by Jan Niklas Rolf
With Russia deploying more than 100,000 troops near the border to Ukraine and China detaining more than 1,000,000 Uyghurs in the region of Xinjiang, Thomas Bach, president of the International Olympic Committee (IOC), felt compelled to appeal to the Olympic spirit of peace in his Beijing 2022 opening ceremony speech: “This is the mission of the Olympic Games”, he said, “bringing us together in peaceful competition. Always building bridges, never erecting walls. Uniting humanity in all our diversity”.
Yet, given the US-led diplomatic boycott, there were hardly any officials to engage in the kind of ping-pong diplomacy that Nixon and Mao had practiced fifty years ago. Due to the regime’s strict zero-COVID policy, there were also no foreign spectators in China to make a connection, and the athletes and coaches that actually made it into the country were put in a bubble that prevented them from immersing into the culture. “Building bridges”, thus, seemed to come down to the commentators that bring one of the most televised events in the world into our homes.
By analysing the television coverage of the parade of nations during the opening ceremony of the 2022 Winter Games in Beijing, this post explores how commentators are engaging with other nations. The two TV stations chosen are the public-service broadcaster Zweites Deutsches Fernsehen (ZDF) and the pan-European network Eurosport 1, both of which are freely available in Germany. As the most successful nation at Olympic Winter Games, Germany has a strong Olympic fan base and, hence, should make for a good case study.
But first, we have to establish the link between the Olympics and peace. During the ancient Olympic Games, a truce was proclaimed to allow for a safe journey to and from historic Olympia. In 1992, the IOC renewed this tradition by calling upon all nations to put aside their political differences for the duration of the Games, and invoked it at every Games ever since. While a brief ceasefire during the 1994 Winter Games in Lillehammer allowed for the vaccination of an estimated 10,000 children in Bosnia, Russia’s full-scale invasion of Georgia took place on the day of the opening ceremony of the 2008 Summer Games in Beijing. The conflict in Ukraine, too, escalated around the time the 2014 Winter Games were held in nearby Sochi. In the face of Russia’s military build-up in the lead-up to the 2022 Winter Games in Beijing, the United Nations (UN) General Assembly unanimously adopted the Olympic Truce Resolution that
“Urges Member States to observe the Olympic Truce individually and collectively, within the framework of the Charter of the United Nations, throughout the period from the seventh day before the start of the XXIV Olympic Winter Games until the seventh day following the end of the XIII Paralympic Winter Games, to be held in Beijing in 2022 […].”
Russia’s invasion of Ukraine between the Olympic and Paralympic Winter Games, thus, constituted not only a violation of international law, but also of the Olympic Truce.
But even if observed, the Olympic Truce only guarantees a temporary or negative peace. Pierre de Coubertin, the founder of the modern Olympic Games, was more interested in fostering a sustainable or positive peace:
“We shall not have peace until the prejudices which now separate the different races shall have been outlived. To attain this end, what better means than to bring the youth of all countries periodically together for amicable trials of muscular strength and agility?”
Like the current IOC president, de Coubertin saw the Games as a locus of encounter where people of different nations get “to know one another better”. Knowledge, in turn, “will replace dangerous ignorance, mutual understanding will soften unthinking hatreds”. Enshrined in the Olympic Charter, which pictures sports as means to “better understanding between each other and of friendship, thereby helping to build a better and more peaceful world”, and the Olympic Truce Resolution, according to which “sports can contribute to an atmosphere of tolerance and understanding among peoples and nations”, this view has taken on an “ossified form” over the years. However, unlike other elements of de Coubertin’s ideological morphology such as athleticism and amateurism, Simon Creak notes, it “has remained remarkably resistant to critical analysis ever since”.
This post examines whether commentators are engaging with the ‘other’ in a meaningful way, thereby promoting a deeper understanding of other countries and cultures that the IOC and UN deem critical for a more sustainable peace. To that end, it conducts a discursive analysis of the television coverage of the parade of nations—an integral part of the opening ceremony during which the teams of participating nations parade into the stadium—by the two networks ZDF and Eurosport 1 along the three dimensions of sports, politics and culture.
On both networks, the greatest chunk of commentary was on sports. And yet the focus was a very different one. The two ZDF commentators—reporter Nils Kaben and correspondent Ulf Röller—used the nation as a frame of reference, making frequent references to the Olympic record of national teams: We learn that Hungary and Poland have participated in all Winter Games so far, that Norway and Switzerland were particularly successful at the previous Winter Games and that Turkey and Azerbaijan are yet to win their first medals at Winter Games. Where references were made to individual athletes, they tended to be references to flag-bearers as representatives of their respective nations.
In contrast, the two Eurosport 1 commentators—reporter Siegfried Heinrich and journalist Birgit Nössing—seemed to follow the mantra of the Olympic Charter that—all appearances to the contrary—the “Games are contests between individuals and not between nations”, telling a number of personal stories: We learn that an athlete from Ecuador does not eat anything before her contests and that another athlete from Andorra always wears different colored FC Barcelona socks during her contests. When the national teams of Brazil and Spain entered the stadium, it was particular athletes that came to the mind of the commentator: “Brazil marches in. And there I’m thinking, if you allow, of the cross-country skier Bruna Moura […]”. “Now comes Spain […]. When I think of Spain, I think of [Francisco Fernández] Ochoa […]. And I have to think of Javier Fernández [López], the figure skater”. The exchange the commentator had with the co-commentator on figure skater Vladimir Litvintsev, flag-bearer of Azerbaijan, is particularly telling in this regard:
Co-commentator: “Until 2018, he skated under the Russian flag and then he changed to Azerbaijan.”
Commentator: “And why?”
Co-commentator: “ROC [Russian Olympic Committee] is the keyword.”
Co-commentator: “ROC [pause]. Well, the Russians are not allowed [to compete] under their own flag.”
Commentator: “No, not only. He changed because the competition in Russia had become too fierce.”
Co-commentator: “That’s what you mean.”
Commentator: “Yes. He said to himself, I'll go to Azerbaijan, because there I'll have my starting place for sure.”
For the co-commentator, Litvintsev’s decision to become an Azerbaijani citizen was governed by the fact that Russia, due to its state-sponsored doping, was banned from the Games, forbidding Russian athletes to compete under the Russian flag. For the commentator, in contrast, it was a rather opportunistic decision that had little to do with not being able to compete under the Russian flag, but with being able to compete at all, no matter under which national flag. Once again, the commentator refused to engage in “methodological nationalism”, that is, to conceive of the nation as the sole unit of analysis.
The second most discussed topic after sports was politics. Commentators from both broadcasters commented on the political situation in Taiwan, Hong Kong, Ukraine, Russia and China. In addition, Eurosport 1 commentators mentioned the unrest in Belarus and Kazakhstan. While Eurosport 1 commentators thus made more references to politics, the general tone was more tentative: “And now it’s going to be a bit political, that’s clear. Because now comes Chinese Taipei, that is, Taiwan […]”. “It remains a bit political when we have Hong Kong here […]”. “Ukraine, and things are getting a bit political here too […]”. While in each case the commentators added a few sentences about the political situation before turning the conversation to other issues, the introductory phrase “a bit political” downplayed the import of it.
ZDF commentators, in contrast, employed a number of superlatives when talking about politics: “This [the political status of Taiwan] is a super sensitive topic […]. It is the great political goal of Xi Jinping to bring Taiwan back to the mainland and there is a huge political dispute about this with the Americans”. The commentary was also more accusative, emotive and generalising in nature: “The pictures that we recently had to see from Hong Kong [in this moment, the camera captures the political leader of China] for which he, Xi Jinping, is responsible, also shook us to the core”, with the “us” supposedly referring to an assumed national, if not global, community. When the Chinese team entered the stadium, both ZDF and Eurosport 1 commentators talked about the government’s attempt to turn China into a competitive winter sports nation. And yet ZDF commentators were way more negative about this than Eurosport 1 commentators, as can be seen from a comparison of the following two conversations:
Commentator (ZDF): “With a lot of effort, with a lot of European trainer know-how, they want to close the gap with the world’s best. Very ambitious [in fact, China was among the three most successful nations at the Games, even outperforming the United States in gold medals].”
Co-commentator (ZDF): “Of course, China is not a winter sports nation, but they have bought heavily internationally, and have turned many athletes into Chinese people, given them a Chinese passport to improve the performance of the team.”
This patronising (“with a lot of European trainer know-how”) and slightly sinophobic (“turned many athletes into Chinese people”) language can be contrasted with the rather positive and personalised commentary on Eurosport 1:
Co-commentator (Eurosport 1): “In order to make China a winter sports nation they are bringing in the best of the best coaches […]. They are supposed to make stars out of the Chinese rough diamonds […]. And then there is Eileen Gu [a US born freestyle skier who competes for China, for which she has attracted a lot of criticism].”
Commentator (Eurosport 1): “Well, Eileen Gu, that’s the story par excellence […]. Dad is American. Mom is Chinese. And she said what I think is a really beautiful sentence: Nobody can deny that I’m American, she said, nobody can deny that I’m Chinese, and that’s almost a conciliatory story.”
Indeed, by starting for China, Gu hopes “to unite people, promote common understanding, create communication, and forge friendships between nations”. The Eurosport 1 commentator moved on to talk about the Chinese ice hockey team, which is mostly made up of former US-Americans and Canadians, only to conclude with: “But it’s nice that it happens like this”.
Surprisingly, culture was the least discussed topic during the carnival of cultures that is the parade of nations. The only time it featured in the ZDF commentary was when the Austrian team, rather coincidentally, entered the stadium to a waltz tune and the commentator, noticing this, commented: “And then there’s a bit of waltz music in the bird’s nest”. But comments on culture were not only sparse; sometimes they were also false. The Eurosport 1 commentator, for example, suggested that, instead of the national anthem, Russian gold medal winners will hear Beethoven’s 9th symphony where, in fact, it was Tchaikovsky’s piano concerto no. 1. On three more occasions, the Eurosport 1 commentator touched upon culture and customs. When the Argentinian team marched into the stadium, he complained:
“Well, Argentina. With six participants. I don’t understand that, because there are such great ski areas in Argentina and yet nothing comes out of it that would be remotely competitive athletes.”
With the co-commentator not responding, which could be interpreted as a sign of dissent, the commentator came to qualify his statement by attributing the lack of competitive athletes to a different culture:
“Not everyone sees sport as the main goal in life, you have to take this into consideration, of course. There are cultures where sport is important, there are cultures where sport is not so important or not that valued.”
This is indicative of a learning process that de Coubertin sought to instill in society at large: Being raised in a country that is passionate for (winter) sports, the commentator wonders in quite derogatory terms that a country with favorable conditions does not produce competitive athletes. After some reflection, however, he recognises that there are cultures that might not share his enthusiasm for sports. A similar learning process was evident when the commentators talked about a female athlete from Iran:
Commentator: “She is only the third woman from Iran to qualify for the Winter Games. I find that remarkable and very conciliatory when you know how hard women in Iran have to fight for recognition, for sporting recognition.”
Co-commentator: “Yes, and she is asked again and again, she said in an interview, are you allowed to ski at all, does your religion allow it and then of course she said that it is no problem at all. Some of the questions she doesn’t even understand. For example, is there snow in Iran and she always says, well, we are not a desert like Saudi Arabia.”
Commentator: “That’s probably true”.
Whereas the commentator was echoing the Western narrative that women in Iran and other Islamic republics are severely suppressed, the co-commentator, by citing the Iranian athlete, questioned that very narrative and other stereotypes about Iran, which the commentator, by responding with “that’s probably true”, seemed to accept. Lastly, when the flag-bearer of Timor-Leste entered the stadium in traditional clothes, the commentator made an approving comment of the costume. Apparently noting the Orientalism in his words, he added: “I wouldn’t consider it as exotic, it’s just something that one likes to see”.
While there was no further discussion of cultural artefacts, commentators did present some geographical facts about what they assumed to be lesser known countries, that is, far-away or small countries, or both. Eurosport 1 viewers learned that Timor-Leste is “an island nation in Southeast Asia near Indonesia” and ZDF viewers got to know that Madagascar is “the second largest island nation in the world by area after Indonesia, located in the Indian Ocean, east of Africa”. The latter audience was also told that San Marino is “a microstate surrounded by Italy” and that Andorra is “a principality in the Pyrenees”. Yet, rather than talking about its peculiarity, Andorra was compared to and lumped together with other European microstates: “By area, the largest of the six European microstates. San Marino, Monaco, Liechtenstein, Vatican City are all among them”. Madagascar, too, was only made sense of by reference to other African countries: “Madagascar, the first of five representatives from Africa”. When the national team of Ghana entered the stadium, the ZDF commentator proclaimed: “Ghana, the next representative of Africa”. Notably, no other teams were pictured as representatives of their respective continent—an expression of the common conflation of African countries with the African continent. The Eurosport 1 commentator, on the other hand, conflated Great Britain with England when he remarked: “In curling, the English, represented by Scotland, have recently beaten the Swedes [...]. The Scots are very important for England”. Strictly speaking, even the official brand name, “Team GB”, is not correct, as the team also includes athletes from Northern Ireland, which does not belong to Great Britain. Yet commentators did not even get some of the more basic facts straight.
Nor can commentators be expected to contribute towards a better knowledge of other cultures and countries within the thirty seconds or so that they have when a national team enters the stadium during the parade of nations. What commentators can do, however, is to set the tone. Here, the tentative and reflective tonality of Eurosport 1, focusing on the individual, seems to be more conducive towards cross-cultural understanding and, eventually, positive peace than the affective and accusative tonality of ZDF, applying a national frame. While there was no evidence of assertive nationalism or chauvinism, a national bias was clearly discernible.
Indeed, even the Olympic Broadcasting Services (OBS), who, on their website, claim to provide “unbiased” and “neutral” coverage to national broadcasters (who then add their own commentary), were not able to fully deliver on that promise: When the German team entered the stadium, an applauding Thomas Bach—IOC president and German national—was captured by the cameras. When the Portuguese team paraded into the stadium, António Guterres—UN General-Secretary and Portuguese national—appeared on the screen. The same holds true for most of the state leaders—from Albert II of Monaco to Xi Jinping of China—that attended the opening ceremony. However, when the Russian Olympic Committee marched in with Russian flags stitched onto their otherwise neutral jackets, the OBS director—maybe in anticipation of what was yet to come—chose to edit out a cheering Vladimir Putin.
 H. L. Reid, ‘Olympic Sport and Its Lessons for Peace’, Journal of the Philosophy of Sport, 33 (2006), pp. 205-214.
 Pierre de Coubertin, ‘The Olympic Games of 1896’, Century Magazine 53 (1896), pp. 39-53 at p. 53.
 Pierre de Coubertin, cited in J. J. MacAloon, This Great Symbol: Pierre de Coubertin and the Origins of the Modern Olympic Games (London and New York: Routledge, 2008), p. xxv.
 Simon Creak, ‘Friendship and Mutual Understanding. Sport and Regional Relations in Southeast Asia’, in B. J. Keys (ed.), The Ideals of Global Sport. From Peace to Human Rights (Philadelphia: University of Pennsylvania Press, 2019), pp. 21-46 at p. 26.
 All comments have been transcribed and translated by the author.
 Andreas Wimmer and Nina Glick Schiller, ‘Methodological Nationalism and Beyond: Nation-State Building, Migration and the Social Sciences’, Global Networks 2 (2002), pp. 301-334.
Jean Grave, print culture, and the networks of anarchist transnationalism: An interview with Constance Bantman
by John-Erik Hansson
John-Erik Hansson: Let's start with a few introductory questions. Very broadly, who Jean Grave and why should we study him? What does he stand for? Does the book present a general case for studying minor figures in the history of anarchism, as Jean Grave is no longer necessarily so well known?
Constance Bantman: Jean Grave was a French anarchist—he was really quite famous until his death in 1939. He was mainly known as the editor of three highly influential anarchist periodicals. First of all, Le Révolté, which was set up in 1879 in Geneva by Peter Kropotkin and a few others, chiefly Elisée Reclus. It was handed over to Grave around the 1883 and he kept it going until 1885, when the paper was relocated to Paris. It was eventually discontinued and relaunched in 1887 as La Révolte, which was forced to close in 1894, in times of really intense anarchist persecution in France. It was relaunched again in 1895 as Les Temps Nouveaux, which more or less ceased business in 1914 when the war started. Grave was also involved in several other publications post-war and until his death. So Grave is primarily known for being a newspaper editor, one might say one of the most influential editors in the global anarchist movement.
And he was really quite well known at the time, and was also a theorist in his own right. That's one aspect of his work that completely sank into oblivion. I think you'd really struggle to find anyone reading Grave nowadays. There might be somebody popping up on social media every now and then, but that's about it! But at the time, he was a really influential theorist of anarchism, not quite on par with Kropotkin or say Malatesta or Reclus, but people did read him. His work was translated into numerous languages and published in multiple editions. He was a theorist of anarchist communism very broadly speaking. He was interested in education, and educationalism. It's hard to assess the specificity of his work, really. I would say educationalism within the broader anarchist communist framework was important. He was quite critical of syndicalism, and he was, as we’ll discuss later, pro Entente during the war.
He is worth studying not only because he was influential person, but also because of his remarkably long career in anarchism. He became a politicised at the time of the Paris Commune, when he was a teenager. I think his father was quite political and the young Grave was distantly involved in the commune—he was 17 at the time. By the late 1870s, he was politically active, and he never stopped until his death. His long political career mirrors the history of French and international anarchism, and the place of anarchism within the French Third Republic. Grave wrote his autobiography with the title Quarante Ans de Propagande Anarchiste [Forty Years of Anarchist Propaganda], and when I wrote the book, I was thinking, “maybe I could call it Seventy Years of Anarchist Propaganda?”, because that's more accurate. Grave was being quite humble.
Concerning your question about the relevance of studying minor figures, I think there is something interesting in resurrecting figures who have fallen from grace—Grave especially because of his position during World War One. But I think Grave was an intermediary, not quite a minor figure, because he was so well known and the time. These intermediaries, who were really close to highly influential historical figures, allow us to get new historical insights into figures like a Kropotkin, who was a really close friend of his, or Reclus, with whom he sparred quite a lot. They also allow us to piece back together the social history of anarchism, to shed light on the history of ideas in many different ways, and to reflect on more canonical history as well.
JEH: Your book is a biography of Grave but it's also a biography of his periodicals, especially La Révolte and Les Temps Nouveaux. What led you to that focus? What brought you to take that angle on Grave and on anarchism more generally?
CB: That's also related to your first question—which was “why study Grave?”. One of the main drivers of my study was a reflection on the concept of anarchist transnationalism, which I’ve been interested in for a long time, like many historians have. My work to date was focused on exile and I was absolutely fascinated with Grave who pretty much never left Paris at a time of intense anarchist forced mobility. Lots of French anarchists went into exile and there was a great deal of labour migration. But Grave was pretty much always in Paris, and yet, he was everywhere. If syndicalism was being discussed in Latin America, you could be sure that Grave would be part of that conversation. Same in Japan, same in discussions of political violence in the UK, where there were many French anarchists. What I realised is that Grave presents us with what we might call an example of immobile or rooted transnationalism and the fact that it was absolutely fine or feasible for somebody to be sedentary and to stay in Paris whilst having global influence. The reason for this, what solves the problem, is print culture and the mobility of print in this period.
So that's how I came to be interested in the papers, because they were agents of circulation of mobility. As Pierre-Yves Saunier, an influential historian of transnationalism, wrote, for the international circulation of ideas to happen, you don't necessarily need personal mobility, you need connectors. The papers were the great connectors.
In addition to that, the papers are absolutely fascinating. They are remarkable cultural documents, because one of Grave’s salient features was that he was connected with so many writers and visual artists. He was really adept at enlisting the support for the movement, and the papers really reflect that. The papers had a supplément littéraire, which was sometimes illustrated and many illustrations were sold for charity purposes, alongside the paper, by artists who are nowadays extremely famous for some of them (for instance Grave’s friend Paul Signac), or by illustrators. So there was this really lush visual and literary culture associated with the papers, which was just pleasant to study as well.
JEH: This is a great segue into the next set of questions. You’ve emphasised the importance of print culture throughout the book and in your answers up to now. So, how would you characterise the relationship between anarchism and print culture in the late 19th century and early 20th centuries?
CB: Well, I’ve thought about this a lot, and I think I would use the term symbiotic. I think it was a very symbiotic relationship, they fed off and into each other. There are many ways in which this imbrication of anarchism with print culture functioned. A few examples: print culture existed through periodicals, in particular, but also pamphlets which were sold and printed separately. All of these were the sites where anarchist ideology was elaborated and constructed dialogically.
These publications were fora, there was a great deal of discussions within and around the papers and other publications. Print culture was the prime place of ideological elaboration. It was also the key place for the dissemination of ideology. We've discussed illustrations—and Grave’s papers were famously very dry, very theoretical—but if we think of papers like the Père Peinard, a really engaging contemporary publication, there was a language, there was also a visual style, which was incredibly effective in conveying very complex, occasionally dry ideas to their target audiences. So that's another aspect in this relationship between anarchism and print culture. Because, precisely, there was no party framework, the press was the main forum.
Another aspect is also that the press and owning anarchist print was regarded by the authorities as the ultimate sign of anarchist belonging. This was very much acknowledged that the time, and this was a way of self-identification as well. The historian Jean Maitron has written extensively about anarchist being a very bookish culture in this respect, and this notion of print ownership as a sign of anarchist belonging is striking when you look at police records. This idea that owning and reading anarchist material was a sign of being an anarchist is really important.
Print culture had other functions as well. For instance, I've mentioned the global influence of Grave, it was also through the press that anarchism was developed as a global movement. The press also facilitated the daily organisation of anarchist circles, connecting activists with one another. So, there are so many practical, organisational, ideological and cultural ways in which print culture made anarchism possible. In return, anarchism fostered this absolutely remarkable print culture, which is one of our main sources today in documenting the history of the movement.
JEH: When I was reading the book, I was fascinated by the discussion of the formation of an anarchist identity alongside that of an anarchist ideology. I was wondering if you could comment, a little bit about the kind of dynamics of the relationship between the formation of an anarchist identity and at the same time, the formation of an anarchist ideology.
CB: Yes, I think that's such an interesting approach, because at the moment the great buzzword among historians of anarchism is “communities”, which makes me think that this notion of anarchist identity is somewhat under-explored. Paradoxically, we tend to think about anarchist identity through the collective prism of community and they’re not quite the same thing. Of course, the biography is a good entry way into these questions. Grave was somebody who was interested in ideas, but being an anarchist was a praxis as well. It was about taking part in gatherings in ‘Cercles’ or local groups, it was very much a sociability; it fed on this social identity and that's how it developed in the aftermath of the Second Industrial Revolution. Grave’s own itinerary shows that anarchism was very much a place where new identities, individual and collective, were created.
It's been a matter of debate, to what extent anarchists actually identified with the ideology or recognised it, or were well versed in it. For many people, it was more practical—if we think about the many sorts of petty criminals that the police identified as anarchist were probably not particularly familiar with Kropotkin’s ideas or say Stirner’s, but to somebody like Grave, Kropotkin—and more generally, ideas and theories—were, of course, very important.
JEH: To continue at the intersection of identity and ideology, bringing print culture back in, one of the things that struck me when I was reading your book is how you show the way in which different editors of anarchist papers interacted with and responded to one another. There is this debate between Jean Grave and Benjamin Tucker taking place throughout the pages of Liberty and La Révolte—mirroring the broader debate between anarchist individualists and anarchist communists. Yet, they maintained a veneer of unity as anarchists and actively sought to continue collaborating. This seems to have been common, especially before 1900, but it that changes over time, and you are able to track the subsequent process of ideological reconfiguration and division. So, I was wondering, firstly, what you thought this could tell us about anarchism at the time, and secondly, why you think things changed in the early 20th century.
CB: It's a striking story to follow. What we can see with anarchism, in particular through periodicals in the 1880s, is the case of an ideology emerging and constituting itself as a social movement. There is a sense of shared identity and affinities between, say Tucker and Grave—occasionally there are bitter fallouts, but still the sense of commonality of interests, for instance in the face of repression, is quite important.
In the late 1890s, post ‘propaganda by the deed’, it's quite established that there is a transition, which Jean Maitron has called “la dispersion des tendances” [the scattering of tendencies]. We can see that things become a bit more ideologically polarised especially, I think, because of the advent of new brands of anarchist individualism and lifestyle experiments which more conservative anarchists like Grave were horrified by. Vegetarianism, women's emancipation, free love colonies—all that was an absolute nightmare for them. And then you have les gueulards [the loudmouths] of La Guerre Sociale who also have a lot of misgivings and hostility towards figures, especially like Grave, who claim to have so much power and ascendancy in the movement.
At this stage, it becomes quite fixed and this feeling of unity dissolves. Then the war exposes deep ideological rifts. I’ve never quite thought of it in those terms, but it’s also absolutely striking to see such a condensed history of a highly influential social movement from emergence, unity, to the shattering blows of the First World War.
JEH: And in this way, I think what you show in the book is how periodicals help us track and reflect on these processes of ideological formation ideological differentiation which take place in a very short amount of time. Anarchism, then, can be seen as a microcosm for the study of ideological differentiation more broadly.
CB: Absolutely, that is really interesting. There’d have to be a comparative study to really identify the specificities of anarchist print culture. In the case of anarchism, the main ideological debates play out in major periodicals. The doctrine of syndicalism was elaborated, if you look at Europe, in the dialogue between a number of publications: Freedom in London, Le Père Peinard and then La Sociale when Pouget comes back to Paris, La Révolte, Les Temps Nouveaux, the Italian publications coming out in London, Italy, and the US at the same time. These debates and discussions unfold the big theoretical pieces as well as pamphlets, but what is also interesting is how it plays out in the paratextual elements of the periodicals—in one footnote you might find a commentary, or the report of a meeting where these questions were also being discussed
I find that one of the joys of studying that press is how they argue with each other. Conflicts between Grave and, say, Émile Armand (L’Anarchie) were such that they could be really vile with each other, and it could go on for weeks—the squabbling and the pettiness and “you said that…” and “the spy in London was doing this…”, all of which might be echoed by placards and manifestoes… These are arguments reflected in various elements of print culture to which we might not necessarily pay attention, but which were really important in this process of differentiation.
JEH: Thinking about another dimension of anarchism and thinking about Grave’s practice as an editor and publisher. In anarchism it's common to say that prefiguration, prefigurative politics are central. Anarchists want to enact the kinds of social relations they would like to see in a revolutionary future as much as possible in their day to day lives. How do Jean Grave and his publications fit that? How does he enact—or does he enact—the kind of anarchist relations that presumably he would have wanted to see in a revolutionary society?
CB: That's a very problematic area for Grave. The papers were notorious—perhaps unfairly so—for being places where Grave shared his point of view, and allowed people with whom he agreed to share their point of view. So, you might say, if we go with a prefigurative hypothesis, that his vision of an anarchist society was very much ‘everybody does what Grave has said should be done’. He was infamously nicknamed the Pope on rue Mouffetard [the place where his publications were printed] by the anarchist Charles Malato, in reference to this alleged dogmatism.
That’s one aspect which I’ve tried to correct in the book. The papers were actually quite collective, collaborative endeavours. I've mentioned syndicalism and Grave’s defiance toward syndicalism, and yet the pro-syndicalism anarchist and labour activist Paul Delesalle had a syndicalist column there for a very long time, and Grave really engaged with it. More broadly, if we look at some of his archives, his letters, he did reject some material submitted to the paper. For the literary supplement, I remember one letter where he says “I can’t publish this, the quality of the verse is insufferable, I’m not going to publish this!”. He was also prone to excommunication and personal quarrels but in the broader milieu of anarchism this was not specific to Grave. When things soured, relationships could become quite embittered and then individuals would be kicked out of groups… But I don't think Grave was necessarily as intolerant of personal and ideological difference as he's been portrayed. As I’ve mentioned, the papers were dialogic spaces: there were letters, and I must really emphasise again the paratextual elements, which allowed many voices and different currents into the paper. The last two pages were announcements for local meetings, book reviews written by different people… The contributions are very dialogic in that space, and I think that's one of the reasons why there was successful—and this was very much a deliberate approach on Grave’s part.
And another aspect of this is the place where the papers were produced: his attic in the Rue Mouffetard. That was famously really, very open, including to spy infiltration. There was a limit to how many people could be there, because the attic was really small, but this was a very open space. There are so many stories shared by Grave or others of intruders, spies trying to infiltrate this space, there was a bit of dark tourism around it, but so many contemporary commentators stressed the openness of this place, and it seems clear that this shows a certain pedagogical outlook on what anarchism should be, and how important dialogue was to its construction.
JEH: And I suppose it also fits in with the discussion about anarchist identity and what it meant to be an anarchist publisher in that in that period. Moving on to the theme of personal connections. One of the things that seems to be key to your study of anarchism through Jean Grave is the way in which his personal connections as well as his material position—his work, his way of working and his networks—made it possible for him to not only be a theorist of anarchism, but also a kind of unavoidable character at the time in the reconfiguration of anarchism in the late 19th and early 20th century. How important do you think investigating networks of personal relations is to the study of anarchism specifically or political ideologies more broadly?
CB: I think it is really important. To take the example of Grave, one obvious aspect which has been under-explored is his friendship with Kropotkin, although there is a good deal of social history around Kropotkin at the moment—it’s the centenary of his passing. But looking at networks really allows us to show different sides of the movement and its protagonists, and the great deal of dialogue and collaboration that existed in anarchism. This is not specific to my research. Fairly recently, Iain McKay has studied how important these French periodicals were for the dissemination and elaboration of Kropotkin’s ideas. So, if you bypass the friendship with Grave and the editorial partnership, which was so central and completely ignored until a few years ago, you really do miss on a really important aspect of the creation and diffusion of anarchist communism. It’s the same between Grave and Reclus: looking at egodocuments and less formal sources (typically letters and autobiographies), you can uncover many arguments about violence, and also debates about ivory tower anarchism, of which Grave was repeatedly accused. These seemingly casual discussions and letter exchanges shed light on the big debates which form the more official intellectual and political history of anarchism.
With Grave, I became really interested in the course of my research in his second wife, Mabel Holland Grave. She was an absolutely fascinating character in the anarchist movement, in the fine British tradition of upper middle-class women’s anarchism. She comes a bit out of nowhere, after Kropotkin introduced them, with no clear journey to anarchism, for instance. She came from a very affluent background, was boarding-school educated, which was not necessarily a given even for a privileged woman in this period, and she became a regular partner of Grave, both personally and politically. She collaborated with him and contributed to the paper. Anarcha-feminism was not something Grave really engaged with at all, but then we look at the praxis and the way he dedicated a book to her, stressing that they’d worked on it together, for instance, the fact that she was clearly a partner and the beautiful illustrations which she contributed, along with her editorial input… You could say that’s even worse: he used and silenced the labour of his wife. However, that's not the way I interpreted it. I thought that it was interesting how, in his daily life, so if we talk about prefiguration, he seems to have been far more progressive than his writings might have let on.
So, I do think these networks are crucial. And here I'm really talking about private life—but there are so many ways you can look at this: friendship, casual acquaintances… I loved reading Grave’s memoir, how he wrote about bumping into people in the street—activists he knew, anarchist or not—and how they would discuss this or that. That's the daily life of a social movement. And I think for anarchism this is so important. If you're looking at a movement—perhaps like Marxism, where the doctrine is elaborated in conferences, basically where there is a sense of strict sense of orthodoxy, where there are formal institutions at various levels and gatekeepers often occupying official roles, it's far more problematic. The same was probably true of the socialist parties emerging at the time. This is about the frameworks of political creation and channels of political dissemination. Anarchists did not have parties, and rarely had binding official documents. And so this allowed that kind of flexibility, whereby informal interactions become essential. For historians, this means that the social history of politics is immediately essential. This is true of any political movement, of course, but the because of the predominantly (an-)organisational character of anarchism, the social milieu is more obviously relevant.
JEH: This is nicely tied to the next question I wanted to ask, which returns to prefigurative politics and the way in which personal connections and networks are linked to prefiguration. As you show, it's these networks and personal connections that put Grave on the map. It's because he is able to create and foster these connections that he is a key figure in late 19th-century anarchism. How does this role as a kind of rhizome, as a node in the network sit with anarchist politics? Does it lead to the kind of problems you were talking about, like gatekeeping? How does it fit with anarchism’s argument in favour decentralisation and the diffusion of power?
CB: Yes, that's a very problematic point and is one of the things I really set out to investigate with the book. I've come to the perhaps generous conclusion that Grave was primarily genuinely interested in sharing knowledge and sharing anarchist ideas—sharing his own vision, one might say, but I don't think that's necessarily true. I think really the emphasis for him was on enabling discussion and spreading anarchist communism. I have come across discussions with Kropotkin where he says, “have you seen the number of ads we have in the paper this week?”, and that’s of course not commercial advertising but ads where people communicate and share information about local organisations. That was on the national scale, and Grave would also advertise meetings internationally.
Grave was conscious of the authoritarian potential of centrality. He was definitely aware of the criticism that was levelled at him, and he does say this autobiography: “I did this because, basically, I was quite certain of what I was saying, and I had my vision and the paper had a special place in the global anarchist movement…”, that was his argument in upholding what might be considered a very dogmatic approach to anarchism and its daily politics. But, alongside this, and there was so much effort towards diffusion, toward sharing the paper, reporting on and encouraging local movements.
The suspicion levelled at Grave, that he was focused on spreading his own, somewhat narrow conception of anarchism is obviously what we would call know diffusionism—this idea that French anarchism shone all over the world, from Paris, from the attic on the rue Mouffetard, and occasionally from London but that's about it. But there are discussions, in particular from Max Nettlau, that are absolutely staggering in how contemporary they sound in their critique of such diffusionist assumptions. There are records of Nettlau expressing that “sending a few dozen copies of La Révolte to Brazil is not going to bring about revolution in Brazil, you need to adjust your ideas a little…”. He was quite aware that sharing print material was not enough, and was also fraught with ideological assumptions.
However, what is interestingly being discussed by historians of anarchism working on non-European areas—I'm thinking of Brazil and Asia, in particular—is the great effort that went into and adapting anarchist material to local circumstances. You can see from Grave and others that there was a great deal of effort spent in seeking information about international movements, to reflect their activities in the paper, but also to have the knowledge to discuss their situations. I think it's far more nuanced and horizontal vision that appears. This is really interesting for us, as contemporary historians looking at these circulations in the light of all the discussions about provincialising Europe, and I would say the anarchists didn't do too badly actually.
JEH: Indeed, one of the other points that struck me when reading your book was how you seek to challenge the diffusionist narrative even as you focus on a Paris-based node for the circulation of anarchism. Do you think that the study of someone like Grave and his periodicals—who are, as you’ve said, connectors—and of anarchist print culture, more generally, may lead us to rethink the way in which anarchism circulated and reconfigured itself at the transnational and global levels? How can studying anarchist print culture help us provincialise Europe and European anarchism?
CB: What is really great at the moment is that there are so many studies from a non-European perspective, discussing all of this. I'm thinking, for instance of and Nadine Willems’s work on Japanese anarchism and Ishikawa Sanshirō, but also Laura Galián’s work on anarchism in a range of (post-)colonial contexts in the South of the Mediterranean. This is really fascinating work in showing different anarchist traditions, exploring new areas, showing how they've engaged with these European movements, but also questioning the very notion of anarchism. Of course, when French anarchism is exported, say to Argentina, where a book by Grave might be translated, its meaning changes automatically through this change of context. So, the more empirical data we have, the more studies we have, then the more we can start revising and understanding what happens in translation, and in a variety of cultural contexts. Print culture is a very good way of entering this because print was the prime medium for the global circulation of anarchism. And if you had people being mobile, they would set up or import papers, most of the time, so print culture is probably the best source that we have to study this. This also includes translations of major theoretical works and the international sale of pamphlets—these aspects are less well-known, for now at least, but can really help us understanding processes of local appropriation.
 Iain McKay, "Kropotkin, Woodcock and Les Temps Nouveaux", Anarchist Studies 23(1) (2015), 62ff.
 Nadine Willems, Ishikawa Sanshirō's Geographical Imagination: Transnational Anarchism and the Reconfiguration of Everyday Life in Early Twentieth-Century Japan (Leiden: Leiden University Press, 2020); Laura Galián, Colonialism, Transnationalism, and Anarchism in the South of the Mediterranean, (Cham: Palgrave Macmillan, 2020).
by Waqar H. Zaidi
If you were to ask someone about the drivers of globalisation, you would probably be told that it is caused by faster, greater, and more accessible transport and communications. These have allowed for greater international travel, faster movement of people and information, and the greater circulation of trade, commerce, and capital more generally. Questioning further, you will learn that the speeding up and spread of transport and communications have in turn been driven by transformative new inventions: most recently the internet, but going backwards in time: the aeroplane, the telephone, the steam-ship, and the telegraph.
Such ideas are so deeply embedded in our consciousness that there is little questioning them. But what if they could be questioned: problematised, analysed, historicised? That’s exactly what historians have begun to do. One line of enquiry has been to examine culture and boosterism in relation to particular technologies as they emerged and spread at particular time periods. By technological culture I mean widespread assumptions and beliefs about particular technologies and technological spectacles. By technological boosterism I mean publicity and rhetoric specifically created to boost these technologies and their positive impact. Important case studies of this ilk include studies of the telegraph in the late 19th century and aviation in the first half of the twentieth century.
But what if we could go further, and see these types of beliefs as ideological: that is as part of wider political ideologies, or cohesive enough to be considered as ideologies in and within themselves? In my new book, Technological Internationalism and World Order: Aviation, Atomic Energy, and the Search for International Peace, 1920–1950, I do exactly that. I argue that aviation and atomic energy were seen by liberal internationalists as internationalising technologies, and were incorporated into both their political projects for political transformation at the transnational level, and their beliefs about the nature of international relations.
The book explores US and British proposals for the international control of aviation between 1920 and 1945, and proposals for the international control of atomic energy in 1946. These proposals, I suggest, need to be seen not only as attempts at arms control (which they undoubtedly were) but also as parts of wider ideologies seeking to remake international relations, and as manifestations of internationalising beliefs about various sciences, technologies, and technical experts. These proposals, I suggest, point to a wider technological internationalism that was not only prominent amongst intellectuals and practice at the time but also more widely distributed in society. This technological internationalism was not uniform in its characteristics, and nor was it unchanging: rather it was heterogeneous, waxed and waned over time, and focused on different technologies and techniques at different points in time. The period 1920 to 1950 was a tumultuous time socially and politically, with ideas and discourses also emerging, changing, and/or dissipating. It is no surprise, then, that technological internationalism was also subject to the same push and pull of domestic and international politics, as well as social, economic, and technological transformations. Yet it retained an essential unity in terms of core beliefs and commitments.
What, then, is technological internationalism, and where might we find it? What’s to be gained by introducing this concept, and what aspects of our world might it allow us to understand better? Two terms currently used by historians shed light on how this notion might function: scientific internationalism and technological nationalism. Scientific internationalism is usually seen as both an activity and an underlying ethos: the activity being scientific cooperation across national boundaries with little regard for political and cultural differences, and the ethos behind it the notion that science as an unhindered knowledge-producing activity is, and should be, inherently international. Scientists, as carriers of scientific internationalism, are said to embody this ethos. Technological nationalism is also both an activity and an ethos, though is generally located in the policymaking sphere, and understood to be the pursual of national technological projects for prestige rather than economic or other rational reasons. It usually includes an ascription to particular technologies of qualities linked to the nation and national prestige. So, for example, in my study of the celebrated British engineer Barnes Wallis I showed that he ascribed aerial qualities to the English nation, and in turn saw his aeroplane designs as peculiarly English.
Technological internationalism, I suggest, is akin to both. Like technological nationalism it focuses on particular technologies, inserts them into historical narratives, and ascribes to them particular transformative properties. More than just artifacts, these technologies are political in that they are thought to naturally achieve, or have the potential to achieve, particular social and political outcomes. Like the science in scientific internationalism, the technology in technological internationalism also helps (so it is believed) to bring people together by transcending national boundaries and political differences.
The attribution of internationalising abilities to technologies first emerged most forcefully in the 19th century as part of a wider attribution of internationalising attributes to international trade and commerce. As the argument that free trade and commerce brought countries together and so spread peace started to spread, boosters of particular new technologies promoted them through these ideas. So, for example, the telegraph was touted as a great internationalising technology bringing the nations of the world together. Similarly the steamship drove hopes for a closer integration of the British empire and English-speaking peoples.
As a ‘new internationalism’ spread in the first two decades of the twentieth century, so did the roster of technologies with these Cobdenite properties. For internationalist Norman Angell, writing just before the First World War, the steam engine and the telegraph were now joined by the railway, printing, and electricity in deepening interdependence. War, he concluded, was an increasingly irrational choice for nations whose commercial interests were so globally intertwined. These lists of technologies kept pace with the latest inventions in transport and communications. By the 1920s it was aviation which was seen as the leading world-changing technology. Radio was soon added too. One list, published by internationalist legal scholar Clyde Eagleton in 1932 read: ‘steam and electronic railways and ships, telegraphs and telephone, newspapers, and now aviation, radio, and moving pictures’.
Technological internationalism consequently emerged as an important component in liberal internationalist rhetoric and imagination because the artifacts that it placed at its center both encapsulated some of the central tenants of liberal internationalism and made them accessible to a wider public. Indeed, by talking about internationalist projects through technologies activists reflected back many society-wide assumptions about these technologies and the world more broadly. It was widely accepted that the aeroplane was ‘making the world smaller’ or ‘bringing people together’. Through technological internationalism internationalists could connect their calls for an international society or greater international organisation to such public ideas.
The interwar years, incubators of extreme ideologies and movements, produced radical liberal internationalisms which incorporated such technological internationalisms. These technological internationalisms functioned on two registers in liberal internationalist activist and intellectual output in the 1920s, 1930s and 1940s. The first, noted above, connected straightforwardly to widely held notions of communications and transport-driven international connectivity. The second consisted of particular political proposals for the international governance of technology in the public sphere. These built on and amplified ideas about the inherently pacifying effects of technologies and the perverting nature of militarism, but developed them towards radical proposals that spoke to liberal internationalist agendas on arms control and collective security.
Building on the emergent liberal internationalism of the period (including earlier calls for international naval policing and international organisation), these proposals emerged in Europe after the First World War in the form of calls for the formation of an international police force. This was to consist largely or solely of military aircraft, and was supposed to create collective security by enforcing peace and disarmament. These proposals expanded further during the 1932 Geneva disarmament conference, at which European delegates discussed proposals for the internationalisation of civil aviation as well. Both military and civil aviation, it was argued, needed to be taken out of the control of nation-states and instead controlled by the League. In most proposals nation-states were to retain fighters and small transport aircraft only, with bombers and civilian airliners being handed to the League to create a League air force and airline. Once the disarmament conference collapsed, and rearmament accelerated into the latter half of the 1930s, hopes for internationalised aviation dwindled, but were rekindled during the Second World War. A United Nations air force was widely discussed in US and British internationalist policymaking and internationalist circles (prominent proponents included James T. Shotwell and Quincy Wright in the US, and Philip Noel-Baker in Britain), and even raised at the 1944 Dumbarton Oaks Conference on the formation of a United Nations organisation. Although no air force was formed, the finalised Charter of the organisation retained some scope for its organisation.
Although these proposals were sustained by a number of social processes, they were also founded on a number of particular beliefs about the nature of science and technology. First, it was believed that modern science-based technologies, such as aviation, were inherently civilian with the potential for great positive impact, but could be, and often were, perverted for militaristic and nationalist ends. Human thinking and institutions were not advanced enough to understand or cope with these negative effects, and so needed to be developed further in an internationalist direction.
In August 1945 a powerful new technology was introduced to the world, atomic energy, which clearly had the potential for great destruction but also promised (so it was believed) cheap energy and other benefits. The internationalist impulse towards international organisation was rejuvenated, though atomic energy now replaced aviation as the great transformative technology in world affairs. The foundational beliefs about the nature of science and technology continued, transferred now from aviation to atomic energy, and from the League of Nations to the United Nations. Internationalists turned to call for the transfer of atomic plant and equipment from the control of nation-states to international organisations, and official proposals (such as the Baruch Plan) were tabled and discussed at the United Nations. It ‘seems inescapable’, announced Manhattan Project physical chemist Harold Urey at a major internationalist conference in 1946, ‘that within a relatively short time a world government must be established if we are to avoid the major catastrophe of a Third World War’.
Although these visions and proposals did not come to pass, and liberal internationalism declined in fervor as the Cold War deepened, notions of communications and transport-driven international connectivity survived. It is still commonplace to hear today that the aeroplane, alongside newer inventions such as the internet, is shrinking the world.
But perhaps the aeroplane, the internet, and other technologies have indeed shrunk the world, and brought about greater globalisation and globalised interactions. If this is so, what benefit do we gain by marking these beliefs as ideological, rather than as common sensical commentary on reality? My book suggests that many such beliefs about these technologies go far beyond simple shrinkage. They focus on the implications of shrinkage, which are generally taken to mean a heightened possibility of both peace and war. These beliefs are thus inherently politically, and allow these technologies to be referenced in or be incorporated as touchstones of political programs or rhetoric that promise international peace and the abolition of war.
Today, the integrationist properties of modern technologies such as the aeroplane and the internet are so widely taken for granted that they are often assumed rather than explicitly stated, and are sometimes even seen as cliched. Yet challenges to technological internationalist assumptions have emerged over the years, especially as the allure of globalisation wore off in the 2000s and people turned to question the meaning and benefits of global integration. More recently, we have discovered that the internet can just as easily spread disinformation, hate, and fear as it can spread understanding. So we continue to grapple today with the questions to which technological internationalists once thought they had the answer: what are the inherent potentials of new technologies, and how can they be use to bring about our utopias and avoid our nightmares. The answers to these questions, I would suggest, are more ideological than one might care to admit.
 Simone M. Müller, Wiring the World: The Social and Cultural Creation of Global Telegraph Networks (New York: Columbia University Press, 2016); David Edgerton, England and the Aeroplane: Militarism, Modernity and Machines, 2nd ed. (London: Penguin, 2013); Robert Wohl, The Spectacle of Flight: Aviation and the Western Imagination, 1920-1950 (New Haven, CT: Yale University Press, 2005); Jenifer Van Vleck, Empire of the Air: Aviation and the American Ascendancy (Cambridge, MA: Harvard University Press, 2013); Joseph J. Corn, The Winged Gospel: America’s Romance with Aviation, 1900–1950 (New York: Oxford University Press, 1983).
 Waqar Zaidi, Technological Internationalism and World Order: Aviation, Atomic Energy, and the Search for International Peace, 1920–1950 (Cambridge: Cambridge University Press, 2021).
 There is a large literature on scientific internationalism, for an overview see: Brigitte Schroeder-Gudehus, ‘Nationalism and Internationalism’, in R.C. Olby, G.N. Cantor, J.R.R. Christie, and M.J.S. Hodge (eds.), Companion to the History of Modern Science (London: Routledge, 1990), 909-919.
 The term was coined in the seminal paper: Maurice Charland, ‘Technological Nationalism’, Canadian Journal of Political and Social Theory X 1-2 (1986): 196-212.
 Waqar Zaidi, ‘The Janus-face of Techno-nationalism: Barnes Wallis and the ‘Strength of England’’, Technology and Culture 49,1 (January 2008): 62-88.
 Müller, Wiring the World), chapter 3.
 Duncan Bell, ‘Dissolving Distance: Technology, Space, and Empire in British Political Thought, 1770–1900’, The Journal of Modern History 77,3 (September 2005): 523–562.
 Following from the nineteenth-century liberal intellectual Richard Cobden, Cobdenism was a commitment to international free trade and commerce as an antidote to war. Peter Cain, ‘Capitalism, War and Internationalism in the Thought of Richard Cobden’, British Journal of International Studies 5,3 (1979): 229-47.
 Norman Angell, The Great Illusion: A Study of the Relation of Military Power to National Advantage, 4th ed. (New York: G. P. Putnam & Sons, 1913), 142, 277.
 Clyde Eagleton, International Government (New York: Ronald Press, 1932), 10.
 I take liberal internationalism to mean, broadly, a belief in a community of nations and a commitment to peace and international order through international trade, commerce, and organisation. See for example: Fred Halliday, ‘Three Concepts of Internationalism’, International Affairs 64,2 (Spring, 1988): 187-198.
 Harold C. Urey, ‘Atomic Energy, Master or Servant?’, World Affairs 109,2 (June 1946): 99–108.
 On the internet, see for example the work of historian and social theorist Mark Poster. E.g. Mark Poster, ‘National Identities and Communications Technologies’, The Information Society 15,4 (1999): 235-240.
by Stefan Pedersen
The idea that adherents of neoliberalism desire world government is an old misunderstanding. In recent years this mistaken notion has been promoted by populists such as former President Donald Trump who in one of his most ideology and world order oriented speeches to the UN General Assembly made the ‘ideology of globalism’ and global governance seem diametrically opposed to his preferred ‘doctrine of patriotism’ and national sovereignty.
Though it is not nominally a given that Trump and others with similar nationalist inclinations are specifically talking about neoliberalism when this supposed major contemporary ideological cleavage comes up, there should be little doubt among students of global governance that this is effectively what is being claimed when neoliberalism has been the hegemonic ideology in global governance circles at least since the Cold War ended. In addition, the terms ‘globalism’ and ‘globalists’ have been connected to early and present-day neoliberals in several influential studies over the last few decades. Noteworthy examples in this regard are here initially Manfred B. Steger’s many works treating neoliberalism as the hegemonic form of ‘globalism’—albeit not the only one. Then, Or Rosenboim notes how neoliberal theorists actively played a role in ‘the emergence of globalism’ in the 1930s and 1940s—and she also sees neoliberalism as one of several streams of thought advocating ‘globalism’ in the sense of variations over the theme of establishing some kind of global order. Finally, and most consequentially for the way neoliberalism is presently understood, Quinn Slobodian has in his Globalists (2018) convincingly and in detail argued that the early neoliberals operated with an agenda aiming for global control of the workings of the world economy that subsequent ideological fellow travellers had to a certain extent managed to establish through legislative and international institutional inroads by the mid-1990s.
Those at the forefront of studying neoliberalism today, such as Slobodian, has provided us with a multitude of insights into neoliberalism’s multifaceted development and present configuration. For instance by further confirming how the neoliberals have prioritised establishing ‘world law’ over a ‘world state’. But on one front there seems to be a paucity in the record—and that is when it comes to how the neoliberals originally arrived at this stance and what it actually meant in world order terms in comparison to the then extant alternatives.
What most scholars have thought happened in world order terms during neoliberalism’s formative period has had a tendency to be derived from an intense scrutiny of the period that spanned from the Colloque Walter Lippmann in 1938 to the foundation of the Mont Pèlerin Society (MPS) in 1947. Significant here is what was said by the various ‘early neoliberals’ who attended these monumental events in this formative period for the neoliberal ideology. But as Hagen Schulz-Forberg has now sensibly argued, if the Colloque Walter Lippmann represents the birth of neoliberalism, then that birth will have been ‘preceded by pregnancy’.
The years of importance for the earliest development of neoliberal thought does therefore not exclusively include the 1938–1947 period but also the about two decades of intellectual gestation that preceded that final sprint leading up to the formation of the MPS. Considering the span of the careers of some of the primary actors here, such as Walter Lippmann—who the eponymous Colloque in 1938 was held in honour of—and Ludwig von Mises, this brings us back to their earlier writings during the First World War. We can therefore say that the neoliberalism whose core tenets were broadly agreed upon in the late 1940s was the fruit of debates that spanned the entire period 1914 to 1947. This was also a time when considerable intellectual effort was put into thinking about world order, first concerning the shape of the League of Nations and then the shape of what ought to replace the League of Nations once this organisation had revealed itself to be dysfunctional for ensuring peace among mankind.
World politically, the temporal span from 1914 to 1947 also takes us from the realisation that imperialist nationalism needs to be tamed or excised, brought first to the fore by the occurrence of the Great War itself, to the understanding that a ‘Cold War’ had begun in 1947—an expression not coincidentally popularised by Lippmann, who was a journalist and an avid commentator on foreign affairs, and in 1947 published a book with the title The Cold War that was a compilation of articles he had recently written. Lippmann, as perhaps the premier American foreign policy commentator of the time and associate of centrally placed early neoliberals such as Friedrich von Hayek, is the key to unlocking the world order dimension that neoliberalism ended up incorporating by the end of the 1940s.
The world order dimension
To get a handle on this argument it is important to note that neoliberalism, like all other major political ideologies, can be understood as composed of a series of conceptual dimensions. Since neoliberalism is considered the ideology behind the process of economic globalisation that gained truly global reach once the Cold War ended, it is naturally its economic dimension that has been the key focus. And to understand how this works, we can think of the number of ideologies with party political representation that by the 1990s had put neoliberalism’s economic dimension into the economic slot Keynesianism once occupied. This practically happened across the board, with Thatcher and the Conservatives and Reagan and the Republicans spearheading a change in policy later also followed up by Clinton and the Democrats and Blair and the Labour Party—and this was repeated throughout the world.
Thinking here in terms of an ideally articulated neoliberalism, rather than the compromised versions that appear once the ideology is made to fit some party political program in the real world of political practice, neoliberalism should be understood as a multi-dimensional ideology in its own right that also contains a ‘world order dimension’ of great significance. Every ideology contains what is at least an implicit world order dimension. But since today’s nation-state centric world order has existed unchallenged longer than most can remember, it is commonly assumed that all political ideologies are designed to function in the state system. Conservatism, liberalism, and socialism, we know best in their national garb. Stalinism is a form of communism made to suit the world of nation-states with its focus on achieving ‘socialism in one country’. Every ideology that is made to function within the nationalist and statist parameters of the current world order share the same basic ‘world order dimension’.
The early neoliberals ended up deviating from traditional nationalist conceptions while recognising—with Marx and Trotsky—that a world economy had become a feature of reality. The Trotskyist solution to dealing with a novel world economy was to aim to subsume the entire world under the command and control of a communist regime that would also lead politically. The neoliberals worked from the same premise, that there was now a world economy, but with a different set of aims. They wanted to free the economy—meaning those who benefitted from mastering it through their entrepreneurial skills. That meant avoiding at all cost that some force powerful enough to subsume the world economy to a different set of political interests arose—be they for instance communist, democratic socialist, social liberal, or humanist (and in our day we can add ‘ecological’ to that list). This was in part achieved through taking a strong anti-totalitarian stance, deriding both fascism and communism. But there was a greater Westernised threat to a world order suited to neoliberal interests: a world democracy, where the free people of the world could elect a socialist world party into power.
A world democracy, as someone as versed in cosmopolitan theory as Mises well knew, was not really compatible with a world of nation-states. It would have to involve what we can call a ‘cosmopolitan world order dimension’ that is incompatible with the nation-state sovereignty that forms the foundation of the extant system of states. Mises had once thought this an ideal solution himself, since to him cosmopolitanism was compatible with ‘liberalism’ and ensuring world peace. But it gradually dawned on both Mises and Hayek that a paradigm shift in the world order dimension subscribed to by the democratic populations on the planet could spell doom for the institution of the neoliberal economic agenda they were in the process of planning in detail. A world government, though still desirable if its only function would be to ensure the free working of the world economy, was an all too risky proposition if it were to be democratically elected. The simple reason for this was that the neoliberal agenda was understood to be not inherently popular but elitist, or for the few rather than the many. Popular politics in the 1930s and 1940s, especially as fascism, Nazism, isolationism, and other right-wing varieties lost their pull, was becoming more and more social democratic or liberal in a manner that we today would perhaps better recognise as ‘democratic socialist’.
The neoliberals therefore thought it would be better if the rules for running the world economy were simply made expertly and separated from the political rules that parties elected into power could alter according to the volatile demands of diverse voting publics. This neat separation would have the benefit of blocking socialist reforms from having severe world economic effects even if socialists were to be elected into power in key nation-states. What this meant in world order terms was that neoliberalism needed to be both economically ‘globalist’ or universalist, so that the world economy could operate on neoliberal principles, and politically nationalist, so that controlling the world economy as a whole would not be subject to popular desires. The possibility of just such a separation was aired by Mises already in 1919. But due to the insecurity surrounding the question of what would replace the ailing League of Nations, a question which became steadily more acute as world politics converged on the course that led to World War II throughout the 1930s, there was always also the chance that the masses would start to demand the more comprehensive political solution to the world’s problems that world federalism offered. The neoliberals therefore also had to address this contingency—while finding ways to argue against it without sounding too illiberal. However, as the Second World War entered the phase where Allied victory seemed certain while its leaders seemed eager to water down any plans for a permanent organisation to keep the peace, the neoliberals understood that the old plans could be reinstated. Lippmann is an apt example of a neoliberal theorist who helped see to it that things developed this way.
Walter Lippmann's crusade against One Worldism
Lippmann had a long history of engagement with issues relating to diplomacy and grand strategy that made him the foreign policy wonk in the group of early neoliberals. In 1918, Lippmann had been the brain behind no less than eight of Wilson’s historic ‘Fourteen Points’ that laid down the American terms for the peace to come after the end of the First World War. From this time on, Lippmann was a very well-connected American journalist and intellectual, whose close connections in Washington D.C. included all sitting Presidents from Wilson to Lyndon B. Johnson. Even after his formal retirement from the Washington D. C. circuit, Nixon sought the old Lippmann’s advice too. Lippmann was no neutral observer, and is for instance known to have sided for Harry Truman against Henry A. Wallace in the crucial contest for the Vice Presidency that preceded President Roosevelt’s last nomination. This calculated action is evidence that Lippmann, in accordance with early neoliberal tenets, preferred Truman’s anti-progressive agenda of replacing the ‘New Dealers’ Roosevelt had earlier put in place—New Dealers such as Wallace—with ‘Wall Streeters’ in his cabinet.
What is less often pointed out here is that Lippmann, through favouring Truman over Wallace, also would have made it clear that he was siding against the ‘One Worldism’ that Wallace and others who had thought long and hard about a desirable world order advocated. Lippmann, who instead appealed to a ‘realism’ that rested ‘on a hard calculation of the “national interest”’ was at this point ‘distressed by’ the ‘one world euphoria’ which was then a prevalent feature of post-war planning in idealist circles. The world federalism that was espoused by the idealists of the day seemed entirely impractical to Lippmann, who himself can be counted amongst the ‘classical realists’ in international relations theory—even if his ‘original contributions to realist theory were ultimately modest’. In contrast, Lippmann towards the end of World War II instead offered up a ‘formula for great-power cooperation’ that he thought of as ‘a realistic alternative both to bankrupt isolationism and wishful universalism’. What all this goes to show is that Lippmann, in his capacity within early neoliberal circles as an authority on matters of foreign policy and world order, would have further strengthened the neoliberal insight that the state-system was crucial to neoliberalism.
Reading the contemporaneous works of Mises and Hayek—which in the case of Mises spans nearly the entire 1914–1947 period—this is indeed what seems to have happened towards the end of this formative era for neoliberalism. Mises and Hayek were both markedly more open to idealist forms of world federalism in the early to late 1930s than what they ended up being towards the end of the war and in the late 1940s. This was likely part in response to Lippmann’s realist influence, supported by the general course of events, with the founding of the United Nations and the early signs of the Cold War developing, and part in response to a growing realisation that the world order that was most desirable from a neoliberal standpoint ought to be ‘many worldist’ in its construction rather than based on genuine One Worldism.
Mises and Hayek stands out as the most centrally placed early neoliberals who were willing to engage with the world order debate that ran concurrently to the formative neoliberal debate. Lippmann was not the only early neoliberal sceptical to One Worldism—the claim has indeed been made that the early neoliberals taken under one were all ‘acutely aware that nation-states were here to stay’. But in the world order discourse of the time, there were two distinctly different approaches to what was then viewed as the desirable and necessary goal of creating ‘a world-wide legal order’—and these two were either ‘law-by-compact-of-nations’ or a ‘complete world government that will include and sanction a world-wide legal order’. It is debateable if even those who subscribed to the former approach really believed that ‘nation-states were here to stay’ as the League of Nations order wound up around them and the Third Reich and then Imperial Japan swallowed most nations in their surrounding areas. It was also not a certainty that the United States or the Soviet Union, who each straddled the globe from the perspective of their respective capitals at war’s end, would let go of the new lands they now commanded. For a while, both Mises and Hayek supported some form or other of world federalism to ensure that basic security could be installed worldwide—with Mises advocating world government and Hayek favouring a federation of capitalist nations.
What laid the dreams of a world order for all humanity to rest was the lack of trust among the Allied nations that established the United Nations in 1945—which led to veto power being granted to the permanent members of the Security Council. This effectively made humanity’s further progress hostage to the whims of the leaders of the nations that won World War II, here primarily the conflicting interests of the new superpowers. Any remnant of hope for a quick remedy to this stalemate then disappeared completely as the Cold War started to escalate and the McCarthyite Red Scare kicked in. This made cosmopolitan advocates of a humane world order appear dangerously close to proponents of Internationalism in the United States and conversely led their Soviet equivalents to be seen as potential capitalist class-traitors there. The neoliberals had before this crisis point was reached and the world order debate was ended in its present iteration already disowned their prior engagement with figuring out what form a desirable world order people would willingly sign up to should take.
Divide et impera
Sometime between the beginning of the Second World War in Europe in 1939 and its end in 1945, both Hayek and Mises seem to have come to the same conclusion—supported by Lippmann’s insights and arguments—that world government would more likely than not be anathema to the primary goal of neoliberalism: creating a world economy where entrepreneurs could let their fortunes bloom unimpeded by negative government intervention. The reason for this was straightforward enough. Any world federation that in principle would be acceptable to the Western nations, first and foremost in 1945 the United States, Britain, and France, would have to be democratic. And an elected world government would at this time more likely than not be socialist, eager to install a Keynesian version of a global New Deal. This represented the worst of all worlds for the neoliberals—the least desirable scenario. One Worldism therefore had to be countered—with Lippmann’s ‘realism’ and communist smears. Subsequently, the whole program for a world government had to be kept discredited—which is achieved simply enough by letting the present world order run on auto-pilot, since its political default position is to uphold national sovereignty, nationalism, and the division of humanity into a myriad of designated national peoples with their own territorial states.
We are in the end faced with a peculiar world order dimension in neoliberalism that is anti-globalist in political terms but globalist in economic terms—insofar as we understand ‘globalist’ to be a synonym for universalist, which is of course how it is understood by nationalist politicians today who use the term to convey the opposite of the nationalism they themselves seek to promote. The paradox is therefore that the neoliberal ‘globalists’ are against the creation of a democratically functioning planetary polity or world government, especially if one understands ‘world government’ to be the legitimate government of a world republic or planetary federation ruled by representatives elected into power by the global populace in free and fair elections—that therefore also would end up being multi-ideological.
Pluralist cosmopolitan democracy embodied in a world parliament is not the goal, or even one of the goals that adherents of neoliberalism aim for. Instead it is something neoliberals fear, and that is a very different proposition from the nationalists’ misconceived portrayal. Another great misunderstanding today, one that follows from the misconception that the neoliberals want genuine world government, is that the neoliberals would abhor nationalism. Today, this leads many on both the left and right to think that neoliberalism can be effectively countered with a turn to nationalism—on the assumption that nationalism is the opposite of neoliberal globalism and therefore incompatible with it. But that is not the case. The neoliberals instead rely on nationalism to keep democracy tamed and irrelevant, at a scale too small for it to exercise effective control over the world economy’s neoliberal ruleset—which continues to send the spoils of economic activity towards Hayek’s idealised ‘entrepreneurs’.
Global democracy, stripped of nationalist division, is what the early neoliberals truly feared. We can today imagine what for instance a democratic socialist world government able and willing to enforce global taxation could do to the profit margins of high finance, multi-national corporations, global extractive industries, and the high net worth of individuals that currently are allowed to keep their money outside of democratic reach in offshore accounts, and see why the prospect of an elected world government became repulsive to neoliberals.
The big question today is therefore, when will we see an ideological movement for instituting exactly the kind of world government in the interest of humanity in general that would work properly to counter the neoliberal agenda? Any number of ideological projects could be global in scope, whether we are talking about prioritising liberal global democracy, economic solidarity, the ecological preservation of the biosphere, or enabling the future flourishing of human civilisation through intertwining all these three ideological strands into a cohesive and holistic planetary cosmopolitanism or planetarism that would be both post-nationalistic and post-neoliberal in principle. The left and green parties of today are clearly not there yet—but they will at some point have to realise that neoliberalism and nationalism are two sides of the same coin—the two ideologies reinforce each other and should therefore be countered as one.
 Stephen Gill. ‘European Governance and New Constitutionalism: Economic and Monetary Union and Alternatives to Disciplinary Neoliberalism in Europe’, New Political Economy, 3 (1), 1998, pp. 5–26.
 Manfred B. Steger. Globalisms: The Great Ideological Struggle of the Twenty-First Century. Lanham, MD: Rowman & Littlefield Publishers, 2009.
 Or Rosenboim. The Emergence of Globalism. Visions of World Order in Britain and the United States, 1939-1950. Princeton: Princeton University Press, 2017.
 Quinn Slobodian. Globalists. The End of Empire and the Birth of Neoliberalism. Cambridge, MA: Harvard University Press, 2018.
 Slobodian. Ibid., p. 272.
 See for instance: Philip Mirowski and Dieter Plehwe, eds. The Road from Mont Pèlerin: The Making of the Neoliberal Thought Collective. Cambridge, MA: Harvard University Press, 2009.
 Hagen Schulz-Forberg. ‘Embedded Early Neoliberalism: Transnational Origins of the Agenda of Liberalism Reconsidered’, in Dieter Plehwe, Quinn Slobodian and Philip Mirowski, eds. Nine Lives of Neoliberalism. London: Verso, pp. 169-196.
 Glenda Sluga. Internationalism in the Age of Nationalism. Philadelphia: University of Pennsylvania Press, 2013.
 Ronald Steel. Walter Lippmann and the American Century. Boston: Little, Brown and Company, 1980, p. 445.
 ‘Liberal’ in the American sense of supporting (the left-wing of) the Democratic party.
 Ludwig von Mises, Nation, State, and Economy: Contributions to the Politics and History of
Our Time. New York: New York University Press, 1983.
 Steel, Ibid., pp. 134–135.
 Steel, Ibid.
 Steel, Ibid., p. 589.
 John C. Culver and John Hyde. American Dreamer. A Life of Henry A. Wallace. New York: W. W. Norton & Company, 2001, p. 342.
 John Nichols. The Fight for the Soul of the Democratic Party. The Enduring Legacy of Henry A. Wallace’s Antifascist, Antiracist Politics. London: Verso, 2020, pp. 109–110.
 Culver and Hyde, Ibid., pp. 402–418; and; Steel, Ibid., p. 407.
 Steel, Ibid., pp. 404–406.
 William E. Scheuerman. The Realist Case for Global Reform. Cambridge: Polity, 2011, p. 6.
 Steel, Ibid., p. 406.
 This development is detailed in the article that this text is a companion piece to.
 Schulz-Forberg, Ibid., p. 194.
 Gray L. Dorsey. ‘Two Objective Bases for a World-Wide Legal Order’, in F.S.C Northrop, ed. Ideological Differences and World Order. New Haven: Yale University Press, 1949, pp. 442–474.
 Also detailed in the article that this text is a companion piece to.
 Gilbert Jonas. One Shining Moment: A Short History of the American Student World Federalist Movement 1942-1953. Lincoln, NE: iUniverse.com, Inc. 2001.
by Maísa Edwards
When we think of international institutions, it tends to be a select few that come to mind: the UN, NATO, the IMF, and the like, as well as multilateral groups such as the BRICS and India-Brazil-South Africa Dialogue Forum (IBSA). Less well-known is the Zone of Peace and Cooperation of the South Atlantic (ZOPACAS). But how should the ZOPACAS best be characterised? Is it even a formal organisation, an institution, or a military alliance? None of its member-states belong to the G7, although three are now members of the G20. It is made up of a collection of countries, some large like Brazil and South Africa, some very small like Uruguay and Benin, at times with Left- or Right-leaning governments, and some that have shifted from one to the other since its establishment. The ZOPACAS membership currently stands at twenty-four, with three South American and twenty-one African nations, and four official languages: English, French, Portuguese, and Spanish. What these member states have in common, despite their differing individual and political characteristics as well as colonial legacies, is a shared ideal that brings them together—a shared approach to peace. So what is the ZOPACAS and why is it important for contemporary trends in global relations?
The origins of the ZOPACAS
The ZOPACAS was established on 27 October 1986 by the United Nations General Assembly (UNGA). Its founding Declaration, A/Res/41/11, has seven preambulatory and seven operative clauses. They detail the various commitments of the newly-created zone of peace. As well as being a zone of peace, a designated geographic area dedicated to the preservation of peace, the ZOPACAS can also be thought of as a nuclear-weapons-free zone (NWFZ). This is due to a stipulation of membership being that states must not be in possession of any nuclear weapons capabilities. As Ramesh Thakur explains, ‘A NWFZ is characterised by “four Noes”: no possession, testing, deployment, or use of nuclear weapons’. This is significant, given that the ZOPACAS was established during the final decade of the Cold War. There are several other treaties that also have these tenets as core ideals. These include the Treaty on the Non-Proliferation of Nuclear Weapons (NPT); the Treaty of Tlatelolco, which prohibits nuclear weapons in Latin America and the Caribbean; and the Treaty of Rarotonga, which establishes the South Pacific as a nuclear-free zone. The ZOPACAS can thus be viewed as part of a wider movement, led predominantly by countries in the South, towards disarmament and the non-proliferation of nuclear weapons.
The commitments of the Declaration of the ZOPACAS, as described in A/Res/41/11, were centred principally around maintaining the South Atlantic as an area dedicated to peace and cooperation, ‘for the benefit of all mankind and, in particular, of the peoples of the region’. The Declaration also includes the need to remove the threat and presence of foreign military powers from the South Atlantic region, as well as maintaining a strong stance against the introduction and proliferation of nuclear weapons. It also condemned South Africa’s existing racist Apartheid regime and the country’s contemporaneous and illegal occupation of Namibia, with a clause stipulating an end to both as ‘conditions essential to guaranteeing the peace and security of the South Atlantic’. Advocacy for change in South Africa was a progressive step for the ZOPACAS to take, and was seen as crucial if the ZOPACAS was to be effective and live up to its name in practice.
When the ZOPACAS came into being, the three South American member states, Brazil, Argentina, and Uruguay, had recently returned to democracy following lengthy periods of Right-wing military dictatorship. They were keen to strengthen diplomatic and defence relations with their neighbours in South America and across the Atlantic. In West Africa, however, democracy was far from the norm, and states such as Nigeria and Ghana were governed by military juntas, whilst Angola was ruled by a Left-wing MPLA (People’s Movement for the Liberation of Angola) government closely aligned with the USSR. Despite the differences in political leanings and forms of government, a shared ideological position informed their actions and those of other ZOPACAS member states to the extent that they came together to promote their interests in the South Atlantic. In straightforward terms, we are dealing with a delimited geographical space occupied by a collection of state actors that shared a common approach to peace and cooperation.
How did the ZOPACAS come about? The UNGA voting record for its establishment shows that one hundred and twenty-four countries voted in favour, eight countries abstained, and one country voted against. Amongst those voting in favour were the future ZOPACAS member-states, as well as the Cold War superpower the USSR and its fellow United Nations Security Council P5 member, the UK. The eight abstainers were the European NATO members France, Belgium, the Federal Republic of Germany, Italy, Luxembourg, Portugal, and the Netherlands, as well as the then-rising Asian power Japan. The only opposing vote was cast by the US.
What motivated these abstentions? Whilst the fifth operative clause of the Declaration of the ZOPACAS stressed the need for an end to Apartheid and self-governance for Namibia, it also urged ‘the implementation of all United Nations resolutions pertaining to colonialism’. This may go some way to explain the abstentions of former colonial powers, particularly France, Belgium, and Portugal; after all, many member states of the ZOPACAS, including Brazil, Angola, the Democratic Republic of the Congo (DRC), Senegal and others are former colonies of these European powers. France expressed reservations that the Declaration provided ‘no adequate guarantees for freedom of navigation on the high seas…. [and that there was] vagueness concerning the limits of the zone concerned’. The Federal Republic of Germany articulated the same reservations. It is likely that the abstaining European powers, as exemplified by France and Germany, viewed the establishment of the ZOPACAS as a hindrance to their continued Eurocentric influence in the South Atlantic Ocean as well as in many of the countries of the region. This would reinforce their reluctance to support the establishment of a zone of peace from which they, as foreign military powers, would be excluded.
Why did the United States vote against the establishment of the ZOPACAS? Diplomatic records in the Itamaraty (Brazilian Foreign Ministry) archives show that the US had initially planned to abstain in the voting process, only to ultimately change course and vote against the ZOPACAS. The cable shows that the US demanded that Angola be cited in the Declaration as a threat to peace in the South Atlantic region, in addition to mentioning South Africa and its occupation of Namibia. Furthermore, the cable shows that the US also shared the same concern as France and Germany with regard to freedom of navigation. These themes encapsulated the competing ideologies at play in the wider late-Cold War context. At that time, the socialist government of Angola, led by the MPLA, was backed by the USSR. It is likely that the US viewed Angola as a menace and an unsuitable guest at the table to discuss peace in the region, not least since the country was also in the throes of a civil war. It is also conceivable that the US was concerned that the ZOPACAS would, in time, evolve into a Southern alliance, one that could eventually challenge NATO. The United States’ decision to vote against the ZOPACAS did not, however, hinder its establishment in 1986.
We can pause for a moment to recap on the external ideological context at the birth of the ZOPACAS: a certain Eurocentrism on the part of some former colonial powers with a history and influence in the South Atlantic region, leading to abstentions in the vote to establish the ZOPACAS; the existence of Apartheid-era South Africa, isolated from and at odds with its African neighbours; and the closing years of the Cold War, when superpower rivalry was apparent in the ZOPACAS vote and the Soviet Union actively supported one side of the civil war in Angola.
The ZOPACAS’ evolution after its establishment
The first ministerial meeting of the ZOPACAS took place two years later, in Rio de Janeiro in 1988. The twenty-two founding member states convened to discuss the commitments of the ZOPACAS and would continue to do so at a further six ministerial meetings: Abuja 1990, Brasilia 1994, Somerset West 1996, Buenos Aires 1998, Luanda 2007, and Montevideo 2013. Those founding members were later joined by Namibia and South Africa, following the independence of the former and the end of the Apartheid regime in the latter. South Africa’s decision to end its nuclear programme and decommission its small arsenal of nuclear weapons also opened the door to membership. It is noteworthy that South Africa is the only known case of nuclear reversal and has since become a major advocate for nuclear disarmament, although this is more the result of steps to end Apartheid under F.W. de Klerk rather than a direct result of the formation of the ZOPACAS. The country would later host the 1996 ministerial meeting in Somerset West and eventually become a leading ZOPACAS member. The Treaty of Pelindaba, which established Africa as a nuclear-weapon-free zone, was also signed the same year. A subsequent meeting took place in Pretoria in 1996, at which ambassadors from several ZOPACAS member states (Argentina, Brazil, Uruguay, Namibia, Angola, Ivory Coast, Gabon, Ghana, Nigeria, and Togo) as well as South African diplomats gathered to further discuss the protection of the marine environment, the denuclearisation of the South Atlantic, and combatting drug trafficking. What does this mean for the ideals of the ZOPACAS? In short: a steady change in focus.
The ZOPACAS is dedicated to preserving peace in the South Atlantic, particularly through the elimination of threats, including those posed by the presence of nuclear weapons. With the end of Apartheid in South Africa and the achievement of Namibian independence, two explicit threats named in the Declaration of the ZOPACAS had been removed. However, new issues were taking centre-stage with an emphasis on cooperation, the combatting of piracy and drug trafficking, as well as environmental concerns. These have become new priorities but the ideals of the ZOPACAS, however, remain the same: maintenance of peace and the strengthening of multilateral cooperation between members.
For South Africa, one the many positive outcomes of the end of Apartheid was its membership of the ZOPACAS. Like the abandonment of its nuclear arsenal, it is an example of the country’s shift from isolation, from a regime based upon racism and a recent history of draconian internal repression of its majority population, to a shared ideological alignment with twenty-three other states, to the extent that it too sought common goals of peace and cooperation in the South Atlantic. The addition of South Africa introduced another important player, a country with power and influence in Africa but also one interested in furthering South-South cooperation. As members of IBSA, Brazil and South Africa have continued to collaborate, and both have participated, along with India, in the IBSAMAR naval exercises. The size and reach of South Africa suggests that in the future it may begin to rival Brazil in terms of influence in the ZOPACAS.
The ZOPACAS agenda has evolved since 1986 and has developed to keep up with changing security concerns in the South Atlantic region. In the post-Cold War period, there has been increased debate in international fora and elsewhere about the Global South and South-South cooperation. The agenda of peace and cooperation between member states, however, remains at the heart of the ZOPACAS. This has led to the ZOPACAS often being cited as an example of multilateral cooperation, and member states have also been vocal in their individual approaches to, and interests in, the South Atlantic and regional security. In recent years, there has been a rise in concerns over maritime security, sustainable development, and the presence in the South Atlantic of extra-regional actors (such as the US and China), as well as piracy and drug trafficking. These concerns have escalated interest in strengthening maritime security and also brought those issues into sharper focus as potential threats to peace. These matters have impacted the agenda of the ZOPACAS and what the organisation defines as a perceived threat, and as a danger to the maintenance of peace. In turn, there has also been an increased focus on the maritime region of the Gulf of Guinea where many of these concerns have arisen. The most recent ministerial meeting in 2013, in Montevideo, was the first to include defence ministers along with foreign ministers among countries’ representatives. This is significant in seeking to address the growing security concerns of the ZOPACAS member-states. This sign of evolution indicates an explicit shift towards addressing defence concerns and signals an acknowledged need to move towards explicit military cooperation.
Brazil and the ZOPACAS
Looking across to South America, Brazil, a hegemon in the South Atlantic region, has been a leading member of the ZOPACAS since its inception. With a coastline of over 7,000 km, it is not surprising that the South Atlantic Ocean is a principal area of interest for the country. It is therefore beneficial for Brazil to maintain good if not strong diplomatic and defence relations with its neighbours, both in South America but also across the ocean in Africa. Brazil’s interests and aspirations in the South Atlantic are military, commercial, socio-economic, and diplomatic. Furthermore, its diplomatic and defence agenda in the South Atlantic was central to its role in the establishment of this zone of peace.
In fact, the ZOPACAS can be viewed as a Brazilian project, and indeed without Brazilian efforts the continuation of the ZOPACAS would not have been possible. Senior Brazilian diplomats frequently refer to ZOPACAS as “our initiative”, and in several diplomatic cables in the Itamaraty archives, the ZOPACAS has been explicitly described as an ‘iniciativa brasileira sobre a zona de paz e cooperação do Atlântico Sul’. Brazil has hosted two of the seven ministerial meetings and provides the momentum behind what can be referred to as a “new revitalisation” of the ZOPACAS. As mentioned earlier, the most recent ministerial meeting of the ZOPACAS was back in 2013; this has been the longest lull between ministerial meetings, the previous being between those in Buenos Aires in 1998 and Luanda in 2007. Brazil is currently taking steps to instigate another ministerial meeting and the importance of the ZOPACAS is apparent in both the 2020 Brazilian National Defence Plan and the Naval Strategy Plan 2040.
The National Defence Plan makes reference to the importance of the ZOPACAS and details how strengthening it will help consolidate Brazil’s position as a relevant regional actor, increase the country’s influence in its strategic environment, and reduce the possibility of military interference by extra-regional powers in the South Atlantic. The Naval Strategy Plan, which includes a twenty-year outlook, mentions the need to consolidate the ZOPACAS and avoid what it calls the interference of illegitimate interests. These steps, taken by the Brazilian Ministry of Defence, indicate a direction of travel towards a “new revitalisation” of the ZOPACAS—as signalled by the reference to the ZOPACAS made by Brazilian President Jair Bolsonaro in his speech at the opening of the United Nations General Assembly in September 2020.
It would be fair to say that, until very recently during the populist Bolsonaro presidency, in terms of foreign policy Brazil has largely followed where the US led under Donald Trump. Yet the Bolsonaro government appearing to give its support to the ZOPACAS would nevertheless suggest some independent thinking, in relation to past US opposition to the organisation’s establishment. On the ideological front, Bolsonaro and his government stand as polar opposites of a number of the Brazilian presidents and governments that precede him, such as the social democrat Cardoso and the avowedly leftist Brazilian Worker’s Party (PT) governments of Lula da Silva and Rousseff; and yet despite this, Brazil continues to endorse the ZOPACAS. Even with a limited interest in multilateralism, Bolsonaro’s government appears to view the ZOPACAS as one route to maintaining relations with Brazil’s neighbours on both sides of the Atlantic.
ZOPACAS into the future
Brazil is not the only country paying renewed attention to this zone of peace. It is joined by most of the countries that make up what I would call the Big Five ZOPACAS member-states: South Africa, Nigeria, Angola, Argentina, and Uruguay. Two countries, Argentina and South Africa, along with Brazil, are members of the G20 and have relatively sophisticated armed forces. Nigeria and Angola have some dominance in Africa and have significant natural resources, including abundant oil reserves. Uruguay, although a small country, maintains a visible and strong contribution to UN peace keeping operations (PKOs). All five have striven to be important actors in both their respective continents and the Global South, and along with Brazil, they are the six countries that have hosted ZOPACAS ministerial meetings. The Brazilian Navy hosted an online ‘ZOPACAS Symposium’ as recently as 27 October 2020, with the participation of rear-admirals from Brazil, South Africa, Argentina, and Angola, together with a number of academics. They discussed the ZOPACAS, wider South Atlantic security issues, current maritime security challenges in the Gulf of Guinea, such as the rise in piracy and drug-trafficking, and the presence of extra-regional actors in the South Atlantic, such as the UK and China. This was followed on the 9–10 November 2020 by the 6th Symposium on Regional Security, organised by the Brazilian Ministry of Defence, which featured a panel on the ZOPACAS and the Gulf of Guinea. It included opening remarks given by Brazil’s Foreign Minister Ernesto Araújo and its Vice President, retired General Hamilton Mourão, in which they lauded the importance of the South Atlantic for Brazil. This recent activity reinforces the notion of a “new revitalisation” of the ZOPACAS. It also shows the continuing importance of the founding ideals of the ZOPACAS and incorporates its newer concerns, such as the need for greater collaboration in maritime security in the South Atlantic.
The concern regarding extra-regional actors is also a growing one. The UK, China, and the US are all nuclear powers and members of the P5. It is not unreasonable to assume that their presence in the South Atlantic is viewed as an additional security concern for the region and the ZOPACAS member states, as evidenced by Brazil in its National Defence Plan. The founding Declaration of the ZOPACAS clearly mentions ‘the need to preserve the region from measures of militarisation, the arms race, the presence of foreign military bases and, above all, nuclear weapons’. We know that the UK has a more permanent presence in the South Atlantic, in the form of British Overseas Territories, the Islands of the Falklands/Malvinas, South Georgia, South Sandwich, Ascension, Saint Helena, and Tristan da Cunha. It also lays claim to the British Antarctic Territory. Since the 1982 Falklands/Malvinas War, there has also been a reinforced British garrison on the Islands. It is highly doubtful that the British presence in the South Atlantic will end or be reduced in the near future. The possibility of an increased military presence by nuclear powers further contravenes core ideals of the ZOPACAS. This is where projections of a possible institutionalisation of the ZOPACAS, albeit delayed by COVID-19, including the establishment of a formal structure, would aid the practical application of the ideals of the zone of peace. This would also be an important step in consolidating the ZOPACAS, and be useful in combatting these encroachments, giving the ZOPACAS an amplified voice and a presence as an international forum.
Although no direct risk of military conflict with extra-regional actors seems evident at present, the ZOPACAS features prominently in current discussions on maritime security and peace and cooperation in the South Atlantic. The most pressing concern is combatting current threats to peace in the Gulf of Guinea, first and foremost clamping down on piracy and drug trafficking. As one of the most developed instances so far of South-South or South American-African cooperation, the ZOPACAS can serve as an ideological laboratory to test the regions’ approach and means to tackling such regional threats. The member-states of the ZOPACAS are renewing their interest in this zone of peace and in the face of growing security concerns, are more likely to band together to protect their interests and promote peace in the South Atlantic. A shared desire remains to defend and uphold the ideals enshrined in the Declaration of the ZOPACAS, although updated with the end of Apartheid and the independence of Namibia. As a consequence, it is clear that although it was established in the last decade of the Cold War and for the conditions imposed by a very different geopolitical context, the ZOPACAS is still relevant to further peace and cooperation in the South Atlantic. A path to a “new revitalisation” suggests that we will be hearing much more about the ZOPACAS in coming years.
Angola, Argentina, Benin, Brazil, Cape Verde, Cameroon, Republic of the Congo, Gabon, Gambia, Ghana, Guinea, Guinea-Bissau, Equatorial Guinea, Ivory Coast, Liberia, Namibia, Nigeria, Democratic Republic of Congo, São Tomé and Principe, Senegal, Sierra Leone, South Africa, Togo and Uruguay.
 Ramesh Thakur (ed.), Nuclear Weapons-Free Zones (Basingstoke: Macmillan, 1998), 7.
 United Nations General Assembly, A/RES/41/11: Declaration of a zone of peace and co-operation in the South Atlantic (1986).
 UNGA, A/41/PV.50, 1986.
 Brazilian Ministry of Foreign Affairs, Brazilian Mission to the United Nations (DELBRASONU) Collection, Diplomatic Cable Number: 1794 - XLI AGNU. Plenário. Item 139. Atlântico Sul. 24 October 1986.
 Brazilian Ministry of Foreign Affairs, Brazilian Foreign Ministry to Brazilian Mission to the United Nations (DELBRASONU), Diplomatic Cable Number: OF01613A – Retransmissão. ZOPACAS. Reunião em Pretoria. Relatorio e comentarios.
 ‘[T]he Brazilian initiative on the zone of peace and cooperation of the South Atlantic’. Brazilian Ministry of Foreign Affairs. (1986). Brazilian Mission to the United Nations (DELBRASONU) Collection, Diplomatic Cable Number: 1640. XLI AGNU. Plenário. Item 139. Atlântico Sul. 10 October 1986.
 Ministério da Defesa, Plano Estratégico da Marinha (Brasília, 2020); Ministério da Defesa, Plano Nacional de Defesa (Brasília: Marinha do Brasil, 2020).
 Brazilian Navy, ZOPACAS Symposium. Online Event (27 October 2020), https://www.marinha.mil.br/simposiozopacas/.
 Brazilian Ministry of Defence, 6° Simpósio sobre Segurança Regional (9–10 November 2020), https://www.gov.br/defesa/pt-br/assuntos/noticias/6deg-simposio-sobre-seguranca-regional-europa-america-do-sul-tera-participacao-de-especialistas-internacionais-e-autoridades.
 UNGA, A/RES/41/11, 1986.
by Sakiko Kaiga
After the First World War of 1914–18, the League of Nations was established as the first experiment in an international organisation for peace. The League has often been remembered as a product of the yearning for peace, idealistic post-war views and the US President Woodrow Wilson’s leadership. Unlike the organisation’s image associated with idealism, the establishment of the League of Nations marked a shift towards ideological international politics. The beginning of the transition— from the nineteenth-century Concert of European Great Powers to the twentieth-century ideological battle—was already represented by the development of the pro-league of nations movement in Britain during the war.
The pro-league of nations movement was a non-governmental movement which, led by liberal intellectuals, promoted the idea of creating a new peaceful organisation to the public and politicians. Usually categorised as a peace movement, the pro-league movement and its thinkers have tended to be dismissed as utopians who could not understand how politics worked. As it has frequently been portrayed in previous studies, the pro-league of nations movement publicised a purely peaceful ideal and succeeded in obtaining the widespread support of the war-weary public in the later years of the war. However, most of the pro-league activists were neither pacifists nor opposed to the war, and their idea about the league defied the clear-cut categories of International Relations such as utopian or realist. In their theory, a basic premise of the creation of a league was the Allies’ victory. Pro-leaguers supported the on-going war and condemned war in general, which was hardly in conflict with their post-war project. Further, in their war prevention plan, realistic measures such as military sanctions and idealistic expectations on the moral force of public opinion were entwined as complementary ways. Both realistic and idealistic views, without excluding each other, developed their plan for peace which incorporated the collective use of force as a crucial element of the post-war order. Building on such views on future war prevention, the pro-league of nations movement aimed to devise a new system to maintain peace; the movement should therefore be better understood as a movement for international reform, rather than a peace movement. The idea about the league attracted leading statesmen such as British Foreign Secretary Edward Grey and was reflected by the official reports of the Phillimore Committee, the Foreign Office’s official study group on a league, which provided the basis for the discussion on the League of Nations Covenant at the Paris Peace Conference. Influencing decision-making as well as the development of international norms, the pro-league of nations movement played a role in the emergence of the new international order.
In fact, the contribution of the pro-league of nations movement to the new order was made by its unexpected, less straightforward, evolution during the war. The pro-league movement transformed its official idea about the post-war organisation into something unintended, by reflecting not the public’s craving for peace but the reality of people and nations at war. At the outbreak of the war in 1914 when the movement began, the pro-league of nations activists identified international anarchy and the rivalry of alliance blocs as the primary cause of war. They therefore sought to reform international relations by introducing a new international institution inclusive of all the great powers. Yet, by the end of the conflict in 1918, the pro-leaguers came to promote what they had originally opposed: the league as a continuation of the war-time alliance against Germany and its allies into the post-war peace. Behind this profound shift lay a powerful argument to fight until Germany was defeated, and a widely-shared belief that a new international organisation for peace should be formed as a coalition only of ‘democratic’ states. We will see why and how this shift unfolded, by tracing the ideas of the leading members of the pro-league movement, especially those of the Bryce Group, one of the first pro-league circles in Britain, and its successor, the League of Nations Society. It reveals how post-war ideas were elaborated inside the movement and publicly promoted in Britain from 1914 to 1919—a crucial period that framed the power and limitations of the League of Nations.
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In the course of its development, the pro-league of nations movement and its post-war ideas needed to be in tandem with the war. The more popular and influential the pro-league movement became, the less control the original leadership enjoyed over its direction. In 1915, the Bryce Group’s Proposals for the Avoidance of War, the first scheme of an international organisation during the war, provided the springboard for the subsequent debate about a new world order. Inspired by the Proposals, the League of Nations Society campaigned for the foundation of a post-war organisation, but in 1915–16 worked undercover to avoid being denounced as a pacifist movement. Finally in May 1917, the Society held its first public meeting and the idea of a league obtained widespread public support. Thus, the League of Nations Society made great strides in making its case popular and legitimate, yet at the same time began to lose control of the debate about what the league would look like. In popularising their ideas, the pro-leaguers underscored only the establishment of a new organisation without going into details, and lost the nuance and sophistication of their original proposal.
Simplifying the message for mass consumption was both a strength and a limitation. The activists lost control of the league project, by abandoning in-depth discussions about the post-war plan; yet, it also enabled the idea to be interpreted widely and to develop politically, which helped fulfil the ultimate goal of the pro-leaguers—the foundation of a new organisation. By the end of the First World War, its unprecedented scale and casualties compelled governments to justify the fight by a higher cause beyond national defence or interests. For this purpose, the war was framed as an ideological struggle for a peaceful international order, which paradoxically served to intensify the violence and also to legitimise the continuation of the war until victory. Under such circumstances, the only way the idea of a league of nations could become a popular, legitimate, and practical political project in Britain was if it was consistent with the defeat of Germany and its allies. The idea of a league was upheld as a war aim, part of the moral crusade of the western powers against German barbarism. Even though the pro-leaguers hoped for a new peaceful organisation and fought for a higher cause such as ‘a war against war’, in reality they fought for victory over enemy states. Fighting against states entailed seeking military victory as well as political and ideological supremacy, and that required the mobilisation of the public and their hatred of the enemy. The truth that war involved hate and violence was an essential problem that pro-league activists had to acknowledge for their purpose of achieving a new world order.
Indeed, the long, horrible, experience of the First World War neither transformed the public attitude into opposition to war in and of itself nor accelerated the development of the idea about the league of nations. Instead, the war led people to require legitimate and ideological reasons for going to war in the future. Prior to 1914, the reasons for going to war could be varied—conquest, defence, and sometimes honour. Fuelled by jingoism and war’s image as something short, heroic and rewarding, the public was not particularly inclined to consider whether there were ‘righteous’ reasons for waging war. In the case of Britain but also elsewhere, the First World War recast the way in which popular support for mass participation in war would be mobilised, and war for the preservation of peace became the most legitimate cause. The British public supported the creation of an international organisation to prevent war, not simply because of war-weariness or a longing for peace, but because of their recognition that the League would be a democratic alliance of peace-loving nations against German militarism. From the First World War to the Cold War, what constituted the legitimate use of military force was transformed, and the concept of peace itself became the focal point for intensifying ideological antagonism in the international spheres.
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By the establishment of the League of Nations, liberal values such as disarmament and international cooperation took centre stage in the international arena for the first time. Simultaneously, it highlighted the limits of liberal internationalism—a recently challenged and re-examined concept. Although the League of Nations was originally intended as an institution for war prevention and peaceful conflict resolution, it was not designed to prevent all wars but only certain types of war. Collective security that was introduced in the League ultimately hinged upon the use of force, military sanctions, as the last yet valid and indispensable measure for the maintenance of peace. Already in the early years of the war, the possibility of triggering or escalating war by relying on the use of force as a final resort was intensely debated by the pro-league thinkers. They nonetheless ended up envisaging an organisation which they simply anticipated would evolve over time, however imperfect the original form had been. They assumed military sanctions would be replaced in the future by a viable alternative—the force of public opinion—that would underpin a peaceful, stable international society. Founded upon liberal internationalists’ belief about progress, many British pro-leaguers anticipated public opinion would gradually develop and become a strong measure to prevent war. Although educating public opinion would need time and collective force would initially be required, the league would, once international morality was developed, evolve into the organisation that relied upon the force of public opinion. Supposing the threat of collective action would be less and less crucial in the future war prevention mechanism, pro-league thinkers left a question how such a vision of the league could be realised after the war and in the next generations. By looking at the emerging period of liberal internationalism, we can uncover the origin of its fundamental conundrum—the maintenance of world peace critically depends on the use of force—an issue that is still unsolved to this day.
 Henry R. Winkler, The League of Nations Movement in Great Britain 1914-1919 (Rutgers University Press, 1952); George W. Egerton, Great Britain and the Creation of the League of Nations: Strategy, Politics, and International Organization, 1914 -1919 (Scolar Press, 1978); Tony Smith, Why Wilson Matters: The Origin of American Liberal Internationalism and Its Crisis Today (Princeton University Press, 2017); Thomas J. Knock, To End All Wars: Woodrow Wilson and the Quest for a New World Order (Oxford University Press, 1992).
 Keith Robbins, The Abolition of War: the ’Peace Movement’ in Britain, 1914-1919 (University of Wales Press, 1976); Winkler, The League of Nations Movement in Great Britain.
 E. H. Carr, The Twenty Years’ Crisis, 1919-1939: An Introduction to the Study of International Relations (Macmillan, 2001), pp. 97-8.
 For example, Peter J. Yearwood, Guarantee of Peace: the League of Nations in British Policy, 1914-1925 (Oxford University Press, 2009).
 For more details, see Chapter Two in Sakiko Kaiga, Britain and the Intellectual Origins of the League of Nations, 1914-1919 (Cambridge University Press, 2021).
 William Mulligan, The Great War for Peace (Yale University Press, 2014), p. 10; Paul W. Schroeder, Systems, Stability, and Statecraft: Essays on the International History of Modern Europe (Palgrave Macmillan, 2004), pp. 249, 258, 263-4.
 The League of Nations Society’s strategies to garner popular support are discussed in Chapter Three in Kaiga, Britain and the Intellectual Origins of the League of Nations.
 For example in Britain, Philip Kerr, a private secretary of the Prime Minister and a leader of the Round Table, envisaged a league that could strengthen the unity of the British Empire and promote Anglo-American harmony.
 Mulligan, The Great War for Peace, pp. 7-9.
 Ibid., pp. 8-9.
 I. F. Clarke, Voices Prophesying War, 1763-1984 (Oxford University Press, 1966), pp. 131, 162.
 The relationship between two pro-league groups in Britain and the US, the League of Nations Society and the League to Enforce Peace, is examined in Kaiga, Britain and the Intellectual Origins of the League of Nations, Chapter Four. Even though the two groups had a lot in common and worked for the same goal of reforming the global order, they could not establish a constructive collaboration because of the differences in their domestic contexts and in the British and American liberal internationalist traditions. The chapter focuses only on pro-leaguers in Britain and America because ‘[t]he English showed much more interest in an international organization than did advocates elsewhere in Europe, and their ideas must be compared with those in the US’, as Kuehl has pointed out in Warren Kuehl, Seeking World Order: The United States and International Organization to 1920 (Vanderbilt University Press, 1969), p. 236. Further, in France, the discussion about the league was intensified only after American entry into the war in 1917, and the French pro-league work was mostly led by the government, not by private groups as in Britain and the US.
 For example, see ‘Ordering the World? Liberal Internationalism in Theory and Practice’, International Affairs, Vol. 94, Issue 1, (January 2018); ‘Rising Powers and the International Order’, Ethics & International Affairs, Vol. 32, issue 1 (Spring 2018); ‘Out of Order? The Future of the International System’, Foreign Affairs, Vol. 96, Number 1 (January/February 2017); ‘Is Democracy Dying? Global Report’, Foreign Affairs, Vol 97, Number 3 (May/June 2018).
 While the British liberal internationalists expected gradual progress in international society, the American counterparts called for a dramatic and swift change of the world system. Believing in progressive history and radical development after the war, American activists supposed a league should be organised as a single community with law and a police force. For more details, see Kaiga, Britain and the Intellectual Origins of the League of Nations, Chapter Four.