Understanding complicity: memory,hope and the imagination

ABSTRACT

This paper addresses the thorny issue of complicity with wrongdoing under conditions of systemic political violence, such as authoritarianism, totalitarianism or military occupation. The challenge of dealing with collaborators – those who colluded with the apparatus of repression or who benefitted from its existence – is central to subsequent processes of justice and memory-making. This paper proposes several arguments. Firstly, it claims we need to think about complicity and resistance not dichotomically, but as a continuum of locations individuals can occupy. Secondly, these locations are influenced by the agents’ positionality within the social world, each agent being situated at the intersection of several axes of distinction: class, gender, racialisation, and religion, among others. Thirdly, to understand complicity we also need to draw a connection between individual’s experience of time and their actions: temporality is experienced from within a social position, through the interplay between memory, imagination and hope. Positionality thus affects one’s memories and self-understanding, the scope of one’s imagination, as well as the type and intensity of one’s hopes. Therefore, individuals’ capacity to build on the past to imagine a future, to invest emotionally in the future and act accordingly are interrelated aspects of their experience, which will influence how they navigate the muddy waters of systemic wrongdoing, more or less complicitly. To give concreteness to these three theoretical arguments, the paper discusses several forms of complicity with violence during the Vichy Regime in France.     

Placebo scrutiny? Far-right extremism and intelligence accountability in Germany

The post-9/11 era has seen a proliferation of special, or one-off parliamentary inquiries into intelligence. This article examines the question of what quality such inquiries can achieve, exploring the scandal surrounding the case of the German far-right terrorist group National Socialist Underground (NSU). The article introduces a theoretical framework, with remit, rigor and reception as the key pillars of analysis. While special inquiries are often seen as a way of overcoming imperfections of the traditional accountability system, they can also create a placebo effect – an illusion of accountability which allows intelligence services to go uncontrolled under a blanket of democracy.     

Against Humanitarian Impunity: Rethinking Responsibility for Displacement and Disaster in Northern Uganda

Abstract

Given that humanitarian organizations can often be responsible for enabling, prolonging or intensifying violence and conflict through their interventions into war zones, it is important that these organizations, despite their presumed neutrality and beneficence, be held accountable for the deleterious consequences of their actions. The case of northern Uganda will be used to demonstrate how humanitarian agencies have made possible the government's counterinsurgency, including its policy of mass forced displacement and internment, which has led to a vast humanitarian crisis. The Ugandan government policy will be assessed as a war crime, making aid agencies accessories to this crime. This case study is used as an example to highlight that processes which demand the post-conflict accountability of those responsible for violence may be dramatically incomplete, and unjust, if they do not include the humanitarian agencies. In conclusion it will be suggested that if humanitarian organizations built popular accountability mechanisms into their daily operations this might prevent them from being complicit with egregious violence in the first place.     

Land Reform and Civil Conflict: Theory and Evidence from Peru

How does land reform impact civil conflict? This article examines this question in the prominent case of Peru by leveraging original data on all land expropriations under military rule from 1969 to 1980 and event-level data from the Peruvian Truth and Reconciliation Commission on rural killings during Peru's internal conflict from 1980 to 2000. Using a geographic regression discontinuity design that takes advantage of Peru's regional approach to land reform through zones that did not entirely map onto major preexisting administrative boundaries, I find that greater land reform dampened subsequent conflict. Districts in core areas of land reform zones that received intense land reform witnessed less conflict relative to comparable districts in adjacent peripheral areas where less land reform occurred. Further tests suggest that land reform mitigated conflict by facilitating counterinsurgency and intelligence gathering, building local organizational capacity later used to deter violence, undercutting the Marxist left, and increasing opportunity costs to supporting armed groups.     

Intelligence Learning and Adaptation: Lessons from Counterinsurgency Wars

Critics of US intelligence focus extensively on the alleged inability and unwillingness of intelligence agencies to learn and adapt. Analysis of eight counterinsurgency wars suggests instead that external factors largely influence the intelligence-related performance of whole governments, including organizational structures, unity of effort and command, adequacy of resources, and leadership quality. Assessment of the performance of US intelligence since 9/11 indicates that the same variables influence the performance of US intelligence, suggesting that the US intelligence reform debate focuses too narrowly and on the wrong factors.     

Fragile states and the territory conundrum to countering violent nonstate actors

The concept of controlling territorial space informs Western conventions of counterinsurgency and counterterrorism. The Islamic State surprised the West when it recently captured dozens of cities across Iraq and Syria. Eradicating failed states and ungoverned territories vis-à-vis more robust state-building also forms the backbone of U.S. efforts to reduce violence, provide order, and build stronger societies. I argue that clearing territory, while important, should be selectively employed. Greater stateness does not always correlate with reductions in violence, and conversely not all “ungoverned spaces” are terrorist safe havens. A number of these areas are natural, if non-integrated, parts of the international system. Second, I posit that state-building can have its own negative externalities, such as pushing nonstate actors across state borders and thereby externalizing internal conflicts. The policy implications of my theory are twofold: First, territory is often a poor metric to capture military progress in the fight violent nonstate actors; second, fixing failed or fragile states does not always reduce the threat of violence but often just relocates it, as nonstate actors get squeezed out of areas of increasing stateness and move toward areas of weak stateness.     

When Casey’s blood pressure rose: a case study of intelligence politicization in the United States

This article contributes to the debate on the politicization of intelligence with a case study of a major attempt of politicization that so far largely escaped academic attention: the Special National Intelligence Estimate on the Soviet Union’s role in international terrorism produced by the US Intelligence Community in spring 1981. Despite direct and indirect manipulation by members of President Reagan’s Cabinet, this case differs from those usually discussed in a decisive way – politicization failed. Based on the empirical analysis, a theoretical model of intelligence politicization is introduced that extends Joshua Rovner’s oversell model, which can explain why policymakers demand intelligence support but is insufficient due to its exclusive focus on the consumers of intelligence, by integrating the incentives of intelligence producers and specifying the determinants of whether politicization succeeds or fails.     

Gendered discipline,gendered space: an ethnographic approach to gendered violence in India

ABSTRACT

Why are Indian women’s lives at fatal risk in the public sphere, when Indian democracy is inclusive in terms of gender? Addressing this question reveals a methodological and theoretical blind spot in political science scholarship – a blind spot which results in the reproduction and legitimization of gender-blindness. To understand how and why political science reproduces and legitimizes gender-blindness I reflect on a particularly horrific case of sexual and gender-based violence, the 2012 Delhi gang rape. This analysis is significant because it provides insight into the difficulty of understanding gendered violence in political science and achieving gender equality within democratic societies.     

Looking for Intel? … or Looking for Answers? Reforming Military Intelligence for a Counterinsurgency Environment

We analyze the recent Flynn Report and assess its implications for the future of military intelligence in Afghanistan. In particular, we argue that the report seeks to expand the substantive tasks of the military intelligence practitioner, while collapsing non-trivial aspects of existing organizational hierarchies. We argue that implementation of the Flynn Report's proposals would match poorly with the traditional nature of military intelligence and the realities of human resources constraints in the military. Further, the resulting scale of unfiltered data such a system would produce might serve to overwhelm rather than assist decision-makers. Finally, we conclude that the problems expressed in the Flynn Report should not be traced to the military intelligence apparatus per se, but rather to the inability of US political leadership to map out a clear vision for current operations – both in Afghanistan, and in the counterinsurgency environment in general.     

Responsibility to Protect or Right to Punish?

Abstract

This essay argues that the new global regime of R2P bifurcates the international system between sovereign states whose citizens have political rights, and de facto trusteeship territories whose populations are seen as wards in need of external protection. Under the direction of the UN Security Council, the International Criminal Court has become an integral part of the international R2P regime by allowing for the legal normalization of certain types of violence (such as Western counterinsurgency efforts), while arbitrarily criminalizing the violence of other states as ‘genocide’. In place of this unequal global regime, the essay concludes by arguing for an internally-driven process of political reform and legal reconciliation, as pioneered in South Africa.     

Violence Among Young Adults Receiving Housing Assistance: Vouchers,Race, and Transitions Into Adulthood

Scholarly literature has been very attentive to violence among adolescents whose families receive vouchers. Yet, it provides little information about violence among the more than 400,000 very young adults who head households that receive vouchers. This article explores this relationship, paying particular attention to life course considerations and racial context. Data on 18–22-year-olds, numbering 208, who received housing assistance and participated in the National Longitudinal Survey of Youth 1997 in 2002 indicate that normative theoretical models may not accurately capture the relationship between the transition to adulthood and violence within this group. Results also suggest that among those who experience violence, receipt of a voucher is associated with lower levels of violence, but not for Black recipients. Both voucher triage services for those experiencing violence, and housing advocate services for Black heads of household may be especially useful within this population of very young adults.     

Election type and the logic of pre-election violence: Evidence from Zimbabwe

Election violence is often conceptualized as a form of coercive campaigning, but the literature has not fully explored how electoral institutions shape incentives for competition and violence. We argue that the logic of subnational electoral competition – and with it incentives for violence – differs in presidential and legislative elections. In presidential elections, national-level considerations dominate incentives for violence. Presidential elections are usually decided by winning a majority of votes in a single, national district, incentivizing parties to demobilize voters with violence in strongholds. In contrast, election violence is subject to district-level incentives in legislative elections. District-level incentives imply that parties focus on winning the majority of districts, and therefore center violent campaigning on the most competitive districts. We test our argument with georeferenced, constituency-level data from Zimbabwe, a case that fits our scope conditions of holding competitive elections, violence by the incumbent, and majoritarian electoral rule. We find that most violence takes place in strongholds in presidential elections, especially in opposition strongholds. In contrast, competitive constituencies are targeted in legislative contests.     

Pro- and anti-system behavior: a complementary approach to voice and silence in studies of political behavior

Theories of participation and non-participation are largely unable to capture and distinguish anti-system behavior, which ranges from deliberate silence to political violence. To better understand and measure these diverse forms of citizen participation, and to distinguish these from forms of alienation and marginalization, this article builds a new model of anti-system behavior in a way that facilitates the development of empirically observable variables and hypotheses. To do so, I draw upon sociological approaches to alienation – which examine intensities of rebellion and contestation – and combine them with the standard political scientific approach – which examines intensities of engagement based on resources. The problem, I argue, is that each approach only partially explains the motivations behind aberrant political behavior in modern democratic systems; they are in fact two sides of the same coin. I consider three cases of apparent silent citizenship: Muslims in Western Europe, Roma in Eastern Europe, and white working-class people in North America and Europe.     

Spying on the rock: an assessment of Abwehr clandestine operations against Gibraltar during the Second World War

This article will offer an assessment on the effectiveness of clandestine operations conducted by the German military intelligence service, the Abwehr, against the British colony of Gibraltar during the Second World War. This assessment is based on declassified British archival records, and this paper will argue that while the Abwehr had complex networks which attempted operations against the British at Gibraltar the Germans actually achieved little meaningful success. This article will reason that the inability to achieve any significant results was due to ineffective leadership and direction from Abwehr officers who also oversaw inadequate agent recruitment and training which impaired Abwehr clandestine operations.     

Why strategic intelligence analysis has limited influence on American foreign policy

Why does strategic intelligence analysis have limited influence on American foreign policy? Intelligence analysis is frequently disregarded, this paper contends, because it is a duplicated step in the decision-making process and supplements but does not supplant policy assessment. Many intelligence analyses will confirm policy assessments and be redundant or – if the assessments are different – policy-makers will choose their own interpretations over those of intelligence analysts. The findings of this paper provide scholars with important insights into the limits of intelligence analysis in the foreign policy process as well as recommendations for increasing its positive impact on policy.     

The Jenin Initiative: Counterinsurgency by Capacity Building

In late 2008, as negotiations between the Israelis and the Palestinians faltered, the US directed the Jenin Initiative on the ground in the West Bank. Designed to inspire confidence in Washington’s security-driven ‘West Bank First’ strategy, the Jenin Initiative married economic development to security sector reform under the Palestinian Authority. Drawing on the perspectives of those responsible for implementing the Jenin Initiative, this article reveals how counterinsurgency doctrine transplanted from the ‘war on terror’ shaped US interventions that built capacity in the Palestinian Authority. The Jenin Initiative exposes the extent of US intervention to create an effective apparatus of Palestinian self-policing to enhance – but not replace – that of the Israeli occupation.     

Increasing Canada's Foreign Intelligence Capability: Is it a Dead Issue?

Despite the fact that the issue of whether Canada should develop a greater foreign intelligence capability has been broached numerous times, in various guises, over more than a century, those who have followed the development of the country's intelligence architecture will know it has never had a foreign intelligence service like its close allies. They will also be aware that on each occasion on which the issue has been raised, the Canadian government has declined to proceed. If history is any guide, there is a strong likelihood that the idea of Canada developing a more robust capability will again engage politicians, former intelligence officials, academics, the media, and think tanks in the not too distant future. The view adopted in this paper is that the public discourse has become sterile, and that if it is to advance, aspects of the counterfactual case – why has a foreign Humint capability not been developed? – may prove more fruitful.     

Conceptualizing and theorizing EU regulatory networks

European regulatory networks (ERNs) play a central role in the formulation, deliberation, and implementation of EU policies and have, thus, become objects of investigation in a fast‐growing scholarly literature. We identify two shortcomings – one conceptual, one theoretical – in the literature on ERNs: First, we argue that the principal–agent approach, which is conventionally used to conceptualize ERNs, overlooks and even misrepresents central features of ERNs. By introducing and applying the “orchestration” framework to ERNs we demonstrate that it better captures the specific characteristics of ERNs. Secondly, explanations for the choice and design of ERNs have treated functional and power‐based accounts as mutually exclusive. We argue instead that explanatory leverage can be gained by combining these two accounts by specifying their respective domains of application. While functional accounts enable us to illuminate why and under what circumstances ERNs are created in the first place (rather than EU agencies or delegation to the Commission), political accounts help us to shed light on variation in the design of ERNs (i.e. why actors opt for rather close or loose network structures). We illustrate the explanatory value‐added of such an approach through two brief case studies on EU telecommunications and competition policies.     

Operation ‘Surgeon’ and Britain's post-war exploitation of Nazi German aeronautics

After 1945, Allied acquisition of intelligence on Nazi Germany's wartime aeronautical innovations became one of the most important immediate post-war aims. From July 1945 to July 1947, Operation ‘Surgeon’ became the focus of British efforts to exploit Nazi aeronautical advances. The objectives of the operation were the evacuation of state-of-the-art equipment from aeronautical research institutes and the recruitment of high-grade aviation experts for postwar work in Britain. This article analyzes the conduct and results of Operation ‘Surgeon’. The limited literature on this topic has fuelled a popular orthodoxy which holds that the UK intelligence effort and policies to recruit German defence scientists were classic examples of the ‘British disease’, or a more general inability to exploit a technological opportunity that was harnessed so effectively by the other victorious Allies. Drawing on the experience of Operation ‘Surgeon’, the article challenges this orthodoxy that has dominated the historiography of Britain's intellectual reparations from the Third Reich.     

Managing Dynamic Public Sector Networks: Effectiveness,Performance, and a Methodological Framework in the Field of National Security

ABSTRACT

Networks are increasing in number and in importance across the security field as a means of providing inter-agency coordination. Based on a large qualitative study of networks in the field of national security in Australia, this article aims to advance our knowledge of the internal properties of public sector networks in the field of national security and the conditions shaping their performance. It puts forward a multi-level theoretical framework involving five interdependent levels of analysis—structural, cultural, policy, technological, and relational—which aims to account for the internal properties of networks and examines each of these levels in relation to public sector networks in the field of national security. Using detailed interviews with senior members of security, law enforcement, and intelligence agencies, the article aims to highlight the potential lessons this framework has for strategically organizing and managing dynamic networks within and beyond the field of national security.