A Turn to Legal Pluralism in Rule of Law Promotion?
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This article from Erasmus Law Review is published by Eleven international publishing and made available to anonieme bezoeker A Turn to Legal Pluralism in Rule of Law Promotion? Ronald Janse* most popular explanations of this failure in recent years Abstract is that rule of law promotion has wrongly focused almost exclusively on strengthening state legal systems. Over the past 25 years, international organizations, NGOs By devoting attention to such activities as drafting and and (mostly Western) states have spent considerable energy enacting laws, training and equipping legal professio- and resources on strengthening and reforming legal systems nals, making courts more efficient in handling cases, and in developing countries. The results of these efforts have coordinating the activities of courts and other legal insti- generally been disappointing, despite occasional successes. tutions such as prosecutorial offices and prison services, Among donors, one of most popular explanations of this donors have sadly ignored the fact that the state legal failure in recent years is that rule of law promotion has system is largely irrelevant to the lives of most people in wrongly focused almost exclusively on strengthening the developing countries. Donors now routinely point out formal legal system. Donors have therefore decided to 'en- that ‘at least 80 or 90 per cent’ of disputes in developing gage' with informal justice systems. The turn to legal countries are resolved by non-state justice systems,1i.e. pluralism is to be welcomed for various reasons. But it is also governance and justice mechanisms that operate outside surprising and worrisome. It is surprising because legal plu- the framework of the state or in the fringes between ralism in developing countries was a fact of life before rule state and society.2 These systems, donors now argue, are of law promotion began. What made donors pursuing legal both more legitimate (application of local norms by local reform blind to this reality for so long? It is worrisome people) and more accessible (physical, monetary and because it is not self-evident that the factors which have opportunity costs, familiarity with language and proce- contributed to such cognitive blindness have disappeared 3 dure) for people than the state legal system. Moreover, 181 overnight. Are donors really ready to refocus their efforts on non-state justice systems regulate issues of deep concern legal pluralism and 'engage' with informal justice systems? to people, such as protection of land, property and live- This paper, which is based on a review of the literature on stock, and personal security and local crime. Therefore, donor engamenet with legal pluralism in so-called conflict donors have decided to ‘engage’ with non-state justice affected and fragile states, is about these questions. It systems. argues that 7 factors have been responsible for donor blind- The turn to legal pluralism, loosely defined here as a ness regarding legal pluralism. It questions whether these context within which multiple legal forms coexist, has factors have been addressed. not yet had an overwhelming impact on rule of law pro- motion, which continues by and large to focus on state Keywords: legal pluralism, rule of law promotion, legal legal systems. But there is no doubt that donors have reform, customary law, non-state legal systems, donor poli- started to take non-state justice systems seriously. cy Prominent organisations have encouraged groups of 1. The distinction between non-state justice systems and state legal sys- 1 Introduction tems will be used throughout this article, but it is not a fortunate dis- tinction. Firstly, non-state justice systems can consist of highly formal- Over the past 25 years, international organisations, non- ised rules and procedures. Secondly, most justice systems are hybrids of state and non-state systems. Still, the distinction seems more appropri- governmental organisations (NGOs) and (mostly West- ate than the pair formal–informal. Another often-used distinction is ern) states have spent considerable energy and resources between state and customary systems. For discussion of appropriate on strengthening and reforming legal systems in devel- terminology (non-state, informal, customary, community-based), see P. oping countries. The results of these efforts, as critics Albrecht, H.M. Kyed, D. Isser and E. Harper (eds.), Perspectives on Involving Non-State and Customary Actors in Justice and Security and donors agree, have generally been disappointing, Reform (2011). despite occasional successes. Among donors, one of the 2. J. Faundez, ‘Legal Pluralism and International Development Agencies; State Building or Legal Reform?’, 3 Hague Journal on the Rule of Law, 18-38, at 19 (2011). * Ronald Janse is Associate Professor of Law, University of Amsterdam, 3. This claim about the disadvantages of formal versus non-state justice The Netherlands. I benefitted from perceptive and useful comments by systems is very often repeated in donor policy documents, but seriously two anonymous reviewers and by various researchers, in particular distorts reality in some (or many?) cases. See for instance R.C. Crook, Adriaan Bedner, Bruno Braak and Jan Michiel Otto, during a presenta- 'State Courts and the Regulation of Land Disputes in Ghana: The Liti- tion of the paper at the Van Vollenhoven Institute for Law, Governance gants Perspective' (IDS working paper 241, Institute of Commonwealth and Development, Leiden University. Studies, Sussex, 2005), 1-21. Ronald Janse ELR December 2013 | No. 3/4 This article from Erasmus Law Review is published by Eleven international publishing and made available to anonieme bezoeker practitioners to develop programs that engage with non- series of explanations of why donors did not see the state justice systems. These include the World Bank and importance of legal pluralism before. It subsequently its Justice for the Poor Program, the United States looks at whether the factors that led to cognitive blind- Institute for Peace, the Open Society Justice Initiative, ness have been addressed. the International Development Law Organization and the United Nations Development Program. Moreover, donors have co-sponsored and participated in various 2 The Discovery of Legal international conferences that brought together practi- tioners and academics from various relevant disciplines. Pluralism Some of these have resulted in publications with the 4 state of the art. As a result, programming experience, Rule of law promotion has a long history, albeit under know-how and knowledge based on empirical research different names.7 Its renaissance since the late 1980s, and theoretical analysis are accumulating and spreading. however, is unprecedented in various respects. Fifteen Moreover, there is growing consensus among practi- years ago, Thomas Carothers opened a widely read arti- tioners on the broad contours of frameworks for engage- cle in Foreign Affairs on the ‘Rule of Law Revival’ with ment with non-state justice systems. In short, leading the observation that ‘one cannot get through a foreign donors are aware of the many challenges of engaging policy debate these days without someone proposing the with non-state justice systems, but also have some clues rule of law as a solution to the world's troubles’.8 This on how to proceed further and expand their activities in observation is even more true today than it was back the area of non-state justice systems. They seem better then: the rule of law is promoted around the world for prepared to engage with non-state justice systems than many reasons, including the wars on drugs and terror- they were more than two decades ago when they started ism, counter-insurgency, poverty alleviation, economic rule of law promotion targeted at formal justice systems. development, comprehensive development, European The recent burst of intellectual and practical activity integration, post-conflict state-building and the protec- regarding legal pluralism has undoubtedly revitalised tion of intellectual property rights. As this list, which is the field of rule of law promotion. Yet the turn to legal not exhaustive, indicates, rule of law is being promoted pluralism is also surprising and worrisome. It is surpris- by an ever-expanding number of organisations (states, ing because legal pluralism in developing countries was international organisations, NGOs, multinational corpo- a fact of life before rule of law promotion began and rations, consultancy firms, think tanks, universities, law because this fact was well known in the West and else- 182 firms) from many different walks of life, including where. What made donors pursuing legal reform blind development aid, justice and law enforcement, business, 5 to this reality for so long? It is worrisome because it is defence and diplomacy. Also, the amount of resources not self-evident that the factors that have contributed to spent on rule of law promotion has risen significantly such cognitive blindness have disappeared overnight. and averages around 2.7 billion USD per year, accord- Are donors really ready to refocus their efforts on legal ing to a recent report by the International Development pluralism and ‘engage’ with non-state justice systems? Law Organization.9 In short, rule of law promotion has This article, which is based on a review of the literature recently been pursued by ever more actors for ever more on rule of law promotion in so-called conflict-affected and fragile states, is about these questions.6 It starts with some remarks on when and why rule or law promotion turned its attention to legal pluralism. It then offers a 4. B.Z. Tamanaha, C. Sage and M. Woolcock, Legal Pluralism and Devel- opment (2012); H.M. Keyd (ed.), ‘Special Issue on Legal Pluralism and 7. A detailed history of rule of law promotion has not been written. The International Development Interventions’, 63 Journal of Legal Pluralism usual story traces current rule of law promotion to the law and develop- (2011); D.H. Isser (ed.), Customary Justice and the Rule of Law in War- ment movement, but Twining has correctly pointed out that this Torn Societies (2011); J.