How decision makers define state interests and formulate policies to deal with complex and technical issues can be a function of the manner in which the issues are represented by specialists to whom they turn for advice in the face of uncertainty. The contributors to this issue examine the role that networks of knowledge-based experts—epistemic communities—play in articulating the cause-and-effect relationships of complex problems, helping states identify their interests, framing the issues for collective debate, proposing specific policies, and identifying salient points for negotiation. Their analyses demonstrate that control over knowledge and information is an important dimension of power and that the diffusion of new ideas and data can lead to new patterns of behavior and prove to be an important determinant of international policy coordination.

Domestic politics and international relations are often inextricably entangled, but existing theories (particularly “state-centric” theories) do not adequately account for these linkages. When national leaders must win ratification (formal or informal) from their constituents for an international agreement, their negotiating behavior reflects the simultaneous imperatives of both a domestic political game and an international game. Using illustrations from Western economic summitry, the Panama Canal and Versailles Treaty negotiations, IMF stabilization programs, the European Community, and many other diplomatic contexts, this article offers a theory of ratification. It addresses the role of domestic preferences and coalitions, domestic political institutions and practices, the strategies and tactics of negotiators, uncertainty, the domestic reverberation of international pressures, and the interests of the chief negotiator. This theory of “two-level games” may also be applicable to many other political phenomena, such as dependency, legislative committees, and multiparty coalitions.

The debate between realists and liberals has reemerged as an axis of contention in international relations theory. Revolving in the past around competing theories of human nature, the debate is more concerned today with the extent to which state action is influenced by “structure” (anarchy and the distribution of power) versus “process” (interaction and learning) and institutions. Does the absence of centralized political authority force states to play competitive power politics? Can international regimes overcome this logic, and under what conditions? What in anarchy is given and immutable, and what is amenable to change?

Realist and other scholars commonly hold that rationally led states can and sometimes do fight when no peaceful bargains exist that both would prefer to war. Against this view, I show that under very broad conditions there will exist negotiated settlements that genuinely rational states would mutually prefer to a risky and costly fight. Popular rationalist and realist explanations for war fail either to address or to explain adequately what would prevent leaders from locating a less costly bargain. Essentially just two mechanisms can resolve this puzzle on strictly rationalist terms. The first turns on the fact that states have both private information about capabilities and resolve and the incentive to misrepresent it. The second turns on the fact that in specific strategic contexts states may be unable credibly to commit to uphold a mutually preferable bargain. Historical examples suggest that both mechanisms are empirically plausible.

The prevailing model of international economic regimes is strictly positivistic in its epistemological orientation and stresses the distribution of material power capabilities in its explanatory logic. It is inadequate to account for the current set of international economic regimes and for the differences between past and present regimes. The model elaborated here departs from the prevailing view in two respects, while adhering to it in a third. First, it argues that regimes comprise not simply what actors say and do, but also what they understand and find acceptable within an intersubjective framework of meaning. Second, it argues that in the economic realm such a framework of meaning cannot be deduced from the distribution of material power capabilities, but must be sought in the configuration of state-society relations that is characteristic of the regime-making states. Third, in incorporating these notions into our understanding of the formation and transformation of international economic regimes, the formulation self-consciously strives to remain at the systemic level and to avoid becoming reductionist in attributing cause and effect relations. The article can therefore argue that the prevailing view is deficient on its own terms and must be expanded and modified. Addressing the world of actual international economic regimes, the article argues that the pax Britannica and the pax Americana cannot be equated in any meaningful sense, and that the postwar regimes for money and trade live on notwithstanding premature announcements of their demise.

We examine why international actors—including states, firms, and activists—seek different types of legalized arrangements to solve political and substantive problems. We show how particular forms of legalization provide superior institutional solutions in different circumstances. We begin by examining the baseline advantages of “hard” legalization (that is, precise, legally binding obligations with appropriate third-party delegation). We emphasize, however, that actors often prefer softer forms of legalization (that is, various combinations of reduced precision, less stringent obligation, and weaker delegation). Soft legalization has a number of significant advantages, including that it is easier to achieve, provides strategies for dealing with uncertainty, infringes less on sovereignty, and facilitates compromise among differentiated actors.

Although our approach is largely interest-based, we explicitly incorporate the normative elements that are central in law and in recent international relations theorizing. We also consider the important role of nonstate actors who, along with states, are central participants in contemporary international legalization. We illustrate the advantages of various forms of international legal arrangements with examples drawn from articles in this special issue and elsewhere.

The history of international political orders is written in terms of continuity and change in domestic and international political relations. As a step toward understanding such continuity and change, we explore some ideas drawn from an institutional perspective. An institutional perspective is characterized in terms of two grand issues that divide students of international relations and other organized systems. The first issue concerns the basic logic of action by which human behavior is shaped. On the one side are those who see action as driven by a logic of anticipated consequences and prior preferences. On the other side are those who see action as driven by a logic of appropriateness and a sense of identity. The second issue concerns the efficiency of history. On the one side are those who see history as efficient in the sense that it follows a course leading to a unique equilibrium dictated by exogenously determined interests, identities, and resources. On the other side are those who see history as inefficient in the sense that it follows a meandering, path-dependent course distinguished by multiple equilibria and endogenous transformations of interests, identities, and resources. We argue that the tendency of students of international political order to emphasize efficient histories and consequential bases for action leads them to underestimate the significance of rule- and identity-based action and inefficient histories. We illustrate such an institutional perspective by considering some features of the coevolution of politics and institutions, particularly the ways in which engagement in political activities affects the definition and elaboration of political identities and the development of competence in politics and the capabilities of political institutions.

This article reformulates liberal international relations (IR) theory in a nonideological and nonutopian form appropriate to empirical social science. Liberal IR theory elaborates the insight that state-society relations—the relationship of states to the domestic and transnational social context in which they are embedded—have a fundamental impact on state behavior in world politics. Societal ideas, interests, and institutions influence state behavior by shaping state preferences, that is, the fundamental social purposes underlying the strategic calculations of governments. For liberals, the configuration of state preferences matters most in world politics—not, as realists argue, the configuration of capabilities and not, as institutionalists (that is, functional regime theorists)maintain, the configuration of information and institutions. This article codifies this basic liberal insight in the form of three core theoretical assumptions, derives from them three variants of liberal theory, and demonstrates that the existence of a coherent liberal theory has significant theoretical, methodological, and empirical implications. Restated in this way, liberal theory deserves to be treated as a paradigmatic alternative empirically coequal with and analytically more fundamental than the two dominant theories in contemporary IR scholarship: realism and institutionalism.

This article introduces a mode of social action and interaction that has so far been largely overlooked in the U.S.-dominated international relations debate between rational choice and social constructivism that focuses mainly on the differences between instrumental rationality and norm-guided behavior. Drawing on insights from a theoretical debate within the Germanspeaking international relations community, I suggest that actors have a third mode of social action at their disposal: arguing and deliberating about the validity claims inherent in any communicative statement about identities, interests, and the state of the world. Arguing and truth-seeking behavior presuppose that actors no longer hold fixed interests during their communicative interaction but are open to persuasion, challenges, and counterchallenges geared toward reaching a reasoned consensus. The preconditions for argumentative rationality, particularly a “common lifeworld” and the mutual recognition of speakers as equals in a nonhierarchical relationship, are more common in international relations than is usually assumed. Arguing processes are more likely to occur the more actors are uncertain about their interests and even identities, the less they know about the situation in which they find themselves and the underlying “rules of the game,” and the more apparently irreconcilable differences prevent them from reaching an optimal rather than a merely satisfactory solution for a widely perceived problem (“problem solving”). Moreover, arguing is likely to increase the influence of the materially less powerful, be it small states or nonstate actors such as INGOs. I illustrate these claims empirically with two plausibility probes. The first concerns the East–West talks leading to a negotiated settlement of the Cold War in Europe and German unification within NATO. The second case focuses on the implementation of international human rights norms into domestic practices of Third World states.

Questions about norm diffusion in world politics are not simply about whether and how ideas matter, but also which and whose ideas matter. Constructivist scholarship on norms tends to focus on “hard” cases of moral transformation in which “good” global norms prevail over the “bad” local beliefs and practices. But many local beliefs are themselves part of a legitimate normative order, which conditions the acceptance of foreign norms. Going beyond an existential notion of congruence, this article proposes a dynamic explanation of norm diffusion that describes how local agents reconstruct foreign norms to ensure the norms fit with the agents' cognitive priors and identities. Congruence building thus becomes key to acceptance. Localization, not wholesale acceptance or rejection, settles most cases of normative contestation. Comparing the impact of two transnational norms on the Association of Southeast Asian Nations (ASEAN), this article shows that the variation in the norms' acceptance, indicated by the changes they produced in the goals and institutional apparatuses of the regional group, could be explained by the differential ability of local agents to reconstruct the norms to ensure a better fit with prior local norms, and the potential of the localized norm to enhance the appeal of some of their prior beliefs and institutions.I thank Peter Katzenstein, Jack Snyder, Chris Reus-Smit, Brian Job, Paul Evans, Iain Johnston, David Capie, Helen Nesadurai, Jeffrey Checkel, Kwa Chong Guan, Khong Yuen Foong, Anthony Milner, John Hobson, Etel Solingen, Michael Barnett, Richard Price, Martha Finnemore, and Frank Schimmelfennig for their comments on various earlier drafts of the article. This article is a revised version of a draft prepared for the American Political Science Association annual convention, San Francisco, 29 August–2 September 2001. Seminars on the article were offered at the Belfer Center for Science and International Affairs, Harvard University, in April 2001; the Modern Asia Seminar Series at Harvard University's Asia Center, in May 2001; the Department of International Relations, Australian National University, in September 2001; and the Institute of International Relations, University of British Columbia, in April 2002. I thank these institutions for their lively seminars offering invaluable feedback. I gratefully acknowledge valuable research assistance provided by Tan Ban Seng, Deborah Lee, and Karyn Wang at the Institute of Defence and Strategic Studies. I am also grateful to Harvard University Asia Centre and the Kennedy School's Asia Pacific Policy Program for fellowships to facilitate my research during 2000–2001.

The concept of territoriality has been studied surprisingly little by students of international politics. Yet, territoriality most distinctively defines modernity in international politics, and changes in few other factors can so powerfully transform the modern world polity. This article seeks to frame the study of the possible transformation of modern territoriality by examining how that system of relations was instituted in the first place. The historical analysis suggests that “unbundled” territoriality is a useful terrain for exploring the condition of postmodernity in international politics and suggests some ways in which that exploration might proceed. The emergence of multiperspectival institutional forms is identified as a key dimension of the condition of postmodernity in international politics.

Why do international institutions vary so widely in terms of such key institutional features as membership, scope, and flexibility? We argue that international actors are goal-seeking agents who make specific institutional design choices to solve the particular cooperation problems they face in different issue-areas. In this article we introduce the theoretical framework of the Rational Design project. We identify five important features of institutions—membership, scope, centralization, control, and flexibility—and explain their variation in terms of four independent variables that characterize different cooperation problems: distribution, number of actors, enforcement, and uncertainty. We draw on rational choice theory to develop a series of empirically falsifiable conjectures that explain this institutional variation. The authors of the articles in this special issue of International Organization evaluate the conjectures in specific issue-areas and the overall Rational Design approach.

International Relations scholars have vigorous theories to explain why international organizations (IOs) are created, but they have paid little attention to IO behavior and whether IOs actually do what their creators intend. This blind spot flows logically from the economic theories of organization that have dominated the study of international institutions and regimes. To recover the agency and autonomy of IOs, we offer a constructivist approach. Building on Max Weber's well-known analysis of bureaucracy, we argue that IOs are much more powerful than even neoliberals have argued, and that the same characteristics of bureaucracy that make IOs powerful can also make them prone to dysfunctional behavior. IOs are powerful because, like all bureaucracies, they make rules, and, in so doing, they create social knowledge. IOs deploy this knowledge in ways that define shared international tasks, create new categories of actors, form new interests for actors, and transfer new models of political organization around the world. However, the same normative valuation on impersonal rules that defines bureaucracies and makes them powerful in modern life can also make them unresponsive to their environments, obsessed with their own rules at the expense of primary missions, and ultimately produce inefficient and self-defeating behavior. Sociological and constructivist approaches thus allow us to expand the research agenda beyond IO creation and to ask important questions about the consequences of global bureaucratization and the effects of IOs in world politics.

The concept of power is central to international relations. Yet disciplinary discussions tend to privilege only one, albeit important, form: an actor controlling another to do what that other would not otherwise do. By showing conceptual favoritism, the discipline not only overlooks the different forms of power in international politics, but also fails to develop sophisticated understandings of how global outcomes are produced and how actors are differentially enabled and constrained to determine their fates. We argue that scholars of international relations should employ multiple conceptions of power and develop a conceptual framework that encourages rigorous attention to power in its different forms. We first begin by producing a taxonomy of power. Power is the production, in and through social relations, of effects that shape the capacities of actors to determine their circumstances and fate. This general concept entails two crucial, analytical dimensions: the kinds of social relations through which power works (in relations of interaction or in social relations of constitution); and the specificity of social relations through which effects are produced (specific/direct or diffuse/indirect). These distinctions generate our taxonomy and four concepts of power: compulsory, institutional, structural, and productive. We then illustrate how attention to the multiple forms of power matters for the analysis of global governance and American empire. We conclude by urging scholars to beware of the idea that the multiple concepts are competing, and instead to see connections between them in order to generate more robust understandings of how power works in international politics.This article was first presented at a conference, “Who Governs in Global Governance?” at the University of Wisconsin-Madison. We thank the participants at the conference, including Emanuel Adler, Alex Wendt, Neta Crawford, Kathryn Sikkink, Helen Kinsella, Martha Finnemore, Jutta Weldes, Jon Pevehouse, Andrew Hurrell, John Ruggie, and especially Duncan Snidal, Robert Keohane, and Charles Kupchan. Other versions were presented at the University of Minnesota and the International Studies Association meetings in Budapest, Hungary in June, 2003. We also want to thank Kurt Burch, Thomas Diez, Tom Donahue, William Duvall, Ayten Gundogdu, Stefano Guzzini, Colin Kahl, Amit Ron, Latha Varadarajan, Michael Williams, Anne-Marie Slaughter, the editors of the journal, and two anonymous reviewers. We also acknowledge the bibliographic assistance of Emilie Hafner-Burton and Jonathan Havercroft.

While neorealism and world-system theory both claim to be “structural” theories of international relations, they embody very different understandings of system structure and structural explanation. Neorealists conceptualize system structures in individualist terms as constraining the choices of preexisting state agents, whereas world-system theorists conceptualize system structures in structuralist terms as generating state agents themselves. These differences stem from what are, in some respects, fundamentally opposed solutions to the “agent-structure” or “micromacro” problem. This opposition, however, itself reflects a deeper failure of each theory to recognize the mutually constitutive nature of human agents and system structures—a failure which leads to deep-seated inadequacies in their respective explanations of state action. An alternative solution to the agent-structure problem, adapted from “structuration theory” in sociology, can overcome these inadequacies by avoiding both the reduction of system structures to state actors in neorealism and their reification in world-system theory. Structuration theory requires a philosophical basis in scientific realism, arguably the “new orthodoxy” in the philosophy of natural science, but as yet largely unrecognized by political scientists. The scientific realist/structuration approach generates an agenda for “structural-historical” research into the properties and dispositions of both state actors and the system structures in which they are embedded.

Recent research on compliance in international regulatory regimes has argued (1) that compliance is generally quite good; (2) that this high level of compliance has been achieved with little attention to enforcement; (3) that those compliance problems that do exist are best addressed as management rather than enforcement problems; and (4) that the management rather than the enforcement approach holds the key to the evolution of future regulatory cooperation in the international system. While the descriptive findings above are largely correct, the policy inferences are dangerously contaminated by endogeneity and selection problems. A high rate of compliance is often the result of states formulating treaties that require them to do little more than they would do in the absence of a treaty. In those cases where noncompliance does occur and where the effects of selection are attenuated, both self-interest and enforcement play significant roles.

International regimes are defined as principles, norms, rules, and decisionmaking procedures around which actor expectations converge in a given issue-area. As a starting point, regimes have been conceptualized as intervening variables, standing between basic causal factors and related outcomes and behavior. There are three views about the importance of regimes: conventional structural orientations dismiss regimes as being at best ineffectual; Grotian orientations view regimes as an intimate component of the international system; and modified structural perspectives see regimes as significant only under certain constrained conditions. For Grotian and modified structuralist arguments, which endorse the view that regimes can influence outcomes and behavior, regime development is seen as a function of five basic causal variables: egoistic self-interest, political power, diffuse norms and principles, custom and usage, and knowledge.

The international system is not only an expression of domestic structures, but a cause of them. Two schools of analysis exploring the impact of the international system upon domestic politics (regime types, institutions, coalitions, policies) may be distinguished: those which stress the international economy, and those which stress political-military rivalry, or war. Among the former are such arguments as: late industrialization (associated with Gershenkron); dependencia or core-periphery arguments (Wallerstein); liberal development model (much American writing in the 50s and 60s); transnational relation-modernization (Nye, Keohane, Morse); neo-mercantilists (Gilpin); state-centered Marxists (Schurmann). Arguments stressing the role of war include those which focus on the organizational requirements of providing security (Hintze, Anderson), the special nature of foreign relations (classical political theory), territorial compensation (diplomatic history), and strains of foreign involvement (analysis of revolutions). These arguments provide the basis for criticism of much of the literature which uses domestic structure as an explanation of foreign policy, in particular those which (such as the strong-state weak-state distinction) tend, by excessive focus on forms, to obscure the connection between structures and interests, and the role of politics. These arguments also permit criticism of the notion of a recent fundamental discontinuity in the nature of international relations.

International institutions are a ubiquitous feature of daily life in many world regions, and nowhere more so than contemporary Europe. While virtually all would agree that such institutions matter, there is less agreement on exactly how they have effects. This special issue brings together European Union specialists and international relations theorists who address the latter issue. In particular, we explore the socializing role of institutions in Europe, with our central concern being to better specify the mechanisms of socialization and the conditions under which they are expected to lead to the internalization of new roles or interests. Drawing on a multifaceted understanding of human rationality, we consider three generic social mechanisms—strategic calculation, role playing, and normative suasion—and their ability to promote socialization outcomes within international institutions. This disaggregation exercise not only helps consolidate nascent socialization research programs in international relations theory and EU studies; it also highlights points of contact and potential synergies between rationalism and social constructivism.For comments on earlier versions, I am grateful to two anonymous referees, IO editors Lisa Martin and Thomas Risse, as well as to John Duffield, Alexandra Gheciu, Liesbet Hooghe, Peter Katzenstein, Ron Mitchell, Frank Schimmelfennig, Martha Snodgrass, and Michael Zürn. More generally, thanks are owed to all the project participants for numerous and valuable discussions on the themes addressed in this volume.

We develop an empirically based conception of international legalization to show how law and politics are intertwined across a wide range of institutional forms and to frame the analytic and empirical articles that follow in this volume. International legalization is a form of institutionalization characterized by three dimensions: obligation, precision, and delegation. Obligation means that states are legally bound by rules or commitments and therefore subject to the general rules and procedures of international law. Precision means that the rules are definite, unambiguously defining the conduct they require, authorize, or proscribe. Delegation grants authority to third parties for the implementation of rules, including their interpretation and application, dispute settlement, and (possibly) further rule making. These dimensions are conceptually independent, and each is a matter of degree and gradation. Their various combinations produce a remarkable variety of international legalization. We illustrate a continuum ranging from “hard” legalization (characteristically associated with domestic legal systems) through various forms of “soft” legalization to situations where law is largely absent. Most international legalization lies between the extremes, where actors combine and invoke varying degrees of obligation, precision, and delegation to create subtle blends of politics and law.