The Pulse of Humanitarian Assistance

8. Protecting Societies in Transition

8 Protecting Societies in Transition Geoff Loane, Lois Austin, and Pat Gibbons Introduction The end of the Cold War has resulted in an increase in the number and complexity of wars and political emergencies.1 While many conflicts have been brought to a conclusion in terms of the cessation of active hostilities, it is difficult to find an example of a society that has progressed to a desirable level of peace and stability . Instead, states tend to experience a period of stasis that features a number of characteristics that include an uncertain political institution, an economy skewed by the war effort, a fragmented society/societies with limited social capital, and continued suffering and need for protection. In essence, once active hostilities have ceased, a form of internal turmoil and discord continues. The period of time following the end of open warfare and leading into relative stability and peace (or in some cases reverting to conflict) is considered to be a period of transition.2 Many of the societies currently undergoing this ‘‘transition’’ have filled the global media for significant periods for all the wrong reasons. On an international or media interest level these same societies have now faded to insignificance despite probable violation of human rights and continued human suffering at different levels. This chapter examines the role of humanitarian nongovernmental organizations (NGOs) and international humanitarian organizations3 working with and in societies in transition. The following areas are presented: • An analysis of the background to current thinking on state failure ,4 collapse,5 and reconstruction; 180 GEOFF LOANE, LOIS AUSTIN, AND PAT GIBBONS • A thesis on the evolving scope of the NGO and humanitarian sector given its status in the hierarchy of external stakeholders, including an outline of two conceptual frameworks for working with societies in transition • The legal institutional model • The social development (assistance) model, and • A practical example that combines these models as applied by the International Committee of the Red Cross (ICRC) in Serbia and Montenegro. State Failure, Collapse, and Reconstruction The state concept can be characterized as a territory and its people organized under an effective government, with associated social institutions. ‘‘Statism’’ is a Western concept that has its origin in the 1648 Treaty of Westphalia when, following thirty years of conflict, agreement was reached to carve up Europe into a number of territorial entities and the de jure state was born. The state concept has become a global norm and the reference point for global economic, political, and cultural interaction. State formation continues as a work in progress for all of the approximately 190 states that are recognized today. The primacy of statehood is mirrored in the associated concept of ‘‘sovereignty’’ that confers the government of the state with supremacy of power and authority over its territory and people. This universal state project has been facilitated by global processes , somewhat linked to conflict, including: • colonialism—as tens of millions of mainly Europeans settled all over the world, especially in the United States; • industrialization—as improved technologies enhanced the governance function (where technologies existed); • the dissolution of empires at the end of World War I and the formation of new states in Central, Eastern, and Southern Europe; • the end of World War II, which brought an end to the colonial era and the establishment of dozens of independent states in Asia, the Middle East, and Africa; • the end of the Cold War, which signified the end of an era shrouded in the fear of global war between the two superpowers and the promise of a new world order; and PROTECTING SOCIETIES IN TRANSITION 181 • since the end of World War II, the U.S.-sponsored UN system, which reflects the collective will of the community of states to enshrine, defend, and promote statehood. Every habitable corner of the globe has claims of sovereignty by one or more parties.6 The majority of relatively young and de jure states have been granted their independence, often following protracted struggles.7 Efforts by authorities to earn de facto status have frequently proved difficult, often resulting in con- flict and violence, death and destruction. Increasingly, however, while some states strive for sovereignty and self-determination, others are embracing the global project and find themselves collaborating with regional neighbors aimed at enhancing their global economic advantage. The net effect of this global project is a sharing of decision making...