Richard Ned Lebow
Counterfactuals seek to alter some feature or event of the pass and by means of a chain of causal logic show how the present might, or would, be different. Counterfactual inquiry—or control of counterfactual situations—is essential to any causal claim. More importantly, counterfactual thought experiments are essential, to the construction of analytical frameworks. Policymakers routinely use then by to identify problems, work their way through problems, and select responses. Good foreign-policy analysis must accordingly engage and employ counterfactuals.
There are two generic types of counterfactuals: minimal-rewrite counterfactuals and miracle counterfactuals. They have relevance when formulating propositions and probing contingency and causation. There is also a set of protocols for using both kinds of counterfactuals toward these ends, and it illustrates the uses and protocols with historical examples. Policymakers invoke counterfactuals frequently, especially with regard to foreign policy, to both choose policies and defend them to key constituencies. They use counterfactuals in a haphazard and unscientific manner, and it is important to learn more about how they think about and employ counterfactuals to understand foreign policy.
There are lots of ways that emotions have been studied in psychology and various ways that their use has been examined in the context of foreign policy. Perhaps one of the most useful ways to examine the influence of emotion on foreign policy is through the lens of risk and threat assessment. Some approaches to emotion tend to categorize emotions as valence-based, in terms of broad-based positivity or negativity. Certainly, elements of this kind of approach can be useful, particularly in terms of thinking about the ways in which political conservatives appear to have a negativity bias. However, an investigation of discrete emotions allows a more sophisticated and nuanced exploration of the effect of emotion on risk analysis and threat assessment, in particular the effect of fear, anger, and disgust on decision-making under conditions of risky threat. Genetic, as well as environmental, circumstances can influence individual variance in the experience and expression of such emotions, and any comprehensive approach to understanding the influence of emotion on decision-making should take all these factors into account.
An improved understanding of foreign policy learning necessitates a clarification of what foreign policy learning is, who learns, and how such learning occurs. Cognitive and social psychologists, sociologists, and political scientists situated in a variety of subfields have contributed to the understanding of foreign policy learning, a multidisciplinary area of inquiry. Learning theorists seek to show how a change in an actor’s beliefs due to experience or observation can lead to changes at other units, such as organizations and within the government. This cognitive dimension is important because actors may pursue a new course of action for politically expedient reasons rather than having genuinely “learned”—a distinction referred to as “complex” vs. “simple” learning.
Foreign policy learning can be internal or external. The former type of learning entails what individuals, governments, or organizations learn from their prior experience. Learning theorists who focus on the individual level of analysis borrow insights from political psychology in an effort to shed light on the personal characteristics, the belief structures, and the cognitive psychological mechanisms of political actors that can better inform policymaking. Leaders whose cognitive structures are described as relatively open and complex—like Soviet leader Mikhail Gorbachev, whose learning brought about the dramatic changes that ultimately led to the demise of the Soviet Union—are more likely to alter their beliefs than their cognitively closed and simple counterparts.
Yet external learning occurs as well. Policy diffusion studies show that learning can result from demonstration effects. Foreign policy learning via diffusion is not instrumental, but instead occurs through osmosis. Privatization in the former communist states, China’s Foreign Direct Investment liberalization, and the diffusion of environmental norms in the European Union are examples of learning that is contagious, not chosen. A more conscious mode of learning than diffusion is policy transfer, which entails policymakers’ transferring ideas from one country and implementing them in another. Technological innovations, unlike lessons that involve political ideology, are generally easier lessons to transfer—for example, Japan’s success in applying lessons from the West to modernize its army in the second half of the 19th century.
The constraints to foreign policy learning are formidable. Decision makers are not always open to reconsidering views that challenge their beliefs. Leaders tend to resort to, and misuse, analogies that prevent learning. Even a change in a decision maker’s beliefs may not lead to foreign policy change, given the myriad political pressures, bureaucratic hurdles, and economic realities that often get in the way of implementing new ideas. Indeed, foreign policy learning and foreign policy change are not synonymous.
Scholars face significant obstacles in studying foreign policy learning. There is no consensus on the definition of learning, on what constitutes learning, on how actors learn, when they learn, or on how to assess whether learning has taken place. Despite attempts to make sense of the confusion, scholars face the daunting challenge of improving understanding of how learning is shaped and funneled through the interaction of agents and the structures in which they are situated, as well as the relationship between learning and foreign policy change.
Stephen Benedict Dyson and Thomas Briggs
Political Science accounts of international politics downplay the role of political leaders, and a survey of major journals reveals that fewer than 3% of all articles focus on leaders. This is in stark contrast to public discourse about politics, where leadership influence over events is regarded as a given.
This article suggests that, at a minimum, leaders occupy a space in fully specified chains of causality as the aggregators of material and ideational forces, and the transmitters of those forces into authoritative political action. Further, on occasion a more important role is played by the leader: as a crucial causal variable aggregating material and ideational energies in an idiosyncratic fashion and thereby shaping decisions and outcomes.
The majority of the article is devoted to surveying the comparatively small literature on political leaders within International Relations scholarship. The article concludes by inviting our colleagues to be receptive to the idiosyncrasies, as well as the regularities, of statespersonship.
Doh Chull Shin
How well do people around the world understand democracy? Do they support democracy with an informed understanding of what it is? To address these questions, which have largely been overlooked in the literature on democratization, the World Values Survey and three regional barometer surveys are analyzed according to a two-dimensional notion of democratic knowledge. Their analyses reveal that a vast majority of global citizenries especially in post-authoritarian and authoritarian countries are either uninformed or misinformed about the fundamental characteristics of democracy and its alternatives. These findings contradict the popular theses that democracy is emerging as a universal value and it is also becoming the universally preferred system of government. For much of the world today, democracy represents little more than an appealing political symbol that still retains authoritarian practices.
Sabine C. Carey and Neil J. Mitchell
Pro-government militias are a prominent feature of civil wars. Governments in Colombia, Syria, and Sudan recruit irregular forces in their armed struggle against insurgents. The United States collaborated with Awakening groups to counter the insurgency in Iraq, just as colonizers used local armed groups to fight rebellions in their colonies. An emerging cross-disciplinary literature on pro-government non-state armed groups generates a variety of research questions for scholars interested in conflict, political violence, and political stability: Does the presence of such groups indicate a new type of conflict? What are the dynamics that drive governments to align with informal armed groups and that make armed groups choose to side with the government? Given the risks entailed in surrendering a monopoly of violence, is there a turning point in a conflict when governments enlist these groups? How successful are these groups? Why do governments use these non-state armed actors to shape foreign conflicts whether as insurgents or counterinsurgents abroad? Are these non-state armed actors always useful to governments or perhaps even an indicator for state failure?
We examine the demand for and supply of pro-government armed groups and the legacies that shape their role in civil wars. The enduring pattern of collaboration between governments and these armed non-state actors challenges conventional theory and the idea of an evolutionary process of the modern state consolidating the means of violence. Research on these groups and their consequences began with case studies, and these continue to yield valuable insights. More recently, survey work and cross-national quantitative research contribute to our knowledge. This mix of methods is opening new lines of inquiry for research on insurgencies and the delivery of the core public good of effective security.