Foreign Policy in a Transformed World 9781317903352, 9780139087578

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Foreign Policy in a Transformed World

Foreign Policy in a Transformed World MARK WEBBER AND MICHAEL SMITH

WITH

David Allen, Alan Collins, Denny Morgan and Anoushiravan Ehteshami

I~ ~~o~;!~n~~~up LONDON AND NEW YORK

First published 2002 by Pearson Education Limited Published 2013 by Routledge 2 Park Square, Milton Park, Abingdon, Oxon OXI4 4RN 711 Third Avenue, New York, NY 10017, USA

Routledge is an imprint of the Taylor & Francis Group, an informa business Copyright © 2002, Taylor & Francis. All rights reserved. No part of this book may be reprinted or reproduced or utili sed in any form or by any electronic, mechanical , or other means, now kno wn or hereafter in vented, including photocopying and recording, or in any information storage or retri eval system, without permission in writing from the publi shers. Notices Knowledge and best practice in thi s field are constantly changing. As new research and experience broaden our understanding, changes in research methods, professional practices, or medical treatment may become necessary. Practitioners and researchers must always rely on their own experience and knowledge in evaluating and using any information, methods, compounds, or experiments described herein. In using such information or method s they should be mindful of their own safety and the safety of others, including parties for whom they have a professional responsibili ty. To the fullest extent of the law, neither the Publisher nor the authors, contributors, or edi tors, assume any li ability for any injury and/or damage to persons or property as a matter of products liability, negligence or otherwise, or from any use or operation of any methods, products, instructions, or ideas contained in the material herein [SBN 13: 978-0-13-908757-8 (pbk) British Library Cataloguing-in-Publication Data A catalogue record for this book is available from the British Library Library of Congress Cataloging-in-Publication Data A catalog record is available from the Library of Congress Typeset in 10/13pt Sabon by 35

Contents

Contributors Preface Abbreviations Maps Publisher's Acknowledgments

Introduction

IX XI XVI- XXV XXVI

1

Mark Webber and Michael Smith

Part 1 Frameworks

7

Mark Webber and Michael Smith

l. I

2. I

Problems and Issues in Foreign Policy Analysis

9 9 11

Foreign policy puzzles Foreign policy: traditional assumptions A transformed world Changing perspectives on foreign policy Summary and conclusion Further reading References

15 21 24 26 27

The Foreign Policy Arena

29

Introduction Contexts

30

29

vi

Contents

3.

Actors, issues and interests Summary and conclusion Further reading References

39 45 46 46

The Making of Foreign Policy

49 49 51 62 67 74 76 76

Introduction Images of foreign policy making Foreign policy making in a transformed world Foreign policy making in a comparative context Summary and conclusion Further reading References

4. I

Part 2

5.

The Implementation of Foreign Policy Introduction Implementation in perspective Implementing foreign policy in a transformed world Summary and conclusion Further reading References

Case Studies

I

The Americas: the United States and Brazil

79 79 81 92 103 103 104

105 107

Michael Smith Introduction The foreign policy arena and the challenge of transformation The United States Brazil Conclusion Further reading References The world wide web

107 109

III

124 132 133 133 136

Contents

6. I

7. I

8. I

9. I

The Former Soviet Union: Russia and Ukraine

I

137

Mark Webber Introduction: the emergence of Russia and Ukraine The arena of foreign policy The foreign policy of Russia The foreign policy of Ukraine Conclusion: Russia and Ukraine - cases apart Further reading References The world wide web

137 138 146 162 173 174 175 178

The New Europe: Germany and Poland

179

David Allen and Mark Webber The foreign policy arena and the challenge of transformation Germany Poland Conclusion Further reading References The world wide web

179 188 202 210 211 212 214

Sub-Saharan Africa: Nigeria and South Africa

215

Denny Morgan and Mark Webber Introduction The arena of foreign policy The foreign policy of South Africa The foreign policy of Nigeria Conclusion Further reading References The world wide web

215 216 230 240 251 251 252 254

The Middle East: Iran and Israel

255

Anoushiravan Ehteshami

vii

viii

I

Contents

10.

Introduction The Middle East in the twentieth century The arena of foreign policy and the challenge of transformation The foreign policy of Iran The foreign policy of Israel Conclusion Further reading References The world wide web

255 257 264 269 275 282 284 284 286

East Asia and the Pacific Rim: Japan and China

287

Alan Collins

Introduction The arena of foreign policy and the challenges of transformation The foreign policy of Japan The foreign policy of China Conclusion Further reading References The world wide web

287 288 292 304 317 318 319 321

Part 3 Conclusion

323

11.

325

The Challenge of Foreign Policy Mark Webber

Continuity and change in the foundations of foreign policy Comparing foreign policies Studying foreign policy Summary and conclusion Further reading References

325 331 335 337 337 337

Glossary Index

340 345

Contributors

is Senior Lecturer in Politics and Jean Monnet Senior Lecturer in European Politics in the Department of European Studies, Loughborough University. He is the author of numerous articles and book chapters on European foreign policy and other aspects of European Union policy making, including contributions to all four editions of Helen Wallace and William Wallace (eds), Policy-Making in the European Union (4th edition, Oxford University Press, 2000). He is also joint author (with Mike Smith) of the 'External Relations' section of the Journal of Common Market Studies Annual Review.

David Allen

is Lecturer in the Department of Politics at the University of Wales, Swansea. Prior to this appointment he was a British Academy Post-Doctoral Fellow in the Department of International Politics at the University of Wales, Aberystwyth. He is the author of The Security Dilemma and the End of the Cold War (Keele University Press, 1997) and The Security Dilemmas of Southeast Asia (Palgrave, 2000).

Alan Collins

is Post-Doctoral Research Fellow in International Relations and member of the African Studies Centre at Coventry University. Her research interests include institutionalisation, focusing on the impact of organisational behaviour on the politics of agenda setting in Europe and West Africa.

Denny Morgan

is Director of the Institute for Middle Eastern and Islamic Studies and Professor of International Relations at the University of Durham. His most recent publications include: (as editor) From the Gulf to Central Asia: Players in the New Great Game (University of Exeter Press, 1995), (as author) After Khomeini: the Iranian Second Republic (Routledge, 1995), (as co-editor), Islamic Fundamentalism (Westview Press, 1996), (as co-author) Syria and Iran: Middle

Anoushiravan Ehteshami

x I Contributors

Powers in a Penetrated Regional System (Routledge, 1997), and (as author) The Changing Balance of Power in Asia (1998). His current research is focused on four projects: the Asian balance of power in the post-Cold War era, the international politics of the Red Sea sub-region, foreign policies of Middle Eastern states since the end of the Cold War, and the impact of globalisation on the Middle East. is Jean Monnet Professor of European Politics in the Department of European Studies, Loughborough University. He is author, coauthor and editor of many books and articles on EU external policies and European integration, including Europe's Experimental Union (Routledge, 2000), Negotiation and Policymaking in the European Union (Special Issue of the Journal of European Public Policy, 7(5), 2000) and Beyond Foreign Economic Policy: the United States, the Single European Market and the Changing World Economy (Pinter, 1997). He is also joint author (with Brian Hocking) of World Politics. An Introduction to International Relations (2nd edition, Prentice Hall, 1995) and joint editor (with Brian White and Richard Little) of Issues in World Politics (2nd edition, Palgrave, 2001).

Michael Smith

is Senior Lecturer in the Department of European Studies, Loughborough University. He is the author of The International Politics of Russia and the Successor States (Manchester University Press, 1996), CIS Integration Trends: Russia and the Former Soviet South (Royal Institute of International Affairs, 1997), co-author of The Enlargement of Europe (Manchester University Press, 1999) and editor of Russia and Europe: Conflict or Cooperation? (Macmillan, 2000). His current research focuses on NATO-Russian relations and the issue of exclusion in European security.

Mark Webber

Preface

This is a volume which has given its principal authors sleepless nights. The normal business of writing and editing has contributed to this, but its primary cause has been the intellectual challenges which the book has presented. Conceived initially in the mid-1990s, Foreign Policy in a Transformed World was intended as a primer on foreign policy analysis (FPA) for use by undergraduate and postgraduate students alike. There are several books - some of them very good - on FPA, but very few have attempted to place the analysis of foreign policy within an analytical and thematic framework sustained by the far-reaching alterations in world politics that have been felt over the last two to three decades (and, in particular, following the end of the Cold War). In this light, the central purposes of the book are to elaborate frameworks for the analysis of foreign policy while at the same time linking these to the study of change and transformation in world politics more generally (Part One). These frameworks then guide a series of case studies of contemporary foreign policies drawn from five separate geographic regions (Part Two). The purpose of the frameworks is to encourage a consistency across the case studies while not losing sight of the distinctive featur.es and trends in each of them. It is our firm hope that students who read this book will learn something not just about a range of foreign policies and their regional settings, but also something about the nature of transformation in world politics. This is a view that has been informed by our own experience of teaching. Students, we believe, prosper best in the acquisition and application of knowledge when it is contextualised rather than narrowly focused, when it is analytically and theoretically informed, and when it is presented in a stimulating and open fashion. This book strives towards these ends.

xii

Preface

We would like to extend our thanks to the various contributing authors, all of whom, despite the very different natures of their expertise, gladly wrote their case studies with the central themes of the book uppermost in their mind. Thanks are also due to the editorial staff at Pearson Education who have regarded this book with continuing interest and patience.

Mark Webber and Michael Smith, Loughborough University

Abbreviations

ABM ACRI AEC ANC ANIE APEC APPA ARF ASEAN ASEAN-PMC BSF

CCP

CEFTA CESOP CFE CFSP CIA CIS CMC CMEA CPU CSCE CTBT OFA OJO

OPP

ORC

Anti-Ballistic Missile (Treaty) African Crisis Response Initiative African Economic Community African National Congress (South Africa) Asian newly industrialised economies Asia-Pacific Economic Cooperation African Petroleum Producers' Association ASEAN Regional Forum Association of South East Asian Nations Association of South East Asian Nations-Post Ministerial Conference Black Sea Fleet Chinese Communist Party Central European Free Trade Area Common European Security and Defence Policy Conventional Forces in Europe (Treaty) Common Foreign and Security Policy Central Intelligence Agency Commonwealth of Independent States Central Military Commission (China) Council for Mutual Economic Assistance Communist Party of Ukraine Conference on Security and Cooperation in Europe Comprehensive Test Ban Treaty Department of Foreign Affairs (South Africa) Democratic Party of Japan Democratic Progressive Party (China) Democratic Republic of Congo

xiv

Abbreviations

EAEC

EC

ECE ECO ECOMOG ECOWAS EEC EFTA EPC ESDI ESOP

EU

FALSG FDI FPA FPI FPM FRG FSU

FTAA G7 G8

GATT

GCC

GOP GOR GNP GNU GUUAM

East Asia Economic Group European Community East-Central Europe Economic Cooperation Organisation (Economic Community of West African States) Military Monitoring Group Economic Community of West African States European Economic Community European Free Trade Area European Political Cooperation European Security and Defence Identity European Security and Defence Policy European Union Foreign Affairs Leading Small Group (China) foreign direct investment foreign policy analysis foreign policy implementation foreign policy making Federal Republic of Germany former Soviet Union Free Trade Area of the Americas Group of Seven Group of Eight General Agreement on Tariffs and Trade Gulf Cooperation Council gross domestic product German Democratic Republic gross national product Government of National Unity (South Africa) Georgia, Ukraine, Uzbekistan, Azerbaijan, Moldova

(group)

IFls IMF JURO JSOF KEDO LOP

LP MFA MIT! MOE

international financial institutions International Monetary Fund Japan External Trade Organisation Japanese Security Defence Force Korean Peninsula Energy Development Organisation Liberal Democratic Party (Japan) Liberal Party (Japan) Ministry of Foreign Affairs (China) Ministry of International Trade and Industry (Japan) Ministry of Education (Japan)

Abbreviations

MOF MOT MPT NAFTA NATO NGO NMD NPT OAU OECD OPEC OSCE PAS PECC PJC PLA PLO

PRC PUWP SACU SADC SSA START TMD UMNO UN UNSC US WEU

WTO

Ministry of Finance (Japan) Ministry of Transportation (Japan) Ministry of Posts and Telecommunications (Japan) North American Free Trade Association North Atlantic Treaty Organisation Non-Governmental Organisation National Missile Defence (Nuclear) Non-Proliferation Treaty Organisation of African Unity Organisation of Economic Cooperation and Development Organisation of Petroleum Exporting Countries Organisation for Security and Cooperation in Europe Parti Islam Se-Malaysia Pacific Economic Cooperation Council (NATO-Russia) Permanent Joint Council People's Liberation Army (China) Palestinian Liberation Organisation People's Republic of China Polish United Workers' Party Southern African Customs Union Southern African Development Community sub-Saharan Africa Strategic Arms Reduction Treaty Theatre Missile Defence United Malays' National Organisation United Nations United Nations Security Council United States Western European Union World Trade Organisation

I

xv

xvi

Maps

UNITED STATES

GulfofMexico .M E X IC O і

NORTH ATLANTIC OCEAN

,,'"

CUBA

'\ THE BAHAMAS ~'\) .. oo

~:'

DOMINICAN

~~EPUBLIC

c:;, PUERTO RICO (US) 0 0 0" BARBADOS

JAMAICA ~ \· ..... ·'·BELIZE (UK) c::::::::> HAlTI

-~ i(.HONDURAS

/' ( Caribbea n EL SALVADO R' ·-;;ICARAGUA

GUATEM~ .

NORTH PACIFIC OCEAN

.....

Sea

0,

GRENEDA: TRINIDAD & TOBAGO

0 TRINIDAD & TOBACO

j

COSTA RICA

'-. VENEZUELA, 1._ ...... i

PANAMA1

-- ' ("

GUYANA

SURINAM E

...... .... ) -.\

'D""

;:_ '\./ ';

. .,-.

" FRENCH GUIANA

i,/~iJ~._ ./

/ C O L O M B IA '

,_

(

>

\, ._,,'

ECUADO~j

.

·,.f

j... .

,

.

PERU \ ...... t.~./

.,

--.. \.

BRAZIL

" -., ~ BOLIVIA i_, (

/.-... ..'.

>

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" )_ . -