{"id":24327,"date":"2025-05-05T10:32:02","date_gmt":"2025-05-05T17:32:02","guid":{"rendered":"https:\/\/dornsife.usc.edu\/news\/?p=24327"},"modified":"2025-05-05T10:32:04","modified_gmt":"2025-05-05T17:32:04","slug":"national-security-advisers-manage-decision-making-as-advocates-or-honest-brokers","status":"publish","type":"post","link":"https:\/\/dornsife.usc.edu\/news\/stories\/national-security-advisers-manage-decision-making-as-advocates-or-honest-brokers\/","title":{"rendered":"National security advisers manage decision-making as advocates or honest\u00a0brokers"},"content":{"rendered":"\n\n\n    \n                                          \n\n  \n    \n\n\n\n\n\n\n<div\n  class=\"cc--component-container cc--article-hero \"\n\n  \n  \n  \n  \n  \n  \n  >\n  <div class=\"c--component c--article-hero\"\n    \n      >\n\n    \n<div class=\"inner-wrapper\">\n          \n<div class=\"f--field f--image\">\n\n    \n    \n    \n    \n    \n    \n              \n      <img\n                            data-src=\"https:\/\/dornsife.usc.edu\/news\/wp-content\/uploads\/sites\/7\/2025\/05\/Mike_Waltz_NSA_Top-768x432.jpg\"\n          data-srcset=\"https:\/\/dornsife.usc.edu\/news\/wp-content\/uploads\/sites\/7\/2025\/05\/Mike_Waltz_NSA_Top-1920x1080.jpg 1920w,https:\/\/dornsife.usc.edu\/news\/wp-content\/uploads\/sites\/7\/2025\/05\/Mike_Waltz_NSA_Top-1280x720.jpg 1280w,https:\/\/dornsife.usc.edu\/news\/wp-content\/uploads\/sites\/7\/2025\/05\/Mike_Waltz_NSA_Top-768x432.jpg 768w\"          data-sizes=\"(min-width:1200px) 75vw, (min-width:768px) 83vw, 100vw\"          class=\"lazyload\"\n        \n                  alt=\"Mike Waltz in coat and tie looks to his right\"\n        \n        \n                                      \/>\n\n    \n    \n  \n  \n\n<\/div>\n  \n      <div class=\"image-caption\">\n          \n<div class=\"f--field f--description\">\n\n    \n  Mike Waltz served as President Donald Trump\u2019s national security advisor from Jan. 20 to May 1. (Photo: Gage Skidmore.)\n\n\n<\/div>\n    <\/div>\n  \n  <div class=\"text-wrapper\">\n          <nav aria-label=\"Breadcrumb\" class=\"breadcrumbs\">\n        <ul>\n                      <li><a href=\"\/news\/stories\/\">News<\/a><\/li>\n                      <li><a href=\"\/news\/stories\/\/?category=politics\">Politics<\/a><\/li>\n                  <\/ul>\n      <\/nav>\n    \n              \n<div class=\"f--field f--page-title\">\n\n    \n  <h1>National security advisers manage decision-making as advocates or honest\u00a0brokers<\/h1>\n\n\n<\/div>\n    \n          <div class=\"subtitle\">\n            \n<div class=\"f--field f--description\">\n\n    \n  In foreign affairs, the national security adviser plays a coordinating role, setting the flow of recommendations to the National Security Council and the president.\n\n\n<\/div>\n      <\/div>\n    \n           <strong class=\"author-field\"><span >By<\/span><a href=\"mailto:communication@dornsife.usc.edu\">Gregory F. Treverton<\/a><\/strong>\n    \n          <span class=\"post-date-field\">May 5, 2025<\/span>\n      <\/div>\n<\/div>\n\n\n  <\/div><\/div>\n\n  \n    \n\n\n\n\n\n\n<div\n  class=\"cc--component-container cc--social-share \"\n\n  \n  \n  \n  \n  \n  \n  >\n  <div class=\"c--component c--social-share\"\n    \n      >\n\n    \n  <div class=\"content-wrapper\">\n    <span class=\"a2a_kit a2a_kit_size_32 addtoany_list\" style=\"line-height: 32px;\">\n      <span class=\"title\">\n        Share\n      <\/span>\n                        <a class=\"a2a_button_copy_link\" target=\"_blank\" href=\"\/#copy_link\" rel=\"nofollow noopener\" title=\"Link\">\n            <span class=\"a2a_svg a2a_s__default a2a_s_copy_link\">\n              <svg height=\"19\" viewBox=\"0 0 19 19\" width=\"19\" xmlns=\"http:\/\/www.w3.org\/2000\/svg\"><path d=\"m7.43475275 9.52380952-2.17490843 2.26076008c-1.08745421 1.058837-1.68841575 2.518315-1.68841575 4.0350275 0 1.5167124.60096154 2.9475732 1.68841575 4.0350274 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href=\"https:\/\/www.washingtonpost.com\/national-security\/2025\/05\/01\/mike-waltz-trump-national-security-adviser\/\" target=\"_blank\" rel=\"noopener\">The removal of Mike Waltz<\/a> as President Donald Trump\u2019s national security adviser \u2014 formally the <a href=\"https:\/\/ndisc.nd.edu\/news-media\/news\/what-is-the-role-of-the-national-security-advisor\/\" target=\"_blank\" rel=\"noopener\">assistant to the president for national security affairs<\/a> \u2014 raises the question of just what that position entails and also what it means that Marco Rubio will now act as secretary of state and national security adviser.<\/p>\n<p>The <a href=\"https:\/\/history.state.gov\/milestones\/1945-1952\/national-security-act\" target=\"_blank\" rel=\"noopener\">National Security Act of 1947<\/a> created the <a href=\"https:\/\/www.usa.gov\/agencies\/national-security-council\" target=\"_blank\" rel=\"noopener\">National Security Council<\/a> to advise the president on matters of national security. It\u2019s also tasked with integrating domestic, foreign and military policies.<\/p>\n<p>But the national security adviser position is neither enshrined in law nor accountable to Congress.<\/p>\n<p>I\u2019m an <a href=\"https:\/\/dornsife.usc.edu\/spatial\/profile\/gregory-f-treverton\/\" target=\"_blank\" rel=\"noopener\">economist and international relations scholar<\/a> who has worked with three national security advisers \u2014 <a href=\"https:\/\/www.nytimes.com\/2017\/05\/26\/us\/zbigniew-brzezinski-dead-national-security-adviser-to-carter.html\">Zbigniew Brzezinski<\/a>, <a href=\"https:\/\/clintonwhitehouse4.archives.gov\/WH\/EOP\/NSC\/html\/bergerbio.html\" target=\"_blank\" rel=\"noopener\">Samuel \u201cSandy\u201d Berger<\/a> and <a href=\"https:\/\/www.american.edu\/sis\/faculty\/srice.cfm\" target=\"_blank\" rel=\"noopener\">Susan Rice<\/a>.<\/p>\n<p>I\u2019ve seen the job up close. The core of the national security adviser\u2019s role is managing the national security decision-making process, as decisions on issues from Ukraine to Gaza to nuclear proliferation are made. It\u2019s a coordinating role.<\/p>\n<h2>Honest broker<\/h2>\n<p>National security advisers set the timing and flow of policy analysis and recommendations to the National Security Council committees \u2014 first, the <a href=\"https:\/\/www.belfercenter.org\/research-analysis\/explainer-us-national-security-council-nsc\" target=\"_blank\" rel=\"noopener\">principals committee<\/a>, which brings together the Cabinet secretaries with national security responsibilities from the State Department, Department of Defense, the CIA and others.<\/p>\n<p>While the principals committee typically rarely meets and virtually never with the president in the chair, not so the <a href=\"https:\/\/www.congress.gov\/crs-product\/R44828\" target=\"_blank\" rel=\"noopener\">deputies committee<\/a>. That committee brings together the Nos. 2 and 3 in the same departments.<\/p>\n<p>In my most recent stint in Washington as chair of the National Intelligence Council in the Obama administration, the deputies committee met almost every day, sometimes more than once. Its formal role is to tee up issues for decision by the principals and the president.<\/p>\n<p>National security advisers have the advantage of proximity to the president, with an office footsteps from the Oval, as it is known in Washington lingo. They also manage a relatively lean staff.<\/p>\n<p>In my time on the National Security Council staff in the Carter administration, it was perhaps 150 all told, including the watch officers in the White House Situation Room. In the Biden administration it was on the order of 350 staff.<\/p>\n<p>For us National Security Council staffers, if we disagreed with our counterparts at the State Department or the Defense Department, we could let the principals decide. We knew that we could get to Brzezinski faster, for example, than they could get to their Cabinet secretaries.<\/p>\n<p>In Washington, proximity is opportunity. And, not surprisingly, national security advisers since <a href=\"https:\/\/www.britannica.com\/biography\/McGeorge-Bundy\" target=\"_blank\" rel=\"noopener\">McGeorge Bundy<\/a> in the John F. Kennedy and Lyndon B. Johnson administrations have become central figures in the foreign policy arena. The have had to manage the balance between seeking to influence the president and remaining an honest broker.<\/p>\n<p>As <a href=\"https:\/\/dgi.umd.edu\/sites\/default\/files\/2019-07\/how_national_security_advisors.pdf\" target=\"_blank\" rel=\"noopener\">Berger put it<\/a>, \u201cYou have to be perceived by your colleagues as an honest representative of their viewpoint, or the system breaks down.\u201d<\/p>\n<h2>Managing the tension<\/h2>\n<p>National security advisers have managed the tension in their roles in different ways. And two models of those roles have emerged.<\/p>\n<p><a href=\"https:\/\/theconversation.com\/a-tortured-and-deadly-legacy-kissinger-and-realpolitik-in-us-foreign-policy-192977\">Henry Kissinger<\/a>, who served Presidents Richard Nixon and Gerald Ford, was a powerful strategist driving presidential policy, often bypassing traditional channels. He, like <a href=\"https:\/\/www.nytimes.com\/2025\/05\/01\/us\/politics\/marco-rubio-national-security-secretary-state.html\" target=\"_blank\" rel=\"noopener\">Secretary of State Marco Rubio<\/a> will do, served a dual role from 1973 to 1975 as national security adviser and secretary of state. Condoleezza Rice, the national security adviser who served George W. Bush, also later became secretary of state.<\/p>\n<p><a href=\"https:\/\/bush.tamu.edu\/scowcroft\/about\/\" target=\"_blank\" rel=\"noopener\">Brent Scowcroft<\/a>, who served both Ford and President George H. W. Bush, is the exemplar of the other model \u2212 an \u201chonest broker\u201d ensuring a fair, collegial policy process. He was the consummate insider: low-key, meticulous about process and influencing through quiet proximity. The Bush administration he served was also, as described by a friend, as collegial as the men\u2019s locker room of an upscale country club. Still, while I never had the chance to work with him, he is my standard for the role of national security adviser.<\/p>\n<p>Waltz served too briefly to evaluate his record. It\u2019s ironic that what seems to have done him in was the <a href=\"https:\/\/www.theguardian.com\/us-news\/2025\/apr\/06\/signal-group-chat-leak-how-it-happened\" target=\"_blank\" rel=\"noopener\">Signalgate scandal<\/a>, in which Waltz added a journalist to a Signal group chat in which government officials discussed details about a planned U.S. military strike in Yemen.<\/p>\n<p>That was an example of Waltz\u2019s coordinating role, bringing most of the relevant policy officials together to discuss an important issue. The purpose was right, but the means was extremely unwise.<\/p>\n<h2>Learning from the past<\/h2>\n<p>Historically, the worst crisis of the National Security Council system ensued when it sought to conduct operations, not just organize them. That was the case in the <a href=\"https:\/\/www.britannica.com\/event\/Iran-Contra-Affair\" target=\"_blank\" rel=\"noopener\">Iran-Contra affair of the Reagan administration<\/a>.<\/p>\n<p><a href=\"https:\/\/www.brown.edu\/Research\/Understanding_the_Iran_Contra_Affair\/profile-mcfarlane.php\" target=\"_blank\" rel=\"noopener\">Robert McFarlane took over as national security adviser<\/a> in October 1983. <a href=\"https:\/\/www.usni.org\/people\/robert-c-mcfarlane\" target=\"_blank\" rel=\"noopener\">A former Marine officer<\/a> and deputy national security adviser, he was conscientious to a fault: In one meeting while he was consulting during the transition from President George H. W. Bush to President Bill Clinton, we asked him about work hours. He replied: \u201cThey\u2019re not bad. I\u2019m out of here by eight most nights, earlier on Sunday.\u201d<\/p>\n<p>He was done in by Iran-Contra, a clandestine effort run by the National Security Council to trade arms to Iran \u2014 then under a U.S. arms embargo \u2014 in hopes of freeing American hostages, with proceeds diverted to fund the Nicaraguan Contras, despite a congressional ban on funding them. He pleaded guilty in 1988 to <a href=\"https:\/\/www.washingtonpost.com\/archive\/politics\/1988\/03\/12\/mcfarlane-enters-guilty-plea-arising-from-iran-contra-affair\/0eac6fcb-367e-4a41-bf65-dd9d067a0537\/\" target=\"_blank\" rel=\"noopener\">withholding information from Congress<\/a>.<\/p>\n<p>It\u2019s a telling lesson for Rubio and other Waltz successors as the national security adviser of the dangers of moving from honest broker and quiet advocate to operator \u2014 especially if the operation is contrary to public U.S. policy and perhaps against the law.<\/p>\n<p><em>This story is part of a <a href=\"https:\/\/theconversation.com\/topics\/cabinet-profile-168416\" target=\"_blank\" rel=\"noopener\">series of profiles<\/a> of Cabinet and high-level administration positions.<\/em><!-- Below is The Conversation's page counter tag. Please DO NOT REMOVE. --><img loading=\"lazy\" decoding=\"async\" style=\"border: none !important; box-shadow: none !important; margin: 0 !important; max-height: 1px !important; max-width: 1px !important; min-height: 1px !important; min-width: 1px !important; opacity: 0 !important; outline: none !important; padding: 0 !important;\" src=\"https:\/\/counter.theconversation.com\/content\/255760\/count.gif?distributor=republish-lightbox-basic\" alt=\"The Conversation\" width=\"1\" height=\"1\" \/><!-- End of code. If you don't see any code above, please get new code from the Advanced tab after you click the republish button. The page counter does not collect any personal data. More info: https:\/\/theconversation.com\/republishing-guidelines --><\/p>\n<p><a href=\"https:\/\/theconversation.com\/profiles\/gregory-f-treverton-392037\">Gregory F. Treverton<\/a>, Professor of Practice in <a href=\"https:\/\/dornsife.usc.edu\/poir\/\">International Relations<\/a>, <em><a href=\"https:\/\/theconversation.com\/institutions\/usc-dornsife-college-of-letters-arts-and-sciences-2669\">USC Dornsife College of Letters, Arts and Sciences<\/a><\/em><\/p>\n<p>This article is republished from <a href=\"https:\/\/theconversation.com\" target=\"_blank\" rel=\"noopener\">The Conversation<\/a> under a Creative Commons license. Read the <a href=\"https:\/\/theconversation.com\/national-security-advisers-manage-decision-making-as-advocates-or-honest-brokers-255760\" target=\"_blank\" rel=\"noopener\">original article<\/a>.<\/p>\n\n\n\n<\/div>\n\n\n  <\/div><\/div>\n\n\n\n  \n        \n  \n    \n\n\n\n\n\n\n<div\n  class=\"cc--component-container cc--article-related-stories \"\n\n  \n  \n  \n  \n  \n  \n  >\n  <div class=\"c--component c--article-related-stories\"\n    \n      >\n\n    \n  <div class=\"inner-wrapper\">\n              \n<div class=\"f--field f--section-title\">\n\n    \n  <h2>\n          Related Articles\n      <\/h2>\n\n\n<\/div>\n    \n                  <article>\n              \n<div class=\"f--field f--cta-title\">\n\n    \n  <h3>\n          <a href=\"https:\/\/dornsife.usc.edu\/news\/stories\/the-us-founders-other-revolutionary-choice-separating-religion-and-government\/\" \n                        class=\"\" \n      >The US founders\u2019 other revolutionary choice: Separating religion 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<\/article>\n            <\/div>\n\n\n  <\/div><\/div>\n","protected":false},"excerpt":{"rendered":"<p>In foreign affairs, the national security adviser plays a coordinating role, setting the flow of recommendations to the National Security Council and the president, explains Gregory Treverton of political science and international relations.<\/p>\n","protected":false},"author":14,"featured_media":24335,"comment_status":"closed","ping_status":"closed","sticky":false,"template":"","format":"standard","meta":{"_acf_changed":false,"footnotes":""},"categories":[10,50],"tags":[87,200,119,83],"class_list":["post-24327","post","type-post","status-publish","format-standard","has-post-thumbnail","hentry","category-faculty","category-politics","tag-expert-viewpoint","tag-government","tag-political-science-and-international-relations","tag-the-conversation"],"acf":[],"yoast_head":"<!-- This site is optimized with the Yoast SEO plugin v27.7 - https:\/\/yoast.com\/product\/yoast-seo-wordpress\/ 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