Fixing Failed States: A Framework for Rebuilding a Fractured World

265 Pages·2008·0.62 MB·English

by  Ashraf Ghani

fi xing failed states
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ashraf ghani
clare lockhart
FIXING FAILED STATES
A Framework for Rebuilding
a Fractured World
1
2008
1
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Copyright © 2008 by Ashraf Ghani and Clare Lockhart
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Library of Congress Cataloging-in-Publication Data
Ghani, Ashraf, 1949–
Fixing failed states / Ashraf Ghani and Clare Lockhart.
p. cm.
ISBN 978-0-19-534269-7
1. Failed states. I. Lockhart, Clare. II. Title.
JC328.7.G43 2008
341.5'84—dc22 2007038638
1 3 5 7 9 8 6 4 2
Printed in the United States of America
on acid-free paper
Acknowledgments
We would like to thank a number of individuals for their
support, advice, and comments over the last several years.
They are too numerous to list in full, but for their close
readings of different versions of papers and support for the ideas and
establishment of the Institute for State Effectiveness we extend special
thanks to Chris Anderson, Jack Bell, Lakhdar Brahimi, Michael Car-
nahan, Robert Cooper, Anis Dani, Ishac Diwan, Lyse Doucet, Karl
Eikenberry, James Elles, Rula and Tarek Ghani, Robert Greenhill,
Scott Guggenheim, Vivien Haig, Rick Hillier, Marty Hoffman, Lou
Hughes, Hilde Johnson, Fred Kempe, Nick and Samantha Leader,
Alexander Lennon, Amory Lovins, Simon Maxwell, Bill Neukom, Dick
and Deborah O’Neill, Ken Ohashi, Ted Okada, Carlos Pascual, Praful
Patel, Eric and Demi Rasmussen, Gabrielle Rifkind, Mitch Shivers,
Hernando de Soto, Marin Strmecki, David Thorpe, Ed Tivnan, and
Lin Wells.
We are grateful to the citizens and leaders across business, civil soci-
ety and governments, in countries across the world, including Sudan,
Nepal, Lebanon, Kosovo, Kenya, Russia, China, Singapore, Indone-
sia, and India, who took time to explain patiently their perspectives on
the questions this book addresses.
Between 2001 and 2005 Afghanistan was the site where we devel-
oped and implemented many of the ideas contained in this book. In
particular, the framework we describe informed our work on the design
of the Bonn Agreement, the National Development F ramework,
Securing Afghanistan’s Future, the budget of Afghanistan, the national
programs, and the outline of the Afghan Compact. Numerous individuals
contributed to these programs and made them work. Several took a
gamble on new plans such as the National Solidarity Program when
they were just an idea, and for this we owe them our thanks.
In January 2005 we made our fi rst full presentation of the set of
ideas contained herein at the Lancaster House meeting on fragile
states, convened by the United Nations, World Bank, Department for
International Development (DFID), and Organisation for Economic
Cooperation and Development (OECD), and we have continued to
refi ne them since then. Many of the concepts were improved through
a program we led at the World Bank in the late 1990s on institutions
and organizations; our thanks go to Jonathan Maack, Pascaline Cure,
and Sabine Beddies for their work on this program. In September
2005 the United Nations and the World Bank convened a conference
of leaders of postconfl ict transitions to meet with us at the Green-
tree Estates to consider the framework that we present here, and the
valuable feedback these leaders provided considerably enriched it.
Additional opportunities to debate these ideas have arisen during pre-
sentations to the UN General Assembly, workshops and retreats at the
World Bank, the African Development Bank, discussions with the gov-
ernments of Norway, Canada, Japan, and the United Kingdom, and
meetings with various members of the U.S. government. Conferences
and brainstorming meetings became forums in which to present, test,
and polish the book’s ideas; these took place at Fortune Brainstorm;
Technology, Entertainment, Design (TED); the Aspen Ideas Festival;
Wilton Park; Ditchley Park; Bellagio; the European Ideas Network;
the Rocky Mountain Institute; the Institute for Liberty and Democ-
racy; bar associations; the Trans-Atlantic Policy Network; Highlands;
Operation Strong Angel; and the Atlantic Council.
Very special thanks go to Tina Bennett; no one could have asked for
a better agent, and she has been a true partner in bringing this material
to the public domain. Dave McBride, our editor at Oxford University
Press, has provided excellent comments, and the whole team at OUP
has been enthusiastic, dedicated, and professional.
Philip Munger shepherded the book into the realm of the possible
with dedication and wisdom. Blair Glencorse and Sam Vincent worked
with immense skill and commitment to improve the text. The Smith
Richardson Institute, DFID, the World Bank, and the Rockefeller
Brothers Fund provided timely support.
Ashraf would like to acknowledge his indebtedness to the American
University of Beirut, the University of California at Berkeley, Johns
Hopkins University, Kabul University, Brookings, the World Bank,
vi Acknowledgments
the United Nations, and his colleagues in Afghanistan, as well as inter-
national interlocutors during his service in Afghanistan. He would like
to express his appreciation to those who nominated him for the UN
candidacy, and he is grateful for the opportunity to put forward and
discuss a set of ideas and programs for global stability in the context of
setting an agenda for the United Nations for the twenty-fi rst century.
In particular, he wishes to thank his family in Afghanistan, Lebanon,
and the United States, as well as Rula, Mariam, and Tarek for their
loving patience and support and for enduring the long absences. He
dedicates this book to his wife, Rula.
Clare would like to acknowledge her thanks to Oxford U niversity,
the Kennedy School at Harvard University, and law schools in England;
these same institutions, as well as the Inner Temple and the Kennedy
Memorial Trust, also provided generous stipends and scholarship funds.
She is grateful for her experiences at the World Bank, the United Nations,
and ISAF-NATO. Lectures and seminars at the NATO Defense Col-
lege, Shrivenham, Wilton Park, Operation Strong Angel III, the Rocky
Mountain Institute, Bellagio, Oxford University, a number of Founda-
tions and other venues have provided indispensable questioning and
feedback. Colleagues and friends in Afghanistan particularly made the
work possible and enjoyable. She would like to thank the many friends
and family who have tolerated and supported the book-writing process,
with special appreciation to her parents, Christopher and Rosamund,
and to Alice and Edward, and Mary-Ellen. Clare dedicates the book to
her grandmother Diana Elles, who has been an inspiration all her life.
Acknowledgments vii
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Contents
Acknowledgments v
Introduction 3
part one DEFINING THE CONTEXT
one The Creeping “Sovereignty Gap” 17
two Reversing History 33
three Webs and Flows of Cooperation 53
four Failed Politics 65
fi ve The Promises and Perils of Aid 85
part two DEFINING THE STATE FOR THE
TWENTY-FIRST CENTURY
six T oward a Multifunctional View of
the State 115
seven T he Framework: The Ten Functions
of the State 124
part three A NEW AGENDA FOR STATE
BUILDING
eight I nternational Compacts: Sovereignty
Strategies 169