Once a President establishes an official policy, its implementation requires the cooperation and support of subordinate officers in the bureaucracy. Starting in 1936, the Soviet Union made repeated efforts to purchase naval vessels from the United States.
Maddux, Thomas R.
"United States-Soviet Naval Relations in the 1930's: The Soviet Union's Efforts to Purchase Naval Vessels,"
Naval War College Review: Vol. 29
, Article 5.
Available at: http://digital-commons.usnwc.edu/nwc-review/vol29/iss4/5