Judicialization and the Construction of Governance

I present a model of the emergence and evolution of governance, conceived (narrowly) as the continuous resolution of dyadic conflicts by a third party. The model is comprised of three core elements: normative structure, dyadic contracting, and triadic dispute resolution. I demonstrate that a move to triadic dispute resolution leads the triadic dispute resolver to construct, and then to manage, specific causal relationships between exchange, conflict, and rules. Once established, triadic governance perpetuates a discourse about the rulefulness of individual behavior, and this discourse gradually penetrates and is absorbed into those repertoires of reasoning and action that constitute political agency. In this way, political life is judicialized. The model further predicts that, under certain specified conditions, the triad will constitute a crucial mechanism of (micro and macro) political change. I then illustrate the power of the model to explain judicialization and the dynamics of change in two very different political systems: the international trade regime and the French Fifth Republic. In the conclusion, I draw out the implications of the analysis for our understanding of the complex relationship between strategic behavior and social structure. Alec Stone Sweet Department of Politics and Society University of California Irvine, CA 92717 E-mail: [email protected]. Correspondence should be sent to this address. Judicialization and the Construction of Governance/ 2 The triad two contracting parties and a dispute resolver constitutes a primal social institution, a microcosm of governance. If this is so, in uncovering the institutional dynamics of the triad, we uncover an essential logic of government itself. Broadly stated, my objectives are twofold: to defend the validity of these contentions, and to demonstrate their centrality to the discipline. The paper proceeds as follows. After introducing key concepts, I present an abstract model of the emergence and evolution of governmental systems. The theory integrates, as tightly interdependent factors, the evolution of strategic (utility-maximizing) behavior and normative (cultural or rule-based) structure. It purports to capture dynamics of change observable at both the micro level, by which I mean the behavior of individual actors, and the macro level, by which I mean the institutional environment (or social structure) in which this behavior takes place. In the discussion, the mechanisms of change that are endogenous to the model are specified, and the conditions under which we would expect to see these mechanisms operate, and fail to operate, are identified. I then employ the model to explain two hard cases of systemic change: the international trade regime, established by the 1947 General Agreement on Tariffs and Trade; and the French Fifth Republic, founded in 1958. In the conclusion, I address implications of the paper to a range of theory projects current in the discipline. Dyads, Triads, Normative Structure The model is comprised of three core elements : the dyad, the triad, and normative structure. The dyad, "the simplest sociological formation" (Simmel 1950: 122), is any "pattern of [direct] exchange" between two individuals or groups (see Foster 1977). The dyad alone defines, more or less comprehensively, a wide range of basic human relationships. Examples exist wherever we look for them. In marriage (the union of two people), in feudal polities (the tie between serf and vassal), in parliamentary democracies (the dichotomy of party of government and party of opposition), in industrial production (the interdependence of capital and labor), and in international relations (the network of allies and enemies), dyadic structures constitute core social identities of individual entities. Because dyads bind single units together, they are primordial social institutions. Judicialization and the Construction of Governance/ 3 The normative basis of the dyadic form is reciprocity. Reciprocity is the glue holding the dyad (society) together, which accounts for why it exists in every human community about which we know anything (Gouldner 1977). Stripped to essentials, the norm holds that "people should help those who help them" (ibid.: 37). Promises made are to be kept; debts incurred are to be repaid; kindnesses received are to be recognized and returned. Reciprocity, according to Simmel (1950: 123, 135) gives to the dyad "a special consecration," by linking each party to "a common fate." The notion that reciprocity is crucial to the maintenance of social systems has been a staple of social science (e.g., Hobhouse 1906; Malinowski 1932; Parsons and Shils, eds., 1951). With the rise of neo-rationalism in contemporary political science, analytical priorities have shifted from the normative and social contexts of politics to strategic choice contexts within which individuals seek to maximize their utility. Although neo-rationalists also privilege the dyad, they problematize reciprocity in particular, and norms in general (e.g., Axelrod 1986). Indeed, the paradigmatic metaphors of game theory the prisoner's dilemma, chicken, the assurance game focus our attentions on the fierce difficulties of establishing and maintaining dyadic cooperation. Dyadic forms are inherently unstable, neorationalists tell us, because each party faces powerful incentives to ignore normative obligations and to cheat, or "sucker," the other. I will return to a discussion of neo-rationalism later. For now it is enough to recognize that dyadic forms can accommodate cooperation, which can be socially enabling, and conflict, which can be socially debilitating. The triad, two disputants and a dispute resolver, is a universal, if undertheorized, phenomenon. I understand the triad to be a primal technique of organizing social authority and, therefore, of governing. The underlying reason for this is simple: the triadic entity is the guarantor of reciprocity. Quite literally rooted in the dyadic form, the triad brings an external presence to the dyad, a presence whose interest is in the fate of "a common fate," that is, in the durability of social relationships across time. Viewed functionally, triadic dispute resolution (TDR) serves to perpetuate the dyad, given changes in the preferences or identities of the two parties, or changes in the environment. As Simmel (1950: 145) puts it: "the triad indicates transition." The triadic entity responds to, and is a crucial agent of, social change. Two ideal types of triadic dispute resolution are relevant to the analysis. The first is consensual TDR, triads constituted by the voluntary consent of both disputants, that is, by an ad hoc act of delegation. The act Judicialization and the Construction of Governance/ 4 recognizes but also confers social authority, or legitimacy, on the third party. Siblings appeal to parents, classmates to one another or to a teacher, villagers to a shaman, a chief or a sage. The second type is compulsory TDR, triads that are permanently constituted by jurisdiction: dispute resolution processes are triggered by one party to a dispute against the will of the other. This second technique substitutes office for delegation (Shapiro 1980: ch. 1). An initial costitutional act of delegation is frozen in place, for the life of the polity. Courts are the paradigmatic form of compulsory TDR, but legislative bodies perform similar social functions. To move from the dyad to the triad is to construct governance. In dyads, conflict can be debilitating; but conflict is constitutive of the triad. Once activated, TDR performs governmental functions: to generate normative guidance about how one ought to behave, to stabilize one's expectations about the behavior of others, and to impinge on ex ante distributions of values and resources. Stated simply, the social function of TDR (governance) is to regulate behavior and to maintain social cohesion as circumstances change. The final element of the model is normative structure: the system of rules or socially constituted constraints on behavior in place in any community. A great deal of controversy surrounds the subject of norms and rules, their status and explanatory value. Although this paper is partly a response to this controversy, I do not attempt to resolve it here. What I call normative structure is equivalent to what North (1990: 3-6) calls "institutions," variously: "the rules of the game," "customs and traditions," "conventions, codes of conduct, norms of behavior, statute law, common law, and contracts." It is congruent with how Eckstein (1988: 790; see also Wildavsky 1987) conceptualizes "culture": "mediating orientations," those "general dispositions of actors to act in certain ways in sets of situations." It conforms to March and Olsen's (1989: 22) notion of "rules": the "beliefs, paradigms, codes, cultures, and knowledge" that permit us to "identif[y] the normatively appropriate behavior." It equates norms, as Taylor (1989: 135) does, with "ideologies" and "culture," and it conceives of "institutionalized rules," in Jepperson's (1991: 145) terms, as "performance scripts." 1 I am fully aware that I have just placed, in a very small tent, a disparate group of scholars who traditionally do not agree on many first principles, least of all how we ought to think about social structure. I have referenced them together for two reasons. First, I am seeking to build a theory that strips governance down to its constituent elements, structure being one such element. Although the scholars cited disagree for some very good reasons, we can easily identify what each of them means by structure; we can also see that, despite distinctly different approaches to research, structure fulfills more or less equivalent functions. Second, if (as I am claiming) my theory is relevant to the study of governance generally, my audience must be broad not narrow. Judicialization and the Construction of Governance/ 5 Despite clear differences in how structure is understood, culturalists and (at least some) neo-rationalists agree on far more than we might expect. For Eckstein (1988: 791-92), culture allows people to "decode experience ... to give it meaning," which "saves virtually all decision costs." For North (1990: 6, 17, 25), institutions (a subset of which is "culture" "a language-based conceptual framework for encoding and interpreting ... information") "exist to reduce the uncertainties involved in human interaction," thus saving "transaction costs." Normative structures are coordinative: they enable human interaction by simplifying the range of choices available to individuals, and by investing those choices with meaning. Across the social sciences, change in normative structure has proved difficult to theorize (e.g., Eckstein 1988; Powell and Dimaggio 1991: ch. 1; Taylor 1989; Tsebelis 1990: ch. 4). We better understand the logic of institutional inertia. Rules facilitate exchange between individuals, creating opportunities for collective action. Behavior that responds to these opportunities, once locked in (e.g., in dyadic forms), reinforces normative structure. In culturalist or constructivist terms, because normative structures constitute individual and collective identities, and therefore give meaning to action, they are difficult to change by way of action, without a concomitant change in identities. In either case, it is clear that the reproduction of particular ways of doing things inheres in the organization of human community. In the next section, I model the transformation of the normative structure of politics, focusing on the dynamics of change that are endogenous to the logic of dyads, triads, and rules. Constructing Governance Figure 1 depicts a simple model of the process by which systems of governance emerge and evolve. An adequate theory of this process must account for the following: • strategic behavior, how individual actors conceive and pursue their interests within any given community; • policymaking, how values and resources are distributed within any given community; • systemic change, how the normative structure in place in any given community is constituted, maintained, and revised. Judicialization and the Construction of Governance/ 6 The model breaks down this process into four stages, each a chronological shift along a circular path, moving clockwise. Movement is generated by the relative intensity of two relationships: of the dyad and triad, and of normative structure and strategic behavior. Although each shift is conditioned by what has happened in prior stages, the discussion highlights distinct aspects of these relationships. ----Place figure 1 here ----[Figure 1, entitled “The Construction of Governance,” can not be sent by attachment. It is in the form of a circle, moving through four quadrants: 1. Dyad >>> 2. Triad >>> 3. Triadic Ruelmaking >>> 4. Normative Structure. Stages 2 and 3 comprise the rigth hemisphere; tables 4 and 1 the left.] Shift 1: Normative Structure to Dyadic Contract The model holds that we can move, by virtue of a self-sustaining process, from a single dispute about the terms of a dyadic contract to an elaborate governmental system. To get to a dyadic contract, we need two individuals and at least a rudimentary normative structure. By dyadic contract, I mean the rules of exchange or, those promises voluntarily entered into between two persons. Contracts can be implicit or explicit. The promises made in an "implicit dyadic contract" are uncodified and "lack ritual or legal basis"; the "explicit dyadic contract" codifies promises that are meant to be legally binding (Foster 1977: 16). Both forms establish reciprocal rights and duties among two contractants. In contracting, two individuals coordinate their self-interest, in terms of some shared view of the future. Such coordination is difficult, if not impossible, without at least a primitive cultural framework: in the form of language (communication); and in the form of the norm of reciprocity, which is embedded in notions of individual commitment, reputation, and responsibility. Reciprocity, a crucial building block of society, enables the construction of the dyadic form; as Gouldner (1977: 39) has it, the norm constitutes a "starting mechanism" that "helps to initiate social interaction." Normative structure also serves to maintain dyadic contracts, by facilitating dispute resolution. It does so in three ways, two of which are relevant at this stage. First, at the level of the single actor, reciprocity or a relevant rule or established manner of doing things can prevent disputes to the extent that the norm provides individuals Judicialization and the Construction of Governance/ 7 with behavioral guidance and an understanding of the consequences of reneging on a promise, and that individuals constrain their behavior accordingly. Second, once a dispute has erupted, reciprocity and other relevant rules may provide the contracting parties with the materials for settling the dispute on their own, dyadically. Such norms furnish the bases for evaluating both the disputed behavior and potential solutions to the conflict. The authority, or legitimacy, of these standards depends heavily on their inherent "neutrality" with respect to the dispute, in the strict sense that the relevant norms predate the dispute. Shift 2: Dyad to Triad The legitimacy of dyadic relationships is rooted in the self-interest of the contracting parties. (At this point, I exclude from the analysis dyads constituted by coercion.) For each party, the contract must be functional, in the sense that its existence depends on the perception that the benefits of constructing and maintaining the dyad outweigh the costs, and that the benefits of a particular dyadic form outweigh the benefits of going it alone. The dyadic contract coordinates egoistic motives, in the form of rules (reciprocal rights and duties), for the life of the contract. Once formed, rules organize how conflict is identified and understood. As a dyadic relationship proceeds or as circumstances change, the meanings attached to the same set of rules by the contractants may diverge. Or the relative value of the dyadic relationship may decline for one or both of the contracting parties. Or, seeking to enhance its own welfare, one of the parties may ignore its obligations while expecting the other to obey them (the prisoner's dilemma). In any case, the dyadic form generates a massive functional demand for dispute resolution in the form of rule-interpretation. Dyads, aided by rules, often resolve disputes on their own. When they do so, the dyad behaves "judicially," comprising, in the parlance of legal anthropology, a "legal level" (Collier 1973: ch. 1). If disputants fail to resolve their dispute dyadically, they may choose to delegate the matter to a third party, thus constituting a new legal level, the triad. This act of delegation can be understood as a simple and universal act of "common sense," as Shapiro (1980: 1) does. It can also be understood in utilitarian terms. Delegation is likely when, for each disputant, going to Judicialization and the Construction of Governance/ 8 a third party is less costly, or more likely to yield a desired outcome, than either breaking the dyadic contract and going it alone, or attempting to impose a particular settlement against the wishes of the other disputant. For each disputant, the short-run risk of delegation is the prospect of a settlement in favor of the other. In the long run, however, the more two disputants interact with one other the more a relationship is perceived as beneficial by each party the less that risk matters. Other things being equal, each contracting party may expect to win some disputes and to lose others, over time, against a backdrop of absolute benefit. The social logic of delegation, like that of the dyadic contract, is one of long-range utility: each party must believe that it is better off attempting to resolve a dispute than dissolving the relationship altogether. Dyadic conflict and the delegation of these conflicts to a third party is the fuel that drives the model. If disputants are always able to resolve their disputes dyadically, or if one of the disputants is always able to impose a solution on the other, the model implies, there would be neither TDR nor evolution in governmental forms. Shift 3: The Crisis of Triadic Legitimacy Once constituted, the triadic dispute resolver faces a potentially intractable dilemma. On the one hand, the third party's reputation for neutrality is crucial to the social legitimacy of the triad itself. Disputants would be loathe to delegate disputes if it were otherwise. Yet in resolving disputes, the third party may compromise her reputation for neutrality by declaring one party the loser. That is, after all, what each of the disputants hopes. We can express the dispute resolver's dilemma as a fundamental interest: her interest is to resolve dyadic conflicts while maintaining the social legitimacy of TDR. In pursuit of this objective, she deploys two main tactics. First, the dispute resolver seeks to secure legitimacy by defending her behavior normatively, as meaningfully enabled and constrained by rules embedded in normative structure. Normative structure facilitates TDR, just as it facilitates dyadic dispute resolution, by providing readymade standards of appropriate behavior and solutions to conflicts. Reciprocity "promises shall be kept" animates the dyadic form; it also animates the exercise of TDR, to the extent that the dispute resolver works to restore substantive fairness and a sense of trust among the parties. Judicialization and the Construction of Governance/ 9 Second, the dispute resolver anticipates the disputants' (or a community's) reactions to her behavior, especially if she decides or is asked to take a decision. Compliance is a crucial test of the social legitimacy of consensual TDR. Figure 2 depicts this calculus. Position A.1 represents the substantive outcome desired by disputant A, and position B.1 represents the substantive outcome preferred by disputant B. Outcomes situated between positions A.1 and A.2, (or substitute B.1-B.2 for B) represent outcomes that the dispute resolver believes will not provoke A to refuse compliance. The space between B.2 and A.2 constitutes the dispute resolver's assessment of the range of decisionmaking outcomes that will lead to the resolution of the dispute, to compliance, and (much the same thing) to the reestablishment of a disputed rule. The calculus also helps her to fashion settlements that avoid the declaration of a clear winner or loser: in the area between B.2 and A.2, each disputant achieves a partial victory. For some disputes, the positions of A and B are more polarized, and no B.2-A.2 space exists; in such cases, the dispute resolver is unable to deploy the tactic (she has an interest in creating such a space by, for example, mediating between the parties). These are "hard cases," ones in which the dispute resolver can expect that any decision taken is likely to result in public protests or even non-compliance. If she does attempt to resolve the dispute by rendering a decision, her legitimacy will rest all the more on the persuasiveness of normative justifications. Figure 2: The Dispute Resolver's Calculus A.1 B.2 A.2 B.1 +-------------------------------{+-------------------------------+}----------------------------+ Shift 4: Triadic Dispute Resolution and Rulemaking Modes of TDR can be arrayed along a continuum constituted on one pole by mediation and, on the other pole, by adjudication. In mediation, the dispute resolver helps the disputants arrive at a mutually satisfactory settlement of the conflict. In adjudication, the dispute resolver authoritatively resolves the dispute on her own. In Judicialization and the Construction of Governance/ 10 practice, nearly all TDR takes place on intermediate points between these two poles. Dispute resolvers move back and forth along the continuum or threaten to do so continuously, in order to enhance their flexibility, limit their political exposure, and maximize their influence over the disputants. In any move along the continuum toward adjudication, the dispute resolver is led, with increasing precision and formality, to announce her decision and to provide a rule-based justification for it. In adjudicating, the dispute resolver simultaneously resolves a dyadic dispute and enacts elements of the normative structure. Both are forms of rulemaking. First, she makes rules that are concrete, particular, and retrospective, that is, she resolves an existing dispute between two specific parties about the terms of one dyadic contract. Second, in justifying her decision in telling us why, normatively, a given act should or should not be permitted she makes rules of an abstract, general, and prospective nature. This is so to the extent that her decision clarifies or alters rules comprising the normative structure. This latter form of triadic rulemaking constitutes a predictable response to the crisis dispute resolvers face (tactic 1 above). Yet it raises a delicate, second order legitimacy issue. From the point of view of the disputing parties, it makes evident that the exact content of the rules governing the dispute could not have been ascertained at the time the dispute erupted. The perception of the dispute resolver's neutrality erodes as her capacity to make rules is revealed. The dispute resolver can mitigate but can never permanently resolve this problem. Most important, she can work to cast TDR as deliberation about the precise relationship of abstract rules to a concrete dispute, portraying her decision as a record of these deliberations. In doing so, she portrays triadic rulemaking as a byproduct of TDR, rather than an outcome that she desires in and of itself. In this way, TDR generates a discourse about how people ought to behave. Because rules, reasoning about rules, and the application of particular rules to particular conflicts constitute the core of this discourse, precedent follows naturally. Precedent helps to legitimize TDR by simultaneously acknowledging rulemaking behavior, while constraining that same behavior with a rule: that like cases shall be settled likewise. In encapsulating this sequence dyadic rules > conflict > deliberation > triadic rulemaking > precedent TDR organizes discourse about a community's normative structure. In doing so, TDR performs a profoundly governmental function to the extent that dyadic contractors are drawn into this discourse and help to perpetuate it. Judicialization and the Construction of Governance/ 11 Shift 1: (Re)Constructing the Dyad In moving through shifts 1-4, we see how the dyad, the triad, and normative structure can be knotted together. And we see how a single dyadic conflict can generate a process of systemic change, the constitution or reconstitution of a mode of governance. Thus: a dyadic dispute erupts; the disputants delegate the matter to a dispute resolver; the dispute resolver resolves the conflict in a process involving normative reasoning, revising (at least subtly) normative structure. In returning to shift 1, the impact of structure on strategic behavior, we come full circle, to our initial starting point. But we find ourselves in a rather different world this time: the individuals comprising the dyad have learned something about the nature of their relationship (the rules governing their exchange) and about the environment (the normative structure) which sustains it. Put simply, TDR has reconsecrated the contract and reenacted the normative structure. The dispute resolver may have done so in a relatively conservative manner, fashioning a partial victory for each disputant and appealing to rules whose prior existence is relatively unquestioned. In so doing, she has reinforced existing structure while clarifying its domain of relevance and application. The dispute resolver may have done so in a relatively progressive manner, declaring a clear winner and loser while revising an existing rule or crafting a new one. In so doing, she has reshaped normative structure, expanding its domain. Given two conditions, such rulemaking is likely to generate powerful pedagogical or positive feedback effects, to be registered on subsequent exchange and dispute resolution. First, contractants must perceive that they are better off in a world with TDR than they are in a world without TDR. If they perceive as much, and if they are rational in the sense of being utility-maximizers, they will evaluate the rulefulness of any potential action and anticipate the probable outcome issuing from TDR. Second, the dispute resolver must understand that her decisions have some authoritative that is, precedential value. If these conditions are met, TDR will inexorably become a powerful mechanism of political change, and dyadic exchange will inevitably be placed in the "shadow" of triadic rulemaking. As we move around the circle a second time, and then again and again, this shadow will deepen and expand, covering more and more forms of human interaction. A virtuous circle is thereby constructed: to the extent that TDR is effective, it lowers the costs of dyadic exchange; as dyadic exchanges increase in number and in scope, so does the demand for the authoritative Judicialization and the Construction of Governance/ 12 interpretation of rules; as TDR is exercised, the body of rules that constitutes normative structure steadily expands, becoming more elaborate and differentiated; these rules then will feedback onto dyadic relationships, structuring future interactions, conflict, and dispute resolution. This dynamic, self-reinforcing process can be understood variously. Conceived in economic terms, the process operates according to the logic of increasing returns and path dependence (Arthur 1994; North 1990; Pierson 1996b). As it proceeds, dyadic exchange will be channeled down narrower and narrower paths, that is, individuals will continuously adapt their behavior to increasingly differentiated sets of rules. It is also institutionalization: a process through which specific social contexts will be increasingly defined by specific rules of behavior those curated by the triadic entity. Individuals will absorb and act upon these rules, thus making (and remaking) themselves and their community. Dyadic and Triadic Governance Dyads and triads organize human community, constituting modes of governance to the extent that they are institutionalized constructed and maintained by rules. Dyadic forms flourish in hierarchy, often coexisting or symbiotic with triadic forms. Patron-client networks are an ubiquitous example (Landé 1977). When vertically stacked, as in Confucian and military systems, a chain of dyadic relationships links the rulers with the ruled and thus establishes hierarchy. New institutionalist political economy captures such hierarchies in "principal-agent" models of organization (Moe 1987). Dyadic contracts also give order to anarchy, as they do in international relations (Stone 1994b). Examples include the "balance of terror" system of deterrence (Hoffmann 1991), and the elaborate world constructed by the bilateral treaty. Triadic governance is institutionalized in one of two basic modes: consensual and compulsory. My model demonstrates how a purely consensual form of triadic governance can evolve. Movement around the circle is driven by the complex mix of harmony and tension that inheres in the relationship between rules and self-interest. Coercive sanctions and enforcement mechanisms are conspicuously absent from the account. Instead, movement depends upon specific actors the dyadic contractants and the triadic dispute resolver identifying their respective interests in some, rather than in other, ways and behaving accordingly. To capture these requisite conditions, the Judicialization and the Construction of Governance/ 13 model is expressed in terms of statements that begin with "when," "if," and "to the extent that," statements that apply to specific contexts. It follows that actors are always capable of blocking movement at crucial points around the circle. Two contractants may choose to dissolve their contract rather than delegate to a third party. The dispute resolver may render capricious decisions without normative justification. After a dispute has been adjudicated, and if a clear winner has been declared, the loser may refuse to comply with the decision. If such behavior is, or becomes, the normal state of affairs, triadic governance will be stillborn, and social entropy will result. In such a state, reciprocity and other elements of normative structure do not, on their own, sustain social exchange; and triadic dispute resolvers do not function, on their own, to restore reciprocity given dyadic conflict and change in exogenous circumstances. The function of sanctions is to buttress dyadic and triadic dispute resolution. By sanctions, I mean social provisions that penalize non-compliance with rules and triadic rulemaking. To the extent that they operate effectively, sanctions counteract behavior that blocks the restoration of reciprocity among disputants. In consensual triadic governance, sanctions are informal but potentially fully effective. Individuals will be led to abandon existing contracts, or avoid entering into future contracts, with a chronic rule-violator, an individual who willfully disregards obligations imposed by a dyadic contract or by a triadic dispute resolver. To the extent that this occurs, the violator forgoes the benefits associated with social exchange and suffers stigmatization (the loss of reputation). If the violator's behavior has led all other actors to refuse contractual relations with the violator, social exclusion is the sanction. Banishment, virtual death, is the ultimate penalty associated with consensual governance. In compulsory triadic governance, explicit rules govern this sequence: dyadic contract > triadic dispute resolution > decision > compliance. Such rules commonly: enable the move from dyad to triad in the absence of the consent of one of the parties; require the triadic dispute resolver to consider the complaint; oblige the parties' to comply with the terms of an eventual decision; and organize enforcement measures in cases of non-compliance. Like the move from dyadic to triadic rulemaking, the transition from consensual to compulsory TDR is inherently the stuff of political development. The move is not automatic because the condition necessary for 2 If only to decide not to decide. Judicialization and the Construction of Governance/ 14 transition is not sufficient. The condition is that, for any community or pool of potential contractants, existing normative structure fails to provide an adequate framework for social exchange, while the social demand for coordinative rules and dispute resolution has increased. This may occur for a variety of reasons. The potential contractants may be strangers, that is, they do not share a common normative structure. Or, changes in normative structure may not have kept pace with changes in the nature of social exchange within a given community. A community of neighbors can become a community of strangers as a result of migration, increased social differentiation, or the division of labor. In any case, when existing rules can not sustain social exchange at an optimal level, contractants have an interest in developing new ones. The condition is not sufficient because the construction of such rules is a potentially irresolvable collective action problem. As political development has proceeded in the world, so has the ubiquity of compulsory triadic governance. Generating and imposing new normative structures that replace or supplement previously existing structures is perhaps the only (or at least the most efficacious) means of constructing a community from individuals who are strangers to each other. At the extreme, organized coercion reinforces TDR processes, guaranteeing, with force if necessary, social exchange, dispute resolution, and the enforcement of rules. The modern state is the institutionalization of coercive TDR. The Lawmaker and the Judge 3 The model does not predict that TDR always produces systemic change. On the contrary, where people (1) share a relatively comprehensive normative structure and (2) interact on an ongoing, face-to-face, basis that is, where transaction costs are virtually zero TDR tends to reenact, rather than to remake, social norms. In such contexts, existing normative is sufficient; informal sanctions are highly effective; and mediation is preferred to adjudication. Ellickson (1991) tells us that Shasta County ranchers refuse to use, or even educate themselves about, the laws meant to govern and resolve disputes concerning grazing rights, fencing, and stray cattle. Invoking "good neighborliness," they prefer to settle such disputes dyadically or by quiet mediation, according to well-established norms. But when a Texas rancher moves into the community and disrupts established ways of doing things, litigation is the result. Collier (1973), in her study of how the various legal levels operate among Mayan Indians in Zinacantan, found a complex blending of dyadic dispute settlement and mediation, and a hostility towards formal Mexican law and courts mitigated only in dealings with outsiders. At the time these books were published, both communities shared relatively stable normative structures possessed of relatively high social legitimacy. And in both communities, TDR was ubiquitous; but it was not used to provoke, nor was it expected to result in, normative change. Judicialization and the Construction of Governance/ 15 With the development of the modern state, the authority to govern the power to resolve disputes and to make rules tends to be divided among two separate figures. Separation of powers doctrines notwithstanding, the lawmaker and the judge are not easily detached from one another. The point can be made in terms of the model. The model demonstrates how a full-blown system of governance can be constituted and maintained by TDR processes alone, if shifts 1-4 are iterated ad infinitum. The dispute resolver governs by the pedagogical authority of her decisions. Triadic rulemaking is legislative in nature: it adapts, over time, a given normative structure to the demands of dyadic exchange. But TDR is a relatively inefficient means of rulemaking, since it proceeds on a case-by-case basis. In delegating lawmaking powers to a legislator, a community establishes a far more efficient means of revising normative structure. Nonetheless, in legislating, the legislator performs a dispute resolution function. As part of normative structure, laws help to prevent conflict from arising in the first place, and to facilitate the resolution of conflicts that do arise. Further, because the legislator fixes general rules for an entire community, it generates a crisis of legitimacy no less intractable than that which afflicts the dispute resolver. This crisis animates political life, in the form again of a quest to construct rules to constrain rulemaking. Even when judicial and legislative functions are separated, comparative institutional advantage produces legislative-judicial interdependence. The lawmaker makes rules whose reach, among other things, is immediately general and prospective; the judge makes rules whose reach, among other things, is immediately particular and retrospective. If the judge is expected to enforce the lawmaker's law, and if this law is meant to be binding, coercive TDR is required. If, for reasons elucidated, TDR results in rulemaking, then compulsory TDR results in the authoritative reconstruction of the lawmaker's law. The legislator therefore shares rulemaking power with the judge. TDR and Systemic Change Triadic governance facilitates dyadic exchange and the adaptation of normative structure, hence its social utility. Other things being equal, it must be that dyadic governance is inherently less flexible, and more brittle, than 4 E.g., the constant struggle to establish or to revise constitutions, electoral systems, and legislative and judicial process. Judicialization and the Construction of Governance/ 16 triadic governance. Whereas conflict can destroy dyadic contracts, conflict activates TDR and establishes the parameters of a politics that can recast the normative basis of social exchange. My theory holds that TDR, if exercised on an ongoing and effective basis, is a crucial mechanism of social cohesion and change. To put it in constructivist terms, triadic governance coordinates the complex relationship between structures and agents (Giddens 1984), helping to constitute and to reconstitute both over time. In culturalists terms, it serves to counteract forces favoring social "anomie" or "entropy," by adjusting general "guides to action" on one hand, to "the relentless particularity of experience" on the other (Eckstein 1988: 795-96). In rationalist terms, the move from the dyad to the triad replaces games, like the prisoner's dilemma, chicken, and assurance, with an entirely different strategic context. As far as I am aware, game theorists have never modeled triadic games, the essence of which must be dynamic, not static. In the next section, I demonstrate the power of the model to explain systemic change, by which I mean a fundamental transformation in how normative structure is constituted and sustained in any given human community. The evolution from dyadic to triadic governance, and the transition from consensual to compulsory TDR, are unambiguous examples. To the extent that such evolution occurs, there will be a commensurate change in the social basis of exchange, that is, in how individual actors understand and pursue their interests in coordination with other actors. Systemic change, then, implies the transformation of collective and individual identity. (Re)Constructing the Polity It would be a relatively simple task to demonstrate the general relevance of the theoretical model to the field of judicial politics. One could, for example, review the now burgeoning political science scholarship on the political impact of judging around the world. For reasons that inhere in the theory, we would learn that, in any given society, the judiciary's share of total governmental authority and influence varies with the degree to which it possesses and exercises the power to review the lawfulness of activity, public and private. The task is simplified by the fact that political scientists generally study courts, which are fully constituted mechanisms of coercive TDR. 5 After decades of neglect, the field of comparative judicial politics now thrives (e.g., Shapiro 1980; Shapiro and Stone, eds., 1994; Tate and Vallinder, eds., 1994; Volcansek, ed., 1992). Judicialization and the Construction of Governance/ 17 I propose, instead, to examine the impact of TDR on two polities in which judicial power had been initially, and by design, excluded. By judicial power, I mean the capacity of a triadic dispute resolver to authoritatively determine the content of a community's normative structure. In my two cases (the international trade regime and the French Fifth Republic), new normative structures (an international treaty, a national constitution) established rules governing relations between specific political actors (states in the GATT, elected officials and state institutions in France). The regular use of TDR led to the mutation of these relations, and new polities were thereby constituted. I will use the term "judicialization" as shorthand for this mutation, and the same thing for the construction of judicial power. Judicialization is a political process sustained by the interdependence of dyads and triads, and of rules and strategic behavior. It is observable, and therefore measurable, as modifications in the conduct of dispute resolution and social exchange. The "judicialization of dispute resolution" is the process through which a TDR mechanism appears, stabilizes, and develops authority over the normative structure governing exchange in a given community. The "judicialization of politics" is the process by which triadic lawmaking progressively shapes the strategic behavior of political actors engaged in interactions with one another. A full treatment of these cases is beyond the scope of a single paper. Of necessity, my treatment is schematic and abbreviated, focusing on the relationship between specific theoretical predictions and empirical outcomes. The theory asserts that TDR organizes political change so as to facilitate the survival of societies in which individuals interact with each other on a continuous basis. The theory predicts that as the scope and intensity of these interactions increase, so will the demand for the adaptation of normative structure by way of dispute resolution. If and when dyadic dispute resolution fails to satisfy this demand, there will be pressure to use TDR if a triadic mechanism exists, or to invent such a mechanism if it does not exist. Once individuals have moved to the triadic level, the internal dynamics of TDR will drive processes of judicialization. The dispute resolver will seek to balance the competing claims of disputants, but will also generate and rely on precedent to legitimize decisions. These precedents will gradually reconfigure normative structure and, in so doing, reconstruct social relations. The Judicialization of the International Trade Regime 6 I rely heavily on detailed studies of the judicialization of the GATT system (Hudec 1992, 1993; Stone Sweet forthcoming) and of the French Fifth Republic (Stone 1992, 1996). Judicialization and the Construction of Governance/ 18 When the General Agreement on Tariffs and Trade (1948) entered into force and was institutionalized as an organization, "anti-legalism" reigned (Long 1985: 70-71; Hudec 1993: 137). Diplomats excluded lawyers from GATT organs and opposed litigating violations of the treaty. In the 1950s, TDR emerged in the form of the Panel System. Panels, composed of 3-5 members, usually GATT diplomats, acquired authority through the consent of two disputing states. In the 1970s and 1980s, the system underwent a process of judicialization. States began aggressively litigating disputes; panels began treating the treaty as enforceable law, and their own interpretations of that law as authoritative; jurists and trade specialists replaced diplomats on panels. The process generated the conditions necessary for the emergence of the compulsory system of adjudication now in place in the World Trade Organization (WTO). Normative Structure and Dispute Resolution The GATT is the most comprehensive commercial treaty in history, today governing more than five-sixths of world trade. In the 1955-1974 period, membership jumped from 34 to 100 states; 124 states signed the Final Act of the Uruguay Round (establishing the WTO) in 1993. The treaty's core provision is a reciprocity rule, the Most Favored Nation (MFN) principle: each party to the GATT must provide to every other party all the advantages provided to other trading partners. The treaty further prohibits, with some exceptions, import quotas. The organization also supports an interstate forum for legislating trade law: eight "rounds" have reduced most tariffs to the point of insignificance and, less successfully, restricted non-tariff barriers to trade. The treaty exhorts members to settle their disputes dyadically, in accordance with GATT rules. The potential for a trade conflict to move to a triadic stage was implied: if state A could demonstrate that it had suffered damages due to violations of GATT law committed by state B, state A could be authorized by the GATT membership as a whole to withdraw advantages or concessions that it would normally be required to accord state B. Almost immediately, however, member-states invented the Panel System to resolve disputes. As institutionalized in the 1950s, the system blended mediation and consensual adjudication, against a backdrop of ongoing dyadic dispute resolution. Defendants could not be compelled to participate in TDR. By Judicialization and the Construction of Governance/ 19 denying consent, a state could block the construction of a panel, reject proposed panelists, and refuse to allow a ruling to be reported. Relative to compulsory forms of adjudication, the system appeared grossly inefficient. The original function of panels, however, was to facilitate dyadic conflict resolution, not to punish violators or to make trade law. Diplomats, trade generalists who saw expedience in flexible rules and detriment in rigid ones, sat on panels. When mediation failed, panels could, with the consent of the disputants, resolve conflicts according to relevant treaty provisions. Before 1970, states did not exploit the connection between TDR and rulemaking. But, being both imprecise and rigid, the regime's normative structure proved insufficient to sustain optimal levels of trade over time. The treaty mixes a few hard obligations (the MFN norm and tariff schedules) with a great many statements of principle and aspiration. Despite its flexibility, important GATT provisions could be revised only by unanimous consent. Although the success of the GATT was partly due to normative imprecision the more vague a rule, the easier it was for states to sign on to it textual imprecision was often locked in by the unanimity requirement. The tension is obvious. Achieving optimal levels of exchange partly depends on the continuous adaptation of abstract rules to concrete situations, but the GATT legislator was ill-suited to perform this adaptation for the trade regime