" ... Today, people tend to take the nation-state for granted as the natural form of political association and regard empires as anomalies. But over the broad sweep of recorded history, the opposite is closer to the truth. Most people at most times have lived in empires, with the nation-state the exception rather than the rule. So what triggered the change?
The rise of ethnonationalism, as the sociologist Ernest Gellner has explained, was not some strange historical mistake; rather, it was propelled by some of the deepest currents of modernity. Military competition between states created a demand for expanded state resources and hence continual economic growth. Economic growth, in turn, depended on mass literacy and easy communication, spurring policies to promote education and a common language -- which led directly to conflicts over language and communal opportunities.
Modern societies are premised on the egalitarian notion that in theory, at least, anyone can aspire to any economic position. But in practice, everyone does not have an equal likelihood of upward economic mobility, and not simply because individuals have different innate capabilities. For such advances depend in part on what economists call "cultural capital," the skills and behavioral patterns that help individuals and groups succeed. Groups with traditions of literacy and engagement in commerce tend to excel, for example, whereas those without such traditions tend to lag behind.
As they moved into cities and got more education during the nineteenth and early twentieth centuries, ethnic groups with largely peasant backgrounds, such as the Czechs, the Poles, the Slovaks, and the Ukrainians found that key positions in the government and the economy were already occupied -- often by ethnic Armenians, Germans, Greeks, or Jews. Speakers of the same language came to share a sense that they belonged together and to define themselves in contrast to other communities. And eventually they came to demand a nation state of their own, in which they would be the masters, dominating politics, staffing the civil service, and controlling commerce.
Ethnonationalism had a psychological basis as well as an economic one. By creating a new and direct relationship between individuals and the government, the rise of the modern state weakened individuals' traditional bonds to intermediate social units, such as the family, the clan, the guild, and the church. And by spurring social and geographic mobility and a self-help mentality, the rise of market-based economies did the same. The result was an emotional vacuum that was often filled by new forms of identification, often along ethnic lines.
Ethnonationalist ideology called for a congruence between the state and the ethnically defined nation, with explosive results. As Lord Acton recognized in 1862, "By making the state and the nation commensurate with each other in theory, [nationalism] reduces practically to a subject condition all other nationalities that may be within the boundary. . . . According, therefore, to the degree of humanity and civilization in that dominant body which claims all the rights of the community, the inferior races are exterminated, or reduced to servitude, or outlawed, or put in a condition of dependence." And that is just what happened.
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Since ethnonationalism is a direct consequence of key elements of modernization, it is likely to gain ground in societies undergoing such a process. It is hardly surprising, therefore, that it remains among the most vital -- and most disruptive -- forces in many parts of the contemporary world.
More or less subtle forms of ethnonationalism, for example, are ubiquitous in immigration policy around the globe. Many countries -- including Armenia, Bulgaria, Croatia, Finland, Germany, Hungary, Ireland, Israel, Serbia, and Turkey -- provide automatic or rapid citizenship to the members of diasporas of their own dominant ethnic group, if desired. Chinese immigration law gives priority and benefits to overseas Chinese. Portugal and Spain have immigration policies that favor applicants from their former colonies in the New World. Still other states, such as Japan and Slovakia, provide official forms of identification to members of the dominant national ethnic group who are noncitizens that permit them to live and work in the country. Americans, accustomed by the U.S. government's official practices to regard differential treatment on the basis of ethnicity to be a violation of universalist norms, often consider such policies exceptional, if not abhorrent. Yet in a global context, it is the insistence on universalist criteria that seems provincial.
Increasing communal consciousness and shifting ethnic balances are bound to have a variety of consequences, both within and between states, in the years to come. As economic globalization brings more states into the global economy, for example, the first fruits of that process will often fall to those ethnic groups best positioned by history or culture to take advantage of the new opportunities for enrichment, deepening social cleavages rather than filling them in. Wealthier and higher-achieving regions might try to separate themselves from poorer and lower-achieving ones, and distinctive homogeneous areas might try to acquire sovereignty -- courses of action that might provoke violent responses from defenders of the status quo.
Of course, there are multiethnic societies in which ethnic consciousness remains weak, and even a more strongly developed sense of ethnicity may lead to political claims short of sovereignty. Sometimes, demands for ethnic autonomy or self-determination can be met within an existing state. The claims of the Catalans in Spain, the Flemish in Belgium, and the Scots in the United Kingdom have been met in this manner, at least for now. But such arrangements remain precarious and are subject to recurrent renegotiation. In the developing world, accordingly, where states are more recent creations and where the borders often cut across ethnic boundaries, there is likely to be further ethnic disaggregation and communal conflict. And as scholars such as Chaim Kaufmann have noted, once ethnic antagonism has crossed a certain threshold of violence, maintaining the rival groups within a single polity becomes far more difficult.
This unfortunate reality creates dilemmas for advocates of humanitarian intervention in such conflicts, because making and keeping peace between groups that have come to hate and fear one another is likely to require costly ongoing military missions rather than relatively cheap temporary ones. When communal violence escalates to ethnic cleansing, moreover, the return of large numbers of refugees to their place of origin after a cease-fire has been reached is often impractical and even undesirable, for it merely sets the stage for a further round of conflict down the road.
Partition may thus be the most humane lasting solution to such intense communal conflicts. It inevitably creates new flows of refugees, but at least it deals with the problem at issue. The challenge for the international community in such cases is to separate communities in the most humane manner possible: by aiding in transport, assuring citizenship rights in the new homeland, and providing financial aid for resettlement and economic absorption. The bill for all of this will be huge, but it will rarely be greater than the material costs of interjecting and maintaining a foreign military presence large enough to pacify the rival ethnic combatants or the moral cost of doing nothing. ... "
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