Despite the recent prominence of intelligence in post-Ukraine global policy, it is a Cinderella in international relations studies. Using English School (ES) theorisation, we locate intelligence within the constellation of primary and secondary institutions in international society. Through looking at the Five Eyes, we explore where intelligence sits within widespread claims of a crisis of the post-1945 liberal international order (LIO) and what role intelligence plays in diplomacy, war and great power management in the context of shifting global power dynamics. Following major twenty-first century Western intelligence controversies, we argue against raison d'état approaches and for raison de système thinking. In the face of claims of a new Cold War between Russia, China and the West, we see an urgency for policymakers in open societies to re-think intelligence from an international society perspective that is realistic and normative, and that pays attention to Global South dynamics. Insulating intelligence from politicisation is more important than ever but does not mean that intelligence is a value-neutral government function.
Policy Implications
- Five Eyes intelligence cooperation should be reoriented to take greater account of challenges to the Liberal International Order coming from major Global South democracies' disenchantment and disengagement with LIO principles, institutions and visions for future international order.
- Both better informing Five Eye states' governments on Global South democracies' politics and pursuing opportunities for enhanced intelligence cooperation with Global South democracies can help build democracies' support for the Liberal International Order so more states see it pays to make the system work for themselves and others.
- Recent steps towards greater intelligence openness by Five Eyes states in the context of Russia's invasion of Ukraine should be extended where possible to help rebut disinformation, create opportunities for engagement with intelligence agencies and better connect Five Eyes to the normative vision of an open and rules-based international society that offers benefits for a wide range of open societies.
- Whilst ‘peer competitor’ challenges from China and Russia's invasion of Ukraine represent clear security challenges for Five Eyes states, necessitating ongoing cooperation, national security strategies and policies that narrow intelligence functions within raison d'état risk driving a self-fulfilling logic of mutual hostility. Intelligence and cooperation through Five Eyes must also support diplomatic functions at least as much as military ones to do the hard work of building consensus, creating shared interests and visions and embedding open society principles as widely as possible.
Photo by Faisal Rahman