Capitalism and global governance became inextricably linked when the turmoil of the twentieth century drove the development of institutional mechanisms beyond nation states to manage peace after world wars, address the fallout of financial and economic crises, reorganize political and trade relations after the end of empire, mitigate inequality, and respond to environmental degradation.Footnote 1 In the creation of international organizations, the economic and social system of capitalism found reinforcement as much as regulation. As a result, these two predominant forces and their agents relate through simultaneous concert and conflict. This dialectic contributed to the protracted crises of recent decades, demanding a critical analysis of the futures of capitalism and governance on a global scale, especially as the hyper-globalization and global interconnectedness of the twentieth century gives way to a new era of de-globalization and resurgent nationalism.Footnote 2
This special issue examines the historical connectedness of capitalism and global governance and aims to lay a foundation for further research on their relationship and its impacts on human society and the environment. As separate topics of study, capitalism and global governance have each attracted considerable attention, but historical research connecting the two has only recently gained momentum. Scholars working in this area have begun to examine international organizations through the lens of capitalism, analyze the institutional development of global economic governance, and question the ability of global regulations to stand up to multinational corporations.Footnote 3 This issue builds on such scholarship by studying the complex relationship of capitalism and global governance through the lens of business in three dimensions: historically, globally, and granularly. A historical approach makes possible an examination of the entanglements of capitalism and global governance beyond nation states, since, given its inherent instability, capitalism’s reproduction has required it to be embedded within a variety of forms and levels of governance over time.Footnote 4 A global analysis reflects the scale of even the largest corporations and most international institutions.Footnote 5 And a focus on businesses as actors within the structures of capitalism and global governance opens the so-called “black boxes” of firms, their behaviors in different business environments, and the ways they relate to the international regulators, policymakers, institutions, and organizations that constitute “world order.”Footnote 6
As this issue demonstrates, business history offers a particularly rich set of approaches for studying the relationship between capitalism and global governance. Histories of capitalism, which gained traction during the labor movements of the 1960s and crises of the 1970s before being eclipsed by the growth paradigm of the late twentieth century, were reinvigorated in the wake of the 2008 Global Financial Crisis. Since then, “new histories of capitalism” have provided valuable critical analysis of the economic and social system and its diverse origins and central features.Footnote 7 Recent histories of capitalism have also analyzed capitalism’s embeddedness within culture, law, politics, and social relations, and its negative contributions to inequality and environmental degradation.Footnote 8 Although historians of capitalism seldom study individual businesses, firms have, as Walter Friedman argues, played a significant role in the history they describe, thus demanding business historical analysis.Footnote 9 Likewise, international and institutional histories have examined the emergence of transnational governance and the creation of supranational organizations.Footnote 10 But, as recent scholarship has shown, firms and business associations have equally contributed to the making of international order by motivating collective regulation and shaping international institutions. Moreover, an international “revolving door” has enabled business elites to become global governance elites, calling for business historical studies of the entanglement of capitalism and global governance.Footnote 11
While business historians have traditionally focused on corporate strategies and organizational forms and have only rarely studied the role of business in the capitalist system and the development of global governance frameworks, recent appeals have called for scholars in the field to investigate “business power,” especially in the international arena.Footnote 12 To the existing literature on business-government relations at the national level, business historians have contributed scholarship on firms and their interactions with institutions of transnational governance and supranational organizations such as the European Economic Community (EEC) and European Union (EU).Footnote 13 Moreover, scholarship on international cartels, philanthropic organizations, and international business interest organizations have also illustrated the importance of private forms of global governance across time and space.Footnote 14 Even Alfred Chandler, whose seminal contributions to business history focused on managers and corporate structures, underlined the need to study how multinationals as “Leviathans” exert material influence on the global economy and raise global governance issues.Footnote 15 Because of their attention to capital and profit, organization and structure, business and economic historians are uniquely positioned to examine how global governance frameworks shaped and were, in turn, shaped by uses of capital and profit-making strategies.Footnote 16 Recent developments in the field demonstrate momentum for business historians to engage further with the topic of global governance and to enrich their work through collaborations with scholars in other relevant fields. Such “post-disciplinary” scholarship promises not to reinforce boundaries between fields, “but rather to question those boundaries and through this questioning, encourage innovation and creativity.”Footnote 17
The contributions to this special issue demonstrate the value of writing the entangled history of capitalism and global governance through a business historical lens. The four research articles examine the ways business actors have influenced, subverted, and evaded efforts to govern the global economy, international development, and the environment. In their article, Ann-Kristin Bergquist and Thomas David trace the invention of “sustainable development” back to the International Chamber of Commerce. Véronique Dimier and Sarah Stockwell expose the British government’s capitalist motivations in international development aid after decolonization. Vanessa Ogle chronicles international efforts to hold multinational corporations accountable for tax avoidance. And Grace Ballor uncovers the role of car companies in the development of stricter European car emissions standards. This special issue also includes scholarship presented in alternative formats. In his reflection essay, Rawi Abdelal highlights the centrality of business to the relationship of capitalism and international organizations from the perspective of political economy. Four leading scholars of capitalism and global governance – Patricia Clavin, Nicolas Pérrone, Neil Rollings, and Quinn Slobodian – also contributed to a roundtable discussion on the past, present, and future of scholarship in this area and the value of a business historical approach. Insights from their respective areas of expertise, along with commissioned review essays of recent scholarship, lay a foundation on which historians can continue to examine the ways international organizations have attempted to regulate and, in turn, been captured by business interests.
The following pages provide a historiographical survey of the ways capitalism and its actors – including entrepreneurs and managers, firms and business associations – have interacted with international organizations and global governance frameworks. This introductory text contextualizes the interventions of the issue authors and highlights how the research articles and reflection pieces gathered in this special issue contribute to our understanding of specifics aspects of those interactions.
Governing Global Infrastructures and Integrating Markets
Several nineteenth century international organizations provided critical basic infrastructures that facilitated the global expansion of firms, such as the International Telegraph Union (1865), often remembered as the first standards international organization, the General Postal Union established (1874), and the International Bureau of Weights and Measures (1875). Historians have illustrated the triple feedback loops between the commercialization of technological innovations, the global governance systems that enabled new technologies to spread widely, and the subsequent development of related businesses to bring goods with those technologies to market.Footnote 18 For instance, Heidi Tworek showed that once global communications systems were established, thanks to submarine telegraphy and international conventions, news agencies could play a central role in disseminating news to newspapers, positioning them equally as profit-seeking businesses and strategic resources for governments in the battle of ideas.Footnote 19 As this example suggests, technological and governance spillover effects are important objects of investigation since they did not only produce globalization, but were – and still are – at the roots of counter-movements against globalization.
In the wake of nineteenth century conventions to establish global infrastructures and in the context of the wars and market disruptions of the early twentieth century, several international organizations were created with the primary purpose of facilitating financial flows, supporting international trade, and stabilizing societies on capitalist premises.Footnote 20 This is especially true for the Organization for European Economic Co-operation (OEEC), the Organization for Economic Co-operation and Development (OECD), the United Nations’ Economic Commissions, the General Agreement on Tariffs and Trade (GATT), the World Trade Organization (WTO), the Bank of International Settlements (BIS), the International Monetary Fund (IMF), and the World Bank. Out of the same postwar environment in which these global organizations were developed came a dizzying number of regional European organizations, including the European Coal and Steel Community (ECSC) and EEC, designed to ensure peace and stability on the continent through economic means.Footnote 21 Whether universal or supranational, such organizations critically shaped the environment in which businesses operate.Footnote 22 In some cases, they also offered expanded forums for business influence. As Neil Rollings emphasizes in his contribution to the roundtable contained in this issue, business is ubiquitous and interdependence is a key concept in understanding the evolution and integration of markets.
In theory, market integration should enable businesses to reorganize and rationalize their production. But a business history perspective offers the potential to discuss such assumptions in concrete terms and to consider the importance of non-market elements. The example of Unilever in the mid-twentieth century shows how organizational path-dependency prevailed when cultural differences and labor relations perpetuated fragmentation along national lines. Because Unilever’s directory was concerned with the autonomy of its subsidiaries, adapting its products to local tastes, and preserving jobs, the company was slow to take advantage of European market integration.Footnote 23 This example underscores the need to examine business responses to international efforts to integrate markets and financial systems both as a question of economic efficiency, and also in the context of broader capitalist dynamics such as uneven economic development, consumption patterns, and competition between different national labor markets and welfare systems.
Markets have long been integrated through the creation of intersecting bilateral, regional, and global institutions. Importantly, regional market integration can erect barriers for extra-regional business as much as it can remove barriers for those inside. Moreover, market integration is rarely limited to the removal of customs duties; it often extends to the regulation of non-tariff barriers and the harmonization of economic, environmental, and social standards. Business historians have investigated the impact of such market integration initiatives on firms, as well as the ways firms have shaped the creation of international rules and norms.Footnote 24 In the case of the EEC and EU, vehicle standards were equally conceived as a way to foster innovation in Europe and as a protectionist device, granting time to European manufacturers to cope with Japanese competition.Footnote 25 In this vein, Grace Ballor’s contribution in the special issue demonstrates how the strengthening of emissions regulation within the EEC has to be understood in the context of the 1992 Program to complete the Single Market. Ballor indeed describes the introduction of more stringent standards as a form of “liberal environmentalism,” which resulted primarily from an alignment of interests between manufacturers and EEC policymakers, who wished to avoid market fragmentation while promoting economies of scale and the competitiveness of European industry.Footnote 26 While business groups were usually reluctant to accept environmental regulation, European carmakers envisioned the potential of standard harmonization at the EEC level in providing them with a comparative advantage relative to their competitors from other regions. Recognizing the ambivalence of business perspectives on regional market harmonization can put business historians in fruitful conversation with scholarship on alternative visions for the EEC, which was, as Laurent Warlouzet noted, a contested terrain between social, neo-mercantilist, and neoliberal views.Footnote 27 Finally, as Grace Ballor and Alexis Drach have each documented in the case of European integration, when global governance proved challenging to implement or did not unfold in the ways firms had hoped it would, businesses could act as “agents of integration” and develop “alternative forms of integration,” and in doing so, shape capitalist dynamics for years to come.Footnote 28
Promoting Trade and Foreign Direct Investments
In addition to fostering financial and trade integration, global governance organizations have also facilitated the expansion of business through the development of global standards and international intellectual property rights regimes.Footnote 29 Moreover they have supported export guarantees, created instruments of trade finance, and brokered bilateral and multilateral investment protection treaties as well as double taxation agreements.Footnote 30 Understanding how firms promoted and used these agreements is crucial, since such arrangements, along with the manipulation of transfer prices, have enabled tax avoidance by multinationals. Double taxation agreements indeed allowed firms to repatriate foreign profits to tax havens (either by exacting a modest first tariff, or without being taxed at all), giving rise to what financial historian Christophe Farquet calls an international system of non-taxation.Footnote 31 In a similar vein, aid and technical assistance programs developed by former colonial powers nationally and at the European level, were also aimed at helping Western firms resume and increase their business in the context of decolonization.Footnote 32 In this special issue, Véronique Dimier and Sarah Stockwell for instance argue that there was a “commercial turn” of British aid policy after British accession to the EEC in 1973. The British government wished to instrumentalize EEC development assistance to its companies benefits and to redirect it to its former colonies.Footnote 33 Moreover, foreign direct investments carried out under the cover of assistance purposes often benefited from state-sponsored and multilateral investment insurances, as well as investment protection treaties.Footnote 34
In this special issue, Nicolás Perrone calls for a cross-fertilization of history of international law scholarship, to understand how the grammar of international law texts was designed by elite networks and companies’ lawyers and how such investment protection schemes enabled multinationals to monopolize natural resources, labor, and assets in former colonies by protecting foreign investors against sovereign decisions that could jeopardize their economic interests, such as nationalization or capital controls.Footnote 35 Further work could build on existing business historical scholarship on the impact of foreign direct investments, technology transfers (or lack thereof), and multinational ownership on the developing countries that so often host them. Scholars working in this area could therefore engage with historical studies dealing with empires and decolonization, assessing business impacts not only in terms of economic consequences but also with respect to state sovereignty in the “Global South.”Footnote 36 Indeed, multinationals historically proved to be resilient “preservers of globalization.”Footnote 37 Business historians have for instance developed strong contributions detailing how firms managed political risks in the context of revolutions and independence movements. These firms navigated rising nationalism, as well as economic embargoes and sanctions during wars to maintain and sustain their operations.Footnote 38 As Geoffrey Jones pointed out in his keynote at the European Business History Association annual meeting in 2022, business historians could do more to critically assess whether such resilience contributed positively or negatively to host economies and the extent to which the presence of multinationals extended wars and perpetuated authoritarian regimes.
Mitigating Global Externalities
While global governance played a crucial role in providing business with critical infrastructures and regulatory frameworks, firms’ economic activities also resulted in political, social, and environmental externalities, which made global governance responses all the more pressing.Footnote 39 Consequently, firms have long been the direct targets of international regulations, starting with antitrust and cartel legislation. Business historians made important contributions in showing how cartels were perceived differently depending on country and sector and were sometimes even considered to be a desirable force for stabilizing production and securing employment.Footnote 40 They have also investigated how firms responded to the introduction of cartel regulations and the use of alternative organizational cooperation as coping mechanisms.Footnote 41 Laura Philips Sawyer’s recent work also highlights how the United States, acknowledging its new hegemonic position after World War I and II, used the extraterritorial reach of its law and the Marshall Plan to enforce antitrust regulations internationally.Footnote 42 The 1970s witnessed unprecedented efforts to regulate multinationals, in the hope of mitigating deindustrialization in Western countries.Footnote 43 The 1970s were also a period of hope for a “New International Economic Order” in which former colonies could regain control over their natural resources and benefit from a fairer international trade regime.Footnote 44 Empirical studies, such as Sabine Pitteloud’s work on the reactions and strategies of Swiss multinationals, help explain why many of the envisioned international regulatory attempts failed, while others took the form of non-binding guidelines.Footnote 45
Global governance often appeared as the remedy to the “race to the bottom” issues, when it comes to capital mobility. Such observation is certainly true for fiscal competition between various territories, especially given the existence of archipelago capitalism and fiscal paradise.Footnote 46 Efforts at settings international taxation standards dates back from the 1920s within the League of Nation, without much success given international disunity and business resistance.Footnote 47 After 1945 and especially since the 1970s crisis of public finance in Western States, multinational tax avoidance has been singled out for its negative impacts on the ability of states to administrate and to provide public goods.Footnote 48 For this reason, international organizations, such as the OECD or powerful states, such as the United States, attempted to better control multinational’s tax evasion practices, here again, with little concrete results.Footnote 49 In this special issue, Vanessa Ogle reveals the existence of the so-called “Group of Four,” an intergovernmental covert working party of revenue authorities established by the United States, United Kingdom, Germany, and France in 1970 in response to the slow progress achieved at the OECD.Footnote 50 Its goal was to foster international cooperation regarding tax avoidance and information exchanges, targeting rich individual tax evaders and multinationals’ transfer pricing practices and fiscal optimization schemes. Ogle’s analysis of the investigations of the Group of Four brings to light the impressive ability of mobile capital to escape taxation as well as the many logistical and political roadblocks to achieve global governance in the matter.
While business history scholarship on taxation appears highly relevant in shedding light on the political and economic role of enterprises in fueling rising inequalities and difficulties to finance public goods, such an approach is also certainly needed to make sense of the current climate crisis. In recent decades, many historians, including business historians such as Geoffrey Jones and Ann-Kristin Bergquist, have made appeals to reexamine capitalist dynamics’ and business’ impact on the environment.Footnote 51 While acknowledging some significant progress, Bergquist points out in her 2019 literature review, that the “business history literature has essentially remained focused on how firms grew and innovated, without mentioning that they wrecked the planet as a result.”Footnote 52 Many of the environmental issues that resulted from business activities were indeed global in scope, such as transboundary air pollution, acid rain, ozone depletion, and of course, climate change. Moreover, business interacted in many ways with global environmental governance mechanisms, since companies were simultaneously primary targets of environmental governance and political actors involved in the process of setting regulations by providing technical expertise and implementing the resulting norms.Footnote 53 For instance, by acting as “merchants of doubt,” the fossil fuel and plastic industries were able to delay meaningful global engagement with climate change and obscure the truth about recycling.Footnote 54 Business organizations were also key in promoting self-governance and market-mechanism to mitigate environmental damages in the 1980s. As Thomas David and Ann-Kristin Bergquist's contribution to this special issue shows, the International Chamber of Commerce monitored the United Nations environmental efforts since the United Nations (UN) Conference on the Human Environment in Stockholm in 1972 and were progressively able to establish themselves as key partners.Footnote 55 Business also contributed to disseminating the concept of sustainable development, replacing the idea of planetary limits.Footnote 56 As these examples illustrate, documenting the role of firms and industry, which had a lot to lose from the introduction of new rules, would help identify potential roadblocks and delays in terms of environmental governance. Given the numerous global and sectoral corporate regulations that seemed to be desirable from a societal viewpoint and were demanded by much of civil society, and the few binding regulations that actually came into existence, it seems indeed worth further investigating how business acted as “institutional inhibitors.”Footnote 57
Business Shaping Global Governance
Thanks to their use of corporate and business interest organizations’ archives, business historians are well positioned to document the “invisible hands” of firm representatives in politics and lobbying strategies, which often took place behind closed doors.Footnote 58 A growing body of literature has indeed demonstrated the usefulness of such approaches for understanding national politics and the functioning of the varieties of national capitalist systems.Footnote 59 Within this flourishing scholarship some studies confirmed empirically that business interests were often assimilated to national interest and defended as such within international organization, thanks to a mix of instrumental and structural power, even if the picture appears more nuanced.Footnote 60 Not all attempts at exerting influence were successful, and when national diplomats were prone to compromise in international arenas, businesses and interest associations sometimes bypassed them and found other ways to impose their agenda.Footnote 61
In expanding such inquiries more systematically toward international organizations, scholars working in this area could complement the work of historians of international relations who have increasingly pinpointed the role of business during state-led negotiations, the fact that states were far from being unitary actors, and the porousness of the boundaries between the private and public spheres.Footnote 62 One such area of scholarship addresses the role of international banks in shaping the infrastructures of both global capitalism and empire.Footnote 63 Christy Thornton exposed the role of Wall Street banks in preventing the emergence of a new inter-American bank in the 1940s, which was backed by Latin American diplomats and a significant portion of the US administration.Footnote 64 And Amy Offner’s work uncovered the failures of the mixed economy, which international elites tried to design in mid-twentieth century Latin America.Footnote 65 In a revisited history of the Cold War, Sandrine Kott laid a foundation for further work on the shifting coalitions of actors – including business – that transcended the division of interests between Northern and Southern countries as well as the divide between capitalist and communist countries.Footnote 66
Patricia Clavin’s scholarship has provided many examples of influential transnational and cosmopolitan actors, some of them carrying business functions, and whose actions were difficult to interpret according to rigid categories such as national and ethnic identity, professional attribution, political affiliation, and cultural attachments.Footnote 67 In this special issue, Clavin emphasizes the role of crisis and wars in blurring the line between the business and the political spheres and in explaining the birth of international governance bodies.Footnote 68 Such historical approaches of international relations certainly speak to business historians, who have also documented the importance of the revolving doors phenomenon. For instance, actors such as the former EEC commissioners Etienne Davignon and François Xavier Ortoli, who ended their careers as business representatives, were involved in a variety of governance forums ranging from supranational and international organizations such as the EEC, global summitry such as the World Economic Forum, and private governance institutions such as the European Roundtable of Industrialists.Footnote 69 Quinn Slobodian’s contribution to the roundtable of this issue invites us to further consider the constant tensions between mass democracy and private ownership and control that have shaped the history of the twentieth century, and shows how histories of empire, decolonization, and international relations gain to be considered simultaneously with business and banking history.Footnote 70
One of the strengths of choosing businesses and their interest organization as the primary unit of analysis is indeed to highlight a variety of coexisting strategies and channels of influence toward global governance. Indeed, while access to national political representatives certainly proved crucial, businesses were sometimes formally invited to hearings and hired professional lobbyists.Footnote 71 They also engaged in long-term ideological battles or directed financial means toward business-friendly institutions.Footnote 72 When uncovering such multiple channels of influence, business history echoes some existing scholarship in the history of economic thought. Quinn Slobodian’s exemplary work has historicized the ways economic elites legitimized, institutionalized, and deployed neoliberalism on a global scale, while praising the existence of free trade and tax-free enclaves on which democratic collective decisions have little reach.Footnote 73 There is therefore an opportunity for business historians to contribute to our understanding of why some ideas became dominant, question arguments about the ‘naturalness’ or ‘inevitability’ of economic systems, and expose instances in which international trade and investment rules have been insulated from democracies. While governance frameworks, as well as their absence, might be analyzed through the lens of power relations in which business also played a role, the rules enforced by governance bodies and those they benefit can also be discussed critically.
Establishing Private Governance
Businesses and economic elites not only influenced the work of international organizations, but they also developed private forms of global governance, sometimes supporting the work of international organizations, sometimes substituting some of their functions.Footnote 74 At times, business elites also actively undermined the work of international organizations.Footnote 75 Several international business interest organizations were created in response to the work of international organizations, some of which enjoyed formal consultative status. As Thomas David and Pierre Eichenberger have shown, the ICC was formed as a business response to the creation of the Société des nations and then the UN.Footnote 76 Several scholars have historicized the origins of employers’ organizations like UNICE as well as their interactions with global governance structures like the EEC and EU and the ways these business organizations have tried to influence international agreements.Footnote 77 Others have examined the ways business groups like the BIAC have interacted with the OECD.Footnote 78 A growing body of scholarship has demonstrated how international business interest organizations defensively developed self-regulation in a variety of domains such as labor, human rights, and environment, to prevent governments from legislating.Footnote 79 As Rami Kaplan has written, concepts such as corporate social responsibility (CSR) can equally be interpreted as a strategy to mitigate social and political demands on business as a form of business regulation.Footnote 80 At the same time, corporate commitments to stakeholder capitalism have coopted and neutralized their critics within international and non-governmental organizations.Footnote 81 Even international cartels, as Marco Bertilorenzi suggests, were not limited to price collusion, but were important in securing production and employment in times of high uncertainty like the interwar period, therefore constituting an alternative to state planning.Footnote 82 While international business interest organizations functioned as important arenas for business to develop self-regulation, business historians have described the challenges of building consensus between a variety of sectoral and national business interests.Footnote 83 The solutions adopted by both private and state-led international organizations often reflected nothing more than the lowest common denominator.Footnote 84 Furthermore, that global philanthropic institutions and private foundations, such as those created by Andrew Carnegie, J.D. Rockefeller, George Soros, and Bill Gates, as well as multinational consulting firms, have increasingly filled the gap left by insufficient global governance in the fight against certain diseases and in fostering education, raises new questions about the accumulation of private wealth and connects with the historical literature on inequality.Footnote 85
As this literature review has highlighted, business historical scholarship has already contributed much to our collective understanding of how the nexus of capitalism and global governance has evolved. Surveying this scholarship has also revealed the many areas still in need of further analysis. This special issue and its collection of research articles and reflection pieces are part of the ongoing efforts to promote such research agenda and is an invitation for business historians to further engage with other relevant historical and disciplinary traditions.
Professor Ballor is a faculty fellow at the Institute for European Policymaking. In 2023-2024, she is also a research fellow at the Kolleg-Forschungsgruppe on Universalism and Particularism in Contemporary European History at Ludwig Maximilian University of Munich.
Dr. Pitteloud is a lecturer at the University of Geneva and from December 1, 2023, will be assistant professor at UniDistance Suisse. Her research investigates the political and institutional role of multinationals, their coordination efforts within business interest associations, and their ability to deal with political risks in historical perspective. She is author of Les multinationales suisses dans l’arène politique (1942-1993) (2022).