Despite sweeping language regarding “threats to peace, breaches of the peace, and acts of aggression”, the role of the United Nations in the enforcement of international law is quite limited. Indeed the purpose of the UN is not to enforce international law, but to preserve, restore and ensure political peace and security. The role of the Security Council is to enforce that part of international law that is either created or encompassed by the Charter of the United Nations. When aggression occurs, the members of the Council may decide politically – but are not obliged legally – to undertake collective action that will have sanctioning result. In instances of threats to or breaches of the peace short of war, they may decide politically to take anticipatory action short of force. Moreover, it is for the members of the Security Council to determine when a threat to peace, a breach of peace, or an act of aggression has occurred. Even the determination is made on political rather than legal criteria. The Security Council may have a legal basis for acting, but self- interest determines how each of its member’s votes, irrespective of how close to aggression the incident at issue may be.
Hence by virtue of both its constitutional limitations and the exercise of sovereign prerogatives by its members, the Security Council’s role as a sanctioning device in international law is sharply restricted.
As the subject matter of the law becomes more politicized, states are less willing to enter into formal regulation, or do so only with loopholes for escape from apparent constrains. In this area, called the law of community, governments are generally less willing to sacrifice their sovereign liberties. In a revolutionary international system were change is rapid and direction unclear, the integrity of the law of community is weak, and compliance of its often flaccid norms is correspondingly uncertain.
The law of the political framework resides above these other two levels and consists of the legal norms governing the ultimate power relations of states. This is the most politicized level of international relations; hence pertinent law is extremely primitive. Those legal norms that do exist suffer from all the political machinations of the states who made them. States have taken care to see that their behaviour is only minimally constrained; the few legal norms they have created always provide avenues of escape such as the big-power veto in the UN Security Council.
Despite the many failures and restrictions of international law, material interdependence, especially among the states of equivalent power, may foster the growth of positive legal principles. In addition, as friendship and enmities change, some bilateral law may cease to be observed among new enmities, but new law may arise among new friends who have new found mutual interests. In the meantime, some multicultural law may have been developed. Finally, research suggests the social effects of industrialization are universal and that they result in intersocial tolerances that did not exist during periods of disparate economic capability. On social, political and economic grounds, therefore, international law is intrinsic to the transformation and modernization of the international system, even though the “law of the political context” has remained so far.