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.     

Fragility within stability: the state,the clan and political resilience in Somaliland

Abstract

Even in the context of a relatively flourishing state, fragility can be an enduring feature of a political system, particularly in the case of recently established or unrecognised states. This article examines the nature of state-building in a specific context to question the assumption that forms of hybrid governance or pre-existing forms of governance are a necessary evil to be tolerated but which needs ultimately to be overcome during state-building. It does this by adopting the language of resilience and focusing on the case of Somaliland to highlight the role of clan governance as a mechanism of political resilience and as a means of promoting the flexibility required for state-building. Yet, at the same time, the process of state-building often involves formalising governance and limiting the role of traditional social-political forms of governance such as clans, ignoring their role in legitimating and stabilising the political system. However, as this article argues, stability and fragility are inextricably linked; while the clan system has been an important force in stabilising the state, it has also become a pressure point for the state’s latent fragility. By contextualising fragility and stability within the language of resilience, though, this symbiotic relationship can be better analysed.     

From failed states to fragile cities: redefining spaces of humanitarian practice

It has become commonplace to claim that cities are becoming conflict zones, or ‘war zones’. This article traces some of the discursive and conceptual shifts that made it possible to define the city as a new frontier for international humanitarian action in states of the Global South. In order to represent cities as humanitarian spaces, concepts of ‘failure’ and ‘fragility’ have been problematised and subjected to reinterpretations that legitimised new strategies applied to the urban realm. I argue that this re-scaling of humanitarian practices enables a de-coupling and inclusion of so called new ‘urban conflicts’ in strategies of global liberal governance. Moving from failed states to fragile cites is a key development to understand changes in the practices that redefine humanitarian spaces today. The definition of urban violence as a new type of conflict informs a new cycle of expansion of the humanitarian order focused on the city. The article analyses the problematisation of concepts of failure and fragility as a decisive move to redefine the boundaries of humanitarian spaces.     

‘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.     

State fragility and failure as wicked problems: beyond naming and taming

Conceptualising state fragility and failure as a wicked problem set reveals the complex, ill-defined and interdependent nature of the reality behind these labels. This essay builds on the contributions to this special issue by examining why the fragile/failed state concept remains in good currency despite its analytic weaknesses. The discussion reveals that the parsing of state fragility into its component parts and the development of related indicators reflect efforts to tame the wickedness of the problem set; this has led to peace-building and state-building interventions whose plans and actions do not effectively take account of what is necessary to achieve their intended aims. A better problem-solving match would look beyond naming and taming, incorporating lessons from the implementation literature and international development practice. However, achieving this would depend upon the political will of both labellers and the labelled.     

Coordination and control in Russia’s foreign policy: travails of Putin’s curators in the near abroad

Abstract

This article seeks to challenge the conception of the Russian state as being centred on Vladimir Putin by looking at the actors implementing Russia’s foreign policy in its near abroad. In particular, it explores the activities of curators (kuratory), a term applied in Russia to describe officials tasked with making things work often bypassing, and sometimes competing with, formal institutions. Following the state transformation framework, the argument put forward in the article is that curation (kuratorstvo), as a practice of coordination and control in Russia’s system of governance, can be seen as a manifestation of fragmentation and internationalisation of Russia’s foreign policy making. The empirical basis for this article is a case study of Russia’s policy towards Abkhazia, which Russia officially recognised as a sovereign state in 2008. This article addresses the involvement of curators in their attempts to exert political influence as an expression of fragmentation as well as emerging institutionalised curation in development assistance as a part of internationalisation.     

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?     

Transnational governance of cybersecurity: policy challenges and global inequalities in cyber capacity building

Abstract

Connectivity infrastructure is constantly expanding, increasing internet access across countries, regions and socio-political contexts. Given the fast-changing geography of the internet, there is a growing demand to strengthen cyber capacity beyond national frameworks, in order to develop a transnationally coherent and coordinated governance approach to cybersecurity. In this context, cyber capacity building initiatives are increasingly central in international debates, with the ambition to support countries in the Global South in fostering their cybersecurity strategy from technical and policy perspectives. This article discusses the key factors explaining states’ efforts to enhance their cyber capacity. Based on a cross-national quantitative research approach, the findings contradict international relations (IR)-derived approaches to cybersecurity, which assume that countries develop their cyber capacity according to external security threats, domestic politics or norms. In line with existing research on the role that science plays in policymaking processes more broadly, our results suggest instead that a country’s science and technical knowledge is the most robust explanation for that state’s cyber capacity level. These findings emphasise the need for policymakers to support countries in the Global South in developing their cyber capacity beyond national security paradigms by strengthening education and technical skills in contexts lacking in this resource.     

State disintegration and power politics in post-Suharto Indonesia

This article illustrates how discourses on ‘state fragility’ have been instrumentalised by the Indonesian military in order to consolidate its political and economic power after the fall of Suharto. In the wake of Indonesia’s transition to democracy violent conflicts escalated in East Timor, Aceh, Papua, the Moluccas and Sulawesi. Most notably East Timor’s successful secession spawned fears over the potential ‘balkanisation’ of Indonesia. In this context the Indonesian military, which had been shunned for its involvement in Suharto’s New Order, managed to re-establish itself as the ‘guardian of the nation’. Based on fieldwork in Indonesia, the article describes how post-9/11 discourses over a potential break-up of Indonesia were used by the Indonesian military to reconsolidate its power in the post-Suharto era. The research findings illustrate that, against the looming threat of state disintegration, attempts to revoke the military’s prerogatives have either failed or have been aborted during the planning stages.     

From centralisation to fragmentation and back again: the role of non-state actors in Brazil’s transformed foreign policy

Abstract

Since the 1990s, Brazil’s foreign policy-making, traditionally a highly centralised and hierarchical process, has become more fragmented, plural and horizontal. In this context, the role of non-state actors has been increasingly relevant. The impact and significance of these actors have been however a matter of debate. While there are authors that consider that non-state actors play only a secondary role in the policy-making process, there are others that assert that these actors work alongside governmental actors and directly influence policy choices. Drawing on the concept of network governance, the paper proposes a different view from the two recurrent approaches in the literature mentioned above. It argues that the recent steps to transform Brazil’s state governance from hierarchy to horizontal networks have indeed expanded the room for the direct participation of non-state actors in the policy process. However, state authorities fought to adjust this tendency, in order to retain control over the decision-making process, by putting in place formal and informal coordinating mechanisms led by the Ministry of Foreign Relations and the Presidency. This suggests Brazil’s foreign policy was made in the shadow of hierarchy. The paper demonstrates the argument using the case of Brazil’s foreign policy towards China.     

Governance in a Globalizing World

ABSTRACT

The capacity of a governance system to act and the integrity of its actions are increasingly recognized as foundations to society’s advancement and development. Globalization influences on governance, particularly its administrative side, are creating new needs and demands. Even when the outcome of globalization is debatable, its impact on today’s public managers clearly calls for expansion of their intellectual horizons and refinement of their operational skills. Managers must improve their communication and negotiation skills, conform to higher standards of accountability, transparency, and ethics, and master the complex new technologies within e-government. In fostering reform, public institutions must rely on their own internal learning processes while adapting to international standards and practices. The lesson: Within the still-unfolding global conditions, systems of governance everywhere have a choice of adapting or losing the game.     

Reframing the rising powers debate: state transformation and foreign policy

Abstract

The volume that we introduce breaks with the prevalent tendency in International Relations (IR) scholarship to treat rising powers (such as China, Russia, India and Brazil) as unitary actors in international politics. Although a neat demarcation of the domestic and international domains, on which the notion of unitary agency is premised, has always been a myth, these states’ uneven integration into the global political economy has eroded this perspective’s empirical purchase considerably. Instead, this collection advances the concept of ‘state transformation’ as a useful lens through which to examine rising power states’ foreign policymaking and implementation. State transformation refers to the pluralisation of cross-border state agency via contested and uneven processes of fragmentation, decentralisation and internationalisation of state apparatuses. The volume demonstrates the significance of state transformation processes for explaining some of these states’ most important foreign policy agendas, and outlines the implications for the wider field in IR.     

Understanding China’s ‘Belt and Road Initiative’: beyond ‘grand strategy’ to a state transformation analysis

Abstract

China’s massive ‘Belt and Road Initiative’ (BRI) – designed to build infrastructure and coordinate policymaking across Eurasia and eastern Africa – is widely seen as a clearly-defined, top-down ‘grand strategy’, reflecting Beijing’s growing ambition to reshape, or even dominate, regional and international order. This article argues that this view is mistaken. Foregrounding transformations in the Chinese party-state that shape China’s foreign policy-making, it shows that, rather than being a coherent, geopolitically-driven grand strategy, BRI is an extremely loose, indeterminate scheme, driven primarily by competing domestic interests, particularly state capitalist interests, whose struggle for power and resources are already shaping BRI’s design and implementation. This will generate outcomes that often diverge from top leaders’ intentions and may even undermine key foreign policy goals.     

Confounded but Complacent: Accounting for How the State Sees Responses to Its Housing Intervention in Johannesburg

Abstract

The South African state’s ‘will to improve’ poor people’s lives through free home-ownership is unsettled by subsequent unauthorised housing usage and adaptions. Despite insight into and empathy for these non-compliant activities amongst some state housing practitioners, the dominant state position is to denounce them without analysing their drivers and significance. This position is enabled by the state’s selective use of knowledge, confidence in the housing project as is, and avoidance of discomforting signals. The ‘will to improve’ is not matched by a deep ‘will to know’, in part because the capacity to act under difficult circumstances is argued to depend on a form of ‘not knowing’.     

Illiberal Democrats versus Undemocratic Liberals: The Struggle Over the Future of Thailand's Fragile Democracy

Abstract

This article examines the inter-related factors that underpin the fragility of Thailand's democracy. Uneven economic development, the high levels of income inequality, and unequal access to power and resources are significant drivers of Thailand's ongoing political conflict. Social divides across classes and regions, and populist exploitation of the rural poor's sense of alienation from the traditional ruling elites, provide a volatile backdrop to national politics. In addition, Thailand's unstable political history and the weakness of liberal institutions present risks to its democracy. The army, the revered monarch and the judiciary comprise elites whose periodic interventions in politics and reservations about electoral democracy further render the Thai polity fragile. Thailand's political situation represents a ‘slow-burning’ crisis of democracy: a long-term historical confrontation developing slowly, with the fundamental issues unresolved. It is undergoing a period of social turmoil fuelled by a power struggle between competing material interests and by an ideational contest to determine the country's constitutive political rules. This can be conceptualised as a struggle for control of Thailand's future between a heterogeneous populist-capitalist movement of illiberal democracy and conservative forces of undemocratic liberalism.     

Eastern Africa’s tobacco value chain: links with China

Abstract

While debates continue about China’s role in sub-Saharan Africa, there is growing consensus that China is a different kind of development partner. One distinct feature of Chinese partnerships is that they include support for the tobacco industry, a sector other donor states and institutions shun. Not only is tobacco a primary agricultural export in a number of Africa states, the state-owned Chinese National Tobacco Corporation is the largest tobacco company in the world. This paper analyses Chinese support for the tobacco industry in three states – Zimbabwe, Malawi and Zambia – documenting how co-operation is shaped by Chinese state capitalism and assessing the development and governance implications. Following an introduction situating the analysis within the context of China–Africa co-operation and tobacco’s global value chain, Chinese engagement in each country is analysed. Findings indicate that, despite differences across case studies in terms of development outcomes, common governance implications are apparent. African elites initiated tobacco-related co-operation to meet their interests, but Chinese interests dominated implementation. Consequently, Chinese investments have maintained hierarchal governance of an exploitive and harmful industry. Analyses of Chinese African co-operation need to move beyond public–private paradigms and interrogate the nuances of Chinese state capitalism in Africa.     

Effects of Governance Practices and Investment Strategies on State and Local Government Pension Fund Financial Performance

Abstract

Recent statistical studies concerning state and local government pension funds’ boards of trustees have focused on two complementary issues. First is the influence governance practices have on administration of fund assets. Second is the impact of investment strategy choices on funds’ total rates of return. Reported results indicate that the primary effects of governance practices on pension outcomes are indirect via asset allocation decisions. This study re-examined these issues using abnormal return as an inherently valued measure of risk adjusted financial performance. An innovation of the investigation is that “process analysis” was used to decompose the direct and indirect effects of governance practices on financial performance. Results suggest that while both types of effects exist, direct impacts dominate relative to mediating processes.     

From the Executive Board to the Classroom. What Debt Relief Means for Education in the Democratic Republic of the Congo (DRC)

ABSTRACT

This analysis re-assesses the IMF’s decision to grant debt relief to the DRC in 2010 based on the country’s poverty reduction and growth performance: would the IMF come to the same conclusion given the current knowledge available about the impact of the debt relief process on public governance and service delivery? First, it shows that, whereas the direct resource effect of this aid modality was minimal, the indirect effect was more significant: the conditionalities attached to the process helped to stabilize the economy and increased the overall budget of the Congolese state. This increased resource availability also sustainably percolated to the education sector. Second, however, the impact on social development was minimal: school enrolment increased but was hardly accompanied by extra budget per pupil, whereas more complicated challenges like disparities in access or quality of schooling were left untouched. The government’s strategy was also partly short-circuited by the electoral process.     

Precipitating state failure: do civil wars and violent non-state actors create failed states?

This article examines whether the incidence of civil wars and the presence of violent non-state actors have an effect on state failure. Research on failed states has thus far prioritised armed conflicts as one of the key causes of state failure. This study challenges that claim and posits that civil war incidence has limited impact on the transition from fragility to failure. Global quantitative analysis of state failure processes from 1995 to 2014 shows that although armed conflicts are widespread in failed states, civil violence does not lead to state failure and large numbers of failed states become engulfed by civil war only after the failure occurs. By contrast, this study demonstrates a direct link between the presence of violent non-state actors and state failure.