Subcontracting State-Building

Abstract

Contemporary development assistance often takes the form of subcontracted state-building. Foreign donors hire for-profit firms to provide services and to improve or create institutions in developing countries, particularly those experiencing internal conflict. This arrangement creates two counterproductive dynamics: first, it introduces agency problems between donors, recipient states, subcontractors, and citizens; and second, it undermines the long-run development of domestic bureaucratic capacity by creating disincentives for the host government to invest. These dynamics hinder, rather than foster, the legitimacy of state institutions. This paper summarizes trends in external support to state-building since the 1970s and illustrates subcontracted state-building with examples from Colombia.     

Violence and the state: Lessons from Colombia

Whether or not Colombia has improved is a controversial topic. If improvement has occurred, what, if any, lessons from the Colombian model can be learned? The first lesson is that Colombia's problems were caused more by a weak state than by drugs. The second lesson is that improving state capacity requires more than just increased security. The state must also provide the basic social services that citizens require to gain and maintain their support. Additionally, government institutions need to improve their professionalism, protect human rights, and root out impunity and corruption. The alternative is to suffer from new cycles of violence as old foes are vanquished, but new ones emerge.     

Counterinsurgency and the limits of state-building: An analysis of Colombia's policy of territorial consolidation, 2006–2012

Since 2002 the Colombian government has been implementing a series of policy initiatives that have sought to coordinate state resources in a neo-classical counterinsurgency approach to fight the country's main insurgent group, the Fuerzas Armadas Revolucionarias de Colombia (FARC), and recover and consolidate the territory. Despite impressive operational successes against the insurgency and other illegal groups, the government has been unable to reassert its control and build legitimacy via the state-building effort known as ‘Consolidación’, in some of the most recalcitrant areas of the country. This article examines two areas where government efforts at consolidation appear to be failing to discuss the limits of COIN theory and practice.     

‘Masters of today’: military intelligence and counterinsurgency in Colombia, 1990–2009

Military intelligence forms a vital element of counter-insurgency operations. When the Colombian military suffered setbacks at the hands of the FARC in the 1990s, military intelligence received much of the blame. It was also accused of human rights violations. With the help of US. financed Plan Colombia, military intelligence has been reorganized, expanded, strengthened with upgraded technical capabilities, constrained to operate within defined legal boundaries, and refocused to match the government's strategic priorities. Human intelligence has laid the groundwork for impressive tactical and operational results since 2006. Nevertheless, like all intelligence services, that of the Colombian military continues to experience problems of structure and political outlook.     

The Hunt for Martín Caballero

While the success of Colombia's fight against illegal armed groups, led by Fuerzas armadas revolucionarias de Colombia – ejército del pueblo (FARC-EP), is generally lauded as evidence of the effectiveness of both COIN doctrine and security assistance, the configuration of Colombia's counter-insurgency effort remains largely unstudied. This article will explain the success of one of those campaigns carried out principally by the Colombian marines (Colmar) in an area of northern Colombia known as the Montes de María. Contingent factors shaped the success of this campaign, beginning with the fact that the Montes de María forms an area where insurgents, relative late comers to the region, found it difficult to put down deep roots. However, operations to eradicate them were complicated by the inexperience of the Colmar, and by constraints placed by Colombia's Constitutional Court on COIN methods modeled on those successfully applied by the British in Malaya and Kenya. Therefore, Colmar officers initiated their five-year campaign by building up a base of popular support in the towns and targeting insurgent logistical networks. This bought time to strengthen the Colmar's combat and intelligence capabilities, and take the offensive that eventually isolated and killed the leader of the FARC in the Montes de María, Martín Caballero. Unfortunately, the failure of the Colombian government to follow up the Colmar victory by installing a regional and local governments viewed as legitimate by the population, and to resolve long standing land tenure issues, has meant that, so far, the Colmar looks to have delivered a tactical victory in a strategic vacuum.     

Colombian Military Thinking and the Fight against the FARC-EP Insurgency, 2002–2014

This article attempts to place in historical perspective the latest effort by Colombia’s military (Colmil) to defeat the now half century old insurgency of the Fuerzas Armadas Revolucionarias de Colombia – Ejército del Pueblo (FARC-EP). It argues that the ‘surge’ initiated under President Álvaro Uribe in 2002 with the assistance of the United States can only be fully analyzed in the context of the Colmil’s intellectual framework for counter-insurgency. Specifically, this article will explain how the protracted engagement with counter-insurgency has shaped the Colmil’s understanding of the nature of the conflict, as well as its attitudes towards its adversary, civil authority and the instrumentality of force. An understanding of the Colmil’s strategic tradition can also help to explain their apprehensions about the ongoing peace negotiations with the FARC-EP.     

‘Ser Eleno’: Insurgent identity formation in the ELN

In conflict studies, identity has been posited as an explanatory factor of the resilience of insurgencies. This article focuses on the identity formation of the National Liberation Army (ELN), a leftist insurgency group in Colombia. As a Marxist–Leninist organisation, the ELN aims to overcome capitalism. In their perception, this is possible via the transformation of the individual into a ‘collective personality’. Along the dimensions of ‘content’ and ‘contestation’, we will demonstrate the mechanisms they impose for such identity formation. Identity, as we will argue, is a main factor in explaining why people participate in this insurgency and thereby enhance its resilience.     

Colombia: Changing strategy amidst the struggle

From 1965 to the present, Colombia has been confronted by the insurgency of the Revolutionary Armed Forces of Colombia (FARC). The threat reached a new level in 1996 with the advent of mobile warfare, whereby large units sought to neutralize the military in an effort to seize power and institute a Marxist-Leninist regime. Unlike Vietnam, what followed was a regaining of the strategic initiative by the government and a decimation of the insurgent threat. This was accomplished with US assistance but from first to last was driven by Colombian leadership and strategy. The strategy which led to this signal change, ‘Democratic Security’, unfolded under the leadership of President Álvaro Uribe. It was a civil–military partnership, which sought to expand the writ of Colombian democracy to all elements of society. Securing the population provided the shield behind which economic, social, and political life could occur as driven by the will of the people. It was the agreement upon legitimacy as the strategic goal and reform as the route to that goal which allowed the Colombians and the Americans to work so well together.     

Why internal conflict deteriorates state capacity? Evidence from Colombian municipalities

Previous work has documented a negative correlation between internal conflict and state capacity. We attempt to shed light on mechanisms that underlie this relationship, using data for Colombian municipalities. We rely on identifying heterogeneous effects of different types of violent events on state capacity, taking advantage of variability across municipalities in the prevalence of specific manifestations of conflict and their intensity. Our findings suggest that events making civilians feel targeted affect the state’s capacity to collect taxes, while those reflecting a stronger military capacity of illegal armies, in particular their large-scale attacks, affect the state’s capacity to provide public goods.     

‘Like going to a fiesta’ – the role of female fighters in Colombia's FARC-EP

Traditionally women and children have been seen as victims rather than protagonists in conflict. However, since the 1970s, women and children have assumed an active role as combatants in Colombian insurgencies. This is especially true of the FARC-EP, which integrates women into its political and military structure in ways that give them a sense of participation, accomplishment and satisfaction. Without their contributions, including sexual services, the FARC could probably not survive. However, despite their favourable experiences, many women ultimately become disillusioned with the FARC's masculine culture and value system that fails to accommodate their aspirations as women.