Between Crisis and Revival: Withdrawal Threats, State Exits, and Institutional Change of Regional International Organizations

Abstract

Since 1945, there have been more than 120 instances of states threatening to withdraw from international organizations with regional membership criteria (RIOs) and over 50 cases in which states in fact left RIOs. Recent examples include withdrawal threats by Qatar toward the Gulf Cooperation Council and Brazil toward MERCOSUR, as well as the actual exits of the United Kingdom from the European Union (EU) and of Burkina Faso, Mali, and Niger from the Economic Community of West African States. Withdrawal threats and exits represent shocks with potentially significant implications for RIOs and their integration projects. While existing research has focused on the future of EU integration after Brexit, this paper is the first to analyze the effects of threats to leave and the realization thereof on RIOs and regional integration from a broader comparative perspective. RIOs can respond to exit-related challenges through institutional change, which can take the form of institutional strengthening or weakening. Having conducted a series of explorative qualitative case studies, we find that while (1) the extent of problem pressure induced through exit-related challenges influences institutional change, (2) the materialization and directionality of these changes also depends on other factors, such as external windows of opportunity and the distribution of power and preferences within the RIO. Furthermore, (3) institutional change often takes the form of institutional strengthening, indicating the general resilience of international organizations in the context of exit-related challenges.