This study of the 1975 US-USSR Grain Agreement negotiations
illuminates the parameters and constraints faced by policy makers
in a democratic, pluralistic political system. The author
investigates the interaction between the formulation and
implementation of a policy, suggesting that who is seen as
responsible for a policy is often as important as its content. He
also shows how the pluralistic nature of the American polity can
enable well-organized constituencies to pressure policy makers
successfully for precise commitments regarding their future
actions, and how this can actually limit the extent of governmental
leverage in negotiations.
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