International Relations: One World, Many Theories

Author(s): Stephen M. Walt

Source: Foreign Policy , Spring, 1998, No. 110, Special Edition: Frontiers of Knowledge
(Spring, 1998), pp. 29-32+34-46
Published by: Slate Group, LLC

Stable URL: https://www.jstor.org/stable/1149275

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 International
Relations:
One World,
Many Theories
by Stephen M. Walt

Why should policymakers and practitioners

care about the scholarly study of interna-
tional affairs? Those who conduct foreign
policy often dismiss academic theorists (frequently,
one must admit, with good reason), but there is an inescapable link
between the abstract world of theory and the real world of policy. We
need theories to make sense of the blizzard of information that bom-
bards us daily. Even policymakers who are contemptuous of "theory"
must rely on their own (often unstated) ideas about how the world
works in order to decide what to do. It is hard to make good policy if
one's basic organizing principles are flawed, just as it is hard to construct
good theories without knowing a lot about the real world. Everyone uses
theories-whether he or she knows it or not-and disagreements about
policy usually rest on more fundamental disagreements about the basic
forces that shape international outcomes.
Take, for example, the current debate on how to respond to China.
From one perspective, China's ascent is the latest example of the ten-

S T E P H EN M. WA LT is professor of political science and master of the social science colle-

giate division at the University of Chicago. He is a member of FOREIGN POLICY'S editorial board.

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International Relations

dency for rising powers to alter the global balance of power in poten-
tially dangerous ways, especially as their growing influence makes them
more ambitious. From another perspective, the key to China's future
conduct is whether its behavior will be modified by its integration into
world markets and by the (inevitable?) spread of democratic principles.
From yet another viewpoint, relations between China and the rest of
the world will be shaped by issues of culture and identity: Will China
see itself (and be seen by others) as a normal member of the world com-
munity or a singular society that deserves special treatment?
In the same way, the debate over NATO expansion looks different
depending on which theory one employs. From a "realist" perspective,
NATO expansion is an effort to extend Western influence-well beyond
the traditional sphere of U.S. vital interests-during a period of Russ-
ian weakness and is likely to provoke a harsh response from Moscow.
From a liberal perspective, however, expansion will reinforce the
nascent democracies of Central Europe and extend NATO'S conflict-
management mechanisms to a potentially turbulent region. A third
view might stress the value of incorporating the Czech Republic, Hun-
gary, and Poland within the Western security community, whose mem-
bers share a common identity that has made war largely unthinkable.
No single approach can capture all the complexity of contemporary
world politics. Therefore, we are better off with a diverse array of com-
peting ideas rather than a single theoretical orthodoxy. Competition
between theories helps reveal their strengths and weaknesses and
spurs subsequent refinements, while revealing flaws in conventional
wisdom. Although we should take care to emphasize inventiveness
over invective, we should welcome and encourage the heterogeneity
of contemporary scholarship.

WHERE ARE WE COMING FROM?

The study of international affairs is best understood as a pr

petition between the realist, liberal, and radical traditions. R
sizes the enduring propensity for conflict between sta
identifies several ways to mitigate these conflictive tend
radical tradition describes how the entire system of state rela
transformed. The boundaries between these traditions are so
and a number of important works do not fit neatly into an
debates within and among them have largely defined the dis

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 Walt

Realism
Realism was the dominant theoretical tradition throughout the Cold
War. It depicts international affairs as a struggle for power among self-
interested states and is generally pessimistic about the prospects for
eliminating conflict and war. Realism dominated in the Cold War years
because it provided simple but powerful explanations for war, alliances,
imperialism, obstacles to cooperation, and other international phenom-
ena, and because its emphasis on competition was consistent with the
central features of the American-Soviet rivalry.
Realism is not a single theory, of course, and realist thought evolved
considerably throughout the Cold War. "Classical" realists such as Hans
Morgenthau and Reinhold Niebuhr believed that states, like human
beings, had an innate desire to dominate others, which led them to fight
wars. Morgenthau also stressed the virtues of the classical, multipolar,
balance-of-power system and saw the bipolar rivalry between the Unit-
ed States and the Soviet Union as especially dangerous.
By contrast, the "neorealist" theory advanced by Kenneth Waltz
ignored human nature and focused on the effects of the international
system. For Waltz, the international system consisted of a number of
great powers, each seeking to survive. Because the system is anarchic
(i.e., there is no central authority to protect states from one another),
each state has to survive on its own. Waltz argued that this condition
would lead weaker states to balance against, rather than bandwagon
with, more powerful rivals. And contrary to Morgenthau, he claimed
that bipolarity was more stable than multipolarity.
An important refinement to realism was the addition of offense-
defense theory, as laid out by Robert Jervis, George Quester, and
Stephen Van Evera. These scholars argued that war was more likely
when states could conquer each other easily. When defense was easier
than offense, however, security was more plentiful, incentives to expand
declined, and cooperation could blossom. And if defense had the
advantage, and states could distinguish between offensive and defensive
weapons, then states could acquire the means to defend themselves
without threatening others, thereby dampening the effects of anarchy.
For these "defensive" realists, states merely sought to survive and great
powers could guarantee their security by forming balancing alliances and
choosing defensive military postures (such as retaliatory nuclear forces).
Not surprisingly, Waltz and most other neorealists believed that the
United States was extremely secure for most of the Cold War. Their

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International Relations

principle fear was that it might squander its favorable position by adopt-
ing an overly aggressive foreign policy. Thus, by the end of the Cold War,
realism had moved away from Morgenthau's dark brooding about human
nature and taken on a slightly more optimistic tone.

Liberalism
The principal challenge to realism came from a broad family of liber-
al theories. One strand of liberal thought argued that economic inter-
dependence would discourage states from using force against each
other because warfare would threaten each side's prosperity. A second
strand, often associated with President Woodrow Wilson, saw the
spread of democracy as the key to world peace, based on the claim that
democratic states were inherently more peaceful than authoritarian
states. A third, more recent theory argued that international
institutions such as the International Energy Agency and the Inter-
national Monetary Fund could help overcome selfish state behavior,
mainly by encouraging states to forego immediate gains for the greater
benefits of enduring cooperation.
Although some liberals flirted with the idea that new transnational
actors, especially the multinational corporation, were gradually
encroaching on the power of states, liberalism generally saw states as the
central players in international affairs. All liberal theories implied that
cooperation was more pervasive than even the defensive version of real-
ism allowed, but each view offered a different recipe for promoting it.

Radical Approaches
Until the 1980s, marxism was the main alternative to the mainstream
realist and liberal traditions. Where realism and liberalism took the
state system for granted, marxism offered both a different explanation
for international conflict and a blueprint for fundamentally transform-
ing the existing international order.
Orthodox marxist theory saw capitalism as the central cause of inter-
national conflict. Capitalist states battled each other as a consequence
of their incessant struggle for profits and battled socialist states because
they saw in them the seeds of their own destruction. Neomarxist
"dependency" theory, by contrast, focused on relations between
advanced capitalist powers and less developed states and argued that the
former-aided by an unholy alliance with the ruling classes of the
developing world-had grown rich by exploiting the latter. The solu-

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International Relations

tion was to overthrow these parasitic elites and install a revolutionary

government committed to autonomous development.
Both of these theories were largely discredited before the Cold War
even ended. The extensive history of economic and military coopera-
tion among the advanced industrial powers showed that capitalism did
not inevitably lead to conflict. The bitter schisms that divided the
communist world showed that socialism did not always promote har-
mony. Dependency theory suffered similar empirical setbacks as it
became increasingly clear that, first, active participation in the world
economy was a better route to prosperity than autonomous socialist
development; and, second, many developing countries proved them-
selves quite capable of bargaining successfully with multinational cor-
porations and other capitalist institutions.
As marxism succumbed to its various failings, its mantle was
assumed by a group of theorists who borrowed heavily from the wave
of postmodern writings in literary criticism and social theory. This
"deconstructionist" approach was openly skeptical of the effort to
devise general or universal theories such as realism or liberalism.
Indeed, its proponents emphasized the importance of language and
discourse in shaping social outcomes. However, because these scholars
focused initially on criticizing the mainstream paradigms but did not
offer positive alternatives to them, they remained a self-consciously
dissident minority for most of the 1980s.

Domestic Politics
Not all Cold War scholarship on international affairs fit neatly into the
realist, liberal, or marxist paradigms. In particular, a number of impor-
tant works focused on the characteristics of states, governmental orga-
nizations, or individual leaders. The democratic strand of liberal theory
fits under this heading, as do the efforts of scholars such as Graham
Allison and John Steinbruner to use organization theory and bureau-
cratic politics to explain foreign policy behavior, and those of Jervis,
Irving Janis, and others, which applied social and cognitive psycholo-
gy. For the most part, these efforts did not seek to provide a general the-
ory of international behavior but to identify other factors that might
lead states to behave contrary to the predictions of the realist or liber-
al approaches. Thus, much of this literature should be regarded as a
complement to the three main paradigms rather than as a rival
approach for analysis of the international system as a whole.

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 Walt

NEW WRINKLES IN OLD PARADIGMS

Scholarship on international affairs has diversified sign

the end of the Cold War. Non-American voices are more
wider range of methods and theories are seen as legitim
issues such as ethnic conflict, the environment, and the
state have been placed on the agenda of scholars everyw
Yet the sense of deja vu is equally striking. Instead of resolv
gle between competing theoretical traditions, the end of th
merely launched a new series of debates. Ironically, even as
embrace similar ideals of democracy, free markets, and hum
scholars who study these developments are more divided tha

Realism Redux
Although the end of the Cold War led a few writers to declare that
realism was destined for the academic scrapheap, rumors of its demise
have been largely exaggerated.
A recent contribution of realist theory is its attention to the problem
of relative and absolute gains. Responding to the institutionalists' claim
that international institutions would enable states to forego short-term
advantages for the sake of greater long-term gains, realists such as Joseph
Grieco and Stephen Krasner point out that anarchy forces states to
worry about both the absolute gains from cooperation and the way that
gains are distributed among participants. The logic is straightforward: If
one state reaps larger gains than its partners, it will gradually become
stronger, and its partners will eventually become more vulnerable.
Realists have also been quick to explore a variety of new issues. Barry
Posen offers a realist explanation for ethnic conflict, noting that the
breakup of multiethnic states could place rival ethnic groups in an anar-
chic setting, thereby triggering intense fears and tempting each group to
use force to improve its relative position. This problem would be par-
ticularly severe when each group's territory contained enclaves inhabit-
ed by their ethnic rivals-as in the former Yugoslavia-because each
side would be tempted to "cleanse" (preemptively) these alien minori-
ties and expand to incorporate any others from their ethnic group that
lay outside their borders. Realists have also cautioned that NATO,
absent a clear enemy, would likely face increasing strains and that
expanding its presence eastward would jeopardize relations with Russia.
Finally, scholars such as Michael Mastanduno have argued that U.S.

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International Relations

Waiting for Mr. X

The post-Cold War world still awaits its "X" article. Although many
have tried, no one has managed to pen the sort of compelling analysis
that George Kennan provided for an earlier era, when he articulated the
theory of containment. Instead of a single new vision, the most impor-
tant development in post-Cold War writings on world affairs is the con-
tinuing clash between those who believe world politics has been (or is
being) fundamentally transformed and those who believe that the future
will look a lot like the past.
Scholars who see the end of the Cold War as a watershed fall into
two distinct groups. Many experts still see the state as the main actor
but believe that the agenda of states is shifting from military competi-
tion to economic competitiveness, domestic welfare, and environmen-
tal protection. Thus, President Bill Clinton has embraced the view
that "enlightened self-interest [and] shared values.., will compel us to
cooperate in more constructive ways." Some writers attribute this
change to the spread of democracy, others to the nuclear stalemate,
and still others to changes in international norms.
An even more radical perspective questions whether the state is
still the most important international actor. Jessica Mathews believes
that "the absolutes of the Westphalian system [of] territorially fixed
states . . . are all dissolving," and John Ruggie argues that we do not
even have a vocabulary that can adequately describe the new forces
that (he believes) are transforming contemporary world politics.
Although there is still no consensus on the causes of this trend, the
view that states are of decreasing relevance is surprisingly common
among academics, journalists, and policy wonks.
Prominent realists such as Christopher Layne and Kenneth Waltz
continue to give the state pride of place and predict a return to familiar
patterns of great power competition. Similarly, Robert Keohane and
other institutionalists also emphasize the central role of the state and
argue that institutions such as the European Union and NATO are
important precisely because they provide continuity in the midst of dra-
matic political shifts. These authors all regard the end of the Cold War
as a far-reaching shift in the global balance of power but do not see it as
a qualitative transformation in the basic nature of world politics.
Who is right? Too soon to tell, but the debate bears watching
in the years to come.
-S.W.

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 Walt

foreign policy is generally consistent with realist principles, insofar as its

actions are still designed to preserve U.S. predominance and to shape a
postwar order that advances American interests.
The most interesting conceptual development within the realist par-
adigm has been the emerging split between the "defensive" and "offen-
sive" strands of thought. Defensive realists such as Waltz, Van Evera,
and Jack Snyder assumed that states had little intrinsic interest in mili-
tary conquest and argued that the costs of expansion generally out-
weighed the benefits. Accordingly, they maintained that great power
wars occurred largely because domestic groups fostered exaggerated per-
ceptions of threat and an excessive faith in the efficacy of military force.
This view is now being challenged along several fronts. First, as Ran-
dall Schweller notes, the neorealist assumption that states merely seek
to survive "stacked the deck" in favor of the status quo because it pre-
cluded the threat of predatory revisionist states-nations such as Adolf
Hitler's Germany or Napoleon Bonaparte's France that "value what
they covet far more than what they possess" and are willing to risk anni-
hilation to achieve their aims. Second, Peter Liberman, in his book
Does Conquest Pay?, uses a number of historical cases-such as the Nazi
occupation of Western Europe and Soviet hegemony over Eastern
Europe-to show that the benefits of conquest often exceed the costs,
thereby casting doubt on the claim that military expansion is no longer
cost-effective. Third, offensive realists such as Eric Labs, John
Mearsheimer, and Fareed Zakaria argue that anarchy encourages all
states to try to maximize their relative strength simply because no state
can ever be sure when a truly revisionist power might emerge.
These differences help explain why realists disagree over issues such
as the future of Europe. For defensive realists such as Van Evera, war is
rarely profitable and usually results from militarism, hypemrnationalism,
or some other distorting domestic factor. Because Van Evera believes
such forces are largely absent in post-Cold War Europe, he concludes
that the region is "primed for peace." By contrast, Mearsheimer and
other offensive realists believe that anarchy forces great powers to com-
pete irrespective of their internal characteristics and that security com-
petition will return to Europe as soon as the U.S. pacifier is withdrawn.

New Life for Liberalism

The defeat of communism sparked a round of self-congratulation in the
West, best exemplified by Francis Fukuyama's infamous claim that

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 International Relations

COMPETING
REALISM LIBERALISM
PARADIGMS CONSTRUCTIVISMI

Main Theoretical Self-interested states Concern for power State behavior shaped
Proposition compete constantly for overridden by economic/ by l61ite beliefs,
power or security political considerations collective norms,
(desire for prosperity, and social identities
commitment to

liberal values)

Main Units of Analysis States States Individuals

(especially l61ites)

Main Instruments Economic and Varies (international Ideas and

especially military institutions, economic discourse
power exchange, promotion
of democracy)

Modern Theorists Hans Morgenthau, Michael Doyle, Alexander Wendt,

Kenneth Waltz Robert Keohane John Ruggie
Representative Waltz, Theory of Keohane, Wendt, "Anarchy Is
Modern Works International Politics After Hegemony What States Make of It"
Mearsheimer, "Back to Fukuyama, "The End of (International
the Future: Instability History?" (National Organization, 1992);
in Europe after Interest, 1989) Koslowski &
the Cold War" Kratochwil, "Under-
(International Security, standing Changes in
1990) International Politics"
(International
Organization, 1994)

Post-Cold War Resurgence of Increased cooperation Agnostic because it

Prediction overt great power as liberal values, free cannot predict the
competition markets, and interna- content of ideas
tional institutions spreac

Main Limitation Does not account for Tends to ignore the Better at describing the
international change role of power past than anticipating
the future

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 Walt

humankind had now reached the "end of history." History has paid lit-
tle attention to this boast, but the triumph of the West did give a
notable boost to all three strands of liberal thought.
By far the most interesting and important development has been the
lively debate on the "democratic peace." Although the most recent
phase of this debate had begun even before the Soviet Union collapsed,
it became more influential as the number of democracies began to
increase and as evidence of this relationship began to accumulate.
Democratic peace theory is a refinement of the earlier claim that
democracies were inherently more peaceful than autocratic states. It rests
on the belief that although democracies seem to fight wars as often as
other states, they rarely, if ever, fight one another. Scholars such as
Michael Doyle, James Lee Ray, and Bruce Russett have offered a number
of explanations for this tendency, the most popular being that democra-
cies embrace norms of compromise that bar the use of force against
groups espousing similar principles. It is hard to think of a more influen-
tial, recent academic debate, insofar as the belief that "democracies don't
fight each other" has been an important justification for the Clinton
administration's efforts to enlarge the sphere of democratic rule.
It is therefore ironic that faith in the "democratic peace" became the
basis for U.S. policy just as additional research was beginning to identify
several qualifiers to this theory. First, Snyder and Edward Mansfield
pointed out that states may be more prone to war when they are in the
midst of a democratic transition, which implies that efforts to export
democracy might actually make things worse. Second, critics such as
Joanne Gowa and David Spiro have argued that the apparent absence of
war between democracies is due to the way that democracy has been
defined and to the relative dearth of democratic states (especially before
1945). In addition, Christopher Layne has pointed out that when
democracies have come close to war in the past their decision to remain
at peace ultimately had little do with their shared democratic character.
Third, clearcut evidence that democracies do not fight each other is con-
fined to the post-1945 era, and, as Gowa has emphasized, the absence of
conflict in this period may be due more to their common interest in con-
taining the Soviet Union than to shared democratic principles.
Liberal institutionalists likewise have continued to adapt their own
theories. On the one hand, the core claims of institutionalist theory have
become more modest over time. Institutions are now said to facilitate
cooperation when it is in each state's interest to do so, but it is widely

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International Relations

agreed that they cannot force states to behave in ways that are contrary
to the states' own selfish interests. [For further discussion, please see
Robert Keohane's article.] On the other hand, institutionalists such as
John Duffield and Robert McCalla have extended the theory into new
substantive areas, most notably the study of NATO. For these scholars,
NATO'S highly institutionalized character helps explain why it has been
able to survive and adapt, despite the disappearance of its main adversary.
The economic strand of liberal theory is still influential as well. In par-
ticular, a number of scholars have recently suggested that the "globaliza-
tion" of world markets, the rise of transnational networks and
nongovernmental organizations, and the rapid spread of global commu-
nications technology are undermining the power of states and shifting
attention away from military security toward economics and social wel-
fare. The details are novel but the basic logic is familiar: As societies
around the globe become enmeshed in a web of economic and social
connections, the costs of disrupting these ties will effectively preclude
unilateral state actions, especially the use of force.
This perspective implies that war will remain a remote possibility
among the advanced industrial democracies. It also suggests that bring-
ing China and Russia into the relentless embrace of world capitalism is
the best way to promote both prosperity and peace, particularly if this
process creates a strong middle class in these states and reinforces pres-
sures to democratize. Get these societies hooked on prosperity and com-
petition will be confined to the economic realm.
This view has been challenged by scholars who argue that the actu-
al scope of "globalization" is modest and that these various transactions
still take place in environments that are shaped and regulated by states.
Nonetheless, the belief that economic forces are superseding tradition-
al great power politics enjoys widespread acceptance among scholars,
pundits, and policymakers, and the role of the state is likely to be an
important topic for future academic inquiry.

Constructivist Theories
Whereas realism and liberalism tend to focus on material factors such as
power or trade, constructivist approaches emphasize the impact of ideas.
Instead of taking the state for granted and assuming that it simply seeks
to survive, constructivists regard the interests and identities of states as
a highly malleable product of specific historical processes. They pay
close attention to the prevailing discourse(s) in society because dis-

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 Walt

course reflects and shapes beliefs and interests, and establishes accepted
norms of behavior. Consequently, constructivism is especially attentive
to the sources of change, and this approach has largely replaced marx-
ism as the preeminent radical perspective on international affairs.
The end of the Cold War played an important role in legitimating
constructivist theories because realism and liberalism both failed to
anticipate this event and had some trouble explaining it. Construc-
tivists had an explanation: Specifically, former president Mikhail
Gorbachev revolutionized Soviet foreign policy because he embraced
new ideas such as "common security."
Moreover, given that we live in an era where old norms are being
challenged, once clear boundaries are dissolving, and issues of identi-
ty are becoming more salient, it is hardly surprising that scholars have
been drawn to approaches that place these issues front and center.
From a constructivist perspective, in fact, the central issue in the
post-Cold War world is how different groups conceive their identities
and interests. Although power is not irrelevant, constructivism
emphasizes how ideas and identities are created, how they evolve, and
how they shape the way states understand and respond to their situa-
tion. Therefore, it matters whether Europeans define themselves pri-
marily in national or continental terms; whether Germany and Japan
redefine their pasts in ways that encourage their adopting more active
international roles; and whether the United States embraces or rejects
its identity as "global policeman."
Constructivist theories are quite diverse and do not offer a unified
set of predictions on any of these issues. At a purely conceptual level,
Alexander Wendt has argued that the realist conception of anarchy
does not adequately explain why conflict occurs between states. The
real issue is how anarchy is understood-in Wendt's words, "Anarchy
is what states make of it." Another strand of constructivist theory has
focused on the future of the territorial state, suggesting that transna-
tional communication and shared civic values are undermining tradi-
tional national loyalties and creating radically new forms of political
association. Other constructivists focus on the role of norms, arguing
that international law and other normative principles have eroded ear-
lier notions of sovereignty and altered the legitimate purposes for
which state power may be employed. The common theme in each of
these strands is the capacity of discourse to shape how political actors
define themselves and their interests, and thus modify their behavior.

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International Relations

Domestic Politics Reconsidered

As in the Cold War, scholars continue to explore the impact of domes-
tic politics on the behavior of states. Domestic politics are obviously
central to the debate on the democratic peace, and scholars such as
Snyder, Jeffrey Frieden, and Helen Milner have examined how domes-
tic interest groups can distort the formation of state preferences and lead
to suboptimal international behavior. George Downs, David Rocke,
and others have also explored how domestic institutions can help states
deal with the perennial problem of uncertainty, while students of psy-
chology have applied prospect theory and other new tools to explain
why decision makers fail to act in a rational fashion. [For further dis-
cussion about foreign policy decision making, please see the article by
Margaret Hermann and Joe Hagan.]
The past decade has also witnessed an explosion of interest in the
concept of culture, a development that overlaps with the constructivist
emphasis on the importance of ideas and norms. Thus, Thomas Berger
and Peter Katzenstein have used cultural variables to explain why Ger-
many and Japan have thus far eschewed more self-reliant military poli-
cies; Elizabeth Kier has offered a cultural interpretation of British and
French military doctrines in the interwar period; and lain Johnston has
traced continuities in Chinese foreign policy to a deeply rooted form of
"cultural realism." Samuel Huntington's dire warnings about an immi-
nent "clash of civilizations" are symptomatic of this trend as well, inso-
far as his argument rests on the claim that broad cultural affinities are
now supplanting national loyalties. Though these and other works
define culture in widely varying ways and have yet to provide a full
explanation of how it works or how enduring its effects might be, cul-
tural perspectives have been very much in vogue during the past five
years. This trend is partly a reflection of the broader interest in cultural
issues in the academic world (and within the public debate as well) and
partly a response to the upsurge in ethnic, nationalist, and cultural con-
flicts since the demise of the Soviet Union.

TOMORROW'S CONCEPTUAL TOOLBOX

While these debates reflect the diversity of contemporary scholar

international affairs, there are also obvious signs of convergence. M

ists recognize that nationalism, militarism, ethnicity, and other d

factors are important; liberals acknowledge that power is central t

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 Walt

national behavior; and some constructivists admit that ideas will have
greater impact when backed by powerful states and reinforced by enduring
material forces. The boundaries of each paradigm are somewhat perme-
able, and there is ample opportunity for intellectual arbitrage.
Which of these broad perspectives sheds the most light on contem-
porary international affairs, and which should policymakers keep most
firmly in mind when charting our course into the next century?
Although many academics (and more than a few policymakers) are
loathe to admit it, realism remains the most compelling general frame-
work for understanding international relations. States continue to pay
close attention to the balance of power and to worry about the possi-
bility of major conflict. Among other things, this enduring preoccupa-
tion with power and security explains why many Asians and Europeans
are now eager to preserve-and possibly expand-the U.S. military
presence in their regions. As Czech president Vaiclav Havel has
warned, if NATO fails to expand, "we might be heading for a new glob-
al catastrophe ... [which] could cost us all much more than the two
world wars." These are not the words of a man who believes that great
power rivalry has been banished forever.
As for the United States, the past decade has shown how much it likes
being "number one" and how determined it is to remain in a predominant
position. The United States has taken advantage of its current superiori-
ty to impose its preferences wherever possible, even at the risk of irritat-
ing many of its long-standing allies. It has forced a series of one-sided arms
control agreements on Russia, dominated the problematic peace effort in
Bosnia, taken steps to expand NATO into Russia's backyard, and become
increasingly concerned about the rising power of China. It has called
repeatedly for greater reliance on multilateralism and a larger role for
international institutions, but has treated agencies such as the United
Nations and the World Trade Organization with disdain whenever their
actions did not conform to U.S. interests. It refused to join the rest of the
world in outlawing the production of landmines and was politely unco-
operative at the Kyoto environmental summit. Although U.S. leaders are
adept at cloaking their actions in the lofty rhetoric of "world order," naked
self-interest lies behind most of them. Thus, the end of the Cold War did
not bring the end of power politics, and realism is likely to remain the sin-
gle most useful instrument in our intellectual toolbox.
Yet realism does not explain everything, and a wise leader would
also keep insights from the rival paradigms in mind. Liberal theories

SPRING 1998 43

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International Relations

identify the instruments that states can use to achieve shared inter-
ests, highlight the powerful economic forces with which states and
societies must now contend, and help us understand why states may
differ in their basic preferences. Paradoxically, because U.S. protec-
tion reduces the danger of regional rivalries and reinforces the "liber-
al peace" that emerged after 1945, these factors may become relatively
more important, as long as the United States continues to provide
security and stability in many parts of the world.
Meanwhile, constructivist theories are best suited to the analysis of
how identities and interests can change over time, thereby producing
subtle shifts in the behavior of states and occasionally triggering far-
reaching but unexpected shifts in international affairs. It matters if
political identity in Europe continues to shift from the nation-state to
more local regions or to a broader sense of European identity, just as it
matters if nationalism is gradually supplanted by the sort of "civiliza-
tional" affinities emphasized by Huntington. Realism has little to say
about these prospects, and policymakers could be blind-sided by
change if they ignore these possibilities entirely.
In short, each of these competing perspectives captures important
aspects of world politics. Our understanding would be impoverished
were our thinking confined to only one of them. The "compleat diplo-
mat" of the future should remain cognizant of realism's emphasis on the
inescapable role of power, keep liberalism's awareness of domestic forces
in mind, and occasionally reflect on constructivism's vision of change.

WANT TO KNOW MORE?

For a fair-minded survey of the realist, liberal, and m

see Michael Doyle's Ways of War and Peace (New Y
1997). A guide to some recent developments in in
thought is Doyle & G. John Ikenberry, eds., New
national Relations Theory (Boulder, CO: Westview
Those interested in realism should examine The P
Contemporary Realism and International Security
MIT Press, 1995) by Michael Brown, Sean Lynn-Jon
eds.; "Offensive Realism and Why States Expand
(Security Studies, Summer 1997) by Eric Labs; and
(International Organization, Summer 1997) by Stephen

44 FOREIGN POLICY

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 Walt

native realist assessments of contemporary world politics, see John

Mearsheimer's "Back to the Future: Instability in Europe after the
Cold War" (International Security, Summer 1990) and Robert Jervis'
"The Future of World Politics: Will It Resemble the Past?" (Interna-
tional Security, Winter 1991-92). A realist explanation of ethnic con-
flict is Barry Posen's "The Security Dilemma and Ethnic Conflict"
(Survival, Spring 1993); an up-to-date survey of offense-defense theory
can be found in "The Security Dilemma Revisited" by Charles Glaser
(World Politics, October 1997); and recent U.S. foreign policy is
explained in Michael Mastanduno's "Preserving the Unipolar
Moment: Realist Theories and U.S. Grand Strategy after the Cold
War" (International Security, Spring 1997).
The liberal approach to international affairs is summarized in
Andrew Moravcsik's "Taking Preferences Seriously: A Liberal Theo-
ry of International Politics" (International Organization, Autumn
1997). Many of the leading contributors to the debate on the democra-
tic peace can be found in Brown & Lynn-Jones, eds., Debating the
Democratic Peace (Cambridge, MA: MIT Press, 1996) and Miriam
Elman, ed., Paths to Peace: Is Democracy the Answer? (Cambridge,
MA: MIT Press, 1997). The contributions of institutionalist theory and
the debate on relative gains are summarized in David Baldwin, ed., Neo-
realism and Neoliberalism: The Contemporary Debate (New York,
NY: Columbia University Press, 1993). An important critique of the
institutionalist literature is Mearsheimer's "The False Promise of Inter-
national Institutions" (Intemrnational Security, Winter 1994-95), but one
should also examine the responses in the Summer 1995 issue. For appli-
cations of institutionalist theory to NATO, see John Duffield's "NATO's
Functions after the Cold War" (Political Science Quarterly, Winter
1994-95) and Robert McCalla's "NATO's Persistence after the Cold
War" (International Organization, Summer 1996).
Authors questioning the role of the state include Susan Strange in
The Retreat of the State: The Diffusion of Power in the World Econ-
omy (Cambridge: Cambridge University Press, 1996); and Jessica Math-
ews in "Power Shift" (Foreign Affairs, January/February 1997). The
emergence of the state is analyzed by Hendrik Spruyt in The Sovereign
State and Its Competitors (Princeton, NJ: Princeton University Press,
1994), and its continued importance is defended in Globalization in
Question: The International Economy and the Possibilities of Gover-
nance (Cambridge: Polity, 1996) by Paul Hirst and Grahame Thomp-

SPRING 1998 45

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International Affairs

son, and Governing the Global Economy: International Finance and

the State (Cambridge, MA: Harvard University Press, 1994) by Ethan
Kapstein. Another defense (from a somewhat unlikely source) is "The
World Economy: The Future of the State" (The Economist, Septem-
ber 20, 1997), and a more academic discussion of these issues is Peter
Evans' "The Eclipse of the State? Reflections on Stateness in an Era
of Globalization" (World Politics, October 1997).
Readers interested in constructivist approaches should begin with
Alexander Wendt's "Anarchy Is What States Make of It: The Social
Construction of Power Politics" (International Organization, Spring
1992), while awaiting his Social Theory of International Politics
(Cambridge: Cambridge University Press, forthcoming). A diverse
array of cultural and constructivist approaches may also be found in
Peter Katzenstein, ed., The Culture of National Security (New York,
NY: Columbia University Press, 1996) and Yosef Lapid & Friedrich
Kratochwil, eds., The Return of Culture and Identity in IR Theory
(Boulder: CO: Lynne Rienner, 1996).
For links to relevant Web sites, as well as a comprehensive index of
related articles, access www.foreignpolicy.com.

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ah fregng gg icyCmuiy

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