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Regional powers and their strategies: empire, hegemony, and leadership
Published online by Cambridge University Press: 01 November 2010
Abstract
Regional powers are often conceived of as ‘regional leading powers’, states which adopt a cooperative and benevolent attitude in their international relations with their neighbours. The article argues that regional powers can follow a much wider range of foreign policy strategies in their region. Three ideal-typical regional strategies are identified: empire, hegemony, and leadership. The article is devoted to a theory-led distinction and clarification of these three terms, which are often used interchangeably in the field of International Relations. According to the goals pursued, to the means employed, and to other discriminating features such as the degree of legitimation and the type of self-representation by the dominant state, the article outlines the essential traits of imperial, hegemonic, and leading strategies and identifies sub-types for better classifying hegemony and leadership.
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References
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55 For an identification of hegemony with legitimate leadership see just to cite an example, Clark, Ian, ‘Bringing Hegemony back in: The US and International Order’, International Affairs, 85 (2009) pp. 23–36CrossRefGoogle Scholar . The undistinguished usage of hegemony and leadership goes back to the theory of hegemonic stability (see section 2.2.1). Hegemony is used as a synonym for empire, among others, by Wallerstein, , Politics of the World-Economy, p. 38Google Scholar ; Lake, ‘Leadership, Hegemony, and the International Economy’, p. 469.
56 See for example, Rapkin, David P., ‘The Contested Concept of Hegemonic Leadership’, in Rapkin, David P. (ed.), World Leadership and Hegemony (Boulder, Col./London: Lynne Rienner, 1990), pp. 3–4Google Scholar ; Münkler, , Imperien, pp. 11–16Google Scholar .
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63 See Triepel, , Die Hegemonie, pp. 39–40; 148–149Google Scholar . The idea of self-restraint with reference to hegemony has been adopted by several authors: the role of institutions in signalling strategic restraint is underlined by Hurrell, Andrew, ‘Pax Americana or the Empire of Insecurity?’, International Relations of the Asia-Pacific, 5 (2005), p. 173CrossRefGoogle Scholar ; for an analysis of the difficult situation of hegemonic states in managing a role conflict between their nature as great powers (and the corresponding inclination towards unilateral action) and as ‘responsible’ hegemons constrained by the roles they have established (‘paradox of hegemony’) see Cronin, Bruce, ‘The Paradox of Hegemony: America's Ambiguous Relationship with the UN’, European Journal of International Relations, 7 (2001), p. 105CrossRefGoogle Scholar .
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65 ‘Benevolent’ and ‘coercive’ are normative terms. However, since they have marked a broad debate, I will adopt them: ‘If it is impossible […] to purge concepts of their contested appraisive dimension, it is crucial that this dimension be explicitly acknowledged rather than swept under the illusory carpet of objective neutrality’ (Rapkin, David P., ‘The Contested Concept of Hegemonic Leadership’, in Rapkin, David P. (ed.), World Leadership and Hegemony (Boulder, Col./London: Lynne Rienner, 1990), p. 4)Google Scholar . But what is really of interest for this study is the question of ‘whose goals are pursued by the hegemon, its own ones or those of a group of states?’ The answer to this question, as we shall see marks the difference between hegemony and leadership.
66 See Kindleberger, Charles, The World in Depression, 1929–1939 (Berkeley: University of California Press)Google Scholar .
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70 See Snidal, ‘Limits of Hegemonic Stability Theory’; Lake, ‘Leadership, Hegemony, and the International Economy’.
71 Snidal, ‘Limits of Hegemonic Stability Theory’, p. 614.
72 See Lake, ‘Leadership, Hegemony, and the International Economy’, pp. 460–2, 469–78.
73 Lake, ‘Leadership, Hegemony, and the International Economy’, p. 469.
74 See Bussmann, Margit and Oneal, John R., ‘Do Hegemons Distribute Private Goods? A Test of Power-Transition Theory’, Journal of Conflict Resolution, 51 (2007), p. 89CrossRefGoogle Scholar .
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78 Ibid., p. 31.
79 Ibid., p. 36.
80 See the article by Dirk Nabers in this special section.
81 Ikenberry and Kupchan, ‘Socialization and Hegemonic Power’, p. 286.
82 Cox, ‘Gramsci, Hegemony and International Relations’, p. 171.
83 See Ikenberry and Kupchan, ‘Socialization and Hegemonic Power’, p. 287.
84 See Cronin, ‘Paradox of Hegemony’, p. 112; Hurrell, ‘Pax Americana’, pp. 172–3; Hurrell, Andrew, Hegemony and Regional Governance in the Americas, Global Law Working Paper 05 (2004)Google Scholar ; Ikenberry and Kupchan, ‘Socialization and Hegemonic Power’, pp. 285–6.
85 Hurrell, ‘Hegemony and Regional Governance’, p. xxix.
86 Ikenberry and Kupchan, ‘Legitimation of Hegemonic Power’, p. 55.
87 See Snidal, ‘Limits of Hegemonic Stability Theory’, p. 614; Joseph, Jonathan, Hegemony: A Realist Analysis (London/New York, NY: Routledge, 2002), p. 129CrossRefGoogle Scholar ; Pedersen, ‘Cooperative Hegemony’, p. 682.
88 Ikenberry argues that three kinds of hegemonic order exist: the first corresponds to what I have defined as empire, since it is based on coercive domination; the second displays a certain, sometimes minimal, convergence of interests and is held together by the provision of useful services to subordinate states (security protection and access to the hegemon's market); the third, defined as ‘open hegemony’, is more benevolent and acceptable to subordinate states, since the hegemon's power is restrained by rules and institutions. See Ikenberry, ‘American Power’, pp. 196–7. In his article on ‘Cooperative Hegemony’, on p. 682–3, Pedersen distinguishes four possible strategies for regional powers: unilateral hegemon (strong realist element and low institutionalisation), cooperative hegemon (soft rule and high degree of institutionalisation), empire (strong realist element and high level of institutionalisation), and concert (division of privileges and responsibilities among a group of great regional powers). In his model of cooperative hegemony, on p. 686 Pedersen identifies two further ideal types: The offensive type is centred around the realisation of advantages of scale (access to markets in the region), advantages of inclusion (access to raw materials), and advantages of diffusion (propagation of the hegemon's ideas). The defensive type of cooperative hegemony, in contrast, primarily aims to stabilise the system. Hurrell identifies three models for the hegemonic diffusion of norms and values: ‘progressive enmeshment’ (developed by liberalism), based on emulation, learning, and normative persuasion; ‘hegemonic imposition’ (developed by neo-realism and neo-dependency theories), based on coercion and, as the name says, imposition; and ‘coercive socialization’, an intermediate model combining coercion and consensus to induce the incorporation and internalisation of the hegemon's ideas, norms, and practices. See Hurrell, ‘Hegemony and Regional Governance’, pp. xxv–xxvi. Other classifications of hegemony relate, for example, to the actors exercising it (collective, singular, coalitional hegemony). See Clark, ‘Bringing Hegemony back in’.
89 See Ikenberry and Kupchan, ‘Socialization and Hegemonic Power’ and ‘Legitimation of Hegemonic Power’.
90 Wendt and Friedheim, ‘Hierarchy under Anarchy’, p. 700.
91 See Ikenberry and Kupchan, ‘Legitimation of Hegemonic Power’, p. 56.
92 See Pedersen, ‘Cooperative Hegemony’, p. 682.
93 Pedersen, Thomas, ‘State Strategies and Informal Leadership in European Integration: Implications for Denmark’, in Heurlin, Bertel and Mouritzen, Hans (eds), Danish Foreign Policy Yearbook 1999 (Copenhagen: Danish Institute of International Affairs, 1999), p. 91Google Scholar .
94 Ibid.
95 See Ikenberry and Kupchan, ‘Socialization and Hegemonic Power’, p. 287.
96 Ibid.
97 See Pedersen, ‘State Strategies and Informal Leadership’, p. 91.
98 See Ikenberry and Kupchan, ‘Socialization and Hegemonic Power’, p. 287.
99 Knorr, , Power of Nations, p. 7Google Scholar .
100 Ibid., p. 8.
101 In this case, I will not follow Knorr, who argues that ‘Noncoercive influence, no matter how one-sided, can bring about leadership but not hegemonial supremacy’. (Knorr, , Power of Nations, p. 24)Google Scholar . Since what I have identified as the prominent feature of leadership is the pursuit of common interests and goals (in contrast to the ‘one-sidedness’ of hegemony), I believe that one-sided non-coercive influence should be subsumed under hegemony, thereby admitting the existence of a cooperative, ‘soft’ form of hegemony. In his book, Knorr himself later emphasises that the essential features of leadership are non-coercive influence and the ‘mutual flow of benefits’, thereby excluding the hypothesis of one-sidedness for leadership.
102 Ikenberry and Kupchan, ‘Legitimation of Hegemonic Power’, p. 57.
103 Ibid.
104 See Ikenberry and Kupchan, ‘Socialization and Hegemonic Power’, p. 290.
105 Ibid., ‘Legitimation of Hegemonic Power’, p. 57.
106 Ibid., ‘Socialization and Hegemonic Power’, pp. 290–2; ‘Legitimation of Hegemonic Power’, pp. 57–8, 65–8.
107 Ikenberry and Kupchan, ‘Legitimation of Hegemonic Power’, p. 58.
108 Of course the distinction between these three forms of hegemony is ideal-typical and tentative: in reality dominant states most probably follow strategies lying somewhere between the three kinds outlined above. What will be relevant for analysis, therefore, is a ‘prevalence’ in the use of coercive/threatening, coopting/rewarding/inducing, or convincing/persuading means.
109 For a critique of this aspect of the theory of hegemonic stability see Wiener, Jarrod, Making Rules in the Uruguay Round of the GATT: A Study of International Leadership (Aldershot: Dartmouth, 1995)Google Scholar .
110 For an overview on this early literature see Paige, Glenn D., The Scientific Study of Political Leadership (New York, NY/London: The Free Press, 1977)Google Scholar , especially chap. 3; Stogdill, Ralph M., Handbook of Leadership: A Survey of Theory and Research (New York, NY/London: The Free Press, 1974)Google Scholar ; Goethals, George R., Sorenson, Georgia J. and Burns, MacGregor James (eds), Encyclopedia of Leadership (Thousand Oaks, Calif.: Sage, 2004)CrossRefGoogle Scholar ; Northouse, Peter G., Leadership: Theory and Practice (Thousand Oaks, Calif.: Sage, 1997)Google Scholar .
111 For an overview, see Northouse, , Leadership, pp. 32–73Google Scholar .
112 See Burns, James MacGregor, Leadership (New York, NY: Harper and Row, 1978)Google ScholarPubMed .
113 See Northouse, , Leadership, pp. 130–158Google Scholar .
114 Goethals, , Sorenson, and Burns, (eds), Encyclopedia of Leadership, p. 870Google Scholar .
115 Northouse, , Leadership, p. 3Google Scholar .
116 Knorr, , Power of Nations, p. 311Google Scholar .
117 Ibid.
118 Ibid.
119 Young, Oran R., ‘Political Leadership and Regime Formation: On the Development of Institutions in International Society’, International Organization, 45 (1991), p. 285CrossRefGoogle Scholar .
120 On the distinction between ‘transactional’ and ‘transformational’ leadership see Goethals, , Sorenson, and Burns, (eds), Encyclopedia of Leadership, p. 870Google Scholar . The focus on a commonality of gains between leaders and followers could be misleading in defining leadership: in fact, a state following an intermediate – or soft – hegemony strategy might also reap joint gains with its subordinates. As the theory of hegemonic stability tells us, subordinate states take advantage of the collective goods provided by the hegemon – and gain even more than the hegemon itself since they act as free riders. But this does not necessarily mean that they willingly follow the leader in the effort to reach common goals.
121 The theory of hegemonic stability, for example, is focused on the capabilities possessed by the hegemonic power and on the provision of public goods. In this context, the secondary states are merely taken into consideration as free riders or, as Cooper, Higgott, and Nossal point out, ‘to ascertain that such states do not possess attributes of power quite like the hegemon and, therefore, can be safely ruled out as “contenders” or “challengers” to the leading state’. See Cooper, Andrew Fenton, Higgott, Richard A. and Nossal, Kim Richard, ‘Bound to Follow? Leadership and Followership in the Gulf Conflict’, Political Science Quarterly, 106 (1991), p. 394CrossRefGoogle Scholar .
122 See Cooper, Higgott, and Nossal, ‘Bound to Follow?’, p. 399.
123 Cooper, Higgott and Nossal, ‘Bound to Follow?’, p. 408. For an interesting analysis on the responses by small regional states to the power of the dominant states (regionally and globally) see Acharya, Amitav, ‘The Emerging Regional Architecture of World Politics’, World Politics, 59 (2007) pp. 629–652CrossRefGoogle Scholar . See also, Schirm, ‘Leaders in Need of Followers’.
124 See Wiener, Jarrod, ‘Hegemonic Leadership: Naked Emperor or the Worship of False Gods?’ European Journal of International Relations, 1 (1995) pp. 219–243CrossRefGoogle Scholar .
125 Burns, , Leadership, p. 19Google ScholarPubMed .
126 Ikenberry and Kupchan, ‘Legitimation of Hegemonic Power’, p. 57.
127 Instead of endogenous ‘learning’ we should, however, talk about endogenous ‘adaptation’. Learning implies an active, conscious process, while in this case we are dealing with an almost automatic and unconscious reaction to a given situation or context.
128 Cooper, Higgott and Nossal, ‘Bound to Follow?’, p. 398.
129 Pedersen, ‘Cooperative Hegemony’, p. 683.
130 See Tucker, Robert C., Politics as Leadership (Columbia, Mo/London: University of Missouri Press, 1981), pp. 15–18Google Scholar .
131 Tucker, , Politics as Leadership, p. 15Google Scholar .
132 Wiener, ‘Hegemonic Leadership’, p. 223.
133 See for example, Wiener, ‘Hegemonic Leadership’, pp. 225–6; Cooper, Higgott and Nossal, ‘Bound to Follow?’, p. 398; Rapkin, David P., ‘Japan and World Leadership?’, in Rapkin, David P. (ed.), World Leadership and Hegemony (Boulder, Col./London: Lynne Rienner, 1990), p. 196Google Scholar .
134 Cooper, Higgott and Nossal, ‘Bound to Follow?’, p. 398.
135 See Pedersen, ‘Cooperative Hegemony’, p. 683.
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