Re-contracting intergovernmental organizations: Membership change and the creation of linked intergovernmental organizations

Abstract

How do intergovernmental organizations (IGOs) evolve? Cooperation through IGOs is difficult to maintain, as membership dynamics change dramatically over time, leading to dissatisfaction with the status quo. This paper argues that IGO members states create new affiliated bodies, which I call linked intergovernmental organizations (LIGOs), to “re-contract” their cooperation. This helps IGOs adapt to changing membership dynamics, including the addition of new members and shifting constellations of power and preference. LIGOs are particularly useful for weak or formerly weak states seeking to alter the institutional status quo. Several features of LIGOs incentivize their creation: (1) they bypass difficult-to-enact reforms at existing IGOs; (2) flexible design features increase the voice of dissatisfied constituencies; and (3) they are politically viable for dissatisfied and status quo members of IGOs. To test my argument, I analyze original data on 1,200 LIGOs created between 1945 and 2012. Multivariate statistical analyses show that LIGOs are created in response to shifting membership environments that create demands for change at existing IGOs. I complement the quantitative analysis with case studies of two significant LIGOs: The International Development Agency (IDA) and United Nations Environment Programme (UNEP). My theory suggests a dramatic rethinking of how international cooperation evolves and has broad implications for global governance in an increasingly multipolar world.