Role of Bureaucracy

in formulation of
foreign policy

Introduction
Decision making in foreign policy analysis tends to explain

the approach to the study of international politics and

explains why and how states behave the way they behave in
the international arena. However, in the quest for decision
making, there are actors involved in which one of the actors
is the state bureaucracy.
National bureaucracies have been at the heart of foreign
policy analysis (Steve Smith, 2008).

Interpretation of terms

Foreign
policy

Foreign policy is a strategy or

combination of strategies carefully
formulated by one state for maintaining
relationship with other states and non
state actors for protection and promotion
of national interests.

Bureaucracy
Bureaucracy is any large-scale organization of appointed
officials whose primary function is to implement the
policies of the decision makers. It is a rational system or
organized structure designed to permit the efficient and
effective execution of public policy. (Tasie, 1997).

Models of foreign policy making

The Rational model
Bureaucratic/organizational model
Pluralist model

Psychological/Psychoanalytical model

Bureaucracies and foreign policy

Historical background

In the early 1960s Huntington, Crozier, Schilling and his

colleagues became interested in the impact of bureaucracies on
foreign policy.

This developing of bureaucratic politics theory provides empirical

insights into how the administrative structures of government
affect foreign policy.

Allison Theory of Bureaucratic politics

In 1970 Allison and his followers developed the empirical insights in to
theory.

Allison challenges what he calls the Rational policy model which

attempts to understand happenings as the more or less purposive acts of
unified national government.

Allison and his followers argue that although in many instances the
rational policy model may be useful, but it neglects the role of bureaucracy
in determining foreign policy.

He proposed two alternative models Viz.

Organizational process model or Model II

Model II is claiming that governmental agencies with semi- autonomous

power having a interest in the process of decision making.
Bureaucratic Politics model or Model III

Model III focuses attention on the politics inside a government (Allison, 1999).
Policies are characterized neither by a unitary actor nor as an organizational
output but rather a result of serious bargaining games among the players in
the national government.

 The explanatory power of model II proved to be limited, particularly

in relation to foreign policy change and innovation.
The critics claimed that it was not clear whether the model III was
separate from or merely an extension of Model II.
Eventually the organizational model was collapsed into BPM

Role of Bureaucracy in formulation of

Foreign policy
According to Bureaucratic Politics Model Bureaucracys role is given hereunder.

1. Bureaucrats generate outputs that structure the situation in policy

makers take decisions.

what outputs include?

The information bureaucracies provide to government.
The foreign policy alternatives presented for government to choose for.
And standard operating procedures (SOPs) which shape how foreign policy decisions ultimately
are implemented.

Role of Bureaucracy in formulation of

Foreign policy
2. Bureaucracies tend to develop common attitudes and shared
images. These attitudes and shared play a role in framing how a
particular foreign policy issue or event is perceived by foreign
policy makers.
For example, when considering a security issue the treasury
tends to focus on the budgetary implications, the department
of defense on repercussions for national security.

Role of Bureaucracy in formulation of

Foreign policy
3. Bureaucracies also derive influence over foreign policy from
their positions in the power-sharing structure comprising state and
government in which these large organizations and political actors
have individual interests.

CASE STUDY : CUBAN MISSILE

CRISIS
Bureaucratic politics was first applied to the Cuban missile crisis.
Allison explained the Cuba Missile Crises of October 1962 between United
State of America and the Soviet Union in three models.

Model I explains governmental action as a result of a monolithic and unified

decision of the state as the sole foreign policy decision maker and taker for the
state.

Model II explains the decision of the state as an organizational output. It

explores the nature of organizations based on their Standard Operational
Procedures.

CASE STUDY : CUBAN MISSILE CRISIS

Model III focuses attention on the politics inside a government (Allison, 1999).
Policies are characterized neither by a unitary actor nor as an organizational output
but rather a result of serious bargaining games among the players in the national
government.

Allisons argument is that there cant be a governmental decision without some

debates or consultations.

In the Model III, the reality of the crisis, the American Blockade of Cuba and the
withdrawal of Soviet missiles from Cuba summarizes it all. It was a long process of
debate and arguments before President Kennedy could push up a decision as to how
to deal with the missiles planted in Cuba by the Soviet forces which is a danger in
view for America.

Initial critiques
By Stephen Krasner
The BPM is misleading as it obscures the presidents power in making and
implementing the foreign policy.

The US president can make choices and control the bureaucracies at their
disposal particularly in the foreign policy matters.

The BPM does not account accurately for how and to what extent

bureaucracies during the process of implementation of will subvert the

governments foreign policy intent.

The BPM methodology is also criticized for its over reliance on the game
metaphor.

Conclusion
To conclude it is to say that bureaucracy is an important institution of the state
whose functions have been primarily policy execution, however, the influence
of bureaucracy had gone beyond the execution of policies alone, and it has
pervaded through the policy formulation process and the policy itself.
Therefore, the role of bureaucracy is far more than just the implementation of
foreign policy but rather it remains one of the key actors involved in the
making of the policy through dialogue, debate, conflict and compromise.