Beyond the Nation-State | Boston Review - 0 views
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The Westphalian order refers to the conception of global politics as a system of independent sovereign states, all of which are equal to each other under law. The most popular story about this political system traces its birth to the Peace of Westphalia in 1648, follows its strengthening in Europe and gradual expansion worldwide, and finally, near the end of the twentieth century, begins to identify signs of its imminent decline. On this view, much of the power that states once possessed has been redistributed to a variety of non-state institutions and organizations—from well-known international organizations such as the UN, the EU, and the African Union to violent non-state actors such as ISIS, Boko Haram, and the Taliban along with corporations with global economic influence such as Facebook, Google, and Amazon. This situation, the story often goes, will result in an international political order that resembles medieval Europe more than the global political system of the twentieth century.
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Over the last two decades, scholars working on the history of the global order have painstakingly shown the complete mismatch between the story of Westphalia and the historical evidence. The nation-state is not so old as we are often told, nor has it come to be quite so naturally. Getting this history right means telling a different story about where our international political order has come from—which in turn points the way to an alternative future.
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Generations of international relations students have absorbed the idea of the 1648 Peace of Westphalia as a pan-European charter that created the political structure that now spans the entire globe: a system of legally (if not materially) equal sovereign states. Along with this political structure, this story goes, came other important features, from the doctrine of non-intervention, respect of territorial integrity, and religious tolerance to the enshrinement of the concept of the balance of power and the rise of multilateral European diplomacy. In this light, the Peace of Westphalia constitutes not just a chronological benchmark but a sort of anchor for our modern world. With Westphalia, Europe broke into political modernity and provided a model for the rest of the world.
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In fact, the Peace of Westphalia strengthened a system of relations that was precisely not based on the concept of the sovereign state but instead on a reassertion of the Holy Roman Empire’s complex jurisdictional arrangements (landeshoheit), which allowed autonomous political units to form a broader conglomerate (the “empire”) without a central government.
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What we have come to call the Peace of Westphalia actually designates two treaties: signed between May and October 1648, they were agreements between the Holy Roman Empire and its two main opponents, France (the Treaty of Münster) and Sweden (the Treaty of Osnabrück). Each treaty mostly addressed the internal affairs of the Holy Roman Empire and smaller bilateral exchanges of territory with France and with Sweden.
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The treaties were only properly mythologized in the late eighteenth and early nineteenth centuries, when European historians turned to the early modern period in order to craft stories that served their own worldview.
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Looking for a story of states fighting for their sovereignty against imperial domination, nineteenth-century historians found exactly what they needed in the anti-Habsburg fabrications that had been disseminated by the French and Swedish crowns during the Thirty Years’ War
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Leo Gross’s essay “The Peace of Westphalia: 1648–1948,” published in 1948 in the American Journal of International Law. Canonized as “timeless” and “seminal” at the time, the article gave meaning to the emerging postwar order. By comparing the 1945 UN Charter to the Peace of Westphalia, Gross rehashed a story about treaties for freedom, equality, non-intervention, and all the rest of the alleged virtues for reinventing national sovereignty
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The solution to the Westphalia debacle, then, would seem to lie in putting forward an alternative narrative grounded in greater historical accuracy, one that reflects the much more complicated process through which the modern international order came about.
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Until the nineteenth century, the international order was made up of a patchwork of polities. Although a distinction is often made between the European continent and the rest of the world, recent research has reminded us that European polities also remained remarkably heterogeneous until the nineteenth century. While some of these were sovereign states, others included composite formations such as the Holy Roman Empire and the Polish-Lithuanian Commonwealth, within which sovereignty was divided in very complex ways.
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Sovereign statehood only became the default within Europe in the nineteenth century, with entities like the Holy Roman Empire gradually giving way to sovereign states like Germany. While often overlooked in this regard, Latin America also transitioned into a system of sovereign states during that period as a result of its successive anti-colonial revolutions.
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Over the past several decades, the state has not only triumphed as the only legitimate unit of the international system, but it has also rewired our collective imagination into the belief that this has been the normal way of doing things since 1648.
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As late as 1800, Europe east of the French border looked nothing like its contemporary iteration. As historian Peter H. Wilson describes in his recent book Heart of Europe (2020), the Holy Roman Empire, long snubbed by historians of the nation-state, had been in existence for a thousand years at that point; at its peak it had occupied a third of continental Europe. It would hold on for six more years, until its dissolution under the strain of Napoleonic invasions and its temporary replacement with the French-dominated Confederation of the Rhine (1806–1813) and then the German Confederation (1815–1866).
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what we think of as modern-day Italy was still a patchwork of kingdoms (Sardinia, the Two Siciles, Lombardy-Venetia under the Austrian Crown), Duchies (including Parma, Modena, and Tuscany), and Papal States, while territory further east was ruled by the Ottoman Empire.
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We are accustomed to thinking of Europe as the first historical instance of a full-blown system of sovereign states, but Latin America actually moved toward that form of political organization at just about the same time. After three centuries of imperial domination, the region saw a complete redrawing of its political geography in the wake of the Atlantic Revolutions of the late eighteenth and early nineteenth century. Following in the footsteps of the United States (1776) and Haiti (1804), it witnessed a series of wars of independence which, by 1826 and with only a few exceptions, had essentially booted out the Spanish and Portuguese empires. Of course, Britain promptly gained control of trade in the region through an aggressive combination of diplomatic and economic measures often referred to as “informal empire,” but its interactions were now with formally sovereign states.
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much as with Western Europe, the region did not stabilize into a system of nation-states that looks like its contemporary iteration until the end of the nineteenth century. It now seems possible to tell a relatively similar story about North America, as in historian Rachel St John’s ongoing project, The Imagined States of America: The Unmanifest History of Nineteenth-century North America.
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Until World War II the world was still dominated by empires and the heterogeneous structures of political authority they had created. Once decolonization took off after 1945, the nation-state was not the only option on the table. In Worldmaking after Empire (2019), Adom Getachew describes anglophone Africa’s “federal moment,” when the leaders of various independence movements on the continent discussed the possibility of organizing a regional Union of African States and, in the Caribbean, a West Indian Federation.
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“antinationalist anticolonialism” eventually ran afoul of the French government’s unwillingness to distribute the metropole’s resources amongst a widened network of citizens. Yet the fact that it was seriously considered should give us pause. Of course, in the context of decolonization, the triumph of the nation-state represented a final victory for colonized peoples against their long-time oppressors. But it also disconnected regions with a shared history, and it created its own patterns of oppression, particularly for those who were denied a state of their own: indigenous peoples, stateless nations, minorities
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what is clear is that a mere seventy years ago, what we now consider to be the self-evident way of organizing political communities was still just one of the options available to our collective imagination
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The conventional narrative associates international order with the existence of a system of sovereign states, but the alternative story suggests that the post-1648 period was characterized by the resilience of a diversity of polities
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The comparative stability of the post-1648 period may therefore have had more to do with the continued diversity of polities on the continent than with the putative emergence of a homogenous system of sovereign states
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an international system in which power is shared among different kinds of actors might in fact be relatively stable
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even the most powerful contemporary multinational corporations—Facebook, Google, Amazon, Apple, and the rest—are drastically more limited in their formal powers than were the famous mercantile companies who were central actors in the international order until the mid-nineteenth century. The two largest, the British and the Dutch East India Companies, founded in 1600 and 1602 respectively, amassed spectacular amounts of power over their two-hundred-year existence, becoming the primary engine of European imperial expansion. While these companies started off as merchant enterprises seeking to get in on Asia’s lucrative trading network, they gradually turned into much more ambitious endeavors and grew from their original outposts in India and Indonesia into full-on polities of their own. They were, as various scholars now argue, “company-states”—hybrid public-private actors that were legally entitled to rule over subjects, mint money, and wage wars. From this perspective, contemporary non-state actors are still relatively weak compared to states, who still monopolize far more formal power than all other actors in the international system
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we should be careful not to suggest that the culprit is an unprecedented weakening of the state and thus that the solution is to expand state power
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States certainly were important after 1648, but so were a host of other actors, from mercantile companies to semi-sovereign polities and all sorts of empires more or less formally structured. This system only truly began to unravel in the nineteenth century, with many of its features persisting well into the twentieth. Viewed through this lens, the so-called “Westphalian order” begins to look much more like an anomaly than the status quo
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Engaging with this history makes the current centrality of the states-system as a basis for organizing the globe look recent and in fairly good shape, not centuries-old and on the verge of collapse
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What is truly new, from a longue durée perspective, is the triumph of the state worldwide, and our inability to think of ways of organizing the world that do not involve either nation-states or organizations of nation-states.
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Even thinkers in tune with limitations of the nation-state cannot seem to free themselves from the statist straitjacket of the contemporary political imagination. Debates about state-based supranational institutions likewise fall along a remarkably narrow spectrum: more power to states, or more power to state-based international organizations?
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Misrepresenting the history of the states-system plays into the hands of nationalist strongmen, who depict themselves as saving the world from a descent into stateless anarchy, controlled by globalist corporations who couldn’t care less about national allegiance. More broadly, getting this history right means having the right conversations. Giving power to actors other than states is not always a good idea, but we must resist the false choice between resurgent nationalism on the one hand and the triumph of undemocratic entities on the other.
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Today the norm is that states enjoy far more rights than any other collectivity—ranging from indigenous peoples to transnational social movements—simply because they are states. But it is not at all clear why this should be the only framework available to our collective imagination, particularly if its legitimacy rests on a history of the states-system that has long been debunked.
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