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Copyright by Laura Elizabeth Seay 2009 Copyright by Laura Elizabeth Seay 2009 The Dissertation Committee for Laura Elizabeth Seay certifies that this is the approved version of the following dissertation: Authority at Twilight: Civil Society, Social Services, and the State in the Eastern Democratic Republic of Congo Committee: Catherine Boone, Supervisor Henry Dietz Pierre Englebert George Gavrilis John Higley Authority at Twilight: Civil Society, Social Services, and the State in the Eastern Democratic Republic of Congo by Laura Elizabeth Seay, B.A.; M.A. Dissertation Presented to the Faculty of the Graduate School of The University of Texas at Austin in Partial Fulfillment of the Requirements for the Degree of Doctor of Philosophy The University of Texas at Austin May 2009 Dedication In memory of Alison Des Forges, who knew that good scholarship should improve the lives of others, and in honor of the people of the Eastern D.R. Congo, with the hope that peace, development, and a bright future will come quickly. “Kutokana na ukamilifu wake, sisi tumepokea neema mfululizo…” Acknowledgements Colleagues and friends at the University of Texas, Yale, Baylor, and in the scholarly community at large improved this study immeasurably with their timely comments, questions, and suggestions. Thanks especially to William Foltz, Séverine Autesserre, Matthew Cohen, Odysseas Christou, Julie George, Stephen Jackson, Zachariah Mampilly, Ayesha Ray, and Jason Stearns. My committee members’ dedication and advice made this project far better than it otherwise would have been. John Higley, Henry Dietz, and George Gavrilis provided timely critiques and sharp editorial eyes. Pierre Englebert’s knowledge of the Congo and encouraging comments were invaluable. I owe a particular debt of gratitude to my supervisor, Catherine Boone. Her conviction that the study of African politics is valuable for yielding new insights in the field and that complexity is not an excuse for bad theory is inspiring. It would be impossible to thank everyone in the D.R. Congo who contributed to this study. Thank-you to Camille and Esther Ntoto, Dr. Jo and Lyn Lusi, Joseph Ciza, Delphine Itongwa, Papa René, Nicole Nguz, the staff of the Pole Institute, and all those who agreed to be interviewed for this project. I am especially grateful to Joshua Marks for his timely negotiations at the Ruzizi border crossing in 2005 and to Aaron Hale for our shared adventures in Goma (earthquakes, angry mobs, and all). Blake Perryman was an excellent research assistant at the Library of Congress in 2006. Finally, words cannot adequately express the thanks I owe to friends and family whose encouragement, prayers, and love carried me through this process. Thank-you, v Ryan Bannon, Allison Delaney, Angela Ferguson, Chrissy Huth, the McCullars, the Norris family, Skye Perryman, Rob Schickler, Betsy Vardaman, the Youngs, and other dear friends who were there through it all. My sister’s love of Africa’s languages and her commitment to serving those in need inspires beyond what she realizes. Our parents have no idea what they did to instill in their daughters a fascination with faraway places, but they are a constant source of encouragement and unconditional love, even when our adventures cause them worry. I love them more than words can express. vi Authority at Twilight: Civil Society, Social Services, and the State in the Eastern Democratic Republic of Congo Publication No._____________ Laura Elizabeth Seay, Ph.D. The University of Texas at Austin, 2009 Supervisor: Catherine Boone Abstract: This dissertation examines the role of civil society actors in the social service sectors of two cities in the eastern Democratic Republic of Congo. Although existing scholarship addresses the nature of state-society relations in collapsed states, less is known about how local institutions act to maintain “state” structures even when the state is absent. My project contributes to this literature by explaining why, in a failed state, some civil society organizations (CSO’s) are more successful at providing social services than others. I hypothesize that variations in internal organizational cohesion account for these differences. Using an historical institutional approach, I examine the history, level of engagement with the state, ethnic composition, and level of international support of various CSO’s in the eastern D.R. Congo as indicators of a CSO’s level of organizational cohesion. I then compare fifteen structural indicators to determine each CSO’s level of success in organizing social services, and conclude that CSO’s with higher levels of internal organizational cohesion are more likely to successfully organize health and vii education structures in situations of state collapse. In addition, the portion of the study that addresses ethnic fragmentation in CSO’s suggests that certain institutional arrangements can help local groups to overcome the well-documented barriers to inter- ethnic cooperation in public goods provision. viii Table of Contents List of Tables........................................................................................................xiv List of Figures ......................................................................................................xvi Introduction ............................................................................................................. 1 Research Methods & Case Selection ............................................................. 4 Terminology................................................................................................... 7 Conclusion.................................................................................................... 11 Chapter One: Civil Society & Social Services in a Collapsed State.................... 13 Introduction .................................................................................................. 13 The Problem ................................................................................................. 15 A Theory of Internal Organizational Cohesion............................................ 17 The Case of the D. R. Congo ....................................................................... 21 Internal Organizational Cohesion in the D.R. Congo .................................. 25 Catholic Organizations........................................................................ 27 Protestant Organizations ..................................................................... 32 Other Civil Society Organizations ...................................................... 34 Successful Service Organization & Internal Cohesion in the Congo........... 36 Alternative Explanations.............................................................................. 39 Situating the Research.................................................................................. 41 Civil Society and Social Service Delivery.......................................... 41 Non-State-Based Forms of Order................................................................. 45 Ethnicity and Public Goods Provision ................................................ 48 Summary ...................................................................................................... 51 Chapter Two: State Collapse & Social Service Systems in the D.R. Congo ........ 53 Introduction .................................................................................................. 53 History of the Congolese State..................................................................... 54 Social Services in a Collapsed State ............................................................ 59 ix State Collapse in Bukavu ............................................................................. 60 Education in Bukavu Today................................................................ 62 Health Care in Bukavu ........................................................................ 65 Ibanda Health Zone ............................................................................. 67 Kadutu Health Zone ............................................................................ 69 Bagira Health Zone ............................................................................. 76 International Non-Governmental Organizations................................. 79 State Collapse in Goma................................................................................ 80 Education in Goma.............................................................................. 83 Health Care in Goma........................................................................... 84 Karisimbi Health Zone........................................................................ 88 Goma Health Zone .............................................................................. 90 Ethnicity in the Kivus................................................................................... 94 Conclusion.................................................................................................... 99 Chapter Three: Social Services, Civil Society, & the Catholic Church in the Kivus .................................................................................................................... 101 Introduction ................................................................................................ 101 Early Missionary Activity in Congo & the Kivu ....................................... 103 The Catholic Church in National Politics .................................................. 106 Catholics
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