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.     

Turkey’s global governance strategies at the UN compared to the BRICS (2008–2014): clarifying the motivation–contribution nexus

This study attempts to analyse Turkey’s contribution to the United Nations (UN) system in comparison with those of the Brazil, Russia, India, China, and South Africa (BRICS) countries between 2008 and 2014 on three levels: personnel, financial, ideational. Employing an integrated methodology of a global governance contribution index (GGCI) and statistical analysis of complementary raw data, this study empirically reveals the degree to which Turkey was able to transfer its capabilities into an effective contribution to the UN system on the three levels. Drawing on the findings of its quantitative analysis, this paper further qualitatively assesses the reasons behind the gap between Turkey’s global governance motivations and its contribution to the UN system. In doing so, this study, first, deals with the main motivational drivers of its activism in global governance in the 2000s. After unpacking its integrated methodology, the second part of this study quantitatively compares Turkey’s contribution to the UN system to that of the BRICS. The third part of this study delves into the main trends and deficiencies in Turkey’s contribution to the UN system. Finally, this study concludes that Turkey, despite its high motivations for activism in global governance, has not performed well in transferring its capacities into contributions to the UN system, particularly on financial and personnel levels.     

The BRICS and global governance: China’s contradictory role

The impact of rising powers generally and the BRICS - Brazil, Russia, India, China and South Africa - in particular on the existing global order has become controversial and contested. Donald Trump’s nationalist foreign policy agenda has raised questions about the BRICS willingness and capacity to provide leadership in place on an American administration that is increasingly inward looking. As a result, the rise of BRICS poses potential normative and structural challenges to the existing liberal international order. Given its geoeconomic significance, China also poses a potential problem for the other BRICS, as well as the governance of the existing order more generally. Consequently, we argue that it will be difficult for the BRICS to maintain a unified position amongst themselves, let alone play a constructive role in preserving the foundations of ‘global governance’.     

Conceptualising and testing the ‘emerging regional power’ of Turkey in the shifting ınternational order

Turkey has thus far been generally neglected in most IR studies on power categorisations, such as middle or middle-range power, regional power or rising/emerging power, despite its rising regional power status in the past decade. This paper attempts to understand Turkey’s regional power together with its rising power status using an integral approach. In doing so, it empirically tests whether or not Turkey fits Daniel Flemes’s ‘regional power’ category, which seems to be proposing a more complete and integral framework through the fulfilment of four basic preconditions: claim to leadership; possession of necessary power resources (material and ideational); employment of material, institutional and discursive foreign policy instruments; and acceptance of leadership by third parties. Based upon these analytical tools, the article will discuss Turkey’s performance in creating a regional impact in its neighbouring regions of the Middle East, the Balkans and the Black Sea and Caucasus.     

Norm-making,norm-taking or norm-shifting? A case study of Sino–Japanese competition in the Jakarta–Bandung high-speed rail project

This paper’s main aim is to contribute to the debate on the impact of China’s rise on the established norms and practices in the field of international development. To do so, it zooms in on a single infrastructure project, the Jakarta-Bandung high-speed rail line, which involved intense competition between China and Japan. Specifically, it examines how competition between China, a non-Western emerging power, and Japan, an OECD member, led to a recalibration of both China and Japan’s approaches to infrastructure financing in the region. The findings suggest that rather than straight convergence or competition between diverging models, there is an ongoing process of two-way adjustment between China, and representatives of the dominant global norms and practices. We also argue that to understand the implications of China’s participation in the field of international development, and its impact on the ‘rules of the game’ of global governance, researchers should avoid positioning inquiries within the premises of China’s one-directional impact on the development assistance regime. Rather, it is necessary to take into account a complex set of relationships including China, host countries and other ‘socialised’ actors, and the process of negotiation between them.     

Contesting the international order by integrating it: the case of China’s Belt and Road initiative

What does the Belt and Road initiative (BRI) tell us about China’s perceptions of the international order? This paper takes an inductive approach by examining the BRI for a two-pronged purpose: first, to understand China’s perception of the international order by examining Beijing’s official discourse around its intentions and vision for the initiative; and, second, to examine the mechanisms through which Chinese norms are diffused and normalised in Global South states. I find that Chinese policy navigates a dialectical interchange between upholding the existing international order while simultaneously promoting alternative norms and practices to reform parts of the order that are unsatisfactory to Chinese interests. To answer the second part of the puzzle, the paper finds that a central socialisation mechanism in China’s foreign policy for Global South states occurs through professionalisation training programmes. These programmes allow for Chinese expert knowledge and technical know-how to be shared with and mimicked by elites and civil servants across many Global South states.     

How can emerging powers speak? On theorists,native informants and quasi-officials in International Relations discourse

Emerging powers like China, India and Brazil are receiving growing attention as objects in International Relations (IR) discourse. Scholars from these emerging powers are rarely present as subjects in mainstream IR discourse, however. This paper interrogates the conditions for scholars in emerging powers to speak back to the mainstream discipline. It argues, first, that ‘theory speak’ is rare from scholars based in periphery countries perceived to be ‘emerging powers’. Despite increasing efforts to create a ‘home-grown’ theoretical discourse in China, India and Brazil, few articles in mainstream journals present novel theoretical frameworks or arguments framed as non-Western/Southern theory or even as a ‘Chinese school’ or ‘Brazilian concepts’. Second, scholars from emerging powers tend to speak as ‘native informants’ about their own country, not about general aspects of ‘the international’. Third, some scholars even speak as ‘quasi-officials’, that is, they speak for their country.     

Turkey in Somalia: challenging North/Western interventionism?

Turkey’s humanitarian and development intervention in Somalia is unusually illuminating as a case study to investigate the relations between emerging and conventional interveners in conflict zones since, in this case, Turkey’s intervention carries adequate impetus to resist assimilation with conventional North/Western counterparts. Our starting point is the observation that Turkish and conventional humanitarian and development interveners have struggled to coordinate or cooperate in Somalia. This article investigates what this uncooperative and uncoordinated organisational behaviour means, and we root our investigation in 21 face-to-face interviews with officials working inside the Turkish and conventional intervention in Mogadishu and Nairobi to inquire about how they understand and theorise this discordant behaviour. We use a parsimonious analytical framework of trustworthiness that questions the ‘ability’ and ‘integrity’ of counterpart organisations to explore the intentions behind organisational behaviours. Our analysis of interview narratives evidences challenges to conventional methods of intervention by Turkish organisations and the protection of the same by North/Western organisations. Our concluding discussion interprets these findings in relation to consequences for the status quo hierarchy of global governance and its promotion of liberal intervention norms, and for the utilisation of securitised and remote-control intervention methodologies in conflict zones such as Somalia.     

拜登政府执政后的重大国际问题笔谈

由于美国国内政治极化严重,恢复经济、控制疫情、弥合国内社会撕裂等成为拜登政府的当务之急。而且由于特朗普政府时期的一些对外政策具有一定的社会基础,美国两党在一些领域也有共识,所以在一些重大国际问题上,拜登政府的立场和政策将以延续为主、调整为辅。同时,鉴于拜登阵营的建制派背景,其在国际问题上将更注重以多边主义和国际合作的方式推进相关政策。具体而言,在亚太安全领域,拜登政府对特朗普政府政策的延续将大于变化;美欧关系将有所拉近;中美俄和美欧俄战略三角关系的调整将对美俄关系未来产生影响。拜登政府以重振美国国际领导权为重要目标,对多边主义国际秩序将产生较大影响。在全球卫生治理领域,拜登政府将努力消除特朗普政府时期外交政策的负面影响。在重返亚太区域经济一体化问题上,美国短期内不会有实质性行动。在科技产业领域,特朗普政府时期的政策基调将得到延续,中国需努力遏制双方关系恶化的势头,为自身发展营造稳定的外部环境。     

Challenging the European Union: the rising powers and the USA in the Doha Round

In this article, the challenges posed to the European Union's (EU) role in trade policy and its implications for development policy during the World Trade Organization's Doha Development Agenda, also known as the Doha round, are highlighted. The authors argue that transformed power relations have created a situation characterized by role uncertainty, for the emerging powers but also for the EU. Priorities among multiple possible roles – in the existing trade regime, in relation to the global South and in the ongoing negotiations – become subject to redefinition. For the EU, heavily wedded to a multilateralist and reformist mission because of its own history, this process is particularly difficult. The EU's traditional role conceptions as a leader and a benign partner to developing countries have been challenged and partly replaced by a more realist approach.     

Identity and world order in India’s post-Cold War foreign policy discourse

This article examines the dominant conception of world order in India’s post-Cold War foreign policy discourse. Drawing on a poststructuralist, discourse-theoretical framework, I argue that the discourse uses foreign policy and world order as sites for the (re-)production of India’s identity by placing India into a system of differences that constitutes ‘what India is’. The article shows that India’s foreign policy discourse frames world order in accordance with India’s own national experiences and thus seeks to upheave India’s identity to a position from where it can represent the universal: a global political community. This notion of Indian Exceptionalism constitutes the affective dimension of the discourse that obscures the absence of an extra-discursive foundation on which national identities could be grounded by endowing the Self with an imaginary essence and seemingly unique qualities.     

The BRICS – a paradigm shift in global health?

To what extent does the Brazil, Russia, India, China and South Africa (BRICS) bloc constitute a paradigm shift in global health and development? This paper interrogates the concept of paradigm shift with the help of a framework familiar to scholars working in the field of International Relations. It distinguishes between the BRICS' material capabilities, institutions and ideas, and assesses the extent to which the BRICS contribution represents ‘a potentially transformative’ source of new resources and innovation for global health and development. It has been argued that the BRICS bloc champions a qualitatively different development discourse from industrialised countries that has made possible a progressive set of development practices. The BRICS discourse and praxis gives weight to the claim that a paradigm shift in global health is underway. However, the extent to which such discourse will be effective in improving global health will depend on the bloc making greater use of institutions and further deploying its material capabilities.