Grappling with Globalization

Working in a foreign ministry is as good a place as any, and better than most, to observe the world in transition.  I did it for 28 years. From that vantage point, it was near impossible to avoid thinking about why diplomacy has been performing so dismally, especially in recent years when diplomats have been sidelined, and departments of defence favoured as the international policy instrument of choice.

In trying to assess the crisis of diplomacy, I was led repeatedly to the same observation. Simply put, many of diplomacy’s failings can be attributed to its failure to adapt effectively or well to the challenges of the globalization age.

As a result of that early finding,  readers will notice that many of the constructs which support the arguments presented in Guerrilla Diplomacy are based upon my understanding and analysis of the paramount features of the phenomenon popularly referred to as globalization. But, what, exactly,  is that?

Globalization is both over-used and under-appreciated. It also a highly contested term, and has been ascribed a variety of different meanings. At the highest level of apprehension, globalization can be thought of as the successor era to that of the Cold War.

Yet that would be too easy. Globalization is clearly more than that. I would define it as a totalizing historical force which is conditioning, if not determining outcomes across a broad range of human enterprise. Among its effects and at a planetary level, globalization tends to integrate economically, fracture politically, polarize socially and homogenize culturally. It is multifaceted, vexing, and above all, enormous. Might I venture to say that from both practical and ideational perspectives, globalization is the dominant theme of our times.

But its essence cannot be captured in a single narrative.

Images of Nike, Mercedes, McDonalds and Clinique are only the tip of the iceberg. Globalization compresses space, accelerates time, and has unleashed a hornet’s nest of threats and challenges, many rooted in science and driven by technology. A sampling would include:

  • climate change
  • pandemic disease
  • environmental collapse
  • genomics
  • weapons of mass destruction

This catalogue demonstrates that globalization has framed and populated the contemporary  international policy agenda. These issues, moreover, differ in kind from the territorial disputes, ideological rivalry, military confrontation and competition for client states which were the hallmarks of the Cold War.

But even all of this is only a very small part of the story. Like a scythe, globalization  cuts all ways, bringing comfort, choice, power and influence to a few, and hardship, constraints,  anger and resentment to many.

For the beneficiaries, globalization contributes to prosperity and capital accumulation.

For those lost on the periphery or trapped on the underside – at any level and in any location –  globalization can breed insecurity, exacerbate inequality and abet undervelopment.

Globalization has on balance been good for corporations and bad for governments. It jeopardizes fragile states and increases the liklihood of their failure. The backlash against globalization has contributed to violent extremism, often religiously affiliated, world-wide.  It is percieved in many places as the latest incarnation of something more familiar, empire.

Absent the institutions of effective global governance, globalization will remain largely beyond the purview of either popular sovereignty or the public interest.

Like so much else in life, then, where you stand on the question of globalization depends in large part upon on where you sit.

In the midst of the worst international economic downturn since the Great Depression, it would be tempting to conclude that the age of globalization is over.  Indeed, many have. Yet that kind of conclusion would be based upon a relatively narrow understanding of the term, one rooted mainly in observations about trade liberalization, investment flows, resource prices and other, for the most part  macro-economic indicators.

Even by those criteria, I would hesitate to subscribe to the “end of globalization” thesis.  These sorts of measures are highly variable, and in the overall scheme of things, these are early days still. Reports of globalization’s passing are at best premature.

Staggeringly complicated and  immensely consequent, globalization may be  down, but it is far from out.

The implications for security, development and diplomacy, as we shall see, are far-reaching.

Rethinking World Order – Part III

Why think about world order?

Because diplomats, like everyone with a practical or intellectual interest in international political economy,  need an analytical tool suitable for understanding the big picture.  Today, the  marketplace for world order models is littered with paradigms and prototypes.  Some aren’t labelled as such. Many have next to no predictive or explanatory capacity. Most take inadequate account of global issues.

That’s a problem.

To recap…

Bipolarity is history.

The unipolar moment of US hegemony has passed, flaming out in a spectacularly violent starburst of shock and awe.

Multipolarity doesn’t readily fit the circumstances inherent in the globalization age – the power of nations is no longer easily compared.

Heteropolarity, a term first applied to international relations by Brown University scholar James Der Derian in 2004,  might be more apt, but it its analytical power is somewhat limited by its association with polarity per se, and as such it can  take us only us so far conceptually.

The notion of worlds – First (advanced, capitalist); Second (defunct, communist) Third (less developed); and perhaps even Fourth (least developed) – comes closer to getting at what we see today. But this model, too, fails to take account of the emergence of worlds within worlds at all levels. It is too state-centric, too territorial, and it does not adequately reflect the dynamic flux which is globalization.

Though now almost forgotten, and to some extent discredited, in my view it was the dependency theorists, whose influence peaked in the 1970’s, that contributed the elements of an analysis which comes  closest to capturing the underlying patterns of development and underdevelopment. Readers may find it worthwhile, even revealing, to return to the work of Raul Prebish, Samir Amin, Andre Gunder Frank, Osvaldo Sunkel , Fernando Cardoso, Theotonio Dos Santos, Paul Baran, and others, with a view to comparing the applicability their diagnoses and prescriptions against current conditions in the world political economy.

To be sure, some of their prescriptions – self-sufficiency, or import substituting industrialization, for instance – did not stick. Yet there are many points of continuing relevance and insight – the critique of free market economics, the focus on transnationalized elites, the perils of reliance upon commodity exports and the associated difficulties with terms of trade, the idea of the poverty trap.

None, however, is more appropriate to the early 21st century than the notion of core-periphery relations at many levels between and within states, regions and social groups.

I have tried to draw on some of this prescient thinking in the construction of the arguments adduced in support of the ACTE world order model set out summarily in Part II above. I have also tried to abstract various insights offered by the dependency school in setting out the defining elements of both guerrilla diplomacy and the guerrilla diplomat, and will elaborate these at greater length in future.

Unlike traditional diplomacy, and even more so than public diplomacy, guerrilla diplomacy, and indeed guerrilla diplomats, are designed to perform effectively within and across the full spectrum of conditions encapsulated within the ACTE world order model.   Part of that alternative predisposition is borne of a very different understanding of two key terms, development and security. So, too, with the diagnosis of globalization’s  darker  side, underdevelopment and insecurity.

In the era of globalization, these two concepts are fused. Security is no longer the exclusive preserve of departments of defence, or a function of arms and  force.  Development has implications which extend well beyond the machinations of aid agencies, or notions of modernization and growth. To a great extent, development has become the new security, and guerrilla diplomacy, both as diplomatic method and as an alternative approach to understanding international relations, proceeds from that conviction.

Globalization. Security. Development.  These sprawling topics are the touchstones of our times.

A closer examination of each is coming up next.

Rethinking World Order – Part II

Polarity is a static concept, and its expression is spatial. Various poles, be they considered of the hetero or multi-polar genus, can be named, mapped and fixed on a world atlas. In the dynamic, de-territorialized environment that characterizes the globalization age, each of these aspects is highly problematic.

To construct a model of international relations that puts people, rather than states or measures of GDP at the centre of notions of security and development, a more fluid and supple approach to modelling is required.

A quick survey reveals this point starkly. Today, parts of the USA, such as the abandoned neighbourhoods of Flint, Michigan or Akron, Ohio, or New Orleans, Louisiana, look as bad or worse worse than much of anything that might be found in Kuala Lumpur, Malaysia, or Santiago, Chile, or Accra, Ghana. The downtowns of Shanghai, Sao Paulo or Dubai outshine those found in many major centres in Europe or North America. For the homeless in Los Angeles, life is at least as tough, and likely moreso, than it is for those at the bottom of the social pyramid in Singapore.

All of which is to say that the old distinctions just don’t work any more. First World conditions are enjoyed by many people, and found in many places in what used to be known as the Third World. The upscale opulence associated with the better districts of Capetown or Caracas attest to this emphatically. At the same time, nominally Third World lifestyles and environments are found among many individuals, such as the disposessed, and groups, such as aboriginals, as well in many places, such as inner cities and social housing estates, all over what we used to call the First and Second Worlds.

How might such diverse and shifting characteristics be incorporated in the construction of a new world order model? Not easily. But that is no excuse for not trying.

I would propose moving beyond both the now obsolete First, Second and Third World labels, as well as the centre-periphery model and its variants favoured by the dependency theorists and their successors, to adopt four broad categories of people and places affected by globalization:

•    The A- or advancing, world, whose economic and political advantage is growing

•    The C- or contingent world, whose prospects are uncertain and will be determined by future developments which could tip in either direction

•    The T- or tertiary world, whose relative position is subservient or dependent; and

•    The E- or excluded world, who find themselves for the most part outside of globalization’s matrix.

Put the four categories together and there you have it –  a user-friendly and adaptable world order model, the ACTE.

World order modelling is, of necessity, undertaken at a high level of abstraction, and hence exceptions will be inevitable. But these do not the rule make, and the rules, I think, hold up quite well. Each category could contain individuals, social or cultural groups, cities or parts thereof, states or parts thereof, regions, or multilateral combinations. The hybrid formulation, which is transnational and not ordered by geography, combines the utility of labelling with the dynamic quality of the dependency analysis. It avoids undue association with immobile national political space, while allowing for the constant movement upwards, downwards and sideways within and between the principal groups associated with globalization.

The point here is that it is no longer useful or even possible to attempt to classify entire countries, regions or groupings into this or that particular intellectual or geographic box. There is just too much complexity and swirl out there, and much less stratification and rigidity, for any of that. In the globalization age, the concept of de-territorialization – of power, agency, nationality, language, even of ethnicity – has become a defining attribute. While it is very difficult to avoid completely the use of spatial and geographic terms, economic and political relations in the globalization era are less and less between territorially based units and more and more between social agents – individuals, classes, and other groups of various description.  It is these billions of people, almost one half are under twenty-five and live in cities, rather than entire countries, that experience development and underdevelopment.

The situation of the BRICs (Brazil, Russia, India, China) is illustrative. In these resurging or aspiring great powers, there are very large elements of A-, C-, T- and E-worlds internally. There are also elements of each in Europe and North America, although in those cases the A- component would be larger, the E- component smaller, and the C- and T- components perhaps more mobile.

Unconvinced? More on all of this, and why it is germane to guerrilla diplomacy, in Part III.

Rethinking World Order – Part I

It is Easter Monday in central Canada, and change is everywhere. You can smell it in the air and see it on the land.

Seasons change. The way we see the world, and understand its workings, apparently does not.

Modelling world order is a very high level analytical pursuit. It informs and conditions perception.

During the long decades of the Cold War freeze, it was easy enough to get a handle on the idea of world order. There were two competing superpowers, two clearly identified and associated blocs, and competition, to a greater of lesser extent, for the allegiance most everyone else. One bloc, capitalist and led by the USA, was the widely referred to as the First World; another, nominally communist and led by the USSR, the Second World, and the rest, some affiliated with one or the other bloc and some non-aligned, was known as the Third World. Later in the game the notion of a Fourth World emerged – not less, but least developed countries, the poorest of the poor.

In my Diplomatic Surge? post I mentioned the problems related to carrying over a binary, Cold War era world view into the globalization age. Our inability to imagine accurately the world in transition, however, has implications which extend beyond the persistence of a Manichean sensibility, a mis-diagnosis of the threats and challenges, and a tendency to militarize international policy and relations.   At a very basic level, we don’t know how to name,  or describe, or come to terms with the powerful forces which are re-shaping the planet’s political economy. About two decades after it began, the latest epochal shift remains, in large part, unassessed.

When the dust finally cleared in the wake of walls coming down and an empire imploding in 1991, it was clear that bipolarity did not work anymore. One of the poles had melted away. In the intervening years there have been several attempts  –  by Robert Cooper, Thomas Barnett, Immanuel Wallerstein and others – to reconstruct models which somehow capture the complexity and swirl which has characterized the intervening years. None have stuck, though,  like the familiar First, Second and Third Worlds, and accordingly terms remain in widespread use. Unfortunately, given the sheer flux of contemporary geopolitics, not to mention the disappearence of what had been the Second World, they no longer make much sense.

In the mainstream media, the notion of unipolarity became initially very popoular – one remaining superpower, the USA, leading in just about any category worth measuring, and having its way pretty well whenever, and wherever it wished. With the 2003 invasion of Iraq – no WMDs, but plenty of Abu Ghraib, Fallujah, Guantanamo Bay, black detention sites, torture, and extraordinary rendition – that period of unparalleled  quasi-imperial dominance quickly eroded away. Associated neoconservative preferences for ideas such as  pre-emptive defense,  the creation of a homeland security state,  and the gutting of domestic governmental capacity revealed so starkly in the inability of government to respond effectively to either natural or man-made disasters, combined to become the Bush administration’s brand. A trickle of defections from the Coalition turned into a stampede for the doors, the economic meltdown discredited the laissez faire economic doctrine embedded in the Washington Consensus, and the result was a near perfect storm over America’s international image and reputation, its soft power and political influence.

All have tanked.

And all will probably recover, but when they do, the environment will be very different, and it is not quite clear just what will emerge. Many commentators are speaking of a return to some kind of multipolarity, based on the sorts of balance of power calculations and relationships which prevailed for a few hundred years following the Treaty of Westphalia and later, in a more deliberately codified form, the Congress of Vienna. I don’t think that model fits, either. The kinds of power that the statesmen of the day were trying to balance were more or less similar and hence comparable, based on benchmarks such as the size of armies and navies, the nature of weapons and armaments, population numbers, resource bases and colonial connections.

But that was then. Today, extant types of power are not easily comparable.  The US leads in military strength. The European Union will soon have the largest GDP and projects broadly attractive social and political values. China has become the world’s manufacturer and is destined within a decade or so to become the single largest national economy. India is huge in back office operations, software design and call centres. Resurgent Russia is a resource giant and rearming fast. Brazil is leading Latin America. ASEAN is integrating Southeast Asia. The concept of multipolarity does not adequately capture the existance of so many different types of power.

A new term, heteopolarity, which suggests different sources of power and influence, just might.   Yet even if it does, finding any kind of balance will be extremely difficult. And any model based on polarity will in any case be too territorially based and state-centric to embody the dynamism and blur which are hallmarks of  the globalization age.

Perhaps the time has come to dispense with the very notion of polarity as an organizing principle of world order. More on that coming soon.

Lashings of Insight – Part II

One reason for the ISA’s enduring popularity is the sheer variety of presentations on offer. Anyone weary at the prospect of attending yet another panel on, say, constructivist critiques of neo-colonialism, or a reconsideration of the English School perspective on regional integration, can simply browse the telephone book-like ISA program and almost certainly find something of interest.

I am drawn typically to sessions offered by the Association’s Diplomatic Studies and International Communications sections. But I am attracted as well to discussions organized by other sections – intelligence, or foreign policy analysis, for example. Those panels which touch on the core issues of issues of guerrilla diplomacy, namely security, development and globalization, are of particular interest.

Following is an eclectic and highly distilled dollop of all that, garnished with a side order of commentary acquired in conversation:

  • globalization is down, but not necessarily out as the defining historical process of our age; palatable alternative options are not on the horizon
  • public diplomacy in large part is the new diplomacy, but it will never completely displace traditional diplomacy, and could usefully be adapted for use by the representatives of developing countries in the cities of the metropolis
  • major international organizations (UN/IFIs) were designed by the USA in post-war years primarily in order to serve US interests; American dominance has waned, its interests have changed, and most institutions now require radical reform or complete re-invention
  • evidence of direct correlation between climate change and incidence of conflict is uncertain and possibly exaggerated (cf. Gwynne Dyer’s Climate Wars)
  • growing popularity and influence of Al Jazeera English may be more significant over time than foreign policy decisions/ actions taken by many of world’s governments
  • Russia is currently the wild card in the international system – armed, dangerous, re-assertive, but falling faster and harder than EU or US; a collapsing  Russian economy will be more significant than religion or nationalism in conditioning outcomes in the Eurasian colossus
  • India’s latent economic and military power has not yet translated into real international influence, it almost certainly will, but not anytime soon
  • al-Qaeda is now more of a brand than a centralized terrorist network, but the brand has been damaged by setbacks in Iraq, Jordan and Palestinian territories; response by brand managers is centred on internet marketing and heavily reliant upon new media
  • Hamas in Gaza, Hezbollah in Lebanon, and the Shia militias in Iraq, all with deep roots in populations and territories, are likely to outlast al-Qaeda
  • number of fragile, failing and collapsed states is set again to increase, but the track record of donor countries in nation-building is mixed  to poor
  • inability of NATO members to agree on grand strategy for Afghanistan may result in participating ISAF members joining the ranks of outsiders who have tried, but inevitably failed to have their way with this “graveyard of empires.”

In all, quite a lot to chew on.

The theme for next year’s event is Theory vs. Policy: Connecting Scholars and Practitioners. While compelling enough in itself, the venue is New Orleans, a city still struggling almost five years after the destruction wrought by Hurricane Katrina revealed so much to so many about the hollowing out of the American state.

Stay tuned.

Lashings of Insight: Tid-bits from the Brain Food Buffet (I)

Last month I spent five days at the 50th annual conference of the International Studies Association (ISA) in New York City.

I make a point of participating in this sprawling brain food buffet most years, and although the intensity and pace of the program can be exhausting , with 40-50 simultaneous panels, five times per day over four days, it does provide a comprehensive snapshot of academic thinking about most things international at a given point in time.

In that respect, this year’s event was perhaps especially interesting in the wake of the recent arrival of the Obama administration in the USA. The expectations that have been engendered by the heavy rotation of the “hope and change” agenda, both during the long campaign and after, are enormous. Will the new government be able to deliver as advertised? Or will expectations have to be managed and downsized?

With these, and many other issues in mind, I attended many sessions on global order and US foreign policy. Following are some of my summary observations. Processed, condensed, and unattributed, they are intended less as a record of the proceedings than as points for further discussion and debate:

  • US foreign policy will be both framed, and constrained by economic crisis, the depth and duration of which remain unclear, but menacing
  • Obama’s powerful message of hope and change is very different in tone from that of his predecessor, but could lead to an “expectations gap” which will be tough to bridge
  • choice of advisors at upper and mid levels was characterized by one speaker as “neo-con lite”; main international policy directions are more likely to be representative of continuity than change (eg. despatch of 17,000 troops to Afghanistan, and message about international policy priorities which that conveys)
  • commitment to Global War on Terror is likely to persist, even if the taxonomy has changed; careers, budgets, institutions and industries now depend on it (GWOT is “sedimented” in Washington)
  • notwithstanding the temporary bump associated with “Obama effect”, the continued relative decline of US power and influence is inevitable
  • unipolar moment has passed, but the world seems headed towards heteropolar rather than multipolar order – US will lead militarily, but EU and BRICSAM countries will be major economic forces, with other nations powerful culturally, demographically, and environmentally
  • emergent order will take time to work out; requirement for cross-balancing at various levels may result in lower levels of state-sponsored violence, but not necessarily more stabilty than during brief period of US hegemony
  • evangelical US model (deregulation/marketization/democratization) for the world political economy has been deeply discredited; authoritarian, regulated, statist capitalism seems ascendant
  • the good news? A smaller US place in the world and concomitant need for complex balancing will necessitate a larger role for diplomacy, and possibly a smaller role for the military in the overall international policy mix
  • influence of Ambassadors is set to increase and regional military commands/commanders likely to diminish

All in all, a pretty rich harvest, and I will be providing more by way of take-aways from the ISA meeting in future posts.

Manoeuvring the Ship of State

Most diplomats work in foreign ministries, and most foreign ministries have been struggling to adapt to the challenges posed by globalization. Those challenges, which include the emergence of rival international actors ranging from celebrities, to NGOs, to other government departments – are compounded during periods of weak leadership and uncertain political interest. At such times, absent international policy demands or the requirement to produce related real-world outcomes, the employees of foreign ministries tend to fall back on the transactional, on the perfection of bureaucratic process, on entrail gazing. Endless internal reviews, re-organizations and narrow careerist calculation often substitute for policy analysis, development and implementation.

The result strikes me as something like a metaphorical equivalent to the board game “Snakes and Ladders”… or perhaps, “Vipers and Chutes”.

What to do? A few years ago, following the separation of the Canadian Departments of Foreign Affairs and International Trade, senior officials tried to turn adversity into opportunity by launching an initiative to create a “Foreign Ministry for the Twenty-first Century”, or FAC 21. At the centre of this strategy was a significant re-definition and sharpening the of the foreign ministry’s s mandate as an interpreter of globalization, articulator of foreign policy, integrator of the international agenda, advocate of values and interests, provider of services, and steward of public resources.

The plan?

To identify and address the imperatives for institutional change by:

  • strengthening policy capacity;
  • renewing core professional skills;
  • increasing agility, reducing rigidity;
  • maximizing assets in the field;
  • connecting with wider networks; and
  • focussing on public diplomacy.

All of this struck me as completely sensible, and indeed overdue, but an election intervened, the government changed, new resources were withheld, and the attempt to build a contemporary, stand-alone foreign ministry, but one that did not contain a trade component, was among the first casualties of the subsequent re-integration of the two departments.

When I think back on this initiative, or reflect on former Secretary of State Rice’s efforts to transform the State Department, or consider the current initiative in the UK to produce an FCO which is more foreign, less office, a certain image keeps returning to my consciousness. I imagine a scene set on the bridge of a once-magnificent ocean liner, still in service but well past its prime. The boarding process is complete, and thousands of passengers are excited about their imminent departure. The captain is gazing ahead, taking note of possible navigation hazards and enjoying a majestic view from his command centre on the bridge.

The last few voyages, though, have been a bit rough and the captain is eager to get underway. He gives the order to cast off, does a final check of the instruments, nudges the wheel to port and slides the throttle forward to “all-ahead half.” He waits to hear the rumble of the mighty engines… but nothing happens. He shoves the throttle to “full.” Still nothing. “Reverse.” Nothing. He tries to correct course – but the wheel now spins as if it were being used for roulette.

The captain looks down and to his horror discovers that none of his controls are connected. Either someone else is driving, or the ship is adrift.

Interpretation?

The success of any diplomatic surge will be dependent, a least in part, upon fixing the foreign ministry.

Diplomatic Surge? Part III – The dilemma of smart power

The question of appropriate instrumentality raises an even more fundamental issue: does hard power plus soft power in fact equal smart power?

In my view, and notwithstanding popular assumptions to the contrary, the answer is: not necessarily.

The challenge associated with the promise of smart power strikes me, in fact, as crucial. While combining hard and soft power makes a certain amount of sense in principle, in practice it may not always work. Attempts at turning diplomats into counterinsurgents, soldiers into diplomats and academic anthropologists or ethnologists into “human terrain systems” interpreters in a military context can be both morally difficult and personally hazardous. As the tragic experiences of Glyn Berry, Trevor Greene, and Michael Bhatia, respectively, have demonstrated, the alchemy of smart power is highly volatile and potentially deadly. This may be attributed, among other things, to the difficulties of civil-military coordination which flow, among other reasons, from vast resource imbalances. Put another way, with the military holding most of the cards, it is difficult for the other players to remain effectively in the game.

When it comes to international political communications, known in military circles as information operations, diplomats and government aid workers can’t compete with the armed forces when it comes to budgets and bodies. An AP investigation recently disclosed that the Pentagon is spending at least $4.7 billion this year on “influence operations” and has more than 27,000 employees devoted to such activities. At the same time, the report said, the military has grown more aggressive in withholding information and hindering reporters. “The Bush administration turned the US military into a global propaganda machine while imposing tough restrictions on journalists seeking to give the public truthful reports about the wars in Iraq and Afghanistan”, according to Associated Press chief executive Tom Curley.

Within the broad civilian realm, I would maintain that it is diplomats, and perhaps in particular guerrilla diplomats, rather than soldiers, or aid, or NGO workers who are more likely to have the personal disposition, the language and cross-cultural skills, the knowledge of history and culture, and access to the kind of granular intelligence required for effective strategic communications. As adaptable, agile, professional political communicators, they are also more likely to have the messaging right.

Peeling back the layers, even the problems associated with an uneven playing field and disparate team pale in comparison to what may well be the elemental conundrum. Quite possibly the main challenge associated with ongoing efforts to coordinate military and civilian information operations or strategic communications stems from something even more basic than who is trying to do the communicating. Here I refer to the essential differences, and perhaps especially several of the less appreciated ones, between the nature and agency of hard and soft power. The former is associated principally with the armed forces, and the latter with diplomacy, in general, and public diplomacy, in particular. When the two power sources and international policy instruments are compared, the obstacles and constraints to effective communications collaboration become clearer. Following are some of the basic distinctions:

Definitions. Hard power is about compelling your adversary to comply with your will through the threat or use of force. Soft power is about attracting your partner to share your goals through dialogue and exchange.

Objectives. Hard power seeks to kill, capture, or defeat an enemy. Soft power seeks influence through understanding and the identification of common ground.

Techniques. Hard power relies ultimately on sanctions and flows from the barrel of a gun. Soft power is rooted in meaningful exchange and the art of persuasion.

Values. Hard power is macho, absolute, and zero sum. Soft power is supple, subtle, and win/win.

Ethos. Hard power engenders fear, anguish and suspicion. Soft power flourishes in an atmosphere of confidence, trust and respect.

These distinctions between hard and soft power can become disjunctures when placed in an institutional setting. That is, while significant enough in themselves, the disconnects are exacerbated by differences within and between the bureaucratic cultures of the military and the foreign service. An institution designed primarily for fighting might not be best suited to take the lead on talking. Hierarchy, obedience, and control are part of the DNA of military hard power. The genome of soft power, of public diplomacy, in contrast, turns on relationships, on lateral connectivity and on the construction and maintenance of collaborative networks.

Animated by the service of such antithetical ends, it is hardly surprising that full spectrum cooperation and coordination in getting from diktat to dialogue through the application of smart power has have proven so difficult. Smart power is much easier to say than it is to use.

To conclude, in the era of indivisible security which comes with the territory of global issues, it may be that some kind of combination of hard and soft power will prove effective for those states with the capacity to marshal and mix the necessary ingredients. For all others, a transformational form of public diplomacy – guerrilla diplomacy, if I may – could offer brighter prospects for a more secure and prosperous international policy future.

All that said, it remains cause for celebration – not to mention an enormous relief – to be hearing suggestions supportive of diplomacy coming at long last from high places.

Three cheers for the diplomatic surge.

Diplomatic Surge? Part II – The things we carry

I would attribute the running down of diplomacy in recent years to a trio of developments related to the carry-over from the Cold War of certain habits of mind, or intellectual baggage, which have been hoisted into the globalization age from the preceding era. In a nutshell, in the face of the complex threats and challenges engendered by globalization, and the concomitant need for deep knowledge, nuanced understanding and a subtle approach, many continued to view the world in a way best described as Manichean, alarmist and militaristic.

Without getting into the full details of the argument, or assessing the important implications for recruiting, training and diplomatic practice, this must be unpacked a bit. During the Cold War, the West organized its international policy around the objective of ‘containment’, by deterring, blocking, and wherever possible, rolling back what was seen as a world-wide Communist threat. Think Harry Truman, George Keenan NSC 68 and Mutually Assured Destruction. From 1947 to 1991, the adversary was portrayed as a monolithic Red Menace Russians, Chinese, North Koreans, North Vietnamese, Cubans, Nicaraguans… No matter. Those Commies were all the same.

For a decade after the walls came down, there were few credible threats available to be conjured, but this changed instantly post 9/11 when a very similar, open-ended impulse – and function – again found expression. The Global War on Terror filled the ideological void once occupied by the Cold War. Al Qaeda, Taliban, Hamas, Hezbollah – no matter. All Islamic extremists were alike. Substitute terrorism for communism, recycle a familiar ideological construct, et voila away they went. Again. No secretive conspiracy here, just consensus among members of certain influential groups who identified an opportunity to advance their agenda.

The principal elements of this Cold War carry-over include:

• the adoption of a binary world view, which reduces almost infinite complexity to a matter of “us versus them; you are with us, or with the terrorists”;

• the use of fear to galvanize domestic support by characterizing the threat as urgent and universal “they are not only out there, everywhere, but they are among us and could strike anywhere, anytime. Red alert. “, and;

• a preference for armed force in responding to perceived threats, and the favouring of defence over diplomacy or development in what might be reasonably described as the militarization of international policy.

Taken together, these elements constitute a persistent, and troublingly resilient line, one endlessly hyped in the media and deeply lodged in the public mind.

What is wrong with this picture? In my view, getting over this debilitating mindset, even more so than taking full account of science and technology as a driver of international policy and transforming diplomacy, will be the sine qua non for the success of any diplomatic renaissance. Diplomats can become entrepreneurial brokers and network nodes, building relationships and supporting civil society actors in efforts to advance democratic development, good governance and the management of political and social plurality. But this won’t be possible unless the model, the context and the motives are changed. It is not yet clear that all of these pre-conditions are in place.

In particular, and in response to the burden of left luggage:

The world is not black and white but a many layered and multi-stranded swirl of greys.

Fear motivates the construction of gated communities within a national security state; hope is a far superior starting point for policy formulation.

Compulsion has its place in international relations, but attraction is more widely applicable, generally more effective and much less costly.

The fact of this psychological transfer of Cold War perceptions into the globalization age has meant not only that the peace dividend remains unpaid, but that for the past two decades the scope for applying non-violent approaches, such as diplomacy, to the resolution of international differences has been very limited. Iraq and Afghanistan are the obvious examples, but there are many more ranging from Darfur and the Democratic Congo to Israel/Palestine and India/Pakistan/Kashmir.

The planet has paid a high price for this hiatus. Notwithstanding that diplomacy, often in combination with development, offers the key to sustainable security, both have in recent years been in large part displaced by defence. By any measure resource allocation, domestic political influence, even academic interest diplomacy, the foreign ministry and the priority of equitable, sustainable and human-centred development have been on the back burner. Not so the legions, although an over-reliance on the state’s instruments of violence has imposed a whole host of other costs.

The economic and market meltdowns have spurred a realization of the need for innovative thinking in coping with the uncertainties of globalization. They have also given rise to a sense that some of the tools so hurriedly stashed when the train left the Cold War station may be worth dusting off, public diplomacy (PD) perhaps foremost among them. Not only are the large scale international scientific, educational, and cultural exchanges of days gone by now sorely missed, but AIDs cannot be detained; the climate cannot be garrisoned; the environment cannot be extraordinarily rendered; hunger cannot be bombed out of existence.

For these reasons and more, the ball is finally coming back, at long last, to practitioners of the world’s second oldest profession. By linking development and security through the medium of international policy, diplomacy, and especially public diplomacy, is poised again to occupy a place front and centre in international relations. Diplomats are advantageously placed to provide the essential strategic advice required by governments to integrate values, policies and interests right across the international policy spectrum. Neither members of the military, nor aid workers, NGO reps nor journalists can provide the sorts of supple intelligence required. They lack the tools of engagement, the cross-cultural skill set, and the capacity to generate the detailed, place-specific knowledge which might permit them to substitute in this critical role.

Diplomatic Surge? Part I – From buzz to becoming

These should be heady days for diplomats. After a long stretch languishing in relative obscurity, the willingness to explore diplomatic alternatives to the use of armed force in the pursuit of international policy objectives has become suddenly, well, fashionable.

The arrival of the Obama administration, and especially Secretary of State Hillary Clinton and Vice President Joe Biden, has unleashed a torrent of commentary on soft power, smart power, branding and public diplomacy. Harvard Professor Joseph Nye – the guru of soft, and now, in the vernacular of the moment, smart power – is becoming almost a household name. Special envoys have been appointed, difficult issues broached, executive orders signed and new directions indicated. Diplomatic studies specialists, long neglected by both the media and the mainstream, and rarely if ever consulted by decision-makers and opinion-leaders, are finding themselves surprisingly popular. Even within the sometimes rarified heights of international relations scholarship, diplomacy is receiving unprecedented attention.

The short road from heresy to liturgy is getting even shorter.

Foreign ministries and diplomats everywhere will welcome the attention; they have been through a rough patch and now have their work cut out for them, doing things like assisting with broad-based development, supporting democracy and human rights, and building bridges to civil society. Moreover, practitioners have rarely been better positioned to address pressing professional issues, to burnish the tools of the trade and to engage publics abroad through dialogue and partnership. In much of the world, the image and reputation of the West in general, and the USA in particular, has huge potential on the upside.

In short, statecraft is on a roll, and the timing could scarcely be better.

For those accustomed to toiling unnoticed in the diplomatic wilderness, all of this is giving rise to something akin to an out of body experience.

Carpe diem.

What might be said of this promising trend? How might the diplomatic difficulties of the past few decades be explained? And where to now – can smart power deliver as advertised? In this calculus I see both change, and possibly a disconcerting hint of continuity.

Some observations. Firstly, the new political leadership in the USA appears to have re-discovered that diplomacy per se matters. In the face of a profusion of unresolved conflicts and unaddressed global threats and challenges, many rooted in science and driven by technology, a fresh willingness is in evidence to give negotiation, compromise and meaningful exchange an overdue test drive. But the machinery and its operators have been idling on the sidelines in recent years. A major tune-up, if not a complete re-build will be necessary.

Secondly, and in that regard, the delivery of something broadly similar to the core of former Secretary Rice’s program for transformational diplomacy – representational reform, the retooling of organizational structure and bureaucratic process, and enlargement of the resource base – will be imperative. The implementation of this strategy will not in itself, however, suffice if talking is to triumph over fighting as the international policy instrument of choice. The dominant world view, too, needs a complete refit.

Thirdly, then, and perhaps most fundamentally, it seems to me that diplomacy reached this critical impasse as a result of the imposition of a particular ideological perspective which conditioned, if not determined the political and intellectual environment in which the foreign ministry and foreign service have had to operate.

Let me deal summarily with the first two points:

1. Over the long history of delivering international policy results for states, diplomats have had to manage issues such as territorial disputes, treaty and legal problems, and ideological competition. In the early 21st century, these sorts of challenges, to which might be added terrorism, migration and criminality, are still out there, but have been joined by a daunting set of S&T based issues: climate change and pandemic disease; resource scarcity and environmental collapse; weapons of mass destruction and genomics, to name a few. Most serving diplomats are not equipped, in terms of background, knowledge and experience, to handle successfully these types of files.

2. The prescription for transformational diplomacy recognizes that diplomacy needs to be re-invented from the bottom up, and that this will involve a complete rethinking of the diplomatic business model and reimagining of the essential skill set of the diplomatic person. I am convinced completely of the need to reconstruct the foreign ministry. In OECD countries especially, these tend to be among the oldest of central government institutions. Westphalian conventions are profoundly embedded, and the culture tradition-laden, hierarchic and risk averse. Placing adequate emphasis on overcoming these internal obstacles will be crucial.

Globalization has radically altered the role and place of states in the international system diplomats, diplomacy and the foreign ministry have not adapted well The main diplomatic institutions must accordingly be reconsidered fundamentally or face irrelevance, if not oblivion. Success at this game of catch-up will require vision and dexterity. Which brings me to the third point. Foreign ministries and diplomats have their shortcomings, but are their other reasons that performance has faltered? Might this affect the ability of the apparent diplomatic surge to endure?