Turf-fighting is a way of life at the State Department, as in much of the federal government. The department’s complex and varied responsibilities have, over time, led to an organizational chart that has defied multiple attempts at rationalization. Its internal culture has simultaneously grown more entrenched. The Foreign Service is perhaps the government’s strongest civilian bureaucracy, buttressed by the department’s civil-service employees.
This is not the “deep state” so attractive to conspiracy theorists but a species of bureaucratic culture possessed by every federal department and agency and well-explored in public-choice economics. The State Department’s cadres instinctively resist political direction and control, trying to emulate the centuries-long insulation from politics of Europe’s foreign ministries. My own experience led me to conclude in Surrender Is Not an Option that the only solution to the department’s formidable bureaucracy is a “cultural revolution,” one that will take years to accomplish since the culture itself took many decades to evolve.
Every secretary of state, therefore, faces massive obstacles to giving new directions to their bureaucracy, especially Republicans, including President-elect Donald Trump’s secretary of state nominee, Sen. Marco Rubio (R-FL). Worryingly, however, Trump has announced multiple appointments that could add serious complications to Rubio’s leadership and ability to successfully implement the administration’s foreign policy.
None of these Trumpian decisions are fatal, nor are further confusion, obstructionism, turf-fighting, backbiting, leaking to the press, and a generally Hobbesian foreign-policy involvement. Perhaps sweetness and light will prevail. However, the risk is palpable that Rubio’s enormous responsibilities will be considerably more difficult because of assignments and personalities he may have had a precious little role in deciding.
Trump’s practice is superficially similar to prior administrations: The White House routinely makes political appointments, while the State Department proposes career ambassadors. Critically different, however, are the natures of the positions being filled (or created), the unprecedented reality that some are already performing their “duties,” and whether they have direct access to Trump. By contrast, Rubio has kept a low-profile since being tapped, the customary approach before Senate confirmation.
For example, Trump chose Rep. Elise Stefanik (R-NY) as his U.S. ambassador to the United Nations before announcing Rubio, similar to 2016 when Trump picked Nikki Haley before Rex Tillerson. That did not turn out felicitously, either for Tillerson or his successor, Mike Pompeo. Whether or not our U.N. ambassador has Cabinet rank (and my view has always been “should not”), there can only be one secretary of state. Other opinions are welcome, but the department can only have one boss. Take my word. You have to watch those U.N. ambassadors.
Matt Whittaker, tipped for senior Justice Department roles (and perhaps still Plan B for FBI director), is to be our NATO Ambassador. Trump’s negative views on NATO are well-known, whereas Rubio has always been a strong NATO advocate. Will Whitaker report directly to Trump or to Rubio, and with what effect?
There is no doubt Keith Kellogg will have a direct line to Trump in his coming, newly-created role as assistant to the president and special envoy for Ukraine and Russia. Assistants to the president serve in his executive office, not at the State Department or another department. Trump once told me, “You know I wanted [Keith] as national security adviser after [H.R.] McMaster. He never offers his opinion unless I ask.”
This is the very paradigm of the fealty Trump wants from subordinates. Who knows what role Rubio will have in Ukraine policy?
The list of newly-concocted positions goes on: Massad Boulos, Tiffany Trump’s father-in-law, as senior adviser to the president on Arab and Middle Eastern affairs, and Steve Witkoff, a Trump family friend, as special envoy for the Middle East. Ever since Henry Kissinger and then Jim Baker, those roles have been for the secretary of state personally. Two more newly-forged, ambassadorial-style positions will go to first-term alumni: Richard Grenell as presidential envoy for special missions, “including Venezuela and North Korea,” and Mauricio Claver-Carone as the State Department’s special envoy to Latin America, which presumably still includes Venezuela. However, with Ukraine covered by Kellogg and two envoys already working in the Middle East, Grenell’s exact role is unclear.
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Perhaps for belt-and-suspender purposes, the president-elect has not only nominated Warren Stephens, a respected investment banker, to be ambassador to the United Kingdom but just weeks later named Mark Burnett, producer of the former president’s television show The Apprentice, as special envoy to the U.K. Donald Trump said Burnett would “work to enhance diplomatic relations, focusing on areas of mutual interest, including trade, investment opportunities, and cultural exchanges,” which sounds suspiciously like the ambassador’s job.
Of course, all these appointees could also complicate the National Security Council’s interagency process, so Rubio will not likely be the only top-level Trump official wondering, “Who’s on first?” There may be more: Donald Trump hasn’t even taken office yet.
John Bolton served as national security adviser to then-President Donald Trump between 2018 and 2019. Between 2005 and 2006, he served as U.S. ambassador to the United Nations.
This article was originally published at www.washingtonexaminer.com
