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Conceptualising Regional Power in International Relations: Lessons from the South African Case

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Conceptualising Regional Power in International Relations: Lessons from the South African Case GIGA Research Programme: Violence, Power and Security ___________________________ Conceptualising Regional Power in International Relations: Lessons from the South African Case Daniel Flemes N° 53 June 2007 www.giga-hamburg.de/workingpapers GIGAȱWPȱ53/2007ȱ GIGAȱWorkingȱPapersȱ ȱ EditedȱbyȱGIGAȱGermanȱInstituteȱofȱGlobalȱandȱAreaȱStudiesȱ/ȱLeibnizȬInstitutȱfürȱGlobaleȱ undȱRegionaleȱStudien.ȱ TheȱWorkingȱPaperȱSeriesȱservesȱtoȱdisseminateȱtheȱresearchȱresultsȱofȱworkȱinȱprogressȱ priorȱtoȱpublicationȱtoȱencourageȱtheȱexchangeȱofȱideasȱandȱacademicȱdebate.ȱAnȱobjectiveȱ ofȱtheȱseriesȱisȱtoȱgetȱtheȱfindingsȱoutȱquickly,ȱevenȱifȱtheȱpresentationsȱareȱlessȱthanȱfullyȱ polished.ȱInclusionȱofȱaȱpaperȱinȱtheȱWorkingȱPaperȱSeriesȱdoesȱnotȱconstituteȱpublicationȱ andȱshouldȱnotȱlimitȱpublicationȱinȱanyȱotherȱvenue.ȱCopyrightȱremainsȱwithȱtheȱauthors.ȱ WhenȱWorkingȱPapersȱareȱeventuallyȱacceptedȱbyȱorȱpublishedȱinȱaȱjournalȱorȱbook,ȱtheȱ correctȱcitationȱreferenceȱand,ȱifȱpossible,ȱtheȱcorrespondingȱlinkȱwillȱthenȱbeȱincludedȱinȱ theȱWorkingȱPapersȱwebsiteȱat:ȱ www.gigaȬhamburg.de/workingpapers.ȱ ȱ GIGAȱresearchȱunitȱresponsibleȱforȱthisȱissue:ȱResearchȱProgrammeȱ‘Violence, Power andȱ Security’ȱ ȱ EditorȱofȱtheȱGIGAȱWorkingȱPaperȱSeries:ȱBertȱHoffmannȱ<hoffmann@gigaȬhamburg.de>ȱ Copyrightȱforȱthisȱissue:ȱ©ȱDanielȱFlemesȱ ȱ ȱ Editorialȱassistantȱandȱproduction:ȱSilviaȱBückeȱandȱVerenaȱKohlerȱȱ ȱ ȱ ȱ Allȱ GIGAȱ Workingȱ Papersȱ areȱ availableȱ onlineȱ andȱ freeȱ ofȱ chargeȱ atȱ theȱ website:ȱ www.gigaȬhamburg.de/workingpapers.ȱWorkingȱPapersȱcanȱalsoȱbeȱorderedȱinȱprint.ȱForȱ productionȱ andȱ mailingȱ aȱ coverȱ feeȱ ofȱ €ȱ5ȱ isȱ charged.ȱ Forȱ ordersȱ orȱ anyȱ requestsȱ pleaseȱ contact:ȱȱ EȬmail:ȱworkingpapers@gigaȬhamburg.deȱ Phone:ȱ++49ȱ(0)40ȱȬȱ428ȱ25ȱ548ȱ ȱ ȱ ȱ GIGAȱGermanȱInstituteȱofȱGlobalȱandȱAreaȱStudiesȱ/ȱȱ LeibnizȬInstitutȱfürȱGlobaleȱundȱRegionaleȱStudienȱ NeuerȱJungfernstiegȱ21ȱ 20354ȱHamburgȱ Germanyȱ EȬmail:ȱinfo@gigaȬhamburg.deȱ Website:ȱwww.gigaȬhamburg.deȱ GIGAȱWPȱ53/2007ȱ ConceptualisingȱRegionalȱPowerȱinȱInternationalȱRelations:ȱ LessonsȱfromȱtheȱSouthȱAfricanȱCaseȱ ȱ ȱ ȱ Abstractȱ Regionalȱpowersȱcanȱbeȱdistinguishedȱbyȱfourȱpivotalȱcriteria:ȱclaimȱtoȱleadership,ȱpowerȱ resources,ȱemploymentȱofȱforeignȱpolicyȱinstruments,ȱandȱacceptanceȱofȱleadership.ȱApȬ plyingȱ theseȱ indicatorsȱ toȱ theȱ Southȱ Africanȱ case,ȱ theȱ analysisȱ demonstratesȱ theȱ crucialȱ significanceȱ ofȱ institutionalȱ foreignȱ policyȱ instruments.ȱ Butȱ althoughȱ theȱ Southȱ Africanȱ governmentȱisȱreadyȱtoȱpayȱtheȱcostsȱofȱcoȬoperativeȱhegemonyȱ(suchȱasȱcapacityȱbuildingȱ forȱregionalȱinstitutionsȱandȱpeacekeeping),ȱtheȱregionalȱacceptanceȱofȱSouthȱAfrica’sȱleadȬ ershipȱ isȱ constrainedȱ byȱ itsȱ historicalȱ legacy.ȱ Additionally,ȱ Pretoria’sȱ foreignȱ policyȱ isȱ basedȱonȱideationalȱresourcesȱsuchȱasȱitsȱreputationȱasȱanȱadvocateȱofȱdemocracyȱandȱhuȬ manȱrightsȱandȱtheȱlegitimacyȱderivedȱfromȱitsȱparadigmaticȱbehaviourȱasȱaȱ‘goodȱglobalȱ citizen’.ȱHowever,ȱtheȱMbekiȱpresidencyȱisȱmoreȱsuccessfulȱinȱconvertingȱtheseȱresourcesȱ intoȱdiscursiveȱinstrumentsȱofȱinterestȬassertionȱinȱglobal,ȱratherȱthanȱinȱregionalȱbargains.ȱ Inȱeffectȱtheȱregionalȱpower’sȱreformistȱSouthȬorientedȱmultilateralismȱisȱchallengingȱsomeȱ ofȱtheȱguidingȱprinciplesȱofȱtheȱcurrentȱinternationalȱsystem.ȱ ȱ Keyȱwords:ȱ Southȱ Africa,ȱ regionalȱ power,ȱ foreignȱ policy,ȱ coȬoperativeȱ hegemony,ȱ multiȬ polarisationȱofȱtheȱinternationalȱsystemȱ ȱ ȱ ȱ ȱ ȱ ȱ Dr.ȱDanielȱFlemesȱ isȱ politicalȱ scientistȱ andȱ researcherȱ atȱ theȱ GIGAȱ Instituteȱ ofȱ Latinȱ Americanȱ Studiesȱ inȱ Hamburg.ȱCurrentlyȱheȱisȱThyssenȱFellowȱatȱtheȱInstituteȱofȱInternationalȱRelationsȱofȱtheȱ PontifíciaȱUniversidadeȱCatólicaȱ(PUC)ȱinȱRioȱdeȱJaneiro.ȱ Contact:ȱflemes@gigaȬhamburg.de,ȱwebsite:ȱhttp://staff.gigaȬhamburg.de/flemes.ȱ Zusammenfassungȱ ZurȱKonzeptualisierungȱregionalerȱFührungsmachtȱinȱdenȱinternationalenȱBeziehungen:ȱ DasȱFallbeispielȱSüdafrikaȱ RegionaleȱFührungsmächteȱkönnenȱanhandȱvonȱvierȱKriterienȱunterschiedenȱwerden:ȱArȬ tikulationȱ desȱ Führungsanspruchs,ȱ verfügbareȱ Machtressourcen,ȱ außenpolitischeȱ InstruȬ menteȱzurȱInteressendurchsetzungȱundȱAkzeptanzȱdesȱFührungsanspruchsȱdurchȱexterneȱ Akteure.ȱ Dieȱ Übertragungȱ dieserȱ Kriterienȱ aufȱ denȱ südafrikanischenȱ Fallȱ zeigtȱ zunächstȱ dieȱ zentraleȱ Bedeutungȱ institutionellerȱ Instrumenteȱ innerhalbȱ derȱ südafrikanischenȱ AuȬ ßenpolitik.ȱObgleichȱPretoriaȱbereitȱist,ȱdieȱKostenȱkooperativerȱHegemonieȱzuȱtragenȱ(z.B.ȱ InvestitionenȱinȱRegionalinstitutionenȱundȱFriedenssicherung),ȱuntergräbtȱdasȱhistorischeȱ LegatȱderȱÄraȱderȱApartheidȱdenȱregionalenȱFührungsanspruch.ȱDabeiȱbasiertȱdieȱAußenȬ politikȱdesȱdemokratischenȱSüdafrikaȱzuvorderstȱaufȱideellenȱRessourcen:ȱAlsȱAnwaltȱfürȱ DemokratieȱundȱMenschenrechteȱhatȱSüdafrikaȱseitȱdemȱRegimewechselȱvielȱRenommeeȱ undȱLegitimitätȱerworben.ȱDieȱKonvertierungȱdieserȱideellenȱRessourcenȱinȱdiskursiveȱInȬ strumenteȱzurȱInteressendurchsetzungȱgelingtȱderȱRegierungȱMbekiȱinȱglobalenȱVerhandȬ lungenȱallerdingsȱweitausȱbesserȱalsȱinȱafrikanischenȱInstitutionen.ȱImȱErgebnisȱstelltȱderȱ reformȬȱ undȱ entwicklungsorientierteȱ Multilateralismusȱ derȱ südafrikanischenȱ RegionalȬ machtȱeinigeȱetablierteȱNormenȱdesȱgegenwärtigenȱinternationalenȱSystemsȱinȱFrage.ȱ ȱ 43(*59:&1.8.3,=*,.43&1=4<*7== .3=39*73&9.43&1=*1&9.438=M== *88438=+742=9-*=4:9-=+7.(&3=&8*= = = = &3.*1=1*2*8= 79.(1*=:91.3*= +_= 3974):(9.43= ,_= *1&9.3,=7*,.43&1=&3)=,14'&1=54<*7=541*8= -_= )*39.+>.3,=&3)=(1&88.+>.3,=7*,.43&1=54<*78= ._= -*=4:9-=+7.(&3=(&8*= /_= 43(1:8.43a=9-*=4:9-=+7.(&3=9>5*=4+=7*,.43&1=1*&)*78-.5= = = = = = = = = +_= 3974):(9.43+= "-.(-=&(9478=7*57*8*39=9-*=,*3*7&1=.39*7*89=.3=(:77*39=.39*73&9.43&1=7*1&9.438=3)=.8=9-*7*=&= ;4.(*=4+=,14'&1=/:89.(*=&3)=)*24(7&(>=1*&).3,=9-*=)*;*145.3,=(4:397.*8`=<-.(-=&7*=89.11=(438 (*397&9*)= .3= +7.(&= -*= 143*1>= 8:5*754<*7`= &8= +:39.3,943= +333= -&8= (&11*)= 9-*= /3.9*)= += =&2=;*7>=,7&9*+:1=94=9-*=7.9?=->88*3=4:3)&9.43=+47=.98=,*3*74:8=+.3&3(.&1=8:55479`=<-.(-=2&)*= 2>=7*8*&7(-=89&>=&9=9-*=:2&3=(.*3(*=*8*&7(-=4:3(.1==.3="7*947.&=.3=4:9-=#+7.(&3= 57.3,=,**0=5488.'1*_=-*=(43(*59:&1=&5574&(-=4+=9-.8=89:)>=574+.9*)=+742=9-*=+7:.9+:1=).8(:88.438= .3=9-*=<470.3,=,74:5=43=7*,.43&1=54<*78=1*)='>=**91*+=+419*=&3)=,4&(-.2=-*9?=&9=9-*=..#=.*78 2&3=389.9:9*=4+=.14'&1=&3)=#7*&=9:).*8`=8**=+419*=,**0_= = *&3.*1=1*2*8a=*,.43&1="4<*7=.3=39*73&9.43&1=*1&9.438= 9&9*8`=.8=349=85*&0.3,=&8=.9=(1&.28=43='*-&1+=4+=9-*=.39*73&9.43&1=(422:3.9>`=<-*3=.9=(42*8= 94=.88:*8=1.0*=54;*79>`=-:3,*7`=,14'&1=<&72.3,`=9-*=1&3)2.3*8=97*&9>`=9-*=.39*73&9.43&1=(4:79= 4+= /:89.(*`= &3)= 57*8*259.;*= 2.1.9&7>= .39*7;*39.438_= 23= 2&3>= .88:*8`= 9-*= (422:3.9>= +47= <-.(-=9-*=33.9*)=9&9*8=85*&0=.3(1:)*8`=&9='*89`=.98=#3,148&=43=(4:8.38b=43=49-*78=<*=(&3= &))=87&*1`=,&5&3`=.*72&3>`=&3)=842*=6&89*73=6:745*&3=&3)=842*=*397&1=#2*7.(&3=89&9*8_= -*8*=&7*=.25479&39=89&9*8`=':9=9-*>=+&11=+&7=8-479=4+='*.3,=9-*=,14'&1=(422:3.9>_=-*=8:5*78 54<*7= .8= )*+.3.9*1>= 349= 85*&0.3,= 43= '*-&1+= 4+= 9-*= )*;*145.3,= <471)`= <-.(-= 7*57*8*398= 9-*= ,7*&9=2&/47.9>=4+=9-*=<471)8=545:1&9.43_= #=(7:(.&1=7*&843=+47=3=-*,*243>=.3=.39*73&9.43&1=7*1&9.438=.8=.98=2.1.9&7>=8:57*2&(>_=8&8-8 .3,943=&((4:398=+47=-&1+=4+=,14'&1= )*+*3(*=*=5*3).9:7*_=3=(43;*39.43&1=2.1.9&7>=9*728=9-*= 3#=<.11=7*2&.3=9-*=)42.3&39=,14'&1=54<*7=+47=&=143,=9.2*_=-:9=&8=+>*=,**.=&7,:*8`=+47= 7*&1=,14'&1=:3.541&7.9>=9<4=49-*7=&7*3&8=2:89='*=)42.3&9*)=&8=<*11a=,14'&1=*(4342.(8=&3)= 97&383&9.43&1=574'1*28=1.0*=9*7747.82`=(7.2*`=,14'&1=<&72.3,`=47=*5.)*2.(8_=8-.1*=8&8-.3,8 943=.8=&=89743,=M=':9=349=9-*=431>=89743,=M=*(4342>`=97&383&9.43&1=574'1*28=(&3=431>='*=7*8 841;*)='>=9-*=(445*7&9.43=4+=2&3>=51&>*78_=:39.3,943=:8*8=9-*=9*72=4+=&=:3.82:19.541&7= 8>89*2=94=)*8(7.'*=9-*=(:77*39=897:(9:7*=4+=9-*=.39*73&9.43&1=8>89*2=+333a=-1a= .14'&1= 541.9.(8= -&;*= 24;*)= +742= 9-*= '.541&7= 8>89*2= 4+= 9-*= 41)= 8&7= 94= &= :3.541&7= 242*39_=-:9=9-*=8:5*754<*78=*++479=94=2&.39&.3=&=:3.541&7=8>89*2=89.2:1&9*8=,7*&9*7= *++479='>=9-*=2&/47=54<*78=94=24;*=94<&7)=&=2:19.541&7=43*_=+4<=9-*=.39*73&9.43&1= 8>89*2=.8=5&88.3,=9-74:,-=43*=47=9<4=:3.82:19.541&7=)*(&)*8='*+47*=.9=*39*78=&=97:1>= 2:19.541&7=,+89=(*39:7>_= 742=&=7*&1.89=5*785*(9.;*=&=2:19.541&7=8>89*2=(&3='*=9-*=7*8:19=4+=9-*=*2*7,*3(*=4+=7*,.43&1= :3.541&7.9.*8= 9-&9= ':.1)= (4&1.9.438= 94= '&1&3(*= 9-*= 8:5*754<*7= 84-1+479= +333a= -*_= >.30.3,= 9-.8= 89&9*2*39= <.9-= 9-*= )*;*145.3,= (4:397.*8= 1&(0= 4+= 54<*7= .3= 9-*= .39*73&9.43&1= 8>89*2= 2*&8:7&'1*=+47=.389&3(*=.3=?=;49.3,=54<*7=47=5*72&3*39=8*&98=&9=9-*=3+=*(:7.9>=4:38 (.1=2:19.541&7.8&9.43='*(42*8=&=57.47.9>=+47*.,3=541.(>=4'/*(9.;*=4+=)*;*145.3,=89&9*8_=3=5&78 9.(:1&7=9-*=,4;*732*398=4+=84:9-*73=(4:397.*8=9-&9=-&;*=9-*=(&5&(.9>=94=':.1)=7*,.43&1=:3.548 1&7.9.*8`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