Tolerant majorities,loyal minorities and ‘ethnic reversals’: constructing minority rights at Versailles 1919*

ABSTRACT. The 1919 Versailles Peace Conference created new states in East Central Europe (ECE), but the imperfect implementation of the ‘one nation, one state’ formula resulted in more than twenty‐five million ‘unassimilable’ minorities. With the introduction of majoritarian democracy, this gave rise to what we term ‘ethnic reversals’: ‘formally dominant majorities’ suffered status decline, while previously ‘minoritised majorities’ found new political powers. Accordingly, the 1919 Minorities Treaties sought to manage these ‘ethnic reversals’ by instituting a liberal minority rights regime that tried to create both ‘tolerant majorities’ and ‘loyal minorities’. While the Treaties reflected the influences of Anglo‐American and Anglo‐American Jewish elites – the most notable voices of liberalism in an age of ethnic homogenisation – we suggest that in contexts of historical diversity with little institutionalised liberalism, ‘ethnic reversals’ raise issues that cannot be resolved within liberal conceptions of minority rights that rely solely or primarily on cultural protections.     

‘Forgotten Europeans’: transnational minority activism in the age of European integration

This article examines transnational activism by coalitions of national minorities in Europe from the early 20th century to the present, setting this within the broader ‘security versus democracy dilemma’ that continues to surround international discussions on minority rights. Specifically, we analyse two organisations – the European Nationalities Congress (1925–1938) and the Federal Union of European Nationalities (1949–) – which, while linked, have never been subject to a detailed comparison based on primary sources. In so far as comparisons do exist, they present these bodies in highly negative terms, as mere fronts for inherently particularistic nationalisms that threaten political stability, state integrity and peace. Our more in‐depth analysis provides a fresh and more nuanced perspective: it shows that, in both cases, concepts of European integration and ‘unity in diversity’ have provided the motivating goals and frameworks for transnational movements advocating common rights for all minorities and seeking positive interaction with the interstate world.     

Strange Bedfellows: Explaining Political Cooperation between Communist Successor Parties and Nationalists in Eastern Europe

Abstract. In postcommunist politics many of the ‘new national right’ political formations in Eastern Europe and the former Soviet Union have joined forces with the communist successor parties. Such a combination is, on the surface, a baffling mixture; how is it possible that two fundamentally different ideological approaches (nationalism and internationalist socialism) can coexist and actively cooperate to form such a potent political force? What are the conditions under which such political cooperation emerges? This article attempts to answer the above questions by, first, empirically testing the effects of several factors which might explain postcommunist–nationalist political cooperation. Second, the quantitative analysis is buttressed with a comparison of the Hungarian and Russian cases. The analysis indicates that the most important variable associated with the emergence of postcommunist–nationalist political cooperation is the effect of previous regime type.     

Bounded political contestation: the domestic translation of international health and housing rights in Australia

Political contestation within liberal democratic states is an important, albeit limited, guide in defining how these states domestically implement their international human rights obligations. While often ritualistically endorsing human rights standards, political actors allow themselves a limited policy space with their domestic political contest circumscribed by more pervasive influences, often at odds with the state's international commitments. This article examines recent health and housing policy initiatives by Australia's two major political parties and assesses them against its international commitments. Applying a social constructivist approach, this article argues that the dominant neoliberal political discourse and the state's institutional structure set contextual boundaries to the parties’ policy contestation and reveal the limited influence of domestic political contestation in determining Australia's rights implementation.     

Tolerant exclusion: expanding constricted narratives of wartime ethnic and civic nationalism1

ABSTRACT. During war, the demarcation ‘enemy alien’– whether on ethnic or civic grounds – can lead to loss of political, social or economic rights. Yet not all minorities are excluded even though they pose problems for civic and ethnic national categories of belonging. This article explores the experiences of an ethno‐religious minority who posed an intriguing dilemma for ethnic and civic categorisation in North America during World War II. The Mennonite experience enables a close examination of the relationship between a minority ethnic (and religious) group and majority concepts of wartime civic and ethnic nationalism. The article supports arguments that both ethnic and civic nationalism produce markers for the exclusion of minority groups during wartime. It reveals that minority groups can unintentionally become part of majority ‘nationalisms’ as the content of what defines the national ideal shifts over time. The experiences also suggest that a minority group can help mobilise symbolic resources that participate in transforming what defines the national ideal.     

Everyday peace capture: Nationalism and the dynamics of peace after violent conflict

Nationalism is arguably one of the most detrimental peace‐breaking factors in conflict‐affected societies. This article examines how ethno‐nationalist elites, subterranean movements, and ordinary people can become blockages to sustainable peace and reconciliation after violent conflict. It argues that peacebuilding and state‐building imposed from outside as conflict transformation approaches without acceptable peace settlement and resolute solution of the disputes among parties in conflict risk enabling the co‐optation of power‐sharing arrangements by ethno‐nationalist elites, contestation of peace and reconciliation by subterranean mono‐ethnic movements, and the occurrence of vernacular peace‐breaking acts. This negative mutation of nationalism not only harms peace, justice, and development but also undermines the rights and needs of distinct identity groups. Under these conditions, escaping the nationalism trap in conflict‐affected societies requires seeking political change through post‐ethnic politics and reconciliation through everyday pacifist acts undertaken by the affected communities themselves. The article draws on Kosovo to illustrate empirically the dynamics of peace‐breaking and practices of everyday nationalism. It seeks to bridge debates on nationalism and post‐conflict peacebuilding and offer alternative pathways for rethinking strategies of peace in divided societies.     

Transatlantic relations and peace in Europe

In his recent novel Alain Crémieux imagines what might happen in Europe without NATO and US military forces and security commitments. Numerous border and minority conflicts break out, coalitions comparable to those in Europe's past begin to form, and the European Union is divided and ineffectual— until pro‐peace and pro‐EU forces rally. Most European countries then unite under a treaty providing for collective defence and security and a new central European government. The novel raises questions of international order: to what extent have the Europeans overcome their old ‘demons’ (distrust, power rivalry etc.), notably through the EU? While many theories purport to explain the peaceful relations among the EU member states, critical tests of the Union's political cohesion would come in circumstances without the US‐dominated external security framework, including US leadership in NATO. To what extent could the EU maintain cohesion and resist aggression or coercion by an external power against a member state, contain and resolve external conflicts affecting EU interests, and defend the Union's economic and security interests beyond Europe? To determine whether the US ‘pacifying’ and protective role has in fact become irrelevant, thanks in large part to the EU, would require a risky experiment—actually removing US military forces and commitments. The challenges and uncertainties that would face Europe without NATO argue that the Alliance remains an essential underpinning of political order in Europe. Moreover, the Alliance can serve as a key element in the campaigns against terrorism and the proliferation of weapons of mass destruction. To revitalize the Alliance, it is imperative that the Europeans improve their military capabilities and acquire the means necessary for a more balanced transatlantic partnership in maintaining international security.     

Home-rule versus non-territorial autonomy? Western European national movements and their views on the minority question, 1919–1939

The leading elites of the ethnonationalist movements that developed in the aftermath of World War I in Western Europe usually refused to see their nations and territories as ‘national minorities’. In their view, they were stateless nations or nationalities. However, in the aftermath of World War I, the prior international discussion on the nationality principle was increasingly replaced with the notion of ‘minority rights’, enhanced by the implementation of the Minorities Treaties by the League of Nations. Thus, the term ‘national minority’ emerged as a label that permitted ethnonationalist activist to present their claims on the international stage. This became evident in the participation of some Western European national movements in the activities of some transnational non-governmental organisations, such as the Congress of European Nationalities (1925–1939). However, the general programme advocated by the most influential leaders of East-Central ethnic minorities, based on the extension of the personal principle and the implementation of non-territorial autonomy all over Europe, was hard to accept for ethnonationalist elites from Western Europe, which were interested in territorial home-rule and believed that their homelands did not fit in the category of ‘minority’. This article explores the modalities and limits of that cultural and political dialogue.     

In the Shadow of the Tower: Spatial proximity to mosques,visible diversity,and support for the radical right

Growth in racial, ethnic, and religious minority populations in western societies has coincided with the growing success of nativist and radical right political parties. A leading target for nativist politicians has been Islamic religious symbols, particularly mosques. But does the presence of mosques within citizens’ milieux influence their political behaviour? To explore this question, we draw on longitudinal survey data from the Netherlands augmented by a web-scraped list of Dutch mosques to investigate the influence of local context – both architectural context in the form of spatial proximity to mosques and local demographic context in the form of visible diversity – on support for the Party for Freedom (PVV), a radical right, nativist political party. Our analyses reveal that while proximity to a mosque increases support for the radical right, proximity to a mosque with a minaret exerts a stronger effect. Also, closer proximity to a mosque with a minaret and greater local diversity amplify the differences in party support between the left and right. These findings allow us to better understand the impact of symbolic cultural threat on voting for nativist parties.     

Multiculturalism as a New Form of Nationalism?

What is often described today as neo‐nationalism or nationalist populism today arguably looks like the old nationalism. What is emerging as genuinely new are the identity‐based nationalisms of the centre left, sometimes called “liberal nationalism” or “progressive patriotism.” I offer my own contribution to the latter, which may be called “multicultural nationalism.” I argue that multiculturalism is a mode of integration that does not just emphasise the centrality of minority group identities but argues that integration is incomplete without remaking national identity so that all can have a sense of belonging to it. This multiculturalist approach to national belonging has some relation to liberal nationalism. It, however, makes not just individual rights but minority accommodation a feature of acceptable nationalism. Moreover, accommodation here particularly includes ethno‐religious groups in ways that are difficult for radical regimes of secularism. For these reasons, multicultural nationalism unites the concerns of some of those currently sympathetic to majoritarian nationalism and those who are prodiversity and minority accommodationist in the way that liberal nationalism (with its emphasis on individualism and majoritarianism) does not. It therefore represents the political idea and tendency most likely to offer a feasible alternative rallying point to monocultural nationalism.     

Hubris and melancholy in multinational states

ABSTRACT. The article sets out to explore the rather different roles that hubris and melancholy can play in the relations between majority and minority nationalities within multinational states. In the case of majority‐type nationalities, there is a sense of being a Staatsvolk, a feeling reinforced by linguistic, cultural, geographical, and political characteristics associated with the larger nation‐state. There may also be a sense of pride caught up with the larger identity between the nation‐state and the empire with which it is associated. For their part, minority‐type nationalities have been more prone to express their national sentiment in melancholic terms. Hence a tendency to dwell on lost battles of the past, on suppressed rebellions, on recurrent threats of assimilation and linguistic extinction. There may be elements both of hubris and of melancholy to national sentiment in multinational states, and the dialectic between the two colours their overall political development.     

Civic or ethnic nation? Two competing concepts in interwar Latvia

This article examines the historical development of the two different concepts of the Latvian nation: the one that included the equal participation of all ethnic groups residing in Latvia, and the one that put them at the margins of the new state. In 1919, citizenship was granted to all Latvian residents irrespective of their ethnicity, while the Law on Minorities' Schools established a framework for cultural autonomy. National unity was perceived as being crucial to state independence, and remained central to political debates in the first republic. However, similarly to elsewhere in Central and Eastern Europe, the creation of the political nation faced a number of serious domestic and international challenges. The worldwide economic depression and the parliamentary crisis of the 1930s finally tipped the scale in favour of the ethnic version of the Latvian nation. Nevertheless, even seventy years later, the brave multicultural experiment in this small Baltic country resonates with modern debates on nation‐building and minority rights.     

Competition,cooperation and resistance: women in the political field in Iraq

After the fall of Saddam Hussein's regime in April 2003 many women supported the process of transition and became active in political parties and coalitions. A wide range of groups were also formed which pursued women's rights agendas and, in many cases, included a call for peace and reconciliation and charity activities for women and children. However, female political action and the field of women's rights remain divided by the same multiple boundaries of belonging which affect Iraqi society itself; women operate in specific ethnic and denominational, local and regional settings, and they support nationalist, secularist, left‐wing or Islamist agendas. Women's rights—whatever the direction—can be of major or minor concern. This article outlines female political action and draws attention to the key issues which are discussed, in particular, by secular feminists in Iraq. In so doing, the article highlights how women in Iraq have not only lost, as a wide range of observers argue, but have also benefited from the restructure of the political landscape. Female political activists are still faced with old and new social, cultural, legal and political obstacles. The article argues that when women support narratives that leave men's superiority untouched, they are not simply victims of men or ‘false consciousness'; women either compete and cooperate, or they reject ideological narratives and power relations, while pursuing agendas of individual interest. Yet, despite competition among women and women's groups, and women's loyalty to agendas controlled by men, radical overtones that resist male domination can be heard— and should be supported.     

Language,history and the nation: an historical approach to evaluating language and cultural claims

ABSTRACT. In contrast to the abstract commitment to individual rights found in liberal critics of Bill 101 and the equally ahistorical approach of multicultural theorists like Bhikhu Parekh, this paper proposes that the particular historical circumstances surrounding the current minority status of different groups is crucial in evaluating the legitimacy of one cultural group to promote its cultural needs over another group within existing states. When the culture of a group residing within a particular state is secure in a neighbouring jurisdiction, the issue at stake is not necessarily the survival of a unique culture but the cultural needs of particular individuals. It does not follow that they have no legitimate claims against the state. However, in examining the language policies in Quebec and the newly independent Baltic states, it is argued that they are different in kind to the rights due to long‐standing communities struggling for linguistic survival.     

When less was more: external assistance and the political settlement in Somaliland

The internationally unrecognized ‘Republic of Somaliland’ presents a case in which the domestic drivers of peace and development may be examined when aid and other forms of international intervention are not significant variables. The relative autonomy of its peace process offers an alternative perspective on post‐conflict transitions to that offered in the majority of the literature, which instead problematizes either the perverse outcomes or unintended consequences of international interventions in conflict‐affected areas. The purpose of this article is not to establish the salience of Somaliland's relative isolation in its ability to achieve peace and relative political order, as this is already documented in the literature. Rather, it explores the ways in which that isolation fostered mutual dependence between powerful political and economic actors for their survival and prosperity. It uses a political settlements framework to probe the implications of this dependence for western statebuilding interventions in post‐conflict situations. The findings present a challenge to orthodox assumptions about how states transition out of conflict, particularly that: greater vertical inclusivity necessarily strengthens a political settlement; effective Weberian institutions are a prerequisite of an enduring peace; and that external assistance is usually necessary to end large‐scale violence in developing states or to prevent a recurrence of the conflict.     

The right to be heard: Citizenship and language

In this paper we address the importance and contestation of language in terms of citizenship and the development of political communities by focusing on the example of a minority language – British Sign Language. Language is crucial to debates about citizenship and belonging because the State has to rely on language for its very functioning, indeed political practice itself is a form of communicative action. For individuals language is deeply implicated in their ability to claim and maintain their rights and in their affective connections with others and sense of identification. The paper therefore begins by identifying that Deaf people's legal entitlements (e.g. to vote) are an abstract form of citizenship because as sign language users they have difficulties understanding both political and wider civil institutions and practices, and so lack the cultural proficiencies necessary to exercise citizenship in a substantive sense. We then go onto consider citizenship in the broader sense of how groups are included or situated in the public sphere, and in doing so to consider the extent to which Deaf people might be understood to have a liveable place in an oral society. The final section examines how the sense of injustice which flows from Deaf people's experiences of marginalisation in the public realm means that they are developing alternative forms of political commitment predicated on non-state spaces of belonging – where they can live their language – at both local and transnational scales. The paper concludes by reflecting on the notion of differentiated citizenship and the implications of Deaf people's claims to language rights.     

Did the minority Gillard government keep its promises? A study of promissory representation in Australia

When the Gillard government formed a minority government in 2010 many commentators argued that the government would be unable to fulfil its mandate. Despite this, the Gillard government was able to pass a record amount of legislation – comparable to previous majority-led governments – suggesting the government was effective at negotiating legislative passage. Less understood is whether the Gillard government was able to keep its election promises given the constraints of minority government. This is an important empirical and normative question. In their most basic form elections are designed to allow the public to hold politicians and political parties to account for their past performance. Central to this is whether parties have fulfilled the promises they made at the previous election. But how do parties express election promises to citizens and are they likely to fulfil these promises? Does minority government status make a difference? We examine these questions in the first contemporary Australian study of promise fulfilment, examining promises made and promise fulfilment of the Gillard minority government (2010–2013). We adopt the methods of the Comparative Party Pledges Project (CPPP). Consistent with the international literature, we find that the Gillard government fulfilled most of its election promises suggesting minority government status did not have a large effect on promise fulfilment.     

Human rights in a global ecumene

How should we understand the cultural politics that has surrounded the development of international human rights? Two perspectives frame contemporary debate. For ‘cultural particularists’, human rights are western artefacts; alien to other societies, and an inappropriate basis for international institutional development. For ‘negotiated universalists’, a widespread global consensus undergirds international human rights norms, with few states openly contesting their status as fundamental standards of political legitimacy. This article advances an alternative understanding, pursuing John Vincent's provocative, yet undeveloped, suggestion that while the notion of human rights has its origins in European culture, its spread internationally is best understood as the product of a ‘universal social process’. The international politics of individual/human rights is located within an evolving global ecumene, a field of dynamic cultural engagement, characterized over time by the development of multiple modernities. Within this field, individual/human rights have been at the heart of diverse forms of historically transformative contentious politics, not the least being the struggles for imperial reform and change waged by subject peoples of diverse cultural backgrounds; struggles that not only played a key role in the construction of the contemporary global system of sovereign states, but also transformed the idea of ‘human’ rights itself. In developing this alternative understanding, the article advances a different understanding of the relation between power and human rights, one in which rights are seen as neither simple expressions of, or vehicles for, western domination, nor robbed of all power‐political content by simple notions of negotiation or consensus. The article concludes by considering, in a very preliminary fashion, the implications of this new account for normative theorizing about human rights. If a prima facie case exists for the normative justifiability of such rights, it lies first in their radical nature—in their role in historically transformative contentious politics—and second in their universalizability, in the fact that one cannot plausibly claim them for oneself while denying them to others.     

“Genocide is Fascism in Action”: Aron Trainin and Soviet Portrayals of Genocide

ABSTRACT

This article examines the Soviet legal scholar Aron Trainin’s evolving writings on international law. Initially, Trainin formulated aspects of his concept of “crimes against peace” as a sort of Soviet alternative to Raphael Lemkin’s crimes of barbarity and vandalism. Crimes against peace both converged with the larger international movement to outlaw aggressive war, provided a Soviet alternative to proposed international crimes that they believed would threaten Soviet sovereignty, and provided a Soviet response to Lemkin’s proposals to outlaw mass killings. During World War II, Trainin articulated the Nazi extermination of the Jews as “crimes against peaceful civilians,” linking the Nazi atrocities to his concept of crimes against peace. Trainin’s concept of “crimes against peaceful civilians” encompassed the atrocities of the Holocaust while also asserting that the Soviet experience of the war – most notably Soviet sacrifice and suffering – meant that the Soviets should determine how international criminal law punished the war’s perpetrators. After World War II, when it became clear that genocide, rather than “crimes against peace” or “crimes against peaceful civilians,” was becoming the primary concept in international law to understand mass killings, Trainin portrayed the concept of genocide according to the perspective of Soviet propaganda, opposing an international criminal court for genocide, supporting the concept of cultural genocide, and portraying genocide as an inevitable outcome of capitalism. At the same time, Trainin and the Soviets never abandoned his concept of “crimes against peace,” portraying capitalism as inherently bound up with war and genocide. Trainin was the most significant genocide scholar in the Soviet Union, and his work exemplifies both the ways in which Soviet approaches to international law converged with other approaches, and the ways in which the Soviet Union diverged from non-Soviet international law.     

South Sudan: a volatile dynamic of accountability and peace

Since the warring parties to South Sudan's civil war (2013–15) signed a peace agreement in August 2015, South Sudan has endured a series of setbacks and clashes that have threatened the fragile peace process. This article examines many key factors affecting the peace process, including rampant corruption, military factionalism, gross human rights abuses and ineffective foreign intervention/pressure. It shows that the past and present failure to structure accountability at the institutional level drives the instability and distrust that has limited the political dialogue and consensus needed to implement the peace deal. To frame this issue of accountability, the article distinguishes between core (essential) and peripheral (self‐serving) objectives of promoting accountability. In doing so, it seeks to devise and apply the logic of this dynamic of accountability and to explain the unexpected outcomes of South Sudan's conflict. It argues that, rather than transforming the conditions and hostile relations of South Sudan's situation, international demands for accountability continue to fuel the volatile tensions between international authorities and the various factions inside the Sudan People's Liberation Movement/Army (SPLM/A). The central conclusion the article draws is that instead of signifying the official beginning of the end of the conflict, the peace agreement has wedged itself between the core and peripheral objectives of accountability, thereby setting the stage for further stalemate and increasing distrust among domestic and international authorities.