Has "nation building" ever succeeded?


November 21, 2009 was a bad day for Afghanistan if you look at the news reports. That's nothing new. Afghanistan has had decades of bad days since the Soviet invasion and the civil war sustained by U.S. financial and intelligence efforts in partnership with the Pakistani intelligence community.

There are two assumptions that justify the essential role of the question in any further effort by the United States in Afghanistan. 100,000 of the finest troops in the world can't subjugate a nation of 31 million people indefinitely. In order to achieve the "mission," there must be a viable government with the motivation and ability to keep in check those forces dangerous to the U.S. These two assumptions form the criteria for"nation building" (or "state building").

If there are some examples of nation building as referents, then there might be some way to justify a further military and political presence. If there are no real examples of nation building, then the current administration's decision making process is based on an empty concept, one that merely justifies occupation and ongoing warfare based on deliberately unstated reasons.

Nation building defined

The Overseas Development Institute, a British think tank, defines nation building as follows:

In its simplest formulation, state-building, especially as understood by the international community since the 1990s, refers to the set of actions undertaken by national and/or international actors to establish, reform and strengthen state institutions where these have seriously been eroded or are missing (Caplan 2005). Key goals of state-building include provision of security, establishment of the rule of law, effective delivery of basic goods and services through functional formal state institutions, and generation of political legitimacy for the (new) set of state institutions being built (Brinkerhoff 2007). Understanding State-Building from a Political Economy Perspective Overseas Development Institute (ODI), Sep 2007 (p. 13)

ODI provides three transition points at which nation building begins:

Type I nation building occurs when an empire collapses and the remaining states need to rapidly develop their own systems of governance (e.g., the end of the Hapsburg Empire, British rule in India, and the Soviet Union's demise). Type II nation building occurred as colonies cut their formal ties with the English, French, etc. Modern African states are the most recent examples. Type III nation building is defined as states collapsing due to some crisis point or civil war (e.g., Afghanistan and Iraq).

ODI forgot to mention one critical trigger for Type III nation building: the bereft condition of nations that are invaded, crushed, and driven into chaos after an invasion by a larger power. Iraq is a good example of this, as is Afghanistan.

So, has "nation building" ever succeeded or is this just another example of the term simply a diversion from the real motivations behind any continued occupation of Afghanistan?


Michael Collins November 22, 2009 - 4:10am


Marina Ottaway Council on Foreign Relations, 2002

Nation Building Is a Quagmire

"Not necessarily. Nation building is difficult, but it need not become a quagmire as long as the effort has clear goals and sufficient resources. Compare Somalia and East Timor: The United States and the United Nations stumbled into Somalia without a plan. As a result, what began as a humanitarian mission to feed people starved by rival warlords became a misguided attempt at ad hoc nation building as U.S. troops sought to capture Somali warlord Mohammed Farah Aidid. ...

"In East Timor, by contrast, the international community followed a plan and was not dragged into a situation it could not control. Right from the start, the United Nations sought consensus for nation building by organizing an unprecedented plebiscite on independence from Indonesia."

Of course, the author left out this important fact, which she may not have known at the time:

UNITED NATIONS, Jan. 24, 2006 -- U.S. political and military support for Indonesia was vital to its ability to invade East Timor in December 1975 and to sustain a brutal 24-year occupation that cost the lives of at least 100,000 people, parts of a Timorese inquiry made public Tuesday show. Washington Post, Jan. 25, 2006

Nation building in East Timor was required by the now well documented U.S. assistance to the invaders of East Timor in the form of weapons, money, and political efforts.

In my opinion, nation building is just a euphemism for the mess created when great powers invade smaller nations. It's not a viable concept or even a term with any meaning.

Michael Collins November 22, 2009 - 4:40am

The place has a reputation for ethnic and religious fighting. The collapse of the Soviet empire leaves Yugoslavia in jeopardy, and eventually the confederation falls apart and Serbia begins a war of genocide on its neighbors. Europe is powerless to do anything, and years go by until the US decides to bomb the hell out of Milosevic's infantry. The Serbs sue for peace, and KFOR is created by the UN, Europe and the US to enforce peace. Peace is in fact enforced as several new nation states are created and Serbia licks its wounds and its losses. Milosevic is apprehended and tried, and now Karadzic as well.

I participated in three development programs in different parts of the Balkans this decade, so I have seen first hand the attempts by aid agencies and governments to build the national infrastructure of these new countries, and to train people to manage businesses and government.

On the whole, this nation building exercise seems to be working. You could make an argument that the animal spirits of ethnic cleansing and hatred had to work their evil thoroughly so that the entire region was exhausted and sick of war and atrocities, ready to welcome KFOR and the international community. But so was Afghanistan under the Taliban. What else was different, then? Proximity to Europe, the chance to join the EU and the euro? These probably made a big difference too, as well as the fact that Yugoslavia was not entirely a third world basket case, just a poor eastern European country that was semi-developed anyway in a planned economy way.

Still, whatever the factors, nation building in the Balkans has taken hold.

Numerian November 22, 2009 - 8:14am

Being sick of war seems to be the key difference between the Balkans and Afghanistan. Another difference is that the Balkans regions had an ethnic and cultural identity that provided a basis for cohesion. But in a very real sense, nations were built where they didn't exist. I'd suggest that the baseline was far higher in terms of an educated population and a willingness to accept a new government.

The proximity of the EU and benefits offered is a key difference between the Balkans and Afghanistan. What's the opportunity for the Afghans, integration with the economies of Iran and Pakistan? That's like moving from a tenet to a double wide; not a bad idea but low on the incentive scale.

Thanks for the insights.

Michael Collins November 22, 2009 - 4:39pm

...(all the relevant western and south asian populaces would appear to be thoroughly so, though there are powerful interests to the contrary) and whether anyone's ever started this far down the development chain before. Additionally, not so sure that either Iran or Pakistan want to integrate Afghanistan - traditionally they have used it as a buffer and I rather suspect that neither is feeling so frisky as to try to change that in any meaningful way - rather tends to lead to a zero sum game.

“The absence of any US-Iran bilateral channel...may have the perverse effect of reinforcing Iranian interest in progressing in the nuclear realm so that the US will be forced to take it seriously and engage it directly." ~ Richard Haass

JustPlainDave November 22, 2009 - 9:54pm

Japan.

Germany.

Italy.

Those countries are the reasons we even try to do it.

AMC November 22, 2009 - 12:48pm

those examples are somewhat different than more modern, and pertinent, examples. The biggest difference being all of those were actually defeated militarily before being rebuilt. They surrendered.

Lex November 22, 2009 - 2:03pm

Great examples but these were nations at the top of their form, they thought anyway, just years before the rebuilding process began. While they couldn't return to their prewar political systems, the lower level functionaries were still around to form the basis of an ongoing government.

The tragic history of war in Afghanistan since 1979 makes the prospects dim for any type of nation building. What does it take to build a nation after 29 years of widespread violence and destruction?

It's an awful choice for our "rulers" since we're the last standing of the warring factions over that 29 years. The nation building requirement articulated is a direct outcome of our handling of the occupation. If we simply leave without an alternative in place, we're saying 'Sorry for the coming bloodbath, but we're done.' But if the administration says that they can rebuild that nation based on past performance, they're not serious.

It's time for a heavily resourced international solution that involves Pakistan, India, and Iran at the forefront. That would involve people familiar with the Afghans and the region and would cost much less than whatever "new" program pops out of the White House sometime soon.

Michael Collins November 22, 2009 - 4:56pm

Maybe. It all depends on how the phrase is defined, what the end goal of the builders is, and various other things.

Is it likely? No, not at all. The biggest obstacle is that it requires massive amounts of money, time and dedication. The last two are the real sticking points for American nation building. Our nation building failures are similar to our imperial failures: we just don't have the attention span required by such projects.

I can't think of any good examples not sullied by nasty preconditions or massive failures papered over for the sake of narrative. Even the Balkans are not such a rousing success if you consider the penetration of organized crime in those supposedly rebuilt states.

Lex November 22, 2009 - 2:09pm

That's a key point. Why would we be expected to do anything different this time around?

The point on the Balkans is a good one with regard to Albania. All that bombing and diplomatic effort just to end up with a criminal state - http://www.ciroc.nl/presentaties/20061220%20arsovska.ppt

But we did get a mega base

with some major geopolitical advantages.
Michael Collins November 22, 2009 - 5:19pm

"They have no idea how to construct the institutions that the Japanese and Germans intuitively understood before they began rebuilding."

That's the perfecta - they can't do it and even if they could, the people wouldn't appreciate it as offered. The Afghans have the unadulterated right to the human dignity and political autonomy that the Germans and Japanese wanted. But the cultural basis for rebuilding, including education, plus the common goals of a viable nation, were so much stronger in the WWII nations than they are in Afghanistan today.

"they are stuck there ... they just don't want to publicly admit they don't know what the hell they are doing over there, much less how to gracefully get out of it."

It's like Peter Dale Scott says about 'deep' policies that get started and survive for years, disconnected from much outside realty; we just saddled up and did what we do without much thought about the evolution of the process or even the specific goals.

After all, if we'd just wanted to find bin Laden, we could have sent a couple of hearty guys with shovels.

Michael Collins November 22, 2009 - 5:37pm

But I am not sure they are the ones being articulated.

The science (for lack of a better word) of insurgency simply hadn't been developed in the mid-1940s. If it had, we might have seen a German insurgency that would have made the rebuilding of that country much more difficult. Instead, the resistance moved to Argentina.

In Japan, the changes were huge. The idea that the Japanese were somehow already on board with the changes that were made in that country is simply not the case. We can argue which factor was greater, but the hardships endured by the Japanese in the war may have left them less willing to continue any fight. But, more importantly, they had a system that was particularly vulnerable to change by military victory: the unique character of their religious beliefs.

Unlike the religious fanatics who believe in a god in heaven and a long departed messenger on earth (who can't be defeated), the Japanese believed that the Emperor was god - or at least, a god. A god who, by definition, could not lose. Yet, he lost. That caused tremendous dislocation for the Japanese people, and created a climate for looking favorably on the suggestions/orders of the conquerors. People don't make a transition, like (for example) the changes in the Japanese laws regarding women, without a heightened receptiveness to cultural change. They had that because their god, the Emperor, was defeated.

Further, the rebuilding after World War II was done under the direction of great men. Not Halliburtons, and men who distanced themselves from reality.

AMC November 22, 2009 - 6:39pm

The thing is that the German elites were aggressively integrated into the non-Soviet world and a large number of very bad Nazis got away through a well organized octopus -- South America and elsewhere.

The best - and often worst - scientists were brought into the US intelligence structures via Operation Paperclip in particular - for rocket research and psychological research as well. Allen Dulles was totally down with all of this, had been a fixer pretty friendly to Germany and its bankers all along.

Meanwhile there was also a 'Madrid Geopolitical Centre' which was set up in the mid 1940s as a kind of hegemonic backup plan. (described here)

The worst move in World War II's finale may have been trying to coopt Reinhard Gehlen, an SS general who claimed to have all the goods on a vast Soviet war machine. He was engaged in threat construction, the Soviets were weak, and he fed the new CIA lots of inflated BS (The CIA gave presidents virtually unedited, unsourced reports of Gehlen's concoctions). This was a key, key prop of the beginning of the Cold War - and it let authoritarians gain control over a huge array of resources in Washington. The 'missile gap' was, in part, a PSYOP run by Nazis!

Gehlen wouldn't let his buddies in Germany pull anything against the occupation force. The Madrid group center sent out a bulletin talking of how the Nazi remainders could play the US off the Soviets.

The Gehlen Organization ran for the CIA after World War II, but what happened to it? UK journalist Chris Story on Worldreports.org claims it became something called "DVD" associated with mystic Germanic authoritarian orders like Skull & Bones, other European elite schemes. Story also claims the EU is a revision of a Nazi-style geopolitik confederation proposed earlier. Likewise he says the Soviet Union's controlling elite 'folded back' and turned to economic warfare, bringing us the Russian mob, and a new EU that basically resembles the Soviet Union. [that new president guy they fabricated looks a lot like Gorbachev!]

Maybe it is too hopelessly naive to believe that these wicked structures and elite networks break apart or just turn into atomized guerrilla cells once America Wins. In Japan they let the Zaibatsu keep running, in Germany they let the SS guys build up again, and in Russia the KGB/GRU are still the central structures of the post-Soviet sphere. The PSYOPS expertise used against the American public today is a descendant of these programs imported after WWII.

--
Hongpong.com

HongPong November 22, 2009 - 8:23pm

Germany, Japan, and Italy (GJI) because:

(1) GJI had a relatively long tradition of state power that evolved within their borders and so were culturally amenable to the rebuilding of a new state apparatus from the ruins of the old. Maybe Italy's wasn't that long, but it was at least a domestic evolution. Iraq and Afghanistan originally had states placed on top of them by decaying empires (mostly the Brits). There was little domestic evolution of the cultural and societal mechanisms that underpin the functioning of a state apparatus.

(2) GJI had a state apparatus that was very much synonymous with national boundaries and identification. The case is a bit weaker in Italy than the other two, but all three states oversaw one nation of people. They were nation-states, unlike Iraq and Afghanistan, which were states that ruled over many nations/tribes/etc. Iraq and Afghanistan were (and still are) more akin to mini-empires wrapped in a state apparatus.

(3) This may be the most important. When the US was rebuilding GJI, it was doing so with one eye always watching Russia and the growing eastern bloc. The US had an incentive to get Germany, Japan, Italy, and all the rest of Europe back up to strength so that they could defend against Russia if the need arose. Notice that Western Germany and Japan, both right on the borders of Russia, became two of our closest allies after the war. On the other hand, the invasions of Iraq and Afghanistan were primarily for plunder, status/internal maneuvering of our domestic political elite, and enhancement of geopolitical dominance in the Middle East. Such motivations would inevitably lead to failure insofar as state building is concerned--there was no motivation to build a viable state in the aftermath, other than what was needed to maintain security for occupying forces and companies doing business. And that's all the US did.

Some combination of the above three best explains the differences between post-World War II and Iraq/Afghan nation building. I lean more heavily on (3) as the best explanation though.

I should also note that I think the entire debate about "does nation building work?" really should be preceded by a debate about when and where we have the right to intervene and "build" a nation. I would say that you could make a good case for post-WWII but Iraq and Afghanistan are pretty much indefensible since we were the aggressors and occupiers. (Though now that I think of it more, the case in WWII is not as clear cut. I still come down on the side of it being permissible though.)

Bolo November 22, 2009 - 9:51pm

The GJI material above argues very well against any serious comparison between WWII nation rebuilding and what's in store in the ME and South Asia.

"when and where we have the right to intervene and 'build' a nation."

That's the question the public should be asking, better yet screaming, the very next time there's an adventure planned. I would argue that the time is now thanks to Obama's "thoughtful" hesitation. We laid waste to Iraq and what have they received as a result of the 'liberation'-- an election or two and 1,000,000 less civilians able to enjoy the democracy that we provided. Afghanistan was in terrible shape when we arrived but just had to stay. As a result, things are no better than the shambles that we inherited. Through the magic of that special twist of logic, "American exceptionalism," there are actually those who propose that we fix things, e.g., nation building.

The notion that we get to invade other nations in the arrogant and bombastic fashion that we invaded Iraq is truly stunning. It betrays a fatal mind set. The initial action in Afghanistan made sense until bin Laden was given a green light to move on according to CIA agent Gary Bernsten. What was our point of being there?

Other than self defense, we need to stay home and mind our own business. I'll bet that Obama's insistence on Afghanistan as the "good war" is a key part in his recent drop below 50%. At this point, we can only "hope" for "change" in the very short term and expect some responsiveness in the mid term as the numbers slide down for ignoring campaign promises and the clear public will.

Michael Collins November 23, 2009 - 5:20am

One of the earliest and most-sustained nation building efforts of the u.s. government is Haiti. Of all the countries the U.S. has invaded, it has invaded Haiti the most. Of all the countries occupied by the U.S. it has been occupied the longest [except for the Hawaiian Islands 1893-date]. It is the model for U.S. intervention. "Nation-building" is a misleading term or at least an ill-defined term. It is "state-building". The U.S. could do some state-building in the U.S. Visit California while there still is one. Consider the condition of public schools in West Virginia. State-building is better done at home.

stevelaudig November 23, 2009 - 4:57am

...nation/state building there. Afghanistan is a conglomeration of tribes within and without the asinine political borders drawn by people who had no idea of what they were doing. Afghanistan is not "A" state or "A" nation recognized by it's own inhabitants.


"We're all of us children in a vast kindergarten trying to spell God's name with the wrong alphabet blocks." ~ Edwin Arlington Robinson

Celsius 233 November 23, 2009 - 5:58am

...in the early state formation of the 60's. That state was an elite construct, centred on the cities, particularly Kabul. What one then needs to do is figure out how to keep the countryside from strangling the nascent state in its crib, which is a bit of a trick in the particular situation of Afghanistan.

As to the folks who drew the borders not knowing what they were doing, they knew exactly what they were doing - they were seeking to make the formation of a state in their buffer zone difficult. I'd have to say they succeeded admirably. Similarly, I've heard any number of comments from folks out in RC East indicating that the guys who drew the line understood their military geography quite well all the commanding heights are on the Pakistani side of the line.

“The absence of any US-Iran bilateral channel...may have the perverse effect of reinforcing Iranian interest in progressing in the nuclear realm so that the US will be forced to take it seriously and engage it directly." ~ Richard Haass

JustPlainDave November 23, 2009 - 7:48am

I think it's important to factor in that before those nations were rebuilt (and i specifically did not write "before we rebuilt...") there was a war fought that defeated the militaries of all three on the battlefield. Official wars, official surrender ceremonies, and official occupations change everything.

I'm not sure how we can rebuild nations that we won't even admit to occupying. We didn't defeat the Afghan Army on the battlefield; we threw our lot in with militant groups fighting another militant group that had taken control of most of the geography. In Iraq we didn't bother actually destroying what was left of the Iraqi Army; we ran past it in order to declare victory in Baghdad.

While we may think that we can do nation building because of the post WWII examples of it, we fail to take into account the vastly different situations.

Most importantly, those rebuilding projects came with massive amounts of financial aid. Nation building on the cheap is never going to work...or expensive nation building where most of the money gets funneled back to the States through consultancies and contractors.

Frankly, we haven't actually tried to do any serious nation building in either Iraq or Afghanistan.

Lex November 23, 2009 - 8:43am

of the ends to those wars helped things along. I think that goes back to shared cultural and social constructs. As much as WWII threw out many of the agreed-upon rules of war, there were still a few very deep points of consensus about how reality worked among populations of both sides that enabled the wars to end and rebuilding to begin.

This is not to say that the current wars the US has started and continues are against people who are fundamentally different than us--only that the points of commonality do not cover the same ground that allowed for WWII to end as it did.

And I still think that the most important factor here is the self-interest of the US.

Bolo November 23, 2009 - 1:41pm

Nation building may have been a possibility in Iraq, but it has never been a realistic goal in Afghanistan and cannot now be accomplished by the United States in either country.

The principle problem with our participation is that we have installed two weak, corrupt puppet governments that are correctly viewed as illegitimate by the majority of citizens in both countries. These governments simply don't have the resources necessary to even provide the services expected of governments like electricity and water. And without the perception of legitimacy, providing security can only be accomplished by brutal oppression, something these governments also have no resources to accomplish. A 400,000-man army in Afghanistan? These people are reveling in the silliest of pipe-dream fantasies. An army that big would bankrupt that country.
Which brings us to the ultimate obstacle in Afghanistan: it is one of the poorest countries on earth with an infrastructure incapable of supporting industry or large-scale agriculture. The resources simply aren't there to have a powerful central government that can provide services and exercise authority and social control over the country.

Iraq is a much wealthier country and a different situation in that regard, but it is still saddled with an illegitimate puppet government that has failed to provide essential services to most of the country for 6+ years. Water trucks that go door to door are doing good business, because most of the country still doesn't even have running water.

No military escalation can force these nations to accept illegitimate puppet governments unless the resources and infrastructure are there to suppress the political will of the people, the situation you had in Iran after the CIA-encouraged coup that brought the Shah to power in 1953. Still, that government was overthrown some 20 years later. Saddam Hussein ran a similar type of client-state oppressive regime, though his government also invested heavily in services like healthcare and infrastructure, creating a level of legitimacy the Shah never enjoyed. But remember, the involvement of the U.S. in Hussein's rise to power and the preservation of the Baathist government was largely covert.

The Iraqis and Afghanis will never accept these governments we have imposed on them after invading their countries.

Mike B. November 23, 2009 - 11:39am

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