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Nasser’s plan, as noted above, was to alter the operating environment as an essential prerequisite to negotiations with Israel. This illustrates a critical point: In a great many negotiating situations, environmental alteration is necessary if there is to be any real prospect for convergence on a mutually acceptable formula. "Negotiability" is not just a matter of will, but a product of circumstance. In this case, the Egyptian achievement took most people
by surprise. Although Egypt was actually defeated in the conflict, its military reputation and diplomatic standing improved dramatically. This case illustrates the importance, for the purpose of understanding negotiations, of looking at the power instruments available to actors. It also illustrates the difficulty in making an accurate estimate of available power instruments.
To understand the capability of the various negotiators in a negotiating situation, the analyst must clearly identify the centrality of the negotiating purpose within the strategic/ tactical thinking of the respective governments. If the negotiations serve a central purpose, a major effort to use the government's power instruments to alter the environment should be expected. Those instruments, it should be noted, will not be exclusively military. They may include economic instruments, clandestine political instruments, communications instruments, and even diplomatic instruments. For thirteen years, for example, the British government tried to force the government of Ian Smith to negotiate an end to white control in Rhodesia purely by application of economic sanctions.
The environmental alteration desired may be perceptual and attitudinal, as well as one of capability. Indeed, the alteration may involve all three elements. In the view of the Reagan administration, an improvement of the U.S. capability led to a Soviet perception of strength of purpose by the United States, and this, in turn, made the Soviets more willing to negotiate seriously. Such an effort is far less likely in support of negotiations that relate to questions of lesser priority.
To sum up, if the negotiations serve a central strategic/ tactical purpose, the negotiator may be able to change the relevant environment significantly. The analyst, in describing the negotiating milieu, should note whether the negotiators are in a position to make a case for such use of power instruments and, if so, should determine the government best able to make alterations favorable to its preferred formula in resolving the issue under negotiation.
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