The officials who make foreign policy don?t have it easy. Trapped between the domestic political environment on one side and the international system on the other, they have modest freedom to choose a course of action. They need to weigh the relative merits of several policy options on a vast range of intricate and thorny issues, many of them interconnected. And every few years, the senior management of the operation is completely replaced, with the top jobs going to newcomers who often know little about the issues in question.
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