Our second assumption of complex interdependence, the lack of clear hierarchy among multiple issues, leads us to expect that the politics of agenda formation and control will become more important.
Traditional analyses lead statesmen to focus on politico-military issues and to pay little attention to the broader politics of agenda formation.
Statesmen assume that the agenda will be set by shifts in the balance of power, actual or anticipated, and by perceived threats to the security of states.
Other issues will only be very important when they seem to affect security and military power. In these cases, agendas will be influenced strongly by considerations of the overall balance of power.