00_HP_front.qxd 2008/10/01 9:00 AM Page i Emerging Powers in Global Governance 00_HP_front.qxd 2008/10/01 9:00 AM Page ii Studies in International Governance is a research and policy analysis series from the Centre for International Governance Innovation (CIGI) and Wil- frid Laurier University Press. Titles in the series provide timely considera- tion of emerging trends and current challenges in the broad field of international governance. Representing diverse perspectives on important global issues, the series will be of interest to students and academics while serving also as a reference tool for policy-makers and experts engaged in policy discussion. To reach the greatest possible audience and ultimately shape the policy dialogue, each volume will be made available both in print through WLU Press and, twelve months after publication, accessible for free online through the IGLOO Network under the Creative Commons License. 00_HP_front.qxd 2008/10/01 9:01 AM Page iii Emerging Powers in Global Governance Lessons from the Heiligendamm Process Andrew F. Cooper and Agata Antkiewicz, editors 00_HP_front.qxd 2008/10/01 9:01 AM Page iv Wilfrid Laurier University Press acknowledges the financial support of the Government of Canada through its Book Publishing Industry Development Program for its publishing activities. Wilfrid Laurier University Press acknowledges the financial support of the Cen- tre for International Governance Innovation. The Centre for International Governance Innovation gratefully acknowledges support for its work program from the Government of Canada and the Government of Ontario. Library and Archives Canada Cataloguing in Publication Emerging powers in global governance : lessons from the Heiligendamm process / Andrew F. Cooper and Agata Antkiewicz, editors. (Studies in international governance) Co-published by: Centre for International Governance Innovation. Includes bibliographical references and index. isbn 978-1-55458-057-6 1. International organization. 2. International cooperation. 3. International relations. 4. Group of Eight (Organization). 5.G8 Heiligendamm Process. I. Cooper, Andrew F. (Andrew Fenton), [date] II. Antkiewicz, Agata III. Centre for International Governance Innovation IV. Series. jz1318.e43 2008 341.2 c2008-905844-5 Co-published with the Centre for International Governance Innovation. © 2008 The Centre for International Governance Innovation (CIGI) and Wilfrid Laurier University Press Cover images from iStockphoto <http:www.istockphoto.com>. Cover design by David Yoon and Scott Lee. Text design by Catharine Bonas-Taylor. Every reasonable effort has been made to acquire permission for copyright material used in this text, and to acknowledge all such indebtedness accurately. Any errors and omissions called to the publisher’s attention will be corrected in future printings. This book is printed on Ancient Forest Friendly paper (100% post-consumer recycled). Printed in Canada No part of this publication may be reproduced, stored in a retrieval system or transmitted, in any form or by any means, without the prior written consent of the publisher or a licence from The Canadian Copyright Licensing Agency (Access Copyright). For an Access Copy- right licence, visit www.accesscopyright.ca or call toll free to 1-800-893-5777. 00_HP_front.qxd 2008/10/01 9:01 AM Page v Contents Foreword Dirk Messner vii Preface Yoginder Alagh ix Acknowledgements xiii Abbreviations and Acronyms xvii 1 The Heiligendamm Process: Structural Reordering and Diplomatic Agency Andrew F. Cooper 1 2 The Logic of the B(R)ICSAM Model for Global Governance Timothy M. Shaw, Agata Antkiewicz, and Andrew F. Cooper 19 3 From G8 2003 to G13 2010? The Heiligendamm Process’s Past, Present, and Future John Kirton 45 B(R)ICSAM CASE STUDIES 4 China’s Evolving G8 Engagement: Complex Interests and Multiple Identity in Global Governance Reform Gregory T. Chin 83 5 India and the G8: Reaching Out or Out of Reach? Abdul Nafey 115 6 Brazil and the G8 Heiligendamm Process Denise Gregory and Paulo Roberto de Almeida 137 7 South Africa: Global Reformism, Global Apartheid, and the Heiligendamm Process Brendan Vickers 163 8 A Break with the Past or a Natural Progression? Mexico and the Heiligendamm Process Duncan Wood 193 9 ASEAN and the G8: Potentially Productive Partners or Two Ships Passing in the Night? Paul Bowles 213 v 00_HP_front.qxd 2008/10/01 9:01 AM Page vi vi Contents THE EVOLVING ARCHITECTURE OF CHANGE 10 Germany and the Heiligendamm Process Thomas Fues and Julia Leininger 235 11 Why Is the OECD Involved in the Heiligendamm Process? Richard Woodward 263 12 Russia and Evolution of the Heiligendamm Process Victoria V. Panova 285 13 The United States and Summit Reform in a Transformational Era Colin I. Bradford, Jr. 307 14 Enhanced Engagement: The Heiligendamm Process and Beyond Alan S. Alexandroff 337 List of Contributors 353 Index 359 00_HP_front.qxd 2008/10/01 9:01 AM Page vii Foreword The ongoing tectonic power shifts in the global system have become the paramount topic for academic reflection and political strategies in interna- tional affairs. A group of rising powers from the global South is effectively challenging western predominance, the hallmark of the global order over the last two centuries. Different labels and analytical categories are used in iden- tifying the new powerhouses, such as Asian drivers of global change, anchor countries, and now the B(R)ICSAM constellation of Brazil, Russia, India, China, South Africa, and Mexico, introduced by the Centre for International Governance Innovation (CIGI) in Waterloo, Canada. This highly innovative think tank has been at the forefront of systematic research on global gover- nance arrangements that would be capable of addressing the survival issues of sustainable development and equity. CIGI’s research is built on long- term transnational networking that brings together high-ranking scholars from the industrialized and the developing worlds. The volume at hand is an excellent example of the timeliness and inclu- siveness that characterize CIGI publications. It takes a comprehensive view of the Heiligendamm Process (HP) established in 2007 by German chancel- lor Angela Merkel, then G8 host. This outreach effort of the leading indus- trialized countries toward those five emerging powers provides a new framework for issue-based informal exchanges on crucial aspects of global policy making. Due to end in 2009, the HP has come half the way in trying to build trust and identify common approaches to pressing problems. It remains to be seen if it can open the gate to a formal expansion of the G8 vii 00_HP_front.qxd 2008/10/01 9:01 AM Page viii viii Foreword or if it, rather, represents yet another makeshift exercise without positive impact for summit reform. The contributions to this volume cover a wide range of analytical and pol- icy issues related to the HP and to the current global order in a broader sense. They highlight the multiple motivations and interests of participat- ing nation-states and ask for the implications of G8 reform for the global gov- ernance system. Of particular relevance are the perspectives of rising powers, which are introduced through detailed country profiles of each of the five dialogue partners. An article on the Association of South East Asian Nations (ASEAN) complements the section on the developing world and an article on the Organisation of Economic Cooperation and Development (OECD) offers an institutional context for the HP.With regard to industrialized coun- tries, the United States, Russia, and Germany (as initiator of the HP) receive special attention. The insights of these excellent contributions will be of lasting benefit to scholars and practitioners alike as they grapple with the tur- bulent reshaping of global affairs of which the HP is a small but significant element. Dirk Messner Director, German Development Institute (DIE) Bonn, August 2008 00_HP_front.qxd 2008/10/01 9:01 AM Page ix Preface This is a book on the role of big emerging powers in the workings of the Group of Eight. It considers a number of global issues that bother states and organizations at the high diplomatic table and the strategies used to address them. The contributions here certainly deliver—in detail and with sophistication—to this important discussion, given the fact that the area is new. The editors set the stage in the introductory chapters by stating their interest in structure over causation. But the compulsion of life—even at the level of global abstraction—pushes analysis further, toward interests and changing strategies in an emerging multi-polar world. The interface between this analytical discourse and the descriptive and normative aspects of struc- ture is the true strength of this book. It recognizes that no neat formulas are available to explain certain developments and that some formulas fall by the wayside as states manoeuvre their own interest through different struc- tural organizations. The analysis, however, has substantive content, since the global aspects of issues emerging again and again are compelling. At the structural level, the authors examine institutional alternatives. They bring out the relation- ship between ideas, economic strategy, performance, and diplomatic lever- age. This is a fascinating book, and it will be read widely by students of international affairs and used in diplomatic training. The question that will follow—and one hopes that Andrew F. Cooper and Agata Antkiewicz will use some of their unbounded energy to pursue fur- ther—is this: Why did some of the earlier outreach initiatives not go as far ix 00_HP_front.qxd 2008/10/01 9:01 AM Page x x Preface as designed? Progress toward the laudable leaders’ 20 (L20) initiative, as pro- moted by former Canadian prime minister Paul Martin, was started but never matured to Martin’s original design. We need to push the analysis of mistakes made, for, as the contributors rightly bring out, the world is different now and the cost of making mis- takes is much higher.