‘Fragile States’: introducing a political concept

The special issue ‘Fragile States: A Political Concept’ investigates the emergence, dissemination and reception of the notion of ‘state fragility’. It analyses the process of conceptualisation, examining how the ‘fragile states’ concept was framed by policy makers to describe reality in accordance with their priorities in the fields of development and security. The contributors to the issue investigate the instrumental use of the ‘state fragility’ label in the legitimisation of Western policy interventions in countries facing violence and profound poverty. They also emphasise the agency of actors ‘on the receiving end’, describing how the elites and governments in so-called ‘fragile states’ have incorporated and reinterpreted the concept to fit their own political agendas. A first set of articles examines the role played by the World Bank, the oecd, the European Union and the g7+ coalition of ‘fragile states’ in the transnational diffusion of the concept, which is understood as a critical element in the new discourse on international aid and security. A second set of papers employs three case studies (Sudan, Indonesia and Uganda) to explore the processes of appropriation, reinterpretation and the strategic use of the ‘fragile state’ concept.     

The resilient state: new regulatory modes in international approaches to state building?

‘Resilience’ has quickly risen to prominence in international security and development circles. In recent years it has found its way into political discourse on state building and state fragility, triggering a vast but often conceptually indistinct examination of the subject. Given its meaning in policy publications and guidelines, ‘resilience’ tends to eschew a static conceptualisation of statehood, turning instead to a more dynamic, complex and process-oriented rendering of state–society relations. This illustrates a conceptual shift from ‘failed states’ to ‘fragile states and situations’. It also transforms the concept of ‘failed state’ as a mere threat perception – with ‘stability’ as its logical other – into ‘fragility’ as a particular form of social and political risk. This paper analyses the concepts in 43 policy papers, focusing on the nexus of ‘resilience’ and ‘fragility’ in international state building, and assesses potential consequences. What does ‘resilience’ – as the opposite vision to ‘fragility’ – in fact mean? What is the practice derived from this chimerical state of states?     

The European Union’s ambiguous concept of ‘state fragility’

Although scholars and practitioners alike perceive ‘state fragility’ to be a key challenge for security and development, there are significant variations in the definition of this phenomenon. This article analyses the European Union’s notion of ‘state fragility’. Based on a document analysis covering the years 2001–12 and expert interviews conducted in November 2012, the article reveals that the EU has not (yet) decided on a clear-cut definition of ‘state fragility’. Three factors explain this lack of decisiveness: the EU’s complex institutional framework, which impedes policy coherence; developments at the international level that require the EU’s compliance; and the organisation’s diplomatic efforts to maintain cooperative relationships with aid-recipient countries that have been labelled ‘fragile’. The result is conceptual ambiguity that potentially reduces the EU’s capacity to respond to fragile situations.     

Assessing and Appraising the Effects of Policy for Wicked Issues: Including Unforeseen Achievements in the Evaluation of the District Policy for Deprived Areas in The Netherlands

Urban regeneration is often acknowledged as a wicked policy issue that produces unanticipated outcomes. Most methods for policy evaluation treat those effects as flaws of planning or neglect them. We argue that wickedness is an inherent aspect of many policy issues and that it should be integrated in efforts to assess and appraise the effects of policy. We use a case of urban regeneration projects in The Netherlands to study how the unanticipated and unforeseen consequences of policy were accounted—or neglected—in the evaluation methods. Also, we present an alternative approach that takes into account the “by-effects” of policy.     

The paradoxes of the ‘everyday’: scrutinising the local turn in peace building

With the advent of the local turn in the mid-2000s, critical approaches have attempted to rethink peace building from the bottom up, placing local agents at the centre of the debate, declaring the end of top-down governance and affirming the fragmented, complex and plural nature of the social milieu. While local turn approaches have become popular in peace-building theory, this article invites the reader to question and problematise the local turn’s use of the concept of ‘everyday’, in order to explore paradoxes and contradictions that indicate the need to think more deeply about the impact of the local turn’s project of critique.     

Corruption in the aftermath of war: an introduction

‘Corruption in the aftermath of war’ brings together an interdisciplinary group of scholars to enquire into the dynamics of corruption in post-conflict societies. This introduction discusses five themes, problematising and summarising key findings from the 10 articles included. First, we discuss the problems with the corruption concept, related to its moralising connotations and definitional vagueness, and propose viewing corruption as a collective action dilemma as a way of avoiding these moralising aspects. Second, we discuss post-conflict societies, and highlight the great varieties of ‘peace’ that that label can refer to. We suggest that the causes, dynamics and effects of corruption in post-conflict societies bear many similarities with those in other societies, but that the post-conflict situation often generates an intensification and entrenchment of corruption-related problems. Third, we analyse the dynamics between international interveners and domestic actors, and show the contradictions and tensions in international–domestic relations. Fourth, we argue that the inter-linkages between inequality, mistrust and corruption deserve consideration in the study of post-conflict societies, and that inequality in particular merits more attention. Finally, we discuss some methodological challenges encountered by the contributors in their studies of corruption in post-conflict societies.     

War and state formation in Lebanon: can Tilly be applied to the developing world?

State formation in the developing world can be explained as growing centralisation and institutionalisation. To understand why some states struggle with state formation, or the processes of centralisation, the model provided by Charles Tilly, in his analysis of state formation in Western Europe, is applied to Lebanon, starting at the onset of the 1975 civil war and concluding with an analysis of the post-Syrian occupation environment. With the appropriate conditions it is possible to use Tilly’s model of war making and the state to measure state formation, or the lack thereof, in the developing world. Conclusively, in the case of Lebanon, it is evident that progress towards strong state formation has been made because of processes of war that are similar to those Tilly outlines in his historical analysis of Western Europe.     

The oecd’s discourse on fragile states: expertise and the normalisation of knowledge production

The concept of legitimacy has been highly influential in policy recommendations concerning state building in ‘fragile states’. Indeed, depending on how ‘legitimacy’ is conceived, the actions and practices of state builders can differ substantially. This article discusses what is at stake in the conceptualisation of ‘legitimacy’ by comparing the academic literature with the normative production of the oecd. Looking at two approaches to legitimacy – the institutionalist or neo-Weberian approach focusing on institutional reconstruction, and the social legitimacy approach emphasising the importance of social cohesion for successful state building – the article shows that both these conceptions are present in most reports, but also that the neo-Weberian approach tends to prevail over the social legitimacy perspective. Through a series of interviews with oecd officials and scholar-practitioners who have participated in the writing process of oecd reports, we hint, finally, at future research avenues on the social conditions of knowledge production and its normalisation.     

The dark(er) side of ‘state failure’: state formation and socio-political variation

Scholars concerned with the formation of states, specifically the relationship between state formation and war, hold one of two positions. Some agree with Charles Tilly’s historiological conclusion that war is decisive for the establishment of stateness and specify key concepts, in order to explain presumed discrepancies between past and present. Others point towards the international sphere in its current form and advocate a ‘war breaks states’ perspective. This paper argues that both standpoints neglect the ‘sub-national’ level. While proponents of the ‘war breaks states’ thesis are missing para-sovereign zones of rule, supporters of the ‘war makes states’ approach take a juridical view of statehood and focus on ‘state strength’. The failed states paradigm guiding contemporary security and development policy hinders an adequate analysis of the actual situation on the ground. Discussing the shortcomings of failed states approaches and state formation theorising, the paper proposes a conceptualisation in terms of socio-political variation instead of a mere dichotomisation of order. Some conclusive questions are raised, indicating future research directions linked to the historical sociology of state formation.