International relations scholars now recognize the important, if limited, influence of nongovernmental organizations (NGOs) and transnational advocacy networks (TANs) in global governance. Yet even as we have expanded our vision of “global governors” (defined in this volume as “authorities who exercise power across borders for purposes of affecting policy”) and potential governors who seek such authority, we have done so with a kind of tunnel vision. Most of the literature analyzes only groups promoting human rights, the environment, women's rights, sustainable development, and global justice. Yet as the activists involved with these organizations well know, they do not act unopposed, and states are not their only foes. Rather, on a host of international issues, NGOs and TANs with conflicting values, ideologies, and policy ideas contend against one another.

Recognizing the contentious nature of transnational politics places key governance activities in a new light. The argument here is that in any issue area in which there is serious political conflict, it is not enough for analysts simply to examine those groups promoting new policies. There is often a temptation to do so because, superficially, at least, these actors appear to be moving debate forward. On the other hand, if analysts take a broader view, they will typically find that such “change agents” do not act alone. Often opponents will mobilize too and dog policy proponents at every stage of the process. In these dynamic situations, “policymaking” is in some ways a misnomer.