Reframing the rising powers debate: state transformation and foreign policy

Abstract

The volume that we introduce breaks with the prevalent tendency in International Relations (IR) scholarship to treat rising powers (such as China, Russia, India and Brazil) as unitary actors in international politics. Although a neat demarcation of the domestic and international domains, on which the notion of unitary agency is premised, has always been a myth, these states’ uneven integration into the global political economy has eroded this perspective’s empirical purchase considerably. Instead, this collection advances the concept of ‘state transformation’ as a useful lens through which to examine rising power states’ foreign policymaking and implementation. State transformation refers to the pluralisation of cross-border state agency via contested and uneven processes of fragmentation, decentralisation and internationalisation of state apparatuses. The volume demonstrates the significance of state transformation processes for explaining some of these states’ most important foreign policy agendas, and outlines the implications for the wider field in IR.     

From centralisation to fragmentation and back again: the role of non-state actors in Brazil’s transformed foreign policy

Abstract

Since the 1990s, Brazil’s foreign policy-making, traditionally a highly centralised and hierarchical process, has become more fragmented, plural and horizontal. In this context, the role of non-state actors has been increasingly relevant. The impact and significance of these actors have been however a matter of debate. While there are authors that consider that non-state actors play only a secondary role in the policy-making process, there are others that assert that these actors work alongside governmental actors and directly influence policy choices. Drawing on the concept of network governance, the paper proposes a different view from the two recurrent approaches in the literature mentioned above. It argues that the recent steps to transform Brazil’s state governance from hierarchy to horizontal networks have indeed expanded the room for the direct participation of non-state actors in the policy process. However, state authorities fought to adjust this tendency, in order to retain control over the decision-making process, by putting in place formal and informal coordinating mechanisms led by the Ministry of Foreign Relations and the Presidency. This suggests Brazil’s foreign policy was made in the shadow of hierarchy. The paper demonstrates the argument using the case of Brazil’s foreign policy towards China.     

A land full of opportunities? Agrarian frontiers,policy narratives and the political economy of peace in Colombia

Abstract

In many post-war countries, the relative security brought to rural areas is construed by government officials and business actors as an opportunity for development. This is particularly true for marginal areas, where opportunities for economic development had previously been hindered by the threat of violence. This provides a favourable context for the construction of commodity frontiers. Through the case of Colombia, I show that one of the main challenges faced by frontier policy narratives amounts to differentiating wartime dispossession from peacetime legitimate accumulation. This poses intractable challenges to policymakers and business actors, as it fuels the contradictions between peace consolidation and post-war development.     

The ugly face of the state: Nigerian security forces,human rights and the search for Boko Haram

ABSTRACT

This paper argues that the aggressive and gratuitously violent insurgency in northeastern Nigeria – Boko Haram – is the entirely understandable consequence of more than a half-century of misrule by what I call the parasitic and predatory Nigerian political class. Evidence of widespread human rights abuses including extortion, rape and theft comes from investigations by various international human rights organizations, international non-governmental organizations, church groups, press reports and interviews. I focus primarily on incidents and practices in the northeast but examples are adduced from other parts of the country as well. I discuss the policy of coercion and brutality embedded in the very nature of the colonial and post-colonial state using Crawford Young’s concept of bula matari (the state as rock crusher).     

A classic debate revisited: The policy/administration dichotomy in tax polittcs

One of the oldest debates in political science is over the separation of policymaking from administration. The primary purpose of this paper is to resurrect the distinction as both a guide to empirical theory describing the political process and as an element in the normative debate over how that political process should ideally work. I first discuss the classic dichotomy and arguments for and against it. I then argue that tax politics can best be described as a trichotomy, in which there resides a “middle” set of actors, labelled professional policy managers, who have very important policymaking roles, but who also have many characteristics of administrators. In making these distinctions, I also outline a distinctive form of accountability that resides with each set of actors. Based on these forms of accountability, I reiterate the importance of separating and distancing “pure” administration from policymaking and political pressures. I also argue that effective policy is best insured by balancing the roles of policymakers, policy managers and administrators.     

Implementing Privatization Policies in 'Next Steps' Agencies

This article examines the implementation of privatization policies in two 'Next Steps' agencies. This is discussed with reference to the broader theoretical and empirical questions of how do institutions change and when are political actors constrained in implementing their policy choices. Cortell and Peterson's framework for explaining institutional change, and the concept of intra-state policy networks are used to analyse the cases. The differential outcomes identified illustrate how constraints operate and how these may be overcome by strategic actors to produce change. Constraints in these cases arose from fragmentation and dependence in central government, from differing institutionalized beliefs and from the development of intra-state networks between the departments and agencies. The paper concludes by suggesting that the type of intra-state networks created through agencification can be seen to have an effect on policy outcomes and are worthy of more detailed research.     

HABERMAS’ MODELS OF DECISIONISM,TECHNOCRACY AND PRAGMATISM IN TIMES OF GOVERNANCE: THE RELATIONSHIP OF PUBLIC ADMINISTRATION,POLITICS AND SCIENCE IN THE ALCOHOL PREVENTION POLICIES OF THE SWISS MEMBER STATES

This article assesses the effects different constellations of science, administration and the political sphere display on the policy process in the field of alcohol prevention policy in the Swiss member states. First, it is argued that Habermas’ models of Decisionism, Technocracy, and Pragmatism can be interpreted as distinct modes of governance that take place in today’s policy‐making and implementation. Second, as for the effects of these different constellations of science, administration and politics, the findings from a written survey of the Swiss cantons reported here imply that a broad and adequate policy design is found in cantons with an alcohol prevention policy that is dominated by administrative actors. Output performance proves to be comparatively higher in cantons with a high influence either of scientific actors or of political actors. In an overall comparison, a combined model of administrative dominance with strong affiliation to the scientific community is shown to prevail against the other models considered.     

Understanding Migration: The Case for Public Administration

ABSTRACT

Migration has emerged as a key issue for governments in the 21^st century. While multiple disciplines address migration, the study of public administration has been slow to do so. Given the complexities of migration policy implementation, and the multiple levels of government involved, public administration can add significantly to the current understandings of the phenomenon. This article examines what is known on migration, what still needs to be understood, and how public administration can assist in understanding migration.     

Implementing Privatization Policies in ‘Next Steps’ Agencies

This article examines the implementation of privatization policies in two ‘Next Steps’ agencies. This is discussed with reference to the broader theoretical and empirical questions of how do institutions change and when are political actors constrained in implementing their policy choices. Cortell and Peterson’s framework for explaining institutional change, and the concept of intra-state policy networks are used to analyse the cases. The differential outcomes identified illustrate how constraints operate and how these may be overcome by strategic actors to produce change. Constraints in these cases arose from fragmentation and dependence in central government, from differing institutionalized beliefs and from the development of intra-state networks between the departments and agencies. The paper concludes by suggesting that the type of intra-state networks created through agencification can be seen to have an effect on policy outcomes and are worthy of more detailed research.     

Coordination and control in Russia’s foreign policy: travails of Putin’s curators in the near abroad

Abstract

This article seeks to challenge the conception of the Russian state as being centred on Vladimir Putin by looking at the actors implementing Russia’s foreign policy in its near abroad. In particular, it explores the activities of curators (kuratory), a term applied in Russia to describe officials tasked with making things work often bypassing, and sometimes competing with, formal institutions. Following the state transformation framework, the argument put forward in the article is that curation (kuratorstvo), as a practice of coordination and control in Russia’s system of governance, can be seen as a manifestation of fragmentation and internationalisation of Russia’s foreign policy making. The empirical basis for this article is a case study of Russia’s policy towards Abkhazia, which Russia officially recognised as a sovereign state in 2008. This article addresses the involvement of curators in their attempts to exert political influence as an expression of fragmentation as well as emerging institutionalised curation in development assistance as a part of internationalisation.     

Whole-of-Government Approaches to Fragile States in Africa

For a number of years fragile states have been high on the foreign policy agendas of the USA and the EU. Both actors look upon fragile states with great concern and consider them as security threats. Officially they give priority to ‘whole-of-government approaches’ (wga) when addressing the threats from these states. However, there is a gap between the policy declarations and the policies implemented by the two actors. The missing link in the implementation of wga in Africa is explained by two variables: on the one hand, material interests in the continent and, on the other hand, the institutions in Washington and Brussels involved in policy making. It is the lack of a strong foreign policy priority for Africa that explains the inadequate US implementation of wga. In the case of the EU, it is the multitude of institutions and institutional interests that explains the lack of implementation, rather than a lack of European interests in the fragile states on continent.     

SEEING THE FOREST FOR THE VILLAGE,NATION, AND PROVINCE: FORESTRY POLICY AND ENVIRONMENTAL MANAGEMENT IN EARLY-TWENTIETH-CENTURY YUNNAN

Abstract

This article compares village, national, and provincial forestry policy in early-twentieth-century China, with a focus on Yunnan, making three important observations. First, by identifying villages as key arenas for the production of forestry policy, it highlights the importance of rethinking the political geography of forestry policy during this period, to establish a proper comparative baseline for evaluating policy implementation. Second, its comparisons reveal diverging interests in forestry at these three levels, ranging from village reforestation for ecological conservation to provincial afforestation for economic development. Third, it shows that policymakers in these three arenas deployed distinctive cultural and political resources to promote their policies. The localized formats and objectives of village policies may have rendered them relatively invisible to national policymakers, who promoted more general and systematic forestry frameworks as novel interventions into a seemingly neglected policy arena that demanded comprehensive and intensive political intervention.     

Producing the ‘transit’ migration state: international security intervention in Niger

Abstract

Despite a growing interest in transit migration and border controls along migration routes, there is relatively little work on the production and operation of the category of ‘transit’ itself. This article investigates how Niger emerges as a country of migration ‘transit’ and what impacts this categorisation has had on security and development interventions targeting the country. Building from the literature on the governance of transit migration and on the ‘migration state’, this article theorises transit as a political label. It argues that Niger’s status as a transit country is constructed through a ‘polyvocal’ process involving the discourse and everyday assumptions of international and local actors. The article locates this shared understanding in official texts, everyday routines, and sub-state diplomatic practices. It goes on to argue that these framings, despite divergent rationales, have effects visible in the evolution of security intervention in Niger. These include shifts in the location of border security, the blurring of migration into other transnational threats, and the creation of new domestic institutional practices. The article contributes to theorising the political construction and specificity of transit-ness and provides a fresh case for the research agenda on inter-state relations around migration governance.     

Promoting neoliberal ideology in Finnish rural community development: the creation of new moral actors

ABSTRACT

Today’s political ambitions are based on the neoliberal aspiration to diminish the state’s role and responsibilities, and to transfer those responsibilities to local communities and individuals in ways that idealise those communities, promising to ‘give power to the people’. Instead of highlighting individualism, neoliberalism now celebrates communities and participation. This article deals with the effects of this ideology with regard to Finnish rural policy objectives. Drawing on Finnish village action programmes as data, we argue that these ideological views aim to transform individuals and create new moral actors. Our research indicates that Finland’s rural policy objectives invoke actors that are responsible for their communities, have an ‘enterprising spirit’, and are change-friendly and innovative. However, the ideology disregards the economic and social preconditions and resources necessary for building affluent communities and villages, which are difficult to attain when there is less government involvement. Thus, rural communities face increasing demands and less government involvement.     

Établissements d’enseignement et de santé confessionnels,espace public et agency à Ouagadougou (1987–2010)

Abstract

In response to the significant urbanisation and the demographic expansion of Ouagadougou, the Catholic Church and Islamic associations are diversifying their operations, which were already significant in terms of health and education at the end of the 1980s. This social engagement is at the heart of humanitarian, proselytising, socio-economic and political challenges and influences the position of these actors in the public space. This article intends to contribute to consideration of the relations between these religious actors and the State in Burkina Faso with the aim of analysing the sectors of secondary teaching and health in Ouagadougou. It will be demonstrated that the operations of these actors (Muslim and Catholic) made their legitimacy evolve differently in the public space from 1987 to 2010. The Catholic actors have had a greater influence than the Muslims on the decisions of the State. Subsequent to the challenges and the political context, the capacity of agency (capacity to act) of the actors of the two denominations has modified.     

Don’t buy from me Argentina: Politics, economics, and trade liberalization in Argentina, 1992–2001

Recently, while opening their markets to international trade through tariff reduction, developing nations have been quietly adopting nontariff measures that impose new barriers on imports. This study contributes to a literature that assesses reactions to recent widespread economic reform, particularly in the developing world. While analysts have identified many determinants of the reform process, we are only beginning to assess the factors that shape its twists, turns, and even reversals. In particular, we do not yet have a clear understanding of the determinants of governments’ treatment of different groups and actors in this process. This article examines these reactions to trade liberalization in Argentina, an important middle-income nation, by drawing upon the significant body of theoretical and empirical literature on trade policy in developed nations that demonstrates that both economic and political factors condition policy implementation. Utilizing a data set of nontariff trade disputes from 1992 to 2001, the analysis employs probit maximum likelihood techniques to assess the relationship between trade policy outputs and economic and political factors. The findings suggest that economic factors, including import flows, and political factors such as the breadth of representation appear to condition trade policy decisions in Argentina. The results also suggest that overall macroeconomic context affects policy outputs. Jeffrey Drope is an assistant professor in the Department of Political Science, University of Miami. His recent articles and current research examine the political economy of trade policy and, more generally, how interests and institutions interact to generate policy. I thank Wendy Hansen, Ken Roberts, and theSCID reviewers and editors for valuable comments, the Latin American Institute at the University of New Mexico for financial support, and Pablo Sanguinetti for helpful introductions in Argentina.     

The Potency of the State: Logics of Informality and Subalternity

Abstract

This article serves as an epilogue to the special issue curated by Claire Bénit-Gbaffou and Sarah Charlton with a focus on state power and the concept of informality. In my reflection, I examine the specificity of statecraft in the context of postcolonial government. In particular, I analyse political potency as a relationship between the state and subaltern subjects. Also at stake in this paper is the question of comparative and transnational analysis. In what ways can concepts generated through the study of processes of urban informality in India speak to the production of illegality and the reproduction of rule in South Africa?     

Notes Toward a Theory of Ideology in Historlcal Writing on Modern Afrlca

Since the publication of her first novel Le ventre de l’Atlantique (2003), Fatou Diome, a Senegalese author who immigrated to France in the 1990s, has been regularly invited to French cultural TV programmes, in which she often criticises European foreign policy, as well as social and racial segregation. Despite her public political commitment, in several interviews, Fatou Diome argues that literature should be dissociated from politics. This article analyses Diome’s narrative techniques when depicting current social issues in her second novel Kétala (2006). In Kétala, Diome shows how Senegalese gay people and women face social violence and exclusion. Drawing on queer theory and the concept of performance, this article describes the various strategies through which marginalised identities in Kétala contest heteronormative social representations. This paper argues that Fatou Diome’s novel captures the reality through a singular poetics.     

The Politics of Discontinuity and Its Medium Term Policy Outcomes: Evidence from Ghana

ABSTRACT

It is common knowledge in Ghana that during political transitions, programs set in previous Medium Term Development Plans (MTDP) by prior governments are abandoned without regard for their wider national implications. While the economic impacts of these political transitions have been researched, till date no known studies have taken a holistic look at the relation between political transition and the level of MTDP target achievement. This article attempts to fill this research gap using Ghana as a case and the policy learning and political business cycle literatures as organizing frames. Using annual MTDP data and semi-structured interviews with 25 officials who were involved in the implementation of MDTPs at the national and local government levels, this article finds that aberrations in target achievements across the entire period between 2001 and 2016 were the result of financial constraints and the pressures to adjust to political change.     

The dilemmas of market socialism: Capital market reform in China ‐ part II: Shares

This two‐part article analyses the attempts to reform the socialist financial system in China by diversifying financial assets and introducing capital markets. The approach used is that of political economy, in the sense of elucidating the interplay between political and economic interests, actors and issues in the reform process.

Part I discusses the issue of bonds by governments and enterprises. Although the reform era has seen gradual progress towards something resembling a bond ‘market’ in terms of a diversification of bond types and growing competition between bond issues, there is no evidence that this has improved allocative efficiency in the economy. Rather, bonds have functioned as one instrument in a complex struggle for resources between political, institutional and economic actors in the context of a continuing ‘shortage economy’. This competitive system falls far short of a true ‘market'; rather it embodies powerful systemic factors reflecting the basic structural and institutional features of a semi‐reformed socialist economy.

One of these systemic factors is the institution of social ownership of the means of production which has been called into question by the emergence of shares and share markets, a process we discuss in Part II. Share issues have in the event been economically unimportant but politically important since they challenge the ideological and institutional underpinnings of a ‘socialist’ economy. The key to the future of this form of financial liberalisation depends not merely on further progress in complementary areas of economic reform policy, but also on a resolution of these fundamental political issues.