Abstract
Multilateral governance is an important aspect of Singapore's foreign policy since the nation’s independence in 1965. However, the optimism of multilateral governance to bring about prosperity for all is now receding under the shadows of a renewed geopolitical competition between the U.S. and China. Essentially, how can small states strengthen or perhaps revitalise multilateral governance which they are highly dependent on for survival and development? This is the central question that Singapore and Multilateral Governance. Securing our Future address as it provides a lucid account of Singapore's contribution to multilateral governance as well as how the nation can do more to revitalise multilateral governance in an increasingly unpredictable environment. This book is an edited compilation of Dr Noeleen Heyzer's lecture at the Institute of Policy Studies (IPS) as a S. R. Nathan fellow. It is a worthy read for those interested in understanding the dynamics of multilateral governance from a policymaking perspective.
Heyzer, who is the former United Nations (UN) under-secretary general (2007–2015), provides an engaging introduction that unpacks the origins and evolution of multilateral governance after the end of the Second World War. Noeleen Heyzer cautions against a simplistic linear depiction on the success and continuity of multilateral governance. Granted that the UN's multilateral governance efforts have brought about positive social changes, but there remain numerous parts of the globe that have yet to experience such enlightenment. Moreover, she stresses that multilateral governance is in decline as it struggles to deal effectively with numerous non-traditional security challenges such as climate change and gender inequality (19).
Another positive feature of Noeleen Heyzer's account stems from its elaboration on how Singapore's vulnerability as a thriving small state in an anarchic environment has not only compelled the nation towards strengthening multilateral cooperation but also harnessing the collective strength of institutions such as the Forum of Small States (FOSS) and the Global Governance Group (3G) to ensure its interests would be taken seriously on the international stage. These spotlights the strategic nuances embedded within Singapore's foreign policy in maximising its leverage to secure core interests.
The second part of the book explores how challenges such as the widening digital development gaps have undermined the multilateral rules based order. What makes Heyzer's discussion of the weakening of multilateral governance particularly refreshing is her emphasis of how the unequal distribution of benefits generated by the existing multilateral arrangements have caused widespread insecurity which in turn triggers an erosion of confidence on the multilateral governance system (45). This is timely and much needed as the mainstream literature is excessively focused on how major power competition has undermined multilateral governance with relatively fewer attention on the importance of distributive justice in fostering a sustainable framework of multilateral governance.
What is more is that Noeleen advances a noteworthy appraisal on what an ideal framework of multilateral governance should entail. According to her, multilateral governance should not be perceived as solely strengthening state-to-state cooperation and partnerships (46). Instead, she argues that an effective framework of multilateral governance should also include constructive involvement of non-state actors such as non-governmental organisations (NGO) and corporate businesses to collectively tackle pressing issues. She also calls for greater opportunities for women to participate as ‘game changers’ in global governance (46). Heyzer shows how initiatives such as the Singapore Green Plan 2030, dialogues on gender equality as well as Singapore's vaccine diplomacy exemplify the nation's commitment towards fostering inclusive multilateral governance both at home and abroad. She deserves credit for advancing a nuanced conception of multilateral governance that is useful as a policymaking and analytical tool for practitioners and scholars in engaging the theory and practice of multilateral governance.
Interestingly, there are numerous instances where Heyzer seems more of a pragmatic policymaker than a social scientist or a staunch advocator of UN norms and practices. She devotes the last section of her book to addressing how Singapore could take concrete steps in exerting its agency on the global stage to become a champion for multilateral governance in order to secure its future (81). Undoubtedly, the strategies that she proposes which entail capitalising on Singapore's competitive advantage as a global hub for finance, public health, and cybersecurity to strengthen as well as multiply the multilateral practices are strategically nuanced and resourceful for how a small state could contribute towards building an inclusive and sustainable future (86).
In general, this book inspires a healthy sense of urgency towards stakeholders to work together in securing a sustainable global order, one that is based on a renewed social contract for the commitment towards multilateralism, a democratic governance of the global commons and public goods as well as the maintenance of inclusive multilateral as the main organising principles of international relations. As Heyzer contends that multilateralism is now at a critical juncture, it lies in the responsibility of nation-states (i.e., Singapore) to adopt proactive efforts in strengthening the existing structures and normative underpinnings of multilateral governance (88).
Despite the theoretical and empirical merits, Singapore and Multilateral Governance. Securing our Future does not give much attention to the elephant in the room which is the intensifying geopolitical rivalries that is by far the most potent impediment towards realising a sustainable multilateral rules-based order. The book focuses on how non-traditional security issues such as climate change, the COVID-19 pandemic, digital and gender inequality have eroded the multilateral governance framework. It would also be interesting if the book could examine potential avenues for which Singapore may play constructive bridging roles to encourage major powers to strengthen the existing working norms, rules, and practices of multilateral governance.
However, these are relatively minor issues. Singapore and Multilateral Governance. Securing our Future is an interesting book highly recommended for those keen in understanding the principles and strategies of Singapore's foreign policy. Readers from all backgrounds will surely learn a great deal about how Singapore navigates in an increasingly fragmenting world.
