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International Organization
Volume 52 Issue 4 (Autumn 1998)
A distinct subfield of international relations, IPE, has emerged over the last thirty years, largely in the pages of International Organization. IPE began with the study of international political economy, but over time its boundaries have been set more by a series of theoretical debates than by subject matter. These debates have been organized around points of contestation between specific research programs, reflecting fundamental differences among the generic theoretical orientations in which these research programs are embedded. The fate of specific research programs has depended on their ability to specify cause and effect relationships and to operationalize relevant variables. Scholarship in IPE has become more sophisticated both methodologically and theoretically, and many of its insights have been incorporated into policy discussions. Past points of contestation, including those between realism and its liberal challengers and between various conceptions of domestic structure and international relations, help us to understand recent debates between rationalism and constructivism.
The international relations (IR) discipline is dominated by the American research community. Data about publication patterns in leading journals document this situation as well as a variance in theoretical orientations. IR is conducted differently in different places. The main patterns are explained through a sociology of science model that emphasizes the different nineteenth-century histories of the state, the early format of social science, and the institutionalized delineation among the different social sciences. The internal social and intellectual structure of American IR is two-tiered, with relatively independent subfields and a top layer defined by access to the leading journals (on which IR, in contrast to some social sciences, has a high consensus). The famous successive “great debates” serve an important function by letting lead theorists focus and structure the whole discipline. IR in France, Germany, and the United Kingdom has historically been structured differently, often with power vested more locally. American IR now moves in a direction that undermines its global hegemony. The widespread turn to rational choice privileges a reintegration (and status-wise rehabilitation) with the rest of political science over attention to IR practices elsewhere. This rationalistic turn is alien to Europeans, both because their IR is generally closer to sociology, philosophy, and anthropology, and because the liberal ontological premises of rational choice are less fitting to European societies. Simultaneously, European IR is beginning to break the local power bastions and establish independent research communities at a national or, increasingly, a European level. As American IR turns from global hegemony to national professionalization, IR becomes more pluralistic.
Studies of international institutions, organizations, and regimes have consistently appeared in the pages of International Organization. We review the theoretical and empirical work on international institutions and identify promising directions for the institutionalist research program. Early studies of international institutions were rich with empirical insights and often influenced by theoretical developments in other fields of political science, but lacking an overarching analytical framework they failed to produce a coherent body of scholarship. Current efforts to reinvigorate the study of international institutions draw on a new body of theory about domestic institutions. We argue that the assumptions of this new approach to institutions are more appropriate to international studies than those of earlier attempts to transfer theories across levels of analysis. We suggest that the most productive questions for future research will focus on specifying alternative mechanisms by which institutions can influence outcomes and identify particular sets of questions within this agenda that are especially promising.
International relations has often been treated as a separate discipline distinct from the other major fields in political science, namely American and comparative politics. A main reason for this distinction has been the claim that politics in the international system is radically different from politics domestically. The degree of divergence between international relations (IR) and the rest of political science has waxed and waned over the years; however, in the past decade it seems to have lessened. This process has occurred mainly in the “rationalist research paradigm,” and there it has both substantive and methodological components. Scholars in this paradigm have increasingly appreciated that politics in the international realm is not so different from that internal to states, and vice versa. This rationalist institutionalist research agenda thus challenges two of the main assumptions in IR theory. Moreover, scholars across the three fields now tend to employ the same methods. The last decade has seen increasing cross-fertilization of the fields around the importance of institutional analysis. Such analysis implies a particular concern with the mechanisms of collective choice in situations of strategic interaction. Some of the new tools in American and comparative politics allow the complex, strategic interactions among domestic and international agents to be understood in a more systematic and cumulative way.
Increasing exposure to trade, foreign direct investment, and liquid capital mobility have not prompted a pervasive policy race to the neoliberal bottom among the OECD countries. One reason is that there are strong political incentives for governments to cushion the dislocations and risk generated by openness. Moreover, countries with large and expanding public economies (when balanced with increased revenues, even from capital taxes) have not suffered from capital flight or higher interest rates. This is because the modern welfare state, comprising income transfer programs and publicly provided social services, generates economically important collective goods that are undersupplied by markets and that actors are interested in productivity value. These range from the accumulation of human and physical capital to social stability under conditions of high market uncertainty to popular support for the market economy itself. As a result, arguments about the demise of national autonomy in the global economy are considerably overdrawn.
This article traces and explains how U.S. policy officials and IR scholars have conceived of the relationship between economics and security over the past half-century. During the interwar years, economics and security were integrated in both scholarship and statecraft. During the Cold War, scholars treated the two issues as separate areas of inquiry. U.S. policymakers integrated economics and security during the early Cold War, but by the 1970s the two components of U.S. foreign policy had drifted apart. After the Cold War, a renewed emphasis has emerged in both U.S. statecraft and IR scholarship on the integration of economics and security. Three factors explain these patterns: (1) the international distribution of material capabilities, (2) perceptions of the strategic environment, and (3) perceptions of the position of the United States in international economic competition.
Social constructivism in international relations has come into its own during the past decade, not only as a metatheoretical critique of currently dominant neo-utilitarian approaches (neo-realism and neoliberal institutionalism) but increasingly in the form of detailed empirical findings and theoretical insights. Constructivism addresses many of the same issues addressed by neo-utilitarianism, though from a different vantage and, therefore, with different effect. It also concerns itself with issues that neo-utilitarianism treats by assumption, discounts, ignores, or simply cannot apprehend within its characteristic ontology and/or epistemology. The constructivist project has sought to open up the relatively narrow theoretical confines of conventional approaches—by pushing them back to problematize the interests and identities of actors; deeper to incorporate the intersubjective bases of social action and social order; and into the dimensions of space and time to establish international structure as contingent practice, constraining social action but also being (re)created and, therefore, potentially transformed by it.
Norms have never been absent from the study of international politics, but the sweeping “ideational turn” in the 1980s and 1990s brought them back as a central theoretical concern in the field. Much theorizing about norms has focused on how they create social structure, standards of appropriateness, and stability in international politics. Recent empirical research on norms, in contrast, has examined their role in creating political change, but change processes have been less well-theorized. We induce from this research a variety of theoretical arguments and testable hypotheses about the role of norms in political change. We argue that norms evolve in a three-stage “life cycle” of emergence, “norm cascades,” and internalization, and that each stage is governed by different motives, mechanisms, and behavioral logics. We also highlight the rational and strategic nature of many social construction processes and argue that theoretical progress will only be made by placing attention on the connections between norms and rationality rather than by opposing the two.
Rationalist models have faced four persistent sets of critics as the research program of international relations has evolved. Under neorealism’s structural constraints of international competition and selection, agents’ rationality may appear superfluous. Psychological critics have presented neither a single theoretical alternative to rational choice nor contingent hypotheses that specify when psychological distortions of rational decision making are most likely. Both rational choice and psychological approaches must construct models of action for social entities that aggregate individuals. The rationality and individualism of beliefs is questioned by theorists who stress culture, identity, and norms as independent sources of action. Careful stipulation of scope, acknowledgment of methodological shortcomings, and precise definition of differences can serve to bridge the theoretical divide between rational choice models and their critics. Problem-centered research provides a level playing field on which theoretical competition can be established.
The history of international political orders is written in terms of continuity and change in domestic and international political relations. As a step toward understanding such continuity and change, we explore some ideas drawn from an institutional perspective. An institutional perspective is characterized in terms of two grand issues that divide students of international relations and other organized systems. The first issue concerns the basic logic of action by which human behavior is shaped. On the one side are those who see action as driven by a logic of anticipated consequences and prior preferences. On the other side are those who see action as driven by a logic of appropriateness and a sense of identity. The second issue concerns the efficiency of history. On the one side are those who see history as efficient in the sense that it follows a course leading to a unique equilibrium dictated by exogenously determined interests, identities, and resources. On the other side are those who see history as inefficient in the sense that it follows a meandering, path-dependent course distinguished by multiple equilibria and endogenous transformations of interests, identities, and resources. We argue that the tendency of students of international political order to emphasize efficient histories and consequential bases for action leads them to underestimate the significance of rule- and identity-based action and inefficient histories. We illustrate such an institutional perspective by considering some features of the coevolution of politics and institutions, particularly the ways in which engagement in political activities affects the definition and elaboration of political identities and the development of competence in politics and the capabilities of political institutions.
The popularity of alternative approaches to international politics cannot be explained entirely by their scholarly virtues. Among the other factors at work are fashions and normative and political preferences. This in part explains the increasing role of rationalism and constructivism. Important as they are, these approaches are necessarily less complete than liberalism, Marxism, and realism. Indeed, they fit better with the latter than is often realized. Realism, then, continues to play a major role in IR scholarship. It can elucidate the conditions and strategies that are conducive to cooperation and can account for significant international change, including a greatly decreased tolerance for force among developed countries, which appears to be currently the case. But neither it nor other approaches have as yet proved to be reliable guides to this new world.
This article adopts economics as a perspective from which to view recent research in international relations. The most telling difference between international relations and economics, it argues, is in the connection between theory and empirical work. The strength of economics is the complementary and mutually supporting character of theoretical and empirical work. In international relations, in contrast, the connections between theory and empirics are looser. As a consequence, research in international relations has not converged to a core of common theoretical assumptions and an arsenal of commonly accepted empirical techniques.