶Ø≤ 7 ©¨≥ØÆ (°≤≤π (Ø∞´©Æ≥ ¶Ø≤ &$2 (•Æ≤π +©≥≥©Æß•≤ ¶Ø≤ .©∏ØÆ °Æ§ ≠ Ø≥¥ ≤•£•Æ¥¨π '•Ø≤ß• - ©¥£®•¨¨ °Æ§ 2©£®°≤§ (ب¢≤ØØ´• ¶Ø≤ /¢°≠ °$ 4®• £Ø≠ ≠ •≤£©°¨ ¥≤•°¥π ∑©¥® "≤©¥°©Æ ¥®°¥ *°π ¢≤ص߮¥ ®Ø≠ • ≥∞°≤´•§ ¢©¥¥•≤ £ØÆ¥≤Ø∂•≤≥π ©Æ + ¢µ¥ ©¥≥ µ¨¥©≠ °¥• ≤°¥©¶©£°¥©ØÆ ≠ •°Æ¥ 3•Æ°¥• °££•∞¥°Æ£• ض ° ∞°¥¥•≤Æ ∑®•≤•¢π ¥®• •∏•£µ¥©∂• ®°≠ ≠ •≤•§ ص¥ §•°¨≥ ∑©¥® ¶Ø≤•©ßÆ ßØ∂•≤Æ≠ •Æ¥≥ ¢•¶Ø≤• ≥µ¢≠ ©¥¥©Æß ¥®•≠ ¥Ø ®©≥ Ø∑Æ$ 7 °≥®©ÆߥØÆ °¨≥Ø ≤•£•©∂•§ ¶Ø≤•©ßÆ •Æ∂Øπ≥ Ø≤ ©Æ ¥®• £°≥• ض ¥®• •ß≤•ß©Øµ≥ #©¥©∫•Æ %§≠ µÆ§B #®°≤¨•≥ '•Æ–¥ §•≠ °Æ§•§ ®©≥ ≤•£°¨¨$ 7 °≥®©ÆߥØÆ ≥•≤∂•§ °≥ £Ø≠ ≠ °Æ§•≤B©ÆB£®©•¶ ©Æ ∞•≤≥ØÆ °Æ§ µÆ©¶Ø≤≠ ©Æ ¥®• 7 ®©≥´•π 2•¢•¨¨©ØÆ$ "µ¥ ©Æ °¨¨ ¥®©Æß≥ ®• ®ØÆØ≤•§ ¥®• #ØÆ≥¥©¥µ¥©ØÆ §•¶•≤≤•§ ¥Ø #ØÆß≤•≥≥ Ø∂•≤ °∞∞Ø©Æ¥≠ •Æ¥≥ ¥≤•°¥©•≥ °Æ§ °∞∞≤Ø∞≤©°¥©ØÆ≥ ¥Ø ≠ ••¥ £≤©≥•≥ ≥µ£® °≥ !¨ß•≤©°Æ ∞©≤°£π °Æ§ ¶©≤≥¥ µ≥•§ ¥®• ∞≤•≥©§•Æ£π °≥ ° :¢µ¨¨π ∞µ¨∞©¥; ∑®•Æ ®• ∑°≤Æ•§ °ß°©Æ≥¥ ¶°£¥©ØÆ°¨ ≥¥≤©¶• ©Æ ¶Ø≤•©ßÆ °¶¶°©≤≥$ )Æ °¨≠ Ø≥¥ •∂•≤π £°≥• 7 °≥®©ÆߥØÆ(≥ °£¥≥ ¢•£°≠ • ∞≤•£•§•Æ¥≥ ¥®°¥ ≥®°∞•§ ¥®• ∞≤Ø£•≥≥ ∑®•≤•¢π 5$3$ ¶Ø≤•©ßÆ ∞ب©£π ∞≤°£¥©£• ®°≥ •∂ب∂•§ ¨©´• #Ø≠ ≠ ØÆ ,°∑ •∂•≤ ≥©Æ£•$ '≤°Æ§ 3¥≤°¥•ß, °Æ§ 0ب©¥©£°¨ 3•≤≠ ØÆ 7 °≥®©ÆߥØÆ2≥ &°≤•∑ •¨¨ !§§≤•≥≥ 7 ®•Æ 7 °≥®©ÆߥØÆ ©≥≥µ•§ ®©≥ &°≤•∑•¨¨
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