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The third category of agents that merit extended consideration are NGOs with an interest in the international social agenda. Historically, this form of agency was visible but subordinated to the state-centric structure. Openings in that structure had appeared at the international level in the immediate post-war period, especially with the San Francisco conference of 1945 that led to the establishment of the UN. The US delegation in San Francisco was accompanied by over 40 NGOs (Consultation between The United Nations and Non-Governmental Organizations, 1949) and 1,200 NGOs attended the conference (Willetts, 1982: 11).

His call for the summit echoed Strong’s urgency during the Stockholm and Rio process: ‘‘The potential advance is so important for future prosperity and peace in the world as to merit a special meeting of political leaders to consider how the major opportunities for protecting children might be seized over the next decade’’ (quoted in David Crane, ‘‘Canada’s help urged to organise summit on world’s children’’, Toronto Star, 9 January 1989). Most of the diplomatic activity of individual leaders at the UN conferences, nevertheless, was carried out in more routine fashion.

Certainly the United States did not evolve into an instinctive multilateralist. Its attitude to cooperative solutions – especially those directed through the UN – remained ambivalent at best. Obsessed by interstate competitiveness, the United States (and to a lesser extent Japan and the major EU countries) found it difficult to adjust either to an issue-specific or to a sustained cooperative mode of behaviour. As Martin Shaw notes: ‘‘The relationship of the West to the global layer exacerbates the problem of Western power’’ (Shaw, 2000: 255).

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