THE question of by what means foreign policy can be controlled is chiefly a functional one. It has institutional implications, but the main question is that of how a given function, that of control over foreign policy, is actually fulfilled. It is limited in scope and has few interdisciplinary references except in so far as history is concerned. On the other hand, there are a great number of other complications, partly caused by vague and undefined basic concepts.

Democratic control, of course, means control by the people. But how does the people act in matters of this type? It has frequently been assumed ...

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