While war is most effectively waged as a united effort, the United States has consistently waged military conflict without firm central direction. Throughout our history, observes Michael Pearlman, the waging of war has been subject to continuous bargaining and compromise among competing governmental and military factions. What passes for strategy emerged from this process.

Warmaking and American Democracy is the first comprehensive study of American war strategy in its domestic context. It shows how internal divisions--between political parties, presidents and Congress, elected...