Public opinion is a significant consideration when deciding on and pursuing negotiations. However, research on the effects of public opinion on diplomacy has been somewhat contradictory and normative. Some analysts tend to view public opinion as irrational and underline that a government should lead rather than follow public opinion. They regard government as the actor that is most capable of conducting rational foreign policymaking (Craig George 1990) However, a contrasting argument assumes that public opinion is more rational, just, and moral than governments are, and thus public opinion should always be seriously considered (Watson 1983:137). This disagreement reflects difficulties in the concept of public opinion itself. Among a given public, there are often variety of opinions on both domestic and international issues. Public opinion may therefore be interpreted in different ways, and is also dependent on how political leaders frame the issues in question (Eban 1983 349 3s2, sofer i988t 203).