Executive summary

Transnational crises have become a recurring feature of global governance, placing immense pressure on international institutions. Resilience in this context does not depend on a single organisation but on the collective ability of interconnected governance arrangements to absorb shocks, adapt, and innovate. The report introduces the concept of hybrid institutional complexes (HICs) to describe the necessary balance of robust and flexible institutions. Key recommendations include prioritising resilience, fostering institutional diversity, and strengthening connections across diverse institutions before crises occur. Cultivating leaders and “bricoleurs” who can recombine institutional resources is essential for innovative crisis responses.

Challenge

Transnational crises such as the 2007-2009 Global Financial Crisis and the COVID-19 pandemic are no longer exceptional disruptions but persistent conditions of international cooperation. These crises are characterised by threat, urgency, and uncertainty, which place exceptional pressure on decision-makers. Such conditions often undermine collective action, as governments tend to prioritise immediate national interests over collective solutions. These challenges are exacerbated by shifting global power dynamics and the rise of authoritarian populism, which weaken the domestic political foundations of existing governance arrangements.

Approach

Resilience is defined as the ability of a system to continue performing its core functions while experiencing shocks. For global governance, this requires the capacity to adapt and innovate in response to new realities. Modern governance operates through webs of diverse actors, moving beyond formal intergovernmental organisations (FIGOs) to include informal bodies, transgovernmental networks, and public-private partnerships. These combinations form hybrid institutional complexes (HICs) that can provide sources of resilience if their varied capacities are effectively mobilised.

Understanding resilient governance

Resilient governance arrangements must exhibit three crucial capacities. First is absorptive capacity, which allows institutions to maintain core functions and secure compliance even when incentives for states to defect increase. Second is adaptive capacity, involving “innovation by bricolage”—the recombination of existing institutional resources to create novel responses without building institutions from scratch. Third is preparedness, where actors learn from crises to modify institutions and introduce anticipatory measures to reduce future vulnerability.

Enhancing the resilience of global governance

Resilience depends on a balanced mix of robust and flexible institutions. Robust institutions, typically FIGOs, rely on legally binding commitments and demanding decision-making procedures to sustain stable cooperation. While they provide strong absorptive capacity, they often struggle to adapt quickly. Conversely, flexible institutions such as transgovernmental networks rely on non-binding agreements and informal procedures, enabling rapid adjustment and experimentation. Resilience requires institutional density and strong connections between these diverse types. Additionally, “intellectual leaders” and “entrepreneurial leaders” are necessary to mobilise these resources under pressure.

Global governance resilience in practice

The Global Financial Crisis (2007-2009) demonstrated strong resilience due to a balanced HIC. The WTO enforced trade rules, the IMF provided liquidity, and the G20 Leaders Forum coordinated national policies. Strong connections between state-based institutions led to an effective division of labour. In contrast, the COVID-19 pandemic (December 2019) showed mixed results. While non-state and hybrid organisations like GAVI and the Bill & Melinda Gates Foundation jumpstarted innovation through the ACT-A and COVAX initiatives, they lacked the absorptive capacity to overcome “vaccine nationalism”. The global health HIC’s adaptive capacity was impressive, but it could not prevent major states from hoarding vaccines.

Applying resilience insights

Resilient global governance requires both diverse institutions and actors capable of mobilising that diversity. Strengthening resilience involves preserving existing institutions while building capacities for adaptation. Governance actors, including FIGO staff, national governments, and private foundations, should foster diverse institutional landscapes and build strong relationships across different organisations. It is vital to cultivate individuals capable of innovating during crises and to establish systems for translating crisis experiences into preventive measures and institutional reforms.