Luận án Shahar Hameiri: Quản lý rủi ro & chuyển đổi nhà nước hậu Chiến tranh Lạnh

STATE BUILDING OR STATE TRANSFORMATION? RISK MANAGEMENT AT THE FRINGES OF THE GLOBAL ORDER SHAHAR HAMEIRI BA (HONOURS) This thesis is presented for the degree of Doctor of Philosophy of Murdoch University 2009 Abstract This thesis develops a new framework for explaining the effects and possible trajectories of state building interventions (SBIs). This is for both examining specific interventions and learning about the precise nature of the post-Cold War global order – how power is distributed, exercised, constrained and challenged within and between states. In the post-Cold War years, but particularly since the September 11 2001 terrorist attacks, so-called failed states have become a central security concern for policymakers. In tandem, there has been an influx of practitioner and scholarly interest in international ‘state building’.

Prevalent approaches to state building are premised on a static conception of the state and therefore seek to evaluate SBIs in terms of whether they help create ‘more’ or ‘less’ state. In contrast, this thesis examines SBIs as a new mode of governance in the global political economy that is transformative of both intervened and intervening states, leading to the creation of a transnationalising and transnationally regulated form of statehood. Based on a conception of the state as a site of social and political struggle this study examines the ways in which SBIs affect the distribution, production and reproduction of political power in intervened states: Who rules and how? What social and political conflicts are engendered or exacerbated by SBIs, and how are they managed? What alliances and coalitions support the production/reproduction of power relationships associated with SBIs? The thesis provides a conceptual framework for understanding the complex governance terrain SBIs open up. SBIs are conceptualised as multilevel regimes – sets of social and political relationships, institutions and ideas – that exist simultaneously within and outside intervened states.

While preserving the formal sovereignty of intervened states, these regimes are nevertheless established to shape political outcomes by limiting the political choices available to domestic leaders. This is operationalised by opening up and shifting power to multilevel spaces of governance within the apparatus of these countries. Through case studies from Australia, Solomon Islands and Cambodia, the thesis analyses the politics of SBIs and their broader implications for contemporary statehood. Ultimately it establishes that regardless of whether SBIs are successful or otherwise in achieving their stated objectives they are associated with the emergence of increasingly authoritarian, hierarchical and anti-competitive forms of political rule, both within and between states.

v Table of Contents Abstract. v Table of Contents. 1 Case study selection and approach .8 Chapter One Contemporary Approaches to State Building and Their Limitations: Towards a New Framework. 13 Evaluating the effects of state building interventions: Current debates and their limitations.

15 The capacity building debate. 16 The sovereignty debate. 31 State building interventions: towards a new approach. 45 Chapter Two State Building Interventions as Risk Management: State Transformation and Multilevel Regimes.

47 Risk management and state transformation. 49 State building interventions as multilevel regimes: conceptual and theoretical issues. 57 State building and legal exceptionalism: the ever-changing demands of risk management. 74 Chapter Three The Emergence of State Building: State Transformation and the Globalisation of Risk.

77 The failure of the humanitarian interventions of the early 1990s. 81 The return to the state in development theory and policy. 88 Neoliberalism and the transformation of Western states. 96 The globalisation of risk and the localisation of risk management.

110 Chapter Four Who Intervenes and Why? State Transformation and Meta- Governance. 113 Actors and multilevel regimes. 117 Public actors in state building interventions. 124 Private actors in state building interventions.

127 vi Nongovernmental organisations. 135 Private Military Companies and the Privatisation of Security. 141 Chapter Five The Australian Federal Police and the (Meta) Governance of Disorder in the Australian State’s New Regional Frontier. 143 The Australian state and the Australian Federal Police.

146 The neoliberalisation of the Australian state: disaggregation and new modes of coordination. 147 Whole of government and the Australian national security apparatus. 151 The AFP’s new policy role and accountability requirements. 153 The International Deployment Group and the Australian state’s new frontiers.

159 The contours of the Australian state’s regionalisation. 160 The AFP and Australian regionalisation. 168 IDG operations and the limits to regulatory regionalisation in practice. 175 Chapter Six The Regional Assistance Mission to Solomon Islands: State Transformation and Its Limitations.

179 RAMSI and its critics. 182 State transformation and RAMSI: politics as risk, anti-politics as risk management. 194 The limits to RAMSI’s state transformation: bringing politics back in. 216 Chapter Seven One State, Two Regimes, No Conflict? Patronage, State Building, and the Anti-Pluralist Politics of Stability in Cambodia.

219 Cambodia’s regime of ‘transformed’ patronage. 223 International intervention and political liberalisation in Cambodia. 232 State building in Cambodia: good governance, coordination and the consolidation of Hun Sen’s rule. 261 vii Abbreviations ADB Asian Development Bank ADF Australian Defence Force AFP Australian Federal Police ANU Australian National University ASEAN Association of Southeast Asian Nations ASIO Australian Security Intelligence Organisation ASOSAI Asian Association of Supreme Audit Institutions AusAID Australian Agency for International Development BiH Bosnia and Herzegovina CDC Council for the Development of Cambodia CDCF Cambodia Development Cooperation Board CG Consultative Group CGDK Coalition Government of Democratic Kampuchea CIVPOL Civilian Police COAG Council of Australian Governments CPIA Country Policy and Institutional Assessment CPP Cambodian People’s Party CPR Conflict Prevention and Reconstruction Unit CRDB Cambodia Rehabilitation and Development Board DAC Development Assistance Committee Danida Danish International Development Agency DFAT Department of Foreign Affairs and Trade DfID Department for International Development ECP Enhanced Cooperation Program EPG Eminent Persons Group ERU Economic Reform Unit EU European Union FIA Facilitation of International Assistance FUNCINPEC Front Uni National pour un Cambodge Indépendent, Neutre, Pacifique et Coopératif HNP Haiti National Police GAP Governance Action Plan viii GDCC Government-Donor Coordination Committee GDP Gross domestic product GEMAP Governance and Economic Management Assistance Program GTZ German Technical Cooperation ICC International consultancy company ICISS International Commission on Intervention and State Sovereignty ICRC International Committee of the Red Cross IDC Interdepartmental committee IDG International Deployment Group IFI International financial institution IFM Isatabu Freedom Movement IMF International Monetary Fund INGO International nongovernmental organisation INTOSAI International Organisation of Supreme Audit Institutions JMI Joint monitoring indicators KPNLF Khmer People’s National Liberation Front LICUS Low-income countries under stress MEF Malaita Eagle Force MINUSTAH United Nations Stabilisation Mission in Haiti MoFT Ministry of Finance and Treasury NAA National Audit Authority NIE New Institutional Economics NGO Nongovernmental organisation NPM New public management NSC National Security Committee of Cabinet NSS National Security Strategy NT Northern Territory OAG Office of the Auditor-General ODA Official development assistance OECD Organisation for Economic Cooperation and Development PAC Public Accounts Committee PGSP Pacific Governance Support Program PIF Pacific Islands Forum PIU Project implementation unit ix PM&C Department of the Prime Minister and Cabinet PMC Private military company PNG Papua New Guinea PPF Participating Police Force PRAN Pacific Regional Assistance to Nauru PRPK People’s Revolutionary Party of Kampuchea PSC Private security company PSRP Public Sector Restructuring Program PWC Post-Washington Consensus RAMSI Regional Assistance Mission to Solomon Islands RCAF Royal Cambodian Armed Forces RSIP Royal Solomon Islands Police SAP Structural adjustment program SBI State building intervention SCNS Secretaries Committee on National Security S/CRS Coordinator for Reconstruction and Stabilization SOE State-owned enterprise SPASAI South Pacific Association of Supreme Audit Institutions SRP Sam Rainsy Party SSR Security sector reform TNC Transnational corporation TPA Townsville Peace Agreement TWF Technical Working Group UN United Nations UNDP United Nations Development Programme UNSC United Nations Security Council UNTAC United Nations Transitional Authority in Cambodia US United States USAID United States Agency for International Development WofG Whole of government x Acknowledgements When I submit this thesis only one name will be printed under the (admittedly long) title.

However, it would not have come about without the support, knowledge and energy of the people mentioned below. It is often said that writing a thesis is a lonely task, but I am glad to say that my experience has been a different one. The past three years have been exceptionally eventful. In February 2007 my wife, Meggan, and I celebrated the birth of our firstborn son, Joshua, while in July 2008, we were overjoyed at the arrival of his brother, Theo.

Somehow, between dirty nappies and sleepless nights I managed to write a thesis and a few articles, and have some fun in the process too! It is difficult to overestimate the importance of academic supervisors to thesis- writing. I feel that I have been particularly fortunate to have on my side two fantastic supervisors, Professor Garry Rodan and Dr Kanishka Jayasuriya. For Garry and Kanishka academic work is not a job, but a vocation. Their genuine intellectual curiosity and rigour have been truly inspirational to this young(ish) would-be academic.

Garry and Kanishka did more then help me write a thesis – they welcomed me into an intellectual community and made me feel part of the team from day one. I cannot count the number of times we chatted casually in the corridor about work-related and other issues. Few postgraduates have had a similar relationship with their academic supervisors. For all they have done to make this thesis happen and make me the researcher I am today, I am deeply grateful.

There are numerous colleagues that I would like to thank for their help in preparing the thesis and, perhaps more importantly, for their friendship. At the Asia Research Centre, my intellectual home for the past four years (I also wrote my honours thesis under the supervision of Professor Rodan and worked as a research assistant in the Centre), I would like to acknowledge Dr Toby Carroll, Dr Ian Wilson, Dr Sid Adams, Dr Jane Hutchison, Dr Caroline Hughes, Professor Richard Robison, Dr Carolin Liss, Stuart Latter, Dr Miyume Tanji, Martin Gwyn-Fawke and David Flynn. A special mention is reserved to the Centre’s administrative officer, Tamara Dent, for her commitment to making the university’s impenetrable bureaucracy more manageable to postgrads. Most importantly, however, Tamara has helped me keep my sanity in the final days by assisting with thesis layout and formatting.

Outside the Asia Research Centre, I would like to acknowledge fellow Murdoch University postgraduate students and good friends William Clapton, Katie Atwell and Dave Mickler. Beyond Murdoch xi University I would like to mention Dr Marcos Berger, Dr Andrew Rosser, Jan Bachmann, Grant Walton and Dr Sinclair Dinnen. I apologise to numerous other colleagues from around the world who could not be mentioned in name due to the scarcity of space. In the course of my fieldwork trips to Solomon Islands, Canberra and Cambodia, many people – too many to mention here – went out of their way to help me develop my research.

I am indebted to the RAMSI officials, AFP officers, NGO workers, bureaucrats, journalists, politicians, development practitioners and many others, who took time to talk to me – without whom this thesis would have been impossible to write. I would particularly like to mention my dear friend Willie Atu, from Naha, Solomon Islands, who graciously welcomed me into his wonderful family and community. Finally, I would not be where I am today without my family. My Ima and Aba, Sara and Ze’ev Hameiri, from Netanya, Israel, instilled in me a love of knowledge and learning from a very young age and have always supported me in all my endeavours.

My brother, Boaz, too, has always been there for me. I am also greatly indebted to my father- and mother-in-law, John and Kathleen Colley, who have helped me in so many ways I could not possibly hope to ever repay.