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Making states work A Project of the International Peace Academy and the United Nations University Making states work: State failure and the crisis of governance Edited by Simon Chesterman, Michael Ignatieff and Ramesh Thakur United Nations a University Press TOKYO u NEW YORK u PARIS 6 United Nations University, 2005 The views expressed in this publication are those of the authors and do not necessarily reflect the views of the United Nations University. United Nations University Press United Nations University, 53-70, Jingumae 5-chome, Shibuya-ku, Tokyo, 150-8925, Japan Tel: þ81-3-3499-2811 Fax: þ81-3-3406-7345 E-mail: [email protected] General enquiries: [email protected] http://www.unu.edu United Nations University Office in North America 2 United Nations Plaza, Room DC2-2062, New York, NY 10017, USA Tel: þ1-212-963-6387 Fax: þ1-212-371-9454 E-mail: [email protected] United Nations University Press is the publishing division of the United Nations University. Cover design by Sese-Paul Design Cover photograph6 Getty Images/AFLO FOTO AGENCY Printed in the United States of America UNUP-1107 ISBN 92-808-1107-X Library of Congress Cataloging-in-Publication Data Making states work : state failure and the crisis of governance / edited by Simon Chesterman, Michael Ignatieff, and Ramesh Thakur. p. cm. Includes bibliographical references and index. ISBN 928081107X (pbk.) 1. Political stability. 2. Legitimacy of governments. 3. Social contract. I. Chesterman, Simon. II. Ignatieff, Michael. III. Thakur, Ramesh Chandra, 1948– JC330.2.M355 2004 320 0.0101—dc22 2004025266 Contents Listsoffiguresandtables............................................ viii Listofcontributors................................................... ix Foreword.............................................................. xv David M. Malone Acknowledgements. ................................................ xvii Introduction: Making states work . ............................... 1 Simon Chesterman, Michael Ignatieff and Ramesh Thakur Part I: Issues .......................................................... 11 1 Policy responses to state failure. ............................... 13 Sebastian von Einsiedel 2 Thelegacyofcolonialism ........................................ 36 James Mayall 3 Humanrights,powerandthestate.............................. 59 Michael Ignatieff v vi CONTENTS Part II: Regions....................................................... 77 4 The Great Lakes and South Central Asia. ................. 79 Andrea Armstrong and Barnett R. Rubin 5 ColombiaandtheAndeancrisis................................. 102 Mo´nica Serrano and Paul Kenny 6 The South Pacific . ................................................ 122 Benjamin Reilly and Elsina Wainwright Part III: Margins...................................................... 143 7 RevivingstatelegitimacyinPakistan............................ 145 Samina Ahmed 8 Disintegration and reconstitution in the Democratic People’s Republic of Korea ................................................ 167 Hazel Smith 9 Afghanistan’sweakstateandstrongsociety.................... 193 Amin Saikal Part IV: Successes .................................................... 211 10 SuccessinMozambique?......................................... 213 Michel Cahen 11 State-building, national leadership and ‘‘relative success’’ in CostaRica......................................................... 234 Abelardo Morales-Gamboa and Stephen Baranyi 12 From vulnerability to success: The British withdrawal from Singapore.......................................................... 252 Patricia Shu Ming Tan and Simon S. C. Tay Part V: Choices ....................................................... 271 13 Earlyand‘‘earlylate’’prevention............................... 273 I. William Zartman 14 Makinghumanitarianismwork................................... 296 Thomas G. Weiss and Peter J. Hoffman CONTENTS vii 15 Transitionaljustice................................................ 318 Alex Boraine 16 Transitional administration, state-building and the United Nations............................................................ 339 Simon Chesterman 17 Conclusion:Thefutureofstate-building........................ 359 Simon Chesterman, Michael Ignatieff and Ramesh Thakur Index.................................................................. 388 Figures and tables Figures Figure4.1 MapoftheGreatLakesregionofAfrica ............. 87 Figure 4.2 Map of South Central Asia. ........................ 88 Figure 6.1 Map of Papua New Guinea and the Solomon Islands................................................... 124 Tables Table 11.1 Household poverty in Costa Rica, 1990–2000 . 244 Table 14.1 Types and examples of non-state actors. .......... 298 Table14.2 Strategiesforengagingnon-stateactors............... 308 viii Contributors Samina Ahmed is Project Director for joining the ICTJ, she researched South Asia at the International regional conflict dynamics in Central Crisis Group. Educated in Pakistan Africa and Central Asia at the and Australia, she worked Center on International Cooperation previously as a research fellow at at New York University. Ms the Belfer Center for Science and Armstrong has also conducted International Affairs at the John F. research on conflict prevention for Kennedy School of Government, the United Nations, the protection Harvard University, the Institute of refugees for the International of Regional Studies, Islamabad, Rescue Committee, and the denial and the Pakistan Institute of of citizenship for the Commission on International Affairs, Karachi. Her Human Security. Ms Armstrong publications include ‘‘The Fragile holds a master’s degree in Public Base of Democracy in Pakistan’’ in Affairs from the Woodrow Wilson A. Shastri and A. J. Wilson, The School at Princeton University. Post-Colonial States of South Asia: Stephen Baranyi is the Principal Democracy, Identity, Development Researcher on Conflict Prevention and Security (Curzon, Surrey, 2001) at the North-South Institute (NSI). and contributions to the journal AtNSIheisleadingamulti- International Security . country study on the challenges of Andrea Armstrong is a Research long-term postwar peace-building Associate at the International and developing new research Center for Transitional Justice on land policies and conflict (ICTJ), focusing on the design of prevention. He has also worked with reparations programmes. Prior to or advised Canada’s International ix x CONTRIBUTORS Development Research Centre, Gulbenkian, 2002). He is the Department of Foreign Affairs and founder of Lusotopie,aFrench- International Trade, and the based trilingual (French, English Canadian International Develop- and Portuguese) journal devoted to ment Agency, as well as NGO the political analysis of Portuguese- networks in Canada, Europe and speaking spaces and communities. Latin America. Dr Baranyi has Simon Chesterman is Executive published widely on the role of Director of the Institute for multilateral organizations, civil International Law and Justice at society and Canada in various peace New York University School of processes. Law. Educated in Melbourne, Beijing, Amsterdam and Oxford, he Alex Boraine founded the Inter- has written widely on international national Center for Transitional institutions, international criminal Justice and served as president for law, human rights, the use of force three years before becoming and post-conflict reconstruction. Dr chairperson of the Center’s board. Chesterman is the author of You, HehastaughtatNewYork The People: The United Nations, University since 1998 and is Transitional Administration, and currently a Senior Research Fellow State-Building (Oxford University at its Global Law School. Dr Boraine Press, 2004) and Just War or Just is a long-time advocate of social Peace? Humanitarian Intervention justice, both in his native South and International Law (Oxford Africa – where he worked to end University Press, 2001). He is the apartheid and address its legacy – editor of Civilians in War (Lynne and around the world. In 1995, he Rienner, 2001). was appointed deputy chairperson by President Nelson Mandela Sebastian von Einsiedel is a of the South Africa Truth and Researcher with the UN Secretary- Reconciliation Commission, serving General’s High-Level Panel on under chairman Archbishop Threats, Challenges, and Change. Desmond Tutu. Dr Boraine is the From 2002 to 2004 he served as author of A Country Unmasked Senior Program Officer at the (Oxford University Press, 2001). International Peace Academy, working on its State-Building Michel Cahen,