The Politics of Persuasion. Implementation of Foreign Policy: The Case of the Netherlands

Abstract

This article reports on a research project of the Working Group on Foreign Policy of the Netherlands. The central focus of this project is on the factors determining the effectiveness and success of foreign policy implementation. Based on three dimensions (issue area, "positive" or "negative" influence, and time), 12 cases covering 41 foreign policy goals were distinguished, which allowed testing of the impact of related hypotheses by pairwise comparisons. Among the factors determining and limiting foreign influence, four were selected as intervening variables: (1) domestic consensus, (2) ministerial commitment, (3) support of major allies, and (4) moderation of demands. Little support was found for most of the related hypotheses. Major findings include: There is no evidence that the effectiveness of Dutch foreign policy has declined over time, nor that it is easier to exercise "negative" compared with "positive" influence. A domestic consensus is a major condition for influence abroad. The support of major allies, e.g. the United States of the FRG, while not indispensable is also of major importance. Investments of time and energy should be concentrated on carefully selected topics and maintained over time. Within limits the quality of ideas can be a substitute for the lack of power characteristic of states like the Netherlands. "Bridge-builder", "loyal critic" and "moderate dissident" are suitable and effective foreign policy roles for such countries. Irrelevance threatens just as much from premature submissiveness, however, as from voicing demands which are considered as being "too radical". The road between the two is rather narrow.