States do not make policy: governments do. In foreign policy, as in domestic policy, they make their plans and take their decisions under pressure from a number of different sources. The international environment exerts a constant and restraining pressure, as we have seen. The process of domestic politics, arguably, exerts a similar restraint. The pressure of events and of the flow of incoming information, the ever-present pressure of time, and the limitations imposed by the structure of government all crowd in on the policy-maker.
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