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Northumbria Research Link Northumbria Research Link Citation: Wallis, Christopher (2018) The Thinker, The Doer and The Decider: Zbigniew Brzezinski, Cyrus Vance and the Bureaucratic Wars of the Carter Administration. Doctoral thesis, Northumbria University. This version was downloaded from Northumbria Research Link: http://nrl.northumbria.ac.uk/id/eprint/37648/ Northumbria University has developed Northumbria Research Link (NRL) to enable users to access the University’s research output. Copyright © and moral rights for items on NRL are retained by the individual author(s) and/or other copyright owners. Single copies of full items can be reproduced, displayed or performed, and given to third parties in any format or medium for personal research or study, educational, or not-for-profit purposes without prior permission or charge, provided the authors, title and full bibliographic details are given, as well as a hyperlink and/or URL to the original metadata page. 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The full policy is available online: http://nrl.northumbria.ac.uk/policies.html The Thinker, The Doer and The Decider: Zbigniew Brzezinski, Cyrus Vance and the Bureaucratic Wars of the Carter Administration Christopher Wallis PhD 2018 The Thinker, The Doer and The Decider: Zbigniew Brzezinski, Cyrus Vance and the Bureaucratic Wars of the Carter Administration Christopher Wallis A thesis submitted in partial fulfilment of the requirements of the University of Northumbria at Newcastle for the degree of Doctor of Philosophy Research Undertaken in the Faculty of Arts, Design and Social Sciences July 2018 Abstract When President Jimmy Carter entered the White House, he desired a decision-making structure that would be collegial and provide him with a diverse range of policy options from his principal advisors, Secretary of State Cyrus Vance and National Security Advisor Zbigniew Brzezinski. However, their differing outlooks coupled with a desire to control and manage U.S. foreign policy led to a furious and bitter battle to influence the administration’s agenda. This thesis analyses the relationship between Vance and Brzezinski and their struggles for the ear of the president. It was a conflict exacerbated by the institutional rivalry between the National Security Council and the State Department as they battled with one another to affect policy. As issues arose, the president’s advisors, supported by their constituencies, jostled to orchestrate the administration’s strategies and approach. Subsequently, tensions increased as the conflict between Vance, Brzezinski and their departments developed into unbridled bureaucratic warfare within the Carter administration. This study utilises the bureaucratic politics paradigm to illustrate how the influence of advisors and organisations can impact on presidential decision-making. While President Carter wanted to be the main decision maker in his administration, his insistence on a system that provided him with a range of advice precipitated the struggles between Vance and Brzezinski. As their disputes intensified, Carter was unable to effectively manage the views and advice of his advisors and formulate a clear strategy. As this thesis demonstrates, the bureaucratic politics model provides an effective framework to analyse the development and implementation of U.S. foreign policy. While historians have neglected or played down the significance of their clashes, this thesis argues that the rivalry between Vance, Brzezinski, and their respective departments had a clear and visible effect on U.S. foreign policy. The bureaucratic wars raged throughout Carter’s time in office, contributing to a tapestry of inconsistencies that resulted in the administration’s inability to create a settled foreign policy agenda. i Acknowledgments This work is dedicated to my grandfather, Ronald Spencer, who meticulously read and provided feedback on each chapter of my thesis. I am extremely grateful for his contribution to my work. As a child, he sparked my interest in history, with stories from his life, his days of service during World War Two and, more recently, his attempts to re-trace his father’s steps through Europe during the Great War. Throughout my life, he has been a considerable source of guidance, encouragement and a pillar of support. He has instilled in me a set of values and ethics that I will always carry with me. He is my role model - a hardworking, dedicated, loyal family man and a trusted confidant who continues to inspire me today. I will always value his influence. I owe a special debt of gratitude to my supervisory team. Having worked with Professor Michael Cullinane for the past five years, I continue to find his enthusiasm as infectious as ever. It was Mike who first encouraged me to embark on this project and I am eternally grateful for his support. Professor Sylvia Ellis, who acted as principal supervisor for the first two and a half years of this process, was also influential in my development. I found her expertise, guidance and friendship enormously helpful from day one and I feel incredibly lucky to have been supported by her. Finally, Dr Joe Street came onboard the supervisory team towards the end of the process to provide invaluable feedback and assistance in the final stages of completing this work. Having completed both my undergraduate and master’s degrees at Northumbria, I cannot sing the praises of the university highly enough. They have always provided excellent facilities for students to utilise and been attentive to my needs. The Library staff in particularly have been extremely helpful in locating and providing a range of materials that have been extremely beneficial to my research. Furthermore, the support staff in both the Faculty of Arts, Design and Social Sciences as well as the Graduate School have been supportive and helpful throughout this process. I would also extend my thanks to the ii academic staff in the Department of Humanities who have always been approachable and provided support whenever necessary. During the course of my research, I worked at a number of archives in the United States and in Europe and I would like to thank the staff at the Jimmy Carter Presidential Library in Georgia in particular, for always being friendly and attentive during my visits and helping me from afar in providing requested materials. I must also recognise the work of the staff at the Library of Congress, the National Archives at College Park, the Sterling Memorial Library at Yale University, the Seeley G. Mudd Library at Princeton University, the Fenwick Library at George Mason University and the Roosevelt Study Center in Middleburg, Netherlands. Over the past three years, I was fortunate to be granted permission to interview several members of the Carter administration, who generously gave their time to speak with me and shared with their experiences. I would like to thank Leslie Gelb, Gary Sick, William Quandt, Donald McHenry, Hodding Carter III, Henry Precht and Robert Gates for their contributions to my research. All were very friendly and provided me with an entertaining and highly informative account of their time in government. I must also express my appreciation to those who helped set up the interviews. Last but by no means least, I would like to recognise my family and friends for the love and support they have provided throughout this process and life in general. My parents, Carol and Ray, have selflessly supported me in my endeavours and stuck by me through some challenging times over the years as well as giving me the time and space to do my work. None of what I achieved could be done without their love and support. From the bottom of my heart, I am extremely appreciative. iii Author’s Declaration I declare that the work contained in this thesis has not been submitted for any other award and that it is all my own work. I also confirm that this work fully acknowledges opinions, ideas and contributions from the work of others. Any ethical clearance for the research presented in this thesis has been approved. Approval has been sought and granted by the Faculty Ethics Committee on 05/05/2015. I declare that the Word Count of this Thesis is 87, 638 words. Name: Christopher Wallis Signature: Date: 16/07/2018 iv Table of Contents Abstract ................................................................................................................................. i Acknowledgments ................................................................................................................ ii Author’s Declaration ........................................................................................................... iv List of Abbreviations ......................................................................................................... vii List of Figures ..................................................................................................................... ix Introduction .............................................................................................................................. 1 Theoretical Framework: Bureaucratic Politics ................................................................. 5 Historiography ............................................................................................................... 19 Methodology .................................................................................................................
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