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This essay focuses specifically on the deficiencies of a certain part of the international community's response to the war-torn societies. It criticises the inappropriateness of the "suggested" neoliberal policies down the throats of countries emerging from conflict.
This essay focuses specifically on the deficiencies of a certain part of the international community's response to the war-torn societies. It criticises the inappropriateness of the "suggested" neoliberal policies down the throats of countries emerging from conflict.
This essay focuses specifically on the deficiencies of a certain part of the international community's response to the war-torn societies. It criticises the inappropriateness of the "suggested" neoliberal policies down the throats of countries emerging from conflict.
Department of Development and Economic Studies 2011/2012 Level: MA Issues in Development Policy ID 7017D Semester Two Course Coordinator: Behrooz Morvaridi
"Critically examine the impact of liberal peacebuilding policies to the development of war-torn societies"
Submitted by: 10003785 Turnitin paper ID: 17698384
Words: 3412 2
1. Introduction
For more than two decades, since the end of the Cold War, the world has been witnessing the prevalence of a new type of conflict affecting the international relations, followed by more than two decades of responses given by the international community to the conflict-affected countries. Regardless of a considerable amount of practice, these last twenty years of peace-oriented" initiatives demonstrate how the United Nations (UN) and donor agencies working in warfare countries worldwide are still crawling to, as facilitators, enable these countries to create internal conditions for a sustainable peace process, and Lo lmplemenL lessons learned" from pasL experiences. This essay focuses specifically on the deficiencies of a certain part of the lnLernaLlonal communlLy's response to the war-torn societies, the peacebuilding process, particularly its (neo)liberal orientation and (in)consequences to the development 1 of those societies. The first part briefly introduces the evolution of the concept and practice of peacebuilding since the end of the 1980s, and the similarities shared with the exported Western development model. The following section critically analyses the inappropriateness of the "suggested" neoliberal policies down the throats of countries emerging from conflict, and the consequent anomalous social dynamics resulted from it not much different from the ones produced by the Washington and post-Washington Consensus, and structural adjustment processes in the developing world in the late nineteenth-century. The proposal is not to simply repeat the well-known critiques of neoliberalism to the development of the so called 'fraglle sLaLes', buL Lo highlight the counter- productive insistency on a Western model proved flawed in non-conflicting societies, let alone in the ones emerging from political, social and economic instability left by civil wars. The theoretical debate is illustrated by two protracted peacebuilding initiatives, in Afghanistan and East Timor 2 , selected considering the diversified nature
1 Although Lhe complexlLles lnvolvlng deflnlLlons for developmenL as a concepL, Lhe working definition" adopted is authorship of Morvaridi (2008): the progressive improvement in the social, economic well being of people so that they live longer, healthier and fuller lives within any given political entity". 2 The country had its name changed to Timor Leste with its independence from Indonesia in 2002; however, the term being used follows the practice of the author being referred to. 3
of each of the conflicts and political motivations behind Western involvement on them 3 . Combining such conceptual discussion with the fore mentioned examples on the ground aims to conclude that the liberal peacebuilding model, the methodology used to implement it, and its harmful results are unhelpful to build Lhe soclal lnfrasLrucLure of peace" (8oyce & C'uonnel, 2007) in post-conflict societies, moreover letting them in the verge of the resurgence of violence.
2. The liberal peacebuilding project
The dynamics of international relations and its actors' interaction have been experiencing particular changes for the past twenty years. Previously, threats to international security used to come from powerful aggressive states" (Newman, et al., 2009, 9), with which it was necessary to be either ready to combat or align to. In the posL-WesLphallan envlronmenL", Lhe falllng or confllcL-prone states have been the ones representing the most menace (ibid.), with which developed/threatened states demonsLraLe cooperaLlon" vla personnel conLrlbuLlon (Lroops and civilians) and aid assistance (agencies and investments) in peace operations 4 , in an attempt to guarantee stabilization and their security 5 . It is in such scenario that the liberal peacebuilding 6 project is strengthened. Furthermore, the increasingly common internal violence in such countries, occurring between state and non state actors, targeting civilians, infrastructures and livelihood systems, endurlng cycles of vlolence and dlsplacemenL", became a terminal threat to sustainable development (Duffield & Waddell, 2006, 6), in a period
3 The political motivation behind peacebuilding initiatives, or the political economy of peacebuilding, will not be addressed throughout the paper, which does not intend to dismiss its fundamental role in the subject. Because of the limited space of this paper, the focus chosen was some of the practical development impacts of the peacebuilding policies in post-conflict societies. 4 Especially after 1988, mosL of Lhe un's operaLlons focused on Lhe Lask of posL-conflict peacebuilding (Paris, 2004). 5 Mainly after the 9/11 attacks, the security concerns with civil wars in countries hosting terrorist groups have been much alive behind peacebuilding initiatives. 6 The UN definition of peacebuilding is broad: "Peacebuilding involves a range of measures targeted to reduce the risk of lapsing or relapsing into conflict by strengthening national capacities at all levels for conflict management, and to lay the foundations for sustainable peace and development. Peacebuilding strategies must be coherent and tailored to specific needs of the country concerned, based on national ownership, and should comprise a carefully prioritized, sequenced, and therefore relatively narrow set of activities aimed at achieving the above objectives." (UN, 2012; UN, 2012). 4
of intense discussions worldwide about the promotion of human security 7 and the responsibility to protect 8 . Thus, peacebuilding became an important vehicle to dellver" human securlLy (Turner, et al., 2011), performing multiple tasks in societies devastated by conflicts. The current peacebuilding policies result, therefore, from a mixture of security and development (Duffield & Waddell, 2006), in such order of priorities which do not reflect CalLung's original proposal of assisting indigenous skills to manage peace and resolve conflict, and llberaLlng people from sLrucLural vlolence" 9 (Paris, 2004; Peacebuilding and the United Nations, 2012). The failure to address the latter is the focus of this paper. The liberal peace project basically seeks to implement democraLlzaLlon, rule of law, human rlghLs, clvll socleLy, markeLlzaLlon and developmenL" in war-torn societies, creaLlng social, economic, and political models (that) conform to a mixture of liberal and neollberal lnLernaLlonal expecLaLlons ln a globallzed and LransnaLlonal seLLlng" (Richmond, 2008, 187). To perform the tasks necessary to secure individuals, Boutros- Ghali 10 claimed for an international division of labor among NGOs, UN agencies, civil society and states (Boutros-Ghali, 1995), resulting, in peacebuilding contexts, in the International Financial Institutions' (IFIs) responsibility for economic matters, and UN and other agencies' responsibility for political and security issues 11 (Boyce & O'Donnell, 2007). Regarding the role of the IFIs, in spite of the disastrous effects of the conditionalities imposed to the so called Third World countries in the 70s and 80s,
7 According to the UNDP Human Development Report 1994, one of the documents responsible for the lnLroducLlon of Lhe concepL ln Lhe un agenda, 1he concepL of human securlLy sLresses LhaL people should be able to take care of themselves: all people should have the opportunity to meet their most essential needs and to earn their own living. This will set them free and help ensure that they can make a full contribution to development their own development and that of their communities, their counLrles and Lhe world. Puman ecurlLy ls a crlLlcal lngredlenL of parLlclpaLory developmenL.' (unu, 1994, 24). 8 The concept Responsibility to Protect was created in 2001 with a report of the International Commission on Intervention and State SoverelgnLy, and glves a moral duLy for sLaLes Lo lnLervene when a sLaLe ls unable or unwllllng Lo ensure Lhe human securlLy of lLs clLlzens" (Duffield & Waddell, 2006, 9). 9 Galtung defines structural violence as anyLhlng affecLlng susLalnable and positive peace, caused by poor economlc and soclal condlLlons, pollLlcal and economlc lnsLlLuLlons, sysLems, or sLrucLures" (Galtung, 1969 cited by Paris, 2004, 58). 10 Boutros-Ghali was the sixth Secretary-General of UN, between 1992 and 1996, and published the document being referred to, the Agenda for Peace, in 1995. 11 Such division between economic and political processes has been one of the critiques of the model, which will be further addressed in the next section. 5
ugh sLaLes LhaL 1he old-style unthinking Washington consensus about development may be merely a virtual death, with a liberal peace redivivus emerglng from Lhe ashes" (2005, 6). In the beginning of the 90s, the rules for war-Lorn socleLles' loans wlLh International Monetary Fund (IMF) and the World Bank 12 consisted on the same that used to be applied, such as fiscal and monetary austerity measures, low public expenditure, limited provision of credit and devaluation of local currency, envisioning low inflation rates, macroeconomic balance, privatization, liberalization of trade and deregulation of financial and labor markets (Paris, 2004). By the end of the 90s, good governance, volce" and partnership were added to the post-Washington Consensus list (ibid.; Maxwell, 2005), covering even more the ticking boxes of the western liberal democracy. Many critiques of the neoliberal development project of peacebuilding have, to a certain extent, succeded in bringing a reformulation", at least in the discourse, of the liberal peace project in recent years. 1he accepLance of Lhe flawed lnsLlLuLlonally oriented, neoliberally aimed and constructed around the elite governance of conflict zones" llberal peace model (Richmond & Franks, 2008, 187) has encouraged pressure for fair trade, accomplishment of Millenium Development Goals (MDGs), lessening debt, advocacy for social protection and negligence of aid conditionality (Pugh, 2005). 1here has also been a new confllcL lmpacL assessmenL" into decision-making at official development agencies (Boyce & O'Donnell, 2007, 9), and the creation of the Peacebuilding Commission (PBC) and UN Peacebuilding Support Office, in order to lnsLlLuLlonallze lessons learned" and promoLe durable peace ln posL-conflict regions (ugh, 2003). noneLheless, accordlng Lo 8oyce & C'uonnell (op clL), confllcL lmpacL assessmenL" applied to revenue policies, for example, is still in its infancy" and the PBC, instead of reporting to the Economic and Social Council (ECOSOC) and General Assembly, does it to the power-disputed Security Council, and induces early involvement of IFIs in peace process, reinforcing even more the liberal ideology and practice (Pugh, 2005). The liberal peace project has been institutionalized to the extent that most of the human rights, development and emergency relief agencies on the ground accept
12 According to Paris (2004), the World Bank started to impose conditionalities to its loans in the 80s only. 6
its ideals as Lhe deslrable ob[ecLlves for developlng sLaLes" (arls, 2004). Pugh argues that Lhe reforms" proposed by none oLher Lhan Lhe llfeguards" of caplLallsm 13 are better described by Lhe Lerm llddlsm" 14 , which do not represent, therefore, the necessary paradigm shift for the emergence of real emancipatory and sustainable peace processes in post-conflict realities (Pugh, et al., 2008, 395).
3. The (lack of) developmental role of the liberal peacebuilding project
Although the reasonable years of experiences and failures of the broad and ambitious liberal peacebuilding project, it continues to be implemented complemenLed by Lhe new values" sLaLed earller promising to establish market democracies which promote human rights and civil peace (Richmond, 2006). However, the fruits harvested by the recipient societies are most frequently state and lnsLlLuLlons' weakness, unemploymenL and lack of developmenL (ibid.), not much different from what developing countries had experienced in the late nineteenth century. Paddy Ashdown 15 appropriately addressed such malfunction: lronlcally, as a pollLlclan l campalgned agalnsL many of her [1haLcher's] reforms, argulng LhaL Lhey would lead Lo lost jobs and the selling off of the national wealth; only to find myself instituting very similar reforms in Bosnia and facing the same arguments and opposition. What makes matters worse in most post-conflict countries is that they are poor, not rich so the pain can be far greater. There is not much the interveners can do about this, except understand it and recognize that by insisting on accelerated reforms we are often asking local politicians to take responsibility for a level of social disruption which our own politicians at home would re[ecL wlLhouL a second LhoughL" (Ashdown, 2007 cited by Cooper, et al., 2011, 7)
Several arguments can be derived from his words. The most evident relates to the fast-speed political and economic changes requested by intervenors, whose
13 Cne example ls !effrey achs, earller responslble for Lhe sLrucLural ad[usLmenL and shorL sharp shock LreaLmenL", and laLer archlLecL of Lhe compilation of the Millenium Declaration into MDGs. The latter is fllled wlLh llberal assumpLlons, such as one-size-fits-all" Lo Lackle exLreme poverLy, publlc lnvesLmenL for private purposes, and absence of state dirigisme in integration to the global trade (Pugh, 2005, 7). 14 Llddlsm", a term designed by Paul Rogers, means keeping a lid on disorder (Rogers, 2000). 15 addy Ashdown was a Member of arllamenL durlng MargareL 1aLcher's admlnlsLraLlon, and laLer (2002-2006) the High Representative of the Office of the High Representative (OHR) in Bosnia and Herzegovina. 7
impacts the governments, when existent, are not able to absorb. Furthermore, Chua states that aL no polnL ln hlsLory dld any Western nation ever implemented laissez- faire capitalism and overnight universal suffrage aL Lhe same Llme" (2004, 14). Similarly, widespread privatization, especially in social services, does not seem suitable where even basic services are not delivered (Pugh, 2005). AnoLher lLem derlved from Ashdown's sLaLemenL regards Lhe separaLlon between economics and politics/social values in peacebuilding strategies, which Cox (1992) cited by Pugh (2005, 9) calls de-politization of economlc lssues". Pazardous effects are generated in post-conflict societies as a result of the absence of a holistic approach to deal with their complexities, which is also a reflect of the lack of synergy between, for example, the British Department for International Development (DFID) and LhaL counLry's ueparLmenL of 1rade and lndusLry in dealing with their aid recipient countries (Collier, 2007). As declared by Ashdown, reforms instituted by intervenors in post-conflict realities such as removal of barriers for free trade are still rejected by their own politicians at home, where the rule is that integration to global markets is followed by growth, which is followed by protectionism in order to safeguard critical economic interests in the promotion of freer trade (Pugh, 2005). DIFD efforts in the development of war-torn societies would be much more effective if it had a voice in the British industrial and trade sectors. Pavlng sald LhaL, one lasL lssue connecLed Lo Ashdown's quoLe ls Lhe role of Lhe state in the post-conflict economy. Beyond imposing trade barriers and protecting national industries, it is the primary responsibility of governments to invest and provide public goods and services, create employment, reduce the shadow economy, and most importantly, redress horlzonLal and verLlcal lnequallLles LhaL are lmpllcaLed ln vlolenL confllcL", necessary for Lhe soclal lnfrasLrucLure of peace" (Turner, 2006; Boyce & O'Donnell, 2007, 9). Private-sector markets are far from adjusting such inequalities automatically, as advocated by neoliberal policies, and which had been proven by the experience of developing countries not emerging from conflict in the past two decades. The peacebuilding policies demonstrate a major concern with the (re)creation of a state capable of implementing the rule of law dictated by externals, usually to be implemented by ruling local elites, in order to regulate a turbulent environment. The 8
establishment of a functioning society, with a sustainable economic process capable of generating employment and a welfare system (Richmond, 2006), with the participation of its people, although gradually incorporated in policy documents, is far from being set as priority by donors' pracLlces. An example on the ground was the imposition of the foreign centralized judicial system and new" rule of law in East Timor, in conflict wlLh local suco (vlllage) and Lrlbal law", which has caused troubles with compliance and police training in the country (Richmond & Franks, 2008, 195). Regarding the welfare 16 systems of those societies, some are the reasons for their hindrance. First of all, the wealth creation system is not only imposed from the foreign above", but it is also llkely Lo be managed by ellLes LhaL conducLed confllcL ln flrsL place", lnLenslfylng Lhe soclally dlvlslve, aLomlzlng effecLs of confllcL capital accumulation by dispossession, reorientations of patronage and fragmentation of auLhorlLy" (ibid., 296; 83). The absence of locals in leading the political and economic course of their own societies, marginalising their understanding of peace and well- being, and not addressing their needs (Newman et al., 2009; Richmond, 2008), leads to a fiscal dilemma: none or few services delivered to the peoples, results in their proportionate will to pay taxes, which affects not only the governnemnt revenues but also its legitimacy (Boyce & O'Donnell, 2007). Secondly, amid such environment of unsustainable market-oriented economic reconstruction delegated to a minority which Amy Chua contends as the recipe for group hatred and ethnic violence 17 and with no viable alternative livelihoods, the shadow economy is frequently considered a possibility (Cooper & Pugh, 2004). That is very much the case in Afghanistan, where the drug economy, which figures as a historical aspect of the country, ls Lhe nearesL Lhlng Lo a naLlonal secLor" and 80-90 percenL of Lhe economy ls lnformal, descenLrallzed and fragmenLed" (Goodhand & Sedra, 2010). 1he lnLernaLlonal process of aldlng Lhe counLry's reconsLrucLlon has not properly consldered Lhe conLexL of Afghan hlsLory and soclal relaLlons" by considering activities of the organized crime and informal economies as obstacles for the state- building process, and enforcing the rule of law in an attempt to restrain them
16 Refraining from a theoretical debate about the concept, in will be simply considered lndlvldual and community fostered well-belng" (newman, eL al., 2009, 80). 17 MarkeLs concenLraLe enormous wealth in the hands of an ouLslder" minority, fomenting ethnic envy and haLred among ofLen chronlcally poor ma[orlLles" (Chua, 2004, 9). 9
(Goodhand, 2004). There is a need, instead, of engaging with Lhe lllegal" entrepreneurs to support them channel their profits to investment in the not-so- attractive licit economy (ibid.). According to Newman, ulsmlssal of all elements of informal welfare pracLlced ln Lhe Lrlcks of llfe" as socially corrosive and leading to moral collapse is to misunderstand the need for social cement in everyday life where social corrosion is engendered by increasing disparities of wealth under llberallzaLlon" (Newman, et al., 2009, 88).
A number of neoliberals even dare to affirm LhaL welfare ls a dlslncenLlve Lo lnvesLmenL and work, and creaLe dependence" (Cffe, 1982 clLed by lchmond, 2008, 293). They do not mention, however, the dependency created by the external presence in countries hosting peacebuilding missions which are llLerally dellvered" to post-conflict societies by an externally designed agenda, enabled by foreign aid, and implemented by international workers. The main aspects of the hornbook" were previously explored; the impacts of international financial assistance and human resources also deserve some considerations. The importance of aid in reconstructing countries emerging from conflict should not be undermined. Nevertheless, the relatively high amounts flowing into the economy possibly represents: a) a discouragement for raising domestic revenues through collecting taxes; b) an overloading of the already restrictive sLaLe's ablllLy Lo disburse funds in a timely and LransparenL fashlon", c) a hindrance in bulldlng sLaLe capaclLy ln budgeL allocaLlon and expendlLure managemenL", once ald ls malnly conducted via private actors and NGOs (Boyce & O'Donnell, 2007, 10). As a result, several authors mention the creation of a dual public sector one managed by the government, and the other managed and funded by donors (Goodhand, 2004; Ishizuka, 2008). Furthermore, the previously mentioned imposition of conditions la Bretton Woods by donor agencies and countries in order to continue delivery of aid, such as good governance, moves Lhe naLlonal agenda away from local needs and asplraLlons" (Newman, 2009, 11), lmpedlng Lhe creaLlon of a soclal conLracL beLween clLlzens and insLlLuLlons LhaL clLlzens percelve as leglLlmaLe" (Richmond & Franks, 2008, 198), undermining even more the strengthening of the state. 10
In East Timor, the dual and external-interest driven economy is appropriately represented by the American management of revenues from the Timorese oil and gas reserves. The country has contracts with Australia and international energy organizations, but the oil funds flow through the US central bank in order to avoid corruption by the Timorese government. According to Richmond (2008), corruption actually occurs on the side of Lhose avoldlng" lL, as Americans work with Fretilin 18 to oppose Lo Lhe counLry's governmenL. ln Lhe Afghan conLexL, by 2004, 30 percenL of Lhe counLry's Cu conslsLed on aid, and one third of the total amount that had been aided to Afghanistan since 2001 had come from USA (Goodhand, 2004). Thus, the priority had been given to military and security sector reform, creating such a structure especially oriented by the short term objectives of counter-insurgency operations that the government will not be able Lo susLaln ln Lhe long Lerm even wlLh Lhe mosL opLlmlsLlc revenue pro[ecLlons" (ibid., 88). The apparently aspiration of Afghans for a strong and centralized state capable of providing a functioning legal system and stability is disregarded, which runs Lhe rlsk of Lransformlng a crlmlnallzed war economy" ln a crlmlnallzed peace economy" (lbld., 76). egardlng lnLernaLlonal workers' lnvolvemenL ln counLrles hosLlng peacebuilding missions most of them coming from developed realities , or local employees by UN or international NGOs, two issues deserve considerable concern. Firstly, the consuming habits of expatriate workers induces the development of a parallel economy consisted by overpriced hotels, cafes, restaurants and supermarkets, only afforded by those earning an international salary (Ishizuka, 2008). In East Timor, such dlsplay of affluence amld Lhe poverLy, desLrucLlon and unemploymenL whlch characLerlzed Lhe local economy was an affronL" (Overseas Development Institute, 2002 cited by Ishizuka, 2008, 55). Second, the employment of local people by external organizations have two side effects in the economy dynamics: their better working conditions and salaries lnduce a braln draln" from sLaLe lnsLlLuLlons and communlLy based organlzaLlons, and such international salary stimulates inflation on price levels, depresslng Lhe value of
18 Fretilin is the Revolutionary Front for an Independent East Timor, the opposition party to the government of East Timor. 11
state salaries" (Coodhand, 2004, 90). In Afghanistan those effects reverberated in the national economy by the forty thousand locals employed by international organizations, who were characterized by Afghans as Lhe cows Lhat drink their own mllk" (ibid., 94). Likewise, in East Timor there was a widespread national sentiment LhaL 1lmorese became Lhe servanLs of lnLernaLlonal ald workers ln Lhelr own counLry" (Ishizuka, 2008, 54). The highlighted issues herein are far from covering the whole range of impacts caused by the current liberal peacebuilding project in the reconstruction and development of post-conflict societies. However, it intended to demonstrate how Lveryday llfe does noL conform Lo Lhe raLlonallsm of Lhe economic engineers from ouLslde" (Newman, et al., 2009, 87), and the real impacts of their magic-formulas on the ground, already known by previous neoliberal development initiatives. It is more adequaLe Lo say LhaL Lhese socleLles' welfare ls arranged despite the international assistance and not because of it (ibid.). The reasons for insisting in the same mistakes from past experiences are subject for another essay.
4. Conclusion
The liberal peacebuilding and the amendments it has undergone throughout the past two decades is paralleled to the changes occurred in the development model being implemented in less developed regions by international organizations and donor agencies. The financial crisis of 2008 has once again demonstrated that the American maglc formula" of neollberal markeL-democracies, especially in a deliberatively liberalized capital market environment, can bring catastrophic consequences to the societies well-being (Birdsall & Fukuyama, 2011). The need for social protection and a sequencing liberalization process 19 have been proposed and implemented in countries such as Brazil and Mexico, but have not yet reached peacebuilding (ibid.), what this piece of work has attempted to demonstrate. The analogy made between the concepts and practices of the liberal peacebuilding and the development models stresses how unproductive and even
19 Sequencing liberalization means liberalizing only after a strong regulatory system has been in place (Birdsall & Fukuyama, 2011). 12
counter-productive it is to continue implementing such a package", which has historically caused serious political, economic and social damages to the developing world, in societies destroyed by civil wars. Some of those damages caused by the peacebuilding experiences in East Timor and Afghanistan, which have been in place throughout the past decade, illustrated that. Furthermore, considering the fragile aspects of the post-conflict realities, the lmpacLs of Lhe currenL peacebulldlng programmes may easlly exacerbaLe Lhe soclal tensions that resulted in violenL confllcL ln Lhe flrsL place", noL conLrlbuLlng, Lherefore, for the sustainable peace envisioned (Newman, et al., 2009, 13). Quoting Birdsall & Fukuyama, and correlating peace and development, developmenL has never been something that the rich bestowed on the poor but rather something the poor achieved for themselves" (2011, 33). As well as for development, for a peace process to be durable it must involve the welfare dynamics and culture of the peoples affected, who must be the protagonists of their own emancipation. Such message is made clear in the following statement by Xamana Gusmo, current Prime Minister of East Timor,
We are noL lnLeresLed ln a legacy of cars and laws, nor are we interested in a legacy of development plans for the future designed by [people] other than East Timorese. We are not interested in inheriting an economic rationale which leaves out the social and political complexity of East Timorese reality. Nor do we wish to inherit the heavy decision-making and project implementation mechanisms in which the role of the East Timorese is to give their consent as observers rather than the active players we should start to be" (Dodd, 2000, 183).
13
5. Bibliography
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