The Past as Political Terrain: How National Leaders Navigate Memories of 9/11

ABSTRACT Political leaders construct meanings for current events in support of their existing policy goals, but the constructed meanings do not change when policy goals change. Consequently, the established narrative of the past becomes part of the policymaking terrain, justifying existing policies and creating criteria for policy success. It must be navigated by leaders seeking to reach their policy objectives. References made by U.S. and Israeli political leaders to the event known as “9/11” from 2002 through 2019 reveal how they renegotiated its meaning as their policy goals evolved. Policy goals at the time of the event shaped the meanings made of the event. As policy goals changed, existing meanings could not be discarded or reshaped at will, nor could 9/11 simply be forgotten. Instead, leaders navigated and amended the inescapable public memory of 9/11 to support varying policy goals over a 20-year time span. For Israel, 9/11 made a chronic problem an international cause célèbre, offering potential to generate international response to a commonly marginalized threat, a narrative prime ministers sought to adapt as their policy goals changed. In the U.S. the George W. Bush Administration’s narrative of 9/11 promoted and sustained the administration’s policies and goals, making it difficult for Barack Obama’s administration to change course unless it could tell a different story. Both cases demonstrate that arguments made for or against policies are contingent upon how the past is narrated. Collective remembrance can affect the contours of public policy, for the remembered past constitutes the terrain of policymaking.