Archive for the ‘International Relations’ Category

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Some Implications of the Organizational State

April 5, 2018

A couple of weeks ago I pointed to the neglected significance of the modern state as a set of bureaucracies and policy networks for its external relations.  Here I want to point to three implications of this.

The starting point is that the modern state has evolved a set of bureaucracies and policy networks that are concerned with international relationships but academics and policy makers take the legal singularity of the state as their reference point.  In every day speech and writing weshift from a language of strong intention ‘what Tehran’s strategy is…’ to a language of factions (hawks and doves) or intergovernmental struggle (‘the foreign ministry is pushing for more conciliatory stance but the army is concerned about its prestige’  drawing any broader theoretical conclusions.  Diplomats routinely manage the complexity of their own and foreign states.

From my historical work it is clear that this multiplication is not new.  The era of the First World War saw a transformation in foreign affairs organizations.  In the 1920s some countries are seeing the need to coordinate the numerous public and private organizations.  It might be argued that the Soviet Union is sui generis but the demand for coordination is quite visible in Weimar Germany and Fascist Italy. In France there are also efforts to produce a comprehensive national statecraft which (as happens in many cases) just proves too difficult to sustain in practice.  Since then the trend of development has been to more extensive sets of international linkages.

This suggests a need for a comparative research agenda on the pluralization of foreign relations and how they have been managed, and with what effect.  Coordination is hard to achieve and it is not obvious that it is always desirable;  Stalin shows achieving a high level of coordination may simply produce coordinated stupidity or the coordination of things that are best left uncoordinated.

However, the multiplication of foreign linkages is not just a matter of bureaucratic scope; the modern state is inherently pluralist.  As Isaiah Berlin would put it we don’t live in a ‘jigsaw world’ where all the pieces can ultimately be made to fit together.  If you have multiple outward facing agencies they tend to develop their own conception of how the world works, to systematically promote policy that emerge from their worldview and work towards these goals regardless other concerns.  In looking at the history of public diplomacies it pretty apparent that many states have had, and continue to have, several foreign policies pursued by different agencies.

A further issue is that there is a tension between the tendency of bureaucracy towards rationalization and the logic of politics and diplomacy.  In Richelieu’s formulation diplomacy as continuous negotiation implied a constant vigilance, flexibility and opportunism that would allow the trading off of different relationships.  The growth of the organizational state has added a rationalized bureaucratic logic to foreign relations. Communications campaigns, exchange programmes, or development projects need to unfold in an orderly way but there is a tension here between a shifting political world and the pursuit of bureaucratic rationalization and stability

One of the core implications of this perspective is that it requires us to look at the agency of the state in a different way – rather than imagining a single strategic sovereign we may be dealing with a multiple autonomous organizational logics.

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The Nationalized State as an International Actor

March 22, 2018

I’ve really been wanting to get back to blogging but over the last 12 months I’ve spent a considerable amount of time trying to work through the question of how do public diplomacies fit in to international politics and rather than just start commenting on current events I want to sketch out some of the conclusions of this theoretical work so that I can refer back to it.   One big concern for me has to close the gap between our theoretical and policy discourses (and has been for a very long time) but as Clausewitz would tell you if the theory doesn’t fit the practice you need a new theory.  Most of the themes have been discussed here before but I think that I can now pull them together in a more coherent way.

This argument and what follows is developed at much greater length is some forthcoming work but I want to start off with the question of the state, what we mean by it and how it acts.

Corollaries of the Infrastructural State

Modern international relations is a product of the changes in the nature of the relationship between state and society that emerged during the 19th century.  In thinking about this I started from Michael Mann’s concept of the development of the transition from a despotic to an infrastructural state.  Essentially, the modern state embeds itself into the social order and can extract more resources/capability but at the same time it becomes constrained by these relationships (Mann 1988).  There is a trade-off between embeddedness and autonomy  (Evans 1995).*

If you think about this in a broader context you can see two corollaries which are usually discussed in different literatures.   Firstly,  the state as organization becomes much larger but more functionally differentiated hence less coherent.  At the same time different components of the state organizations build their own relationships with other social actors.  The political science literature has all kinds of concepts for making  sense of this phenomenon; sub-governments, policy domains, issue communities, policy networks, the organizational state etc (McCool 1998).

The second corollary of the infrastructural state is the need to legitimize and naturalize this new order in cultural and ideological terms hence the importance of education, cultural, media infrastructures and small d democratic ideologies in producing a field within which entrepreneurs both from inside and outside the state can operate.  Although we tend to label this as a nation-state but I think that this places too much weight on the ideas of ‘nation’ and ‘nationalism’ and too little on processes of nationalization and of the principle of nationality.  We live in an order where everything is assumed to have a nationality and I think neglect how fundamental this is to the contemporary world.  Even people who strive to escape this are still frequently shaped by their national habitus (Kuipers 2011, 2013, Stroup 2012).

Drawing on Andrew Abbott’s work this line of analysis leads a view of the modern state as an ecology (2005, 2016).

The Nationalized State as an International Actor

If we translate this argument into international terms we largely still talk about IR as if we were dealing with an imagined rational unitary sovereign and ignore 1) the rise of diverse state bureaucracies and their policy networks and 2) the way in which everything within or attached to the nationalized state can be turned into an instrument or vulnerability within statecraft.

Pretty much all histories of statecraft that have been written over the past century document the increasing complexity of the organizations of the modern state and conflicts and irrationalities that follow from this.  Yet this is hardly ever taken as a basis for theorizing.  The best known treatment of this idea in the International Relations literature focuses on one of the most intense international crises ever but bureaucracies do their things all the time and it is the fact that they may do them over long periods that means we need to look at things other than ‘decisions’ (Allison 1971).  The agency of the modern state is bureaucracy and even relatively small states have multiple channels of international action.  This is neither new or unusual.  The First World War produced an expansion in outward facing organizations and the problem of coordination between them was becoming an issue in the 1920s (eg Düwell 1976, Garzarelli 2002)

What is the relationship between a country and its people, business, cuisine, art, science, pop culture beyond its borders?  Who or what counts as belonging to a country.  These relations are not that straightforward, claims to ownership or membership are complex and ambiguous and absolutely endemic to international politics in general and public diplomacies in particular.

The corollary of this is that this nationalized state is also something that is acted on but the effect needs to be seen in terms of its impact on this ecology.

In talking about the ‘nation-state’ as an international actor we are addressing a fluid, fragmented and rather ambiguous entity that works at coherence.  Although some of the forms have changed this is not a new set of developments.    These themes of fragmentation and ambiguity are ones that I will return to but in making sense of contemporary international politics they seem like better places to start that with a mythical Louis ‘L’etat? C’est moi’  XIV

 

*Even back in the 1980s Martin Shaw was discussing this as the warfare-welfare state and questioning whether nuclear weapons and the end of mass armies were eroding this bargain (Shaw 1988).

Abbott A (2005) Linked Ecologies: States and Universities as Environments for Professions, Sociological Theory, 23: 245–274.

Abbott A (2016) Processual Sociology. Chicago: University of Chicago Press.

Allison GT (1971) Essence of decision: explaining the Cuban missile crisis. Boston: Little Brown.

Düwell K (1976) Deutschlands auswärtige Kulturpolitik 1918-1932: Grundlinien und Dokumente. Köln: Böhlau.

Evans P (1995) Embedded Autonomy: States and Industrial Transformation. Princeton, N.J: Princeton University Press.

Garzarelli B (2002) Fascismo e propaganda all’estero: Le origini della Direzione generale per la propaganda (1933-1934), Studi Storici, 43: 477–520.

Kuipers G (2011) Her Majesty’s Bicycle: On National Habitus and Sociological Comparison, Figurations: Newsletter of the Norbert Elias Foundation, Special Supplement 34.

Kuipers G (2013) The rise and decline of national habitus: Dutch cycling culture and the shaping of national similarity, European Journal of Social Theory, 16: 17–35.

Mann M (1988) States, War and Capitalism: Studies in Political Sociology. Oxford: Blackwell.

McCool DF (1998) The Subsystem Family of Concepts: A Critique and a Proposal, Political Research Quarterly, 51: 551–70.

Shaw M (1988) Dialectics of War: An Essay in the Social Theory of Total War and Peace. London: Pluto.

Stroup SS (2012) Borders Among Activists: International NGOS in the United States, Britain, and France. Ithaca: Cornell University Press.

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Public Diplomacies and the Pathologies of Liberal Statecraft

March 29, 2017

Judy Dempsey at Carnegie Europe has offered some suggestions about what the EU can do in response to the cycles of protest and repression in Belarus and Russia, she calls for a public diplomacy response: broadcasting, internet freedom, student exchanges and preparing for the day after Putin and Lukashenko by supporting opposition movements.

Seems reasonable but it also seems to reflect the basic patterns of Western statecraft over the past 25 years: make some tactical responses and wait for history to do its job.  The problem is that is precisely what has produced situations like Syria or Libya.  It’s like the plan of the underpants gnomes: phase 1: steal underpants  phase 3: huge profits while  phase 2 is a blank.

It also reflects an older realist critique of liberal statecraft and its displacement of politics. Reinhart Koselleck makes the point that enlightenment political thought shifted the moral and political burden of revolution onto History ie revolutionaries don’t kill people, History does.  Max Weber’s demand for an ‘ethic of responsibility’ is for politicians to deal with the consequences of their choices and not to retreat behind empty formulae or abstract categories.

In confronting the situations in Russian and Belarus the position is effectively we support regime change and we’ll take some steps that possibly push things in a regime change direction but we don’t want to take responsibility for this. What we don’t want to do is to think through possible consequences, for instance Russia deciding to ‘help’ in Belarus, or to recognize that not all values are consistent with each other and that choices need to be made about which should be prioritized.  It is this refusal to recognize, let alone fill, the space between the present and History that creates the impasse of Western statecraft.

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Hard vs Soft Power as Metaphor

March 30, 2016

One lament that I heard at the International Studies Association this year was the fact that ‘mainstream’ International Relations doesn’t attach much importance to questions of narrative, metaphor and meaning, that is to ‘soft’ aspects of world politics.

Of course having been primed to think about metaphors it leapt out at me that advocates of ‘soft’ approaches are never going to get anywhere as long as they keep using the hard/soft metaphor.   Poststructuralism 101 teaches you that binary oppositions always privilege one side of the pairing (hard over soft) and that the correct response is to ‘deconstruct’ that opposition etc, etc.

Leaving aside the technical literature on soft power, even in an academic environment  ‘hard’ gets used in a casual way to mean different things:  coercive, material, the geopolitical.  This ambiguity means that the assumption of the primacy of the ‘hard’ is easily accepted.

We can’t escape from hard/soft entirely.  The embrace of hard/soft in policy circles is an interesting area for investigation (as are policy categories in general) but as a scientific concept I think hard/soft is a major obstacle to intelligent discussion and I would employ with extreme caution.

The main reason is that when you put the hard/soft distinction to one side it is pretty clear that ontologically everything is mixed up.  Social formations and situations involve meanings and structures.   Armies have morale, and mechanics and doctrine not just tanks, the effects of armed forces are more often to do with the way that they are represented than the use of force.  Public diplomacies have buildings, computers, magazines and run on money, narratives need networks to circulate them.  Markets and exports depend on images of countries and networks of relationships.  In general terms influence emerges from combination of factors economic, cultural and political relations.  Resources matter but so do ideas, narratives, images.  From my historical research it’s quite clear that public diplomacies are just as much a part of  geopolitics as navies.  Competition for influence applies to the languages that people speak, the universities they attend, the legal systems they use, and the films they watch.

Methodologically and pragmatically we can choose to focus on different aspects of that reality, for instance on narratives or tanks but this doesn’t change the fact that hard/soft is a metaphor not an account of how the world really is.

The moral of the story is that metaphors really do matter in International Relations especially if they’re the ones academics use.

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Locating Public Diplomacy in International Relations

April 14, 2015

The thing that started me working on the public diplomacies project was the observation that people were very keen to make suggestions about how public diplomacy could be improved but were very vague about the basis for these suggestions. As I’ve argued on several occasions discussions of public diplomacy tend start with the question ‘how can we make it better?’ But to answer this question we need to answer two other questions; what do people do (and why do they do it)? And why does whatever they do succeed or fail?

As the project has proceeded I’ve realized that there’s another question that needs to be addressed: how does the engagement of foreign publics fit into the broader picture of International Relations both as a field of study and as a field of practice? The difficulty with dealing with this question is that in order to fit in public diplomacy you need to some serious re-engineering of how we think about IR.

In a paper at ISA earlier this year Networked Realism? History, Theory and Transnational State Action I had crack at this. The first part of the paper reviews the background of the work that I’ve been doing on the history of public diplomacy/cultural relations and all the other sorts of foreign public engagement. I then go on and make three claims (all of which have been made on this blog at some time or another).

Firstly, IR tends to work with an opposition between a territorially defined state and a transnational civil society with an assumption in some quarters that the latter will overcome the former. History suggests that that this opposition is wrong. Civil society has been a major carrier of ‘the national’ not just in terms of expectations of mutual support from state actors, ngos, business, disapora etc but in the export of national models. Consistently from the late 19th c. non-state actors have initiated, pushed for, and participated in public diplomacy and cultural relations activities.

Secondly, history also tells us that states are relatively incoherent networks (which sometimes manage a degree of coordination), that need to draw resources from, and interact with other actors. Their ability to do this successfully explains quite a lot about the ability of states to act internationally.

Thirdly, parts of these networks extend well beyond the territorial boundaries of the state and as do civil society networks. Rather than discuss power (or soft power) as a single attribute of a state it needs to be broken down spatially and across issues to become a set of questions about influence in defined situations.

A lot of IR writing tends to use nation-state as a synonym for ‘state’ but my argument is that the ‘nation’ bit needs much more attention – less because of extreme expressions of nationalism – but because of the pervasiveness of routine national identification of compatriots and others. This ‘nation centrism’ gives a picture of world politics where states rest on a more robust foundation of national identifying civil societies, and where international competition is pervasive albeit less associated with military competition than in state-centric versions of realism.

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Why I’m a Network Realist

April 16, 2013

In my last post I made referred to the realist/idealist issue that surfacing at the ISA this year and my crack that I consider myself a network realist.  So what does that mean?

My basic understanding of the world is that it’s a bunch of networks but in some respects the tenets of classical realism (Machiavelli, Carr, Morgenthau) still provide a pretty good guide at the level of thinking about world politics in general and public diplomacy in particular.

Here’s five aspects of the realist worldview that I think are useful.

  1. We live in a recalcitrant world.  Be realistic about your ability to change or maintain things.   Of course the classical realists didn’t think about networks but social networks provide stability as well as change.
  2. Interests.  Everybody has them.  The most saintly looking NGO still has interests and the prevalence of interests is one of the reasons for 1.  Following the constructivists at some level all interests are constructed and hence it’s theoretically possible to change them.  The difficulty is that what is possible in theory may be impossible in practice see 1.
  3. People try to dress up their interests as universal, often without realizing that they are doing it. This includes us.
  4. Realism emphasizes the continuity of international politics and given the constant bombardment of claims that everything has changed this needs to be reiterated.  In terms of network theorizing this means a preference for Michael Mann or Bruno Latour over Manuel Castells.  The point is not that nothing has changed but a scepticism about claims of radical historical discontinuities.  As Latour puts it somewhere the difference between us and the ancients is that we have bigger networks, that is we’re dealing with incremental development not a new era.
  5. It’s not just about ideas, information, discourse, cognitions, perceptions, values.  Resources matter.  Michael Mann’s sociology of power is sometimes described as ‘organizational materialism’, that is power is created by, and exerted through organization.  Organization is where ideas, meaning, money, people technology get mixed up together.  Ideas don’t do things on their own.

Two things that I wouldn’t take from realism

  1. Axiomatic state centrism.  In IR state centrism is often taken as the defining characteristic of realism but early Niebuhr was concerned with domestic politics or what about Schattschneider’s The Semisovereign People?  I’ll take up the question of state centrism in another post.
  2. Power as the master concept.   Power matters but I don’t think that power analysis gets you very far.

What does mean for public diplomacy? Think in the medium and long term, the short term is how  you manage to get to the longer term.  Think about creating networks built on mutual satisfaction of interests (note that these may be different interests not ‘shared’) and the recognition of difference.  Be sceptical about quick fixes, recognize that what other people see is not what you see.  Recognize that resources constrain what you can do so it may be better to do nothing than to try to act with insufficient resources. Learn from history.

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Why Doesn’t International Relations Pay More Attention to Public Diplomacy?

March 21, 2013

As some of you know I’m working on a book at the moment.  The strapline might be something like  ‘what would a theory of public diplomacy look like if we started with the history of the practice?’

This sounds pretty neat but almost immediately you run into to the problem of what you mean by public diplomacy given that a) the term didn’t appear until the 1960s, b) outside the US countries have different terms and concepts for what looks like PD and c) there are lots of arguments over what the term means.  My strategy is to start with  the minimalist definition of ‘engagement with foreign publics for foreign policy purposes’.   From this point of view building a national pavilion at a late 19th century exhibition,  French cultural projection in the 1920s, Japan offering scholarships to Chinese students in the 1930s, Soviet Active measures in the 1980s or 21st century statecraft, whatever the differences in approaches, objective, methods and outcomes, are all part of the same field of activities.

What has struck me in doing this work is how much ‘public diplomacy’ has been going on world politics over a period dating back to the latter part of the 19th century.  I would argue that it has been one most common forms of foreign policy action over the past century for small countries as well as the big players.  Given this it’s surprising how little attention it has received in the literature of International Relations.

How do we explain this? I could probably come up with more ideas but here’s four.

I think part of the problem is extraordinary fragmentation of the ‘PD’ literature and the absence of attempts at synthesis. Almost all of the studies that I’ve used in working on the historical part of my book deal with one country, in one period and probably one aspect of external engagement – for instance they look at radio or cultural relations or diaspora relations.  It’s rare for an author to refer to the experience of other countries and when they do it’s often obvious that it rests on a pretty limited knowledge base (references to the British Council often trap the unwary).  There’s a vicious circle here if we had a better frameworks for comparison it would be easier to put different cases into perspective but because of the fragmentation of the literature (and the fact that just because there’s no literature about a country it doesn’t mean that it doesn’t do foreign engagement) it’s difficult to build up the knowledge to develop a useful framework.

Secondly,  this difficulty of building up a picture of what’s been going on is coupled to a loss of historical perspective.  Partly this is because scholars like to focus on what’s new (this isn’t just true of IR – I’ve often heard communications scholars make the same point) but it’s also to do with the way that theoretical shorthand cuts debates off from the real world.  A couple of weeks ago I was a bit sarcastic about Anne-Marie Slaughter’s comment that when she was growing up the US didn’t worry about what happened inside other states.  What was unfortunate about this was  that she was growing up during the Cold War and the US did seem extremely interested in what happened inside other countries.  Where her comment cames from is the common shorthand that Realists see states as solid objects that bump into each other ie as billiard balls.  When this metaphor came into widespread use (in the 1970s?) it was in opposition to pluralist school that who embraced ‘the cobweb’ that is world politics should be theorized as networks of transactions.  What frequently happens today is that billiard ball metaphor becomes historicised.  States used to be billiard balls but they aren’t now.  There are two problems here.  Firstly, a lack of precision over when those billiard ball states actually existed (which is how Slaughter got caught out) and secondly,  they never really existed,  This may not matter if you know that you are dealing with a theoretical simplification but it does if you get the simplification mixed up with history.   If you think that PD is a new phenomenon then you’ve got no need to consider whether it mattered in the past or not.

Thirdly, public diplomacy cuts across some of the typical theoretical positions in IR.  It’s state sponsored transnational action.  Typically IR scholarship tends to oppose the transnational to the state.  There tends to be an assumption that transnational actors (civil society, advocacy networks etc) weaken, undermine, penetrate the state, rather than sometimes at least being enablers of state action. States are also assumed to deal in material power (guns and money) not ideas and communications.  The Gramscians have made the connection between material and ideational sources of power but because they focus on hegemony that they’ve focus too much on the US and not on the fact that everyone else has been doing this too.

Finally, Iver Neumann recently made an interesting comment that one of the problems with IR is that it’s too focussed on outcomes and not enough on how the world is constituted.  Building on this I suspect that for most IR scholars it’s not obvious how PD affects outcomes and as such it’s not interesting.   I think that this is a mistaken view but I’ll take this up in a later post.