Anarchy is what States Make of it: The Social Construction of Power Politics
Author(s): Alexander Wendt
Source: International Organization , Spring, 1992, Vol. 46, No. 2 (Spring, 1992), pp. 391-
425
Published by: The MIT Press
Stable URL: https://www.jstor.org/stable/2706858
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Anarchy is what states make of it: the
social construction of power politics
Alexander Wendt
The debate between realists and liberals has reemerged as an axis of contention
in international relations theory.1 Revolving in the past around competing
theories of human nature, the debate is more concerned today with the extent
to which state action is influenced by "structure" (anarchy and the distribution
of power) versus "process" (interaction and learning) and institutions. Does
the absence of centralized political authority force states to play competitive
power politics? Can international regimes overcome this logic, and under what
conditions? What in anarchy is given and immutable, and what is amenable to
change?
The debate between "neorealists" and "neoliberals" has been based on a
shared commitment to "rationalism."2 Like all social theories, rational choice
directs us to ask some questions and not others, treating the identities and
interests of agents as exogenously given and focusing on how the behavior of
This article was negotiated with many individuals. If my records are complete (and apologies if
they are not), thanks are due particularly to John Aldrich, Mike Barnett, Lea Brilmayer, David
Campbell, Jim Caporaso, Simon Dalby, David Dessler, Bud Duvall, Jean Elshtain, Karyn Ertel,
Lloyd Etheridge, Ernst Haas, Martin Hollis, Naeem Inayatullah, Stewart Johnson, Frank Klink,
Steve Krasner, Friedrich Kratochwil, David Lumsdaine, M. J. Peterson, Spike Peterson, Thomas
Risse-Kappen, John Ruggie, Bruce Russett, Jim Scott, Rogers Smith, David Sylvan, Jan Thomson,
Mark Warren, and Jutta Weldes. The article also benefited from presentations and seminars at the
American University, the University of Chicago, the University of Massachusetts at Amherst,
Syracuse University, the University of Washington at Seattle, the University of California at Los
Angeles, and Yale University.
1. See, for example, Joseph Grieco, "Anarchy and the Limits of Cooperation: A Realist Critique
of the Newest Liberal Institutionalism," Intemational Organization 42 (Summer 1988), pp. 485-507;
Joseph Nye, "Neorealism and Neoliberalism," World Politics 40 (January 1988), pp. 235-51; Robert
Keohane, "Neoliberal Institutionalism: A Perspective on World Politics," in his collection of essays
entitled Intemational Institutions and State Power (Boulder, Colo.: Westview Press, 1989), pp. 1-20;
John Mearsheimer, "Back to the Future: Instability in Europe After the Cold War," Intemational
Security 13 (Summer 1990), pp. 5-56, along with subsequent published correspondence regarding
Mearsheimer's article; and Emerson Niou and Peter Ordeshook, "Realism Versus Neoliberalism:
A Formulation," American Joumal of Political Science 35 (May 1991), pp. 481-511.
2. See Robert Keohane, "International Institutions: Two Approaches," Intemational Studies
Quarterly 32 (December 1988), pp. 379-96.
Intemational Organization 46, 2, Spring 1992
? 1992 by the World Peace Foundation and the Massachusetts Institute of Technology
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392 International Organization
agents generates outcomes. As such, rationalism offers a fundamentally
behavioral conception of both process and institutions: they change behavior
but not identities and interests.3 In addition to this way of framing research
problems, neorealists and neoliberals share generally similar assumptions
about agents: states are the dominant actors in the system, and they define
security in "self-interested" terms. Neorealists and neoliberals may disagree
about the extent to which states are motivated by relative versus absolute gains,
but both groups take the self-interested state as the starting point for theory.
This starting point makes substantive sense for neorealists, since they believe
anarchies are necessarily "self-help" systems, systems in which both central
authority and collective security are absent. The self-help corollary to anarchy
does enormous work in neorealism, generating the inherently competitive
dynamics of the security dilemma and collective action problem. Self-help is
not seen as an "institution" and as such occupies a privileged explanatory role
vis-a-vis process, setting the terms for, and unaffected by, interaction. Since
states failing to conform to the logic of self-help will be driven from the system,
only simple learning or behavioral adaptation is possible; the complex learning
involved in redefinitions of identity and interest is not.' Questions about
identity- and interest-formation are therefore not important to students of
international relations. A rationalist problematique, which reduces process to
dynamics of behavioral interaction among exogenously constituted actors,
defines the scope of systemic theory.
By adopting such reasoning, liberals concede to neorealists the causal
powers of anarchic structure, but they gain the rhetorically powerful argumen
that process can generate cooperative behavior, even in an exogenously given,
self-help system. Some liberals may believe that anarchy does, in fact,
constitute states with self-interested identities exogenous to practice. Such
"weak" liberals concede the causal powers of anarchy both rhetorically and
substantively and accept rationalism's limited, behavioral conception of the
causal powers of institutions. They are realists before liberals (we might call
them "weak realists"), since only if international institutions can change
powers and interests do they go beyond the "limits" of realism.5
3. Behavioral and rationalist models of man and institutions share a common intellectual
heritage in the materialist individualism of Hobbes, Locke, and Bentham. On the relationship
between the two models, see Jonathan Turner, A Theory of Social Interaction (Stanford, Calif.:
Stanford University Press, 1988), pp. 24-31; and George Homans, "Rational Choice Theory and
Behavioral Psychology," in Craig Calhoun et al., eds., Structures of Power and Constraint
(Cambridge: Cambridge University Press, 1991), pp. 77-89.
4. On neorealist conceptions of learning, see Philip Tetlock, "Learning in U.S. and Soviet
Foreign Policy," in George Breslauer and Philip Tetlock, eds., Leaming in U.S. and Soviet Foreign
Policy (Boulder, Colo.: Westview Press, 1991), pp. 24-27. On the. difference between behavioral
and cognitive learning, see ibid., pp. 20-61; Joseph Nye, "Nuclear Learning and U.S.-Soviet
Security Regimes," Intemational Organization 41 (Summer 1987), pp. 371-402; and Ernst Haas,
When Knowledge Is Power (Berkeley: University of California Press, 1990), pp. 17-49.
5. See Stephen Krasner, "Regimes and the Limits of Realism: Regimes as Autonomous
Variables," in Stephen Krasner, ed., Intemational Regimes (Ithaca, N.Y.: Cornell University Press,
1983), pp. 355-68.
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Anarchy 393
Yet some liberals want more. When Joseph Nye speaks of "complex
learning," or Robert Jervis of "changing conceptions of self and interest," or
Robert Keohane of "sociological" conceptions of interest, each is asserting an
important role for transformations of identity and interest in the liberal
research program and, by extension, a potentially much stronger conception of
process and institutions in world politics.6 "Strong" liberals should be troubled
by the dichotomous privileging of structure over process, since transformations
of identity and interest through process are transformations of structure.
Rationalism has little to offer such an argument,7 which is in part why, in an
important article, Friedrich Kratochwil and John Ruggie argued that its
individualist ontology contradicted the intersubjectivist epistemology necessary
for regime theory to realize its full promise.8 Regimes cannot change identities
and interests if the latter are taken as given. Because of this rationalist legacy,
despite increasingly numerous and rich studies of complex learning in foreign
policy, neoliberals lack a systematic theory of how such changes occur and thus
must privilege realist insights about structure while advancing their own
insights about process.
The irony is that social theories which seek to explain identities and interests
do exist. Keohane has called them "reflectivist";9 because I want to emphasize
their focus on the social construction of subjectivity and minimize their image
problem, following Nicholas Onuf I will call them "constructivist."" Despite
important differences, cognitivists, poststructuralists, standpoint and postmodern
feminists, rule theorists, and structurationists share a concern with the
basic "sociological" issue bracketed by rationalists-namely, the issue of
identity- and interest-formation. Constructivism's potential contribution to a
strong liberalism has been obscured, however, by recent epistemological
debates between modernists and postmodernists, in which Science disciplines
Dissent for not defining a conventional research program, and Dissent
celebrates its liberation from Science.1" Real issues animate this debate, w
6. See Nye, "Nuclear Learning and U.S.-Soviet Security Regimes"; Robert Jervis, "Realism,
Game Theory, and Cooperation," World Politics 40 (April 1988), pp. 340-44; and Robert Keohane,
"International Liberalism Reconsidered," in John Dunn, ed., The Economic Limits to Modem
Politics (Cambridge: Cambridge University Press, 1990), p. 183.
7. Rationalists have given some attention to the problem of preference-formation, although in
so doing they have gone beyond what I understand as the characteristic parameters of rationalism.
See, for example, Jon Elster, "Sour Grapes: Utilitarianism and the Genesis of Wants," in Amartya
Sen and Bernard Williams, eds., Utilitarianism and Beyond (Cambridge: Cambridge University
Press, 1982), pp. 219-38; and Michael Cohen and Robert Axelrod, "Coping with Complexity: The
Adaptive Value of Changing Utility,"American Economic Review 74 (March 1984), pp. 30-42.
8. Friedrich Kratochwil and John Ruggie, "International Organization: A State of the Art on an
Art of the State," Intemational Organization 40 (Autumn 1986), pp. 753-75.
9. Keohane, "International Institutions."
10. See Nicholas Onuf, World of Our Making (Columbia: University of South Carolina Press,
1989).
11. On Science, see Keohane, "International Institutions"; and Robert Keohane, "International
Relations Theory: Contributions of a Feminist Standpoint," Millennium 18 (Summer 1989), pp.
245-53. On Dissent, see R. B. J. Walker, "History and Structure in the Theory of International
Relations," Millennium 18 (Summer 1989), pp. 163-83; and Richard Ashley and R. B. J. Walker,
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394 International Organization
also divides constructivists. With respect to the substance of international
relations, however, both modern and postmodern constructivists are interested
in how knowledgeable practices constitute subjects, which is not far from the
strong liberal interest in how institutions transform interests. They share a
cognitive, intersubjective conception of process in which identities and interests
are endogenous to interaction, rather than a rationalist-behavioral one in
which they are exogenous.
My objective in this article is to build a bridge between these two traditions
(and, by extension, between the realist-liberal and rationalist-reflectivist
debates) by developing a constructivist argument, drawn from structurationist
and symbolic interactionist sociology, on behalf of the liberal claim that
international institutions can transform state identities and interests.12 In
contrast to the "economic" theorizing that dominates mainstream systemic
international relations scholarship, this involves a "sociological social
psychological" form of systemic theory in which identities and interests a
dependent variable.13 Whether a "communitarian liberalism" is still liberalism
does not interest me here. What does is that constructivism might contribute
significantly to the strong liberal interest in identity- and interest-formation
and thereby perhaps itself be enriched with liberal insights about learning and
cognition which it has neglected.
My strategy for building this bridge will be to argue against the neorealist
claim that self-help is given by anarchic structure exogenously to process.
Constructivists have not done a good job of taking the causal powers of anarchy
seriously. This is unfortunate, since in the realist view anarchy justifies
disinterest in the institutional transformation of identities and interests and
thus building systemic theories in exclusively rationalist terms; its putative
causal powers must be challenged if process and institutions are not to be
subordinated to structure. I argue that self-help and power politics do not
follow either logically or causally from anarchy and that if today we find
ourselves in a self-help world, this is due to process, not structure. There is no
"Reading Dissidence/Writing the Discipline: Crisis and the Question of Sovereignty in International
Studies," Intemational Studies Quarterly 34 (September 1990), pp. 367-416. For an excellent
critical assessment of these debates, see Yosef Lapid, "The Third Debate: On the Prospects of
International Theory in a Post-Positivist Era," Intemational Studies Quarterly 33 (September 1989),
pp. 235-54.
12. The fact that I draw on these approaches aligns me with modernist constructivists, even
though I also draw freely on the substantive work of postmodernists, especially Richard Ashley and
Rob Walker. For a defense of this practice and a discussion of its epistemological basis, see my
earlier article, "The Agent-Structure Problem in International Relations Theory," Intemational
Organization 41 (Summer 1987), pp. 335-70; and Ian Shapiro and Alexander Wendt, "The
Difference That Realism Makes: Social Science and the Politics of Consent," forthcoming in
Politics and Society. Among modernist constructivists, my argument is particularly indebted to the
published work of Emanuel Adler, Friedrich Kratochwil, and John Ruggie, as well as to an
unpublished paper by Naeem Inayatullah and David Levine entitled "Politics and Economics in
Contemporary International Relations Theory," Syracuse University, Syracuse, N.Y., 1990.
13. See Viktor Gecas, "Rekindling the Sociological Imagination in Social Psychology," Joumal
for the Theory of Social Behavior 19 (March 1989), pp. 97-115.
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Anarchy 395
"logic" of anarchy apart from the practices that create and instantiate one
structure of identities and interests rather than another; structure has no
existence or causal powers apart from process. Self-help and power politics are
institutions, not essential features of anarchy. Anarchy is what states make of it.
In the subsequent sections of this article, I critically examine the claims and
assumptions of neorealism, develop a positive argument about how self-help
and power politics are socially constructed under anarchy, and then explore
three ways in which identities and interests are transformed under anarchy: by
the institution of sovereignty, by an evolution of cooperation, and by intentional
efforts to transform egoistic identities into collective identities.
Anarchy and power politics
Classical realists such as Thomas Hobbes, Reinhold Niebuhr, and Hans
Morgenthau attributed egoism and power politics primarily to human nature,
whereas structural realists or neorealists emphasize anarchy. The difference
stems in part from different interpretations of anarchy's causal powers.
Kenneth Waltz's work is important for both. In Man, the State, and War, he
defines anarchy as a condition of possibility for or "permissive" cause of war,
arguing that "wars occur because there is nothing to prevent them."14 It is the
human nature or domestic politics of predator states, however, that provide the
initial impetus or "efficient" cause of conflict which forces other states to
respond in kind.15 Waltz is not entirely consistent about this, since he slips
without justification from the permissive causal claim that in anarchy war is
always possible to the active causal claim that "war may at any moment
occur."'16 But despite Waltz's concluding call for third-image theory, the
efficient causes that initialize anarchic systems are from the first and second
images. This is reversed in Waltz's Theory of International Politics, in which firstand
second-image theories are spurned as "reductionist," and the logic of
anarchy seems by itself to constitute self-help and power politics as necessary
features of world politics.17
This is unfortunate, since whatever one may think of first- and second-image
theories, they have the virtue of implying that practices determine the
character of anarchy. In the permissive view, only if human or domestic factors
cause A to attack B will B have to defend itself. Anarchies may contain
dynamics that lead to competitive power politics, but they also may not, and we
can argue about when particular structures of identity and interest will emerge.
14. Kenneth Waltz, Man, the State, and War (New York: Columbia University Press, 1959),
p. 232.
15. Ibid., pp. 169-70.
16. Ibid., p. 232. This point is made by Hidemi Suganami in "Bringing Order to the Causes of
War Debates," Millennium 19 (Spring 1990), p. 34, fn. 11.
17. Kenneth Waltz, Theory of Intemational Politics (Boston: Addison-Wesley, 1979).
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396 International Organization
In neorealism, however, the role of practice in shaping the character of anarchy
is substantially reduced, and so there is less about which to argue: self-help and
competitive power politics are simply given exogenously by the structure of the
state system.
I will not here contest the neorealist description of the contemporary state
system as a competitive, self-help world;18 I will only dispute its explanation. I
develop my argument in three stages. First, I disentangle the concepts of
self-help and anarchy by showing that self-interested conceptions of security
are not a constitutive property of anarchy. Second, I show how self-help and
competitive power politics may be produced causally by processes of interaction
between states in which anarchy plays only a permissive role. In both of
these stages of my argument, I self-consciously bracket the first- and secondimage
determinants of state identity, not because they are unimportant (they
are indeed important), but because like Waltz's objective, mine is to clarify the
"logic" of anarchy. Third, I reintroduce first- and second-image determinants
to assess their effects on identity-formation in different kinds of anarchies.
Anarchy, self-help, and intersubjective knowledge
Waltz defines political structure on three dimensions: ordering principles (in
this case, anarchy), principles of differentiation (which here drop out), and the
distribution of capabilities.19 By itself, this definition predicts little about state
behavior. It does not predict whether two states will be friends or foes, will
recognize each other's sovereignty, will have dynastic ties, will be revisionist or
status quo powers, and so on. These factors, which are fundamentally
intersubjective, affect states' security interests and thus the character of their
interaction under anarchy. In an important revision of Waltz's theory, Stephen
Walt implies as much when he argues that the "balance of threats," rather than
the balance of power, determines state action, threats being socially constructed.20
Put more generally, without assumptions about the structure of
identities and interests in the system, Waltz's definition of structure cannot
predict the content or dynamics of anarchy. Self-help is one such intersubjective
structure and, as such, does the decisive explanatory work in the theory.
The question is whether self-help is a logical or contingent feature of anarchy.
In this section, I develop the concept of a "structure of identity and interest"
and show that no particular one follows logically from anarchy.
A fundamental principle of constructivist social theory is that people act
toward objects, including other actors, on the basis of the meanings that the
18. The neorealist description is not unproblematic. For a powerful critique, see David
Lumsdaine, Ideals and Interests: The Foreign Aid Regime, 1949-1989 (Princeton, N.J.: Princeton
University Press, forthcoming).
19. Waltz, Theory of Intemational Politics, pp. 79-101.
20. Stephen Walt, The Origins ofAlliances (Ithaca, N.Y.: Cornell University Press, 1987).
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Anarchy 397
objects have for them.21 States act differently toward enemies than they do
toward friends because enemies are threatening and friends are not. Anarchy
and the distribution of power are insufficient to tell us which is which. U.S.
military power has a different significance for Canada than for Cuba, despite
their similar "structural" positions, just as British missiles have a different
significance for the United States than do Soviet missiles. The distribution of
power may always affect states' calculations, but how it does so depends on the
intersubjective understandings and expectations, on the "distribution of
knowledge," that constitute their conceptions of self and other.22 If society
"forgets" what a university is, the powers and practices of professor and
student cease to exist; if the United States and Soviet Union decide that they
are no longer enemies, "the cold war is over." It is collective meanings that
constitute the structures which organize our actions.
Actors acquire identities-relatively stable, role-specific understandings and
expectations about self-by participating in such collective meanings.23 Identities
are inherently relational: "Identity, with its appropriate attachments of
psychological reality, is always identity within a specific, socially constructed
21. See, for example, Herbert Blumer, "The Methodological Position of Symbolic Interactionism,"
in his Symbolic Interactionism: Perspective and Method (Englewood Cliffs, N.J.: Prentice-Hall, 1969),
p. 2. Throughout this article, I assume that a theoretically productive analogy can be made between
individuals and states. There are at least two justifications for this anthropomorphism. Rhetorically,
the analogy is an accepted practice in mainstream international relations discourse, and since
this article is an immanent rather than external critique, it should follow the practice. Substantively,
states are collectivities of individuals that through their practices constitute each other as
"persons" having interests, fears, and so on. A full theory of state identity- and interest-formation
would nevertheless need to draw insights from the social psychology of groups and organizational
theory, and for that reason my anthropomorphism is merely suggestive.
22. The phrase "distribution of knowledge" is Barry Barnes's, as discussed in his work The
Nature of Power (Cambridge: Polity Press, 1988); see also Peter Berger and Thomas Luckmann, The
Social Construction of Reality (New York: Anchor Books, 1966). The concern of recent international
relations scholarship on "epistemic communities" with the cause-and-effect understandings
of the world held by scientists, experts, and policymakers is an important aspect of the role of
knowledge in world politics; see Peter Haas, "Do Regimes Matter? Epistemic Communities and
Mediterranean Pollution Control," Intemational Organization 43 (Summer 1989), pp. 377-404; and
Ernst Haas, When Knowledge Is Power. My constructivist approach would merely add to this an
equal emphasis on how such knowledge also constitutes the structures and subjects of social life.
23. For an excellent short statement of how collective meanings constitute identities, see Peter
Berger, "Identity as a Problem in the Sociology of Knowledge," European Joumal of Sociology, vol.
7, no. 1, 1966, pp. 32-40. See also David Morgan and Michael Schwalbe, "Mind and Self in Society:
Linking Social Structure and Social Cognition," Social Psychology Quarterly 53 (June 1990), pp.
148-64. In my discussion, I draw on the following interactionist texts: George Herbert Mead, Mind,
Self and Society (Chicago: University of Chicago Press, 1934); Berger and Luckmann, The Social
Construction of Reality; Sheldon Stryker, Symbolic Interactionism:A Social Structural Version (Menlo
Park, Calif.: Benjamin/Cummings, 1980); R. S. Perinbanayagam, Signifying Acts: Structure and
Meaning in Everyday Life (Carbondale: Southern Illinois University Press, 1985); John Hewitt, Self
and Society: A Symbolic Interactionist Social Psychology (Boston: Allyn & Bacon, 1988); and Turner,
A Theory of Social Interaction. Despite some differences, much the same points are made by
structurationists such as Bhaskar and Giddens. See Roy Bhaskar, The Possibility of Naturalism
(Atlantic Highlands, N.J.: Humanities Press, 1979); and Anthony Giddens, Central Problems in
Social Theory (Berkeley: University of California Press, 1979).
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398 International Organization
world," Peter Berger argues.24 Each person has many identities linked to
institutional roles, such as brother, son, teacher, and citizen. Similarly, a state
may have multiple identities as "sovereign," "leader of the free world,"
"imperial power," and so on.25 The commitment to and the salience of
particular identities vary, but each identity is an inherently social definition of
the actor grounded in the theories which actors collectively hold about
themselves and one another and which constitute the structure of the social
world.
Identities are the basis of interests. Actors do not have a "portfolio" of
interests that they carry around independent of social context; instead, they
define their interests in the process of defining situations.26 As Nelson Foote
puts it: "Motivation ... refer[s] to the degree to which a human being, as a
participant in the ongoing social process in which he necessarily finds himself,
defines a problematic situation as calling for the performance of a particular
act, with more or less anticipated consummations and consequences, and
thereby his organism releases the energy appropriate to performing it."27
Sometimes situations are unprecedented in our experience, and in these cases
we have to construct their meaning, and thus our interests, by analogy or invent
them de novo. More often they have routine qualities in which we assign
meanings on the basis of institutionally defined roles. When we say that
professors have an "interest" in teaching, research, or going on leave, we are
saying that to function in the role identity of "professor," they have to define
certain situations as calling for certain actions. This does not mean that they
will necessarily do so (expectations and competence do not equal performance),
but if they do not, they will not get tenure. The absence or failure of
roles makes defining situations and interests more difficult, and identity
24. Berger, "Identity as a Problem in the Sociology of Knowledge," p. 111.
25. While not normally cast in such terms, foreign policy scholarship on national role
conceptions could be adapted to such identity language. See Kal Holsti, "National Role
Conceptions in the Study of Foreign Policy," Intemational Studies Quarterly 14 (September 1970),
pp. 233-309; and Stephen Walker, ed., Role Theory and Foreign Policy Analysis (Durham, N.C.:
Duke University Press, 1987). For an important effort to do so, see Stephen Walker, "Symbolic
Interactionism and International Politics: Role Theory's Contribution to International
Organization," in C. Shih and Martha Cottam, eds., Contending Dramas: A Cognitive Approach to
Post-War Intemational Organizational Processes (New York: Praeger, forthcoming).
26. On the "portfolio" conception of interests, see Barry Hindess, Political Choice and Social
Structure (Aldershot, U.K.: Edward Elgar, 1989), pp. 2-3. The "definition of the situation" is a
central concept in interactionist theory.
27. Nelson Foote, "Identification as the Basis for a Theory of Motivation," American
Sociological Review 16 (February 1951), p. 15. Such strongly sociological conceptions of interest
have been criticized, with some justice, for being "oversocialized"; see Dennis Wrong, "The
Oversocialized Conception of Man in Modern Sociology," American Sociological Review 26 (April
1961), pp. 183-93. For useful correctives, which focus on the activation of presocial but
nondetermining human needs within social contexts, see Turner, A Theory of Social Interaction, pp.
23-69; and Viktor Gecas, "The Self-Concept as a Basis for a Theory of Motivation," in Judith
Howard and Peter Callero, eds., The Self-Society Dynamic (Cambridge: Cambridge University
Press, 1991), pp. 171-87.
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Anarchy 399
confusion may result. This seems to be happening today in the United States
and the former Soviet Union: without the cold war's mutual attributions of
threat and hostility to define their identities, these states seem unsure of what
their "interests" should be.
An institution is a relatively stable set or "structure" of identities and
interests. Such structures are often codified in formal rules and norms, but
these have motivational force only in virtue of actors' socialization to and
participation in collective knowledge. Institutions are fundamentally cognitive
entities that do not exist apart from actors' ideas about how the world works.28
This does not mean that institutions are not real or objective, that they are
"nothing but" beliefs. As collective knowledge, they are experienced as having
an existence "over and above the individuals who happen to embody them at
the moment."29 In this way, institutions come to confront individuals as more or
less coercive social facts, but they are still a function of what actors collectively
"know." Identities and such collective cognitions do not exist apart from each
other; they are "mutually constitutive."30 On this view, institutionalization is a
process of internalizing new identities and interests, not something occurring
outside them and affecting only behavior; socialization is a cognitive process,
not just a behavioral one. Conceived in this way, institutions may be cooperative
or conflictual, a point sometimes lost in scholarship on international
regimes, which tends to equate institutions with cooperation. There are
important differences between conflictual and cooperative institutions to be
sure, but all relatively stable self-other relations-even those of "enemies"are
defined intersubjectively.
Self-help is an institution, one of various structures of identity and interest
that may exist under anarchy. Processes of identity-formation under anarchy
are concerned first and foremost with preservation or "security" of the self.
Concepts of security therefore differ in the extent to which and the manner in
which the self is identified cognitively with the other,31 and, I want to suggest, it
28. In neo-Durkheimian parlance, institutions are "social representations." See Serge Moscovici,
"The Phenomenon of Social Representations," in Rob Farr and Serge Moscovici, eds., Social
Representations (Cambridge: Cambridge University Press, 1984), pp. 3-69. See also Barnes, The
Nature of Power. Note that this is a considerably more socialized cognitivism than that found in
much of the recent scholarship on the role of "ideas" in world politics, which tends to treat ideas as
commodities that are held by individuals and intervene between the distribution of power and
outcomes. For a form of cognitivism closer to my own, see Emanuel Adler, "Cognitive Evolution: A
Dynamic Approach for the Study of International Relations and Their Progress," in Emanuel
Adler and Beverly Crawford, eds., Progress in Postwar International Relations (New York: Columbia
University Press, 1991), pp. 43-88.
29. Berger and Luckmann, The Social Construction of Reality, p. 58.
30. See Giddens, Central Problems in Social Theory; and Alexander Wendt and Raymond Duvall,
"Institutions and International Order," in Ernst-Otto Czempiel and James Rosenau, eds., Global
Changes and Theoretical Challenges (Lexington, Mass.: Lexington Books, 1989), pp. 51-74.
31. Proponents of choice theory might put this in terms of "interdependent utilities." For a
useful overview of relevant choice-theoretic discourse, most of which has focused on the specific
case of altruism, see Harold Hochman and Shmuel Nitzan, "Concepts of Extended Preference,"
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400 International Organization
is upon this cognitive variation that the meaning of anarchy and the distribution
of power depends. Let me illustrate with a standard continuum of security
systems."
At one end is the "competitive" security system, in which states identify
negatively with each other's security so that ego's gain is seen as alter's loss.
Negative identification under anarchy constitutes systems of "realist" power
politics: risk-averse actors that infer intentions from capabilities and worry
about relative gains and losses. At the limit-in the Hobbesian war of all
against all-collective action is nearly impossible in such a system because each
actor must constantly fear being stabbed in the back.
In the middle is the "individualistic" security system, in which states are
indifferent to the relationship between their own and others' security. This
constitutes "neoliberal" systems: states are still self-regarding about their
security but are concerned primarily with absolute gains rather than relative
gains. One's position in the distribution of power is less important, and
collective action is more possible (though still subject to free riding because
states continue to be "egoists").
Competitive and individualistic systems are both "self-help" forms of
anarchy in the sense that states do not positively identify the security of self
with that of others but instead treat security as the individual responsibility of
each. Given the lack of a positive cognitive identification on the basis of which
to build security regimes, power politics within such systems will necessarily
consist of efforts to manipulate others to satisfy self-regarding interests.
This contrasts with the "cooperative" security system, in which states identify
positively with one another so that the security of each is perceived as the
responsibility of all. This is not self-help in any interesting sense, since the
"self" in terms of which interests are defined is the community; national
interests are international interests.33 In practice, of course, the extent to which
Joumal of Economic Behavior and Organization 6 (June 1985), pp. 161-76. The literature on choice
theory usually does not link behavior to issues of identity. For an exception, see Amartya Sen,
"Goals, Commitment, and Identity," Joumal of Law, Economics, and Organization 1 (Fall 1985),
pp. 341-55; and Robert Higgs, "Identity and Cooperation: A Comment on Sen's Alternative
Program," Joumal of Law, Economics, and Organization 3 (Spring 1987), pp. 140-42.
32. Security systems might also vary in the extent to which there is a functional differentiation or
a hierarchical relationship between patron and client, with the patron playing a hegemonic role
within its sphere of influence in defining the security interests of its clients. I do not examine this
dimension here; for preliminary discussion, see Alexander Wendt, "The States System and Global
Militarization," Ph.D. diss., University of Minnesota, Minneapolis, 1989; and Alexander Wendt
and Michael Barnett, "The International System and Third World Militarization," unpublished
manuscript, 1991.
33. This amounts to an "internationalization of the state." For a discussion of this subject, see
Raymond Duvall and Alexander Wendt, "The International Capital Regime and the Internationalization
of the State," unpublished manuscript, 1987. See also R. B. J. Walker, "Sovereignty,
Identity, Community: Reflections on the Horizons of Contemporary Political Practice," in R. B. J.
Walker and Saul Mendlovitz, eds., Contending Sovereignties (Boulder, Colo.: Lynne Rienner, 1990),
pp. 159-85.
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Anarchy 401
states' identification with the community varies, from the limited form found in
"concerts" to the full-blown form seen in "collective security" arrangements.34
Depending on how well developed the collective self is, it will produce security
practices that are in varying degrees altruistic or prosocial. This makes
collective action less dependent on the presence of active threats and less
prone to free riding.35 Moreover, it restructures efforts to advance one's
objectives, or "power politics," in terms of shared norms rather than relative
power.36
On this view, the tendency in international relations scholarship to view
power and institutions as two opposing explanations of foreign policy is
therefore misleading, since anarchy and the distribution of power only have
meaning for state action in virtue of the understandings and expectations that
constitute institutional identities and interests. Self-help is one such institution,
constituting one kind of anarchy but not the only kind. Waltz's three-part
definition of structure therefore seems underspecified. In order to go from
structure to action, we need to add a fourth: the intersubjectively constituted
structure of identities and interests in the system.
This has an important implication for the way in which we conceive of states
in the state of nature before their first encounter with each other. Because
states do not have conceptions of self and other, and thus security interests,
apart from or prior to interaction, we assume too much about the state of
nature if we concur with Waltz that, in virtue of anarchy, "international
political systems, like economic markets, are formed by the coaction of
self-regarding units."37 We also assume too much if we argue that, in virtue of
34. On the spectrum of cooperative security arrangements, see Charles Kupchan and Clifford
Kupchan, "Concerts, Collective Security, and the Future of Europe," International Security 16
(Summer 1991), pp. 114-61; and Richard Smoke, "A Theory of Mutual Security," in Richard
Smoke and Andrei Kortunov, eds., Mutual Security (New York: St. Martin's Press, 1991), pp.
59-111. These may be usefully set alongside Christopher Jencks' "Varieties of Altruism," in Jane
Mansbridge, ed., Beyond Self-Interest (Chicago: University of Chicago Press, 1990), pp. 53-67.
35. On the role of collective identity in reducing collective action problems, see Bruce Fireman
and William Gamson, "Utilitarian Logic in the Resource Mobilization Perspective," in Mayer Zald
and John McCarthy, eds., The Dynamics of Social Movements (Cambridge, Mass.: Winthrop, 1979),
pp. 8-44; Robyn Dawes et al., "Cooperation for the Benefit of Us-Not Me, or My Conscience," in
Mansbridge, Beyond Self-Interest, pp. 97-110; and Craig Calhoun, "The Problem of Identity in
Collective Action," in Joan Huber, ed., Macro-Micro Linkages in Sociology (Beverly Hills, Calif.:
Sage, 1991), pp. 51-75.
36. See Thomas Risse-Kappen, "Are Democratic Alliances Special?" unpublished manuscript,
Yale University, New Haven, Conn., 1991. This line of argument could be expanded usefully in
feminist terms. For a useful overview of the relational nature of feminist conceptions of self, see
Paula England and Barbara Stanek Kilbourne, "Feminist Critiques of the Separative Model of
Self: Implications for Rational Choice Theory," Rationality and Society 2 (April 1990), pp. 156-71.
On feminist conceptualizations of power, see Ann Tickner, "Hans Morgenthau's Principles of
Political Realism: A Feminist Reformulation," Millennium 17 (Winter 1988), pp. 429-40; and
Thomas Wartenberg, "The Concept of Power in Feminist Theory," Praxis International 8 (October
1988), pp. 301-16.
37. Waltz, Theory of International Politics, p. 91.
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402 International Organization
anarchy, states in the state of nature necessarily face a "stag hunt" or "security
dilemma."38 These claims presuppose a history of interaction in which actors
have acquired "selfish" identities and interests; before interaction (and still in
abstraction from first- and second-image factors) they would have no experience
upon which to base such definitions of self and other. To assume
otherwise is to attribute to states in the state of nature qualities that they can
only possess in society.39 Self-help is an institution, not a constitutive feature of
anarchy.
What, then, is a constitutive feature of the state of nature before interaction?
Two things are left if we strip away those properties of the self which
presuppose interaction with others. The first is the material substrate of
agency, including its intrinsic capabilities. For human beings, this is the body;
for states, it is an organizational apparatus of governance. In effect, I am
suggesting for rhetorical purposes that the raw material out of which members
of the state system are constituted is created by domestic society before states
enter the constitutive process of international society,40 although this process
implies neither stable territoriality nor sovereignty, which are internationally
negotiated terms of individuality (as discussed further below). The second is a
desire to preserve this material substrate, to survive. This does not entail
"self-regardingness," however, since actors do not have a self prior to
interaction with an other; how they view the meaning and requirements of this
survival therefore depends on the processes by which conceptions of self
evolve.
This may all seem very arcane, but there is an important issue at stake: are
the foreign policy identities and interests of states exogenous or endogenous to
the state system? The former is the answer of an individualistic or undersocialized
systemic theory for which rationalism is appropriate; the latter is the
answer of a fully socialized systemic theory. Waltz seems to offer the latter and
38. See Waltz, Man, the State, and War; and Robert Jervis, "Cooperation Under the Security
Dilemma," World Politics 30 (January 1978), pp. 167-214.
39. My argument here parallels Rousseau's critique of Hobbes. For an excellent critique of
realist appropriations of Rousseau, see Michael Williams, "Rousseau, Realism, and Realpolitik,"
Millennium 18 (Summer 1989), pp. 188-204. Williams argues that far from being a fundamental
starting point in the state of nature, for Rousseau the stag hunt represented a stage in man's fall.
On p. 190, Williams cites Rousseau's description of man prior to leaving the state of nature: "Man
only knows himself; he does not see his own well-being to be identified with or contrary to that of
anyone else; he neither hates anything nor loves anything; but limited to no more than physical
instinct, he is no one, he is an animal." For another critique of Hobbes on the state of nature that
parallels my constructivist reading of anarchy, see Charles Landesman, "Reflections on Hobbes:
Anarchy and Human Nature," in Peter Caws, ed., The Causes of Quarrel (Boston: Beacon, 1989),
pp. 139-48.
40. Empirically, this suggestion is problematic, since the process of decolonization and the
subsequent support of many Third World states by international society point to ways in which even
the raw material of "empirical statehood" is constituted by the society of states. See Robert
Jackson and Carl Rosberg, "Why Africa's Weak States Persist: The Empirical and the Juridical in
Statehood," World Politics 35 (October 1982), pp. 1-24.
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Anarchy 403
proposes two mechanisms, competition and socialization, by which structure
conditions state action.4' The content of his argument about this conditioning,
however, presupposes a self-help system that is not itself a constitutive feature
of anarchy. As James Morrow points out, Waltz's two mechanisms condition
behavior, not identity and interest.42 This explains how Waltz can be accused of
both "individualism" and "structuralism."4' He is the former with respect to
systemic constitutions of identity and interest, the latter with respect to
systemic determinations of behavior.
Anarchy and the social construction of power politics
If self-help is not a constitutive feature of anarchy, it must emerge causally
from processes in which anarchy plays only a permissive role.' This reflects a
second principle of constructivism: that the meanings in terms of which action
is organized arise out of interaction.45 This being said, however, the situation
facing states as they encounter one another for the first time may be such that
only self-regarding conceptions of identity can survive; if so, even if these
conceptions are socially constructed, neorealists may be right in holding
identities and interests constant and thus in privileging one particular meaning
of anarchic structure over process. In this case, rationalists would be right to
argue for a weak, behavioral conception of the difference that institutions
make, and realists would be right to argue that any international institutions
which are created will be inherently unstable, since without the power to
41. Waltz, Theory of International Politics, pp. 74-77.
42. See James Morrow, "Social Choice and System Structure in World Politics," World Politics
41 (October 1988), p. 89. Waltz's behavioral treatment of socialization may be usefully contrasted
with the more cognitive approach taken by Ikenberry and the Kupchans in the following articles: G.
John Ikenberry and Charles Kupchan, "Socialization and Hegemonic Power," International
Organization 44 (Summer 1989), pp. 283-316; and Kupchan and Kupchan, "Concerts, Collective
Security, and the Future of Europe." Their approach is close to my own, but they define
socialization as an elite strategy to induce value change in others, rather than as a ubiquitous
feature of interaction in terms of which all identities and interests get produced and reproduced.
43. Regarding individualism, see Richard Ashley, "The Poverty of Neorealism," International
Organization 38 (Spring 1984), pp. 225-86; Wendt, "The Agent-Structure Problem in International
Relations Theory"; and David Dessler, "What's at Stake in the Agent-Structure Debate?" International
Organization 43 (Summer 1989), pp. 441-74. Regarding structuralism, see R. B. J. Walker,
"Realism, Change, and International Political Theory," International Studies Quarterly 31 (March
1987), pp. 65-86; and Martin Hollis and Steven Smith, Explaining and Understanding International
Relations (Oxford: Clarendon Press, 1989). The behavioralism evident in neorealist theory also
explains how neorealists can reconcile their structuralism with the individualism of rational choice
theory. On the behavioral-structural character of the latter, see Spiro Latsis, "Situational Determinism
in Economics," British Journalfor the Philosophy of Science 23 (August 1972), pp. 207-45.
44. The importance of the distinction between constitutive and causal explanations is not
sufficiently appreciated in constructivist discourse. See Wendt, "The Agent-Structure Problem in
International Relations Theory," pp. 362-65; Wendt, "The States System and Global Militarization,"
pp. 110-13; and Wendt, "Bridging the Theory/Meta-Theory Gap in International Relations,"
Review of International Studies 17 (October 1991), p. 390.
45. See Blumer, "The Methodological Position of Symbolic Interactionism," pp. 2-4.
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404 International Organization
transform identities and interests they will be "continuing objects of choice" by
exogenously constituted actors constrained only by the transaction costs of
behavioral change.46 Even in a permissive causal role, in other words, anarchy
may decisively restrict interaction and therefore restrict viable forms of
systemic theory. I address these causal issues first by showing how selfregarding
ideas about security might develop and then by examining the
conditions under which a key efficient cause-predation-may dispose states in
this direction rather than others.
Conceptions of self and interest tend to "mirror" the practices of significant
others over time. This principle of identity-formation is captured by the
symbolic interactionist notion of the "looking-glass self," which asserts that the
self is a reflection of an actor's socialization.
Consider two actors-ego and alter-encountering each other for the first
time.47 Each wants to survive and has certain material capabilities, but neither
actor has biological or domestic imperatives for power, glory, or conquest (still
bracketed), and there is no history of security or insecurity between the two.
What should they do? Realists would probably argue that each should act on
the basis of worst-case assumptions about the other's intentions, justifying such
an attitude as prudent in view of the possibility of death from making a mistake.
Such a possibility always exists, even in civil society; however, society would be
impossible if people made decisions purely on the basis of worst-case
possibilities. Instead, most decisions are and should be made on the basis of
probabilities, and these are produced by interaction, by what actors do.
In the beginning is ego's gesture, which may consist, for example, of an
advance, a retreat, a brandishing of arms, a laying down of arms, or an attack.48
For ego, this gesture represents the basis on which it is prepared to respond to
alter. This basis is unknown to alter, however, and so it must make an inference
or "attribution" about ego's intentions and, in particular, given that this is
anarchy, about whether ego is a threat.49 The content of this inference will
largely depend on two considerations. The first is the gesture's and ego's
46. See Robert Grafstein, "Rational Choice: Theory and Institutions," in Kristen Monroe, ed.,
The EconomicApproach to Politics (New York: Harper Collins, 1991), pp. 263-64. A good example
of the promise and limits of transaction cost approaches to institutional analysis is offered by
Robert Keohane in hisAfter Hegemony (Princeton, N.J.: Princeton University Press, 1984).
47. This situation is not entirely metaphorical in world politics, since throughout history states
have "discovered" each other, generating an instant anarchy as it were. A systematic empirical
study of first contacts would be interesting.
48. Mead's analysis of gestures remains definitive. See Mead's Mind, Self and Society. See also
the discussion of the role of signaling in the "mechanics of interaction" in Turner's A Theory of
Social Interaction, pp. 74-79 and 92-115.
49. On the role of attribution processes in the interactionist account of identity-formation, see
Sheldon Stryker and Avi Gottlieb, "Attribution Theory and Symbolic Interactionism," in John
Harvey et al., eds., New Directions in Attribution Research, vol. 3 (Hillsdale, N.J.: Lawrence
Erlbaum, 1981), pp. 425-58; and Kathleen Crittenden, "Sociological Aspects of Attribution,"
Annual Review of Sociology, vol. 9, 1983, pp. 425-46. On attributional processes in international
relations, see Shawn Rosenberg and Gary Wolfsfeld, "International Conflict and the Problem of
Attribution," Journal of Conflict Resolution 21 (March 1977), pp. 75-103.
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Anarchy 405
physical qualities, which are in part contrived by ego and which include the
direction of movement, noise, numbers, and immediate consequences of the
gesture.50 The second consideration concerns what alter would intend by such
qualities were it to make such a gesture itself. Alter may make an attributional
"error" in its inference about ego's intent, but there is also no reason for it to
assume a priori-before the gesture-that ego is threatening, since it is only
through a process of signaling and interpreting that the costs and probabilities
of being wrong can be determined.5" Social threats are constructed, not natural.
Consider an example. Would we assume, a priori, that we were about to be
attacked if we are ever contacted by members of an alien civilization? I think
not. We would be highly alert, of course, but whether we placed our military
forces on alert or launched an attack would depend on how we interpreted the
import of their first gesture for our security-if only to avoid making an
immediate enemy out of what may be a dangerous adversary. The possibility of
error, in other words, does not force us to act on the assumption that the aliens
are threatening: action depends on the probabilities we assign, and these are in
key part a function of what the aliens do; prior to their gesture, we have no
systemic basis for assigning probabilities. If their first gesture is to appear with a
thousand spaceships and destroy New York, we will define the situation as
threatening and respond accordingly. But if they appear with one spaceship,
saying what seems to be "we come in peace," we will feel "reassured" and will
probably respond with a gesture intended to reassure them, even if this gesture
is not necessarily interpreted by them as such.52
This process of signaling, interpreting, and responding completes a "social
act" and begins the process of creating intersubjective meanings. It advances
the same way. The first social act creates expectations on both sides about each
other's future behavior: potentially mistaken and certainly tentative, but
expectations nonetheless. Based on this tentative knowledge, ego makes a new
gesture, again signifying the basis on which it will respond to alter, and again
alter responds, adding to the pool of knowledge each has about the other, and
so on over time. The mechanism here is reinforcement; interaction rewards
actors for holding certain ideas about each other and discourages them from
holding others. If repeated long enough, these "reciprocal typifications" will
create relatively stable concepts of self and other regarding the issue at stake in
the interaction.53
50. On the "stagecraft" involved in "presentations of self," see Erving Goffman, The Presentation
of Self in Everyday Life (New York: Doubleday, 1959). On the role of appearance in definitions
of the situation, see Gregory Stone, "Appearance and the Self," in Arnold Rose, ed., Human
Behavior and Social Processes (Boston: Houghton Mifflin, 1962), pp. 86-118.
51. This discussion of the role of possibilities and probabilities in threat perception owes much
to Stewart Johnson's comments on an earlier draft of my article.
52. On the role of "reassurance" in threat situations, see Richard Ned Lebow and Janice Gross
Stein, "Beyond Deterrence,"JournalofSocialIssues, vol. 43, no. 4, 1987, pp. 5-72.
53. On "reciprocal typifications," see Berger and Luckmann, The Social Construction of Reality,
pp. 54-58.
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406 International Organization
INSTITUTIONS PROCESS
State A with identities .(1) Stimulus requiring
and interests \action
(2) States A's definition of |
l the situationl
Intersubjective
understandings and (3) State A's action
expectations possessed
by and constitutive of A and B
\ ~~~(4) State B's interpretation
\ ~~~of A's action and
{ it B's own definition of
\/ the situation
State B with identities \l
and interests (5) State B's action
FIGURE 1. The codetermination of institutions and process
It is through reciprocal interaction, in other words, that we create and
instantiate the relatively enduring social structures in terms of which we define
our identities and interests. Jeff Coulter sums up the ontological dependence of
structure on process this way: "The parameters of social organization themselves
are reproduced only in and through the orientations and practices of
members engaged in social interactions over time.... Social configurations are
not 'objective' like mountains or forests, but neither are they 'subjective' like
dreams or flights of speculative fancy. They are, as most social scientists
concede at the theoretical level, intersubjective constructions."54
The simple overall model of identity- and interest-formation proposed in
Figure 1 applies to competitive institutions no less than to cooperative ones.
Self-help security systems evolve from cycles of interaction in which each party
acts in ways that the other feels are threatening to the self, creating
expectations that the other is not to be trusted. Competitive or egoistic
identities are caused by such insecurity; if the other is threatening, the self is
forced to "mirror" such behavior in its conception of the self s relationship to
54. Jeff Coulter, "Remarks on the Conceptualization of Social Structure," Philosophy of the
Social Sciences 12 (March 1982), pp. 42-43.
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Anarchy 407
that other.55 Being treated as an object for the gratification of others precludes
the positive identification with others necessary for collective security; conversely,
being treated by others in ways that are empathic with respect to the
security of the self permits such identification.56
Competitive systems of interaction are prone to security "dilemmas," in
which the efforts of actors to enhance their security unilaterally threatens the
security of the others, perpetuating distrust and alienation. The forms of
identity and interest that constitute such dilemmas, however, are themselves
ongoing effects of, not exogenous to, the interaction; identities are produced in
and through "situated activity."57 We do not begin our relationship with the
aliens in a security dilemma; security dilemmas are not given by anarchy or
nature. Of course, once institutionalized such a dilemma may be hard to
change (I return to this below), but the point remains: identities and interests
are constituted by collective meanings that are always in process. As Sheldon
Stryker emphasizes, "The social process is one of constructing and reconstructing
self and social relationships."58 If states find themselves in a self-help
system, this is because their practices made it that way. Changing the practices
will change the intersubjective knowledge that constitutes the system.
Predator states and anarchy as permissive cause
The mirror theory of identity-formation is a crude account of how the
process of creating identities and interests might work, but it does not tell us
why a system of states-such as, arguably, our own-would have ended up with
self-regarding and not collective identities. In this section, I examine an
efficient cause, predation, which, in conjunction with anarchy as a permissive
cause, may generate a self-help system. In so doing, however, I show the key
role that the structure of identities and interests plays in mediating anarchy's
explanatory role.
The predator argument is straightforward and compelling. For whatever
reasons-biology, domestic politics, or systemic victimization-some states
55. The following articles by Noel Kaplowitz have made an important contribution to such
thinking in international relations: "Psychopolitical Dimensions of International Relations: The
Reciprocal Effects of Conflict Strategies," International Studies Quarterly 28 (December 1984), pp.
373-406; and "National Self-Images, Perception of Enemies, and Conflict Strategies: Psychopolitical
Dimensions of International Relations," Political Psychology 11 (March 1990), pp. 39-82.
56. These arguments are common in theories of narcissism and altruism. See Heinz Kohut,
Self-Psychology and the Humanities (New York: Norton, 1985); and Martin Hoffmann, "Empathy,
Its Limitations, and Its Role in a Comprehensive Moral Theory," in William Kurtines and Jacob
Gewirtz, eds., Morality, Moral Behavior, and Moral Development (New York: Wiley, 1984), pp.
283-302.
57. See C. Norman Alexander and Mary Glenn Wiley, "Situated Activity and Identity
Formation," in Morris Rosenberg and Ralph Turner, eds., Social Psychology: Sociological
Perspectives (New York: Basic Books, 1981), pp. 269-89.
58. Sheldon Stryker, "The Vitalization of Symbolic Interactionism," Social Psychology Quarterly
50 (March 1987), p. 93.
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408 International Organization
may become predisposed toward aggression. The aggressive behavior of these
predators or "bad apples" forces other states to engage in competitive power
politics, to meet fire with fire, since failure to do so may degrade or destroy
them. One predator will best a hundred pacifists because anarchy provides no
guarantees. This argument is powerful in part because it is so weak: rather than
making the strong assumption that all states are inherently power-seeking (a
purely reductionist theory of power politics), it assumes that just one is
power-seeking and that the others have to follow suit because anarchy permits
the one to exploit them.
In making this argument, it is important to reiterate that the possibility of
predation does not in itself force states to anticipate it a priori with competitive
power politics of their own. The possibility of predation does not mean that
"war may at any moment occur"; it may in fact be extremely unlikely. Once a
predator emerges, however, it may condition identity- and interest-formation
in the following manner.
In an anarchy of two, if ego is predatory, alter must either define its security
in self-help terms or pay the price. This follows directly from the above
argument, in which conceptions of self mirror treatment by the other. In an
anarchy of many, however, the effect of predation also depends on the level of
collective identity already attained in the system. If predation occurs right after
the first encounter in the state of nature, it will force others with whom it comes
in contact to defend themselves, first individually and then collectively if they
come to perceive a common threat. The emergence of such a defensive alliance
will be seriously inhibited if the structure of identities and interests has already
evolved into a Hobbesian world of maximum insecurity, since potential allies
will strongly distrust each other and face intense collective action problems;
such insecure allies are also more likely to fall out amongst themselves once the
predator is removed. If collective security identity is high, however, the
emergence of a predator may do much less damage. If the predator attacks any
member of the collective, the latter will come to the victim's defense on the
principle of "all for one, one for all," even if the predator is not presently a
threat to other members of the collective. If the predator is not strong enough
to withstand the collective, it will be defeated and collective security will obtain.
But if it is strong enough, the logic of the two-actor case (now predator and
collective) will activate, and balance-of-power politics will reestablish itself.
The timing of the emergence of predation relative to the history of
identity-formation in the community is therefore crucial to anarchy's explanatory
role as a permissive cause. Predation will always lead victims to defend
themselves, but whether defense will be collective or not depends on the history
of interaction within the potential collective as much as on the ambitions of the
predator. Will the disappearance of the Soviet threat renew old insecurities
among the members of the North Atlantic Treaty Organization? Perhaps, but
not if they have reasons independent of that threat for identifying their security
with one another. Identities and interests are relationship-specific, not intrinsic
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Anarchy 409
attributes of a "portfolio"; states may be competitive in some relationships and
solidary in others. "Mature" anarchies are less likely than "immature" ones to
be reduced by predation to a Hobbesian condition, and maturity, which is a
proxy for structures of identity and interest, is a function of process.59
The source of predation also matters. If it stems from unit-level causes that
are immune to systemic impacts (causes such as human nature or domestic
politics taken in isolation), then it functions in a manner analogous to a
"genetic trait" in the constructed world of the state system. Even if successful,
this trait does not select for other predators in an evolutionary sense so much as
it teaches other states to respond in kind, but since traits cannot be unlearned,
the other states will continue competitive behavior until the predator is either
destroyed or transformed from within. However, in the more likely event that
predation stems at least in part from prior systemic interaction-perhaps as a
result of being victimized in the past (one thinks here of Nazi Germany or the
Soviet Union)-then it is more a response to a learned identity and, as such,
might be transformed by future social interaction in the form of appeasement,
reassurances that security needs will be met, systemic effects on domestic
politics, and so on. In this case, in other words, there is more hope that process
can transform a bad apple into a good one.
The role of predation in generating a self-help system, then, is consistent
with a systematic focus on process. Even if the source of predation is entirely
exogenous to the system, it is what states do that determines the quality of their
interactions under anarchy. In this respect, it is not surprising that it is classical
realists rather than structural realists who emphasize this sort of argument. The
former's emphasis on unit-level causes of power politics leads more easily to a
permissive view of anarchy's explanatory role (and therefore to a processual
view of international relations) than does the latter's emphasis on anarchy as a
"structural cause";60 neorealists do not need predation because the system is
given as self-help.
This raises anew the question of exactly how much and what kind of role
human nature and domestic politics play in world politics. The greater and
more destructive this role, the more significant predation will be, and the less
amenable anarchy will be to formation of collective identities. Classical realists,
of course, assumed that human nature was possessed by an inherent lust for
power or glory. My argument suggests that assumptions such as this were made
for a reason: an unchanging Hobbesian man provides the powerful efficient
cause necessary for a relentless pessimism about world politics that anarchic
structure alone, or even structure plus intermittent predation, cannot supply.
One can be skeptical of such an essentialist assumption, as I am, but it does
59. On the "maturity" of anarchies, see Barry Buzan, People, States, and Fear (Chapel Hill:
University of North Carolina Press, 1983).
60. A similar intuition may lie behind Ashley's effort to reappropriate classical realist discourse
for critical international relations theory. See Richard Ashley, "Political Realism and Human
Interests," International Studies Quarterly 38 (June 1981), pp. 204-36.
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410 International Organization
produce determinate results at the expense of systemic theory. A concern with
systemic process over structure suggests that perhaps it is time to revisit the
debate over the relative importance of first-, second-, and third-image theories
of state identity-formation.6"
Assuming for now that systemic theories of identity-formation in world
politics are worth pursuing, let me conclude by suggesting that the realistrationalist
alliance "reifies" self-help in the sense of treating it as something
separate from the practices by which it is produced and sustained. Peter Berger
and Thomas Luckmann define reification as follows: "[It] is the apprehension
of the products of human activity as if they were something else than human
products-such as facts of nature, results of cosmic laws, or manifestations of
divine will. Reification implies that man is capable of forgetting his own
authorship of the human world, and further, that the dialectic between man,
the producer, and his products is lost to consciousness. The reified world is ...
experienced by man as a strange facticity, an opus alienum over which he has no
control rather than as the opus proprium of his own productive activity."62 By
denying or bracketing states' collective authorship of their identities and
interests, in other words, the realist-rationalist alliance denies or brackets the
fact that competitive power politics help create the very "problem of order"
they are supposed to solve-that realism is a self-fulfilling prophecy. Far from
being exogenously given, the intersubjective knowledge that constitutes competitive
identities and interests is constructed every day by processes of "social will
formation."63 It is what states have made of themselves.
Institutional transformations of power politics
Let us assume that processes of identity- and interest-formation have created a
world in which states do not recognize rights to territory or existence-a war of
all against all. In this world, anarchy has a "realist" meaning for state action: be
insecure and concerned with relative power. Anarchy has this meaning only in
virtue of collective, insecurity-producing practices, but if those practices are
61. Waltz has himself helped open up such a debate with his recognition that systemic factors
condition but do not determine state actions. See Kenneth Waltz, "Reflections on Theory of
International Politics: A Response to My Critics," in Robert Keohane, ed., Neorealism and Its Critics
(New York: Columbia University Press, 1986), pp. 322-45. The growing literature on the
observation that "democracies do not fight each other" is relevant to this question, as are two other
studies that break important ground toward a "reductionist" theory of state identity: William
Bloom's Personal Identity, National Identity and Intemational Relations (Cambridge: Cambridge
University Press, 1990) and Lumsdaine's Ideals and Interests.
62. See Berger and Luckmann, The Social Construction of Reality, p. 89. See also Douglas
Maynard and Thomas Wilson, "On the Reification of Social Structure," in Scott McNall and Gary
Howe, eds., Current Perspectives in Social Theory, vol. 1 (Greenwich, Conn.: JAI Press, 1980), pp.
287-322.
63. See Richard Ashley, "Social Will and International Anarchy," in Hayward Alker and
Richard Ashley, eds., After Realism, work in progress, Massachusetts Institute of Technology,
Cambridge, and Arizona State University, Tempe, 1992.
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Anarchy 411
relatively stable, they do constitute a system that may resist change. The fact
that worlds of power politics are socially constructed, in other words, does not
guarantee they are malleable, for at least two reasons.
The first reason is that once constituted, any social system confronts each of
its members as an objective social fact that reinforces certain behaviors and
discourages others. Self-help systems, for example, tend to reward competition
and punish altruism. The possibility of change depends on whether the
exigencies of such competition leave room for actions that deviate from the
prescribed script. If they do not, the system will be reproduced and deviant
actors will not.64
The second reason is that systemic change may also be inhibited by actors'
interests in maintaining relatively stable role identities. Such interests are
rooted not only in the desire to minimize uncertainty and anxiety, manifested in
efforts to confirm existing beliefs about the social world, but also in the desire
to avoid the expected costs of breaking commitments made to others-notably
domestic constituencies and foreign allies in the case of states-as part of past
practices. The level of resistance that these commitments induce will depend
on the "salience" of particular role identities to the actor.65 The United States,
for example, is more likely to resist threats to its identity as "leader of
anticommunist crusades" than to its identity as "promoter of human rights."
But for almost any role identity, practices and information that challenge it are
likely to create cognitive dissonance and even perceptions of threat, and these
may cause resistance to transformations of the self and thus to social change.66
For both systemic and "psychological" reasons, then, intersubjective understandings
and expectations may have a self-perpetuating quality, constituting
path-dependencies that new ideas about self and other must transcend. This
does not change the fact that through practice agents are continuously
producing and reproducing identities and interests, continuously "choosing
now the preferences [they] will have later."67 But it does mean that choices may
not be experienced with meaningful degrees of freedom. This could be a
constructivist justification for the realist position that only simple learning is
64. See Ralph Turner, "Role-Taking: Process Versus Conformity," in Rose, Human Behavior
and Social Processes, pp. 20-40; and Judith Howard, "From Changing Selves Toward Changing
Society," in Howard and Callero, The Self-Society Dynamic, pp. 209-37.
65. On the relationship between commitment and identity, see Foote, "Identification as the
Basis for a Theory of Motivation"; Howard Becker, "Notes on the Concept of Commitment,"
American Joumal of Sociology 66 (July 1960), pp. 32-40; and Stryker, Symbolic Interactionism. On
role salience, see Stryker, ibid.
66. On threats to identity and the types of resistance that they may create, see Glynis Breakwell,
Coping with Threatened Identities (London: Methuen, 1986); and Terrell Northrup, "The Dynamic
of Identity in Personal and Social Conflict," in Louis Kreisberg et al., eds., Intractable Conflicts and
Their Transfornation (Syracuse, N.Y.: Syracuse University Press, 1989), pp. 55-82. For a broad
overview of resistance to change, see Timur Kuran, "The Tenacious Past: Theories of Personal and
Collective Conservatism," Journal of Economic Behavior and Organization 10 (September 1988), pp.
143-71.
67. James March, "Bounded Rationality, Ambiguity, and the Engineering of Choice," Bell
Journal of Economics 9 (Autumn 1978), p. 600.
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412 International Organization
possible in self-help systems. The realist might concede that such systems are
socially constructed and still argue that after the corresponding identities and
interests have become institutionalized, they are almost impossible to trans-
form.
In the remainder of this article, I examine three institutional transformations
of identity and security interest through which states might escape a Hobbesian
world of their own making. In so doing, I seek to clarify what it means to say
that "institutions transform identities and interests," emphasizing that the key
to such transformations is relatively stable practice.
Sovereignty, recognition, and security
In a Hobbesian state of nature, states are individuated by the domestic
processes that constitute them as states and by their material capacity to deter
threats from other states. In this world, even if free momentarily from the
predations of others, state security does not have any basis in social recognition-in
intersubjective understandings or norms that a state has a right to its
existence, territory, and subjects. Security is a matter of national power,
nothing more.
The principle of sovereignty transforms this situation by providing a social
basis for the individuality and security of states. Sovereignty is an institution,
and so it exists only in virtue of certain intersubjective understandings and
expectations; there is no sovereignty without an other. These understandings
and expectations not only constitute a particular kind of state-the "sovereign"
state-but also constitute a particular form of community, since identities are
relational. The essence of this community is a mutual recognition of one
another's right to exercise exclusive political authority within territorial limits.
These reciprocal "permissions"68 constitute a spatially rather than functionally
differentiated world-a world in which fields of practice constitute and are
organized around "domestic" and "international" spaces rather than around
the performance of particular activities.69 The location of the boundaries
between these spaces is of course sometimes contested, war being one practice
through which states negotiate the terms of their individuality. But this does
not change the fact that it is only in virtue of mutual recognition that states have
68. Haskell Fain, Normative Politics and the Community of Nations (Philadelphia: Temple
University Press, 1987).
69. This is the intersubjective basis for the principle of functional nondifferentiation among
states, which "drops out" of Waltz's definition of structure because the latter has no explicit
intersubjective basis. In international relations scholarship, the social production of territorial
space has been emphasized primarily by poststructuralists. See, for example, Richard Ashley, "The
Geopolitics of Geopolitical Space: Toward a Critical Social Theory of International Politics,"
Alternatives 12 (October 1987), pp. 403-34; and Simon Dalby, Creating the Second Cold War
(London: Pinter, 1990). But the idea of space as both product and constituent of practice is also
prominent in structurationist discourse. See Giddens, Central Problems in Social Theory; and Derek
Gregory and John Urry, eds., Social Relations and Spatial Structures (London: Macmillan, 1985).
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Anarchy 413
"territorial property rights."70 This recognition functions as a form of "social
closure" that disempowers nonstate actors and empowers and helps stabilize
interaction among states.71
Sovereignty norms are now so taken for granted, so natural, that it is easy to
overlook the extent to which they are both presupposed by and an ongoing artifact
of practice. When states tax "their" "citizens" and not others, when they
"protect" their markets against foreign "imports," when they kill thousands of
Iraqis in one kind of war and then refuse to "intervene" to kill even one person
in another kind, a "civil" war, and when they fight a global war against a regime
that sought to destroy the institution of sovereignty and then give Germany
back to the Germans, they are acting against the background of, and thereby
reproducing, shared norms about what it means to be a sovereign state.
If states stopped acting on those norms, their identity as "sovereigns" (if not
necessarily as "states") would disappear. The sovereign state is an ongoing
accomplishment of practice, not a once-and-for-all creation of norms that
somehow exist apart from practice.72 Thus, saying that "the institution of
sovereignty transforms identities" is shorthand for saying that "regular practices
produce mutually constituting sovereign identities (agents) and their
associated institutional norms (structures)." Practice is the core of constructivist
resolutions of the agent-structure problem. This ongoing process may not be
politically problematic in particular historical contexts and, indeed, once a
community of mutual recognition is constituted, its members-even the
disadvantaged ones73 may have a vested interest in reproducing it. In fact, this
is part of what having an identity means. But this identity and institution
remain dependent on what actors do: removing those practices will remove
their intersubjective conditions of existence.
70. See John Ruggie, "Continuity and Transformation in the World Polity: Toward a Neorealist
Synthesis," World Politics 35 (January 1983), pp. 261-85. In Mind, Self, and Society, p. 161, Me
offers the following argument: "If we say 'this is my property, I shall control it,' that affirmation calls
out a certain set of responses which must be the same in any community in which property exists. It
involves an organized attitude with reference to property which is common to all members of the
community. One must have a definite attitude of control of his own property and respect for the
property of others. Those attitudes (as organized sets of responses) must be there on the part of all,
so that when one says such a thing he calls out in himself the response of the others. That which
makes society possible is such common responses."
71. For a definition and discussion of "social closure," see Raymond Murphy, Social Closure
(Oxford: Clarendon Press, 1988).
72. See Richard Ashley, "Untying the Sovereign State: A Double Reading of the Anarchy
Problematique," Millennium 17 (Summer 1988), pp. 227-62. Those with more modernist sensibilities
will find an equally practice-centric view of institutions in Blumer's observation on p. 19 of
"The Methodological Position of Symbolic Interactionism": "A gratuitous acceptance of the
concepts of norms, values, social rules and the like should not blind the social scientist to the fact
that any one of them is subtended by a process of social interaction-a process that is necessary not
only for their change but equally well for their retention in a fixed form. It is the social process in
group life that creates and upholds the rules, not the rules that create and uphold group life."
73. See, for example, Mohammed Ayoob, "The Third World in the System of States: Acute
Schizophrenia or Growing Pains?" International Studies Quarterly 33 (March 1989), pp. 67-80.
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414 International Organization
This may tell us something about how institutions of sovereign states are
reproduced through social interaction, but it does not tell us why such a
structure of identity and interest would arise in the first place. Two conditions
would seem necessary for this to happen: (1) the density and regularity of
interactions must be sufficiently high and (2) actors must be dissatisfied with
preexisting forms of identity and interaction. Given these conditions, a norm of
mutual recognition is relatively undemanding in terms of social trust, having
the form of an assurance game in which a player will acknowledge the
sovereignty of the others as long as they will in turn acknowledge that player's
own sovereignty. Articulating international legal principles such as those
embodied in the Peace of Augsburg (1555) and the Peace of Westphalia (1648)
may also help by establishing explicit criteria for determining violations of the
nascent social consensus.74 But whether such a consensus holds depends on
what states do. If they treat each other as if they were sovereign, then over time
they will institutionalize that mode of subjectivity; if they do not, then that
mode will not become the norm.
Practices of sovereignty will transform understandings of security and power
politics in at least three ways. First, states will come to define their (and our)
security in terms of preserving their "property rights" over particular territories.
We now see this as natural, but the preservation of territorial frontiers is
not, in fact, equivalent to the survival of the state or its people. Indeed, some
states would probably be more secure if they would relinquish certain
territories-the "Soviet Union" of some minority republics, "Yugoslavia" of
Croatia and Slovenia, Israel of the West Bank, and so on. The fact that
sovereignty practices have historically been oriented toward producing distinct
territorial spaces, in other words, affects states' conceptualization of what they
must "secure" to function in that identity, a process that may help account for
the "hardening" of territorial boundaries over the centuries.75
Second, to the extent that states successfully internalize sovereignty norms,
they will be more respectful toward the territorial rights of others.76 This
restraint is not primarily because of the costs of violating sovereignty norms,
although when violators do get punished (as in the Gulf War) it reminds
everyone of what these costs can be, but because part of what it means to be a
74. See William Coplin, "International Law and Assumptions About the State System," World
Politics 17 (July 1965), pp. 615-34.
75. See Anthony Smith, "States and Homelands: The Social and Geopolitical Implications of
National Territory," Millennium 10 (Autumn 1981), pp. 187-202.
76. This assumes that there are no other, competing, principles that organize political space and
identity in the international system and coexist with traditional notions of sovereignty; in fact, of
course, there are. On "spheres of influence" and "informal empires," see Jan Triska, ed.,
Dominant Powers and Subordinate States (Durham, N.C.: Duke University Press, 1986); and Ronald
Robinson, "The Excentric Idea of Imperialism, With or Without Empire," in Wolfgang Mommsen
and Jurgen Osterhammel, eds., Imperialism and After: Continuities and Discontinuities (London:
Allen & Unwin, 1986), pp. 267-89. On Arab conceptions of sovereignty, see Michael Barnett,
"Sovereignty, Institutions, and Identity: From Pan-Arabism to the Arab State System," unpublished
manuscript, University of Wisconsin, Madison, 1991.
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Anarchy 415
''sovereign'' state is that one does not violate the territorial rights of others
without "just cause." A clear example of such an institutional effect, convincingly
argued by David Strang, is the markedly different treatment that weak
states receive within and outside communities of mutual recognition.77 What
keeps the United States from conquering the Bahamas, or Nigeria from seizing
Togo, or Australia from occupying Vanuatu? Clearly, power is not the issue,
and in these cases even the cost of sanctions would probably be negligible. One
might argue that great powers simply have no "interest" in these conquests,
and this might be so, but this lack of interest can only be understood in terms of
their recognition of weak states' sovereignty. I have no interest in exploiting my
friends, not because of the relative costs and benefits of such action but because
they are my friends. The absence of recognition, in turn, helps explain the
Western states' practices of territorial conquest, enslavement, and genocide
against Native American and African peoples. It is in that world that only
power matters, not the world of today.
Finally, to the extent that their ongoing socialization teaches states that their
sovereignty depends on recognition by other states, they can afford to rely more
on the institutional fabric of international society and less on individual
national means-especially military power-to protect their security. The
intersubjective understandings embodied in the institution of sovereignty, in
other words, may redefine the meaning of others' power for the security of the
self. In policy terms, this means that states can be less worried about short-term
survival and relative power and can thus shift their resources accordingly.
Ironically, it is the great powers, the states with the greatest national means,
that may have the hardest time learning this lesson; small powers do not have
the luxury of relying on national means and may therefore learn faster that
collective recognition is a cornerstone of security.
None of this is to say that power becomes irrelevant in a community of
sovereign states. Sometimes states are threatened by others that do not
recognize their existence or particular territorial claims, that resent the
externalities from their economic policies, and so on. But most of the time,
these threats are played out within the terms of the sovereignty game. The fates
of Napoleon and Hitler show what happens when they are not.
Cooperation among egoists and transformations of identity
We began this section with a Hobbesian state of nature. Cooperation for
joint gain is extremely difficult in this context, since trust is lacking, time
horizons are short, and relative power concerns are high. Life is "nasty, brutish,
and short." Sovereignty transforms this system into a Lockean world of
(mostly) mutually recognized property rights and (mostly) egoistic rather than
77. David Strang, "Anomaly and Commonplace in European Expansion: Realist and Institutional
Accounts," Intemational Organization 45 (Spring 1991), pp. 143-62.
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416 International Organization
competitive conceptions of security, reducing the fear that what states already
have will be seized at any moment by potential collaborators, thereby enabling
them to contemplate more direct forms of cooperation. A necessary condition
for such cooperation is that outcomes be positively interdependent in the sense
that potential gains exist which cannot be realized by unilateral action. States
such as Brazil and Botswana may recognize each other's sovereignty, but they
need further incentives to engage in joint action. One important source of
incentives is the growing "dynamic density" of interaction among states in a
world with new communications technology, nuclear weapons, externalities
from industrial development, and so on.78 Unfortunately, growing dynamic
density does not ensure that states will in fact realize joint gains; interdependence
also entails vulnerability and the risk of being "the sucker," which if
exploited will become a source of conflict rather than cooperation.
This is the rationale for the familiar assumption that egoistic states will often
find themselves facing prisoners' dilemma, a game in which the dominant
strategy, if played only once, is to defect. As Michael Taylor and Robert
Axelrod have shown, however, given iteration and a sufficient shadow of the
future, egoists using a tit-for-tat strategy can escape this result and build
cooperative institutions.79 The story they tell about this process on the surface
seems quite similar to George Herbert Mead's constructivist analysis of
interaction, part of which is also told in terms of "games."8" Cooperation is a
gesture indicating ego's willingness to cooperate; if alter defects, ego does
likewise, signaling its unwillingness to be exploited; over time and through
reciprocal play, each learns to form relatively stable expectations about the
other's behavior, and through these, habits of cooperation (or defection) form.
Despite similar concerns with communication, learning, and habit-formation,
however, there is an important difference between the game-theoretic and
constructivist analysis of interaction that bears on how we conceptualize the
causal powers of institutions.
In the traditional game-theoretic analysis of cooperation, even an iterated
one, the structure of the game-of identities and interests-is exogenous to
interaction and, as such, does not change.8' A "black box" is put around
identity- and interest-formation, and analysis focuses instead on the relation-
78. On "dynamic density," see Ruggie, "Continuity and Transformation in the World Polity";
and Waltz, "Reflections on Theory of Intemational Politics." The role of interdependence in
conditioning the speed and depth of social learning is much greater than the attention to which I
have paid it. On the consequences of interdependence under anarchy, see Helen Milner, "The
Assumption of Anarchy in International Relations Theory: A Critique," Review of Intemational
Studies 17 (January 1991), pp. 67-85.
79. See Michael Taylor, Anarchy and Cooperation (New York: Wiley, 1976); and Robert
Axelrod, The Evolution of Cooperation (New York: Basic Books, 1984).
80. Mead, Mind, Self and Society.
81. Strictly speaking, this is not true, since in iterated games the addition of future benefits to
current ones changes the payoff structure of the game at Ti, in this case from prisoners' dilemma to
an assurance game. This transformation of interest takes place entirely within the actor, however,
and as such is not a function of interaction with the other.
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Anarchy 417
ship between expectations and behavior. The norms that evolve from interaction
are treated as rules and behavioral regularities which are external to the
actors and which resist change because of the transaction costs of creating new
ones. The game-theoretic analysis of cooperation among egoists is at base
behavioral.
A constructivist analysis of cooperation, in contrast, would concentrate on
how the expectations produced by behavior affect identities and interests. The
process of creating institutions is one of internalizing new understandings of
self and other, of acquiring new role identities, not just of creating external
constraints on the behavior of exogenously constituted actors.82 Even if not
intended as such, in other words, the process by which egoists learn to
cooperate is at the same time a process of reconstructing their interests in
terms of shared commitments to social norms. Over time, this will tend to
transform a positive interdependence of outcomes into a positive interdependence
of utilities or collective interest organized around the norms in question.
These norms will resist change because they are tied to actors' commitments to
their identities and interests, not merely because of transaction costs. A
constructivist analysis of "the cooperation problem," in other words, is at base
cognitive rather than behavioral, since it treats the intersubjective knowledge
that defines the structure of identities and interests, of the "game," as
endogenous to and instantiated by interaction itself.
The debate over the future of collective security in Western Europe may
illustrate the significance of this difference. A weak liberal or rationalist
analysis would assume that the European states' "portfolio" of interests has
not fundamentally changed and that the emergence of new factors, such as the
collapse of the Soviet threat and the rise of Germany, would alter their
cost-benefit ratios for pursuing current arrangements, thereby causing existing
institutions to break down. The European states formed collaborative institutions
for good, exogenously constituted egoistic reasons, and the same reasons
may lead them to reject those institutions; the game of European power politics
has not changed. A strong liberal or constructivist analysis of this problem
would suggest that four decades of cooperation may have transformed a
positive interdependence of outcomes into a collective "European identity" in
terms of which states increasingly define their "self "-interests.83 Even if egoistic
reasons were its starting point, the process of cooperating tends to redefine
those reasons by reconstituting identities and interests in terms of new
intersubjective understandings and commitments. Changes in the distribution
of power during the late twentieth century are undoubtedly a challenge to these
new understandings, but it is not as if West European states have some
82. In fairness to Axelrod, he does point out that internalization of norms is a real possibility that
may increase the resilience of institutions. My point is that this important idea cannot be derived
from an approach to theory that takes identities and interests as exogenously given.
83. On "European identity," see Barry Buzan et al., eds., The European Security Order Recast
(London: Pinter, 1990), pp. 45-63.
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418 International Organization
inherent, exogenously given interest in abandoning collective security if the
price is right. Their identities and security interests are continuously in process,
and if collective identities become "embedded," they will be as resistant to
change as egoistic ones.84 Through participation in new forms of social
knowledge, in other words, the European states of 1990 might no longer be the
states of 1950.
Critical strategic theory and collective security
The transformation of identity and interest through an "evolution of
cooperation" faces two important constraints. The first is that the process is
incremental and slow. Actors' objectives in such a process are typically to
realize joint gains within what they take to be a relatively stable context, and
they are therefore unlikely to engage in substantial reflection about how to
change the parameters of that context (including the structure of identities and
interests) and unlikely to pursue policies specifically designed to bring about
such changes. Learning to cooperate may change those parameters, but this
occurs as an unintended consequence of policies pursued for other reasons
rather than as a result of intentional efforts to transcend existing institutions.
A second, more fundamental, constraint is that the evolution of cooperation
story presupposes that actors do not identify negatively with one another.
Actors must be concerned primarily with absolute gains; to the extent that
antipathy and distrust lead them to define their security in relativistic terms, it
will be hard to accept the vulnerabilities that attend cooperation.85 This is
important because it is precisely the "central balance" in the state system that
seems to be so often afflicted with such competitive thinking, and realists can
therefore argue that the possibility of cooperation within one "pole" (for
example, the West) is parasitic on the dominance of competition between poles
(the East-West conflict). Relations between the poles may be amenable to
some positive reciprocity in areas such as arms control, but the atmosphere of
distrust leaves little room for such cooperation and its transformative consequences.86
The conditions of negative identification that make an "evolution of
cooperation" most needed work precisely against such a logic.
This seemingly intractable situation may nevertheless be amenable to quite a
different logic of transformation, one driven more by self-conscious efforts to
change structures of identity and interest than by unintended consequences.
Such voluntarism may seem to contradict the spirit of constructivism, since
84. On "embeddedness," see John Ruggie, "International Regimes, Transactions, and Change:
Embedded Liberalism in a Postwar Economic Order," in Krasner, Intemational Regimes, pp.
195-232.
85. See Grieco, "Anarchy and the Limits of Cooperation."
86. On the difficulties of creating cooperative security regimes given competitive interests, see
Robert Jervis, "Security Regimes," in Krasner, Intemational Regimes, pp. 173-94; and Charles
Lipson, "International Cooperation in Economic and Security Affairs," World Politics 37 (October
1984), pp. 1-23.
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Anarchy 419
would-be revolutionaries are presumably themselves effects of socialization to
structures of identity and interest. How can they think about changing that to
which they owe their identity? The possibility lies in the distinction between the
social determination of the self and the personal determination of choice,
between what Mead called the "me" and the "."87 The "me" is that part of
subjectivity which is defined in terms of others; the character and behavioral
expectations of a person's role identity as "professor," or of the United States
as "leader of the alliance," for example, are socially constituted. Roles are not
played in mechanical fashion according to precise scripts, however, but are
"taken" and adapted in idiosyncratic ways by each actor.88 Even in the most
constrained situations, role performance involves a choice by the actor. The "I"
is the part of subjectivity in which this appropriation and reaction to roles and
its corresponding existential freedom lie.
The fact that roles are "taken" means that, in principle, actors always have a
capacity for "character planning"-for engaging in critical self-reflection and
choices designed to bring about changes in their lives.89 But when or under what
conditions can this creative capacity be exercised? Clearly, much of the time it
cannot: if actors were constantly reinventing their identities, social order would
be impossible, and the relative stability of identities and interests in the real
world is indicative of our propensity for habitual rather than creative action.
The exceptional, conscious choosing to transform or transcend roles has at
least two preconditions. First, there must be a reason to think of oneself in
novel terms. This would most likely stem from the presence of new social
situations that cannot be managed in terms of preexisting self-conceptions.
Second, the expected costs of intentional role change-the sanctions imposed
by others with whom one interacted in previous roles-cannot be greater than
its rewards.
When these conditions are present, actors can engage in self-reflection and
practice specifically designed to transform their identities and interests and
thus to "change the games" in which they are embedded. Such "critical"
strategic theory and practice has not received the attention it merits from
students of world politics (another legacy of exogenously given interests
perhaps), particularly given that one of the most important phenomena in
contemporary world politics, Mikhail Gorbachev's policy of "New Thinking," is
87. See Mead, Mind, Self and Society. For useful discussions of this distinction and its
implications for notions of creativity in social systems, see George Cronk, The Philosophical
Anthropology of George Herbert Mead (New York: Peter Lang, 1987), pp. 36-40; and Howard,
"From Changing Selves Toward Changing Society."
88. Turner, "Role-Taking."
89. On "character planning," see Jon Elster, Sour Grapes: Studies in the Subversion of Rationality
(Cambridge: Cambridge University Press, 1983), p. 117. For other approaches to the problem of
self-initiated change, see Harry Frankfurt, "Freedom of the Will and the Concept of a Person,"
Joumal of Philosophy 68 (January 1971), pp. 5-20; Amartya Sen, "Rational Fools: A Critique of the
Behavioral Foundations of Economic Theory," Philosophy and Public Affairs 6 (Summer 1977), pp.
317-44; and Thomas Schelling, "The Intimate Contest for Self-Command," The Public Interest 60
(Summer 1980), pp. 94-118.
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420 International Organization
arguably precisely that.90 Let me therefore use this policy as an example of how
states might transform a competitive security system into a cooperative one,
dividing the transformative process into four stages.
The first stage in intentional transformation is the breakdown of consensus
about identity commitments. In the Soviet case, identity commitments centered
on the Leninist theory of imperialism, with its belief that relations between
capitalist and socialist states are inherently conflictual, and on the alliance
patterns that this belief engendered. In the 1980s, the consensus within the
Soviet Union over the Leninist theory broke down for a variety of reasons,
principal among which seem to have been the state's inability to meet the
economic-technological-military challenge from the West, the government's
decline of political legitimacy at home, and the reassurance from the West that
it did not intend to invade the Soviet Union, a reassurance that reduced the
external costs of role change.9" These factors paved the way for a radical
leadership transition and for a subsequent "unfreezing of conflict schemas"
concerning relations with the West.92
The breakdown of consensus makes possible a second stage of critical
examination of old ideas about self and other and, by extension, of the
structures of interaction by which the ideas have been sustained. In periods of
relatively stable role identities, ideas and structures may become reified and
thus treated as things that exist independently of social action. If so, the second
stage is one of denaturalization, of identifying the practices that reproduce
seemingly inevitable ideas about self and other; to that extent, it is a form of
"critical" rather than "problem-solving" theory.93 The result of such a critique
should be an identification of new "possible selves" and aspirations.94 New
90. For useful overviews of New Thinking, see Mikhail Gorbachev, Perestroika: New Thinking for
Our Country and the World (New York: Harper & Row, 1987); Vendulka Kubalkova and Albert
Cruickshank, Thinking New About Soviet "New Thinking" (Berkeley: Institute of International
Studies, 1989); and Allen Lynch, Gorbachev's Intemational Outlook: Intellectual Origins and Political
Consequences (New York: Institute for East-West Security Studies, 1989). It is not clear to what
extent New Thinking is a conscious policy as opposed to an ad hoc policy. The intense theoretical
and policy debate within the Soviet Union over New Thinking and the frequently stated idea of
taking away the Western "excuse" for fearing the Soviet Union both suggest the former, but I will
remain agnostic here and simply assume that it can be fruitfully interpreted "as if' it had the form
that I describe.
91. For useful overviews of these factors, see Jack Snyder, "The Gorbachev Revolution: A
Waning of Soviet Expansionism?" World Politics 12 (Winter 1987-88), pp. 93-121; and Stephen
Meyer, "The Sources and Prospects of Gorbachev's New Political Thinking on Security,"
Intemational Security 13 (Fall 1988), pp. 124-63.
92. See Daniel Bar-Tal et al., "Conflict Termination: An Epistemological Analysis of International
Cases," Political Psychology 10 (June 1989), pp. 233-55. For an unrelated but interesting
illustration of how changing cognitions in turn make possible organizational change, see Jean
Bartunek, "Changing Interpretive Schemes and Organizational Restructuring: The Example of a
Religious Order,"Administrative Science Quarterly 29 (September 1984), pp. 355-72.
93. See Robert Cox, "Social Forces, States and World Orders: Beyond International Relations
Theory," in Keohane, Neorealism and Its Critics, pp. 204-55. See also Brian Fay, Critical Social
Science (Ithaca, N.Y.: Cornell University Press, 1987).
94. Hazel Markus and Paula Nurius, "Possible Selves," American Psychologist 41 (September
1986), pp. 954-69.
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Anarchy 421
Thinking embodies such critical theorizing. Gorbachev wants to free the Soviet
Union from the coercive social logic of the cold war and engage the West in
far-reaching cooperation. Toward this end, he has rejected the Leninist belief
in the inherent conflict of interest between socialist and capitalist states and,
perhaps more important, has recognized the crucial role that Soviet aggressive
practices played in sustaining that conflict.
Such rethinking paves the way for a third stage of new practice. In most
cases, it is not enough to rethink one's own ideas about self and other, since old
identities have been sustained by systems of interaction with other actors, the
practices of which remain a social fact for the transformative agent. In order to
change the self, then, it is often necessary to change the identities and interests
of the others that help sustain those systems of interaction. The vehicle for
inducing such change is one's own practice and, in particular, the practice of
"altercasting"-a technique of interactor control in which ego uses tactics of
self-presentation and stage management in an attempt to frame alter's
definitions of social situations in ways that create the role which ego desires
alter to play.95 In effect, in altercasting ego tries to induce alter to take on a new
identity (and thereby enlist alter in ego's effort to change itself) by treating alter
as if it already had that identity. The logic of this follows directly from the
mirror theory of identity-formation, in which alter's identity is a reflection of
ego's practices; change those practices and ego begins to change alter's
conception of itself.
What these practices should consist of depends on the logic by which the
preexisting identities were sustained. Competitive security systems are sustained
by practices that create insecurity and distrust. In this case, transformative
practices should attempt to teach other states that one's own state can be
trusted and should not be viewed as a threat to their security. The fastest way to
do this is to make unilateral initiatives and self-binding commitments of
sufficient significance that another state is faced with "an offer it cannot
refuse."96 Gorbachev has tried to do this by withdrawing from Afghanistan and
Eastern Europe, implementing asymmetric cuts in nuclear and conventional
forces, calling for "defensive defense," and so on. In addition, he has skillfully
cast the West in the role of being morally required to give aid and comfort to
the Soviet Union, has emphasized the bonds of common fate between the
Soviet Union and the West, and has indicated that further progress in
95. See Goffman, The Presentation of Self in Everyday Life; Eugene Weinstein and Paul
Deutschberger, "Some Dimensions of Altercasting," Sociometry 26 (December 1963), pp. 454-66;
and Walter Earle, "International Relations and the Psychology of Control: Alternative Control
Strategies and Their Consequences," Political Psychology 7 (June 1986), pp. 369-75.
96. See Volker Boge and Peter Wilke, "Peace Movements and Unilateral Disarmament: Old
Concepts in a New Light," Arms Control 7 (September 1986), pp. 156-70; Zeev Maoz and Daniel
Felsenthal, "Self-Binding Commitments, the Inducement of Trust, Social Choice, and the Theory
of International Cooperation," Intemational Studies Quarterly 31 (June 1987), pp. 177-200; and V.
Sakamoto, "Unilateral Initiative as an Alternative Strategy," World Futures, vol. 24, nos. 1-4, 1987,
pp. 107-34.
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422 International Organization
East-West relations is contingent upon the West assuming the identity being
projected onto it. These actions are all dimensions of altercasting, the intention
of which is to take away the Western "excuse" for distrusting the Soviet Union,
which, in Gorbachev's view, has helped sustain competitive identities in the
past.
Yet by themselves such practices cannot transform a competitive security
system, since if they are not reciprocated by alter, they will expose ego to a
"sucker" payoff and quickly wither on the vine. In order for critical strategic
practice to transform competitive identities, it must be "rewarded" by alter,
which will encourage more such practice by ego, and so on.97 Over time, this will
institutionalize a positive rather than a negative identification between the
security of self and other and will thereby provide a firm intersubjective basis
for what were initially tentative commitments to new identities and interests.98
Notwithstanding today's rhetoric about the end of the cold war, skeptics may
still doubt whether Gorbachev (or some future leader) will succeed in building
an intersubjective basis for a new Soviet (or Russian) role identity. There are
important domestic, bureaucratic, and cognitive-ideological sources of resistance
in both East and West to such a change, not the least of which is the
shakiness of the democratic forces' domestic position. But if my argument
about the role of intersubjective knowledge in creating competitive structures
of identity and interest is right, then at least New Thinking shows a greater
appreciation-conscious or not-for the deep structure of power politics than
we are accustomed to in international relations practice.
Conclusion
All theories of international relations are based on social theories of the
relationship between agency, process, and social structure. Social theories do
not determine the content of our international theorizing, but they do structure
the questions we ask about world politics and our approaches to answering
those questions. The substantive issue at stake in debates about social theory is
what kind of foundation offers the most fruitful set of questions and research
strategies for explaining the revolutionary changes that seem to be occurring in
the late twentieth century international system. Put simply, what should
systemic theories of international relations look like? How should they
conceptualize the relationship between structure and process? Should they be
97. On rewards, see Thomas Milburn and Daniel Christie, "Rewarding in International
Politics," Political Psychology 10 (December 1989), pp. 625-45.
98. The importance of reciprocity in completing the process of structural transformation makes
the logic in this stage similar to that in the "evolution of cooperation." The difference is one of
prerequisites and objective: in the former, ego's tentative redefinition of self enables it to try and
change alter by acting "as if" both were already playing a new game; in the latter, ego acts only on
the basis of given interests and prior experience, with transformation emerging only as an
unintended consequence.
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Anarchy 423
based exclusively on "microeconomic" analogies in which identities and
interests are exogenously given by structure and process is reduced to
interactions within those parameters? Or should they also be based on
"sociological" and "social psychological" analogies in which identities and
interests and therefore the meaning of structure are endogenous to process?
Should a behavioral-individualism or a cognitive-constructivism be the basis for
systemic theories of world politics?
This article notwithstanding, this question is ultimately an empirical one in
two respects. First, its answer depends in part on how important interaction
among states is for the constitution of their identities and interests. On the one
hand, it may be that domestic or genetic factors, which I have systematically
bracketed, are in fact much more important determinants of states' identities
and interests than are systemic factors. To the extent that this is true, the
individualism of a rationalist approach and the inherent privileging of structure
over process in this approach become more substantively appropriate for
systemic theory (if not for first- and second-image theory), since identities and
interests are in fact largely exogenous to interaction among states. On the other
hand, if the bracketed factors are relatively unimportant or if the importance of
the international system varies historically (perhaps with the level of dynamic
density and interdependence in the system), then such a framework would not
be appropriate as an exclusive foundation for general systemic theory.
Second, the answer to the question about what systemic theories should look
like also depends on how easily state identities and interests can change as a
result of systemic interaction. Even if interaction is initially important in
constructing identities and interests, once institutionalized its logic may make
transformation extremely difficult. If the meaning of structure for state action
changes so slowly that it becomes a de facto parameter within which process
takes place, then it may again be substantively appropriate to adopt the
rationalist assumption that identities and interests are given (although again,
this may vary historically).
We cannot address these empirical issues, however, unless we have a
framework for doing systemic research that makes state identity and interest
issue for both theoretical and empirical inquiry. Let me emphasize that this is
not to say we should never treat identities and interests as given. The framing of
problems and research strategies should be question-driven rather than
method-driven, and if we are not interested in identity- and interest-formation
we may find the assumptions of a rationalist discourse perfectly reasonable.
Nothing in this article, in other words, should be taken as an attack on
rationalism per se. By the same token, however, we should not let this
legitimate analytical stance become a de facto ontological stance with respect
to the content of third-image theory, at least not until after we have determined
that systemic interaction does not play an important role in processes of state
identity- and interest-formation. We should not choose our philosophical
anthropologies and social theories prematurely. By arguing that we cannot
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424 International Organization
derive a self-help structure of identity and interest from the principle of
anarchy alone-by arguing that anarchy is what states make of it-this article
has challenged one important justification for ignoring processes of identityand
interest-formation in world politics. As such, it helps set the stage for
inquiry into the empirical issues raised above and thus for a debate about
whether communitarian or individualist assumptions are a better foundation
for systemic theory.
I have tried to indicate by crude example what such a research agenda might
look like. Its objective should be to assess the causal relationship between
practice and interaction (as independent variable) and the cognitive structures
at the level of individual states and of systems of states which constitute
identities and interests (as dependent variable)-that is, the relationship
between what actors do and what they are. We may have some a priori notion
that state actors and systemic structures are "mutually constitutive," but this
tells us little in the absence of an understanding of how the mechanics of
dyadic, triadic, and n-actor interaction shape and are in turn shaped by "stocks
of knowledge" that collectively constitute identities and interests and, more
broadly, constitute the structures of international life. Particularly important in
this respect is the role of practice in shaping attitudes toward the "givenness"
of these structures. How and why do actors reify social structures, and under
what conditions do they denaturalize such reifications?
The state-centrism of this agenda may strike some, particularly postmodernists,
as "depressingly familiar."99 The significance of states relative to multinational
corporations, new social movements, transnationals, and intergovernmental
organizations is clearly declining, and "postmodern" forms of world politics
merit more research attention than they have received. But I also believe, with
realists, that in the medium run sovereign states will remain the dominant
political actors in the international system. Any transition to new structures of
global political authority and identity-to "postinternational" politics-will be
mediated by and path-dependent on the particular institutional resolution of
the tension between unity and diversity, or particularism and universality, that
is the sovereign state.100 In such a world there should continue to be a place for
theories of anarchic interstate politics, alongside other forms of international
theory; to that extent, I am a statist and a realist. I have argued in this article,
however, that statism need not be bound by realist ideas about what "state"
must mean. State identities and interests can be collectively transformed within
an anarchic context by many factors-individual, domestic, systemic, or
transnational-and as such are an important dependent variable. Such a
99. Yale Ferguson and Richard Mansbach, "Between Celebration and Despair: Constructive
Suggestions for Future International Theory," Intermational Studies Quarterly 35 (December 1991),
p.375.
100. For excellent discussions of this tension, see Walker, "Sovereignty, Identity, Community";
and R. B. J. Walker, "Security, Sovereignty, and the Challenge of World Politics," Altematives 15
(Winter 1990), pp. 3-27. On institutional path dependencies, see Stephen Krasner, "Sovereignty:
An Institutional Perspective," Comparative Political Studies 21 (April 1988), pp. 66-94.
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Anarchy 425
reconstruction of state-centric international theory is necessary if we are to
theorize adequately about the emerging forms of transnational political
identity that sovereign states will help bring into being. To that extent, I hope
that statism, like the state, can be historically progressive.
I have argued that the proponents of strong liberalism and the constructivists
can and should join forces in contributing to a process-oriented international
theory. Each group has characteristic weaknesses that are complemented by
the other's strengths. In part because of the decision to adopt a choicetheoretic
approach to theory construction, neoliberals have been unable to
translate their work on institution-building and complex learning into a
systemic theory that escapes the explanatory priority of realism's concern with
structure. Their weakness, in other words, is a lingering unwillingness to
transcend, at the level of systemic theory, the individualist assumption that
identities and interests are exogenously given. Constructivists bring to this lack
of resolution a systematic communitarian ontology in which intersubjective
knowledge constitutes identities and interests. For their part, however,
constructivists have often devoted too much effort to questions of ontology and
constitution and not enough effort to the causal and empirical questions of how
identities and interests are produced by practice in anarchic conditions. As a
result, they have not taken on board neoliberal insights into learning and social
cognition.
An attempt to use a structurationist-symbolic interactionist discourse to
bridge the two research traditions, neither of which subscribes to such a
discourse, will probably please no one. But in part this is because the two
"sides" have become hung up on differences over the epistemological status of
social science. The state of the social sciences and, in particular, of international
relations, is such that epistemological prescriptions and conclusions are
at best premature. Different questions involve different standards of inference;
to reject certain questions because their answers cannot conform to the
standards of classical physics is to fall into the trap of method-driven rather
than question-driven social science. By the same token, however, giving up the
artificial restrictions of logical positivist conceptions of inquiry does not force
us to give up on "Science." Beyond this, there is little reason to attach so much
importance to epistemology. Neither positivism, nor scientific realism, nor
poststructuralism tells us about the structure and dynamics of international
life. Philosophies of science are not theories of international relations. The
good news is that strong liberals and modern and postmodern constructivists
are asking broadly similar questions about the substance of international
relations that differentiate both groups from the neorealist-rationalist alliance.
Strong liberals and constructivists have much to learn from each other if they
can come to see this through the smoke and heat of epistemology.
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