1. The Problem 1
Domestic-International Trade-offs 1
Domestic-International Coordination 6
This Study 13
2. Food Policy 19
Four Competing Concerns 20
Food Policy until 1972: Farm Policy Primacy 27
3. The Russian Wheat Purchases, 1972 36
Background 37
The Failure to Know 39
The Continuation of the Subsidy 41
The Failure to Expand Acreage 43
4. The Soybean Embargo, 1973 50
Background 50
The Failure to Know 53
Why Export Controls? 56
Why Such Severe Controls? 60
5. The Struggle over Food Aid, 1974 and 1975 65
Background 65
The Decision(s) to Expand Food Aid 67
The Fight over Allocation 77
The Case of Bangladesh 82
6. The Grain Reserves Proposal, 1975 88
Background 88
The Slow Pace of Policymaking 91
The Proposal’s Content: The Mountain Labored 95
7. The Russian Grain Purchases, 1974 and 1975 103
Background 103
The Rocky Road to Balanced Policy 107
The Disruptive Political Effects 115
8. Food Policy Begins at Home 121
9. Trade Policy 129
Competing Trade Concerns 129
The Crisis in Trade Policy 134
The Nixon Administration Response 137
The Nixon Trade Proposal 143
10. The Trade Bill in the House, 1973 150
Background 151
The Ways and Means Committee Markup 155
The Bill as a Whole 162
To the House Floor 165
11. The Trade Bill in the Senate, 1974 168
Background 169
The Finance Committee Markup 172
A More Restrictive Bill 184
Strategy for the Senate Floor 184
The Trade Act of 1974 188
12. Trade Policymaking: Politics and Organization 191
The Immediate Aftermath 193
The Carter Administration 197
Completion of the MTN 200
The Role of Strauss and STR 202
Trade Reorganization? 206
13. Coordinating Foreign Economic Policy 211
The Limits of Centralization 211
Location of a Coordinating Staff 217
Recommendations 227
Appendix 229
Index 231