The Rise of China and the Future of the West

Can the Liberal System Survive?

G. John Ikenberry

From Foreign Affairs, January/February 2008

Summary:  China's rise will inevitably bring the United States' unipolar moment to an end. But that does not necessarily mean a violent power struggle or the overthrow of the Western system. The U.S.-led international order can remain dominant even while integrating a more powerful China -- but only if Washington sets about strengthening that liberal order now.

G. JOHN IKENBERRY is Albert G. Milbank Professor of Politics and International Affairs at Princeton University and the author of After Victory: Institutions, Strategic Restraint, and the Rebuilding of Order After Major Wars.

The existing international economic institutions also offer opportunities for new powers to rise up through their hierarchies. In the International Monetary Fund and the World Bank, governance is based on economic shares, which growing countries can translate into greater institutional voice. To be sure, the process of adjustment has been slow. The United States and Europe still dominate the IMF. Washington has a 17 percent voting share (down from 30 percent) -- a controlling amount, because 85 percent approval is needed for action -- and the European Union has a major say in the appointment of ten of the 24 members of the board. But there are growing pressures, notably the need for resources and the need to maintain relevance, that will likely persuade the Western states to admit China into the inner circle of these economic governance institutions. The IMF's existing shareholders, for example, see a bigger role for rising developing countries as necessary to renew the institution and get it through its current crisis of mission. At the IMF's meeting in Singapore in September 2006, they agreed on reforms that will give China, Mexico, South Korea, and Turkey a greater voice.

As China sheds its status as a developing country (and therefore as a client of these institutions), it will increasingly be able to act as a patron and stakeholder instead. Leadership in these organizations is not simply a reflection of economic size (the United States has retained its voting share in the IMF even as its economic weight has declined); nonetheless, incremental advancement within them will create important opportunities for China.

POWER SHIFT AND PEACEFUL CHANGE

Seen in this light, the rise of China need not lead to a volcanic struggle with the United States over global rules and leadership. The Western order has the potential to turn the coming power shift into a peaceful change on terms favorable to the United States. But that will only happen if the United States sets about strengthening the existing order. Today, with Washington preoccupied with terrorism and war in the Middle East, rebuilding Western rules and institutions might to some seem to be of only marginal relevance. Many Bush administration officials have been outright hostile to the multilateral, rule-based system that the United States has shaped and led. Such hostility is foolish and dangerous. China will become powerful: it is already on the rise, and the United States' most powerful strategic weapon is the ability to decide what sort of international order will be in place to receive it.

The United States must reinvest in the Western order, reinforcing the features of that order that encourage engagement, integration, and restraint. The more this order binds together capitalist democratic states in deeply rooted institutions; the more open, consensual, and rule-based it is; and the more widely spread its benefits, the more likely it will be that rising powers can and will secure their interests through integration and accommodation rather than through war. And if the Western system offers rules and institutions that benefit the full range of states -- rising and falling, weak and strong, emerging and mature -- its dominance as an international order is all but certain.

The first thing the United States must do is reestablish itself as the foremost supporter of the global system of governance that underpins the Western order. Doing so will first of all facilitate the kind of collective problem solving that makes all countries better off. At the same time, when other countries see the United States using its power to strengthen existing rules and institutions, that power is rendered more legitimate -- and U.S. authority is strengthened. Countries within the West become more inclined to work with, rather than resist, U.S. power, which reinforces the centrality and dominance of the West itself.

Renewing Western rules and institutions will require, among other things, updating the old bargains that underpinned key postwar security pacts. The strategic understanding behind both NATO and Washington's East Asian alliances is that the United States will work with its allies to provide security and bring them in on decisions over the use of force, and U.S. allies, in return, will operate within the U.S.-led Western order. Security cooperation in the West remains extensive today, but with the main security threats less obvious than they were during the Cold War, the purposes and responsibilities of these alliances are under dispute. Accordingly, the United States needs to reaffirm the political value of these alliances -- recognizing that they are part of a wider Western institutional architecture that allows states to do business with one another.

The United States should also renew its support for wide-ranging multilateral institutions. On the economic front, this would include building on the agreements and architecture of the WTO, including pursuing efforts to conclude the current Doha Round of trade talks, which seeks to extend market opportunities and trade liberalization to developing countries. The WTO is at a critical stage. The basic standard of nondiscrimination is at risk thanks to the proliferation of bilateral and regional trade agreements. Meanwhile, there are growing doubts over whether the WTO can in fact carry out trade liberalization, particularly in agriculture, that benefits developing countries. These issues may seem narrow, but the fundamental character of the liberal international order -- its commitment to universal rules of openness that spread gains widely -- is at stake. Similar doubts haunt a host of other multilateral agreements -- on global warming and nuclear nonproliferation, among others -- and they thus also demand renewed U.S. leadership.

The strategy here is not simply to ensure that the Western order is open and rule-based. It is also to make sure that the order does not fragment into an array of bilateral and "minilateral" arrangements, causing the United States to find itself tied to only a few key states in various regions. Under such a scenario, China would have an opportunity to build its own set of bilateral and "minilateral" pacts. As a result, the world would be broken into competing U.S. and Chinese spheres. The more security and economic relations are multilateral and all-encompassing, the more the global system retains its coherence.