What does a President do if he doesn’t believe he can trust his own State Department diplomats to conduct foreign policy the way he wishes? Find someone he can trust and send them instead. That’s exactly what Trump did when he tapped Giuliani. And Trump certainly wasn’t the first, and he won’t be the last.
from Real Clear Investigations:
Giuliani-Style ‘Shadow’ Diplomacy: Par for the Course for U.S. Presidents
Rudolph Giuliani didn’t hide the fact that he was investigating whether Ukraine interfered in the 2016 U.S. presidential race. Yet most media have treated Giuliani’s efforts as sneaky and suspect because he acted at the personal behest of the president and not as an official representative of the bureaucracy. The New York Times, for example, claimed Giuliani was conducting “a shadow foreign policy campaign.”
In fact, presidents since George Washington have turned to individuals without formal government positions to pursue foreign policy interests and objectives. Private citizens, often acting as special envoys, have helped negotiate issues ranging from trade to war. While critics deride such efforts as “back-door,” “secret,” or “shadow” undertakings, many presidents have found it useful to dispatch people they trust, who can think and operate outside the constraints of official channels in handling delicate matters.