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DUD SCHOOl NAVAL POSTGRADUATE SCHOOL Monterey, California THESIS COALITION WAR AND BURDEN-SHARING: THE PRESIDENT VS THE CONGRESS by James A. Pierce December, 1991 Thesis Advisor: Donald Abenheirri Approved for public release; distribution is unlimited. UNCLASSIFIED SECURITYCLASSIFICATIONOFTHIS PAGE REPORT DOCUMENTATION PAGE 1a REPORTSECURITYCLASSIFICATION lb RESTRICTIVE MARKINGS UNCLASSIFIED 2a SECURITYCLASSIFICATIONAUTHORITY 3 DISTRIBUTION/AVAILABILITYOF REPORT Approvedfor publicrelease;distribution isunlimited. 2b DECLASSIFICATION/DOWNGRADINGSCHEDULE 4 PERFORMINGORGANIZATIONREPORTNUMBER(S) 5 MONITORINGORGANIZATIONREPORTNUMBER(S) 6a NAMEOF PERFORMINGORGANIZATION 6b OFFICESYMBOL 7a NAME OF MONITORINGORGANIZATION NavalPostgraduateSchool (Ifapplicable) NavalPostgraduateSchool 55 6c ADDRESS{City,State,andZIPCode) 7b ADDRESS(City,State,andZIPCode) Monterey,CA 93943 5000 Monterey,CA 93943 5000 8a NAME OF FUNDING/SPONSORING 8b OFFICESYMBOL 9 PROCUREMENTINSTRUMENTIDENTIFICATIONNUMBER ORGANIZATION (Ifapplicable) 8c ADDRESS(City,State,andZIPCode) 10 SOURCEOF FUNDING NUMBERS Hrog/dmElementNo HroieaNo Work unitAccev>ion Number 11 TITLE (IncludeSecurityClassification) CoalitionWarandBurden-sharing:ThePresidentvstheCongress(UNCLASSIFIED) 12 PERSONALAUTHOR(S) JamesA.Pierce 13a TYPE OF REPORT 13b TIMECOVERED 14 DATE OF REPORT (year,month,day) 15 PAGE COUNT Master'sThesis From Tc 911219 113 16 SUPPLEMENTARY NOTATION Theviewsexpressedinthisthesisarethoseoftheauthoranddonotreflecttheofficial policyorpositionoftheDepartmentofDefenseorthe U.S. Government 17 COSATICODES 18 SUBJECTTERMS(continueonreverseifnecessaryandidentifybyblocknumber) FIELD GROUP SUBGROUP 19 ABSTRACT(continueonreverseitnecessaryandidentifybyblock number) Thisthesisexaminespast U.S.approachestocoalitionsandeffortstoforgealliancesin peaceand war inthe20thcentury. Specifically,it analyses theconflictbetweentheexecutiveand legislativebrancheswithrespecttocoalitionbuildingand burden sharing. Thethesissuggests thattheamountofCongressional activism depends uponthe perceptionofanexternalthreatamongmembersofthelegislative. Likewise, the thesishighlightsthetensionbetween Congressionaldesires toimpose theburdenuponallies while retaining exclusivecontrolovercoalition policyand forces ThethesisconcludeswithacasestudyofOperationDesert Stormand burden-sharing. Finally,theauthor warnsof dangerousprecedentestablishedbytheshiftinburden-sharingresponsibilitiesintherecentpastbetweentheexecutiveand legislative bodies. 20 DISTRIBUTION/AVAILABILITYOFABSTRACT 21.ABSTRACTSECURITYCLASSIFICATION £J UNClASMIIEDUN1IMIUL J SAMl ASHIPOK1 ] DllCUSEKS UNCLASSIFIED 22a NAME OF RESPONSIBLE INDIVIDUAL 22b TELEPHONE (IncludeAreacode) 22c OFFICE SYMBOL Dr.Donald Abenheim 40864(1 2228 NS/Ah DD FORM 1473. 84 MAR 83APKeditionmaybeuseduntilexhausted SECURITY CLASSIFICATIONOFTHIS PAGE Allothereditionsareobsolete UNCLASSIFIED Approved for public release; distribution is unlimited. Coalition War and Burden-sharing: The President vs the Congress by James A. Pierce Lieutenant, United States Navy B.S., United States Naval Academy, 1985 Submitted in partial fulfillment of the requirements for the degree of MASTER OF ARTS IN NATIONAL SECURITY AFFAIRS from the NAVAL POSTGRADUATE SCHOOL December 1991 ABSTRACT This thesis examines past U.S. approaches to coalitions and efforts to forge alliances in peace and war in the 20th century. Specifically, it analyses the conflict between the executive and legislative branches with respect to coalition building and burden-sharing. The thesis suggests that the amount of Congressional activism depends upon the perception of an external threat among members of the legislative branch. Likewise, the thesis highlights the tension between Congressional desires to impose the burden upon allies while retaining exclusive control over coalition policy and forces. The thesis concludes with a case study of Operation Desert Storm and burden-sharing. Finally, the author warns of dangerous precedent established by the shift in burden-sharing responsibilities in the recent past between the executive and legislative bodies. in . / AJ> pS33'5 a. TABLE OF CONTENTS I. INTRODUCTION 1 II. EARLY COALITIONS 8 A. WORLD WAR ONE 8 B. WORLD WAR TWO 11 C. NATO-- PEACETIME COALITION 13 D. MILITARY ASSISTANCE PROGRAM 22 E. KOREA 25 F. COALITION WAR IN KOREA 28 G. CONSEQUENCES OF KOREA 3 H. THE GREAT DEBATE 32 III. CONGRESSIONAL CHALLENGES 46 A. THE BURDEN REVISITED 46 B. THE MANSFIELD AMENDMENTS 47 C. IRAN CONTRA 61 D. CONCLUSIONS 67 IV. DESERT SHIELD/STORM: A CASE STUDY 69 A. INTRODUCTION 69 B. THE ROLE OF THE PRESIDENT 7 C. CONGRESS AND FOREIGN POLICY 86 IV