Thinking Outside the Bloc: Explaining the Foreign Policies of Small States

What explains change and continuity in the foreign policy behavior of small states? Given the proliferation of small states over the past century, this topic has received relatively little systematic attention. When researchers do focus on small states, the emphasis has been on external and international factors, and the primary conclusion has been that small states are more likely to bandwagon with threatening great powers than to balance against them. In this article, we suggest that state- and individual-level variables can play a greater role in explaining the foreign policy behavior of small states and that small states sometimes choose to balance rather than bandwagon, especially when elite ideology is deeply embedded in formulating foreign policy. We develop this claim in terms of elite ideas about the identity and purpose of the state and examine its plausibility using primary sources and exclusive interviews with the security and foreign policy elite in Georgia. We find that this approach offers a more plausible explanation for Georgia's otherwise puzzling foreign policy behavior than frameworks that focus on the international or regional system. Although Georgia may be the exception that proves the rule, it can advance an understanding of the conditions under which standard explanations of small-state foreign policy behavior may miss their predictive mark and when incorporating the role of elite ideas can provide additional explanatory leverage.