The Soviet Empire's Demise and the International System Author(S): Rey Koslowski and Friedrich V
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Understanding Change in International Politics: The Soviet Empire's Demise and the International System Author(s): Rey Koslowski and Friedrich V. Kratochwil Reviewed work(s): Source: International Organization, Vol. 48, No. 2 (Spring, 1994), pp. 215-247 Published by: The MIT Press Stable URL: http://www.jstor.org/stable/2706931 . Accessed: 09/01/2012 01:58 Your use of the JSTOR archive indicates your acceptance of the Terms & Conditions of Use, available at . http://www.jstor.org/page/info/about/policies/terms.jsp JSTOR is a not-for-profit service that helps scholars, researchers, and students discover, use, and build upon a wide range of content in a trusted digital archive. We use information technology and tools to increase productivity and facilitate new forms of scholarship. For more information about JSTOR, please contact [email protected]. The MIT Press is collaborating with JSTOR to digitize, preserve and extend access to International Organization. http://www.jstor.org Understandingchange in internationalpolitics: the Soviet empire'sdemise and the internationalsystem ReyKoslowski and FriedrichV. Kratochwil This article sets out a conceptual frameworkfor understandingchange in internationalpolitics by analyzingthe fundamentaltransformation of the internationalsystem occasioned by perestroikaand the revolutionsin Eastern Europe. We argue thatthe internationalsystem was transformedby the rapid successionof mostlynonviolent revolutions that replaced Eastern European communistgovernments in 1989 and by the lack of any action by the Soviet Union to stop these changes. The revolutionsof 1989 transformedthe internationalsystem by changingthe rulesgoverning superpower conflict and, thereby,the normsunderpinning the internationalsystem. Practically speak- ing,the collapse of communismin Eastern Europe hollowedthe WarsawPact and led to its disintegration.Revolution also spread fromEastern Europe to the Soviet republics,resulting in the collapse of the formalSoviet empire, whose demiseconfirmed the transformationof the internationalsystem. At firstblush the transformationconcerned only a limited area of the internationalsystem. Given the centralityof the cold war to the international system'sbipolar configuration, however, the transformationof one of itsblocs, evenif geographically circumscribed, had system-wideimplications. Hence, the changesof 1989 presenta crucialtest case forneorealism and its "systemic" approach to internationalpolitics.' Since we believe the dominantschool of internationalpolitics, structuralneorealism, does not provide a coherent This and the otherarticles in thisSymposium were preparedfor International Organization and forRichard N. Lebow and Thomas Risse-Kappen,eds., International Relations Theory and theEnd of the Cold War,forthcoming. For reading earlier draftsand providinghelpful suggestions, we thankDaniel Deudney,Avery Goldstein, Joseph Grieco, Deborah Larson, RichardNed Lebow, Susan McKenney,John Odell, KennethOye, Michaela Richter,Thomas Risse-Kappen,and David Spiro. Rey Koslowski thanks Vladimir Tismaneanu for guidance in previous research that contributedto this project. FriedrichKratochwil gratefully acknowledges the support of the LawrenceB. SimonChair in the Social Sciences. 1. See JohnLewis Gaddis, "InternationalRelations Theoryand the End of the Cold War," InternationalSecurity 17 (Winter1992/93), pp. 5-58. InternationalOrganization 48, 2, Spring1994, pp. 215-47 ? 1994 byThe IO Foundationand the MassachusettsInstitute of Technology 216 InternationalOrganization explanation for these transformations,the developmentof an alternative theoreticalframework becomes necessary.2 Takinga constructivistapproach, we argue thatin all politics,domestic and international,actors reproduceor alter systemsthrough their actions.3 Any giveninternational system does not existbecause of immutablestructures, but ratherthe very structures are dependentfor their reproduction on thepractices of the actors. Fundamentalchange of the internationalsystem occurs when actors,through their practices, change the rules and norms constitutiveof internationalinteraction. Moreover, reproduction of the practiceof interna- tionalactors (i.e., states) depends on the reproductionof practicesof domestic actors (i.e., individuals and groups). Therefore,fundamental changes in internationalpolitics occur when beliefsand identitiesof domesticactors are alteredthereby also alteringthe rules and normsthat are constitutiveof their politicalpractices. To the extentthat patterns emerge in thisprocess, they can be tracedand explained,but they are unlikelyto exhibitpredetermined trajectories to be capturedby general historical laws, be theycyclical or evolutionary. To develop our argumentfurther, we take the followingsteps. First,we criticizeneorealism's theoreticaltreatment of change by showingthat the changesof the recent past did notoccur in accordancewith its propositions and that the assumptionsof neorealismare significantlyat odds withthe actual practiceof states.Then, we develop a constructivistapproach to change that emphasizes the institutionalnature of social systems,domestic as well as international.In the next section,utilizing the constructivistapproach, we analyzethe transformationwithin the Sovietbloc and treatit as a case studyof internationalsystem change. We argue thatMikhail Gorbachev'sdecision to end the Brezhnev doctrinereversed the tactics of communistconquest of domesticpolitics. This changein the practiceof one of the major actorsin the internationalsystem led to the developmentof certainconventions similar to those of the classical European state system,which were in turn rapidly surpassed by the generationof new ones.4 In the article's conclusion,we recapitulatethe mainsteps of our discussion. 2. On structuralneorealism, see KennethWaltz, Theory of International Politics (Reading, Mass.: Addison-Wesley,1979); and Robert Gilpin,War and Changein InternationalPolitics (Cambridge: CambridgeUniversity Press, 1981). For a good reviewof the problemsrealism encounters when explainingchange, see R.B.J. Walker, "Realism, Change, and InternationalPolitical Theory," InternationalStudies Quarterly 31 (March 1987),pp. 65-86. 3. We use the term"constructivist" in the sense elaborated by Nicholas Onuf, Worldof Our Making(Columbia: Universityof SouthCarolina Press, 1989), especially part 1. See also Alexander Wendt, "Anarchy is What States Make of It: The Social Constructionof Power Politics," InternationalOrganization 46 (Spring 1992), pp. 391-425. For a furtherdiscussion see Alexander Wendt,"The Agent-StructureProblem in InternationalRelations Theory," International Organiza- tion41 (Summer1987), pp. 335-70; and David Dessler, "What's at Stake in the Agent-Structure Debate?" InternationalOrganization 43 (Summer1989), pp. 441-73. 4. By "conventions,"we mean all typesof normsand ruleswhich constitute and regulatepractices ratherthan only those norms which alleviate problems of coordination.For an extensivediscussion see FriedrichKratochwil, Rules, Norns, and Decisions:On theConditions of Practical and LegalReasoning in InternationalRelations and DomesticAffairs (Cambridge: Cambridge University Press, 1989). Symposium 217 Neorealismand change Three thingsare takenfor granted by the neorealist orthodoxy. The firstis that internationalpolitics is an autonomous realm followingits own logic; the second is thatthe internationalsystem is onlya shorthandfor the organization of force; and the thirdis that the dynamicsof the "anarchical" systemare determinedby the distributionof capabilities. Given these assumptions, neorealiststook it for grantedthat the Soviet Union and the United States wouldremain in a bipolarworld by virtue of theircapabilities, regardless of any changes in domestic politics. Therefore, it is not surprisingthat many neorealists continued to maintain that the internationalsystem had not changedeven afterGorbachev introduced perestroika and the "new thinking." Focusing solely on capabilities,this argumentcould even be "proved" by pointingto the continuationof the Sovietarms buildup under Gorbachev.5 The end ofthe cold war,however, undermined neorealist theory in twoways. First,contrary to the expectationsof the persistenceof bipolarity,the Soviet bloc disintegrated.Second, and even more damagingto thisapproach, change did not follow a path derived from any of the neorealism's theoretical propositions.The change in questionwas not the resultof a "hegemonic"or system-widewar. It was not the result of differentalliance patternsor the emergenceof another"superpower," as in the case of China in the 1970s. It was not the outcome of a sudden gap in militarycapabilities, or of U.S. compellenceas envisagedby John Foster Dulles's "rollback." Gorbachev'sactions confounded neorealist expectations when he discarded the BrezhnevDoctrine, allowed revolutionsoverthrowing Eastern European communistregimes, and accepted the demiseof the WarsawPact. Neorealism failed to explain these unilateralconcessions and conciliatorypolicies of the Soviet Union because this approach concerns itselfwith neither internal structuresof the "units" nor questionsof legitimacy.Below we show not only that domestic politics mattersbut also that Gorbachev's strategywas to counteractthe loss oflegitimacy of the CommunistParty in the EasternBloc as well as the SovietUnion. As opposed to NikitaKhrushchev, Leonid Brezhnev, and Yuri Andropovbefore him,Gorbachev realized that reformcould only succeed ifboth domestic and externalactors could be motivatedto collaborate