Stephen M. Walt

Beijing bullies the World Bank

Beijing bullies the World Bank

Every now and then you read about a seemingly minor incident that illuminates an entire way of thinking about international affairs. And sometimes the harsh light of reality exposes the flaws in a popular body of theory, or at least reveals its limits.

Today, for example, the Financial Times reports that China is trying to get the World Bank to water down its annual Doing Business report, which ranks the world’s nations by focusing mostly on the efficiency and transparency of the regulatory environment and thus the ease of starting or conducting new business. For what it’s worth, Singapore ranks #1 on the list, Hong Kong #2, the United States #4, Taiwan #16, but the rest of the People’s Republic of China ends up in the middle of the pack, at #91.

What’s the IR theory angle in all this? For the past couple of decades, a number of IR scholars and China experts have argued that the best way to accommodate China’s rise was to enmesh it in a wide array of international institutions. These institutions would bind China into an existing set of norms and rules, help "socialize" it into prevailing global practices, and guard against Beijing feeling like it was being excluded or marginalized. This sort of thinking justified the Clinton administration’s entire policy of engagement, and especially its lengthy effort to bring China into the World Trade Organization.

There’s nothing wrong with including China in existing international institutions, and doing so undoubtedly facilitates day-to-day cooperation on all sorts of mundane international transactions. In this sense, the institutionalist perspective reflected above remains helpful. But it is a mistake to assume that an increasingly powerful China will just passively accept a set of rules and practices that had been developed by the United States and Europe over the past fifty-plus years.  

On the contrary, like other great powers, China will use its growing power to try to rewrite international norms and rules in ways that will benefit it. As the FT notes: "The row [over the Doing Business report] is an example of China’s growing assertiveness at international bodies and its increased willingness to challenge liberal economic prescriptions."

There’s nothing nefarious or imperialistic about such behavior — at least, not in my book — because major powers have always tried to rig the rules of global conduct in their favor. You weren’t expecting altruism, were you? Or they simply ignore the rules when they turn out to be inconvenient, as the United States did when it went off the gold standard in 1971 or invaded Iraq in 2003. But the fact that such behavior is familiar doesn’t mean it will be any less of a problem, and it reminds us that international institutions themselves are at best weak constraints on the behavior of major countries.

In short, if China continues to rise and competition between the United States and China (and others) intensifies, the battleground won’t just be confined to the South China Sea, the competition for allies in Asia, or the shadowy world of cyber-espionage. It will also be fought out in the corridors, offices, plenaries, and sidebar meetings at major international institutions. And in these arenas, economic clout and diplomatic skill will count as much or more than aircraft carriers, drones, or sophisticated special forces.