Mass and Elite Foreign Policy Opinions

Abstract

THE CONFLICT between strong executive direction and building the necessary consensus for action makes the conduct of foreign policy in a democracy extremely difficult. The expression of public support for foreign policy initiatives is a source of strength in diplomacy, but such support is difficult to gain because the mass public is generally regarded as less informed and unconcerned about foreign policy problems than about domestic issues (Almond, 1950; Caspary, 1970). In fact, the distinction between the foreign and domestic spheres is seen as so great by some scholars that the office of the American chief executive has been described as two presidencies-one oriented to domestic policy and one for foreign policy (Wildavsky, 1966; Cronin, 1980). According to this perspective, the president chooses to exercise initiatives on foreign policy questions precisely because the public is relatively unconcerned and the extreme conflict which erupts between various domestic factions can be avoided. Furthermore, the mass public is viewed as teachable in foreign policy matters; the president can set the agenda, persuade opinion leaders, and lead the