Wolfgang Streeck: “Global Governance” Is a Pipe Dream
Wolfgang Streeck’s new book Taking Back Control? argues that the neoliberal era of free trade and trickle-down rhetoric lies in the past. He spoke to Jacobin about the political shocks this might bring.
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Wolfgang Streeck speaks at the international festival for philosophy in Cologne, Germany, on June 12, 2022. (Horst Galuschka /dpa picture alliance via Getty Images)
- Interview by
- Ewald Engelen
Wolfgang Streeck’s Taking Back Control? had only been out for a few weeks when it was applauded by Martin Wolf as one of the best books on economics for 2024. For the Financial Times sage Wolf, Streeck “is arguably the most thoughtful critic of globalisation.”
In Taking Back Control?, Streeck further pursues the thesis developed in its 2014 precursor, Buying Time. There, the leading German sociologist argued that the contradictions of capital that came to a head during the “stagflation crisis” of the 1970s were never solved but merely kicked down the road. This was done in the 1980s and 1990s, argues Streeck, by using budget deficits and runaway public debt as a buffer; in the 2000s by using credit cards, mortgages, and private debt as the shock absorber — what the British sociologist Colin Crouch once called “privatized Keynesianism.” It worked nicely, for some at least, until 2008, when it didn’t.
Streeck’s latest book continues the story right up to the populist backlash against the liberal global order, now brought to its knees by the combined forces of pandemics, imperial overstretch, climate change, and the return of geopolitics. Streeck shows that the neoliberal era of free trade and trickle-down rhetoric is now solidly behind us.
Building on insights from classic but largely forgotten texts by Karl Polanyi and John Maynard Keynes, Streeck deconstructs the claim that global problems require global solutions — that is, the underpinning of the liberal dream of global governance.
Streeck’s main cautionary case is the European Union, arguably history’s closest approximation of global governance, albeit at a regional scale. The EU not only fails to deliver the goods (security, welfare, sustainability, convergence) that it is meant to, but it can only ever pursue its governance ambitions by running roughshod over the democratic sovereignty of its member states. Its record through a series of crises follows Karl Deutsch’s adage that power is the capacity to refuse to learn.
According to Streeck, a much better way to address the problems of modernity is to redistribute power to member states. For him, this means disbanding the EU, undoing free-trade treaties and the institutions of the liberal global order, and replacing them with voluntary associations related to different dimensions of socioeconomic life.
In an interview with Ewald Engelen for Jacobin, Streeck holds that this is the best way of creating a system that serves the needs of citizens rather than capital, and preventing climate disruptions in an effective and democratic way.
How can you be so sure that the era of neoliberal hyperglobalization has ended? Wasn’t that what we thought back in 2008, before what instead followed was a decade of austerity and neoliberal restoration?
I do not fully agree that 2008 was not the beginning of the end. If you look at the data, you see that after 2008 the trend of increasing global trade first stagnated and then started to decline. What was not yet on the agenda was the gradual internal deterioration of US society as well as the deterioration of its international relations, especially with China. At this point at the latest, the Chinese leadership had concluded that they had to go their own way in order not to be sucked into the vortex that US politics was about to become. Which is what they are doing, if you look at the trade figures. Exports to the US have rapidly declined.
But global debt levels — another indicator — have continued to grow, in both public and private debt. So, in terms of financialization, aren’t we still in a world dependent on global finance?
It is obvious that this can’t last forever. In that sense, 2008 was a first warning that this way of life of capitalism — to live on a continuously growing mountain of borrowed money — could not continue forever. And then, of course, came the pandemic and the war in Ukraine. The latter in particular, in my view, signified the end of a world which US capital could penetrate at will, to sustain a regime run out of Washington and Wall Street that was meant to include the rest of the world, including Russia and China, and the Global South anyway.
Does that imply that we may have a false conception of what the end of a regime actually looks like?
We tend to think that the temporality of regimes is the same as the temporality of human beings, that the regime shifts we see coming will happen somehow during our lifetime. That mistake was made by Karl Marx and Friedrich Engels, who expected to witness the end of capitalism in person. The same for Joseph Schumpeter, certainly for Max Weber, and for Werner Sombart, who in the 1930s thought that he was living in “late capitalism.”
So, in that sense one can say that human beings are prone to misread fundamental change. With the war in Ukraine, it comes to mind that the three major historical moments in the reorganization of capitalism were three major wars. There were the Dutch-English wars of the seventeenth century, when the center of capitalism moved from Amsterdam to London. Then there was World War I and the postwar settlement after 1918, which expedited the end of empire, launched a world of nation-states, and prepared another territorial shift, this time from London to Washington. The third was after World War II, with the Keynesian settlement, which embedded nation-states in a United States–dominated global trade regime.
Maybe we now see a repeat in the sense that capitalism adjusts itself to new conditions, in ways that we cannot yet predict. What is coming to an end now is the liberal international order, backed by US imperialism, which was the result of the breakdown of the Soviet Union: in that case the change happened without a war, but related to the arms race of the 1980s. It seems as if the old adage applies: “War is the father of all things.”
You argue that global governance can’t work due to cognitive constraints. In essence that is the same argument that Friedrich von Hayek made against state planning. Nevertheless, you end up arguing for national democracy rather than a market order. Where precisely do you and Hayek part ways?
I follow Hayek all the way, up to the point where Polanyi comes into play. He tells us that a society that is exclusively organized by market forces cannot exist. The Polanyian twist of my book is not only that the idea of regulating capitalism from the top of the world by experts is a pipedream. It is also that capitalism needs to be made compatible with the values underlying the different human societies, which cannot be restructured so that they fit the needs of global capitalism. Normatively and politically, things are the other way around: capitalism — that is, the economy — has to be structured so that it is compatible with the needs of people, and these latter resist being structured for capitalism.
Key, here, is that people at some point discover that their market preferences are not sufficient to address their needs. And that those needs cannot be fulfilled simply by aggregating their individual preferences. Polanyi knew all this. He was not only a radical critic of capitalism but also a social conservative. He admitted that the engine of growth may well be capitalism’s drive to accumulation, but he knew at the same time that societies are in essence conservative in that they cannot at will be reorganized at the same speed and in the same way as capitalist growth, meaning “plus-making” (Plusmacherei, as Marx called it) requires.
At this point, we need to take the side of the people against capital. A capitalist society is structured around the needs of capital; a socialist society is structured around the needs of people, living in a community, as Marx stated in the Grundrisse: “The human being is an animal which can individuate itself only in the midst of society.” This is what Hayek refused or was unable to accept. And I add: societies differ from one another.
That our sociability is prior to our individuality?
Precisely. And that is what makes economics a moral science, in the sense of the Scottish “moral philosophers,” like Adam Smith and Adam Ferguson. Not a moralizing science, though, one that is telling people how they should behave in order to fit a theory. There is not much difference here between rational choice-economics and Habermasian philosophy, which keeps telling us that we should become universalists and forget about our particularisms in order to become truly moral beings.
In that world, you are pressed to become a universalist: you have to feel as close to a Pakistani peasant or a Norwegian reindeer herder as you feel to your neighbor in the Italian village where you have grown up. People read this and say to themselves: this is demanding a lot, but I’d better not talk about it because that makes me an immoral racist. Philosophy forces you to be a moral universalist; economics forces you to be a universalist utility maximizer.
Doesn’t that imply a reification of culture and identity, as if they are primordial, given, and unchangeable? Do we not have a massive library telling us that culture and identity are dynamic and socially constructed: for instance, Benedict Anderson’s Imagined Communities or Terence Ranger and Eric Hobsbawm’s Invention of Tradition?
My argument does not imply that collective identities are set in stone. The historical forms humanity takes are always in a state of flux. No identity, no way of life is without its contradictions or so firmly fixed that they cannot change when they come in contact with others. To that extent, even the fully socialized human being remains capable of change and, therefore, of development. Human beings can learn more or less successfully to live in another society.
Nevertheless, not many people would be able like the Pole Jozef Teodor Konrad Korzeniowski, better-known as Joseph Conrad, to emigrate to another country and become one of its greatest writers in his adopted language. I enjoyed living in several other countries, but I always knew that the nooks and crannies of those societies are not accessible to me, except if I am a social anthropologist. But even these can deeply misunderstand the societies they are studying — the history of social anthropology is full of astonishing examples.
In the book, I distinguish between states and societies. I expressly emphasize that there are fluid borders between nations, unlike state borders that are always binary. From this, it follows that states have to cope with national identities as something that has to be reconciled with its binary structure. Thinking this through, I became an admirer of federalism. A good state allows the different nationalities that exist within its borders to govern themselves to the largest extent possible.
In the book, I also stress that there will always be conflicts to be worked out between the nations within a state and across state borders. A mindless nationalism that fails to distinguish between state and society has nothing promising to offer. To understand the state system, you have to understand its endemic tension with the social communities upon which it is built. At the same time, social communities require capacities for authoritative government to be able to be democratic in the first place; the people, we learn from the Greek origin of the concept, must be able to rule.
This is meant to qualify the overly optimistic conclusions that the likes of Anderson and Hobsbawm have drawn from the historical nineteenth-century record. The age of nationalism saw civil servants, educators, pedagogues, and writers using historical material to construct national languages, curricula, and histories. But the material they used was not freely invented at will, and could not be. It was deeply rooted in history and itself the outcome of long historical processes. How to understand the national identity of the Dutch without considering their shared experiences in the war against Spain?
And the same is true for, let’s say, Italy and Austria: complicated, intertwined histories. In Venice, the best coffee house, Café Florian, is an Austrian one, established when Venice was under Austrian rule — according to some of my Italian friends, proud Italian patriots, the best period in the history of Northern Italy. Nationalist political movements can attempt to shape the historical legacies of collective consciousness to suit their purposes. But even in extreme cases they must draw on historical material. The modern state and modern society rest on history.
Taking Back Control? shows that the upward movement to global governance is a nonstarter. Instead, you argue for devolution, federalism, subsidiarity, and all the rest. Are you not at heart a communitarian?
I am a socialist in the sense of Marx’s Grundrisse: I see people as necessarily embedded in a society and its dynamics. And a society cannot exist without elements of community. In an introduction to a book titled The Foundational Economy, I argue that there cannot be capitalism without communism — without the collective goods that a society needs to be a society, without which it is not even exploitable by capital. In that sense, I am quite comfortable with someone telling me that my “socialism” is in reality communitarianism. My rejoinder would then be that my “communitarianism” is in reality socialism, to the extent that when we talk about the structure of the community, it is going to be egalitarian, nonhierarchical, one that cares for its members — which, obviously, is the exact opposite of the Hayekian market economy that lets you down if you cannot perform.
There is a lot of Polanyi in the book (106 references) and not much Marx (only five references). Nevertheless, classes and class struggle are crucial for your story: they pop up over a hundred times in the book. Is Marx not more important for your narrative than you give him credit for?
That is probably true. But there is a good reason why my thinking led me to Polanyi. Marx died in 1883. As a result, what is not sufficiently present in the Marxian inheritance is the role of the modern state, and especially the modern democratic state. Marx expected to see capitalism disappear before the end of his life. Of course, that did not happen. In part this was because during the conflagration of the Great War, the state got the working class to align itself with the nation, offering social protection and granting democratic rights in return.
How could state struggle trump class struggle? Getting killed in a twentieth-century war by an invading hostile army appeared a greater risk than starving in an economic crisis. To understand national integration as opposed to class integration required a sociological account of capitalism rather than the political-economic one that Marx provides. Marx couldn’t tell me much about how the postwar settlement after 1918 came about. Polanyi, however, could.
If the liberal global order is dismantled and replaced by voluntary, horizontal relations between nation-states, as you propose, what does that mean for an economic system that allows capitalists in the Global North to extract massive amounts of values (estimated at $18.4 trillion in 2021 alone by Jason Hickel and co.) from the dependent territories in the Global South?
I would say that the main mechanism behind this extraction is the global financial system, run out of the United States banking system. If I see that the BRICS countries [the association initially formed by Brazil, Russia, India, China and South Africa] are now attempting to stay clear of the dollarized financial system, then a socialist citizen of a rich countries like Germany should insist that we help an alternative financial system to become viable.
This is linked to the question of what kind of economy we will have after the end of the US empire. I have no doubt that getting there will be a messy and potentially violent political process. If we need democratic control over our economies, and if for that purpose we need national sovereignty to be reinstated, as well as a world in which we collectively have choices, we must be willing to accept the costs of such a transition. In addition, enhancing the well-being of societies and communities requires a massive investment in local collective goods that will have to be liberated from the imperatives of private property and capital accumulation. Then we will have to see how this will play itself out over time.
I am convinced that if we seriously start protecting the foundational economy from the extractive logic of capital, all sorts of opportunities for a gradual move away from capitalism will offer themselves. But that must be understood to be a world-historical process, not something that can be willed into existence by political decree, like Russian president Boris Yeltsin did when he, from one day to the next, decreed the end of communism and its replacement by — American — capitalism.
You end the book by putting your hopes for a more decentralized, voluntary, less unitarian Europe on the demise of US imperialism. It is only possible after “a secular defeat of Biden-Democratic expansionism in the domestic politics of the US,” you write. That was before November 5, when Donald Trump defeated the Democratic candidate. Has that raised your hopes?
It is important to stress that this was not about Joe Biden as a politician or person but about a widely shared policy of American expansionism. For now, we don’t know what is going to happen. What does MAGA mean? Does it mean that Trump as president will have to try and heal the many wounds of American society? Or does it mean the restoration of the unipolar world of George Bush I and II?
A complication could well be that Trump may be unable to choose between the two. Restored unipolarity would give him the resources which allow him to keep his domestic elites at bay. On the other hand, turning to the domestic problems of the US allows him to bargain hard with the Europeans to shoulder a larger part of the costs of empire. In the book, I do not so much put my hopes on politicians and policies but rather on structural shifts that force a particular policy dilemma into the foreground to which states and governments then have to respond.
“Taking back control” was the slogan of the Brexiteers. Is the question mark you added sufficient to distance yourself from the jingoism around Brexit?
I have stopped bothering about whether I am using the right, politically correct language if the words that have become soiled in the eyes of some are the words that best express the key issues at stake. If the key issue is how to leave behind the global neoliberal regime, then taking back control is indeed the essence of the political program.
Now, there is of course some irony here, because many in the United Kingdom who were behind Brexit had no idea what to do with their regained control, and how much it would demand from them. Still, British voters now at least have a little more of an opportunity to use their collective sovereignty to start addressing the needs of the many, not the few. It is more up to them now than it was before.
Brexit was the first, and is not going to be the last, breakaway from the centralized neoliberal, technocratic, bureaucratic, mercantilistic governance of Brussels. I know that democracy is risky, and that there is no guarantee that people will always make the right, sensible, intelligent choices. I can only say that we must hope they will because in the end there is no other way. Remember the third strophe of the German version of the International:
No saviour from on high delivers
No faith have we in prince or peer
Our own right hand the chains must shiver.