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Research in Globalization 2 (2020) 100012

Contents lists available at ScienceDirect

Research in Globalization
journal homepage: https://www.journals.elsevier.com/resglo

The United Citizens Organization: Public-private partnerships in


global governance
W. Julian Korab-Karpowicz

University of Opole, Institute of Political Studies, Poland

A R T I C L E I N F O A B S T R A C T

Article history: Can Public-Private Partnerships be applied to global affairs and governance? This paper reviews the existing relations
Received 1 September 2019 between public and private global actors. I argue that current international politics is largely an outcome of these re-
Received in revised form 12 December 2019 lations. Although for the foreseeable future the role of traditional nation-states on the global scene should not be
Accepted 17 March 2020
dismissed, they come under the constant pressure of different private actors, particularly of MNCs and NGOs. If this
Available online 20 March 2020
is the case, the question of global responsibility must be raised. It has been the traditional role of governments to
Keywords:
stand for such societal values as security and prosperity, and be responsible for their citizens. With the changing picture
Public-private partnerships of global environment, the demand for responsible action should also be extended to private actors. Consequently, they
Globalization should be included in the framework of global governance, thus forming Public-Private Partnerships. Hence, once they
Global governance are properly institutionalized, perhaps in the form of a United Citizens Organization, Public-Private Partnerships can
World government contribute to the future model of global governance.
Professional responsibility
Security
United Nations

Can Public-Private Partnerships be applied to international affairs? This governance, of which the key concept is common good,1 fulfilling a policy
paper reviews the existing relations between public and private global ac- function should always directed at some public good or a good of the whole
tors. I argue that current international politics is largely an outcome of community. This implies that in international affairs cooperative relation-
these relations. Although for the foreseeable future traditional nation- ships are formed, first, to fulfil functions that would serve universal
states should not be dismissed, they come under the constant pressure of human needs, namely those that concern humanity as a whole rather
different private actors, among which MNCs and NGOs can be included. than any particular nation or another group. Second, these cooperative re-
If this is the case, the question of global responsibility must be raised. It lationships to fulfil universal human needs involve global actors: nation-
has been the traditional role of governments to be responsible for their cit- states, international organizations (IOs) and non-state, private actors. The
izens. With the changing picture of global environment, the demand for re- latter can be divided into for-profit, such as transnational corporations
sponsible action should also be extended to private actors. Consequently, (TNCs) or multinational corporations (MNCs), and non-profit, such as inter-
they should be included in the framework of global governance, thus national non-governmental organizations (NGOs).
forming Public-Private Partnerships. My conclusion is that once they are It is often observed that in the age of globalization, nation-states are in-
properly institutionalized, perhaps in the form of a United Citizens Organi- creasingly affected by decisions over which they have little control. This is a
zation, Public-Private Partnerships could then contribute to the future result of the involvement in global politics of so many non-state actors, par-
model of Global Governance. ticularly multinational corporations and non-governmental organizations,
as well as different interest groups (businesses, trade unions, professional
Public-private partnerships in international affairs and trade associations, civil rights organizations). In her concise and pene-
trating book, Business Power in Global Governance, Doris Fuchs has pointed
Public-private partnerships can be defined as “the formation of cooper- out traces how the activities of transnational corporations in the form of
ative relationships between government, profit-making firms, and non- lobbying and campaign-finance actions have increased significantly over
profit private organizations to fulfil a policy function” (Linder & the last twenty years and influence political decision-making of interna-
Vaillancourt Rosenau, 2000, p. 5). According to the classical idea of good tional organizations and many nations(Fuchs, 2007). This influence is
high in low-level politics, such as environmental or economic policies,

⁎ Institute of Political Science, University of Opole, Katowicka 89, 45-061 Opole, Poland. 1
This idea can be related to the Classical Tradition that goes back to Plato and Aristotle and
E-mail address: wjkk@uni.opole.pl to their distinction between correct and deviant forms of government.

http://dx.doi.org/10.1016/j.resglo.2020.100012
2590-051X/© 2020 The Author(s). Published by Elsevier Ltd. This is an open access article under the CC BY-NC-ND license (http://creativecommons.org/licenses/by-nc-nd/
4.0/).
W.J. Korab-Karpowicz Research in Globalization 2 (2020) 100012

and still low in high-level politics, such as international relations or secu- Fund, Word Bank or World Trade Organization (O’Brien, Goetz, et al.,
rity. Still, it is growing and this suggests a substantial potential of big busi- 2000).
ness to further expand its global political activities (Smith, 2000).
Therefore, from our consideration of PPPs in global governance, we Delegation of certain functions to private actors
should exclude lobbying (Lowery, 2013). Lobbying is aimed at obtaining
some goods and services by and for different interest groups. It attempts States and international organizations can delegate certain functions to
to influence the actions, policies, or decisions of public officials in order non-state, private actors. This assumes the form of contracting out public
to obtain goods or services that serve particular interests of a minority at services or of relying on private expertise concerning standardization. In
the expense of the majority. In our vision, based on the normative idea of fact, the UN and EU frequently contract out the provision of humanitarian
good governance, to fulfil a policy function which is the goal of PPP should aid, health services, and others functions to charities, churches, NGOs and
always be a common good rather than a benefit of a minority. other private institutions. As an example of the latter, International Organi-
Public-private partnerships (PPP) as governance tools have been around zation for Standardization (ISO) and European Committee for Standardiza-
for quite a while in domestic affairs. However, it is only recently that they tion (CEN) are private entities to which, for expertise and efficiency
have become the objects of consideration beyond the nation-state. The rea- reasons, setting technical standards has been delegated.
son is the growing importance of non-state actors in international affairs.
They are considered in the international relations (IR) literature by some Involvement of private actors in rule-making as equal partners
authors as potential partners of national governments and international or-
ganizations in structures of global governance.2 These authors argue that Non-state actors become legitimate and equal partners in the making
once the concept of Public-Private Partnerships is applied to international and implementation of international rules. Business associations and
affairs, this can lead to a significant solution to a whole variety of problems trade unions constitute negotiating partners at the International Labor Or-
of governance beyond the nation-state. PPPs can lead to the increase of both ganization (ILO). Another example is the World Commission on Dams
the effectiveness and the legitimacy of global governance in terms of dem- (WCD). It consists of national governments, the World Bank, firms, and
ocratic participation and accountability. INGOs (Khagram, 2000). The Transatlantic Business Dialogue (TABD) rep-
First, I present an overview of the types of relationships between public resents a forum in which firms negotiate trade and investment regulations
and private actors that can be applied to global governance. Second, I raise for the transatlantic area under the auspices of the U.S. government and
the questions of their potential benefit and responsibility. Third, I make a the EU Commission (Cowles, 2000).
proposal for a new model of global governance that involves both public
and private actors. Adoption and consent of self-regulation of private actors

Types of public-private partnerships International organizations and national governments sometimes allow
and even adopt self-regulation of private actors. For example, when the
What are the existing forms of PPPs in international affairs? I build on WTO had developed a code of ethical and scientific standards, the Interna-
the useful classification. tional Federation of Pharmaceutical Manufacturers Association indepen-
introduced by Börzel & Risse, 2007, and distinguish the following types. dently adopted a Code of Pharmaceutical Marketing Practices, which has
become an international standard (Ronit & Schneider, 1999). Adoption is
often triggered by the lack of effective international norms and rules. In
Co-optation of private actors the absence of an international legal system, private regulations may then
become “publicly sanctioned” (Lehmkuhl, 2002). An example of a state-
This is currently the most common and at the same time weakest form adopted private regulation is Internet domain names. Private regulations
of PPP applied to international affairs. By co-optation of private actors, gov- and an IO-sponsored system of domain names competed for a while. In
ernments and international organizations incorporate representatives of the end, private regulations won and were then adopted word-wide by na-
private businesses and non-governmental organizations as members of tional governments.
their delegations in rule-setting and rule-implementation. These private en- Does the public adoption of privately negotiated regulations still qualify
tities provide expertise and sometimes also moral authority and legitimacy as a public-private partnership? The involvement of public actors is here
to norm, rule and decision-making procedures. As Börzel and Risse stress, purely ex-post. They have control over output since national governments
“in many cases, co-optation has resulted in striking influence by non- and international organizations cannot be forced to adopt private
state-actors in international treaty-making” (2007, p.126). An example is regulations.
Amnesty International, which has established itself as a moral authority
and a reliable source of knowledge in the area of human rights. Because Sharing in global governance by private actors
of this position it has shaped many international rights agreements. Also,
during the negotiations on banning antipersonnel mines, the NGO Interna- Governance is a way of governing, which is non-hierarchical and in-
tional Campaign to Ban Landmines had received a formal observer status, volves various actors, who participate in policy making. Today's global gov-
including the right to make proposals and suggest changes in the treaty. Fi- ernance is based on the idea of international society, formed by nation-
nally, through cooptation, some multi-national corporations have got ac- states, who join international organizations, particularly the UN. The future
cess to international negotiations and have been thus able to influence global governance may involve non-state actors as well, for example in the
the policies of such international organizations as International Monetary form of a United Citizens Organization, which I shall discuss later in the
text.
2
See Wolfgang H. Reinicke, Global Public Policy. Governing without Government? (Wash- This brief presentation of the types of transnational relationships be-
ington, DC: Brookings, 1998); Clair A. Cutler, Virginia Haufler and Tony Porter, Private Au-
tween public and private actors shows that even if they are not fully
thority and International Affairs, (New York: State University of New York Press, 1999);
Robert O'Brien, Anne Marie Goetz, Jan Aart Scholte, and Marc Williams, Contesting Global employed yet, PPP arrangements in international affairs have a great poten-
Governance. Multilateral Economic Institutions and Global Social Movements. (Cambridge, tial. They may be utilized for service provision, especially development and
MA: Cambridge University Press, 2000); Rodney Bruce Hill and Thomas J. Biersteker (eds.), humanitarian aid, setting ethical, scientific, technical and environmental
The Emergence of Private Authority in Global Governance (Cambridge: Cambridge Studies standards, developing economic and security policies, and resolving issues
in International Relations, 2003; Thomas G. Weiss, Global Governance: Why? What? Whither?
(Cambridge: Polity, 2013); Robert F. Gorman, What's Wrong with Global Governance? (Grand
related to human rights and strengthening civil society. Further, they can
Rapids, Michigan: Acton Institute, 2016); Michael Zurn, A Theory of Global Governance: Au- contribute to global governance. I shall now address the question of their
thority, Legitimacy, and Contestation (Oxford: Oxford University Press, 2018). benefits and responsibilities.

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W.J. Korab-Karpowicz Research in Globalization 2 (2020) 100012

Potential benefits of public-private partnerships interests and to the needs of society at large (Fenwick, 2016, p. 3). It over-
laps with ethics. If we apply the concept of responsibility to institutions, and
In the existing literature we can find arguments in support of PPPs in in- particularly to nation-states, social responsibility is the commitment by or-
ternational affairs. First, their supporters emphasize their potential effec- ganizations to respond ethically to social concerns. This ethical response
tiveness and efficiency and argue that they can increase world problem- can be associated with acting for the public or common good, rather than
solving capacity. In those areas in which public actors have only limited solely for one's own group particular good. It is the basis of the classical dis-
human and material resources, non-state actors can come to the rescue. tinction between decent and deviant forms of government (Korab-
Sharing resources between public and private actors, for example in such Karpowicz, 2016, p. 47). Whereas the latter serve the interests of some mi-
areas as environmental research, international development or humanitar- nority groups at the expense of the rest, the latter earlier serve the interests
ian aid, can increase the capacity of governments and international organi- of the whole society. They defend societies' traditional institutions, particu-
zations to solve specific problems (Wolf, 2002). Second, non-state, private larly the family, and thus contribute to citizens' security, prosperity, vitality
actors can serve as knowledge providers for public actors. In the human and general happiness.
rights area, for example, the regular provision of information by the Although the post-Weberian concept of the state puts an emphasis on
NGOs to national governments and UN human rights committees has coercion and the legitimate use of force, in the more classical understanding
greatly improved the public knowledge of human rights violations and the state has an important ethical role as well. It is a defender and organizer
has increased compliance with international human rights norms (Risse, of society, responsible for its survival and well-being. Politics, the art of
Ropp, & Sikkink, 1999). governing, “is the ability to actualize a good life for a society” (Korab-
Another support of PPPs in international affairs comes from those who Karpowicz, 2017, p. 26). The same concept of a good life or of prosperity
link effective problem-solving with deliberative democracy (Bohman & can be applied to the whole of humanity when we consider the idea of
Regh, 1997). They claim that involvement of those who are affected by global governance. Ultimately, its goal is not to benefit any particular
rules in the deliberative process of rule-making could lead to better deci- groups, corporations, organizations or even countries at the expense of
sions in the form of a reasoned consensus rather than a bargaining compromise others, but it must work for the sake of peace and prosperity for all. “‘Global
(Scharpf, 1997). By bringing in additional information and expert knowl- governance’ refers to collective efforts to identify, understand, or address
edge, private actors could contribute to the identification of possible ways worldwide problems that go beyond the capacities of individual states to
of handling problems and make public actors become open to deliberation solve” (Weiss, 2009, p. 257). Whereas government implies a hierarchical
and consensus (Brühl, Debiel, Hamm, Hummel, & Martens, 2001). At the relationship between the rulers and the ruled, as we have already men-
same time, this would enhance the democratic legitimacy of decision- tioned, governance implies a non-hierarchical relationship between actors
making process (Reinicke, Deng, et al., 2000). Therefore, it is believed who participate in the rule-and policy making process.
that, by participation in international rule making and in solving existing Global governance is then the type of world order that is produced
global problems, non-state actors—both for-profit private companies and when states, international organizations, and non-state actors participate
non-profit sector, representatives of so called transnational civil society voluntary in discussing, making and implementing of norms and rules
(Florini, 2000) —could eventually help to remove the democratic deficit that bind them all. However, if global governance is to be truly effective,
and provide greater accountability and transparency to governance beyond democratic and legitimate, it cannot be ideologically biased and must be
the nation-state. It could enhance the participatory and democratic nature based on responsibility of all actors involved in it. Particularly, the “growth
of the process of international rule and policy making. in [global] business political power is leading to an increase in public de-
Nevertheless, some objections can also be raised. Participation of non- mand for business to take on societal responsibility.” (Fuchs, 2007, p.
state actors may not necessarily make international rule-making processes 173). Without this responsibility, PPPs could become neoliberal solutions
more democratic, if this participation is biased and selective. This applies in disguise. They would amount to the privatization and de-regulation of
to both for-profit and non-profit organizations. Regarding selection, we formerly public services, with the primary aim of increasing mere private
can ask: which MNCs and NGOs should participate? There are tens of thou- profit. For PPPs to work in international affairs, all actors involved must
sands of NGOs and MNCs across the world. As they are not elected bodies then free ourselves from ideologies and develop a sense of responsibility.
and they are not accountable to people of the world, they cannot be consid- This would be more than a social responsibility for one's organization, com-
ered democratic. Also, if there is bias, they cannot legitimately claim to rep- pany or country, but a cosmopolitan responsibility for the wellbeing all
resent the public interest. They can be biased because MNCs tend to be self- human beings. On the idea of such cosmopolitan responsibility, a new
interested and often narrowly profit oriented, and NGOs tend to be self- model of global governance involving PPPs can be based.
selected and elite-driven (Nye & Keohane, 1971). NGOs, consisting often
of groups of experts, heavily lobby national governments and UN commis- Global governance or world government
sions and committees, promoting secular agendas and postmodern ideolo-
gies that would not be approved by any larger electorate in a popular One can argue that global governance is the golden mean between the
vote (Gorman, 2016). international anarchy of nation-states unrestrained by any laws and the
Hence, whether or not PPPs would increase our world problem-solving centralized and hierarchical rule of world government. While world gov-
capacity and could make international relations more democratic depends ernment eradicates state sovereignty, different models of global gover-
on some conditions. First, we can ask how inclusive or exclusive should nance, to begin with international society, can preserve it and engage
the PPP arrangements be. The more exclusive they are, the less accountable states and non-state entities in cooperation in solving world problems.
and the less transparent they become. However, inclusive PPP arrangements A common argument for world government is we are entering into a
might in turn lead to reduced effectiveness. In other words, a trade-off be- new era where nation states can no longer offer protection from aggression
tween legitimacy and effectiveness might arise. Second, we can ask about that they once seemed to provide (Deudney, 2007, p. 28). Some authors
the state and non-state actors' social responsibility. Whether PPPs could also argue that we need a world state to solve our urgent problems that
solve effectively world problems and remove the democracy deficit from are transnational, such as climate change, migration, financial instability
global governance based on the UN depends on whether they could act as or proliferation of weapons of mass destruction, and that require actions
socially responsible actors, and not merely as self-interested and biased ones. at a global level (Cabrera, 2010; Weiss, 2009). They claim that in our
new technological conditions, when facing the state-sponsored or individ-
Responsibilities of actors involved in public private-partnerships ual terrorist activities, even large nation-states are no longer able to provide
alone security to their citizens. Hence, just as in the Hobbesian state of na-
Professional responsibility is often treated as defining a set of obliga- ture the fear of violent death made it functional for individuals to submit to
tions related to professionalism itself: obligations to the particular client's a common power, the novel changes in the forces of destruction make it

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W.J. Korab-Karpowicz Research in Globalization 2 (2020) 100012

functional for states as well. The fact that nuclear weapons are possessed by Will PPPs increase our world problem-solving capacity, improve the ef-
relatively few states limits the force of the argument today, but it becomes fectiveness of our international society based on the UN, and make interna-
more powerful if nuclear weapons and other weapons of mass destruction tional relations more legitimate and democratic? The problems of selection
spread. Do we need a central authority in the world in which the weapons and representation pertaining to the presence of MNCs and NGOs in the
of mass destruction become more readily available and cheaper? new model of global governance, as well of their bias, needs still be
Because of the changes in war technology, it seems indeed functional for discussed in detail. Perceptions of abusing power and acting solely moti-
security to be organized on a global scale. Yet this does not mean that it has vated by self-interest would damage private actors' legitimacy, particularly
to take a form of a world government. “A world state is neither necessary of great business legitimacy as a political actor. Also, their involvement in
nor inevitable nor desirable” (Korab-Karpowicz, 2018, p. 401.). The United narrow postmodern ideologies challenging traditional family life and
Nations Organization has been devised to ensure collective security, and is other well-established societal values would be damaging to PPP's goal of
a system in which all member states undertake a common action against providing a greater prosperity to humankind (Gorman, 2016, pp. 70-73).3
any country that threatens the security of another state. The logic of collec- We should then look for solutions aiming at ensuring their responsibility,
tive security is flawless provided that all nations subordinate whatever con- legitimacy and effectiveness aimed at the common good, public health,
flicting interests they may have to the common good defined in terms of public morality, public order and public security, which are the needs all
collective defense of all member states (Morgenthau, 1956, 389). In prac- human beings can potentially recognize.
tice, however, the security system of the UN can only function where Nevertheless, as a general conclusion, if these conditions are fulfilled,
there is a consensus among those major powers that are permanent mem- the participation of non-state actors – both for-profit and not-for-profit –
bers of the Security Council. can indeed increase the democratic character of global governance. Non-
For most of the history of the United Nations, the principal members state actors can also contribute to its growing effectiveness. To the current
states did not share a consensus. What this does prove is not a failure of international society based on the UN, whose members are nation states, it
this organization but rather how great is the power of human self- would add a new element of world society or transnational civil society,
interest, as well as ideological, religious, and material differences between whose members are all people on Earth (Jackson, 1995).
nations. Similarly, it can be expected that egoism, mutual mistrust, and the
desire for national and religious recognition would obstruct any attempt to
build an efficient world government. Still, what is perhaps the greatest Conclusion: levels of governance and the United Citizens Organization
problem with the idea of a world state, is that it represents wishful thinking
and tends to diminish the real solutions to today's world problems that can The actual picture of the world includes both old and new threats such
be provided by the existing international organizations. as poverty, cross-border crime, terrorism, global warming, energy scarcity,
The current weakness of the UN and of other international organiza- and so on. These threats are magnified by the widening spread and quick-
tions that constitute today's model of global governance is that national ening pace of globalization. To deal effectively with them, one has to ab-
governments do not always want to support them. This becomes evident stain from any ideologies and work pragmatically on many levels of
given the enduring lack of material resources of the international organiza- governance. It is because it is unlikely that the current state-system that is
tions. As a result, many international resolutions and initiatives that could the defining feature of today's international order is a merely transitory
benefit humankind would not be put into practice. Nevertheless, this partic- phenomenon and that it will soon disappear.
ular weakness of the UN can be removed once a new component, that of Nation states perform important functions. They are potential defenders
Public-Private Partnerships, is added to global governance. and organizers of societies, and if they cannot perform these functions will,
we call them weak, tyrannical or even failed states. However, to curb states'
Private-public partnerships' contribution to global governance egoism (namely of their acting with a view to their narrow interests alone
and without respect for other states' interests and for the interests of the
Global governance based on PPPs does not necessitate the replacement whole international community), they must be involved in global networks
of the present state system with a world state or the election of a new global based on cooperative values. This has been partially achieved by the build-
authority. The latter has, in a limited form, already been provided by the ing of international society based on the UN and other international
United Nations. My proposal is to add to the current global governance organizations.
model based on the UN a new component: Public-Private Partnerships. The next step toward a greater international cooperation and a more so-
They can be institutionalized, for example in the form of a United Citizens phisticated global governance that I am now proposing would be to add to
Organization (UCO). The function of PPPs in global governance would be international society an element of world society by including in the struc-
(1) to minimize unilateral and potentially damaging responses to world ture of global governance the United Citizens Organization, based on repre-
problems by individual state actors moved by their narrow national inter- sentatives of MNCs and NGOs. Nation-states that are linked to others by
ests, (2) to collect resources and provide burden-sharing between public international institutional and economic ties, and whose activities are over-
and private actors, (3) to increase the knowledge base (scientific and seen by nonstate actors can thus become important focal points of peace, se-
other) of public actors in various governance matters, (4) to provide a curity and community.
greater legitimacy to international rule-making and world problem solving. There are different communities and social levels at which individuals
If the UN can be compared to an international higher house or senate, can relate to each other: family, local community, nation, and world soci-
and the UN security council to a council of state, the UCO, whose represen- ety. These communities serve various functions in human life, and therefore
tatives would come from different MNCs and NGOs, could be compared to a they all have their validity. World society, which includes all humanity,
lower house. Like a lower house they would be able to engage in delibera- cannot replace any nation or substitute for national identity, but it can
tion and making of international rules, and to propose solutions to world add a new dimension to our relationships, namely humanitarian fellowship
problems. The presence of for-profit MNCs and non-profit NGOs in the and cosmopolitan responsibility. The existence of its organization—the
same chamber would result in deliberation and bargaining, and eventually United Citizens Organization, based on non-state actors and grounded in
lead both parties to reasonable compromises. Further, thus institutionalized cosmopolitan societal responsibility—postulates that we should regard
non-state actors would then be able to exert effective pressure on national others as our fellow human beings and that, in addition to being responsible
governments, so that they would support beneficial initiatives that could fa-
cilitate a positive world transformation. While wielding power that at pres- 3
Robert F. Gorman in his book What's wrong with global governance, op. cit., refers to LGBTI
ent none of the MNCs or NGOs represent, the UCO would be a life beliefs systems and agendas that unable to push themselves through national parliaments have
promoting and enhancing instrument of world society through which a tried to influence UN agencies and other international bodies, and give human rights new
more humane world could be achieved. meaning.

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W.J. Korab-Karpowicz Research in Globalization 2 (2020) 100012

family members, employees or citizens, we should also feel responsible for Jackson, R. (1995). Political theory of international society. In K. Both, & S. Smith (Eds.), In-
ternational relations theory today (pp. 110–128). University Park, PA: Pennsylvania State
what happens to any other person who lives on Earth. University Press.
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