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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