Zbigniew Brzezinski - As Carter's National Security Advisor

As Carter's National Security Advisor

President Carter chose Zbigniew Brzezinski for the position of National Security Adviser (NSA) because he wanted an assertive intellectual at his side to provide him with day-to-day advice and guidance on foreign policy decisions. Brzezinski would preside over a reorganized National Security Council (NSC) structure, fashioned to ensure that the NSA would be only one of many players in the foreign policy process.

Brzezinski's task was complicated by his (hawkish) focus on East-West relations in an administration where many cared a great deal about North-South relations and human rights.

Initially, Carter reduced the NSC staff by one-half and decreased the number of standing NSC committees from eight to two. All issues referred to the NSC were reviewed by one of the two new committees, either the Policy Review Committee (PRC) or the Special Coordinating Committee (SCC). The PRC focused on specific issues, and its chairmanship rotated. The SCC was always chaired by Brzezinski, a circumstance he had to negotiate with Carter to achieve. Carter believed that by making the NSA chairman of only one of the two committees, he would prevent the NSC from being the overwhelming influence on foreign policy decisions it had been under Kissinger's chairmanship during the Nixon administration. The SCC was charged with considering issues that cut across several departments, including oversight of intelligence activities, arms control evaluation, and crisis management. Much of the SCC's time during the Carter years was spent on SALT issues.

The Council held few formal meetings, convening only 10 times, compared with 125 meetings during the 8 years of the Nixon and Ford administrations. Instead, Carter used frequent, informal meetings as a decision-making device, typically his Friday breakfasts, usually attended by the Vice President, the secretaries of State and Defense, Brzezinski, and the chief domestic adviser. No agendas were prepared and no formal records were kept of these meetings, sometimes resulting in differing interpretations of the decisions actually agreed upon. Brzezinski was careful, in managing his own weekly luncheons with secretaries Vance and Brown in preparation for NSC discussions, to maintain a complete set of notes. Brzezinski also sent weekly reports to the President on major foreign policy undertakings and problems, with recommendations for courses of action. President Carter enjoyed these reports and frequently annotated them with his own views. Brzezinski and the NSC used these Presidential notes (159 of them) as the basis for NSC actions.

From the beginning, Brzezinski made sure that the new NSC institutional relationships would assure him a major voice in the shaping of foreign policy. While he knew that Carter would not want him to be another Kissinger, Brzezinski also felt confident that the President did not want Secretary of State Vance to become another Dulles and would want his own input on key foreign policy decisions.

Brzezinski's power gradually expanded into the operational area during the Carter Presidency. He increasingly assumed the role of a Presidential emissary. In 1978, for example, Brzezinski traveled to Beijing to lay the groundwork for normalizing U.S.–PRC relations. Like Kissinger before him, Brzezinski maintained his own personal relationship with Soviet Ambassador Dobrynin. Brzezinski had NSC staffers monitor State Department cable traffic through the Situation Room and call back to the State Department if the President preferred to revise or take issue with outgoing State Department instructions. He also appointed his own press spokesman, and his frequent press briefings and appearances on television interview shows made him a prominent public figure, although perhaps not nearly as much as Kissinger had been under Nixon.

The Soviet military invasion of Afghanistan in December 1979 significantly damaged the already tenuous relationship between Vance and Brzezinski. Vance felt that Brzezinski's linkage of SALT to other Soviet activities and the MX, together with the growing domestic criticisms in the United States of the SALT II Accord, convinced Brezhnev to decide on military intervention in Afghanistan. Brzezinski, however, later recounted that he advanced proposals to maintain Afghanistan's independence but was frustrated by the Department of State's opposition. An NSC working group on Afghanistan wrote several reports on the deteriorating situation in 1979, but President Carter ignored them until the Soviet intervention destroyed his illusions. Only then did he decide to abandon SALT II ratification and pursue the anti-Soviet policies that Brzezinski proposed.

The Iranian revolution was the last straw for the disintegrating relationship between Vance and Brzezinski. As the upheaval developed, the two advanced fundamentally different positions. Brzezinski wanted to control the revolution and increasingly suggested military action to prevent Ayatollah Khomeini from coming to power, while Vance wanted to come to terms with the new Islamic Republic of Iran. As a consequence, Carter failed to develop a coherent approach to the Iranian situation. In the growing crisis atmosphere of 1979 and 1980 due to the Iranian hostage situation, the Soviet invasion of Afghanistan, and a deepening economic crisis, Brzezinski's anti-Soviet views gained influence but could not end the Carter administration's malaise. Vance's resignation following the unsuccessful mission to rescue the American hostages in March 1980, undertaken over his objections, was the final result of the deep disagreement between Brzezinski and Vance.