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International Order in A Globalizing World Intro
International Order in A Globalizing World Intro
An Introduction
Yannis A. Stivachtis
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An Introduction
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so on. They are considered to be secondary in the sense that their function depends
on how adequately the primary institutions of international society function.
However, members of the English School do not agree on what these institutional
mechanisms are. For example, Wight (1977) identifies various institutions of premodern international societies including: messengers, conferences and congresses,
trade, diplomatic language, religious sites and festivals. With reference to the
modern international society, he identifies diplomacy, alliances, guarantees, war, and
neutrality as the primary institutions of international society (Wight 1979, 11112).
Elsewhere, he speaks of arbitration, international law, sovereignty, and balance of
power but he does not draw together his various comments on institutions into a
coherent discussion (Wight 1977, 11052).
Bull puts institutions on the map for the English School by identifying five such
mechanisms. First, a balance of power that is contrived by states and serves the
goal of maintaining the system, preserving the independence of states, and providing
the conditions on which other institutions of international order depend. Deterrence
is seen as one element in the balance of power mechanism (Bull 2002, 12126;
Vincent 1990). Second, international law that represents a body of rules that binds
states and other agents in world politics to one another and is considered to have the
status of law (Bull 2002, Chapter 6). Third, diplomacy that reflects states efforts to
influence the behavior of other states through bargaining and the use of various nonmilitary activities (Bull 2002, Chapter 7). Fourth, management by the great powers
which have the responsibility to promote international order by pursuing policies
which work for, rather than against, it. They manage their relations in the interest of
international order by preserving the general balance of power, working to avoid or
control crises, seeking to limit or contain war among them, unilaterally exploiting
their local preponderance to maintain order, agreeing to respect each others spheres
of influence, and acting jointly in concert when necessary (Bull 2002, Chapter 9).
Fifth, war, which is the most problematic mechanism to maintain order, as it can
also be viewed as a sign of its breakdown (Bull 2002, Chapter 8). Bull argued that
under certain conditions war can be the way for an international society to achieve
its own purposes and enforce international law. It is accepted as a necessary means
to preserve the balance of power.
As it was mentioned earlier, the relevance and nature of some of these institutions
to international order has changed over the course of the last, at least, fifteen years.
For example, Richard Little argues (Little and Williams 2006, 118) that the long
established order associated with the balance of power has given way to a new form
of international order associated with hegemony, unipolarity, and empire which
represent the negation of the balance of power, with one state setting the rules and
then ruling the roost. However, Little recognizes the possibility that other great
powers may seek to establish an associative balance of power to counter-balance
the United States. David Armstrong suggests that developments in international law
(human rights, humanitarian intervention, war crimes) may signify the passage from
the traditional pluralist form of international society to a more solidarist type (Little
and Williams 2006, 138). Ian Hall points to the decline of diplomacy as an institution
of international society (Little and Williams 2006, 143) and the simultaneous rise of
anti-diplomacies reflected in the actions of spies and terrorists (Der Derian 1992 and
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An Introduction
1987). Finally, Charles Jones mentions the relative decline in inter-state warfare for
maintenance of the balance of power among major powers and the development of
international law (Little and Williams 2006, 162). But nothing in the work of these
scholars implies the complete irrelevance of any of these institutions to international
order in a globalizing world.
Bulls failure both to give a clear definition of primary institutions, and to
relate to earlier work, continues into, and in some ways worsens within, the more
contemporary English School literature (Buzan 2004, 170). For example, James
Mayall considers international law to be a master institution, while Alan James
(1978) identifies sovereignty, diplomacy, and international law as the key phenomena
indicating the existence of an international society. The emphasis on sovereignty
is also shared by Robert Jackson (2000, 1990) who adds diplomacy, colonialism,
international law, and war. Finally, Reus-Smit (1997) focuses on international law
and multilateralism as the key contemporary institutions of international society.
Other notable attempts to identify primary institutions of international society have
been undertaken by Holsti (2002), Wheeler (2000), Knudsen (1999), Nardin (1998)
and Kratochwil (1989).
Acknowledging the weaknesses of the English School to address comprehensibly
the issue of international societys primary institutions, Buzan (2004, 17172) has
undertaken the task to confront the following challenges: first, the urgent need to
acknowledge the centrality of primary institutions; to generate consistency in the use
and understanding of the concept and to make clear what does and does not count
as a primary institution; second, the need to flesh out the wider range of primary
institutions; third, because institutions can change, the processes of creation and
decay need to be part of the picture; fourth, because not all primary institutions of
international society are equal, some sort of hierarchy needs to be introduced; and
finally, the need to investigate the functional understanding of primary institutions.
In so doing, Buzan (2004, 18182) has arrived at the following conclusions. First,
primary institutions are durable and recognized patterns of shared practices rooted
in values held commonly by the members of interstate societies, and embodying a
mix of norms, rules and principles. Second, in order to count as a primary institution,
such practices must play a constitutive role in relation to both the pieces/players and
the rules of the game. Although durable, primary institutions are neither permanent
nor fixed. Changes in the practices within an institution may be a sign of vigor,
adaptation or of decline. However, one needs to distinguish between changes in and
changes of primary institutions.
With reference to the contemporary international society, Buzan (2004, 187)
identifies the following master primary institutions (the derivative primary institutions
are placed in parentheses): sovereignty (non-intervention; international law),
territoriality (boundaries), diplomacy (bilateralism, multilateralism), great power
management (alliances, war, balance of power), equality of people (human rights,
humanitarian intervention), market (trade liberalization, financial liberalization,
hegemonic stability), nationalism (self-determination, popular sovereignty,
democracy), and environmental stewardship (species survival, climate stability). It
is with reference to these institutions that the present paper will later attempt to
examine the implications of US Foreign Policy for international order.
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But if among the elementary goals of international society is the goal of preservation
of the society of states itself as well as the maintenance of the independence or
external sovereignty of its individual member states, then how does hegemony fit
into the picture? Does hegemony imply that international society ceases to exist?
Does the US bid for hegemony mean the end of international society?
Hegemony and International Society
A significant change since the first edition of Bulls The Anarchical Society is the
shift to unipolarity after the end of the Cold War. The implications of the shift to a
unipolar system for Bulls international society approach are mixed. In his discussion
of the balance of power mechanism, Bull (2002, 101) defines hegemony as a state
of affairs such that no one power is in a position of preponderance where it can lay
down the law to others. Adam Watson (1992, 15), also identifies hegemony with a
state of affairs where some power or authority in a system is able to lay down the law
about the operation of the system, that is to determine to some extent the external
relations between member states, while leaving them domestically independent.
Some scholars like to reserve the term hegemony for the exercise of this authority
by a single power. For Watson, the difficulty with this approach is that in fact the
authority can be exercised either by a powerful state or by a group of such states.
At first sight, Bulls and Watsons statements would imply that a shift to unipolarity
would reflect a complete failure of the balance of power institution. Indeed, the shift
has created new challenges for what Bull argued are the mechanisms that preserve
international order. After all, the preservation of the various rules and norms that
uphold the international order depends on the ability of the society of states to
punish any one state that might break the rules. Thus, global US hegemony sets a
strong realist challenge to the Grotian thinking of the English School. A powerful
state now exists in the system that, presumably, can use its power to do whatever it
wants. However, as Watson argues (1992, 15), hegemony is not a dictatorial fiat but
it involves continual dialogue between the hegemonic authority and the other states,
and a sense on both sides of the balance of expediency. In fact, Watson considers
hegemony as one of the forms international society can take along a spectrum that
ranges from independence to empire. This means that hegemony does not imply the
end of international society but a change of its form. However, hegemony does have
important implications for the function of the primary institutions of international
society. Therefore, the huge power disparity between the US and the rest of
international societys members creates a strong temptation to act unilaterally, and
such action is bound to have consequences for the function of the primary institutions
(master and derivative) of international society.
Bull discusses only briefly this danger of trying to maintain international order
in a unipolar world. However, at the same time he also questions the assertion that a
generally preponderant state will always be a menace to the survival of the system
of states. He suggests that states that have their own internal checks on the power
of rulers may be capable of international virtue (Bull 2002, 101). Bull also argues
that at the end of the day, the main function of the balance of power mechanism is
to preserve the system of states itself. A stable balance allows for the development
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An Introduction
of other institutions to manage international order. He does not pass final judgment
on the question of whether a power distribution involving global preponderance can
also serve this function (Bull 2002, 107). Given this question, it becomes even more
intriguing to examine the behavior of the US as a hegemonic state and study its
contribution to preserving or weakening the international order.
Ironically, a condition of hegemony brings out more clearly the socially con
structed nature of international order. Because there is only one hegemon in the
system, it is clearer than before that whatever order or balance is formed will not be
automatic, as neorealists argue, but rather contrived as Bull suggests. Indeed, Robert
Gilpin (1981) has proposed that hegemonic systems are the most prevalent, and that
in such systems the dominant state creates a certain order in its image by designing a
set of rights and rules that govern or, at least, influence the interaction among states.
Although Gilpin (1981, 2938) discusses three forms of control in the international
system, his third type of governance of the system, its rights and rules, resembles
Bulls mechanisms for preserving the society of states. Whereas in a balance of
power system the influence of rights and rules may be less conspicuous, in a unipolar
system it is easier to see the extent to which the nature of the international order is
shaped and molded by the interests and normative agenda of the powerful state in the
system. It is clearly not an automatic process.
It is important to stress once more that though a unipolar hegemonic system
clearly poses challenges to the viability of the society of states (Reus-Smit 2004),
the two concepts are not inevitably opposed to each other. Bull suggests that the
function of the balance of power is to prevent the system from being transformed by
conquest into a universal empire as well as to provide the conditions within which
other institutions of international order can operate. Although the current power
distribution is clearly not what Bull had in mind, we can still apply the logic of the
argument that links certain power distributions to the maintenance of the basic goals
of international society.
Book Structure
The book is divided into three parts and ten chapters. The first part discusses the
perspectives of major international actors regarding international order and examines
how their policies and interactions affect it. In Chapter 1, Olivier Brenninkmeijer
examines the way the United Nations (UN) currently seeks to achieve international
peace and security through business and civil society partnerships. He argues that
in a globalizing world no single international actor, be it a national government,
an international organization, a non-governmental organization or a multinational
company, can manage international complex issues or provide solutions to
transnational problems on its own. Brenninkmeijer suggests that international actors
need to work together not only to address shared concerns and manage common
interests, but also to ensure that all affected parties accept the decisions made as
legitimate. Although his analysis points to a more solidarist type of international
society, the author claims that states have the ability to reduce the capacity of any
non-governmental actor to mobilize support and, therefore, they will remain the most
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An Introduction
She also suggests that Chinese Foreign Policy will emphasize the need for states
to safeguard their national sovereignty and territorial integrity and that China will
build and actively participate in coalitions aimed at counter-balancing American
or any other hegemony that may undermine its sovereignty and territorial integrity.
Following Chens analysis one may conclude that from the various institutions
of international society, Chinese Foreign Policy will have the greatest impact on
diplomacy, sovereignty, the balance of power and great powers management.
The second part of the book focuses on the transatlantic dimension of international
order. Since transatlantic relations were considered to be one of the fundamental
pillars of international order in the post-World War II era, this part seeks to investigate
the nature of current transatlantic relations and their implications for international
order in the post-Cold War and post-11 September 2001 world. In Chapter 5, Emel
Oktay examines the expanding EU role in geographical areas neighbouring its
Member States and its implications for transatlantic relations and international order.
She argues that the European Neighbourhood Policy reflects a greater European
willingness to be involved in the resolution of conflicts and the spread of peace
and prosperity beyond the immediate physical boundaries of Europe. According to
Oktay, this policy serves as a useful tool for the EU to project its soft power to a vast
area of the world encompassing North Africa, Middle East, Southern Caucasus and
the Black Sea region, which could be seen as the EUs enlarged natural sphere of
influence. She suggests that through this policy, the EU acquires an additional means
of balancing the global dominance of the US, albeit on a limited geographical scale.
The author concludes that the current nature of the transatlantic relations and their
management will have important implications for international order which is seen
to be based more on the balance of power, great power management, diplomacy, and
war and less on international law.
In Chapter 6, examining the implications of the European Security and Defence
Policy (ESDP) for transatlantic relations and international order, Costantinos
Koliopoulos provides the reader with a very different picture. He argues that
with the ESDP being overshadowed by NATO, the EU is bound to possess little
military muscle for the foreseeable future. This, in turn, is bound to result in
correspondingly little international influence for the EU despite the soft power that
the latter possesses. Koliopoulos claims that the ESDP can have but a marginal
impact on international order. It may provide the Western countries with additional
policy options, thus affecting the function of diplomacy. It may conceivably affect
the function of war as well, though this is much less likely. However, according
to Koliopoulos, when one comes to the institutions of the balance of power and
great power management, stark realities emerge in the sense that the EU not only
is unable to challenge the hegemony of the US, which implies the absence of
a balance of power, but also it does not constitute a power at all. Since the EU
represents nothing more than an organization composed by sovereign states, it
cannot, according to Koliopoulos, have any effect on great power management as
an institution of international society.
In Chapter 7, Angela Liberatore evaluates transatlantic relations with reference
to the cases of threat assessment, surveillance technologies, and fundamental rights.
These cases are useful illustrations of the relations between security policies on the
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10
one hand, and democratic debate, oversight, and rights on the other. She argues that
there is a general convergence between the EU and the US with regard to broad
features of threat assessment and the resort to surveillance as one of the means to
tackle terrorism. At the same time, there is divergence with regard to the stance
towards multilateralism, the use of force and the protection of certain fundamental
rights. According to Liberatore, a more stable international order can be expected
through an increased convergence between the EU and the US. But such an order
will only be legitimate if international law and protection of fundamental rights
are taken seriously. The author points to the fact that US disregard for international
law makes it the least effective institution of international society.
In Chapter 8, John Nomikos discusses transatlantic intelligence cooperation in
connection with the global war on terrorism. Nomikos argues that the price of noncooperation, or partial cooperation, for international order could be enormous. He
claims that further terror outrages could have major destabilizing effects in various
world regions, sending shockwaves that will affect moderate Islamic regimes and
directly affecting national and international economies through rising energy
prices. Transatlantic cooperation, however, is not, according to the author, so easy
to achieve in practice as it is in theory. Nomikos identifies two problems for this.
First, the US inclination towards unilateralism and the use of military force stands
in sharp contrast to EUs commitment to multilateralism and international law;
and second, the EU lacks cohesion due to the inclination of its Member States to
put national considerations first. Nomikos suggests that the focus of transatlantic
intelligence cooperation needs to be on speeding up means of practical exchange on
operational matters and not on building elaborate new structures in the EU and the
United States. He concludes by proposing the use of NATO military intelligence
capabilities to deal with global terrorism.
The last part of the book discusses three major normative issues in contemporary
international politics: preemption, legitimacy, and democratization. In Chapter
9, Muge Kinacioglu examines the normative development of self-defence and
preemption doctrines and discusses the implications for international order. Kinacioglu
argues that because of the current dominance of the US in the international system
and its unilateral policies, the existing system of states can hardly be conceived as
at balance. In such a state, according to Kinacioglu, one might expect a growing
endeavour by other powers to countervail US dominance. She argues that the
exercise of pre-emptive action without proper application of the key elements of the
customary international law would deeply impair the rules laid down by the society
of states to confine reasons for which a state can legitimately resort to force, and
would bring with it the threat of breakdown of international society itself. She further
suggests that arbitrary interpretation of the central principles of international law by
the most dominant power in the international system would also severely weaken the
role of diplomacy. The author concludes that the possible positive role war can play
in international society would also be eliminated by a widespread feeling that the
use of force is self-serving. As a result, great powers effective management of their
relations with one another and their consequent contribution to international order
would become problematic as well.
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An Introduction
11
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12
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