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Argumentation
and Advocacy,
Summer 2002 v39 i1 p57(15)
Public
argument-driven security studies. (Review Essay). (book review) Gordon
R. Mitchell.
Full Text: COPYRIGHT 2002
American Forensic Association
The topic of global security has recently received considerable
attention in the field of argumentation studies, with public argument
scholars engaging a host of vexing issues posed by the tumult in world
affairs triggered by the fall of the Berlin Wall (Broda-Bahm 1999; Dauber
2001a; Dauber 2001b; Leeper 2002; Mitchell 2000; Mitchell, Ayotte &
Helwich 2001; Newman 2002; Winkler 2002). A trend in international
relations (IR) mirrors this development, with a growing number of IR
scholars drawing on the concept of argumentation to explain global events
that resist snapping snugly into the tidy templates of Cold War power
politics. This moment of intellectual convergence suggests that
argumentation may be working as what rhetorical critic Leah Ceccarelli
(2001, p. 5) calls a "conceptual chiasmus" -an interdisciplinary
bridge connecting different scholarly communities working on overlapping
subject matter.
The North Carolina-based Triangle Institute for Security Studies (TISS)
has facilitated academic interchange along these lines through its
scholarly conferences and publications. (1) For example, a 1998 TISS
conference on Bridging Gaps in the Study of Public Opinion and American
Foreign Policy featured a roundtable discussion that put political
scientist Ole Holsti in conversation with public argument scholars David
Cheshier and Erik Doxtader (Cheshier, Doxtader & Holsti 1998). This
dialogue, which centered on Holsti's (1996) groundbreaking book, Public
Opinion and American Foreign Policy, hints at how the lens of argumentation
can bring sharp focus to security studies that treat public opinion and
deliberative practice as constitutive dimensions of global politics.
The overlap between public argument studies and IR scholarship becomes
clearer when one compares Thomas Goodnight's (1998) call for study of
"argument formation[s]" in world affairs with Thomas Risse's
(2000) insight that by attending to "arguing in the international
public sphere" (p. 21), IR scholars can effectively bridge rational
choice theory and social constructivism. (2) Building on Goodnight's work
and echoing Risse's suggestion, Cori Dauber & David Cheshier (1998)
locate public argument-driven security studies in a conceptual middle space
that foregrounds the iterative relationship between material conditions and
discursive practices: "[T]he political scene in any polity will be
shaped by complex interactions between public arguers, where the realities
of geopolitics and culture will shape both arguer and audience and in turn
be made the topoi and evidence of their claims" (p. 40).
It is notable that Dauber & Cheshier position their public argument
approach to security studies as an alternative to Samuel Huntington's
(1993) realpolitik "clash of civilizations" thesis, much the same
way that IR scholar Marc Lynch (2000, pp. 309-16) uses public sphere theory
to ground his critique of Huntington. This overlapping emphasis on
argumentation challenges the deterministic underpinnings of Huntington's
pessimistic worldview by illustrating how the global milieu is marked by
moments of rhetorical exigence--opportunities to color with words and
images what some paint as the inexorable march of history toward
cataclysmic conflict. It also responds to two of IR realism's explanatory
weaknesses--difficulty in accounting for the heightened efficacy of
nongovernmental organizations (NGOs) as actors on the world stage (Keck
& Sikkink 1998; Payne 2000; Payne & Samhat 2002; Samhat 1997, pp.
350-56), and descriptive myopia resulting from reductive formulations of
communicative action in global affairs (Ri sse 1999, pp. 8-14; Risse-Kappen
1995). On a normative level, the public argument approach opens a critical
aperture for commentators to articulate visions of world affairs where
international disputes are resolved and complex problems solved through
border-crossing dialogue oriented toward mutual understanding, rather than
strategic deployment of force via power, money, or arms (Association of
German Scientists 2000; Bohman 1999a, pp. 95-99; Bohman & Lutz-Bachmann
1998; Payne 1996, p. 376; Linklater 1998).
IR scholars who feature argumentation prominently in their theories face
several challenges in explaining international events using theoretical
terms usually reserved for analysis of deliberation rooted in domestic
public spheres of democratic states. Most basically, transnational
deliberations present unique logistical hurdles: "[S]evere time
constraints and the sheer complexity of practical problems in international
life are bound to prevent real discourses from achieving anything other
than an approximation of the idealized presuppositions of
argumentation" (Haacke 1996, p. 285). Even when such logistical
obstacles are surmounted, common opinions forged in international public
spheres often prove difficult to translate into policy change given the
lack of decision-making authority currently invested in international
institutions (Bohrnan 1999b, pp. 506-7). In addition, standard criticisms
of deliberative democracy levied in domestic contexts tend to have even
greater purchase when applied to internationa l public spheres. For example,
the exclusionary effects of grounding discourse to the counterfactual
assumption that domestic interlocutors share homogeneous background
assumptions (see Zulick & Laffoon 1991) may be magnified on an
international level, where the cultural, social, and religious
heterogeneity of discussants is likely to be even more pronounced.
Just as powerful actors manipulate discussion in domestic public
spheres, "norm entrepreneurs" can strategically engineer frames
for international public dialogue that serve narrow special interests and
frustrate unfettered collective will formation (Payne 2001). Finally, the
same media filters that distort democratic deliberation in domestic public
spheres are likely to corrupt argumentation even more insidiously in
transnational public spheres, where interlocutors often separated by great
physical distances must rely on technologically mediated communication to
share ideas. All these factors make it unlikely that international public
sphere dialogues will come to resemble so-called ideal speech situations.
Whether there is still value in research that explores how communicative
interaction enables and constrains will formation and policy-making in the
international milieu remains an open question, one that is broached in the pages
that follow.
The title of this review essay proposes a shorthand label for the
interdisciplinary nexus linking security-based argumentation studies and
argumentation-based security studies. I explore this nexus by reviewing
four recent books that fit loosely under the rubric of public
argument-driven security studies. Part one examines how the proposed
globalization of public sphere theory plays out in a study on Cold War
superpower relations. Part two pursues a similar vector of analysis in the
context of Jordanian foreign policy from 1988 to 1998. Part three considers
how recent technological developments and political trends complicate
efforts to cultivate critical public discussion on security matters in
entertainment-saturated spheres of public deliberation.
TRANSNATIONAL ACTIVISM AND THE COLD WAR ENDGAME
Stuart Croft and Terry Terriff's edited volume, Critical Reflections on
Security and Change, is a collection of essays that are designed to revisit
Cold War history, reflect on methods and approaches to studying security
policy, and speculate on how future trends are likely to shape the practice
and study of international relations. Some of the most useful chapters
provide introductions to the IR subfield known as critical security
studies. In one of these overview chapters, "'Change and Insecurity'
Revisited," Barry Buzan traces the roughly 20-year history of this
subfield and situates it vis-a-vis realism, IR's dominant paradigm. For
Buzan, a defining feature of the critical security studies research program
is that instead of accepting realism's theoretical categories (such as
threat, security, and state interest) at face value, it shows how these
categories are "socially constructed" through various security
discourses (p. 3). Here, the way rhetors represent material conditions in
the world becomes as im portant, if not more important, than material
conditions themselves. As Buzan points out, this emphasis on discourse and
representation simultaneously opens up security studies to diverse research
methodologies and places a host of new normative questions on the table.
These questions include "what should and shouldn't be constructed as
threats" and "whose interests are served or damaged by particular
processes of securitization and desecuritization" (p. 3). The title of
Steve Smith's chapter in the same volume, "The Increasing Insecurity
of Security Studies" signals that this is an academic field in a state
of flux. Smith provides a panoramic survey of the various approaches to security
studies that have taken root amidst the shakeup of IR's dominant paradigm:
the Third World security school; the "Copenhagen School";
constructivist security studies; critical security studies; and
poststructural security studies.
During the Cold War, talk of the "socially constructed" nature
of security threats was often dismissed in the academy and beyond as little
more than Pollyanish bluster. However, as Edward Kolodziej points out in
his chapter, "Security Studies for the Next Millennium": "The
sudden and unexpected implosion of the Soviet Union and the abrupt end of
the Cold War prompted a probing, if not always fruitful, debate about what
is--or what should be--security studies" (p. 18). Part of this debate
played out in the context of discussion about what caused the Cold War to
end. Commentators partial to the realist paradigm of power politics
explained the Soviet Union's demise as an act of capitulation to
overwhelming US military superiority (Brzezinski 1992; Kirkpatrick 1990).
Kolodziej, echoing many other voices in critical security studies,
disputes this account: "[The military dimension of the East-West
competition does not appear to have been determinative in explaining either
the timing, speed and wholesale unraveling of the Soviet state and empire"
(p. 24; see also Deudney & Ikenberry 1992, p. 124; Pike, Blair &
Schwartz 1998, pp. 295-97; Powaski 1998, p. 260; Reiss 1992, pp. 192-93).
So if the mighty steel of US military strength did not tame the Russian
bear, what did? Matthew Evangelista's answer to this question should pique
the interest of argumentation scholars. In Unarmed Forces, Evangelista
posits that the sharing of "information, arguments, [and] ideas"
between networks of Soviet and American transnational activists constituted
a major factor that influenced superpower policy and eventually brought
about a peaceful end to the Cold War (p. 7). Turning to case studies of
debates concerning nuclear testing, antiballistic missile defense, and
conventional force deployments, Evangelista literally pries open what he
calls the "black box" (p. 7) of Soviet policy, documenting
previously obscured aspects of Cold War history through exhaustive study of
Soviet-era archives, numerous interviews of key Soviet-era officials,
review of recent memoir accounts, and inspection of newly declassified US
and British archival documents.
Many of these resources chronicle cooperative efforts by Soviet and
American scientists, doctors, and activists to create independent channels
of communication that kept accurate and reliable information about military
intentions and deployments flowing in both directions. Such lines of
communication also galvanized an interlocking pattern of peace movement
activism that steered Soviet and American leaders toward more moderate
postures and policies. Evangelista cites the early "Pugwash"
meetings between US and Soviet scientists as the "birth" of such
transnational activism (pp. 31-35). During the 1950s, such meetings helped
dramatize the danger of nuclear fallout in the respective public spheres,
creating political momentum that eventually produced a nuclear test ban
agreement.
Following a chronological pattern, Evangelista proceeds to track the
entry of a new class of players to the stage of transnational activism in
the 1970s-medical doctors. Taking advantage of the opportunity to treat
aging Soviet leaders, American physicians such as Bernard Lown visited the
Soviet Union and formed lasting relationships with Soviet counterparts such
as Evgenii Chazov. The Lown-Chazov connection paved the way for the
Boston-based Physicians for Social Responsibility (PSR) to evolve into a
transnational network that eventually became the International Physicians
for the Prevention of Nuclear War (IPPNW). Comprising some 200,000 members
from 80 countries, the IPPNW won the Nobel Peace Prize in 1985.
In 1981 Lown traveled to the USSR with Carl Sagan, under IPPNW auspices,
to make a remarkable series of public appearances desigued to educate
Soviet audiences about the nuclear arms race. At the time, Lown and Sagan
were vilified in the US by Cold War hawks who felt that such discussion
would compromise American military credibility and bolster Soviet resolve
to win a nuclear war. Evangelista's research shows that such transnational
activism had the reverse effect. Accurate reportage of IPPNW meetings
appeared in Soviet newspapers such as Pravda (circulation 10 million);
Izvestiia (over 8 million); Komsomol'skaia pravda (10 million); and
Literaturnia gazeta (over 2.5 million). Soviet national television broadcast
nine IPPNW congresses, reaching additional millions. According to
Evangelista, these efforts "set a precedent for public
discussion--'glasnost'--on nuclear issues, well before Mikhail Gorbachev
came into office and began using the term" (p. 155). Evangelista
documents how Gorbachev later acknowledged the significance of IPPNW
activism by presenting to Lown a copy of the 1987 Intermediate-Range
Nuclear Forces Treaty that bore the following inscription: "Dear
Bernard! I want to thank you for your enormous contribution to preventing
nuclear war. Without it and other powerful anti-nuclear initiatives, it is
unlikely that this Treaty would have come about. I wish you all the best.
Mikhail Gorbachev" (p. 876).
Evangelista's most convincing analysis shows how transnational linkages
shaped the course of Gorbachev's presidency. He tracks the way that
physicists and doctors, working alongside peace activists such as Randall
Forsberg of the Institute for Defense and Disarmament Studies (IDDS), were
able to create "breathing room" necessary for Gorbachev and US
president Ronald Reagan to engineer a peaceful Cold War endgame.
In addition to coordination of specific policy initiatives, the
transnational network of US and Soviet disarmament supporters also worked
together to create an overall atmosphere conducive to restraint on each
side. In order for Gorbachev to succeed in cutting back Soviet military
programs and military spending, he had to make a plausible case that the
United States did not pose a serious threat to Soviet security ... As the
Nuclear Freeze movement sought to persuade Ronald Reagan that he had to
tone down his harsh rhetoric about the Soviet Union and careless comments
about nuclear war, Soviet reformers pushed initiatives that would diminish
the 'enemy image' of the USSR in Reagan's eyes.... The warming of US-Soviet
relations would not have been possible had Reagan not been pushed by the US
peace movement to address the threat of nuclear war.... American
transnational activists, while trying to constrain US military programs,
also considered it important to persuade the Soviet government that it did
not pose a threat so grave that Soviet unilateral restraint or even
negotiated settlements would be dangerous.... They managed to persuade
Gorbachev, sometimes in direct discussion, that the Soviet Union should
'unlink' the signing of a strategic weapons reduction treaty from US
pursuit of SDI. Star Wars, they argued, would eventually fade away,
especially if the Soviet Union continued to pursue its reformist course in
defense and disarmament, not to mention internal democratization (pp.
383-4, emphasis added).
Evangelista's findings raise serious questions about realpolitik models
of international relations that explain US Cold War victory over the Soviet
Union in terms of one mammoth billiard ball smashing into and destroying
its more fragile counterpart. His impressive empirical research illustrates
how threats, policies, and norms were constructed and deconstructed by
argumentation conducted in transnational channels of communication. If the
significance of this finding for students of argumentation is not already
apparent, it becomes obvious in Evangelista's final case study, which
examines the influence of transnational activism on post-Soviet policy.
In 1989, renowned poet Olzhas Suleimenov founded a movement to halt
nuclear testing in the republic of Kazakhstan. As Evangelista explains,
this movement was transnational from inception--by naming their group
"Nevada," Suleimenou and his fellow activists attempted to
"attract the attention of grassroots antinuclear activists
('downwiders') working to shut down the US test site in Nevada" (p.
352). These efforts succeeded in galvanizing quickly a transnational
movement that brought some 50,000 protesters to a demonstration in
Kazakhstan on August 6, 1989 (Hiroshima day). Evangelista was present at
another important event in the Kazakh village of Karaul in May 1990, when
Lown and Suleimenov dedicated a monument to victims of nuclear testing.
According to Evangelista, "The impact was direct and powerful. An
official in the Soviet foreign ministry admitted in early 1990 that the
movement was responsible for forcing the Soviet military to cancel eleven
of its eighteen scheduled nuclear tests for 1989... In December 1990, the
Kazakhstan parliament banned nuclear weapons testing on the republic's
territory" (p. 354). Evangelista notes that eventually, this decision
worked as "a key prerequisite for the United States, Britain, France,
and China to cease their tests" (p. 9).
Rhetorical scholars steeped in knowledge of how naming produces powerful
bonds of identification will appreciate the way in which Suleimenov's
decision to call the Kazakh anti-nuclear testing movement
"Nevada" played an important role in fomenting the transnational
activism chronicled by Evangelista. Future studies might explore how
similar patterns of rhetorical invention shape efforts to forge
transnational social movements in the security realm. This work would find
theoretical support in a burgeoning corpus of literature focusing on the
transnational dimensions of social movement activity (see e.g. Cohen &
Shirin 2000; Khagram, Riker & Sikkink 2002; Smith, Chatfield &
Pagnucco 1997). One challenge facing scholars pursuing this line of investigation
is that the frequently episodic nature of transnational activism
complicates its categorization as social movement activity. For example,
Sidney Tarrow (1998, pp. 184-88) stipulates that sustained, rather than
temporary or sporadic, contact is necessary for transnational activism to
reach the status of a social movement.
Another aspect of Evangelista's work that hints at future lines of
research in argumentation studies lies on a theoretical level. In
developing his theory of transnational activism, Evangelista acknowledges a
significant debt to Risse's "pathbreaking" work on transnational
public spheres (p. 17; see also RisseKappen 1995). Recently, Risse (2000)
refined his theory of "communicative action in world politics."
Scholars of argumentation and rhetoric may be curious to note that in this
explication, Risse relies heavily on a distinction between
"arguing" and "rhetorical behavior" to explain
precisely how his approach differs from neorealist IR perspectives that
purport to account for communicative action in world affairs (see also
Schimmelfennig 2001; Schimmelfennig 1999). According to Risse, neorealist
approaches tend to rely on a "cheap talk" model of communication,
where international actors engage in communication strategically to persuade
interlocutors, but are not really willing to change their positions ba sed
on outcomes of deliberation: "[A]ctors engaging in rhetoric are not
prepared to change their own beliefs or to be persuaded themselves by the
'better argument'" (Risse 2000, p. 8). This form of international
communication stands in sharp contrast to what Risse calls the
"arguing mode," where parties attempt to approximate Habermasian
dialogues geared toward mutual understanding: "[I]n contrast to
rhetorical behavior, they are themselves prepared to be persuaded"
(Risse 2000, p. 9).
Risse's distinction between rhetoric and argument does not find much
support in rhetorical theory, where reductive approaches that treat
rhetoric as strategic manipulation are criticized roundly for their
conceptual thinness. Thicker descriptions position rhetoric as a practical
art of using dialogue to coordinate action when interlocutors at
loggerheads are forced to act in situations marked by uncertainty, or when
collective decisions must be made before all the relevant facts are in
(Doxtader 1991; Farrell 1993). Public argument-driven security studies
might fruitfully explore how these insights could help differentiate
bargaining (purely strategic communication undertaken for instrumental
purposes); arguing (dialogue oriented toward mutual understanding); and
rhetoric (the communicative search for joint agreement on necessary actions
in light of imperfect conditions). Such differentiation could enhance the
descriptive power of IR theories by adding texture to the argument/rhetoric
binary some approaches use to explain communicative action in international
politics.
SECURITY DEBATES IN ARAB PUBLIC SPHERES
In 1988, the Hashemite Kingdom of Jordan surprised the world by
relinquishing its claim to the West Bank, effectively severing ties with
thousands of Palestinians living on territory that was once part of Jordan.
During the 1990 Gulf crisis, Jordan bucked world expectations again by
refusing to join the US-led military coalition against Iraq. In signing a
1994 peace treaty with Israel, the Jordanian leadership made yet another
unanticipated foreign policy move that was difficult to explain from within
the realist IR framework. Realism holds that international relations can be
described accurately and predicted reliably by examining how state
interests and national identities animate foreign policy decisions. Yet in
each of the instances listed above, Jordanian foreign policy appeared to
diverge from, and even to contradict, longstanding interests of the
Jordanian state and identities of the Jordanian people.
Marc Lynch takes this conundrum as a key point of departure for his
book, State Interests and Public Spheres. This work advances a theory of
international relations designed to sharpen accounts of Jordanian behavior
from 1988-1998. At the center of Lynch's approach is the notion that shifts
in state interests and national identity can occur when public spheres of
deliberation enable the airing of competing viewpoints in episodes of
argumentation: "[S]tate identity and interests ... become subject to
change at those points when an open public sphere permits the appearance of
public deliberation oriented toward questioning consensus norms" (p.
255). In a move that globalizes this theory, Lynch stipulates that public
spheres of deliberation need not map cleanly onto the predetermined
boundaries of state borders: "Instead of conceptualizing the public
sphere as a single, unified arena in which a unified public debates the
affairs of a single state, it is possible to think about public sphere
structure as a netwo rk of overlapping and competing publics, which are not
necessarily bounded by state borders" (p. 47).
Lynch draws upon field research conducted in Jordan, Egypt, and the West
Bank, along with analysis of Arabic media publications and documents from
official archives, to show how public spheres of deliberation developed in
Jordanian society and the Arab world from 1988-1998. He documents how the
Jordanian norm of hiwar (dialogue) was nurtured during this period through
spikes in newspaper circulation, spread of radio transmitters, relaxation
of state control over media outlets, and greater participation of editorial
commentators from across the political spectrum.
Lynch's theory is not presented as a brand of full-blown constructivism
designed to undermine completely the rationalist explanations yielded by
IR's realist paradigm. Rather, Lynch argues, "a public sphere approach
can bridge constructivist and rationalist arguments" (p. 11). A temporal
distinction sets up this bridging maneuver. In periods of "normal
politics," when "an effective public sphere does not exist,"
Lynch says that the rationalist tools of IR realism work well, because
"actor identity and interests are likely to be relatively stable"
(p. 11). Echoing Thomas Kuhn (1970), Lynch adds, "Identities and
interests change primarily during moments of crisis, when they lose their
'taken for granted' quality and become the subject of explicit public
debate" (p. 12). The key moments of change in Jordanian foreign policy
described in State Interests and Public Spheres are all preceded by
episodes of crisis when state identities and interests are thrown into flux
and thematized as topics of public debate.
The case studies in State Interests and Public Spheres describe how
these nascent public spheres influenced Jordanian security policy by
enabling fundamental transformations in interests and identities. For
example, Lynch suggests that Jordan's "severing of ties" with the
West Bank was made possible by two-tiered process of public deliberation.
On one level, Jordanian diplomats persuaded skeptical Arab colleagues that
disengagement would fortify Palestinian identity and further the interests
of an emergent Arab consensus by enhancing the collective security of all
Arab nations. With such a tentative consensus secured, King Hussein
announced the severing of ties with the West Bank in 1988, an act that
inaugurated commencement of a second phase of deliberation in Jordan's
domestic public sphere. In the ensuing debate, vigorous argumentation
prompted calcified norms to shift in the key sites of Jordan's nascent
public sphere: professional associations, political parties, the press, the
Islamist movement, and pu blic opinion surveys. In Lynch's view, "Change
in jordanian identity and interests--a change in preferences over
outcomes--could only be produced by a domestic dialogue and the
reconfiguration of domestic institutions. The emergence of the Jordanian
public sphere in the 1990s provided a site for such deliberation" (p.
100). Similar patterns of public sphere activity are isolated as pertinent
agents of change in Lynch's two other case studies: Jordan's boycott of the
US Gulf War coalition and its signing of a 1994 peace treaty with Israel.
While Lynch is keen to highlight the constitutive role of public
participation in influencing Jordan's security policy from 1988-1998, he is
quick to distinguish his approach from realist accounts that fill
explanatory gaps on an "ad hoc basis" by citing public opinion as
a factor "constraining" policymaking: "It is important to
distinguish between public opinion, as conventionally employed by foreign
policy analysts, and the public sphere.... Rather than simply being a
question of the extent to which public opinion constrains state policy, the
issue is the extent to which public sphere discourse constitutes the
state's articulation of interests" (p. 21). Lynch reveals his
Habermasian affinities here, insisting that public sphere dialogue is more
than just "cheap talk"--in his view, such dialogue has the power
to reconstitute the fundamental building blocks upon which foreign policy
rests.
If Lynch is correct about the strong function of public sphere
deliberation in constituting state identities and interests, policymakers
(especially those in the United States) would do well to heed his
concluding remarks, which suggest that public sphere theory "has
important implications for the debates over the appropriate response to
'rogue' regimes in the international society" (p. 269). In a world
where state interests and identities have roots that go all the way down to
civil society, cosmetic regime changes are unlikely, in the long run, to
produce more moderate policies in so-called rogue states.
Near the end of State Interests and Public Spheres, Lynch hints at a
more promising approach for dealing with Iran, one of the nations recently
branded as part of the Bush administration's "axis of evil." A
policy of engagement and dialogue, Lynch suggests, "can offer the
potential for changing preferences and for identifying common identities
and interests" (p. 269). Elsewhere, Lynch (2000) expounds on this
idea, blending Iranian President Mohammed Khatami's prescription for a
"dialogue of civilizations" with international public sphere
theory to craft a vision of global affairs where the persuasive cachet of
argumentation supplants coercion and manipulation as primary modes of
communication (see also Association of German Scientists 2000).
Lynch is hopeful that his account of the "Arabist public
sphere" will have enduring salience and "inform a generalizable
international public sphere theory" (p. 34). Some readers may not
share Lynch's sanguine outlook on this point, given that his approach draws
heavily from Jurgen Habermas, whose work focuses primarily on the role of
deliberation in highly developed capitalist societies. The question of
whether Habermasian theory has sufficient flexibility and explanatory scope
to elucidate the dynamics of a putative global public sphere (which
includes many nations and peoples who do not openly embrace Western norms
of political deliberation) has been the focus of recent debate in critical
theory (Calhoun 2002; Dallmayr 2001; Habermas 2001; Habermas 1998; McCarthy
2002).
Public argument scholars are well-positioned to contribute to this
debate, perhaps by using their expertise in argumentation to identify and
address theoretical anomalies present in public sphere-based accounts of
international relations. For example, Lynch's (p. 11) notion that "an
effective public sphere does not exist" when identities and interests
remain stable during periods of "normal politics" sounds much
like Thomas Farrell and Thomas Goodnight's (1981) description of "accidental
publics" that only come into being during catastrophic episodes.
However, it seems untenable to maintain that public sphere structures
disappear when crises subside and "normal politics" resume. In
fact, many case studies in argumentation document precisely how public
sphere activity plays a significant role in will formation during periods
of "normal politics" (see Palczewski 2001; Rowland & Jones
2002; Zarefsky 1986).
Perhaps Lynch's international public sphere theory could be modified to
account for this anomaly by including the concept of
"controversy." In the parlance of argumentation studies,
controversy is a phenomenon that occurs when underlying norms of
communication are contested through "oppositional arguments"
levied in public spheres of deliberation (see Goodnight 1993; Goodnight
1999; Mitchell 2000; Olson & Goodnight 1994; Phillips 1999). If Lynch
described periods of international deliberation when state interests and
identities are contested as episodes of international public controversy,
he might position himself better to articulate how public sphere structures
persist during periods of "normal politics" that follow the
resolution of controversy.
THE MIME-NET AND SPECTATOR SPORT WARFARE
The US Marine Corp Modeling and Simulation Office recently acquired and
modified the popular video game Doom for training exercises, altering the
software to replace monsters with realistic simulations of enemy forces
that young soldiers might encounter during actual combat. In Kosovo, NATO
bombardiers wielded hand-held "wizzos," Nintendo-like devices
that helped pilots guide precision weaponry to their targets from 40,000
feet. For U.N. coalition soldiers, the battlefield experience of the Gulf
War similarly recalled childhood visits to the video arcade.
In Virtuous War, James Der Derian explores these phenomena as part what
he calls the Military-Industrial-Media-Entertainment Network (MIME-NET).
Der Derian sees the MIME-NET as an extension of the "Revolution in
Military Affairs" (RMA), a trend in arms procurement and military
doctrine that favors development and deployment of sophisticated, high-tech
weaponry (Freedman 1998; Laird & Mey 1999). As a latter day incarnation
of President Dwight D. Eisenhower's Military Industrial Complex, the
MIME-NET represents, an interlocking constellation of organizations and
interests that controls the tenor of public debate on security policy
(increasingly by exploiting interfaces between warfare and media
entertainment networks): "[T]he new MIME-NET runs on video-game
imagery, twenty-four hour news cycles, multiple nodes of military,
corporate, university, and media power, and microchips, embedded in
everything but human flesh (so far)" (Der Derian 2001, p. 126).
Those familiar with Der Derian's work may be surprised by Virtuous War,
which reads more like a travelogue than the high postmodern theory for
which he has become known in critical security studies circles. In the
prologue, Der Derian shares that in order to "separate the hype from
the hyperreality of virtuous war," he decided to "avoid the vices
of academic abstraction... and to go where doctrine confronts reality"
(p. xx). Thus, readers find themselves accompanying Der Derian on a
whirlwind tour of the Pentagon's cutting-edge, high-tech infrastructure
that includes visits to the Institute for Creative Technologies Convention
(where the latest military simulation gadgetry is displayed), the US Army's
Simulation, Training, and Instrumentation Command post (STRICOM, where
high-ranking military officers plan the next steps in advanced virtual
warfare), and the US Army Southem European Task Force headquarters in
Vicenza, Italy (a central computer node for the NATO air campaign in
Kosovo). Der Derian stops along the way for a series of conversations with
military leaders such as Vice Admiral Arthur Cebrowski, STRICOM technical
director Mike Macedonia, and General Wesley Clark--verbatim transcripts of
these interviews fill some 23 pages of Virtuous War.
While Der Derian seems genuinely impressed by the futuristic military
technology he encounters, this sense of awe only redoubles the moral and
political qualms he harbors about the MIME-NET. Specifically, he finds the
virtualization of the warfare troubling because of its tendency to produce
phenomenological detachment from battlefield violence: "Through the
MIME-NET, the enemy can be reduced to an icon in a target-rich environment,
perhaps even efficiently vilified and destroyed at a distance" (p.
147). The sense of alienation created by the conflation of entertainment
technology and actual combat, Der Derian says, numbs soldiers and publics
alike to the brutality of warfare: "In this high-tech rehearsal for
war, one learns how to kill but not to take responsibility for it, one
experiences 'death' but not the tragic consequences of it" (p. 10). On
a political level, Der Derian asserts that this process results in a
hollowing out of political discourse, with virtual pyrotechnics
substituting for collective d eliberation about matters of war and peace:
"[S]omething is lost in virtuality: not only the possibility but the
very concept of political difference is hollowed out. It stops being a site
of negotiation and becomes a screen for the display of dazzling virtual
effects, from digital war games to national party conventions to
video-camera bombing" (p. 202). The title of Virtuous War conveys Der
Derian's warning about the political pliability of virtual warfare. He says
that with the direct experience of battlefield carnage emptied from media
representations of actual conflict, it becomes much easier for war hawks to
take the moral high ground and justify the use of force by packaging
risk-free humanitarian missions as virtuous campaigns.
A recent TISS report surveys how the values, opinions, and perspectives
of military leaders differ from those of their civilian counterparts (Kohn
& Feaver 1999). Part of this report features Cori Dauber's public
argument analysis on how differing views of "casualty shyness"
structures public deliberation and steers policy-making. This analysis caught
Der Derian's attention--in Virtuous War (p. 171), he cites the casualty
shyness portion of the TISS study (he calls it "casualty
aversion") to help explain why organizations such as the Institute for
Creative Technologies craft virtuous war narratives that resonate in the
MIME-NET framework of public debate. Here is one instance of intellectual
traffic crossing the Ceccarellian "conceptual chiasmus" that
bridges argumentation studies and JR scholarship.
It is illuminating to read Virtuous War alongside two chapters from
Croft and Terriff's Critical Reflections on Security and Change that touch
on similar topics. In "Watersheds in Perception and Knowledge"
Craig Demchak describes how rapid advances in military technology portend
sea changes in war doctrine and political discourse. The military's
traditional reliance on lethality, reach and resupply as force multipliers
has shifted to an emphasis on tools that maximize accuracy, speed and
legitimacy. In this "watershed" period of transition, Demchak
argues that new military preferences are bound to emerge regarding
technologies, doctrines and tactics.
Colin McInnes' chapter, "Spectator Sport Warfare," pursues the
entertainment angle stressed by Der Derian, showing how high-tech weaponry
blurs boundaries between sport and war. McInnes describes how the
"major wars" of the early twentieth century have given way to
more localized conflicts that unfold far from the capitols of Western
democracies. With the sense of war's direct risk diluted by physical
distance, McInnes says citizens come to experience warfare as spectators,
"located out of harm's way but engaged courtesy of the media" (p.
160). McInnes suggests that in this condition, public discourse on security
matters comes to resemble commentary on sporting events.
The suicide hijackings of September, 2001 cast fresh light on the
analysis provided in Demchak and McInnes' chapters. At face value, McInnes'
proposition that war has become a spectator sport for Western publics seems
to have crumbled along with the World Trade Center. Yet closer inspection
of his argument reveals a nuance--McInnes treats spectator sport warfare
less as a naturalized condition and more of a calculated strategy pursued
by military leaders to enhance the legitimacy of their actions. As such, he
anticipates that technologically disadvantaged adversaries will resort
increasingly to asymmetric strategies of attack that are designed to
puncture the veneer of virtuality by drawing Western spectators directly
into the field of violence:
[T]he West's lead in RMA technologies might lead enemies to adopt
'asymmetric strategies.' These strategies are generally aimed not at
winning battles but at drawing Western societies more directly into a war,
through attacks on infrastructure or populations. In other words the
concern about asymmetric strategies is not related to their direct impact
on the battlefield but to their ability to prevent war from being a
spectator sport (p. 160).
Demchak's analysis also contains elements that deserve a second look in
the post-9/l1 milieu. According to Demchak, as the RMA prepares Western
military forces to fight futuristic conflicts that bear little resemblance
to the "great wars" of the early twentieth century, the concept
of war itself is likely to undergo transformation. Here, traditional views
of wars as contests between state armies are likely to give way to models
where Western militaries use technological wizardry to target specific
organizations and even individual persons: "This 'repersonalization of
war' harkens back to military conflicts of several centuries ago when the
battle goal was to kill the king or the general. . . the battle ended as
soon as someone made it up there [on the mountain] to kill the major
lord" (p. 188). While the current US "war on terror" is unlikely
to end with the capture or "liquidation" of Osama bin Laden,
Demchak's observations about the protean nature of warfare certainly seem
to have added salience in the mids t of a conflict where American forces
have targeted a terrorist organization reputed to have havens in over 60
nations. One political complication Demchak sees in a world where military
missions increasingly take on the character of police actions is that such
actions become harder to track and control via political instruments: "Under
these new definitions, preventive and highly personalized military actions
which are only possible with information warfare technologies then become
social corrections of possible unwanted severe behaviours, not war by other
means. As such, such military operations will become more ubiquitous and
more difficult to control by treaties" (p. 189).
CONCLUSION
As the interlocking trends of economic globalization and political
interdependence gather momentum, stresses on the state-centric system of
world politics are likely to mount. It is a safe bet that leaders of
national governments will find options for effective unilateral action
increasingly scarce in a twenty-first century milieu where policy
challenges such as environmental protection, global security, and economic
stability demand new forms of political cooperation. "With regard to
the political means and ends of traditional grand strategy, the realist and
neorealist days of state-monopolized 'high politics' (see Morgenthau 1948;
Walta 1979) are likely numbered, as the rise of nonstate actors and the
emergence of a global civil society bring the social dimension of world
politics to the fore" (Arquilla & Ronfeldt 1999, p. 56). As
defense analysts John Arquilla and David Ronfeldt explain further, these
new conditions warrant a shift away from the dominant realpolitik framework
of international relations, t oward a noopolitik approach that locates the
engine of world politics in globally linked communication networks where
competing ideas shape the course of events.
Although Arquilla & Ronfeldt (2000) suggest that these trends
portend a "revolution in diplomatic affairs," such a
communicative approach to international relations is less revolutionary
than might appear on first glance. Evangelista's Unarmed Forces shows how
Soviet and US transnational activists forged communicative links outside
established channels of interstate diplomacy to shape the Cold War endgame.
More recent examples of such policy-relevant international public sphere
activity are documented in Lynch's State Interests and Public Spheres,
which details the role of popular dialogue in constituting Jordanian
security policy.
These books exhibit the heuristic value of viewing public argument as a
constitutive dimension of security policy. Such public argument-driven
security studies might be enriched by interdisciplinary dialogue that turns
overlapping concepts into productive points of theoretical synergy. For
example, Risse and Schimmelfennig's strand of IR constructivism, which is
notable for its emphasis on the role played by rhetoric in shaping foreign
policy, draws upon Habermas' theory of communicative action for support.
Yet in the field of argumentation studies, Habermas' view of rhetoric has
been subjected to vigorous critique--the notion that rhetoric is little
more than strategic manipulation of audience preferences has been widely
discredited, displaced by thicker accounts that position rhetoric as the
practical art of using dialogue to reach collective decisions in moments of
uncertainty. Theoretical conversation about the dynamics of rhetorical
action in international affairs might take this conceptual divergence a s a
promising point of departure.
Another potential point of interfield synergy converges around the
notion of the "public sphere." Evangelista and Lynch rely heavily
on public sphere analysis in their respective projects, and their expansive
international vision demonstrates the considerable potential of a public
argument-driven IR approach. Perhaps cross-pollinating this critical
strategy with public sphere concepts developed elsewhere could be useful.
For instance, the idea of "counter-public spheres" has received
significant attention recently in the field of communication (Asen &
Brouwer 2001; see also Felski 1989; Fraser 1989). The notion of
"international counter-public spheres" has not yet been
thematized in IR circles. However, it is not difficult to imagine how this
theoretical construct could augment public argument-driven accounts of
international relations. Consider that much of the transnational political
debate featured on the Internet not only challenges official state
policies, but also calls into question the explicit and t acit norms of
communication governing debate in formalized international public spheres
of deliberation. To the extent that such communicative behavior bears a
resemblance to domestic "counter-public sphere" activity designed
to carve out independent spaces for discussion in polities where the
official public sphere is insufficiently inclusive, such transnational
dialogue might be perspicuously elucidated using counter-public sphere
theory.
Ever since Immanuel Kant (1795/1957) proposed that a global association
of republics linked by a common commitment to free speech and deliberation
might bring "perpetual peace," leaders, citizens and scholars
have wondered about the prospect of a world ordered more by words than
weapons. Kant's universalist musings seem naively utopian in the present
milieu, where the dangers of apparently intractable conflicts are
heightened daily by the spread of advanced weapons geared toward mass
destruction. But while Kant's vision of "perpetual peace" may
remain an ever-elusive fiction, the growing salience of transnational
deliberation in world politics is an inescapable fact. The erosion of
nation-state sovereignty, spread of global communication technology, and
rapid development of economic and political interdependence are factors
that have combined to change the global landscape dramatically. The books reviewed
in this essay show how public argumentation can have powerful political
cachet in this new landscape, an d how technological trends give rise to
new forms of argumentation with potential to shape events in ways that are
only beginning to be understood.
(1.) The Triangle Institute for Security Studies (TISS) is an
interdisciplinary consortium of Duke University, The University of North
Carolina at Chapel Hill, and North Carolina State University. The object of
TISS is to promote communication and cooperation among faculty, graduate
students, and the public across disciplines and beyond the confines of each
university in order to advance research and education concerning national
and international security, broadly defined. Originally established in 1958,
TISS has benefited from private foundation funding, most notably from the
Ford Foundation, in addition to its university backing, and from help from
such other agencies as the National Strategy Information Center and the
Army War College (see the TISS website online at
http://www.unc.edu/depts.tiss).
(2.) Rational choice theory, derived from the tenets of IR realism,
explains world events by showing how foreign policy decisions are driven by
state actors seeking to further national interests and protect national
identities. Social constructivist IR approaches aim to dc-naturalize such
descriptions by elucidating the social factors underlying realist accounts.
BOOKS REVIEWED
CRITICAL REFLECTIONS ON SECURITY AND CHANGE. Edited by Stuart Croft and
Tery Teriff. London: Frank Cass Publishers, 2000; P. vii + 255. $53.55;
paper $22.05.
STATE INTERESTS AND PUBLIC SPHERES: THE INTERNATIONAL POLITICS OF
JORDAN'S IDENTITY. By Marc Lynch. New York: Columbia University Press,
1999; p. ix + 327. $50.00; paper $19.50.
UNARMED FORCES: THE TRANSNATIONAL MOVEMENT TO END THE COLD WAR By
Matthew Evangelista. Ithaca, NY: Cornell University Press, 1999; pp. v +
406. $49.95; paper $19.95.
VIRTUOUS WAR: MAPPING THE MILITARY-INDUSTRIAL-MEDIA-ENTERTAINMENT
NETWORK. By James Der Derian. Boulder, Colo.: West-view Press, 2001; pp. xi
+ 249. $26.00.
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Gordon R.
Mitchell *
* Gordon R.
Mitchell is an Associate Professor and
Director of Debate in the Department of Communication at the University of
Pittsburgh. Correspondence concerning this review essay should be addressed
to Gordon R
Mitchell, 1117 Cathedral of Learning,
4200 Fifth Avenue, Pittsburgh, PA 15260; gordonm@pitt.edu.
Named Works: Critical
Reflections on Security and Change (Book) - Reviews; State Interests and
Public Spheres: The International Politics of Jordan's Identity (Book) -
Reviews; Unarmed Forces: The Transnational Movement to End the Cold War
(Book) - Reviews; Virtuous War: Mapping the Military-Industrial-Media-Entertainment
Network (Book) - Reviews
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