National Security and Double Government

Michael J. Glennon



Why has U.S. security policy scarcely changed from the Bush to the Obama administration? National Security and Double Government offers a disquieting answer. Michael J. Glennon challenges the myth that U.S. security policy is still forged by America's visible, "Madisonian institutions" - the President, Congress, and the courts. Their roles, he argues, have become largely illusory. Presidential control is now nominal, congressional oversight is dysfunctional, and judicial review is negligible. The book details the dramatic shift in power that has occurred from the Madisonian institutions to a concealed "Trumanite network" - the several hundred managers of the military, intelligence, diplomatic, and law enforcement agencies who are responsible for protecting the nation and who have come to operate largely immune from constitutional and electoral restraints. Reform efforts face daunting obstacles. Remedies within this new system of "double government" require the hollowed-out Madisonian institutions to exercise the very power that they lack. Meanwhile, reform initiatives from without confront the same pervasive political ignorance within the polity that has given rise to this duality. The book sounds a powerful warning about the need to resolve this dilemma-and the mortal threat posed to accountability, democracy, and personal freedom if double government persists. This paperback version features an Afterword that addresses the emerging danger posed by populist authoritarianism rejecting the notion that the security bureaucracy can or should be relied upon to block it.

Table of Contents

ACKNOWLEDGMENTS

I. INTRODUCTION

II. THE TRUMANITE NETWORK
Origins
Operation
Threat Exaggeration
Secrecy
Conformism

III. THE SOURCES OF MADISONIAN ILLUSION

IV. THE REALITY OF MADISONIAN WEAKNESS
The Judiciary
The Congress
The Presidency
A Case Study: NSA Surveillance

V. PLAUSIBLE ALTERNATIVE EXPLANATIONS FOR POLICY CONTINUITY
The Rational Actor Model
The Government Politics Model
The Organizational Behavior Model
The Network Model
Conclusion: The Myth of Alternative Competing Hypotheses

VI. IS REFORM POSSIBLE? CHECKS, SMOKE, AND MIRRORS
Strengthening systemic checks
Government cultivation of civic virtue

VII. CONCLUSION

NOTES

AFTERWORD

INDEX



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