IN MATTERS of foreign policy, Congress, and especially the Senate, was designed as a hedge against the abuses exhibited by overeager European monarchs who for centuries had whimsically entangled their countries in misguided adventures. America would not be such a place. The Constitution would protect our governmental process from the overreach of a single executive who might otherwise succumb to the impulsive temptation to unilaterally risk our country’s blood, treasure and international prestige. Congress was given the power to declare war and appropriate funds, thus eliminating any resemblance to European-style monarchies when it came to the presidential war power.
Importantly and often forgotten these days, Article I, Section 8 of the Constitution was also carefully drawn to give Congress, not the president, certain powers over the structure and use of the military. True, the president would act as commander in chief, but only in the sense that he would be executing policies shepherded within the boundaries of legislative powers. In some cases his power is narrowed further by the requirement that he obtain the “Advice and Consent” of two-thirds of the Senate. Congress, not the president, would “raise and support Armies,” with the Constitution limiting appropriations for such armies to no more than two years. This was a clear signal that in our new country there would be no standing army to be sent off on foreign adventures at the whim of a pseudomonarch. The United States would not engage in unchecked, perpetual military campaigns.
Congress would also “provide and maintain a Navy,” with no time limit on such appropriations. This distinction between “raising” an army and “maintaining” a navy marked a recognition of the reality that our country would need to protect vital sea-lanes as a matter of commercial and national security, confront acts of piracy—the eighteenth-century equivalent of international terrorism—and act as a deterrent to large-scale war.
Practical circumstances have changed, but basic philosophical principles should not. We reluctantly became a global military power in the aftermath of World War II, despite our initial effort to follow historical patterns and demobilize. NATO was not established until 1949, and the 1950 invasion of South Korea surprised us. In the ensuing decades, the changing nature of modern warfare, the growth of the military-industrial complex and national-security policies in the wake of the Cold War all have contributed to a mammoth defense structure and an atrophied role for Congress that would not have been recognizable when the Constitution was written. And there is little doubt that Dwight D. Eisenhower, who led the vast Allied armies on the battlefields of Europe in World War II and who later as president warned ominously of the growth of what he himself termed the “military-industrial complex,” is now spinning in his tomb.
Perhaps the greatest changes in our defense posture and in the ever-decreasing role of Congress occurred in the years following the terrorist attacks on U.S. soil of September 11, 2001. Powers quickly shifted to the presidency as the call went up for centralized decision making in a traumatized nation where quick, decisive action was considered necessary. It was considered politically dangerous and even unpatriotic to question this shift, lest one be accused of impeding national safety during a time of war. Few dared to question the judgment of military leaders, many of whom were untested and almost all of whom followed the age-old axiom of continually asking for more troops, more money and more authority. Members of Congress fell all over themselves to prove they were behind the troops and behind the wars.
Hundreds of billions of dollars were voted for again and again in barely examined “emergency” supplemental appropriations for programs to support our ever-expanding military operations. At the same time, party loyalties over a range of contentious policy decisions became so strong that it often seemed we were mimicking the British parliamentary system, with members of Congress lining up behind the president as if he were a prime minister—first among Republicans with George W. Bush and then among Democrats with Barack Obama. And along the way, Congress lost its historic place at the table in the articulation and functioning of national-security policy.
This is not the same Congress that eventually asserted itself so strongly into the debate over the Vietnam War when I was serving on the battlefield of that war as a Marine infantry officer. It is not the Congress in which I served as a full committee counsel during the Carter administration and the early months following the election of Ronald Reagan. It is not the Congress, fiercely protective of its powers, that I dealt with regularly during the four years I spent as an assistant secretary of defense and as secretary of the navy under Reagan.