Rising states, rising institutions : challenges for global governance

328 Pages·2004·7.08 MB·English

by  Alan S Alexandroff

A AlAn S. AlexAndroff And Andrew f. Cooper
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The global order is shifting. e
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Even though no major war has intervened to reshape the architecture of the in- f
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Rising States,
ternational order, the global financial crisis has accentuated the emergence of an
enlarged global leadership. It is clear that change is afoot. The United States may
be hanging on as the world’s leading power, as the European Union remains an
independent force in global politics, but a host of rising states—including China, Rising Institutions
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India, and Brazil—clamor to be heard and take on bigger roles in world forums.
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Rising States, Rising Institutions features a panel of distinguished scholars who i
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examine the forces at work: Gregory Chin (York University), Daniel W. Drezner
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(Tufts University), Thomas Hale (Princeton University), Andrew Hurrell (Oxford

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University), G. John Ikenberry (Princeton University), John Kirton (University of
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Toronto), Flynt Leverett (New America Foundation), Steven E. Miller (Harvard a
University), Andrew Moravcsik (Princeton University), Amrita Narlikar (Cambridge t
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University), and Anne-Marie Slaughter (U.S. State Department). Together they
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analyze different models of international cooperation, the states that have most ,

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actively challenged the existing order, and leading and emergent international
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institutions such as the G-20, the nascent regime for sovereign wealth funds, the s
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International Atomic Energy Agency, and the entities organized to foster coopera- n
tion in the war on terror. g

Alan S. Alexandroff is a senior fellow at the Centre for International Governance I
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Innovation (CIGI) in Waterloo, Ontario, and the research director of the Program
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on Conflict Management and Negotiation at the Munk Centre for International t
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Studies, University of Toronto. Andrew F. Cooper is associate director and dis- t
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tinguished fellow at CIGI and professor of political science at the University of t
Waterloo. He is the author or editor of more than a dozen books on diplomacy and i
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global governance. n
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BrookingS inStitution preSS
Washington, D.C. CHALLENGES FOR
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Cover design and illustration montage by Rich Pottern Design g
Images © iStockPhoto S
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Rising States,
Rising Institutions

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Rising States,
Rising Institutions
Challenges for
Global Governance
Alan S. Alexandroff
Andrew F. Cooper
editors

the centre for international
governance innovation
Waterloo, Ontario
brookings institution press
Washington, D.C.
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about cigi
The Centre for International Governance Innovation (CIGI) is an independent,
non-partisan think tank led by distinguished practitioners and scholars that addresses
international governance challenges. Based in Waterloo, Ontario, Canada, CIGI conducts
in-depth research and engages experts and partners worldwide from its extensive
networks to craft policy proposals and recommendations for multilateral and other
governance improvements relating to economic, diplomatic, and global security
challenges. For more information about CIGI please visit www.cigionline.org.
about brookings
The Brookings Institution is a private nonprofit organization devoted to research,
education, and publication on important issues of domestic and foreign policy. Its
principal purpose is to bring the highest quality independent research and analysis
to bear on current and emerging policy problems. Interpretations or conclusions in
Brookings publications should be understood to be solely those of the authors.
Copyright © 2010
the centre for international governance innovation
All rights reserved. No part of this publication may be reproduced or transmitted in any
form or by any means without permission in writing from the Brookings Institution Press.
Rising States, Rising Institutions: Challenges for Global Governance may be ordered from:
Brookings Institution Press, c/o HFS, P.O. Box 50370, Baltimore, MD 21211-4370
Tel.: [phone]; Fax: [phone]
Internet: www.brookings.edu
Library of Congress Cataloging-in-Publication data
Rising states, rising institutions : challenges for global governance / Alan S. Alexandroff
and Andrew F. Cooper, editors.
p. cm.
Includes bibliographical references and index.
ISBN 978-0-8157-0422-5 (pbk. : alk. paper)
1. International organization. 2. International cooperation. 3. Middle powers. 4.
World politics—21st century. I. Alexandroff, Alan S. II. Cooper, Andrew Fenton,

1950– III. Title.
JZ1318.R574 2010
341.2—dc22 2010007109
9 8 7 6 5 4 3 2 1
Printed on acid-free paper
Typeset in Minion
Composition by Cynthia Stock
Silver Spring, Maryland
Printed by R. R. Donnelley
Harrisonburg, Virginia
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Contents
Acknowledgments vii
Introduction 1
Andrew F. Cooper and Alan S. Alexandroff
Great Powers and International Structure
1 The Three Faces of Liberal Internationalism 17
G. John Ikenberry
2 Transgovernmental Networks and Emerging Powers 48
Anne-Marie Slaughter and Thomas Hale
3 Labels Matter: Interpreting Rising Powers through
Acronyms 63
Andrew F. Cooper
Rising Stat es
4 China’s Rising Institutional Influence 83
Gregory Chin
5 Reforming Institutions, Unreformed India? 105
Amrita Narlikar
6 Brazil: What Kind of Rising State in What Kind
of Institutional Order? 128
Andrew Hurrell
7 Europe: Rising Superpower in a Bipolar World 151
Andrew Moravcsik
v
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vi Contents
Rising Institutions
8 The “Great Recession” and the Emergence of
the G-20 Leaders’ Summit 177
Alan S. Alexandroff and John Kirton
9 The G-20 Finance Ministers: Network Governance 196
John Kirton
10 BRIC by BRIC: The Emergent Regime for Sovereign
Wealth Funds 218
Daniel W. Drezner
11 Consuming Energy: Rising Powers, the International
Energy Agency, and the Global Energy Architecture 240
Flynt Leverett
12 The War on Terror and International Order:
Strategic Choice and Global Governance 266
Steven E. Miller
Conclusion 294
Alan S. Alexandroff and Andrew F. Cooper
Contributors 307
Index 311

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Acknowledgments
T
his edited volume continues the collaborative work between two dis-
tinctive partners, the Centre for International Governance Innovation (CIGI)
with respect to its Global Institutional Reform Project (GIR) and the Project
on the Future of Multilateralism at the Woodrow Wilson School of Public and
International Affairs, Princeton University, led by its director, John Ikenberry.
In a similar manner to an earlier collection, Can the World Be Governed? Pos-
sibilities for Effective Multilateralism, this edited volume analyzes the ongoing
evolution of contemporary global governance. At its core, this volume aims
to examine and evaluate the leadership and the institutional settings of global
governance.
John Ikenberry was an admirable host of the preliminary conference held at
Princeton University, August 25–27, 2008. He also contributed a chapter on U.S.
leadership. Many of our authors were able to prepare and deliver first drafts of
their chapters and to obtain valuable feedback from invited discussants at the
Princeton conference: Steven Bernstein, University of Toronto; Patricia Goff,
Wilfrid Laurier University; Jonathan Hausman, Ontario Teachers’ Pension Plan;
Miles Kahler, Univer sity of California, San Diego; Parag Khanna, New America
Foundation; Jeffrey Legro, University of Virginia; and Arthur Stein, University
of California, Los Angeles. We would also like to thank John Kirton, Director,
G-8 Research Group, for coming in after the Princeton conference to prepare
and/or partner on chapters on the G-20 Leaders’ Summit and the G-20 finance
ministers’ meetings.
The production of the book benefited from the hard work of many indi-
viduals. At CIGI Agata Antkiewicz and Andrew Schrumm were effective man-
agers of this and other research projects. Logistical support was invaluable to
the successful August 2008 workshop. In that regard we wish to thank CIGI’s
Colleen Fitzpatrick and Princeton’s Tim Waldron. Joe Turcotte assisted in the
vii
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viii Acknowledgments
preparation of the introduction. Max Brem provided sophisticated guidance
throughout the publication process, and the assistance of CIGI Publications’
Jessica Hanson at communications is much appreciated. As on the previous vol-
ume, Barry Norris worked his magic as copy editor.
The support of Thomas A. Bernes, CIGI’s vice president of programs and
acting executive director, and John English, former CIGI executive director, was
vital, as was the enthusiasm of Daniel Schwanen, CIGI’s deputy executive direc-
tor. As on many other components of our research agenda, CIGI’s International
Advisory Board of Governors provided great encouragement and intellectual
guidance. CIGI was founded in 2002 by Jim Balsillie, co-CEO of Research In
Motion (RIM), and collaborates with and gratefully acknowledges support
from a number of strategic partners, in particular the governments of Canada
and Ontario. Interpretations and opinions expressed in this book are those of
the authors alone.
Our final thanks go to our colleagues at Brookings Institution Press, Robert
Faherty, Mary Kwak, and Janet Walker, whose support and encouragement are
much appreciated.

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andrew f. cooper and alan s. alexandroff
Introduction
T
he global order is shifting in an appreciable but awkward fashion. The
global governance fabric set up in the post-1945 era, the crux of the U.S.-dom-
inated liberal international order, is now seriously frayed. The Bretton Woods
and UN institutions face fundamental crises of efficiency. The G-x process
modifications added in recent decades, most notably the G-7/8, are seen as ille-
gitimate because of their limited membership.
Questions of leadership have also arisen. The center of gravity of the global
power structure is arguably no longer in the United States, a transition that
reflects the erosion of U.S. leadership capabilities. The George W. Bush admin-
istration abdicated both the normative and practical responsibilities of liberal
internationalism, and its unilateral overstretch in Iraq and poor economic poli-
cies seem to have drained U.S. resources. Added to these rash policies, the issues
of renditions and Guantanamo Bay detainees have undermined the United
States’ normative credentials.
Still, an analysis of the shifting global order that focuses only on fading
U.S. hegemony and leadership is insufficient. The world is also changing at
the beginning of the twenty-first century as a result of the emergence of new
powers—especially China, India, and Brazil. The challenges these states pose
to global governance differ from previous challenges to U.S. leadership. These
countries neither accede to a Western-centric order nor view themselves as ben-
eficiaries of the liberal international system. Distance from the liberal world
order does not necessarily mean, however, a fundamental rejection of the tenets
of the established system. Thus the rise of these states from among the global
South does not preclude the emergence of new institutions that can serve the
interests of both the traditional powers and the rising powers.
1
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