Double Edged Diplomacy: International Bargaining And Domestic Politics

498 Pages·1993·32.575 MB·English

by  Peter B. Evans

Double-Edged Diplomacy
STUDIES IN INTERNATIONAL POLITICAL ECONOMY
Stephen D. Krasner and Miles Kahler, General Editors
Ernst B. Haas, Consulting Editor
1. Scientists and World Order: The Uses of Technical Knowledge in
International Organizations, by Ernst B. Haas, Mary Pat Williams,
and Don Babai
2. Pollution, Politics, and International Law: Tankers at Sea, by
R. Michael M'Gonigle and Mark W. Zacher
3. Plutonium, Power, and Politics: International Arrangements for the
Disposition of Spent Nuclear Fuel, by Gene I. Rochlin
4. National Power and the Structure of Foreign Trade, by
Albert O. Hirschman
5. Congress and the Politics of U.S. Foreign Economic Policy,
1929-1976, by Robert A. Pastor
6. Natural Resources and the State: The Political Economy of Resource
Management, by Oran R. Young
7. Resource Regimes: Natural Resources and Social Institutions, by
Oran R. Young
8. Managing Political Risk Assessment: Strategic Response to
Environmental Change, by Stephen J. Kobrin
9. Between Dependency and Autonomy: India's Experience with the
International Computer Industry, by Joseph M. Grieco
10. The Problems of Plenty: Energy Policy and International Politics, by
Peter F. Cowhey
11. Standing Guard: Protecting Foreign Capital in the Nineteenth and
Twentieth Centuries, by Charles Lipson
12. Structural Conflict: The Third World Against Global Liberalism, by
Stephen D. Krasner
13. Liberal Protectionism: The International Politics of Organized Textile
Trade, by Vinod K. Aggarwal
14. The Politicized Market Economy: Alcohol in Brazil's Energy Strategy, by
Michael Barzelay
15. From Marshall Plan to Debt Crisis: Foreign Aid and Development
Choices in the World Economy, by Robert Wood
16. The Power of Ideology: The Quest for Technological Autonomy in
Argentina and Brazil, by Emanuel Adler
17. Ruling the Waves: The Political Economy of International Shipping, by
Alan W. Cafruny
18. Banker to the Third World: U.S. Portfolio Investment in Latin America,
1900-1986, by Barbara Stallings
19. Unequal Alliance: The World Bank, the International Monetary Fund,
and the Philippines, by Robin Broad
20. Managing the Frozen South: The Creation and Evolution of the
Antarctic Treaty System, by M. J. Peterson
21. Political Power and the Arab Oil Weapon: The Experience of Five
Industrial Nations, by Roy Licklider
22. When Knowledge is Power: Three Models of Change in International
Organizations, by Ernst B. Haas
23. Driving A Bargain: Automobile Industrialization and fapanese Firms in
Southeast Asia, by Richard F. Doner
24. High-Tech Europe: The Politics of International Cooperation, by
Wayne Sandholtz
25. Double-Edged Diplomacy: International Bargaining and Domestic
Politics, edited by Peter B. Evans, Harold K. Jacobson, and
Robert D. Putnam

Double-Edged
Diplomacy
International Bargaining and
Domestic Politics
EDITED BY
Peter B. Evans, Harold K. Jacobson,
Robert D. Putnam
UNIVERSITY OF CALIFORNIA PRESS
Berkeley Los Angeles London
University of California Press
Berkeley and Los Angeles, California
University of California Press, Ltd.
London, England
Copyright © 1993 by
The Regents of the University of California
Library of Congress Cataloging-in-Publication Data
Double-edged diplomacy: international bargaining and domestic
politics / edited by Peter B. Evans, Harold K. Jacobson, Robert D.
Putnam.
p. cm.—(Studies in international political economy; 25)
Includes bibliographical references and index.
ISBN 0-520-07681-8 (alk. paper).—ISBN 0-520-07682-6 (pbk.:
alk. paper)
1. International relations—Case studies. 2. Diplomacy—Case
studies. 3. Political science—Case studies. I. Evans, Peter B.,
1944- II. Jacobson, Harold Karan. III. Putnam, Robert D.
IV. Series.
JX1395.D65 1993
327'.0722—dc20 92-23297
CIP
Printed in the United States of America
9 8 7 6 5 4 3 21
The paper used in this publication meets the minimum requirements of
American National Standard for Information Sciences—Permanence of
Paper for Printed Library Materials, ANSI Z39.48-1984 ©
CONTENTS
PREFACE / ix
ABBREVIATIONS / xiii
PART 1 • INTRODUCTION / /
1. Introduction: Integrating International and Domestic Theories
of International Bargaining / 3
Andrew Moravcsik
PART 2 • SECURITY ISSUES / 43
Dual Track and Double Trouble: The Two-Level Politics of INF /
Richard C. Eichenberg
3. The Political Economy of Security Agreements:
The Linked Costs of Failure at Camp David / 77
Janice Gross Stein
4. East-West Bargaining Over Germany:
The Search for Synergy in a Two-Level Game / 104
Jack Snyder
5. Armaments Among Allies:
European Weapons Collaboration, 1975-1985 / 128
Andrew Moravcsik
PART 3 • ECONOMIC DISPUTES / 169
6. The 1933 World Economic Conference as an Instance of Failed
International Cooperation / 171
Barry Eichengreen and Marc Uzan
viii Contents
7. The Interaction of Domestic and International Politics:
The Anglo-American Oil Negotiations and the International Civil
Aviation Negotiations, 1943-1947 / 207
Helen Milner
8. International Threats and Internal Politics: Brazil, the European
Community, and the United States, 1985-1987 / 233
John S. Odell
9. U.S.-Japan Negotiations on Construction and Semiconductors, 1985—1988:
Building Friction and Relation-Chips / 265
Ellis S. Krauss
PART 4 • NORTH-SOUTH TENSIONS / 301
10. The United States and Central America: Interlocking Debates / 303
Robert A. Pastor
11. U.S. Policy and Human Rights in Argentina
and Guatemala, 1973-1980 / 330
Lisa L. Martin and Kathryn Sikkink
12. Bargaining with the IMF:
Two-Level Strategies and Developing Countries / 363
Miles Kahler
PART 5 • CONCLUSION / 395
13. Building an Integrative Approach to International and Domestic Politics:
Reflections and Projections / 397
Peter B. Evans
APPENDIX
Diplomacy and Domestic Politics:
The Logic of Two-Level Games / 431
Robert D. Putnam
CONTRIBUTORS / 469
INDEX / 471
PREFACE
This book was conceived in the course of a project on domestic politics
and international relations conducted at the Center for Advanced Study
in the Behavioral Sciences in Stanford, California, during 1988-89. Har-
old Jacobson and Robert Putnam proposed the project. David Cameron
and Peter Evans joined as sponsors, and the four of us collectively led
the project.
Tracing the lineage of intellectual works, however, is never uncompli-
cated. The project might not have occurred, and certainly would not
have taken the form that it did, had not Robert Putnam written "Diplo-
macy and Domestic Politics: The Logic of Two-Level Games."1 This piece
became the point of departure for the Center project and ultimately for
this book. Putnam's article was an outgrowth of the book that he wrote
with Nicholas Bayne,2 which in turn was an outgrowth of his experiences
on the staff of the National Security Council during the Carter Adminis-
tration. The other three project leaders also had long-standing interests
in the interaction between domestic politics and international relations:
Cameron's stemmed from his study of comparative electoral systems;
Evans' from his perspective on development and dependency; and Ja-
cobson's from his interest in international cooperation. Over the years,
Jacobson and Putnam had intermittent conversations on the topic.
The Center project considered two basic questions: first, whether Put-
nam's insights and generalizations could be applied to negotiations that
included non-Western countries; second, whether they could be applied
to negotiations about other topics than economic issues. Beyond seeking
answers to these questions, we wanted to explore the extent to which
Putnam's metaphor or model could be developed, enhanced, and ex-
panded.
During the year at the Center, we and other fellows met regularly in
ix
* Preface
a bimonthly seminar. In these sessions we sought to evaluate Putnam's
metaphor or model by considering it in the light of other theoretical
perspectives. To test whether it had broader applicability, we convened
two workshops at the Center during the fall of 1988. Some twenty schol-
ars were invited to present synopses of other types of international nego-
tiations and to assess the explanatory power of Putnam's ideas in the
context of the cases that they had studied.
By early 1989, based on the experience of the seminar and the work-
shops, we were convinced that the project could yield a useful book, and
we set about to constitute a team. The editors of this book and the authors
of its chapters, most of whom had participated in one or both of the
workshops, came to be the team. Because of other commitments, David
Cameron decided that he could not be part of the team. We first met as
a group at the Center for Advanced Study in the Behavioral Sciences in
July 1989. Each participant presented a preliminary version of her or
his chapter. We began the task of harmonizing the chapters: defining
terms so that they could be used consistently and creating a template that
would shape the empirical chapters in a common manner. Through this
process we collectively determined the directions of our work and the
character of the book.
The Palo Alto meetings, like those that followed, provided numerous
examples of the synergy that intense collaboration can add to scholar-
ship. As the group developed a shared vocabulary and a shared sense of
important puzzles, new insights emerged that were genuinely collective
products. For example, John Odell used his account of U.S. negotiations
with Brazil to spark a debate about when domestic conflict helps a na-
tion's bargaining position and when it hurts. After a wide-ranging discus-
sion, Lisa Martin suggested that both threats and promises require do-
mestic ratification, an idea that other participants further refined. The
final formulation of this insight—and of many others reflected both
in individual chapters and in the Introduction and Conclusion of this
volume—owed much to the creativity and generosity of the group in
exchanging constructive suggestions with one another.
We next met as a group on Cape Cod for a week in June 1990. This
meeting concentrated on the contribution of the book to the develop-
ment of theory. We discussed fully developed versions of all the chapters,
with special attention to what would go into the Introduction and Conclu-
sion. By the late fall of 1990 the chapters were assembled as a book
manuscript, and we were ready to show our product to the outside world.
Final revisions, designed to take readers' reactions into account, were
made in the summer and fall of 1991.
The Ford Foundation generously provided funds to support our
work, both on the project at the Center for Advanced Study in the Behav-