Abstract
Surprisingly little research investigates a stark reality: the vast majority of today’s international intergovernmental organizations (IGOs) were crafted not by states alone, but with participation by international bureaucrats working in pre-existing IGOs. What explains this phenomenon? Drawing on international relations scholarship, this article develops predictions involving the capabilities of states, or a matter’s salience to states. The predictions are tested with a new and original dataset that captures, for the first time, variation in the roles that international bureaucrats play in the institutional design arena. Statistical analyses find that states’ need for expertise, as well as the design negotiations’ distance from high-politics, leave openings for international bureaucrats to enter institutional design processes. The findings enhance our understanding of institutional design, principal-agent relationships, non-state actors, and divisions of labor in contemporary global governance.
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