17

Foreign Policy

W A L T E R CARLSNAES

- . .- - -. c h s o ~ wan m b l i z h t 6 e - ~ b 0 0 . ~ r n ~ mi'

palm& TO-mn rradao mday, a quslls of a cm- tlflY later, both of thmc charactcridooa d l ucdwblsdly raise mom thm s few puzzle4 eye-

. brow% Tnc Rnt due m is msplaeed ( i f a d r m w guarded) 9Wm about thc hnue disciplnsy &I-I ofthc field: and the remnd besause if

ofmspoli td- %is not: say, ~OWCYCI, tbl the d y of forpip POltcy -* *OYI U1 UIdlspUnd pm- ~ d e m u c i k w i ~ I R . l A t s u c u s y s r a r e a f ~ i S d u c a t l s a i t i n p t ~ ~ 6 a i l ~ ~ f ~ ~ policy rascarcbw, during ths prsf wcnfy-five

ycars ,@masoLdate thd lr f i a lda the~o~p ermisioned lmleatl* Wrprmica has to P oona~ds- .blc dew h m c one d kledhim and do&- Pivcness~a~&IanYm60~whnh~mtr

llltsnsted rn mkma& pdrtrcs, not f-gn p o w r.weadf 19W It) Prrhaps of cplal agnr- ficmm. forngn pobq d y s l s (bcnuduea serm UI haw lost hean. 11- as a IJntsb vholarnotcd rn

HANDBOOK OF I N T E R N A T I O N S

mwh& it hrs become pnaoluoaistic, eima sub- INTERNATIONAG klAno~8 AND FO~UGN sumcd or replaad, by other appmaches m d m - POLICY ANALYSIS: A SHORT sem&tg rmd explaining ststc bzhinn' (White, J ~ n x a a u * L EL5TonY

I I

'anwqxa lo a'L!mqadmoo wql aqlsl ahgwsn1I! aq OL s! oaq UOpTqm aql '~qq'~h8 omds aql wn!~ 'r~l m payFap! Xqlod uU!?ioj 30 Lpqs oql T+ sang +adsad mwoq-~301 30 md4 moj aql 30 qm 30 saldmsxa $mmm01d swosfp or poooard MOU ll~gs I '(OPZZ 4661 ?PwM !91-PIZ'6-~51 :0661 'ql!mS pw s!lloH f091-E81 :P661 's!llaH !0lZQ61 4661 !FTl!ZQLE:5661 'oWosls=+S)(!'LI -em ncymq Syonq aql q mrpeolddv Lq10d I@IOJ JOJ soopmfldm! naql mpmmns MOO

W3 OM SlO!%?allp OM) 1Slql J0 s!SBq aql q 'w pow p"Lqlqva-aul PJO ooumy e

se p!"m s! uovm mpufpm qon~m nopm -W PWlll630 UUOI lmasJ0 SUUSl m Dar?D=ll

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=wqe Pa-ald W!V IpJP01moo w am rm~ plmqmm mryd mwn* v 30 mw Kq LP w -om axam mas16 MB m II" mop +w!P WOI~=a~!,+a ?¶I rm(-¶ PaPF~ as10~ -~*~)~~~~op~eom~~pw

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SFF h3I'IOd

la?!ssrl[a lql 01 Zmpoodsa~~m '.apmm, eq mog 10 .aprwo, eqlmog ~awa soowe +am pw ma% wmq oo snuoj q .araq a[r(8lrsne am aroqa Ow '10gd~1am loarazrn e 8msn 'anal .ahurn

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mloq lma~ am '.ms!loq, w .=?mnpufpm, oaam &mOgarn am m smll m ~asseldxa firs ... ,- -- SI Lql IQ3W R! OOglU!lSfp 0Bkl0, S!UJ '(Lil :8661 ?n!'mw) .aw9w 8m3npolda1-3los aql 30 sap Sqlona LlAols 9% mag 10 !Dopa pnpy -m30 Wmm '%3%a a¶, n! @UO D! Sml =¶!a ms!umnLp 'pnmq m sm?)si(s ~!30s lo snoumnnol 3mra.b am mryn 10 uo~smb

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v&MB FW 30 anss! V ole 30 SIN 19, 4 l! W!P WIP dnmpd a¶ sormro3nam~~olemse~pxon psormm~lWPs8p8a~~~'mp,~ sn paSalW9 as a FWWp &!Id S3OWlW~A'(~ZZZ :S661 bAV'J0sp91 ~~~o~~mwqd~o~~ ~)~Royomm!%~o~-a~w~ wm . m/rues!amqad~ ~soo~~~~~~ owvZZ%Em 'S~YBHP-) .bno~ -w-==1* &nod WOueVaq swo 3!1qnd~-ngolpons

rdlplo~nn~s~~s.~~od/oyo04~~~ ~p"9wteqlKw~mam?d~ ~osaonwsaJlmm~~amon\/I.%-J~ .%Cd@"O)Jo~*m3o~nI lnoqe 8W.U m ?lFQm!P mplDJ * s! ulra. -J0 . PPI30

MBrs~!l'P~~mw7~)so=4

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-o?pl'hm!~d!os~-qns s!1!~doww3arda3o1s3!~m8omcC= s &a i-iwmlsomle am

n pgsWl .(oz :c~861 Vws n! h) -I -~m19,~~~ap)~rs?BBJ~ml~~~P!Q -m s! '('nolp pwm. se p??am? moo ssq

-30 p")smW 19, Wl m!mlo -nm~aW,~~~wm-mm~~m V~PWU~~W~~P'T'PL~I -4 smll- 'N -1 "mDapW

Cwwm A~~norcars m F'OP~W m rtuir a d for security @ b m b k z , 1995:

Poucv AMLYS18 79-129, e. also Lap* 1995 130-76). 11 also cm~haascp the mlc of the mlarirY of lhe inter-

mlisln mntt&aswalhal lsCs~, thm"fe 0mcE StrUphuaUy- mlrmad a y m m m hw p o k c y ~ ~ ~ ~ ~ t & l l D a d U l K l h l t m O S t mnwnpsraq kmm o f q l i m kill b It is r&1thocaselhsrdesrpatlrcmarave~wbieb nmsalism has cxp&enied as a rmsequenco of i s ~ i m b i i ~ t h a m ~ ~ m a p l a b t h o d ofthe Cold War. it omdnvs not mlv to be 4n.e and

IG an m w k - - - d o n snd hen&xhat nMtiing

G.... ~ - -~ -~ , .-~-- However, them an ditrCrent var& of

(neo)nalum, of which a la^ thc fouolving play vnporra~tmlcs in the malsmporq dcbte. P h of al l a di&&rn nhould be made bet- 'v oive' aod 'dcfmuive' (Wder, 1991: 11-12; sco also Lynn-Joncs aad Milk, 1995: +xu; Rose. 1998). huin. t h e m dccsdc cranestve n e o w u " " ' a . . t & ~ + f e d h y ~ O t r n M m u , who hap argued that Pvtlseas the Cald War, h a d onbipolsniy, rmlitary balascc snd D*ICICBT w q c m , pmduced pcsce in Bumpc for 45 y u r s , i B d e r m r e r x l l L - ~ m t b c ~ o s a l visdom - ~wfulce hvs &le(enous &ens m ihe

the vi& that iD90far as chs hvmarionsl invariably Ioatas coniliot snd aggrusion, ntional sag,srrMmpcllcdtopawothnwsstnnqlics

offcmive mpabilitic8 and pe&n;ed inmxim (Mass. 1995; Walt, 1995: see also mC mk4mm in &os* 1998: 146.1% 4). Tbapistueaasnadhseis ~ ~ n o s o ~ n e ~ n i n a m o n a l ~ c a n

forago policy ispuimdy formed by i s place in& iaema6m.d and in pMi& by aS mlatiw musial mwrr C B O B ~ L L ~ C ~ . Ha-. M d hcFc me -- =. . - ~ ~ . ~ ~

d.pslcsl mp1 of rhis qpmach &to the fore, they .Lao argue iha( @act ofsystCrm0 factors o. s rnvm muauy's policy wi l l be iodha and &OX -I= ma0 ncorml~G b a v ~ a~lrmal since wuh fx2om csn sfPcct policy mly thrmBh huewm& variables at thc mil &I Ros+ 1998:

146). l%is view is clearly W n W to the whole .teoordoffensi~enwreal'i b5nmcIassioalreal- uta a h fault drfcnr~vo omnal~m, d y becausl n is clslmed that Ihcir @C argument faiLs m uolavl much of amd fomim oollcv hnhavirnn - - , - - - - anh hmy needs m be augmented by the od hoe mlmdwt~on of uoit-level vvaablss (see, for -. ple, SchweUer, 1996: 114-15; Zrlaria, 1995) As a cmwkmce oftha stren ao mlc of both m d b pmdmt (syrurmc) and tnrcrvctllog (domaw) mables, rescarrh mhm nmelarstral mhm u madv eooliMd in the form of themearalhr -. .. . . .- i m m h i w a n ~ - i d d y rupdcmn~d by c.& ttrf.eblal M s - thst nacc how LK- facmrr mmbur m for- L e pamcular fango pohc~cs at sam (ROB* 1998 153). M e b spcaftdlv, rh. has y z M c d a r u c l l v e ~ w ~ ~ 8 ~ s t U m ~ ~ o f h a w w nelh renMy grcu powea - wpeclally the Unird Sates, Ihc Sonn Umon and l3.u - have rcamd n

Neolibaral imlihrtionialism Although a a gmaally w e d as au appmach to lb aoalysis of fomkn ~ C Y , it IS obvious that lhe r v ~ c of focus

Mionalism in as rclrvjor to tbC mdy uf foreign policy as are reahsm ~domnsl iPm in the~rvariovs eonfiyauano. Indeed, inoofnr as b s sebml of thouaht ir wsited as an nhcmative to r d i b n r l - ~

the GieW ewf som, as lhe only om), a also prm P N enrails m alvmanve 4 p d m foreign policy d y s i s (see Baldwin, 1993).

Neolibml urimtianalism is a itrucrural, ~ y s P m r c and 'mpd-' view fmsumc o f l b sune rW..as that ~ c o n r t i N t e 9 such m l 0 m . h 11 rr. - -- -. assumes that states are the pnm@tes&tm in me 111Wcdid wstuw thatthw -e bke epmwc

h&ndbl rppoach to forrisnpolicy ;malysis? Very h e Y , the following svhaeas bnh dsp1 pod neolibmls new fmeien mlicv-makin. a - - -~-., - -- of eouwinsd choice by purpcuvc orabca, me lam lmdsrsmd this a m m i n t nor pnmadly h bcrmr of thc hcgwatiom of p u n s upb i l i da facine

~ ~ w i n l r l t fm~nsuoecRdloty and hence rccunty can oevcrtbclart be p n v c l y e W by

me ~ ~ ~ ~ l o n a l mwuon of - .- man rules in +hi form of funohwal reeimcs. me nsult is that mvmsUonal cw+n &marchy " possible in the pur~uit of giwa sate p ~ ~ C m s c s (Oye. 1985); and h catam w i G c fraavu

ON POLICY 337

Organizatio~l pmeps opproochs W l c both rralism md nmliberal i a a r i D J h a w o h l r z o r a l w h c n o f a s m e m k ! & i f r s c i n n p o b o, call ea p b e ana lower level of analyrin as we4 b which the s- UaI F m r dnvlllg foreign policy bchaviuur h m: external but lnOcmal to lhcstate As armed hv l.lnlli. , and Sm& a 'mpdmd approach% dw lubsys- l m c lsvel ~ahs focuocs on me c a d rclauooshm bdvma me state and ta agcnem - how the h$r : confamtorhcdcmandraf~farma-labmen' agmciffl md in&r~dualr; on rh. lovd s Ptrunoral vim would imply that iodnidLzl J<.rsio~- da not aa indepndmly but gmcnrlly ro cmfmmhy W l t h the dictat*l of the SgmClcO 0mploYng ulem. (HoU'B and Sndlb, IW. 8-9,1%2M).

T h e b e ~ o f c ~ h a s b c c o m l n a w n a s ~ OWuhIinnal pmces~ q p o s c h Na a c e the 4- brsred publt;atlon Of AUisoo's 6ssmco ofUecuion in L971. Wnib no8 in omanhmonal thmrv C

- --,. -> foous*l on ~W not in-tzrms ofillmmmd. . , .. , , rationality bin m zstpuo of I& e q p m a ,. limctiolling em3rding Wre& pa- of'&& . : iow, d l y rcfe~~drOw s t d a d , duns. Tbcmostpmminent r e c a t m ~ r o h ~ . d @ ~ 01-ti4 them" has been "ha in f&;*ii- ,

gmMs aod on h mle oidecia~on-&&= eudcularly small mups - in &IS proma-%has been thecase. for cxaqle, i n m wmlmpnii3- u h 'm. md going focttsku beyond m h g h e ~ntcmlav Janis's noton herYan of

~ - l l o d cdanrs and mdiradon in fmign policy dekimmking(Bwsly, 1998:'t HartnaL, 1997: +la, 1995). This t)pe of nsrmch pohto m tbc applcabllity of recent 0-onsl thsory (W rg.. arch and o h 1998), inpmcula, the sck brsted (if not anrirelv manmarent\ distcnction

rype of mm -&mpiete &in boih d - w ~ ntokml fhki~& and h e l w e of 'qpuopriap ow', whlch - as z U h n and Uikow have elauned in their recant and sub- t h ~ i n . of he --- -- - orsaniz8uonal model - is V(BY much at thc M ef the o r w i z a h d pmfces Sppraa& m GG makmg (AUison andZelikow, 1999: 146).

Cognitive and psyohoIa11~~111 ODuwadies Although rcscarch on thc cagGuvc andpsyeholog- lCpl ChMCMLbeS of mdlvtmYI dCCm-- has heem newad ullh masrdenblc scqodsrn m m e quarmr, ihu has ID fad been one of th

past -of .anw i&. ~r-em&l+ Ehdm, (Kahnemsn and Tvemky, 1979). holds rhal 1997; Reoshon and Larson, W1; Ro&, 2DDO; h s i o n - - 9 - ,? idmI@' - &Uih S i i and IIudsan. 1992; Sylvan and Vws, 1998). fboicca m in Imm of msnrmrmg lhcu axpcctsd A. -inst h e r a t i o d choice assumation - utilih. far aasumsd in rabonal ohalcc modsls) bu2 -.~ -~~~

-on to both nalirm md n m l i b d &IFm- nrh&. 'wh re& m a so-called nfewcc pin t atam-rhatidivi&akmin~&~i~IcmmHmded (oftoo the stsbVs w), in vrms of which 16R. .re and adaptable m the dictati of 8inm;sl chsnge Mk- wilh rcspcct lo gains. mdnt.BCcaccqlsnl md wnsfraiw. it L baredon !he cm!nry assump wid^ nqst to lows 1996: 345: Us,

\ tion that they ate to a mdded l l e drgror -- 1998; LN)5 1997: UcLkmoft. 1998). h otbs n o u s t o s u i h e f 6 s r s d u c t o t h & ~ y m g ~ , .umds, h c h that pcopb are mom d t i v e to the mv tbcv mrara infomation as well as a aarm and lasses from a dvon refumse F&IU tban

Fmm beviog itn rad& ye&fonerd ma- m& lossca rclsuvs to gains (levy, 1997.89). tiany a~ thc Pludy d d k and &mi id C- F i , a rcvlcw of mgnilivc md ~sycholodcd and - s p s o ~ on W c a of wpitive ~ o a - approaches to for& policy aoalysL would be

mcmplele whhom Iollcbw upon 'he rssue of ~ ~ . i n E l u d i r g ~ ~ ~ d i S S O ~ a n c ~ . ~ f , ~ , , ~~~~~~ 1995: SZ), pydnkical I ~ ~ f ~ b p o h v . llc ~ h c r c i s s o b - a 'codrive mhmonon in !he : Stan pwhgxnfm-'sdIhc aaDt ovalap

- _ .. rather mSn indi- thsT1. F m l y , . .. , . . md Jack S. Levy has mitten an exeellmt owmmv of f i a t of k have h a lieu and h a - taking heed also of h.

19Ei&l o o h hdudc W Lrnon'9&dy gbbulsliEad by Allison in I& imdg of thc C u b of b c s io the rttiDdc of mjor Amaim aiis, Is o k anumcd to be clo&y slmilP bI tbs docisimderr bawm I944 slld 1947 (Lamu, oxmrbdonal? o d e u m w i w (and 1 9 8 5 ) , h e r m m . n c a t ~ o f C a l d W a ~ ~mohmcamntLtrdwIthi%nkpnmigdmm

-hew- tbc IWO smmmvrra i h s c m 199X a!dw-&m¶han a $-vim oftha

beha6.u in soviet i ~ r r i & ~ l i l y , id L ~ o s a n ' t - ~ . &io%. ergs pla~ invp lvcd (1987) w@ve smdy ofmD Cata a m d m i s ~ n . b a r & b g game3 and fompstmg pmferrmoes, it Y m Foong Khongonga (1992) mdy ofrhc mk ofhip d m not aim to u p W in tamr of 0-d tQical d o & in k d g n polie). ~~ owpuw M m me M s of the acOlal 'pullmg nod and MatUmCntw's(1994~~~~orkonL.tmAmPnea hwLDnmatiswlitirs'(AUlwDandZdkow, 1999' - p~ ~

YL Vacmaper'n n&mid The World in h i r Muds (Vsmbqm, 1990). d i c b mt only pmvida n ~ w r f u l a m m a r y o f m p h o f 1 6 0 w o k d o n c

rhis -by the cod of me 19808, b~ h P P O ~ a and muldcaural fmnc- w o k f a r ~ ~ m ~ r n p i t i o n and &rn i. I%& policy bxiswrrmalinp. ~ ~ ~ ~ & ~ ~ p e d O d ~ s b l m a a ~ f h o ~ I h C ~ sctahtics of leadashp - beW% monn6m, dcd- nonal and ~ t y ~ ~ - a f f ~ ~ ~ of foraim ==eivd &OR a

& i i t o r n r a t m n a l ~ o i c c t ~ ~ k s r 5 ~ m a i . dm& is to explain d y dccisicms a h Ieke the form of 'multnoo' M kdnet from what my ~n~noraaomaDdcditdagthisnotintaaeof

, ;.t~bll&k& and i w m m but ,sem:ra- ( & me& p m u and pqfDllpaace of ~y

. n d ~ w a f t h c r c ~ n m ~ o n A l h n and W o w , 1999: 256). Thc io p W is o o t i n i b c ~ p a m D n l b u t ~ n U i c , ~ f a r s s t k a e u n ~ l v a f m t h e v ~ g ~

N POLICY

Appmachm B a d on 4 ~o*al-InsliWnal Perspective

Sonnl comtmcdvirm Althouph '-a1 eon. smctivism' (or pimply 'w~huniviom'), l b 'radonal chore', is crsen6Plly a mm-rhcontial Suodpoht ill l h ~ S W of mid phena- and h m a is foudaknal to politi;al aoalfi than W i a apedic snalfical or ' M u l ' BPW MWn U(, it wll has - following mwt mashunid scholar, (Adla, IPM: Ihonr, 1995 olmmi. 2000, HopZ 1998; Rugsic, 19JR; w.& 1999: 31) - be used lo d c s ' i a mom or lens

inclvdins fomgn policy ansly& ~IAlthouph n bas , RI

mbemt and omm@ng body of tho@l in IR, b rwrs pins ba& to Gmdus, Kmt and Hegel, aod ' was embalded already in a m of Gx classic coo. .-, m i m by Karl DeuLsch, b s l llaar and in pi. 6cuk thc EDBlish ScM (Bull, 1977; Dco* 1954: I&, I%, 19% aw alga Donne, 199% H is nevamdens regarded by most IR scholars t&,y as a rslwvc newcomer to the subdiscipline; rho tam itself was fist m m & d lo IR by Nic- O n u f s s m l l y as 1989 (Oauf. 1989). ~ t k spma

lime, bowcva: it has quicWy raabllrbsd i W S e P s rhc bc mam-t~. 3 - s p a i v e p UY dtsim?%%$&i a (set Katmdn. l996 . ~camOcamo~d wsndr.b , lhis vohrmc). Tbisisoatibcplaostogohdothedna~lnafsacLl

~ e i \ . i r m , ~ t h r p i s & ~ e b ~ m 1 1 1 . H o n d b o o l ( ~ ~ 5 , a s w c l l s s ~ ~ ~ t - Howcva. it is fruitful to dish@ W -. ri.Uy . LBuma' . aod 'h* vsslon, pmcc '-0:. - i n c 0 r p 0 ~ - rama uaearily - rn ioaarringb broad rpsctronofncw. The fo-is pdntcsrmdally rspresedsd by Wad1 in h. rrant tnati3c on mDmsllrmal politics (WmJt, 1999), but also by oothr 'modama' camwinnp, kh-. Emmuel A ~ M ~ ~ ~ ~ I ~ ~ ) , jeff Checkol (1999), John Ruggie (1998), Petsr ~ ( 1 9 9 6 ) , ~ R i r P - K a w ( l 9 % b ) slld Manba Finoanorr (1996b). F o h m d 'thick& vsaions nmge fmm w h Adls tamv 'mdanist h@imc' (or 'nrkniemd') ccam,,& nn* sucb M Frimd, Kraochd (1989) and Nicbolas d h d W(1989) , blow, m me tbc ' dbmive ' group to be

mrb' s"& a,

\i Tnis leaves us bus witb mohlbuuuos to the sudy of f m g n policy kom widin the 'mademm' type of conmuctivlsm. llua meam cm be said to c o w fun of dl, of a manuivs and i idepdd wand, which emphasizes thd me w d d of inlor- mt,onal n w n s & on& lndcpcndcmty of

, h u m a n ~ n o d w g n i ~ b W n r h a , t h d i t i s a n i w & & ~ w a r M w b a p c r n l e k ~ g r a a i c c s a n m a d c a m d ~ ~ h i , ,& . A d stnnd ofIm imamvia with the fna, mp- thc mle of ideaities in i n ~ d ~ n o d d a s t h i s b y p o i n i n p m the 'moahouiw' mla thu nmms and idea play in d ~ i d & $ i e s " " i h m c c ~ b i n g p m p a behavtom m h e pert ofpi- rypa of mra

R n h ~ r a w d s a r e ~ 6 e d i n L h c ~ o u s ~ o f h e ~ v o l u m m m c u l w o n/ Non'onnl %cmly (19%). sditcd by Potro J . ~ A l ~ i l b y n o m c a ~ s ~ B i I a m ~ t s ~o~mimmmsaialscimcc(sssRusgi~ 1998: 381, it taka issue wivimlhc r k d i m , ofbotbncoxaLu11 aod n e o l i i wi& reg& to thc mlc of both rcnm snd idrmties in world poluic~. In pardcular,

--v il 'dm pblanabc the sraw iotwsts that p daminan explanations of nadonal security o h 1.ks for pled'. PI Katzonsteb wri ts in hL1 l a ~ ~ ( l 9 r M . I). ln lbS volume huo 6bdiCd h pmiarlar aempkfy a consrm~virt of foreign pohcy. ?he firit, by Richard Ria nod Nina Tmcnwald, shows lhar whdc a ra6& analysis of the noa-we of bath nuclear nod chemical wcapnr cannot a c m u ~ for such polioies, 1 ox- srmnivirt view, qhas iz iog dv socially con srmcted mNre of detnreoce and ds(srmcs weapons, sh0.w that dx n a n w of these wcapoar c a n a n l y b e ~ L f w ~ t a k c p . ~ i o m ~ ~ ~ ~ ~ t t h c d e " d ~ 0 f p o h i b i t i o o a r y ~ t h a t E h a p c d t h c v ~ . p o n s s s ~ k ~ ~ f ~ d*lrmctim"' (Rice nod Trrmegdd, 19%. 1 IS). ~ y , M M h P ~ h a s f d o n a n o m C r folm of tmoign poliEy b&.viour which csrmot be Pdcpurmy qm by dma realist nr h i thmrim hamildm inBvmtiau whkb have m gms!ml+, d m cmmmie hpmmce 0 the m t r m n a m ~ . 1 & o n ~ , 1 9 9 6 a : s e e a l s o P i l 9 9 6 b ) . l n s l s d s b c ~ , t h i s t y p c 0 f k h a v i o y , a d t h c ~ h ~ C h ~ h a s C ~ nod dcvclopsd sim thc nineszalh mmny, cannot be uDdastaod apart ttom 6 s h n g ~ normanye mman in which il oecus, insofar a8 'intcmadwal n0mmi"c rmUcxt sham thc interests of intema-

dioh also exmpli5li a o o @ ~ @ ~ v i s t analw of foAjgn pdhy along these bq ness Audie Kloa'a

of the I& of inLcmahonal n o w in thc ~ a l emhzo A d s t thc...rcpim

D i s h ~ h e s P o ~ U I O ~ bgxim bm in philosophy and mnal &my, a (d hoIisbimapSdtlM awcach, fOCUDinB on /the m k ofbm%im Bacipl iquny, ia slowly but

w a d r o t ~ ~ ~ ~ p o l i c y ~ p l a o c i s ~ a a t h c ~ o f m 6 m y i n ~ ~ and rn mskud& Gum 1999 453). Hoarsva, C n r h l Y to 'lhiaw. cvmmms, me uunnndiminttdstwcof~vc&isthat

~~ ~ ~ ~~ ~ ~

more real; the umrsnu ;&/is aa', nod hslc; 'romerhing is a Psurity problan wbm elirs d r c h it to k so' 0*'-, 1995: 55,54).

.% ocwnd, diff-1 and broader straad baa r m I I y bceo -led and disouascd by J&

-. - - it& (see, f o r - w l e , Mil!&% 1996: Mulimer, m; W e b and Saco, m, Lhe claim that dis- ~ a t e p m Q l o t i v e s f l h e ~ d e f m e d b y h e di.coursqauohasennmonsmseamlpolieygna~

(see, fm -4% Campbeu, 1998; Doty.

1996; Huysmw, 1998; W m , 1995; Weba, 1995, Weides, 1999, Woldcs and Saw, 1996); and ~shUlynlg Bomhbns or- d i s w u y nod m e h . ~ o l m ~ a s d t o ~ m p I & menring precticn and ways of m a b g k &ui- giblc and lcgitimatc' (see, for aanplc, BarWson. 1995: Fie. 1998: Nconam 1998: Svl-. ~. ~.~ ~~ ~~. 19wj -Use & I Y S L P mus i- m g n i a ~ *c pracdccs and thc Lnowlcdgc sysums k t y - ing &em, and an a8 swb not only eo& with m&-theorrdsal critique but & with critical &adzkg lban the howled- nexus (an thc hm, see also Gi 2000: NRlfdd. 1993).

In their book-lmgth thsfossion of core m a - W d LYNsa in IR, MarM HoUb and Smc Smjm have W b e d indiddudin m a to pobey as foUun?

C

UndrntlDdmg posocdP by mconsmrhg u it kdi- nmul lovsl. lh i r Webam h e ha8 h mrb 4 & Imanurd Relauoor u p d y rn tbc xb-6.M lmopn aaFosign Policy Adya ia . Ha tbcmocem iv m u d x ~ m d &tis~aoa horn h W t of dx dosl,lan-rmkm by mammdiq he*-- Tbs forago policy bohaviow of 08 &.pa& m La M- "id"& aim - pcrcei* y* .b'imm C o ~ . E e m " . n r m a r ~ ~ f h d s i & d ~.gloUis..dSmi&,19W:14)

I n a d d i l i a , I J q r m h U I O ~ ~ h r m b names-ah ichUIOabma.ppmaeb~m-

- a c t i o n r h @

lhrough their mdindunl dcmaotr @omrm-q). ~ a s L h c m p d o w n v i s a r ~ p m a a M a t i d l y Lhe one disfugwd &vc in of social- f f m m o r v l m rac as hc(c lefl with the !mslypeoffaugwhichrlsohappmstobcihc kal lmUTed lodry in &s Budy offorti@ policy. Ihs birrorcal rmcccdmB of lbls sppmach go

beck lo mC pionmiog work of Richard C Sny& adhit awcide, f&g m a systcmacic d- d mdyw of Lhe dclibasnona of &xigo policy hkk-@km (Snyder cLaL, 1S62;~aonLw Pug+ 1968). h o f a r ar the focal poiu ia d c s of h kind are the wmoned - rntha thao PBW - tho- msde by decision-&as, 4 aspDctr of mle thmry &o exemplify thk bjs u h i hsofa~ as thc analysL of mcular mle mn@m p m the f a w the reasmhg of individual M d d f n e i p p o k y - d m nod Lheir mdamdmg of thc m ~ o n a l s y s t e m ~ d x ~ d m k o f ~ oaastalmarimmlhiBkgasysmn(nogfor- ple, Holsh; 1987: Hpdbpdos UXX): 42-'1; and mC dimdon of 'mbpbplayas' in nollis and sm%,

19% 155-9,214-16). Thesamgoes for~ ,& sicalwhsbdnm aftherole of the 'nafioqdjr#qiota

ar a nasonedums&oo r n e s 06s. . life dewdm-maken (mch ss Kohl d ')?7:-' this qpm& scmr to be ideally rnled= -,

342 AANDBOOK OP ~ R N A T I O N A L RELATIONS FOREIGN POLICY 343

at least some of these,p~Eif_we~e~&I@~yob$g$eded more fdamental criticism raised above, it is Although analytiodly autonomous, these tbree cut across the perspectives discussed above and i o * m A s M m ... Hulli-dSdth,.fmem- difficult to see haw it can sustaina central mle as a dimeosious srs conceived as olosely linked in the which, in my opinion, will continue to remain ropi-

p & ~ , b x e c h e d h t e t h ~ a a a l ~ & e s t o 'heoretical bridge' (Evangelist@ 1997: 204) in sensethat they can he mnjoined h a topical, stepby- cal and conhoversial in the study of foreign policy

el l - thatof .:expl811.ah-bnL vw.~ ~m.&mm3r&"3r&' f-gn policy analysis. srep mmerto reader inoreasingly exhaustive orpla- (as in the social sci-s in general).

cgp~op*. @g. disdnction-above-between My o m view is that a synthetic framework for nation offoreipn policy addom quae~planmdum as The first of these p& to explairiq the d p -

' q b s m - a n d '@~~etaf&@@ - and that a.7- analysing singreignpolicy is indeedpoasible, but that it defm.4 earlier. Tbis meam, h t of all, that a telw- mics of fareignpolioy cfrmge, both in t- of @or

eanao~~~~@rm,inineded~t~,~~~.~~~f~anah~e@~h has to bwon a level of abstnictianthat does not sub- and Srmth, 199d). Sdar ly , 'ha* and 'individu- s ~ e l y prejudge explwalioninfavalrr of any par- &sm' have most o f f . . . b ewr~ to&e&So i - ticdartypeor wmbbationofwpirical factom (such p l ~ l ~ ~ e oategar&, forcing w into ta 'domestic shuctue'). Since I have elabomted onit eiUii?YaKjdo08m'Oi 'b-!&&op' mod~ofdys is . elsewhere, I will here simply give a skeletal outline However, ather sehala - a k with a less pra- ofthe eaplaoato~ylogic ofsofchasuggestedsynthetio nauocedmeta-theoretical bent - have argued for the frameworkofanalysis (Carlsnaes, 1986,1992,1993, feasibility of such an~ytical integration, usually 1994). The starting p a t is the claim that while the . that not only were many of these changes unantiei- wmbhing this with empirical researoh that lent meta- thdca l mahk used above is specifioaUy pated but also that the events in analquestion were d&- s w g support for such en inte&v=viey off* designed far thefpurpose of classifying approaches to palicyanalysis. fore* policy analysis in t m s of their masf9da-

Perhaps the most notable recent example of m h ~ $ ~ O S ~ ~ I % % ~ ~ ~ P O S ~ - an mbytion is pMided by a number of studies tions itislesssnitable for empirCcaIanalrs1aWeIf as Z3iZFi'6iibeiwee4 these iwo levels can also be analysis of foreignpoticy change ( C a r k , 199% that have foeosed on the link beween domestio & l & i ~ ~ ~ ~ & ~ - t b e m d ' ~ ~ ~ ~ d i m d o n described'in trims 9f an 'in order t o 0 ~ ~ ' . h e e a u s Gusiavsson, 1998, 1999; H~zrmaaq 19W, R~osati 86

\, stfuctwes and fmei olie~a&on_sae9eter G6y the 'games red adon play' (Schqf, am&5& f o m ~ r ~ g ~ p P ~ ~ ~ ~ ~ n a l - . al., 1994; seealso Kosiowslj and KratOChanl, 1.9951, t z e n s t e m d ~ 1978) h& 1997) +@ys a combinatian of osive ;&>Tier ~oGituZ@& Imk between this there is little eonsessus on t h ~ best way of doidgx,,

inpaVing,the way fm.ihldieS of'thig/' behaviow, o@vepsycholo&albio,"~d~the intentionand the having ofit: how apartiwlarintw- Giventhe ecleotic na&e ofthe field as swL.as weU. kind, whioh have often had the edded advantage of vsri5iisiis~sTTdiZ51ThGibE&~ E ' ' ... sooie t i q n h a s ~ w r n e a p a r t i ~ ~ ' s ~ t i e ~ F & , as the fundamental diffsqoes between ifie typs.of bbieg compaative add hence reaohing back- albeit t i ~ ~ ~ B ~ v i i 6 & i ~ a ~ d anstlo* the fhird layer b j _ b ~ . ~ , ~ e , . ~ ~ t i ~ & ~ t i n . s o p e w d v e s presented above, some of whiahare. a"bont the m e ssoientishr' m b i t i m - to eatlier r b x c m ~ f ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ e h . ~ h l e CiiG behaviow i s n ~ _ e r 9 ~ ~ ~ j ~ @ i d e inherently more amenable to the stndy of changee&, work within CFP. SiMcant .research stimulated ta &YO apcc~iwthat do no ype@hop:x~.M$-u , & ~ & e a r ~ w m a a + t i ~ ~ f a ~ ~ ~ , offhe o w , this shouldof course not amea r a &$rise. by this approach has included *dies by Matthew p$~~B~gy~fth>;~G5ie~z.@far as l&_~~B+?&wa~.abl%mh~ c8#s&yY(3J At t h e m e time,thin issue h h s ~ l to*,th'hnebf Evaogelista (1988, 199.5). Risse-Kappen (1991, t h _ e e ~ , ~ $ & & - ~ ~ s d ~ ~ e , , , ~ . ~ ~ ~ m ie om m o n f s ofthe former. As conceived.here, thin thefield as a wh&, piventheinawed plobalizZ@& 1994, 199%) and Jack Sn)ider (1991; see also the (albelt for good analytical-cum-pekopioal rea (ink b m q m s u p m e and agency can be conwived of i n t d o n . 4 relations - a pmcess argqably p&- dis~nssion, E l i 1997). Some of this wofk sans), it sLnply willnot be able to deliver the goods as both of a wmhaiqing and of an enabwg kind, mhixg the relitive nuto~~my~fthestate qmfbreipq has also a h its oue from Peter Oomevitoh's 'in tbis lrspeot Indeed, an ironic implication of this causally affechhppoticyacd~m via its effectsectSon be policy actor - as well asasthe emagcnceofnw~w.@? notianotthe *second-image reversed', focusing on way of Conceptnaliz'ingand updmtadinpthe faun- dispositional ehaaeristics ,of &= agentr of policy. of fkignpolicy actom, such 89 the EU, c I W n @ how international institotions affect foreign policy dalional i sms &Iy&g foreign policy anatysis is (Althoagh netindicated in the fignib, fomign polioy only foreign policy ~ompetenei& of their own 6% changevia its cffects on dome8ticpublics a n d h e n that it i i only when we wceed in ovwriding the aofiobmintmn&eol-eitherbyint&tian~<unio- also as rbpresentiog their member stltes, beno* on state adians (Gaurevitcb 1978; Checkel, 1999; logic exemplBed in this ehapter - the'fow geueri~ tentionally in the f6m of outcomes; both the mc- emdingthe sovereignty ofthe latter[see, singr ew@, Keck and SWink, 1998; Risse etal., 1499). perspectives,, whioh by d&finition arc muhmll~ 8 iural and aspositional dimensions, pmviding for the nmite,?Wl).

However, the main problem with 'domestio smrr exohlsive- thatthere will be afed chance of acbiev- dynamic interacdon ova time behveeo agentid and A second contentious and topical wncem w i h ' bm'm g . & + m & b & : 3 - 3 a d ing this ambition. ~rnotwd h r s , thus invoking the agenc~twctm the 5eld pettaim to the mle of idem in the eapIana: ! h e n ~ p i n f o t ~ i s the divide between domesti,? and %us, rather than thinkiog in terms of a loglo of issue, to bediseussed briefly be low.^ tion of fozeip policy. For long banished tin& ro

&+p~tim~$ eoijiG:FhiC4 I have %ge%@. m u d cxclusioo, r suggest that we instead wncep- Although this type of an intqxatiw framework mainstream sotial science expladations, the;

t ve, is b ~ @ ~ ~ ~ ~ t i ~ ~ ~ ~ q .i.?G&L~.$od- tualize suoh an analyfic framework in t a m s of a ti 6i...-. ~ . . ~ eschews the dichotamlzation of approaches di& idational factor finally gained full &,ision in-314~ a l b a ~ ~ h h ~ ~ ~ q ~ d + ~ i ~ @ t ~ g & ~ q p m b ~ tripartite appach ~llsistiog of an sentt&, a . '~wsed above, it does not as suehnegete the a p p l i early 19$0swith thepublicationof the editedvol~rse: ), F&% thii'bonndaiy rather 6% positing tt by dispositional and a smrchrral dimeusion of expla- bility of any ofthese - as long as theywe used when ooT+ o n d F ~ m ~ P o L ' c y (Goldstein and geo@,qee.

/ ld-ptidfi . Ei-itehoie, a arargument has v&ions nation, as follows: and if analytidy appropriate. Indeed, sppmb~hes 19~3).~nd~1~gthisin~cfionlaytherea~0e~ ~i@%~f%iare not necessarily mNally ~ompa.tih1e from all the fourtypes ofmck-bottompnspeotives that enphmions based solely on rafronal adom. as enplanations. ThusUS it can refer to an eswt idy , Foreign Policy Actions discussed dbo-e can be fullyucilimd: the 'srmcbual' maximizingr u61ityhmdionmtad inmmialintsl; holistic stmdud view, win Eatzm+tein's work on ( 1 ) and'sacial-ins6tutional'whenanalysingcaussllinks ests were aften inadequate to amount fdly.fmf&e. therole ofweakyemu s!mngsoc@ties @kemteitt, t belyeee the mmd and dispositional dimensions; foreign policy behaviow of &tea. Instead, itwe*. 1976), or in the 'demobratic peaee' argument i 'agency-based'p~ecriveswhentraCing~usa1pat- g~ ted , ideas tW can ham an independent causal R u e % 1993); to an agency-based View in terms of +7 intentional dimension +&cm tans between the dispositional and the M o d effect on fwcign policy 'wen when human b9iO.s Whioh damesfic s h u h e s act as interv-g famm (2) dimeusion; andthe 'interprehtivc a c t O ~ ~ & ~ e behave rationally to achieve thdr ends' (Goldski9 bekveen societal actors and sratp action (Checkel, t

sjm & ~ s e ~ ~ ~ e ~ e teleolbeid and Keohane, 1999: 5; see also Check& 1991;. 1997; Risse-Kappen, 1991); or to more recent con- I& - bbehveen .~~~~ intentions and ~~.~ foreignpuJi.y-gti~qsqs -. .. lacobsen, 1995; &ase-Kappeo, 1994; Yee, 1996). atnutivist sppmaohes emphasidng the impact of dispositions1 dimension *"<" ,*LrC Although welcamed scholars ontheeinteq&$iv& ideas and norm - either domes60 or i n W o n a l -

, ~ ~ ~43k- .. , ~~ CONCLUDING REMARKS S i d d f K ~ i &v$i~n:paof as s o m e of foreign policy change (Checkel, 1997; Wee@t% ZffiZCy '2 i;lei'b ?as&Iess led Ffmemore and SkBhk, 1998; Reu&Smif, 1999). ~ i a a 6 1 i ~ ~ & 3 ih7fieId ($&,;'for Given ffiesese wnten- uses to which the ,domestic To round up this overview I would like to oonclude example,, Koslo& a d ~rstochwil;'l99b; Laffqr & o h argument has been put, as well as the

, . bybriwly pointing to three theoreti081 issues that and Weldes, 3.997). The basic criticism .b M t

f i ~ m 'mtcrests',. whereas the soma1 c o k w s t \,iw ~1 IIWt !I]c~uupa!@g~rs I C ~ ~ C I U P Q C I P I . G ~ ~ ~ ) ~ + ilr foml q( con\trr.u!(~e..mlci', ar Kugglc note, (K.~wc 1;lJa 38) In the l#&t ctflhl, \?E\\,, to s p d of ' t d a n m l \arixblx' I* mnnlrmount to pcrpcw~!hg m ox)rn.,r.>n a h.wng of the *hole gutdon of whar ~Jwb arc m d Irr not. ad l s n d hen t h o &re &tedby and *eotsb& m-wm clear lc tb debate 1s d y ls its be-g and wll eontmm to be a focal p m t for mead d i m s ~ o n

F d y Y a thrd issue, and om that has recaved considemble tieorehd anentlon dunng the past decade, and oamueg to do M today, is the agency- sbueture pmblemalque m foreign p o k y analysIS For dl pad p~rposes Wendt put Iton the a& m amuch-quoted artrclepublishea m 1987, and slnoe then it h ~ 5 k e n h,xIy dh3r.A but hudlg resolvrul to ~ h < \ ~ t i \ f ~ o m olall concrmed ,R>clcr :ad Monan. 2 3 ~ 1 , Carl,-<, 1992, 1994. Derlcr. 19x9. I hn , 1947. Fncdmnn a d S m . IY9? (iunm. 1903. ED& andSrmth, 1991,1992,1994, Pafomala, 1996, Suganm, 1999, W~ght, 1999). At b e heart of th problem Ires the m~teamgly widespread mgolhon thag msiead ofbamg antagonwho p m m m a m - u n tclrtlomh~p. h w n a a ~ m r . . q J s~c~.rl,m~.tur.% s; tn .I f u n h c n u l me d y m ~ Jl! g m e h ~ d rntlnrr. a d hllncc that Uc.':mioi~c;otmr fuU\ far . , . .. the me'&&tiqvokurgthebt@. B e Ihe'prblemem is &tX&ou& wehiT&i>TGiGcd implication =est that the pmprhes of both agents and. socral .;rmiturr..; Ire :<lc\.mt m a proper undcnmd~ng of swcl>l k ,h . r \~wr .m.l.dtng the ruldy ~ f ~ h m g r . ) , s,s oe~cnhrlerr P s \\'clldr notrd in his ~nvlnal miil-l

. . TIlb i s 4%. p ~ r h a p i an appropnaw awe .md Ion<

oi\olrc. urth whlch lo put .mo,d tr lhh d\cn.icu.~f thc V I C I $ E I ~ U ~ $ and omnr runBnm of i.,r<~%g pill.) inal?*l,, r i n a n i.>u.hc* m thc ccn1r.d core of thc ridd iwll thr L;t t h a ~ ~ o r d ~ ~ l ! c ) : , & u o n r ax lo;:tt~d 41 tbr. <ej.&nri< oithr ~nternaaond relauom U?*?I, in.0fpbrO.ii" ? mdjllltljdr of~"rlurmcr\, , srmmml md nymti;l, as ur,ll as 'mm~s!~owl , $on- cia1 a d iridimdwl :-!Ail( c o n u n d y , ultpmgr o n tLSa&,o *sir densldo-makers To.cipt.y~&e~ a,nlo~cxsnd reclprjcal jinlccr<c3: and la 4 0 , ~ !,CII, k the chdllcn~e thrh-(;,ill knin m a a a m e thb field of studyas long as ketatcs wmtmueUCto *able aom mihu the mtmmonal System

/ V' .iu'"L Note

~e&mmuldlket6~th~fo110~ngwn"gue~(as well ss an a o n y m o u s ~ y ~ w a ) f a c o ~ e n a o g o n E E I I ~ WSIOW of fhe ohapta Stefaofao lhzam, Vdene Hudson, J d a M , h n , Thomas h o e , Jerel Ros&, Beth

!NATIONAL RELATIONS

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