Post-conflict reconstruction, Johns Hopkins/SAIS spring 2011

The Paul H. Nitze School of Advanced International Studies

The Johns Hopkins University

Post-conflict Reconstruction

Spring Term 2011, Wednesdays, 6-8 (sometimes 9) pm

Professor: Dr. Daniel Serwer

Professorial Lecturer and Visiting Scholar
daniel@serwer.org
Telephone: (o) 202-681-7021
Office and hours: 732 Rome Building (1619 Massachusetts), by appointment

Scope and Purpose:

Today’s states face many challenges from myriad directions. Globalization, insurgencies, ethnic or sectarian conflict, totalitarianism, transnational crime syndicates, failing governance systems, cultural dissonance, terrorism, and emerging health threats are but just a sample of the dynamics that can bring down a state. Failed or failing states provide space and time in which conditions can form that in turn threaten a region or the international community. Chaotic conditions can foment disorder within the region and cause regional destabilization, providing an environment in which direct threats to U.S. and international security might emerge.

The United States has contributed to 17 international interventions since the end of the Cold War. These have generally not been classic “peacekeeping” operations that separate combatants but rather “stabilization and reconstruction” operations that aim to leave behind viable states. All these operations have been multilateral, with participation not only by intervening governments but also by intergovernmental organizations, host governments and nongovernmental organizations, both local and international. The UN had more than 120,000 people serving in peace operations in the fall of 2009.

Hundreds of thousands of deployed troops and police, thousands of civilians and hundreds of billions of dollars later, what have we learned? Can states be built? What is the best way to go about it? What resources are required? How can mistakes of the past be corrected in the future? This course will study salient cases (including countries like Somalia, Haiti, Bosnia, Kosovo, Liberia, Iraq and Afghanistan) and develop a comprehensive understanding of what is needed for success and what causes failure.

3. Course objectives and lesson overview

This introduction aims to provide students with a solid foundation in the theory and practice of contemporary stabilization and reconstruction operations. It will provide students with a conceptual framework for analyzing these operations and explore the experience of practitioners in recent cases, with a view to understanding the complexity and variety of post-conflict situations in the modern world. It will enable them to engage in further inquiry into related topics such as counter-insurgency, peace operations, conflict resolution, humanitarian assistance and economic development. Emphasizing the complex, multidimensional character of stabilization and reconstruction operations, including but not limited to military operations, humanitarian assistance and peacekeeping, this course will be useful for those with an interest in conflict resolution and security studies, including professionals in the fields of diplomacy, journalism, development assistance, humanitarian aid or international peacekeeping. The course will include readings, discussion, simulations, role plays, research and study of real events.

1. Introduction and Overview

Part I: What Does Stabilization and Reconstruction Aim to Achieve?

2. Safe and Secure Environment

3. Rule of Law – Short essay topic due!

4. Stable governance

5. Sustainable economy

6. Social well-being – Short essay due!

Part II: Cross-cutting Principles

7. Leadership – Student proposed required readings for weeks 10-13 due!

8. Host Nation Ownership and Capacity, Political Primacy, Security

9. Legitimacy, Unity of Effort, Conflict Transformation, Regional Engagement

Part III: Student Presentations

10. Student Presentations

11. Student Presentations

12. Student Presentations – Research paper due!

13. Wrap-up

4. Learning outcomes

Students will learn

To understand the goals of stabilization and reconstruction as well as contemporary best practices in efforts to achieve them.
To analyze, comprehend and evaluate recent stabilization and reconstruction operations.
To describe key elements of a specific operation, using a systematic framework.
To sharpen and develop their skills in devising solutions to stabilization and reconstruction challenges.

Course requirements/grading

Attendance, participation and class presentation 50%

Short essay and research paper 50%

Attendance and weekly participation (25%): This is a seminar, not a lecture course. Quality student contributions are thus essential. Students are required to attend all sessions, arrive on time, have read at least the items listed under Required Reading prior to each session, and be prepared to summarize them if asked to do so. Students are also expected to participate actively in simulations or role plays, which will on some occasions (noted below) will require extension of class time to 9 pm.

Students should keep themselves well-informed on current events related to the subject matter of the course. This can be done most readily by reading relevant portions of the Washington Post, New York Times or other major dailies as well as by listening to NPR on a daily basis. The instructor or students may circulate from time to time particularly interesting items—these should be treated as optional, but highly recommended, additional readings.

Oral presentation (25%): In addition, each student will need to propose in week 7 readings for weeks 10-12 relevant to their chosen research paper topic. These readings will constitute background for oral presentation of the key points from their analysis during a 10 minute in class seminar during weeks 10-12, followed by a 10 minute Q and A session. Students should be prepared to present cogently and effectively as well as answer questions from the class and the instructor. The quality and effectiveness of this in-class presentation will make an important contribution to the 50% of the grade derived from classroom work.

Short Paper (20%): By class time in week 3, choose a stabilization and reconstruction operation since the end of the Cold War. Characterize the current situation in the host country in accordance with the Framework presented in the Guiding Principles and any other important dimensions, describe the salient organizational characteristics of the international intervention (including its strong points and limitations) and identify key current challenges preventing achievement of the end-states. The paper should be no more than five well-edited, double-spaced, 12-point typed pages in length. If the paper exceeds the page limit, the grade will be reduced. Due in Week 6 before class convenes. Students should submit one hard copy and one electronic version of the paper.

Memo/Research Paper (30%): Imagine that you are leading efforts to achieve one of the end-states in the international intervention you wrote about in your short paper. Write a memo to your supervisor (who should be clearly identified) of no more than eight well-edited, double-spaced, 12-point typed pages stating what the biggest current problems are and suggesting what needs to be done to enable success. You may include in the memo relevant portions of the short paper, but the focus should be on organizational changes, program initiatives, resource requirements, political moves, diplomatic maneuvers or other measures needed at present. You need not limit yourself to action within your particular end-state but should make clear why action outside that end-state is required. This memo/research paper will be the basis of your 10-minute class presentation in weeks 10, 11 or 12. The paper itself is due in week 12 before class convenes. Students should submit one hard copy and one electronic version of the paper.

Late papers will be penalized one-third of the grade per day (from A to A-, from A- to B+, etc.) Incompletes will not be allowed, except in the case of truly dire emergencies. Save and print your work regularly as you write. Problems with technology are not an acceptable reason for late work.

Students may earn one-third of a grade added to their final grade (from C+ to B-, B- to B, etc.) by attending and writing up during weeks 1-6 (but NOT after class in week 6) a public event (speaker, panel, press conference, etc.) relevant to the theme of post-conflict reconstruction. Write-ups should be no more than 800 words and circulated within 2 days of the event to the entire class and the instructor. In order to avoid duplication, a student wanting to write up an event should inform the class and the instructor in advance. First come, first served. No duplicates.

Sources should be cited using a recognized system of referencing.

Students are expected to observe the highest standards of academic honesty and integrity.

6. Required Readings

Anna K. Jarstad, “The Prevalence of Power-Sharing: Exploring the Patterns of Post- Election Peace,” Africa Spectrum, 44, 3, 41-62 at http://hup.sub.uni-hamburg.de/giga/afsp/article/view/191/191

Ashraf Ghani and Clare Lockhart, Fixing Failed States: A Framework for Rebuilding a Fractured World. Oxford, UK: Oxford University Press, 2008.

Christina Caan, Beth C. DeGrasse, Paul Hughes, and Daniel P. Serwer, “Is This Any Way to Run an Occupation?” Chapter 14 in Karen Guttieri and Jessica Piombo, Interim Governments: Institutional Bridges to Peace and Democracy, Washington, DC: United States Institute of Peace Press, 2007.

Deborah Isser, Stephen C. Lubkemann and Saah N’Tow, “Looking for Justice: Liberian Experiences With and Perceptions of Local Justice Options,” USIP Peaceworks no. 63, 2009, at http://www.usip.org/resources/looking-justice-liberian-experiences-and-perceptions-local-justice-options

Department of the Army. Field Manual 3-07: Stability Operations. Washington, DC: Department of the Army, 2008. Chapter 4. Found at: http://usacac.army.mil/cac2/repository/FM307/FM3-07.pdf

Department of State. Principles of the USG Planning Framework for Reconstruction, Stabilization and Conflict Transformation. Washington, DC: Department of State, 2008. Found at: http://www.crs.state.gov/index.cfm?fuseaction=public.display&shortcut=49Q9

Elizabeth A. Cole and Judy Barsalou, “Unite or Divide? The Challenges of Teaching History in Societies Emerging from Conflict,” USIP Special Report, June 2006. Found at: http://www.usip.org/resources/unite-or-divide-challenges-teaching-history-societies-emerging-violent-conflict

Gary Hill, Ngozi Nwosu, Valeza Oruqi, Erich Scheye and William Sells, “Literature Review: Rule of Law Lessons Learned from the UN Mission in Kosovo (UNMIK). International Network for Promotion of the Rule of Law Consolidated Response (09-006), October 2009. Found at: http://www.inprol.org/node/4700

Graciana del Castillo, “The Rules of Reconstruction,” Project Syndicate, 2006. Found at: http://www.project-syndicate.org/commentary/delcastillo2

James M. Kouzes and Barry Z. Posner, The Leadership Challenge. San Francisco: John Wiley and Sons, 2007 (4^th edition). Chapter 1 and 2, pp. 3-41.

Jeremiah Pam, “The Paradox of Complexity,” to be published in Christopher M.

Schnaubelt, ed., Complex Operations: NATO at War and on the Margins of War

NATO Defense College Forum Paper n 14 (2010) at http://www.ndc.nato.int/research/series.php?icode=2.

Jock Covey, Michael J. Dziedzic, and Leonard R. Hawley, eds., The Quest for Viable Peace: International Intervention and Strategies for Conflict Transformation. Washington, DC: U.S. Institute for Peace, 2005.

John Darby. The Effects of Violence on Peace Processes. Washington, DC: U.S. Institute of Peace, 2001.

Krishna Kuman, “Promoting Social Reconciliation in Postconflict Societies: Selected Lessons from USAID’s Experience,” January 1999 at http://www.oecd.org/dataoecd/51/9/35112635.pdf

Marc J. Cohen and Tara R. Gingerich, “Protect and Serve or Train and Equip? US Security Assistance and Protection of Civilians,” Oxfam America, November 12, 2009, http://www.oxfamamerica.org/files/protect-and-serve-or-train-and-equip.pdf

Niccolo’ Machiavelli, The Prince, David Wooton, ed. and trans. Indianapolis: Hackett Publishing, 1995, Chapters 1-6.

Nina M. Serafino, “Peacekeeping/Stabilization and Conflict Transitions: Background and Congressional Action on the Civilian Response/Reserve Corps and other Civilian Stabilization and Reconstruction Capabilities,” Congressional Research Service Report RL32862, April 26, 2010, at http://opencrs.com/document/RL32862/

Ozong Agborsangaya-Fiteu, “Governance, Fragility and Conflict: Reviewing International Governance Reform Experiences in Fragile and Conflict-Affected Countries,” The World Bank Group, October 2009, pp. 31-33 (to be distributed).

Paul Collier, “Post-Conflict Recovery: How Should Policies Be Distinctive?” Center for the Study of African Economies, Department of Economics, Oxford University, May 2007. Found at: http://users.ox.ac.uk/~econpco/research/pdfs/PostConflict-Recovery.pdf

Robert Perito and Madeline Kristoff, “Iraq’s Interior Ministry: the Key to Police Reform,” July 2009 at http://www.usip.org/files/resources/iraq_interior_ministry_perito_kristoff.pdf

Roger B. Myerson, “A Short Overview of the Fundamentals of State Building,” at http://home.uchicago.edu/~rmyerson/research/stablizn.pdf

The Sphere Project, http://www.sphereproject.org/ general familiarization, especially with the Handbook

Stephen Biddle, Fontini Christia and J. Alex Thier, “Defining Success in Afghanistan: What can the United States Accept?” Foreign Affairs, July/August 2010 at http://www.foreignaffairs.com/articles/66450/stephen-biddle-fotini-christia-and-j-alexander-thier/defining-success-in-afghanistan

United Kingdom Stabilisation Unit. The United Kingdom Approach to Stabilisation. London, UK: United Kingdom Stabilisation Unit, 2008. Found at: http://www.stabilisationunit.gov.uk/resources/Stabilisation_guide.pdf

United Nations Department of Peacekeeping Operations and Department of Field Support. United Nations Peacekeeping Operations: Principles and Guidelines. New York, NY: United Nations, 2008. Chapters 1-3 at http://www.peacekeepingbestpractices.unlb.org/Pbps/Library/Capstone_Doctrine_ENG.pdf

United States Institute of Peace and US Army Peacekeeping and Stability Operations Institute. Guiding Principles for Stabilization and Reconstruction. Washington, DC: United States Institute of Peace Press, 2009. Found at: http://www.usip.org/resources/guiding-principles-stabilization-and-reconstruction

William J. Durch, “Are We Learning Yet? The Long Road to Applying Best Practices,” in William J. Durch, ed., Twenty-First Century Peace Operations. Washington, DC: United States Institute of Peace, 2006, pp. 573-607.

Detailed Course Schedule

WEEK 1 (January 26): Introduction and Overview

During this lesson we will discuss an overview of the course, the major readings and the key objectives of our study, as well as your expectations for the course and my views on graduate seminars. I will also provide a brief contextual discussion of stabilization and reconstruction as practiced since the end of the Cold War. You should be prepared to discuss your goals for the course and identify any issues you have with course texts or the schedule of classes.

We will be using an analytical framework developed by the US Institute of Peace to better understand stabilization and reconstruction. The objective in using this framework is not to enforce any unity of approach, but rather to present a common and simple starting point from which to develop your own way of understanding of what needs to be done in countries emerging from conflict. Come to class prepared to discuss and/or question the framework, which is presented in the first of the assigned readings.

Objectives:

• Understand the organization and requirements of the course.

• Understand the use of the standard framework in this course.

• Begin to understand the institutions, practices and principles on which stabilization and reconstruction operations depend.

Questions:

Why do we undertake stabilization and reconstruction operations? Why are they so difficult? How can we improve preparations for them? What kinds of staff are needed? How should we think about possible future operations? Where might they occur?

Required Reading:

Guiding Principles for Stabilization and Reconstruction. Washington, DC: United States Institute of Peace and United States Army Peacekeeping and Stability Operations Institute, 2009, Sections 1-5.

PART 1: What Does Stabilization and Reconstruction Aim to Achieve?

WEEK 2 (February 2): Safe and Secure Environment (6-9 pm)

This lesson begins our discussion of end-states, which will extend through the sixth week. Each week we will be discussing one end-state and reading about it in Guiding Principles. In addition, we will be reading other material that elucidates the problems encountered by practitioners in pursuing the end-state under discussion.

You should already be thinking about which country you want to write about in your short paper, due in week 6. You will need to tell me at class next week which country you have chosen.

Objectives: Understand

• The basic concepts and key definitions used in course readings.

• The security challenges arising in countries emerging from conflict.

• The key problems that plague efforts to achieve a safe and secure environment.

• Methods of overcoming these problems.

Questions:

What do you do with “warring parties,” warlords, drug kingpins and militias in societies emerging from conflict? Where has a relatively safe and secure environment been established? How would we know? What capabilities are needed? Where do those capabilities exist? Where do they not exist?

Required Reading:

Guiding Principles, Section 6.

Robert Perito and Madeline Kristoff, “Iraq’s Interior Ministry: the Key to Police Reform,” July 2009 at http://www.usip.org/files/resources/iraq_interior_ministry_perito_kristoff.pdf

WEEK 3 (February 9): Rule of Law (6-9 pm)

This lesson continues the study of the end-states by focusing on rule of law. It is particularly important to appreciate the difference between a “safe and secure environment,” which is at least initially the responsibility of military forces, and “rule of law,” which depends not only the military but also on civilian institutions such as police, courts, prosecutors, defense attorneys and prisons, as well as bar associations and civil society more generally.

** Students should come prepared to state which country they have chosen for their short paper**

Objectives: Understand

The distinction between rule of law and a safe and secure environment.
What is required in establishing rule of law.
Why establishing the rule of law is an urgent priority but one that will take a long time.

Questions:

What systems do other societies use to establish the rule of law? How should these “informal” or “traditional” systems interact with the more formal justice system? What is the role of Interior Ministries in more formal systems? Why is important to worry about defense attorneys and prisons?

Required Reading:

Guiding Principles, Section 7.

WEEK 4 (February 16): Stable Governance (6-9 pm)

Governance in societies emerging from conflict is often difficult. Not only international intervenors but also host country populations often want nothing less than democracy, but stability may have to come first.

Objectives: Understand

• The particular problems associated with post-conflict governance.

• The debate over whether elections, and democracy in general, are a good idea.

Questions:

What does stability mean? Who generally has power during and after conflict? Why do intervenors often insist on national elections? Is local governance important? Why? How can governance be made more accountable? How can intervenors be made more accountable?

Required Reading:

Guiding Principles, Section 8.

Anna K. Jarstad, “The Prevalence of Power-Sharing: Exploring the Patterns of Post- Election Peace,” Africa Spectrum, 44, 3, 41-62 at http://hup.sub.uni-hamburg.de/giga/afsp/article/view/191/191

WEEK 5 (February 23): Sustainable Economy (6-9 pm)

The population in countries emerging from conflict is usually poor, sometimes desperately so, even if some individuals are rich and even if the country has ample resources. Military expenditures, sanctions, war deaths, black markets and other factors limit and distort the local economy.

Objectives: Understand

• How economic issues in a country emerging from conflict differ from those of a developing country.

• How policy measures need to take these differences into account in establishing a sustainable economy.

Questions:

How is economic development affected by conflict? What happens in a society emerging from conflict? What should happen with state property? How should private property rights be handled?

Required Reading:

Guiding Principles, Section 9.

Graciana del Castillo, “The Rules of Reconstruction,” Project Syndicate, 2006. Found at: http://www.project-syndicate.org/commentary/delcastillo2

WEEK 6 (March 2): Social Well Being (6-9 pm)

**Short paper due/no more write-ups for extra credit after this date**

The immediate requirements in a society emerging from conflict often include food, water and shelter. But soon demands for the return of displaced people and refugees, for education, health and other social services arise. And all these will be affected by the degree of social reintegration and reconciliation that has, or has not, taken place.

Objectives: Understand

• What is needed to enable a society to recover from war.

• How these efforts can be undertaken in a society riven by conflict.

Questions:

Who should handle basic human needs in societies emerging from conflict? What should the relationship be between internationals and the host government? Why are displaced people and refugees important in societies emerging from conflict? What can be done about reintegration and reconciliation? When can it be done?

Required Reading:

Guiding Principles, Section 10.

The Sphere Project, http://www.sphereproject.org/ general familiarization, especially with the Handbook

Krishna Kuman, “Promoting Social Reconciliation in Postconflict Societies: Selected Lessons from USAID’s Experience,” January 1999 at http://www.oecd.org/dataoecd/51/9/35112635.pdf

PART 2: CROSS-CUTTING PRINCIPLES

WEEK 7 (March 9): Leadership

Student proposed required readings for weeks 10-12 due to instructor!

Objectives: Understand

How leadership can contribute to and detract from achieving the desired end-states.
What command and control systems exist in societies emerging from conflict.
How leadership and planning complement each other in stability operations.
How leadership plays an important role in guiding the transformation of conflict.

Required Reading:

Niccolo’ Machiavelli, The Prince, David Wooton, ed. and trans. Indianapolis: Hackett Publishing, 1995, Chapters 1-6.

Department of the Army. Field Manual 3-07: Stability Operations. Washington, DC: Department of the Army, 2008. Chapter 4. Found at: http://usacac.army.mil/cac2/repository/FM307/FM3-07.pdf

James M. Kouzes and Barry Z. Posner, The Leadership Challenge. San Francisco: John Wiley and Sons, 2007 (4^th edition). Chapter 1 and 2, pp. 3-41.

WEEK 8 (March 16): Host Nation Ownership and Capacity, Political Primacy, Security

Objectives: Understand

The requirements and priorities of developing host nation ownership and capacity building.
The role of political actions to claim the primary role in transforming a conflict and develop sustainable settlements.
The importance of security in transforming conflicts, stabilizing the host nation and supporting reconstruction.

Required Reading:

Guiding Principles, Section 3. (Review)

Roger B. Myerson, “A Short Overview of the Fundamentals of State Building,” at http://home.uchicago.edu/~rmyerson/research/stablizn.pdf

John Darby. The Effects of Violence on Peace Processes. Washington, DC: U.S. Institute of Peace, 2001. Chapters 2-5.

United Kingdom Stabilisation Unit. The United Kingdom Approach to Stabilisation. London, UK: United Kingdom Stabilisation Unit, 2008. Part 3 (pages 32-47). Found at: http://www.stabilisationunit.gov.uk/resources/Stabilisation_guide.pdf

Spring Break! March 21-25

WEEK 9 (March 30): Legitimacy, Unity of Effort, Conflict Transformation,Regional Engagement

Objectives: Understand:

The basic elements of legitimacy and their interrelationships.
The concept of “unity of effort” and various ways different actors contribute to it.
The goal and requirements of “conflict transformation.”
The role regional neighbors and dynamics impact a state attempting to resolve a conflict.

Required Reading:

Guiding Principles, Section 3. (Review)

Ashraf Ghani and Clare Lockhart, Fixing Failed States: A Framework for Rebuilding a Fractured World. Oxford, UK: Oxford University Press, 2008. Read Chaps 6-8.

PART 3: STUDENT PRESENTATIONS

Recommended Format for Student Presentations

1. Conflict background (2 minutes)

2. Current situation (2 minutes)

3. Primary obstacles to success (2 minutes)

4. Recommended measures with respect to the chosen end-state (4 minutes)

WEEK 10 (April 6): Student Presentations 1 through 6

Objectives:

• To analyze the key obstacles to progress in a current stabilization and reconstruction operation.

• To propose specific remedies.

Required Reading: TBA

WEEK 11 (April 13): Student Class Presentations 7 through 13

Objectives:

• To analyze the key obstacles to progress in a current stabilization and reconstruction operation.

• To propose specific remedies.

Required Reading: TBA

WEEK 12 (April 20): Student Class Presentations 13 through 18

**Memo/Research Paper Due**

Objectives:

• To analyze the key obstacles to progress in a current stabilization and reconstruction operation.

• To propose specific remedies.

Required Reading: TBA

WEEK 13 (April 27): Course Wrap-Up

This lesson will wrap up and provide an overview of the main learning points of the seminar.

Objectives:

• To analyze the key obstacles to progress in a current stabilization and reconstruction operation.

• To propose specific remedies.

Required Reading:

Guiding Principles, Review Sections 1-5.

Jeremiah Pam, “The Paradox of Complexity,” to be published in Christopher M.

Schnaubelt, ed., Complex Operations: NATO at War and on the Margins of War

NATO Defense College Forum Paper n 14 (2010) at http://www.ndc.nato.int/research/series.php?icode=2.

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Post-conflict reconstruction, Johns Hopkins/SAIS spring 2011

Part II: Cross-cutting Principles

WEEK 6 (March 2): Social Well Being (6-9 pm)

WEEK 9 (March 30): Legitimacy, Unity of Effort, Conflict Transformation,Regional Engagement

2 Responses to Post-conflict reconstruction, Johns Hopkins/SAIS spring 2011

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Post-conflict reconstruction, Johns Hopkins/SAIS spring 2011

Part II: Cross-cutting Principles

WEEK 6 (March 2): Social Well Being (6-9 pm)

WEEK 9 (March 30): Legitimacy, Unity of Effort, Conflict Transformation,Regional Engagement

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