The Evolution and Legitimacy of International Security Institutions

Transcription

1 The Evolution and Legitimacy of International Security Institutions International institutions constitute the basis of global order. As they struggle to accommodate shifts in power and emerging threats, their legitimacy their political authority and right to govern often comes under fire, at times fuelling perceptions of crisis. Yet scholars seldom ask why some institutions are replaced while others are not. Blending theory with history, examines some of the world s landmark security institutions, arguing that the possibility of replacement hinges on the sources of institutional legitimacy and the nature and timing of the challenges to it. The analysis not only reveals different pathways to replacement, but also offers a window into the future, including a potential dark side of too much legitimacy. Indeed, as global society becomes ever more dynamic, the fault-lines of conflict with the most significant implications for order will not occur over territory, but rather the legitimacy of international institutions. is Associate Professor of Political Science at Linfield College in McMinnville, O.R. in this web service

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3 The Evolution and Legitimacy of International Security Institutions M. PATRICK COTTRELL Linfield College, Oregon in this web service

4 32 Avenue of the Americas, New York, ny is part of the University of Cambridge. It furthers the University s mission by disseminating knowledge in the pursuit of education, learning, and research at the highest international levels of excellence. Information on this title: / C 2016 This publication is in copyright. Subject to statutory exception and to the provisions of relevant collective licensing agreements, no reproduction of any part may take place without the written permission of. First published 2016 A catalog record for this publication is available from the British Library. Library of Congress Cataloging in Publication Data Cottrell, Patrick, author. The evolution and legitimacy of international security institutions /. New York, NY :, Includes bibliographical references and index. lccn isbn (hardback) lcsh: Security, International. International cooperation. bisac: political science / International Relations / General. lcc jz5588.c ddc 355/.031 dc23 lc record available at isbn Hardback has no responsibility for the persistence or accuracy of urls for external or third-party Internet Web sites referred to in this publication and does not guarantee that any content on such Web sites is, or will remain, accurate or appropriate. in this web service

5 For Erika, Syd, and Elsa the lights of my life. in this web service

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7 Contents List of Figures List of Tables Acknowledgments page ix xi xiii Introduction 1 1 Institutional Replacement in International Politics 15 2 Legitimacy and Institutional Replacement: An Analytical Framework 33 3 From League of Nations to United Nations: The Politics of Reaffirmation 65 4 The Emergence of the Mine Ban Treaty: The Politics of Reconstruction The Resilience of the Nuclear Nonproliferation Treaty Legitimacy, Institutional Change, and the Future of Global Order 179 Bibliography 217 Index 257 vii in this web service

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9 Figures 2.1 Analytic Structure of the Legitimation Process page Legitimacy and Replacement: An Interactive Process 57 ix in this web service

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11 Tables 1.1 Notable Instances of Institutional Replacement page The Changing Nature of Security Cooperation Multilateral Efforts to Address the Landmine Problem The NPT Bargain The Thirteen Steps Toward Nuclear Disarmament 160 xi in this web service

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13 Acknowledgments This book has been a part of my life for over a decade now. Along the way I have accrued many debts. In many respects, the genesis of this book resides in my experience working on arms control and nonproliferation issues at the U.S. Department of State. I thank Chris Kessler for giving me my first job at the State Department and delegating enough responsibility to make it an extremely formative experience. He has provided terrific feedback on this book at many steps along the way and most of all remains a dear friend. The professionals who work in and around international security institutions deserve special recognition. The efforts of these dedicated public servants, though often under the radar, are making the world a more peaceful, secure place. I feel fortunate to have worked with many of them and am especially appreciative of those who offered their time and insights in being interviewed for this project. Michael Barnett and Jon Pevehouse have both been extremely influential in my intellectual development. Michael offered me a front-row seat as his research assistant during the development of seminal projects like Power in Global Governance and Rules for the World, which continue to serve as a source of inspiration. And as Chair of the dissertation that would turn into this book, Michael provided timely and trenchant comments, along with a sense of humor that kept life in perspective throughout. Jon has the remarkable ability to ask extremely tough questions in a way that actually makes one feel good about themselves. His clarity of thinking, on-point suggestions, and steady encouragement helped this project at multiple stages of development. I am grateful to both of them for being such wonderful role models and friends. xiii in this web service

14 xiv Acknowledgments I also benefitted a great deal from the insights of David Trubek. My collaboration with Dave as part of his broader work on new governance, among other things, influenced me in ways I am still discovering. Thank you, Dave, for the opportunity to work with you and your mentoring. Mark Nance has always gone above the call of duty as a sounding board, editor, and critic. I suspect that he is as happy as I am that this book is finally being published. Travis Nelson has also commented on multiple drafts of components of this book, offering clarity of thought and suggestions along the way. Thank you, my friends. My faculty friends and colleagues at Linfield College Dawn Nowacki, Nick Buccola, Dimitri Kelly, David Sumner, among others make work not feel like work and have been vital sources of inspiration for my research. I feel very fortunate to be at an institution that values teaching and liberal education, while affording the space for scholarship. I am also indebted to the exceptional faculty and graduate students at the University of Wisconsin who influenced early versions of this manuscript. Several different programs and departments at Linfield College and the University of Wisconsin provided valuable support for this project at various stages. I am a grateful recipient of the Allen and Pat Kelley Faculty Scholar Award and the Marvin and Laurie Henberg International Scholarship Award at Linfield College. These awards afforded me the time and resources necessary to complete the book. I also acknowledge the support of the Institute for Legal Studies at the University of Wisconsin Law School, the Center for World Affairs and the Global Economy (WAGE), the University of Wisconsin Department of Political Science, the Linfield International Programs Office, and the Office of Academic Affairs. I had the opportunity to present various components of this book at a variety of conference panels, including the American Political Science Association, the International Studies Association, the Midwest Political Science Association, the Western Political Science Association, and the ISSS/ISAC. I benefited greatly from the comments received in these settings. Ben Bartu, Aspen Brooks, Morgan Christiansen, Eleanor Nelly Evans, Kiana Ringuette, and Megan Schwab provided exceptional research assistance. Portions of this manuscript appeared in International Organization and Charter of the United Nations, an edited volume by Ian Shapiro and Joe Lampert (Yale University Press). I am also indebted to the anonymous reviewers in both these contexts, along with those from Cambridge University Press, who pushed me to make this the best manuscript it could be. in this web service

15 Acknowledgments xv A special thanks to Debbie Gershenowitz, my editor at Cambridge, whose kind and steady guidance brought this book to the finish line. My family the Cottrells, Drapers, Bergs, and Barths and friends Chris and Alexandra Ballard, Duffy and Angela Ballard, Amy Celico, Marc and Elizabeth Conkle, Eric and Kristin Kneedler, Jason Krolikowski, Mike and Angie Marzano, Chip and Jane Poncy, Mike Saipe, Barry Waits, and Dan Zehr among many others have all kept me grounded and smiling throughout this process. I feel so incredibly lucky to have such wonderful people in my life. Chris, Duffy, Eric, and Dan made special contributions to this book through our numerous conversations and writing retreats. I raise my glass to you gentlemen. My parents, Judy Cottrell and Michael Cottrell, have been there with me every step of the way and provided unconditional love, inspiration, and validation. Without question, this book would not have been possible without their consummate support. An extra special thank you to my mom for being an expert editor and engaged listener throughout. I could not be more fortunate to have parents who are also the closest of friends. My dear wife Erika s empathy, patience, keen insights, and love buoyed me throughout this journey. The world needs more people like her and I am blessed to be living life alongside her. Our daughters, Syd and Elsa Cottrell, brighten each and every one of our days. Watching them grow is the greatest gift I have ever received. The book s concluding chapter contains a quote by Antonio Gramsci, who wrote, I am a pessimist because of intelligence, but an optimist because of will. My family provided the greatest source of my will to see this project through. This book is dedicated to them. in this web service