By Richard Falk
One of the seemingly permanent contributions of Europe to the manner of organizing international society was to create a strong consensus in support of the idea that only a territorially delimited sovereign state is entitled to the full privileges of membership. The United Nations, the institutional embodiment of international society recognizes this principle by limiting membership in the Organization to ‘states.’
Of course, there is an enormous variation in the size, population, military capabilities, resource endowments, and de facto autonomy among states. At one extreme are gigantic states such as China and India with populations of over 1 billion, while at the other are such tiny countries such as Liechtenstein or Vanuatu that mostly rely on diplomacy and police rather than gun powder and armies for security.
All four of these political entities have the same single vote when it comes to action in the General Assembly or as participants at global conferences such at the recently concluded Paris Summit on climate change, although the geopolitics is supreme in the Security Council and the corridors outside the meeting rooms.
From the point of view of international law and organizational theory we continue to live in a state-centric world order early in the 21st century. At the same time, the juridical notion of the equality of states that is the foundation of diplomatic protocol should not lead us astray.
The shaping of world order remains mainly the work of the heavyweight states that act on the basis of geopolitical calculations with respect for international law and morality displayed only as convenient. Yet the political monoculture of territorial states remains formally the exclusive foundation of world order, but its political reality is being challenged in various settings, and no where more so than in the Middle East.
This is somewhat surprising. It might have been expected in past decades, especially in the Middle East and sub-Saharan Africa where the ‘states’ were often arbitrarily imposed a century or more ago to satisfy colonial ambitions and took little or no account of the wishes and identities of the people living in a particular geographic space.
Yet without exception nationalist movements and their leaders throughout the world, although aware that the colonial demarcations of boundaries were arbitrary and exploitative, thus lacking the legitimacy of ethnic, religious, and historic experience, nevertheless refrained from challenging the idea that a politically independent state should be delimited by the same boundaries as the prior colonial state. It seems that this worldwide acceptance of the territorial status quo reflected two different considerations.
Questioning colonial boundaries would open a dangerous Pandora’s Box filled to overflowing with nasty ethnic conflicts and contradictory territorial claims. Beyond this, achieving control over an existing territorial state was seen in international law as the proper fulfillment for a people seeking liberation through the exercise of their right of national self-determination.
Such an outcome was increasingly endorsed as the proper goal of nationalist movements throughout the global South, regardless of whether the ideological animus of a given movement leaned left or right. This conception of self-determination was also endorsed at the United Nations, thereby reversing the earlier acceptance of colonial rule as consistent with international law.
Of course, here and there were some rough edges and intense splits at the dawn of the post-colonial era, but surprisingly few of such a character as to produce new delimitations of territorial domain.
Malaya split into Malaysia and Singapore, and more significantly, Pakistan broke off from India, and then Bangladesh later split from Pakistan in a bloody struggle.
Yet in all these instances the result of political fragmentation was the establishment of an additional coherent territorial sovereign state that had some sort of cultural, religious, or historical rationale. There remain several thwarted movements of national liberation, most notably Palestine, Western Sahara, Kashmir, Tibet, Chechnya, Kurdistan, that is national movements to create independent states that have been under prolonged occupation.
It is appropriate to regard these peoples as living in ‘captive nations’ contained by oppressive structure imposed by the dominating state. There is a small degree of ambiguity present as the right of self-determination cannot supposed be validly exercised in any manner that results in the fragmentation of an existing sovereign state.
For clarification see UN General Assembly Resolution 2625 on International Law Principles of Peaceful Coexistence, with particular attention to the commentary given with respect to the principle of self-determination.
In practice, however, when fragmentation results from successful movements of secession, the new political entities are accepted as ‘states’ for purposes of membership in international society. The breakup of Yugoslavia into component parts illustrates the subordination of the legal principle of state unity to the political realities of fragmentation.
There seemed to be no other concept of sovereign political community that challenged the European notion of the state as it evolved out of the Peace of Westphalia (1648). Again there are a few inconsequential exceptions. The Vatican despite being an essentially religious community is acknowledged for some purposes as a state, although denied full membership in the UN.
More recently, as a result of decades of frustration, Palestine has succeeded in being accepted by the UN General Assembly as a non-member observer state, but without any right to vote or participate as a member in debates within the General Assembly or Security Council. Palestine as a kind of ‘ghost state’ is accepted as a member of UNESCO, as a state party at the International Criminal Court, and even allowed to fly its national flag outside of UN Headquarters.
Perhaps, the most fundamental formal challenge to a purely statist world order arose from the emergence of the European Union. The EU does represent the interests of its member states for many purposes, including at some international conferences. And yet the EU has not been given membership or an independent vote at the UN, nor have there been objections to the permanent membership of both the United Kingdom and France in the UN Security Council.
Despite recent tensions associated with fiscal policy, counter-terrorism, and statist reactions to refugee flows, the EU retains the possibility of evolving at some point into some novel kind of post-Westphalian regional polity that represents its members in a variety of global venues, and thus challenges the foundational principles of state-centric world order. Just now the European Commission has issued new rules strengthening European border control in a manner given precedence over Westphalian traditions of national border control.
More challenging at present is the meta-territorial operational provenance of the United States, with its vast network of foreign bases, its naval and space capabilities able to target any point on the planet, and its claim of ‘presence’ in all regions of the world. The United States is the first ‘global state’ in world history, with its territorial sovereignty only the psychophysical basis of its non-territorial global reach.
It is not an empire as that term was understood to rest on formal and overt control, yet it far from being a normal state that generally confines its security operations and diplomatic claims to its geographic boundaries unless it finds itself involved in a distant war.
Sporadic efforts to endow civil society with international status have not gained political traction despite widespread support for the establishment of a ‘global peoples parliament’ modeled on the European Parliament. Populist support for some kind of policy role for civil society at a global level has been reffectively esisted by governments and international institutions opposed to any dilution of the Westphalian template.
It is against this statist background that some recent Islamic practices with regard to political community and world order is innovative and challenging. When explaining the revolutionary process in Iran that unfolded in 1978-79, Ayatollah Khomeini insisted that what was happening in Iran should be treated as an ‘Islamic Revolution’ rather than an ‘Iranian Revolution.’ What was being asserted was that the most relevant community was the Muslim umma, which has not been actualized in recent times but deserves the primary loyalty and adherence of believers whatever their location in national space happens to be.
Such a view was more aggressively articulated in the declarations of Osama Bin Laden whose worldview was Islamic, transcending the secular realities of statehood and nationalism, and expressing what might be described as an Islamic Cosmopolitan worldview.
The most significant challenge of all directed toward state-centricism has been mounted by ISIS, and especially its proclamation of a new caliphate in the Middle East, whose contours were based on its de facto territorial governance patterns in Syria and Iraq rather than on the boundaries of existing sovereign states.
ISIS leaders also boasted of ‘the end of Sykes-Picot,’ the Anglo-French originally secret agreement in 1916 that led to the formation of the modern statist Middle East in the territories formerly administered by the Ottoman Empire. It was this Sykes-Picot colonialist vision that successfully undermined Woodrow Wilson’s post-colonial advocacy of self-determination as the organizing basis delimiting the Middle East after World War I.
So far, ISIS has made good on its claim to govern the area it controls by sharia law strictly applied, and has thus managed to defy the sovereign territorial authority of both Syria and Iraq. ISIS is sometimes described as a ‘quasi-state’ because of its territorial control but utter lack of international diplomatic legitimacy, and perhaps because its durability has not been established for a sufficient length of time.
There are at least three elements of this non-state pattern of control that are worth noticing.
First, ISIS seems to have no current goal or prospect of being internationally accepted as a state or to be treated as a vehicle of self-determination for Syrians and Iraqis living under its authority. ISIS rests its authority to govern exclusively on a sectarian Sunni claim to be applying sharia to those living under its authority.
Secondly, by discrediting those Sykes-Picot states that were imposed on the region after World War I, ISIS is claiming for itself a superior political legitimacy to that conferred by international diplomatic procedures or through admission to the United Nations, and the claim has some resonance for those living under its dominion.
Thirdly, significant portions of the Sunni population that is dominant presence in the ‘caliphate’ welcomed ISIS, at least at first, as a liberating force freeing the population from Shia oppression and discrimination and more effectively offering social services at a grassroots level.
In effect, ISIS has effectively, if harshly, raised questions about the political legitimacy of states imposed by colonial authority and accepted by indigenous nationalist movements during the process of achieving political independence.
This questioning of European statism in the Middle East is likely to be more enduring than ISIS itself. From an ethnic angle, the Kurdish movements in Iraq, Turkey, and Syria, never having been content with Sykes-Picot borders are now constituting new ethnically delimited political communities that in Iraq and Syria possess the attributes of de facto states.
As with ISIS, these emergent entities are being called quasi-states or states within states. In other words we are so entrapped in statist language that we must misleadingly link these innovative political realities to the statist framework.
From this perspective it is worth noticing the double proposal of the neocon former American ambassador to the UN, John Bolton. [See “To Defeat ISIS, Create a Sunni State,” NY Times, Nov. 24, 2015] As a resolute interventionist, Bolton wants the West to go all out to destroy the ISIS caliphate, but couples this militarist initiative with the rather startling assertion that Iraq and Syria have lost their statist entitlement to reclaim these territories.
Instead, “Washington should recognize the new geopolitics. The best alternative to the Islamic State in northeastern Syria and Western Iraq is a new, independent Sunni state.” As might be expected, Bolton’s rationale is totally neo-colonial in conception and implementation, proposed by a Washington insider, designed to keep Moscow out, to restore U.S. influence in the region, and to support indirectly the anti-Shiite goals of the Gulf monarchies.
In other words, what Bolton favors is remote both from Westphalian logic and from the practice of self-determination.
True, Bolton’s Sunni state is an externally imposed political construction that is expected to be accepted as a traditional state with authority limited to its international borders. This contrasts with the ISIS caliphate that claims authority based on its extreme Salafi interpretation of Islam, and while it maintains and guards the borders that define the territory under its control, its claimed community of adherents is non-geographical, and notions of citizenship and nationality do not apply.
It is suggestive that even Bolton opposes an American approach based on “striving to recreate the post-World War I map.” What makes Bolton’s proposal of interest is only that it unwittingly confirms the ISIS challenge to the legitimacy of how Europe constructed the post-Ottoman Middle East in the colonialist atmosphere that remained dominant after World War I.
It seems obvious when considering the complexity of the world as it now functions that the Westphalian model of state-centricism is no longer, if it ever was, descriptive.
To take account of the realities of the U.S. global state, the EU, and ISIS requires a more hybrid framework of concepts, policies, and practices that also is more sensitive to multi-level linkages of authority and power, as well as the elaborate patterns of transnational networks and localized systems of control that produce the complex governance structures that provide billions of people with order and stability on a daily basis.
A fuller inquiry into these diverse organizational structures would also need to incorporate the role of transnational corporations and financial institutions that create the operational and exploitative realities of neoliberal globalization.