Showing posts with label Kudakwashe Kanhutu. Show all posts
Showing posts with label Kudakwashe Kanhutu. Show all posts

Tuesday, 22 August 2017

The Essence Of Law


"If you want to know the law and nothing else, you must look at it as a bad man, who cares only for the material consequences which such knowledge enables him to predict, not as a good one, who finds his reasons for conduct, whether inside the law or outside of it, in the vaguer sanctions of conscience" - Oliver Wendell Holmes Jr.

Myself, at the Durham Law School, I took some international law instruction from this school, but I am a Durham School Of Government And International Affairs guy through and through.

A recent high profile assault case dismayed me, not because of the facts of the case, but because of the wild commentary coming from my compatriots regarding the path the law would take. What I observed was how easily my fellow Zimbabweans were being swayed into false analysis by the sensationalist headlines. Media headlines are mostly just noise, the discerning person just goes to the essence of the matter by referring to what the letter of the law says on the matter. This did not happen with the Zimbabweans. My dismay then, stems from the fact that I was convinced Zimbabweans, in the main, are a discerning and well educated people. I doubt that very much since.

I also know that it takes at least 4 years to be an expert at law, I am no expert, but I read one paper that insisted that I always look for essences when I want to predict the path of the law. The paper was The Path Of The Law by one of the United States of America's brilliant jurists - Oliver Wendell Holmes Jr. It was quite fortuitous too, how I found this paper: we shared a library computer room with Kent Law School students when I was at the University Of Kent. A Law School student printed this paper and must have forgotten to collect it, for as I was collecting my own Strategic Studies papers at closing time, I found this paper among my printing when I got home. I read it, and it enlarged my mind. I reproduce the same paper here, in the hope that you will also extract the same value from it as I did.   


Kudakwashe Kanhutu
The British Library
London
22nd August 2017

The Path of the Law
by Oliver Wendell Holmes, Jr.
10 Harvard Law Review 457 (1897)

When we study law we are not studying a mystery but a well-known profession. We are studying what we shall want in order to appear before judges, or to advise people in such a way as to keep them out of court. The reason why it is a profession, why people will pay lawyers to argue for them or to advise them, is that in societies like ours the command of the public force is intrusted to the judges in certain cases, and the whole power of the state will be put forth, if necessary, to carry out their judgments and decrees. People want to know under what circumstances and how far they will run the risk of coming against what is so much stronger than themselves, and hence it becomes a business to find out when this danger is to be feared. The object of our study, then, is prediction, the prediction of the incidence of the public force through the instrumentality of the courts.

The means of the study are a body of reports, of treatises, and of statutes, in this country and in England, extending back for six hundred years, and now increasing annually by hundreds. In these sibylline leaves are gathered the scattered prophecies of the past upon the cases in which the axe will fall. These are what properly have been called the oracles of the law. Far the most important and pretty nearly the whole meaning of every new effort of legal thought is to make these prophecies more precise, and to generalize them into a thoroughly connected system. The process is one, from a lawyer's statement of a case, eliminating as it does all the dramatic elements with which his client's story has clothed it, and retaining only the facts of legal import, up to the final analyses and abstract universals of theoretic jurisprudence. The reason why a lawyer does not mention that his client wore a white hat when he made a contract, while Mrs. Quickly would be sure to dwell upon it along with the parcel gilt goblet and the sea-coal fire, is that he foresees that the public force will act in the same way whatever his client had upon his head. It is to make the prophecies easier to be remembered and to be understood that the teachings of the decisions of the past are put into general propositions and gathered into textbooks, or that statutes are passed in a general form. The primary rights and duties with which jurisprudence busies itself again are nothing but prophecies. One of the many evil effects of the confusion between legal and moral ideas, about which I shall have something to say in a moment, is that theory is apt to get the cart before the horse, and consider the right or the duty as something existing apart from and independent of the consequences of its breach, to which certain sanctions are added afterward. But, as I shall try to show, a legal duty so called is nothing but a prediction that if a man does or omits certain things he will be made to suffer in this or that way by judgment of the court; and so of a legal right.

The number of our predictions when generalized and reduced to a system is not unmanageably large. They present themselves as a finite body of dogma which may be mastered within a reasonable time. It is a great mistake to be frightened by the ever-increasing number of reports. The reports of a given jurisdiction in the course of a generation take up pretty much the whole body of the law, and restate it from the present point of view. We could reconstruct the corpus from them if all that went before were burned. The use of the earlier reports is mainly historical, a use about which I shall have something to say before I have finished.

I wish, if I can, to lay down some first principles for the study of this body of dogma or systematized prediction which we call the law, for men who want to use it as the instrument of their business to enable them to prophesy in their turn, and, as bearing upon the study, I wish to point out an ideal which as yet our law has not attained.

The first thing for a businesslike understanding of the matter is to understand its limits, and therefore I think it desirable at once to point out and dispel a confusion between morality and law, which sometimes rises to the height of conscious theory, and more often and indeed constantly is making trouble in detail without reaching the point of consciousness. You can see very plainly that a bad man has as much reason as a good one for wishing to avoid an encounter with the public force, and therefore you can see the practical importance of the distinction between morality and law. A man who cares nothing for an ethical rule which is believed and practised by his neighbors is likely nevertheless to care a good deal to avoid being made to pay money, and will want to keep out of jail if he can.

I take it for granted that no hearer of mine will misinterpret what I have to say as the language of cynicism. The law is the witness and external deposit of our moral life. Its history is the history of the moral development of the race. The practice of it, in spite of popular jests, tends to make good citizens and good men. When I emphasize the difference between law and morals I do so with reference to a single end, that of learning and understanding the law. For that purpose you must definitely master its specific marks, and it is for that that I ask you for the moment to imagine yourselves indifferent to other and greater things.

I do not say that there is not a wider point of view from which the distinction between law and morals becomes of secondary or no importance, as all mathematical distinctions vanish in presence of the infinite. But I do say that that distinction is of the first importance for the object which we are here to consider — a right study and mastery of the law as a business with well understood limits, a body of dogma enclosed within definite lines. I have just shown the practical reason for saying so. If you want to know the law and nothing else, you must look at it as a bad man, who cares only for the material consequences which such knowledge enables him to predict, not as a good one, who finds his reasons for conduct, whether inside the law or outside of it, in the vaguer sanctions of conscience. The theoretical importance of the distinction is no less, if you would reason on your subject aright. The law is full of phraseology drawn from morals, and by the mere force of language continually invites us to pass from one domain to the other without perceiving it, as we are sure to do unless we have the boundary constantly before our minds. The law talks about rights, and duties, and malice, and intent, and negligence, and so forth, and nothing is easier, or, I may say, more common in legal reasoning, than to take these words in their moral sense, at some state of the argument, and so to drop into fallacy. For instance, when we speak of the rights of man in a moral sense, we mean to mark the limits of interference with individual freedom which we think are prescribed by conscience, or by our ideal, however reached. Yet it is certain that many laws have been enforced in the past, and it is likely that some are enforced now, which are condemned by the most enlightened opinion of the time, or which at all events pass the limit of interference, as many consciences would draw it. Manifestly, therefore, nothing but confusion of thought can result from assuming that the rights of man in a moral sense are equally rights in the sense of the Constitution and the law. No doubt simple and extreme cases can be put of imaginable laws which the statute-making power would not dare to enact, even in the absence of written constitutional prohibitions, because the community would rise in rebellion and fight; and this gives some plausibility to the proposition that the law, if not a part of morality, is limited by it. But this limit of power is not coextensive with any system of morals. For the most part it falls far within the lines of any such system, and in some cases may extend beyond them, for reasons drawn from the habits of a particular people at a particular time. I once heard the late Professor Agassiz say that a German population would rise if you added two cents to the price of a glass of beer. A statute in such a case would be empty words, not because it was wrong, but because it could not be enforced. No one will deny that wrong statutes can be and are enforced, and we would not all agree as to which were the wrong ones.

The confusion with which I am dealing besets confessedly legal conceptions. Take the fundamental question, What constitutes the law? You will find some text writers telling you that it is something different from what is decided by the courts of Massachusetts or England, that it is a system of reason, that it is a deduction from principles of ethics or admitted axioms or what not, which may or may not coincide with the decisions. But if we take the view of our friend the bad man we shall find that he does not care two straws for the axioms or deductions, but that he does want to know what the Massachusetts or English courts are likely to do in fact. I am much of this mind. The prophecies of what the courts will do in fact, and nothing more pretentious, are what I mean by the law.

Take again a notion which as popularly understood is the widest conception which the law contains — the notion of legal duty, to which already I have referred. We fill the word with all the content which we draw from morals. But what does it mean to a bad man? Mainly, and in the first place, a prophecy that if he does certain things he will be subjected to disagreeable consequences by way of imprisonment or compulsory payment of money. But from his point of view, what is the difference between being fined and taxed a certain sum for doing a certain thing? That his point of view is the test of legal principles is proven by the many discussions which have arisen in the courts on the very question whether a given statutory liability is a penalty or a tax. On the answer to this question depends the decision whether conduct is legally wrong or right, and also whether a man is under compulsion or free. Leaving the criminal law on one side, what is the difference between the liability under the mill acts or statutes authorizing a taking by eminent domain and the liability for what we call a wrongful conversion of property where restoration is out of the question. In both cases the party taking another man's property has to pay its fair value as assessed by a jury, and no more. What significance is there in calling one taking right and another wrong from the point of view of the law? It does not matter, so far as the given consequence, the compulsory payment, is concerned, whether the act to which it is attached is described in terms of praise or in terms of blame, or whether the law purports to prohibit it or to allow it. If it matters at all, still speaking from the bad man's point of view, it must be because in one case and not in the other some further disadvantages, or at least some further consequences, are attached to the act by law. The only other disadvantages thus attached to it which I ever have been able to think of are to be found in two somewhat insignificant legal doctrines, both of which might be abolished without much disturbance. One is, that a contract to do a prohibited act is unlawful, and the other, that, if one of two or more joint wrongdoers has to pay all the damages, he cannot recover contribution from his fellows. And that I believe is all. You see how the vague circumference of the notion of duty shrinks and at the same time grows more precise when we wash it with cynical acid and expel everything except the object of our study, the operations of the law.

Nowhere is the confusion between legal and moral ideas more manifest than in the law of contract. Among other things, here again the so-called primary rights and duties are invested with a mystic significance beyond what can be assigned and explained. The duty to keep a contract at common law means a prediction that you must pay damages if you do not keep it — and nothing else. If you commit a tort, you are liable to pay a compensatory sum. If you commit a contract, you are liable to pay a compensatory sum unless the promised event comes to pass, and that is all the difference. But such a mode of looking at the matter stinks in the nostrils of those who think it advantageous to get as much ethics into the law as they can. It was good enough for Lord Coke, however, and here, as in many others cases, I am content to abide with him. In Bromage v. Genning, a prohibition was sought in the Kings' Bench against a suit in the marches of Wales for the specific performance of a covenant to grant a lease, and Coke said that it would subvert the intention of the covenantor, since he intends it to be at his election either to lose the damages or to make the lease. Sergeant Harra for the plaintiff confessed that he moved the matter against his conscience, and a prohibition was granted. This goes further than we should go now, but it shows what I venture to say has been the common law point of view from the beginning, although Mr. Harriman, in his very able little book upon Contracts has been misled, as I humbly think, to a different conclusion.

I have spoken only of the common law, because there are some cases in which a logical justification can be found for speaking of civil liabilities as imposing duties in an intelligible sense. These are the relatively few in which equity will grant an injunction, and will enforce it by putting the defendant in prison or otherwise punishing him unless he complies with the order of the court. But I hardly think it advisable to shape general theory from the exception, and I think it would be better to cease troubling ourselves about primary rights and sanctions altogether, than to describe our prophecies concerning the liabilities commonly imposed by the law in those inappropriate terms.

I mentioned, as other examples of the use by the law of words drawn from morals, malice, intent, and negligence. It is enough to take malice as it is used in the law of civil liability for wrongs what we lawyers call the law of torts — to show that it means something different in law from what it means in morals, and also to show how the difference has been obscured by giving to principles which have little or nothing to do with each other the same name. Three hundred years ago a parson preached a sermon and told a story out of Fox's Book of Martyrs of a man who had assisted at the torture of one of the saints, and afterward died, suffering compensatory inward torment. It happened that Fox was wrong. The man was alive and chanced to hear the sermon, and thereupon he sued the parson. Chief Justice Wray instructed the jury that the defendant was not liable, because the story was told innocently, without malice. He took malice in the moral sense, as importing a malevolent motive. But nowadays no one doubts that a man may be liable, without any malevolent motive at all, for false statements manifestly calculated to inflict temporal damage. In stating the case in pleading, we still should call the defendant's conduct malicious; but, in my opinion at least, the word means nothing about motives, or even about the defendant's attitude toward the future, but only signifies that the tendency of his conduct under known circumstances was very plainly to cause the plaintiff temporal harm.

In the law of contract the use of moral phraseology led to equal confusion, as I have shown in part already, but only in part. Morals deal with the actual internal state of the individual's mind, what he actually intends. From the time of the Romans down to now, this mode of dealing has affected the language of the law as to contract, and the language used has reacted upon the thought. We talk about a contract as a meeting of the minds of the parties, and thence it is inferred in various cases that there is no contract because their minds have not met; that is, because they have intended different things or because one party has not known of the assent of the other. Yet nothing is more certain than that parties may be bound by a contract to things which neither of them intended, and when one does not know of the other's assent. Suppose a contract is executed in due form and in writing to deliver a lecture, mentioning no time. One of the parties thinks that the promise will be construed to mean at once, within a week. The other thinks that it means when he is ready. The court says that it means within a reasonable time. The parties are bound by the contract as it is interpreted by the court, yet neither of them meant what the court declares that they have said. In my opinion no one will understand the true theory of contract or be able even to discuss some fundamental questions intelligently until he has understood that all contracts are formal, that the making of a contract depends not on the agreement of two minds in one intention, but on the agreement of two sets of external signs — not on the parties' having meant the same thing but on their having said the same thing. Furthermore, as the signs may be addressed to one sense or another — to sight or to hearing — on the nature of the sign will depend the moment when the contract is made. If the sign is tangible, for instance, a letter, the contract is made when the letter of acceptance is delivered. If it is necessary that the minds of the parties meet, there will be no contract until the acceptance can be read; none, for example, if the acceptance be snatched from the hand of the offerer by a third person.

This is not the time to work out a theory in detail, or to answer many obvious doubts and questions which are suggested by these general views. I know of none which are not easy to answer, but what I am trying to do now is only by a series of hints to throw some light on the narrow path of legal doctrine, and upon two pitfalls which, as it seems to me, lie perilously near to it. Of the first of these I have said enough. I hope that my illustrations have shown the danger, both to speculation and to practice, of confounding morality with law, and the trap which legal language lays for us on that side of our way. For my own part, I often doubt whether it would not be a gain if every word of moral significance could be banished from the law altogether, and other words adopted which should convey legal ideas uncolored by anything outside the law. We should lose the fossil records of a good deal of history and the majesty got from ethical associations, but by ridding ourselves of an unnecessary confusion we should gain very much in the clearness of our thought.

So much for the limits of the law. The next thing which I wish to consider is what are the forces which determine its content and its growth. You may assume, with Hobbes and Bentham and Austin, that all law emanates from the sovereign, even when the first human beings to enunciate it are the judges, or you may think that law is the voice of the Zeitgeist, or what you like. It is all one to my present purpose. Even if every decision required the sanction of an emperor with despotic power and a whimsical turn of mind, we should be interested none the less, still with a view to prediction, in discovering some order, some rational explanation, and some principle of growth for the rules which he laid down. In every system there are such explanations and principles to be found. It is with regard to them that a second fallacy comes in, which I think it important to expose.

The fallacy to which I refer is the notion that the only force at work in the development of the law is logic. In the broadest sense, indeed, that notion would be true. The postulate on which we think about the universe is that there is a fixed quantitative relation between every phenomenon and its antecedents and consequents. If there is such a thing as a phenomenon without these fixed quantitative relations, it is a miracle. It is outside the law of cause and effect, and as such transcends our power of thought, or at least is something to or from which we cannot reason. The condition of our thinking about the universe is that it is capable of being thought about rationally, or, in other words, that every part of it is effect and cause in the same sense in which those parts are with which we are most familiar. So in the broadest sense it is true that the law is a logical development, like everything else. The danger of which I speak is not the admission that the principles governing other phenomena also govern the law, but the notion that a given system, ours, for instance, can be worked out like mathematics from some general axioms of conduct. This is the natural error of the schools, but it is not confined to them. I once heard a very eminent judge say that he never let a decision go until he was absolutely sure that it was right. So judicial dissent often is blamed, as if it meant simply that one side or the other were not doing their sums right, and if they would take more trouble, agreement inevitably would come.

This mode of thinking is entirely natural. The training of lawyers is a training in logic. The processes of analogy, discrimination, and deduction are those in which they are most at home. The language of judicial decision is mainly the language of logic. And the logical method and form flatter that longing for certainty and for repose which is in every human mind. But certainty generally is illusion, and repose is not the destiny of man. Behind the logical form lies a judgment as to the relative worth and importance of competing legislative grounds, often an inarticulate and unconscious judgment, it is true, and yet the very root and nerve of the whole proceeding. You can give any conclusion a logical form. You always can imply a condition in a contract. But why do you imply it? It is because of some belief as to the practice of the community or of a class, or because of some opinion as to policy, or, in short, because of some attitude of yours upon a matter not capable of exact quantitative measurement, and therefore not capable of founding exact logical conclusions. Such matters really are battle grounds where the means do not exist for the determinations that shall be good for all time, and where the decision can do no more than embody the preference of a given body in a given time and place. We do not realize how large a part of our law is open to reconsideration upon a slight change in the habit of the public mind. No concrete proposition is self evident, no matter how ready we may be to accept it, not even Mr. Herbert Spencer's "Every man has a right to do what he wills, provided he interferes not with a like right on the part of his neighbors."

Why is a false and injurious statement privileged, if it is made honestly in giving information about a servant? It is because it has been thought more important that information should be given freely, than that a man should be protected from what under other circumstances would be an actionable wrong. Why is a man at liberty to set up a business which he knows will ruin his neighborhood? It is because the public good is supposed to be best subserved by free competition. Obviously such judgments of relative importance may vary in different times and places. Why does a judge instruct a jury that an employer is not liable to an employee for an injury received in the course of his employment unless he is negligent, and why do the jury generally find for the plaintiff if the case is allowed to go to them? It is because the traditional policy of our law is to confine liability to cases where a prudent man might have foreseen the injury, or at least the danger, while the inclination of a very large part of the community is to make certain classes of persons insure the safety of those with whom they deal. Since the last words were written, I have seen the requirement of such insurance put forth as part of the programme of one of the best known labor organizations. There is a concealed, half conscious battle on the question of legislative policy, and if any one thinks that it can be settled deductively, or once for all, I only can say that I think he is theoretically wrong, and that I am certain that his conclusion will not be accepted in practice semper ubique et ab omnibus.

Indeed, I think that even now our theory upon this matter is open to reconsideration, although I am not prepared to say how I should decide if a reconsideration were proposed. Our law of torts comes from the old days of isolated, ungeneralized wrongs, assaults, slanders, and the like, where the damages might be taken to lie where they fell by legal judgment. But the torts with which our courts are kept busy today are mainly the incidents of certain well known businesses. They are injuries to person or property by railroads, factories, and the like. The liability for them is estimated, and sooner or later goes into the price paid by the public. The public really pays the damages, and the question of liability, if pressed far enough, is really a question how far it is desirable that the public should insure the safety of one whose work it uses. It might be said that in such cases the chance of a jury finding for the defendant is merely a chance, once in a while rather arbitrarily interrupting the regular course of recovery, most likely in the case of an unusually conscientious plaintiff, and therefore better done away with. On the other hand, the economic value even of a life to the community can be estimated, and no recovery, it may be said, ought to go beyond that amount. It is conceivable that some day in certain cases we may find ourselves imitating, on a higher plane, the tariff for life and limb which we see in the Leges Barbarorum.

I think that the judges themselves have failed adequately to recognize their duty of weighing considerations of social advantage. The duty is inevitable, and the result of the often proclaimed judicial aversion to deal with such considerations is simply to leave the very ground and foundation of judgments inarticulate, and often unconscious, as I have said. When socialism first began to be talked about, the comfortable classes of the community were a good deal frightened. I suspect that this fear has influenced judicial action both here and in England, yet it is certain that it is not a conscious factor in the decisions to which I refer. I think that something similar has led people who no longer hope to control the legislatures to look to the courts as expounders of the constitutions, and that in some courts new principles have been discovered outside the bodies of those instruments, which may be generalized into acceptance of the economic doctrines which prevailed about fifty years ago, and a wholesale prohibition of what a tribunal of lawyers does not think about right. I cannot but believe that if the training of lawyers led them habitually to consider more definitely and explicitly the social advantage on which the rule they lay down must be justified, they sometimes would hesitate where now they are confident, and see that really they were taking sides upon debatable and often burning questions.

So much for the fallacy of logical form. Now let us consider the present condition of the law as a subject for study, and the ideal toward which it tends. We still are far from the point of view which I desire to see reached. No one has reached it or can reach it as yet. We are only at the beginning of a philosophical reaction, and of a reconsideration of the worth of doctrines which for the most part still are taken for granted without any deliberate, conscious, and systematic questioning of their grounds. The development of our law has gone on for nearly a thousand years, like the development of a plant, each generation taking the inevitable next step, mind, like matter, simply obeying a law of spontaneous growth. It is perfectly natural and right that it should have been so. Imitation is a necessity of human nature, as has been illustrated by a remarkable French writer, M. Tard, in an admirable book, Les Lois de l'Imitation. Most of the things we do, we do for no better reason than that our fathers have done them or that our neighbors do them, and the same is true of a larger part than we suspect of what we think. The reason is a good one, because our short life gives us no time for a better, but it is not the best. It does not follow, because we all are compelled to take on faith at second hand most of the rules on which we base our action and our thought, that each of us may not try to set some corner of his world in the order of reason, or that all of us collectively should not aspire to carry reason as far as it will go throughout the whole domain. In regard to the law, it is true, no doubt, that an evolutionist will hesitate to affirm universal validity for his social ideals, or for the principles which he thinks should be embodied in legislation. He is content if he can prove them best for here and now. He may be ready to admit that he knows nothing about an absolute best in the cosmos, and even that he knows next to nothing about a permanent best for men. Still it is true that a body of law is more rational and more civilized when every rule it contains is referred articulately and definitely to an end which it subserves, and when the grounds for desiring that end are stated or are ready to be stated in words.

At present, in very many cases, if we want to know why a rule of law has taken its particular shape, and more or less if we want to know why it exists at all, we go to tradition. We follow it into the Year Books, and perhaps beyond them to the customs of the Salian Franks, and somewhere in the past, in the German forests, in the needs of Norman kings, in the assumptions of a dominant class, in the absence of generalized ideas, we find out the practical motive for what now best is justified by the mere fact of its acceptance and that men are accustomed to it. The rational study of law is still to a large extent the study of history. History must be a part of the study, because without it we cannot know the precise scope of rules which it is our business to know. It is a part of the rational study, because it is the first step toward an enlightened scepticism, that is, towards a deliberate reconsideration of the worth of those rules. When you get the dragon out of his cave on to the plain and in the daylight, you can count his teeth and claws, and see just what is his strength. But to get him out is only the first step. The next is either to kill him, or to tame him and make him a useful animal. For the rational study of the law the blackletter man may be the man of the present, but the man of the future is the man of statistics and the master of economics. It is revolting to have no better reason for a rule of law than that so it was laid down in the time of Henry IV. It is still more revolting if the grounds upon which it was laid down have vanished long since, and the rule simply persists from blind imitation of the past. I am thinking of the technical rule as to trespass ab initio, as it is called, which I attempted to explain in a recent Massachusetts case.

Let me take an illustration, which can be stated in a few words, to show how the social end which is aimed at by a rule of law is obscured and only partially attained in consequence of the fact that the rule owes its form to a gradual historical development, instead of being reshaped as a whole, with conscious articulate reference to the end in view. We think it desirable to prevent one man's property being misappropriated by another, and so we make larceny a crime. The evil is the same whether the misappropriation is made by a man into whose hands the owner has put the property, or by one who wrongfully takes it away. But primitive law in its weakness did not get much beyond an effort to prevent violence, and very naturally made a wrongful taking, a trespass, part of its definition of the crime. In modem times the judges enlarged the definition a little by holding that, if the wrong-doer gets possession by a trick or device, the crime is committed. This really was giving up the requirement of trespass, and it would have been more logical, as well as truer to the present object of the law, to abandon the requirement altogether. That, however, would have seemed too bold, and was left to statute. Statutes were passed making embezzlement a crime. But the force of tradition caused the crime of embezzlement to be regarded as so far distinct from larceny that to this day, in some jurisdictions at least, a slip corner is kept open for thieves to contend, if indicted for larceny, that they should have been indicted for embezzlement, and if indicted for embezzlement, that they should have been indicted for larceny, and to escape on that ground.

Far more fundamental questions still await a better answer than that we do as our fathers have done. What have we better than a blind guess to show that the criminal law in its present form does more good than harm? I do not stop to refer to the effect which it has had in degrading prisoners and in plunging them further into crime, or to the question whether fine and imprisonment do not fall more heavily on a criminal's wife and children than on himself. I have in mind more far-reaching questions. Does punishment deter? Do we deal with criminals on proper principles? A modern school of Continental criminalists plumes itself on the formula, first suggested, it is said, by Gall, that we must consider the criminal rather than the crime. The formula does not carry us very far, but the inquiries which have been started look toward an answer of my questions based on science for the first time. If the typical criminal is a degenerate, bound to swindle or to murder by as deep seated an organic necessity as that which makes the rattlesnake bite, it is idle to talk of deterring him by the classical method of imprisonment. He must be got rid of; he cannot be improved, or frightened out of his structural reaction. If, on the other hand, crime, like normal human conduct, is mainly a matter of imitation, punishment fairly may be expected to help to keep it out of fashion. The study of criminals has been thought by some well known men of science to sustain the former hypothesis. The statistics of the relative increase of crime in crowded places like large cities, where example has the greatest chance to work, and in less populated parts, where the contagion spreads more slowly, have been used with great force in favor of the latter view. But there is weighty authority for the belief that, however this may be, "not the nature of the crime, but the dangerousness of the criminal, constitutes the only reasonable legal criterion to guide the inevitable social reaction against the criminal."

The impediments to rational generalization, which I illustrated from the law of larceny, are shown in the other branches of the law, as well as in that of crime. Take the law of tort or civil liability for damages apart from contract and the like. Is there any general theory of such liability, or are the cases in which it exists simply to be enumerated, and to be explained each on its special ground, as is easy to believe from the fact that the right of action for certain well known classes of wrongs like trespass or slander has its special history for each class? I think that the law regards the infliction of temporal damage by a responsible person as actionable, if under the circumstances known to him the danger of his act is manifest according to common experience, or according to his own experience if it is more than common, except in cases where upon special grounds of policy the law refuses to protect the plaintiff or grants a privilege to the defendant. I think that commonly malice, intent, and negligence mean only that the danger was manifest to a greater or less degree, under the circumstances known to the actor, although in some cases of privilege malice may mean an actual malevolent motive, and such a motive may take away a permission knowingly to inflict harm, which otherwise would be granted on this or that ground of dominant public good. But when I stated my view to a very eminent English judge the other day, he said, "You are discussing what the law ought to be; as the law is, you must show a right. A man is not liable for negligence unless he is subject to a duty." If our difference was more than a difference in words, or with regard to the proportion between the exceptions and the rule, then, in his opinion, liability for an act cannot be referred to the manifest tendency of the act to cause temporal damage in general as a sufficient explanation, but must be referred to the special nature of the damage, or must be derived from some special circumstances outside of the tendency of the act, for which no generalized explanation exists. I think that such a view is wrong, but it is familiar, and I dare say generally is accepted in England.

Everywhere the basis of principle is tradition, to such an extent that we even are in danger of making the role of history more important than it is. The other day Professor Ames wrote a learned article to show, among other things, that the common law did not recognize the defence of fraud in actions upon specialties, and the moral might seem to be that the personal character of that defence is due to its equitable origin. But if, as I said, all contracts are formal, the difference is not merely historical, but theoretic, between defects of form which prevent a contract from being made, and mistaken motives which manifestly could not be considered in any system that we should call rational except against one who was privy to those motives. It is not confined to specialties, but is of universal application. I ought to add that I do not suppose that Mr. Ames would disagree with what I suggest.

However, if we consider the law of contract, we find it full of history. The distinctions between debt, covenant, and assumpsit are merely historical. The classification of certain obligations to pay money, imposed by the law irrespective of any bargain as quasi contracts, is merely historical. The doctrine of consideration is merely historical. The effect given to a seal is to be explained by history alone. Consideration is a mere form. Is it a useful form? If so, why should it not be required in all contracts? A seal is a mere form, and is vanishing in the scroll and in enactments that a consideration must be given, seal or no seal. Why should any merely historical distinction be allowed to affect the rights and obligations of business men?

Since I wrote this discourse I have come on a very good example of the way in which tradition not only overrides rational policy, but overrides it after first having been misunderstood and having been given a new and broader scope than it had when it had a meaning. It is the settled law of England that a material alteration of a written contract by a party avoids it as against him. The doctrine is contrary to the general tendency of the law. We do not tell a jury that if a man ever has lied in one particular he is to be presumed to lie in all. Even if a man has tried to defraud, it seems no sufficient reason for preventing him from proving the truth. Objections of like nature in general go to the weight, not to the admissibility, of evidence. Moreover, this rule is irrespective of fraud, and is not confined to evidence. It is not merely that you cannot use the writing, but that the contract is at an end. What does this mean? The existence of a written contract depends on the fact that the offerer and offeree have interchanged their written expressions, not on the continued existence of those expressions. But in the case of a bond, the primitive notion was different. The contract was inseparable from the parchment. If a stranger destroyed it, or tore off the seal, or altered it, the obligee could not recover, however free from fault, because the defendant's contract, that is, the actual tangible bond which he had sealed, could not be produced in the form in which it bound him. About a hundred years ago Lord Kenyon undertook to use his reason on the tradition, as he sometimes did to the detriment of the law, and, not understanding it, said he could see no reason why what was true of a bond should not be true of other contracts. His decision happened to be right, as it concerned a promissory note, where again the common law regarded the contract as inseparable from the paper on which it was written, but the reasoning was general, and soon was extended to other written contracts, and various absurd and unreal grounds of policy were invented to account for the enlarged rule.

I trust that no one will understand me to be speaking with disrespect of the law, because I criticise it so freely. I venerate the law, and especially our system of law, as one of the vastest products of the human mind. No one knows better than I do the countless number of great intellects that have spent themselves in making some addition or improvement, the greatest of which is trifling when compared with the mighty whole. It has the final title to respect that it exists, that it is not a Hegelian dream, but a part of the lives of men. But one may criticise even what one reveres. Law is the business to which my life is devoted, and I should show less than devotion if I did not do what in me lies to improve it, and, when I perceive what seems to me the ideal of its future, if I hesitated to point it out and to press toward it with all my heart.

Perhaps I have said enough to show the part which the study of history necessarily plays in the intelligent study of the law as it is today. In the teaching of this school and at Cambridge it is in no danger of being undervalued. Mr. Bigelow here and Mr. Ames and Mr. Thayer there have made important contributions which will not be forgotten, and in England the recent history of early English law by Sir Frederick Pollock and Mr. Maitland has lent the subject an almost deceptive charm. We must beware of the pitfall of antiquarianism, and must remember that for our purposes our only interest in the past is for the light it throws upon the present. I look forward to a time when the part played by history in the explanation of dogma shall be very small, and instead of ingenious research we shall spend our energy on a study of the ends sought to be attained and the reasons for desiring them. As a step toward that ideal it seems to me that every lawyer ought to seek an understanding of economics. The present divorce between the schools of political economy and law seems to me an evidence of how much progress in philosophical study still remains to be made. In the present state of political economy, indeed, we come again upon history on a larger scale, but there we are called on to consider and weigh the ends of legislation, the means of attaining them, and the cost. We learn that for everything we have we give up something else, and we are taught to set the advantage we gain against the other advantage we lose, and to know what we are doing when we elect.

There is another study which sometimes is undervalued by the practical minded, for which I wish to say a good word, although I think a good deal of pretty poor stuff goes under that name. I mean the study of what is called jurisprudence. Jurisprudence, as I look at it, is simply law in its most generalized part. Every effort to reduce a case to a rule is an effort of jurisprudence, although the name as used in English is confined to the broadest rules and most fundamental conceptions. One mark of a great lawyer is that he sees the application of the broadest rules. There is a story of a Vermont justice of the peace before whom a suit was brought by one farmer against another for breaking a churn. The justice took time to consider, and then said that he has looked through the statutes and could find nothing about churns, and gave judgment for the defendant. The same state of mind is shown in all our common digests and textbooks. Applications of rudimentary rules of contract or tort are tucked away under the head of Railroads or Telegraphs or go to swell treatises on historical subdivisions, such as Shipping or Equity, or are gathered under an arbitrary title which is thought likely to appeal to the practical mind, such as Mercantile Law. If a man goes into law it pays to be a master of it, and to be a master of it means to look straight through all the dramatic incidents and to discern the true basis for prophecy. Therefore, it is well to have an accurate notion of what you mean by law, by a right, by a duty, by malice, intent, and negligence, by ownership, by possession, and so forth. I have in my mind cases in which the highest courts seem to me to have floundered because they had no clear ideas on some of these themes. I have illustrated their importance already. If a further illustration is wished, it may be found by reading the Appendix to Sir James Stephen's Criminal Law on the subject of possession, and then turning to Pollock and Wright's enlightened book. Sir James Stephen is not the only writer whose attempts to analyze legal ideas have been confused by striving for a useless quintessence of all systems, instead of an accurate anatomy of one. The trouble with Austin was that he did not know enough English law. But still it is a practical advantage to master Austin, and his predecessors, Hobbes and Bentham, and his worthy successors, Holland and Pollock. Sir Frederick Pollock's recent little book is touched with the felicity which marks all his works, and is wholly free from the perverting influence of Roman models.

The advice of the elders to young men is very apt to be as unreal as a list of the hundred best books. At least in my day I had my share of such counsels, and high among the unrealities I place the recommendation to study the Roman law. I assume that such advice means more than collecting a few Latin maxims with which to ornament the discourse — the purpose for which Lord Coke recommended Bracton. If that is all that is wanted, the title De Regulis Juris Antiqui can be read in an hour. I assume that, if it is well to study the Roman Law, it is well to study it as a working system. That means mastering a set of technicalities more difficult and less understood than our own, and studying another course of history by which even more than our own the Roman law must explained. If any one doubts me, let him read Keller's Der Romische Civil Process und die Actionen, a treatise on the praetor's edict, Muirhead's most interesting Historical Introduction to the Private Law of Rome, and, to give him the best chance, Sohn's admirable Institutes. No. The way to gain a liberal view of your subject is not to read something else, but to get to the bottom of the subject itself. The means of doing that are, in the first place, to follow the existing body of dogma into its highest generalizations by the help of jurisprudence; next, to discover from history how it has come to be what it is; and finally, so far as you can, to consider the ends which the several rules seek to accomplish, the reasons why those ends are desired, what is given up to gain them, and whether they are worth the price.

We have too little theory in the law rather than too much, especially on this final branch of study. When I was speaking of history, I mentioned larceny as an example to show how the law suffered from not having embodied in a clear form a rule which will accomplish its manifest purpose. In that case the trouble was due to the survival of forms coming from a time when a more limited purpose was entertained. Let me now give an example to show the practical importance, for the decision of actual cases, of understanding the reasons of the law, by taking an example from rules which, so far as I know, never have been explained or theorized about in any adequate way. I refer to statutes of limitation and the law of prescription. The end of such rules is obvious, but what is the justification for depriving a man of his rights, a pure evil as far as it goes, in consequence of the lapse of time? Sometimes the loss of evidence is referred to, but that is a secondary matter. Sometimes the desirability of peace, but why is peace more desirable after twenty years than before? It is increasingly likely to come without the aid of legislation. Sometimes it is said that, if a man neglects to enforce his rights, he cannot complain if, after a while, the law follows his example. Now if this is all that can be said about it, you probably will decide a case I am going to put, for the plaintiff; if you take the view which I shall suggest, you possibly will decide it for the defendant. A man is sued for trespass upon land, and justifies under a right of way. He proves that he has used the way openly and adversely for twenty years, but it turns out that the plaintiff had granted a license to a person whom he reasonably supposed to be the defendant's agent, although not so in fact, and therefore had assumed that the use of the way was permissive, in which case no right would be gained. Has the defendant gained a right or not? If his gaining it stands on the fault and neglect of the landowner in the ordinary sense, as seems commonly to be supposed, there has been no such neglect, and the right of way has not been acquired. But if I were the defendant's counsel, I should suggest that the foundation of the acquisition of rights by lapse of time is to be looked for in the position of the person who gains them, not in that of the loser. Sir Henry Maine has made it fashionable to connect the archaic notion of property with prescription. But the connection is further back than the first recorded history. It is in the nature of man's mind. A thing which you have enjoyed and used as your own for a long time, whether property or an opinion, takes root in your being and cannot be torn away without your resenting the act and trying to defend yourself, however you came by it. The law can ask no better justification than the deepest instincts of man. It is only by way of reply to the suggestion that you are disappointing the former owner, that you refer to his neglect having allowed the gradual dissociation between himself and what he claims, and the gradual association of it with another. If he knows that another is doing acts which on their face show that he is on the way toward establishing such an association, I should argue that in justice to that other he was bound at his peril to find out whether the other was acting under his permission, to see that he was warned, and, if necessary, stopped.

I have been speaking about the study of the law, and I have said next to nothing about what commonly is talked about in that connection — textbooks and the case system, and all the machinery with which a student comes most immediately in contact. Nor shall I say anything about them. Theory is my subject, not practical details. The modes of teaching have been improved since my time, no doubt, but ability and industry will master the raw material with any mode. Theory is the most important part of the dogma of the law, as the architect is the most important man who takes part in the building of a house. The most important improvements of the last twenty-five years are improvements in theory. It is not to be feared as unpractical, for, to the competent, it simply means going to the bottom of the subject. For the incompetent, it sometimes is true, as has been said, that an interest in general ideas means an absence of particular knowledge. I remember in army days reading of a youth who, being examined for the lowest grade and being asked a question about squadron drill, answered that he never had considered the evolutions of less than ten thousand men. But the weak and foolish must be left to their folly. The danger is that the able and practical minded should look with indifference or distrust upon ideas the connection of which with their business is remote. I heard a story, the other day, of a man who had a valet to whom he paid high wages, subject to deduction for faults. One of his deductions was, "For lack of imagination, five dollars." The lack is not confined to valets. The object of ambition, power, generally presents itself nowadays in the form of money alone. Money is the most immediate form, and is a proper object of desire. "The fortune," said Rachel, "is the measure of intelligence." That is a good text to waken people out of a fool's paradise. But, as Hegel says, "It is in the end not the appetite, but the opinion, which has to be satisfied." To an imagination of any scope the most far-reaching form of power is not money, it is the command of ideas. If you want great examples, read Mr. Leslie Stephen's History of English Thought in the Eighteenth Century, and see how a hundred years after his death the abstract speculations of Descartes had become a practical force controlling the conduct of men. Read the works of the great German jurists, and see how much more the world is governed today by Kant than by Bonaparte. We cannot all be Descartes or Kant, but we all want happiness. And happiness, I am sure from having known many successful men, cannot be won simply by being counsel for great corporations and having an income of fifty thousand dollars. An intellect great enough to win the prize needs other food besides success. The remoter and more general aspects of the law are those which give it universal interest. It is through them that you not only become a great master in your calling, but connect your subject with the universe and catch an echo of the infinite, a glimpse of its unfathomable process, a hint of the universal law.


Thursday, 28 July 2016

The Tribal Aspect In Zimbabwe’s Succession Politics.

“Nulla fides regni sociis omnisque potestas; impatiens consortis erit” - Marcus Annaeus Lucanus. [“There is no friendship between those associated in power; he who rules will always be impatient of an associate”].

The Vice President of the Republic of Zimbabwe, Comrade Emmerson Dambudzo Mnangagwa.
Realities in the Post-Colonial African State have scant regard for the anthropologist's comfort. Just when my project of mapping all the tribes in Zimbabwe and assigning them their true interests was nearing completion, new tribes have just emerged there. In staying true to the anthropological spirit, I cannot, as yet, give them definitive names or descriptions since much further study is required. I cannot, as yet, enumerate them though I have observed two and can infer from these that other new tribes have also come into existence. I cannot, as yet either, say whether the two new tribes I have observed are mutually exclusive or not. 

But to understand alright what I mean by new tribes, we have to revisit what one respected intellectual observed about "tribes" in the 21st Century in, of all places, Washington DC. He observed that politics in the United States's seat of power followed the same dynamics followed by tribal politics in the most primitive stages of human history. Whatever new forms of affiliation we now have - guilds, ideology, similar pastimes - have replaced tribes as the new "tribes" in modernity. Wall Street is a tribe. 

The two new tribes that have emerged in Zimbabwe's succession politics thus are what we can provisionally call the "Corrupt Tribe" and the "Security Tribe." The "Corrupt Tribe" prefers the current rot to persist as it has guaranteed them a seat at the table that they couldn't possibly reach through merit. The "Security Tribe," on the other hand, want gradual change that takes into account national values and the realities of the globalised world. I surmise that there must be a "Human Rights Tribe," "Business Tribe," "Law Tribe" etc but I suspect, for now, that these other tribes can find their full expression in one of the two main tribes I have sketched out above. 

Monday, 9 May 2016

The "Structure - Agency Debate" In The Simplest Possible Terms.

“You do not really understand something unless you can explain it to your grandmother” – (Apocryphally) attributed to Albert Einstein.

Just think of "Structure" (material wealth, society’s rules and norms) as a building, such as a library, which allows one activity to be done, such as studying for an exam, but prevents another from taking place (e.g. a full-fledged football match). While "Agency" is a reference to the agent/person who wants to carry out the activity.

One of the ideas that is fundamental to analysis in the social sciences, is the so-called “Structure – Agency Debate.” “Structure” simply means all the constraints there are that influence and limit the capacity of individuals to act autonomously. Acting autonomously is the “Agency” side of the debate. It is a “Debate” because one set of thinkers assert that structures are more important in shaping human behaviour, while the other set argues that agency trumps structures, as actors can always find ways around the limits imposed on them by the structures. The structures in question then are society’s rules and norms and, material wealth for example. Poverty, insofar as it can prevent one from travelling to the city centre though there is no rule against this, is a structural constraint for the poor individual.

The “Structure – Agency Debate” is so important to the social sciences that it’s one of those concepts that has to be mastered in the first semester by the politics, sociology, law, history or international relations undergraduate, and it stays with them. When you see the most decorated academic on TV, answering questions about the endless war in Syria, the fall of the Roman Empire, the rise of ISIS or even on Climate Change, you can be assured that his point of reference is the “Structure – Agency Debate.” However, he assumes that everyone knows that he has already factored in the Structure – Agency considerations in his answers, so does not explicitly mention this. 

The easiest way to think of the “Structure – Agency Debate” is as illustrated in the pictures included in this blog entry. Just think of "Structure" (material wealth, society’s rules and norms) as a building, such as a library, which allows one activity to be done, such as studying for an exam, but prevents another from taking place (e.g. a full-fledged football match). While "Agency" is a reference to the agent/person who wants to carry out the activity. But the debate is not resolved that easily. As human beings (agents) built that library (structure) in the first place, it follows that “Agency” influences “Structure” as well. This is where we enter the “Chicken – Egg Dilemma” territory at full speed. The contemporary sociologist, Anthony Giddens, has sought to rescue us from this dilemma by proposing a “Structuration Theory,” whereby “Structure” and “Agency” are to be seen as two sides of the same coin and not necessarily opposite elements.

Just think of "Structure" (material wealth, society’s rules and norms) as a building, such as a library, which allows one activity to be done, such as studying for an exam, but prevents another from taking place (e.g. a full-fledged football match). While "Agency" is a reference to the agent/person who wants to carry out the activity.

Friday, 25 March 2016

The State and Human Security in the Democratic Republic of Congo


This is the thesis I submitted in fulfilment of the requirements of the degree of Master of Science, Defence, Development & Diplomacy in the School of Government & International Affairs at Durham University. In writing this paper, I was motivated by the need to understand why my brother ended up fighting so far away from home in the DRC. Fully understanding all the mistakes that were made in the decision to get involved in the DRC war means these historic mistakes will not be repeated, and the Republic of Zimbabwe would never again expend its meagre resources in wars of choice. 

I had initially meant to dedicate my thesis to my brother and his comrades from 1 Commando, for their courage and unwavering loyalty to the Republic of Zimbabwe, but having read more about the DRC and its cyclical civil wars, I decided that a better body to dedicate my thesis to, is all the people of Zimbabwe: may our country never find itself in civil strife.



Dedication

To the people of Zimbabwe, may our peaceful polity long continue!

Kudakwashe Kanhutu, Durham University, School of Government & International Affairs, September 2014. 





Abbreviations

DRC   - Democratic Republic of Congo
FAR   - Rwandan Armed Forces
HDI    - Human Development Index
HDR   - Human Development Report
ICC    - International Criminal Court
ICISS - International Commission on Intervention and State Sovereignty
IMF     - International Monetary Fund
R2P     - Responsibility to Protect
UN       - United Nations
UNDP - United Nations Development Programme
UNGA - United Nations General Assembly
UNSC - United Nations Security Council



Abstract

The recurring civil wars and deaths of civilians from preventable causes in the DRC forms the puzzle for this paper: why has the state remained so weak over such a long period? This paper has cast the inability by the state's institutions to provide human security as state weakness. Human security is then used as a lens to interrogate where the international community and the local elites, through commission or omission, have been culpable for state weakness in the DRC. Human security is argued to be achievable under conditions where the state is legitimate and has a monopoly on the use of force - a strong state. This point necessitates a comparison between conditions faced by the consolidated European states in their creation and those which now confront the post-colonial states. The reasons for state weakness here are then argued to be on two levels: the international level and the state level. At the international level, the continued extractive relationship with the global North and the actions of the DRC's neighbours are inimical to the state's ability to maintain a monopoly on the use of force. At the state level, the most significant cause is the self-defeating short term strategies adopted by post-colonial elites to consolidate their power at independence. This paper argues that the ideal Weberian state with its impersonal institutions is the best possible way of achieving human security in the DRC and other post-colonial states. Human security provision would then be the remedy to legitimacy crises that arise due to the colonial legacy.


List of Contents

Dedication.....................................................................................................1
Abbreviations................................................................................................2
Abstract.........................................................................................................3
Chapter One
Introduction…………………………………………. ..................................6   
A Brief History of the DRC……………………...............................6
The State of the DRC Today……………………..............................7
Relevance and Significance………………………............................9
Literature Review…………………………………….....................10
Chapter Two
The State………………………………………………………….13
Introduction…………………………………………………13
The State of Nature………………………………………..14
The Modern State………………………………………18
Statehood…………………………………………………21
The Weberian State………………………………………23
State Making……………………………………………….25
The Post-Colonial State……………………………………26
Conclusion…………………………………………………28
Chapter Three
Human Security…………………………………………….29
Introduction……………………………………………29
What is Human Security?......................................................30
Human Security: A Contested Concept……………………33
Adoption by Practitioners………………………………………….38
An Integrative Concept…………………………………………….40
Conclusion…………………………………………………………42
Chapter Four
A Multi-Causal Analysis of State Weakness in the DRC…………44
Introduction.......................................................................................44
The International Level………………………………………..44
A Bad Neighbourhood…………………………………………47
The Resource Curse…………………………………………..49
The State Level………………………………………………..50
Colonial Legacy and the 'Lame Leviathan'……………………...51
Conclusion………………………………………………………55
Chapter Five
Conclusion: The Centrality of the State in the Provision of Human Security …………………………………………………………………57
Bibliography………………………………………………………………60

  
     

Chapter One

Introduction:

The Democratic Republic of Congo (DRC) has been described as a ‘geological scandal’ on account of the fact that it has vast mineral wealth yet its people live in abject poverty and have been continually brutalised by recurring civil wars (Turner, 2007: 49). The failure of the international community to help the DRC state achieve a semblance of order and stability raises this question; why has there been this failure to bring order and stability here? The claim has been made that there are local elites, as well as states such as the United States, Belgium, Rwanda, and Uganda who benefit from the DRC’s weakness and thus prefer the status quo. The United States and Belgium were certainly implicated in the destabilization just after independence and then over the 31 years they supported the dictatorship of Mobutu Sese Seko which eviscerated the state institutions of the Congo (Weissman, 2014). To understand state weakness in the DRC today then requires us to take a look back to the history of the formation of its modern state.

A Brief History of the DRC

Indeed, a look at the history of the Congo reflects that human security has never been central to the calculations of the elites. The Congo Free State from 1885 – 1908 was when this territory was controlled as personal property by King Leopold II of Belgium; “whose single purpose was the extraction of wealth without regard to human cost” (Nzongola-Ntalaja, 2011: 2). In the 23 years King Leopold II owned the Congo, “economic exploitation under conditions akin to slavery during the ‘red rubber’ campaign resulted in nearly ten million deaths and gave rise to the first international human rights movement of the twentieth century, the Congo Reform Association” (Nzongola-Ntalaja, 2011: 2; Kisangani, 2012: 13). When it became the Belgian Congo from 1908 – 1960, the state worked but on the basis of the same brutal practices as under King Leopold II where native workers were driven by the whip to achieve their targets (Nzongola-Ntalaja, 2011: 2). When colonialism ended and events led to Mobutu ascending to power, he renamed the country Zaire from 1971 – 1997 and under his rule; corruption and neo-patrimonialism decimated state institutions and made the state so weak it could not even collect taxes required for its continuity (Nzongola-Ntalaja, 2011: 2). From 1997 to 2001, the country was renamed DRC and under Laurent Kabila the rot continued as tribalism and corruption meant the institutions remained weak, culminating in the six million deaths of the Second Congo War of 1998 – 2002 (Nzongola-Ntalaja, 2011: 2). After Laurent Kabila’s assassination in 2001, his son Joseph Kabila took over power and has been President to this date.  

The State of the DRC Today:

As it exists today, the state is still unable to carry out its basic functions of maintaining law and order which, in turn, has debilitating consequences for the other aspects of human life in the DRC. It is this situation of continued state weakness which forms the puzzle for this paper. Thus, my research questions are; what explains state weakness in the Congo over time? What is the nature of the challenges that have prevented the DRC state from becoming fully capable of providing security to its citizens? What does the notion of human security mean in the context of the DRC and under what conditions is it possible to achieve human security?

To answer these questions this essay has cast state weakness as the inability of the state’s institutions to carry out their tasks effectively. It will also be argued that, in the 21st century, the state’s role is to provide human security. As there is also a concern that perhaps some of these imported concepts cannot work in Africa, this paper will also defend the universal applicability of these concepts. It is this author's view that these two main concepts under discussion in this paper – the state and human security – when explained properly, are such as any concepts that anyone standing behind Rawls’ ‘veil of ignorance’ would want to have in the society they will belong to. So, Chapter 2 justifies the Weberian/Westphalian state as necessary for maintenance of law and order without which all the other aspects of human endeavour cannot take place. Granted, colonialism was certainly the wrong vector for diffusion of the state to Africa, but Africanists must also acknowledge that the organisation in Africa as scattered kingdoms failed to provide Africans with protection against this external aggression.

Chapter 3 engages with the human security debate so as to establish whether it has any utility for the academic or the policymaker. Human security has been accused of being utopian insofar as there are not enough resources to allocate for every single issue it raises, but still, a concern with human security can identify where resources are being withheld or diverted. For example, even if we privilege military spending for national security, the nature of defence acquisition at the moment, according to IHS (2014), is such that the buyer can get ‘indirect offsets’ from the manufacturer. So the type of ‘offsets’ the elites make may show us if they have human security in mind. Malaysia’s ‘indirect offset’ for purchasing 18 Russian Sukhoi fighter jets was such that they got their first Astronaut into space - a venture which was worth US$25 million (IHS, 2014). A developing country concerned with human security would use the ‘indirect offset’ for hospitals or food security.

Chapter 4 is the discussion chapter which seeks to show what has caused the DRC state to remain weak. The most significant factor is Mobutu’s rule but the international community is also implicated. This Chapter also relies on Johan Galtung’s concept of structural violence and structural theory of imperialism to point out the international community’s hand in the weakness of the DRC state.

Relevance and Significance:

This study will attempt to establish whether the concept of human security has any academic and policy utility or whether it is just a fashionable label that has entered the international relations discourse. To that end, the question posed in this paper will be: how useful is human security in assessing the security challenges in the DRC? Human security’s great contribution to international relations is that it reflects the current security realities on the globe, where citizens can be equally threatened by disease, hunger, poverty, or natural disasters as by military invasion by other states. The state-centric view of international relations which was very capable in explaining the threat environment during the Cold War may no longer capture all the threats to humanity in the 21st century. So for this paper, the human security lens should be useful in critiquing more acts of commission or omission by the DRC as well as identifying where the international community is the source of the problem of state weakness there. This paper will also argue that human security can only be achieved where the state is strong. For the concerned policymaker, the takeaway point from this essay will be that they should strengthen state institutions not undermine them. This insight will be relevant to the local elites as well as to the international donor community.

Literature Review:

What follows here is a very brief literature review reflecting the three main discussion chapters as the same points are expanded upon in the main body of this essay.  The first chapter’s main discussion points concerns how people leave the ‘state of nature’ and create a ‘public power’ that will protect their collective interests. The literature on the state, in this regard, tends to be settled insofar as most of the authors on this subject, even today, must take Thomas Hobbes as their starting point then contrast his views with that of John Locke or Rousseau. When it comes to the modern state too, Max Weber’s work is where the field draws its theoretical inspiration and definitions from. These thinkers’ works will be discussed in Chapter 2 where I defend the idea that the state is central to human security.

With regards the relationship between human security and the state in the Congo itself, a survey yields that even now the state is woefully inadequate in the provision of security. The coping mechanisms described in Trefon’s Reinventing Order in the Congo makes it abundantly clear that life without the state would be unbearable. He says that “the order that is being reinvented by Kinois is a people’s initiative with nothing to do with Weberian political order with its functioning bureaucracy, democratically elected representatives, tax collectors, law and enforcement agents and impartial judicial system” (Trefon, 2004: 2). Having opened with this hopeful line, the picture he and his contributors paint is one which actually makes it urgent that the Weberian state be helped to take root in the DRC. He writes that “parents are not only forced to decide which children will be able to go to school in a given year, they also have to decide who shall eat one day and who shall eat the next” (Trefon, 2004: 4). The same gloomy prospects are repeated across all the other sectors where human security is absent by the other contributors in this volume. It is in response to these kinds of hopeless living conditions, especially in a country of DRC’s natural resource endowment, that this essay argues for the order that ensures from a consolidated Weberian state.

Martin (2010: 55) also records that an “estimated 1 200 people are dying daily from illness and malnutrition aggravated by civil war.” This has happened despite the fact that the EU has been involved in the DRC on a mission premised on the provision of human security. Martin (2010: 55) then notes the criticism that the top down initiatives of the EU have limited impact on the ordinary populations as the corrupt state just diverts resources for its own purposes. A criticism that was also shared by Marriage (2011: 1892) who thought that these top down interventions tend to have the effect of being premised on the security requirements of the donor states and not those of the ordinary people in the DRC.

While these concerns are valid, this author thinks it is unavoidable having to deal with the state, because human security is best achieved when the state has the monopoly on the use of force. Where the state is absent as in the DRC, the problems can be reduced to what was called the ‘vicious cycle’ by Stewart (2004: 278), whereby lack of development leads to conflict which leads to lack of development. She contrasted this with the ‘virtuous cycle’ where high levels of security lead to development and development then promotes security (Stewart, 2004: 279). Stewart’s work is the one that is closest to the argument of this paper as she raises failure of the social contract as a potent cause of insecurity (Stewart, 2004: 273). This paper’s further premise is that legitimacy can be attained if elites honour the social contract and work for the equitable provision of social goods. Of course this author is also aware that there have been elites who attempted to honour their social contract with the population, such as Thomas Sankara in Burkina Faso, but who got eliminated if this ran contrary to powerful outside forces’ interests. I now turn first to the defence of my central thesis: that the state is central to the provision of human security.



Chapter Two

The State  
                                                                                                    
Introduction:

The question is often asked in the social sciences as to whether the concepts that the field has to deal with – the state, democracy, human rights, and rule of law – are universally applicable. This is a debate between the claims of relativism and those of universalism. The question arises because the field is conscious of the pitfalls of parochialism. There is a need to refrain from taking it for granted that the way things are done in one place is how things are, or should be done everywhere. Still, there are some concepts which can be argued to be held in common by all of humanity. Some concepts, indeed, transcend geographical location, cultural predilections and time periods. One such concept is that law and order needs an enforcer. This chapter contends that “the normative state, equipped with a Weberian self-image as a rational – legal essence,” embodies the concept of an optimal enforcer of law and order and is capable of “exportability irrespective of the cultural specificities of receiving societies” (Young, 2012: 33). It then briefly outlines why the Sub-Saharan post-colonial states have failed to adopt this model successfully.

The state, when defined as the abstract idea of an enforcer of law and order, does satisfy the above notion of universal applicability. It being logical that wherever a group of people have continuous intercourse, there is a need for there to be an authority to provide order and settle the disputes that will inevitably arise. This chapter will argue that the state is necessary for the management of relations between people as, in its absence, chaos and insecurity will ensure. The chapter begins with a look at the conditions that are likely to subsist among people in the absence of an arbiter vested with powers to coerce compliance with the law. It then turns to the idea of the modern state and, further, an explanation of how the state is to be understood in this paper. The focus here will be on the efficacy of state institutions. Reflecting the current reality in international relations, the paper then discusses the main features of the consolidated ‘Weberian’ state before contrasting it with the, seemingly, malformed post-colonial state. All this will help in beginning to think about what the state’s raison d'être in the 21st Century ought to be. In this thesis, this will be argued to be provision of human security, as will be expanded upon in Chapter 3. Chapters 2 and 3 thus serve as a foundation for the discussion – in Chapter 4 – why post-colonial states, such as that of the DRC, have been found wanting in the provision of human security.

The State of Nature:

Nozick (2006: 3) posed the question that “if the state did not exist would it be necessary to invent it?” To this question, the answer seems to be that the state, defined as enforcer of law and order, is the corollary to human existence. Plato recognised that as individuals were not self-sufficient, they formed associations so as to meet their different needs, resulting in the formation of societies living together in what today are called states (Plato, 1955: 55 – 56). Further, he recognised that these societies though they had their farmers, weavers, blacksmiths and various other artisans, they would still need imports, giving rise – of necessity – to interaction with other societies similarly instituted abroad (Plato, 1955: 57).  Plato was writing in the 5th Century, but his thoughts resonate with the way human affairs are conducted in the 21st Century. The human condition is such that individuals and communities can only satisfy their needs in contact with each other. Our knowledge that scarcity tends to lead to conflictual relations in society then means that an arbiter is necessary. This arbiter takes the form of a ‘common’ or ‘public power’ vested with physical force so as to be effective (Vincent, 1987: 218; Held’ 1989: 19). One of the most important thinkers on this matter – Thomas Hobbes – used the ‘state of nature’ metaphor to show that life quickly becomes intolerable if a society does not have a ‘public power’ to enforce law and order (Hampsher-Monk, 1992: 27).

In his ‘state of nature’ metaphor, Hobbes took a very pessimistic view of human nature if left unrestrained by the threat of punishment by a sovereign power. He argued that because people are generally of equal ability, they would all hope to achieve their goals through using force against each other (Hobbes, 1996: 83). Such that “if any two men desired the same thing, which nevertheless they cannot both enjoy, they become enemies” (Hobbes, 1996: 83).  So, for him, it followed that “where an invader hath no more to fear, than another man’s single power; if one plant, sow, build, or possess a convenient seat, others may probably be expected to come prepared with forces united, to dispossess, and deprive him, not only of the fruit of his labour, but also of his life, or liberty” (Hobbes, 1996: 83). Under these conditions, there would be mutual distrust among members of society as people would seek to secure themselves by any means possible (Hobbes, 1996: 83).  He concluded that “hereby it is manifest, that during the time men live without a common power to keep them all in awe, they are in that condition which is called war”

The full extent of his ‘state of nature’ metaphor then holds that;

Whatsoever therefore is consequent to a time of war, where every man is enemy to every man; the same is consequent to the time, wherein men live without other security, than what their own strength, and their own invention shall furnish them withal. In such condition, there is no place for industry; because the fruit thereof is uncertain: and consequently no culture of the earth; no navigation, nor use of the commodities that may be imported by sea; no commodious building; no instruments of moving, and removing such things as require much force; no knowledge of the of the face of the earth; no account of time; no arts; no letters; no society; and which is worst of all, continual fear, and danger of violent death; and the life of man, solitary, poor, nasty, brutish, and short (Hobbes, 1996: 85). 

The above passage presciently captures the conditions of life faced in the DRC, especially the way lack of physical security impacts negatively on all the other aspects of human endeavour. To gently dissuade Hobbes’s critics, who proposed different versions of the original condition of mankind, Hampsher-Monk (1992: 26) notes that Hobbes never claimed this had actually happened in a “generalised  historical epoch,” he only meant to show what would happen if political authority was absent.

The way out of this ‘state of nature’ predicament for Hobbes is to create conditions whereby mutual distrust among the people is eliminated through a ‘social contract’ which transfers people’s rights to a powerful authority – the ‘Leviathan’ (Held, 1989: 16). This common power will have to wield absolute coercive power as “covenants, without the sword, are but words, and of no strength to secure a man at all” (Held, 1989: 16). Another facet of this ‘common power’ that is salient for this thesis is that it goes beyond merely providing physical security for its subjects but also protecting their property, family, wealth, and means of livelihood (Held, 1989: 17). These same features translated to the parlance of our age are, indeed, the concept of human security.   
 
However, Hobbes’ view of the ‘state of nature’ is contested by other thinkers such as John Locke and Jean Jacques-Rousseau who both took a less pessimistic view while relying on the same metaphor. Locke rejected both Hobbes’s view of the state of nature as a condition of ‘war of all against all,’ as well as his solution of a great Leviathan wielding absolute power (Held, 1989: 19). To the notion of the great Leviathan with absolute power, he said “this is to think than Men are so foolish that they take care to avoid what mischiefs may be done to them by Pole-Cats, or Foxes, but are content, nay, think it safety, to be devoured by Lions” (Held, 1989: 19). In the 20th and 21st centuries, this argument has been used by people who observe the potent dangers authoritarian sovereigns can pose to their own subjects – the Holocaust under Hitler is an often cited example.

Where the actual ‘state of nature’ was concerned Locke thought that “to understand power aright, and derive it from its original, we must consider what estate all men are naturally in, and that is, a state of perfect freedom to order their actions, and dispose of their possessions and persons as they think fit, within the bounds of the law of Nature, without asking leave or depending upon the will of any other man” (Locke, 1998: 118). Disagreements and injuries will surely arise, but not at the dystopian scale proposed by Hobbes. When these injuries happen, men in a state of nature can “punish the transgressors of that law to such a degree as may hinder its violation” (Nozick, 2006: 10). But for the ‘inconveniences of the state of nature,’ Locke proposed civil government (Nozick, 2006: 10). The inconveniences of the ‘state of nature’ are listed as; “men who judge in their own case will always give themselves the benefit of the doubt…. personal enforcement of rights leads to feuds…. and a person may lack the power to enforce his rights” (Nozick, 2006: 11; Held, 1989: 20). So, for these reasons, people would cede their rights to a ‘common power’ but this consent could be withdrawn if that power failed in living up to its task (Held, 1989: 19).

The important thing to note here is that these two thinkers, Hobbes and Locke, who had different starting points with regards their views of human nature, both agree that law and order needs an enforcer. Their only difference is that Hobbes proposed an absolute sovereign while Locke proposed what today is called a liberal democracy. This enforcer of law and order today is called the state and its raison d'être is “maintenance of law and order at home and protection against aggression from abroad” (Held, 1989: 22). The different kinds of ‘public power’ proposed by Hobbes and Locke have in themselves a bearing on whether transfer of power will be peaceful or whether it becomes a source of conflict. The hope at this stage, however, is that this paper has sketched out the philosophical ideas undergirding the idea of the state.  It now turns to the modern state’s features, starting with the ideal Weberian state as reflected – to a great extent – by countries with control over their territories, before introducing the extant features of the post-colonial state.

The Modern State

A trenchant definition of the modern state can be found in Max Weber’s works at the turn of the last century. He defined it as;
a state is a human community that (successfully) claims the monopoly of the legitimate use of physical force within a given territory. Note that ‘territory’ is one of the characteristics of the state. Specifically, at the present time, the right to use physical force is ascribed to other institutions or to individuals only to the extent to which the state permits it. The state is considered the sole source of the ‘right’ to use violence. Hence, ‘politics’ for us means striving to share power or striving to influence the distribution of power, either among states or among groups within a state (Weber, 1948: 78).

He further argued that “if no social institutions existed which knew the use of violence, then the concept of ‘state’ would be eliminated, and a condition would emerge that could be designated as ‘anarchy,’ in the specific sense of the word” (Weber, 1948: 78). His definition has four key attributes that identifies the modern state; coercion, monopoly, territory and legitimacy. Although monopoly on the legitimate use of violence is highlighted in the above definition, it is difficult to place these attributes hierarchically as they, indeed, interact in such a manner that strength in one reinforces the others, while weakness in one will also undermine the others. For example, the ability to coerce – forcing compliance with the state’s laws – relies on the fact that the population within the state’s territory have to recognise the laws as having been made by a legitimate authority and the state must, in turn, possess a monopoly on the means of violence so as to successfully dissuade unreasonable dissension. Obversely, as has been the case in the DRC, a state that does not enjoy a monopoly on the use of violence will fail to coerce compliance with its laws and hence have its legitimacy to rule challenged by other actors within the given territory.  

Vincent (1987: 218) saw the above attributes more as indicators of statehood as he argued that the state itself should be thought of as a “public power above both ruler and ruled which provides order and continuity to the polity.” A view shared by Held (1989: 11) who holds that the modern state is the “notion of an impersonal and privileged legal or constitutional order with the capability of administering and controlling a given territory.” This ‘public power’ was also argued by John Locke to be “a right of making laws, with penalties of death, and consequently all less penalties for the regulating and preserving of property, and of employing the force of the community in the execution of such laws, and in the defence of the commonwealth from foreign injury, and all this only for the public good” (Locke, 1988: 118).

Where this ‘public power’ is to be located and the different forms it takes can then be identified through recourse to corresponding theories of the state such as absolutist theory, constitutional theory, and class theory (Vincent, 1987: 218 – 223). For example, the absolutist theory describes this power as residing in the hands of one individual as happens in a dictatorship or the Enlightened Despot of Frederick the Great’s proposition, while constitutional theory describes the separation of powers between the executive, the judiciary, and the legislature as espoused by liberal democracies (Vincent, 1987: 218 – 223). The absolutist and constitutional theories correspond, respectively, to the different final positions arrived at, above, by Hobbes and Locke when they theorised about the need for a ‘public power’ in society.

According to Held (1989: 2) to understand the state we “must consider its spatial and temporal dimensions – the horizontal stretch of the state across territory, the depth of the state intervention in social and economic life and the changing form of all these over time.” He then noted that “it is important to consider the state as a cluster of agencies, departments, tiers and levels, each with their own rules and resources and often with varying purposes and objectives” (Held, 1989: 2). From Held’s statements we can take away the fact that the tasks the modern state assumes for itself are such as those which can only be carried out by institutions. So, while aware of the other salient features and definitions of the state that exist, this paper will mainly be interested in the state insofar as it is this ‘public power’ and the institutions that it employs in carrying out its function. So far, for the sake of conceptual clarity, the functions of this ‘public power’ have been cast as provision of law and order, but will below be expanded to provision of human security as is this thesis’s central argument. Indeed, the need for law and order has been argued above to be the initial reason why mankind eschewed the ‘state of nature’ to live under the state. 

Statehood:

While the concept of law and order needing an enforcer has been argued in this thesis to be held in common by all humanity, the fact that some communities have succeeded in instituting an effective ‘public power’ while others have utterly failed, requires us to take a closer look at why this is the case. The differences that arise between those who have succeeded and those who have so far failed were said by Ayoob (2007: 96) to augment “the impression that there are actually two distinct zones in the international system – the zone of peace in the North and the zone of turmoil in the South – and that the two work according to different logics, a Lockean one in the former and a Hobbesian one in the latter.” This casting of the North and South by reference to Locke and Hobbes’s versions of the ‘state of nature’ metaphor is self-evident when you compare conditions that subsist in Norway with those of the DRC.

Although this paper’s focus is specifically on the efficacy of the institutions of the state, the question of statehood is unavoidable. To be a ‘public power’ that enjoys sovereignty, and its attendant rights, requires recognition by the international community of states. The most common way this recognition manifests itself is by being admitted to the United Nations General Assembly (UNGA). In this context, statehood is synonymous with being a nation-state where all the people in the territory are thought to be knit “together in terms of historical memories, legal codes, language, and religion,” under a central authority (Ayoob, 2007: 97). This is possibly what was meant by Anderson (2006: 6) when he defined the nation as “an imagined political community,” maintaining that; “it is imagined because the members of even the smallest nation will never know most of their fellow-members, meet them, or even hear of them, yet in the minds of each lives the image of their communion.” Statehood or being a nation-state then is really a fusion of the notion of a political community with a collective identity (nation) and that of a legitimate ‘public power’ (state) that then represents the territorial community at international fora. People who are united in this manner tend to be strong against hostile foreign forces whatever form those forces may take. Those without this communion actively invite foreign forces to disrupt their communities as they struggle for primacy against each other.  

The concept of statehood has two faces which can help us in further thinking about the differences between strong and weak states; empirical and juridical sovereignty. The empirical face refers to de facto sovereignty whereby, as in Weber’s definition above, the state is “a corporate group that has compulsory jurisdiction, exercises continuous organization, and claims a monopoly of force over a territory and its population” (Jackson and Rosberg, 1982: 2). The juridical face is de jure sovereignty whereby the state is described as “a legal person, recognised by international law, with the following attributes: (a) a defined territory, (b) a permanent population, (c) an effective government, and (d) independence, or the rights to enter into relations with other states” (Jackson and Rosberg, 1982: 3). What these authors then argue is that states such as the DRC are quasi-states in that they do not satisfy the empirical definition and only exist insofar as they are protected by the international norms of self-determination and sovereign equality (Jackson and Rosberg, 1982: 3).   

The Weberian State

The concept of statehood, insofar as it means people with the same collective identity in a defined territory, works to reinforce the criteria set by Weber for empirical statehood. Strong states essentially exhibit the positive interplay and reinforcement of Weber’s criteria of coercion, legitimacy, and monopoly of legitimate violence in a defined territory. While in those states where any of these criteria is compromised, dystopian conditions subsist and the states only continue to exist because international norms do not allow states to cease to exist (Jackson and Rosberg, 1982: 1). There are important differences between these consolidated states and the ineffective ones to such an extent that a comparison, even as fleeting as the one made above between Norway and the DRC, is unfair. Ayoob (2007: 96) thinks that the current situation in the Third World should not be compared “with that prevailing within and among the industrial democracies today, but with the situation from the sixteenth and eighteenth century in Western Europe, when the earliest of the modern sovereign states were at a stage of state making that correspond with the stage where most Third World states find themselves today.” This is to alert us to the fact that the ‘social contract’ creating an authoritative ‘public power’ should not be thought to be an overnight occurrence.

It took a long time for the states of the North to achieve the internal pacification that helped in creating the conditions that exist there today; Switzerland celebrated its 723rd anniversary this year (2014) while post-colonial states such as the DRC have only existed for about 50 years. Beyond this obvious difference there are much more profound differences in state making in Europe and that of the post-colonial states which can help explain why consolidation has so far been elusive in the South. Still, it is this author’s contention that the Weberian state is the ideal unit for providing law and order, and the current state system is also the optimal organizing principle on the globe. Other models such as hunter-gatherer communities, tribal communities, city states, and empires have existed but were supplanted by current states because of their various deficiencies. A brief look at how state making occurred in Europe will help us start to see the challenges faced by the post-colonial state in this endeavour.

State Making

Although the ‘social contract’ has been mentioned above as if people willingly met in a public square and agreed to have a ‘public power’ that would adjudicate over them, the reality of state making is argued to have been steeped in violence. Tilly’s argument, that war making made states, is often quoted as definitive of the fact that state making involved a violent co-optation of contenders for authority as states emerged (Dannreuther, 2007: 311). A view supported by Job (1992: 25) who also wrote that “the typical Western European experience most always involved the painful transition from state to nation (rather than the reverse, as often assumed), within a bloody history of elimination of political contenders, forced assimilation, and repressive consolidation of authority in the hands of the most efficient.”  

State making defined as this “primitive central power accumulation” then involves these three integral features;
the expansion and consolidation of the territorial and demographic domain under a political authority, including the imposition of order on contested territorial and demographic space (war); the maintenance of order in the territory where, and over the population on whom, such order has already been imposed (policing); and, the extraction of resources from the territory and population under the control of the state, resources essential not only to support the war-making and policing activities but also to maintain the apparatuses of state necessary to carry on routine administration, deepen the state’s penetration of society, and serve symbolic purposes (taxation) (Ayoob, 2007: 96).

Success at all three broad activities is reflected in the continuity of European states as strong entities. There is unanimity in the literature that in Europe, state making was first achieved before the political communities could be defined as nation states (Ayoob, 2007: 97; Jackson and Rosberg, 1982: 23). The post-colonial state, on the other hand, finds itself in different circumstances. The first important difference is that in the consolidated democracies, their state making was an organic development, while in the Third World it was conferred by outsiders (Keller, 1991: 138).  This should not be taken to necessarily mean that the ‘imported state’ is to be rejected in the post-colonial context, if anything; it is a reflection on the dynamics and length of time it takes to arrive at a functioning ‘social contract.’ Secondly, while the ‘unilinear development’ – which avers that post-colonial states are at the early stages of the European experience – has its merits, Smith (2013: 47) views it as fallacious since it “understates a very fundamental difference: that the history of the advanced societies does not include colonization by more powerful countries.” This has often been referred to by the short hand “colonial legacy,” and will be expanded upon further in Chapter 4 as this author contends that it is an important factor in state weakness. Thirdly, the current conditions under globalization also mean that state making meets some constraints European states never encountered.

The Post-Colonial State:

The Sub-Saharan post-colonial states were depicted by Callaghy as ‘lame Leviathans,’ in recognition “of the powerful imbalance between the state’s claims to govern the entire social order and the actual weakness of its performance” (Badie, 2000: 14). All the four aspects gleaned from Weber’s definition of the state, interact in such a manner that they confound the best efforts at creating a strong state. The territories these states occupy were drawn arbitrarily by colonial powers and thus put people who were loyal to different centres of authority and, often antagonistic towards each other, in one territory (Ayoob, 1992: 70). Therefore, in each country, there are competing centres of authority and some with, perhaps, even stronger claims in terms of legitimacy to rule within these territories (Ayoob, 1992: 66). The monopoly on the use of force that was enjoyed by the colonial state was also eroded by the dynamics of the Cold War which saw outside forces arming different groups to fight their proxy wars. The other fact to consider in terms of weakness is the unavailability of resources to the nascent post-colonial states as the extractive configuration of the colonial state underdeveloped these territories.

So, instead of having power, authority, and legitimacy at birth the post-colonial has been locked in a struggle to establish its right to rule (Keller, 1991: 138). This struggle has produced the common features that are associated with the post-colonial state, which are in fact short term survival strategies for actors without authority, legitimacy and resources. Villalon (1998: 11) identified the five faces of these ‘lame Leviathans’ as; “a client state, a personalised identity, a centralized or overdeveloped morphology, a prebendal or rentier nature, and an extractive impulse.” These strategies are self-defeating as they create the conditions for state failure over the long run. The interaction between them and how they contribute to state weakness and, also, the other factors at the international level will be discussed in Chapter 4 under the rubric of a multi-causal analysis of state weakness in the DRC.  

Conclusion:

This section has advanced the idea that law and order needs an enforcer. It presented an image of chaos as forewarned against by Hobbes’s ‘state of nature’ metaphor. I have also argued that the need for a state, insofar as it is an impersonal power to maintain order at home and defend against invasion, is a concept that all humanity holds in common. The normative state which is seen in countries such as Norway or Switzerland is accepted in this thesis as capable of working in all cultures. I have also highlighted the dysfunctions and special conditions that impede the post-colonial states from achieving this ideal state they are also aiming at. The challenges seem insurmountable but there is a way out of some of the challenges such as a lack of legitimacy. It is encouraging for this thesis’s central claim that, according to Ayoob (2007: 111), “the root cause of disorder in the Third World is linked to the inadequacy of state authority and not the excessive use of state power.” From this postulate then, it follows that strengthening the state could lead to a situation where it may be able to perform its tasks and be able to create conditions conducive to human security. Legitimacy then could be established if the state achieves human security for its population. Human security itself is a contested concept, so this paper now turns to what it means and how it can help identify the areas and nature of failures by both the international community as well the DRC state.



Chapter Three

Human Security

Introduction:

A concept that entered the lexicon of international relations in the post-Cold War era is human security. As is the nature of the social sciences, the concept has been a subject of debate as to what it precisely means and whether it is at all useful as a tool for academic analysis, or as a guide for policymakers. Regardless of this debate, human security is a concept that is congruous with the concerns of its era. During the Cold War, national security was the dominant concern as the Soviet bloc and the West were pitted against each other in a bipolar contest which threatened the world with nuclear annihilation. The greatest threat to humanity at the time was interstate warfare that could escalate to a nuclear exchange between the superpowers. So, justifiably, the concern with national security dominated academia and policy discourse.

With the end of the Cold War, however, the national security as state security lens no longer fully explained the threats to states, so a different lens was needed. Human security thus appeared as the alternative or, as is this paper’s view, complementary lens to national security. This chapter will start by defining what human security means, then it will turn to the academic debates on whether it is useful and what policy impact it is likely to have. It is this author’s view that if, adopted and implemented in earnest, human security could solve the DRC and other postcolonial states’ legitimacy crises. This chapter also sets the stage for the analysis, in Chapter 4, of the many factors that have led to the absence of human security in the DRC.

What is Human Security?

The United Nations Development Programme (UNDP) is credited with coining the term ‘human security’ in its current form in 1994, although the notion itself can be traced to earlier times. Authors such as Smith (2005: 32) see the notion’s genealogy in earlier works such as Barry Buzan’s 1983 book – People, States, and Fear – which added non-traditional security threats from the political, economic, societal, and ecological domains as subjects of concern for security studies. However, all the earlier attempts at a broadening of security to include more than just military threats to territorial integrity still had the state and national security as referent objects because, during the Cold War, the greatest threat to mankind was nuclear war that could be brought on by the interaction between sovereign states. The security threats from the political or economic domains were only factored in insofar as they were seen as capable of weakening the military, thereby making the state susceptible to external military threats. The UNDP was the first organisation to coin the term ‘human security,’ in 1994, with the important difference from the notion’s predecessors that the individual (everywhere) would be the referent object of security and not states.

In its Human Development Report (HDR) 1994 the UNDP proposed that,

With the dark shadows of the cold war receding, one can now see that many conflicts are within nations rather than between nations. For most people, a feeling of insecurity arises more from worries about daily life than from the dread of a cataclysmic world event. Will they and their families have enough to eat? Will they lose their jobs? Will their streets and neighbourhoods be safe from crime? Will they be tortured by a repressive state? Will they become a victim of violence because of their gender? Will their religion or ethnic origin target them for persecution? In the final analysis, human security is a child who did not die, a disease that did not spread, a job that was not cut, an ethnic tension that did not explode in violence, a dissident who was not silenced. Human security is not a concern with weapons – it is a concern with human life and dignity (UNDP, 1994: 22).

The UNDP, in describing the new threats to mankind after the Cold War, thus coined the term human security. According to Thomas and Tow (2002: 178) this highlighted the fact that; “a ‘secure state’ untroubled by contested territorial boundaries could still be inhabited by insecure people.” The central argument put forward by the UNDP was that as the advent of nuclear weapons had demanded a new way of thinking for mankind to survive that threat; the end of the Cold War was also a watershed moment of equal magnitude which called for a new way of thinking about what security now meant (UNDP, 1994: 22). Indeed, in terms of describing the realities of insecurity in the immediate post-Cold War era, the HDR characterization was accurate. The conception of security that had dominated during the Cold War could no longer fully capture the threats to humanity. Where the traditional conception of security emphasized territorial invasion as the source of danger to the population, environmental degradation or, the state itself could pose equally potent danger to its own population.

To criticisms that theirs is not a rigorous definition, the UNDP has countered by saying that just sketching out this concept is a good starting point as “like other fundamental concepts, such as human freedom, human security is more easily identified through its absence than its presence” (UNDP, 1994: 23). It then lists the threats to human security under seven main categories: Economic security, Food security, Health security, Environmental security, Personal security, Community security, and Political security (UNDP, 1994: 24). Being insecure in any of these categories endangers people’s lives in much the same way that armed conflict does. For example, under one of the categories, the HDR states that; 
Food security means that all people at all times have both physical and economic access to basic food. This requires not just enough food to go round. It requires that people have ready access to food – that they have an "entitlement" to food, by growing it for themselves, by buying it or by taking advantage of a public food distribution system. The availability of food is thus a necessary condition of security – but not a sufficient one. People can still starve even when enough food is available – as has happened during many famines (UNDP, 1994: 27).
This one category alone shows the interrelatedness there is between the seven categories, as for people to be able to buy food they have to be economically secure as well as empowered by the prevailing political atmosphere. It can be taken for granted that malnourished people are easily susceptible to a lot of health problems that would otherwise not afflict them. This holistic approach by the UNDP is as if in response to Aristotle’s age old philosophical proposition that no two people can agree what exactly happiness is, since – “often even the same man identifies it with different things, with health when he is ill, with wealth when he is poor; but conscious of their ignorance, they admire those who proclaim some great ideal that is beyond their comprehension” (Aristotle, 1999: 6). The UNDP conception attempts to show that to be able to live happy and secure lives people should be empowered against ignorance, disease, hunger and environmental disasters. There are disputes as to who is the proper authority to empower the people thus, but this essay places that task on the state, as has been argued for in Chapter 3.  

The HDR then also highlighted the fact that human security has two components; freedom from fear and freedom from want. Freedom from fear corresponds more with physical security while freedom from want refers to security from poverty and deprivation. These two components were recognised since the foundation of the United Nations (UN) in 1945 but Cold War dynamics meant that emphasis was only put on freedom from fear at the expense of freedom from want (UNDP, 1994: 24). This is how the concept of human security has been articulated by its authors. The question that has arisen is whether this concept, as it has been articulated, has any utility for the policy maker or analytical value for academics. The main point of contention seems to be between those who want the conception of security to remain narrowly conceived, focusing only on military threats, and those who accept the UNDP’s broadening of the security agenda to include non-traditional threats. The fault-line in this debate corresponds roughly with the worldviews in international relations of realism on the one hand and critical security studies on the other. 

Human Security: A Contested Concept

In the contest between those who support the new notion of human security and those who want to retain the narrow traditional conception of security, human security is treated as an alternative to national security, but this paper instead thinks of it as complementary to national security. Although non-realist thinkers can take issue with the precepts of human security, this thesis only highlights the debates by reference to realist conceptions of security and the counter-arguments to it from critical security studies.

In international relations, the realist worldview makes assumptions which give primacy to sovereign states as the referent object of security. This theoretical tradition has various branches which differ on some aspects such as whether emphasis should be placed on human nature or systemic causes in the attempt to explain foreign policy behaviour in international affairs. Despite this, what is common in the realism worldview are these assumptions; (1) a focus on threats to the nation-state rather than populations as states are the key actors; (2) that states are unitary actors whose choices are based on the national interest; and (3) an anarchic international system where all states rely on military power to ensure their survival (Dougherty and Pfaltzgraff Jr., 2001: 64; Booth, 2005: 5).  Liotta (2002: 475) said talking about security assumes three basic questions; security from what, security by whom and security achieved through which means? Traditional conceptions of security premised on the realist worldview would answer those questions with; security from military attack by others states, security by states, and achieved through being militarily strong or balancing.

Where the widening of the security agenda to focus on individuals and non-traditional threats is concerned, proponents of realism would argue as Walt did that this is untenable. He argued that security studies is about “the study of the threat, use, and control of military forces” and, widening the agenda of security outside of the military domain would destroy the field’s “intellectual coherence and make it more difficult to devise solutions to any of these important problems” (Buzan et. al., 1998: 3). Another criticism is that given the political function of the word ‘security,’ this widening may be counterproductive in some sectors and, further, that securitization is not necessarily a universal good thing (Buzan et. al. 4). The securitization of migration in the Global North, for example, has seen migrants from the Global South treated not as the population at risk but as agents who will threaten human security in the North and thus to be excluded, in the process increasing their plight (Ibrahim, 2005: 169).

A more sustained criticism of human security’s utility for policy and academic analysis can be found in Paris’s work. Paris (2001: 88) writes that “existing definitions of human security tend to be expansive and vague… which provides policymakers with little guidance in the prioritization of competing policy goals and academics little sense of what, exactly, is to be studied.” Human security’s purported strength in highlighting that a holistic approach is vital as all the aspects it highlights are interrelated, is dismissed as a truism which “does not provide a convincing justification for treating all needs, values, and policy objectives as equally important” (Paris, 2001: 92). Thus, for him, human security “is too broad and vague a concept to be meaningful for policymakers, as it has come to entail such a wide range of different threats on one hand, while prescribing a diverse and sometimes incompatible set of policy solutions to resolve them on the other” (Paris, 2001: 92). The exclusion from the global North of migrants from conflict in the global South – caused by the securitization of migration discourse – is instructive on this count. Buzan, Waever and De Wilde (1998: 4) also note the liberal argument that “too much economic security is destructive to workings of a market economy.”

With regards human security’s utility as an analytical tool Paris (2001: 93) says that it “seems capable of supporting virtually any hypothesis – along with its opposite – depending on the prejudices and interests of the particular researcher.” He further thinks that, by encompassing physical security and the more general notions such as social and economic well-being, the concept lacks a degree of analytical separation that would help the academic to study causal relationship between independent and dependent variables (Paris, 2001: 93). He, instead, thinks the only reason why the term has found traction among various actors is because its vagueness unites various actors who see “an opportunity to capture some of the more substantial political interest and superior resources associated with more traditional, military conceptions of security” (Paris, 2001: 95). In this view, those who have adopted the term are driven by vested interests rather than a desire to achieve good for the ordinary populations.  He then proposes that human security should be thought of as a “label for a broad category of research in the field of security studies that is primarily concerned with non-military threats to the safety of societies, groups and individuals” (Paris, 2001: 96). He believes this then obviates the need for the researcher to derive clear hypotheses from the concept of human security itself (Paris, 2001: 101). 

Regardless of these criticisms, the concept of human security appeals to a lot of scholars who feel that the traditional security conception articulated by the realist worldview no longer captures the complex realities of the post-Cold War era. These scholars take, as their departure point, the concern that was raised by Robert Cox when he made the distinction, in 1981, between problem solving and critical theory. Realism is a problem solving theory which takes existing political relations as givens and tries to solve any problems that arise without altering the order of the day, whereas critical theory questions how these relations came about and seeks to change the prevailing order (Smith, 2005: 41). Critical security studies claim that the important attributes in their approach to security are the broadening, and deepening of the field which then leads to an emancipatory praxis. In this case, broadening refers to the inclusion of non-traditional threats to the concept of security, while deepening implies a questioning of the power structures behind our assumptions about security, and emancipatory praxis refers to the emancipation of individuals (Peoples and Vaughan-Williams, 2010: 17).

This is what proponents of human security have, in essence, done. The most outstanding contribution of human security to security matters is that it has introduced non-traditional threats as a subject for discussion, and the state is no longer the referent object in that discussion. Whether this has actually led to the emancipation of individuals, as the third prong of critical security studies articulates, is still an open question. Thakur (2004: 348) has observed that “to insist on national security at the expense of human security would be to trivialize security to the point of sterility, bereft of any practical meaning.” He reiterates the view that is accepted by the UNDP that lives can be threatened by external aggression as well as by forces within the country (Thakur, 2004: 347). He challenges one of the realist assumptions that states are unitary actors who represent the objective national interest, by pointing out that “in many countries, the state is a tool of a narrow family group, clique or sect” (Thakur, 2004: 374). He accuses proponents of the narrow security, as does Ken Booth, of falsifying the policy process so as to privilege the military sector in the competition for state resources at the expense of citizens, who will not have protection from chronic insecurities such as those posed by hunger and disease (Thakur, 2010: 348; Booth, 2005: 4).

Other scholars and practitioners have weighed-in in favour of the broadening of the security agenda by saying that when the security of the individual is threatened, so too is international security, and that national security and human security should really be seen as two sides of the same coin (Hampson, 2004: 350; Axworthy, 2004: 349). Having discussed the definition and debates around it, I now turn to whether the concept has been adopted by policymakers and what impact it has made in world politics since its inception. 

Adoption by Practitioners: 

It would be remiss if this paper does not ask why there is a need for a new term when a look at human security shows us it is very contiguous with terms that have been in existence for longer and which seek to achieve the same goals as it does. These terms are human development and human rights. With regards human development, the UNDP (1994: 23) argued that it is a “broader concept – defined in previous Human Development Reports as a process of widening people’s range of choices. Human security means that people can exercise these choices safely and freely – and that they can be relatively confident that the opportunities they have today are not totally lost tomorrow.” The important link between the two concepts is then said to be that: “progress in one area enhances the chances of progress in the other. But failure in one area also heightens the risk of failure in the other” (UNDP, 1994: 23).

Human rights also can be conceived differently insofar as their implementation have been exclusively the domain of the state since any other actors are not allowed to interfere in matters of national sovereignty (Donnelly, 2013: 32; Beitz, 2009: 123). Donnelly (2013: 33) notes that all the international rights
covenants creates obligations only for states… foreign states have no internationally recognised human rights obligations – or even a right – to protect nationals abroad. They are not even at liberty to use more than persuasive means on behalf of foreign victims. Current norms of state sovereignty prohibit states from acting coercively abroad against virtually all violations of human rights – genocide being the exception that proves the rule. 
Indeed, this supports the view discussed above that traditional concepts of security had privileged the state in such a manner that individuals had no redress if their life or other rights are threatened by the state. According to Beitz (2009: 3) the problem is also that there is no standing capacity to enforce human rights and, even if the capacity was there, he wonders; “what, for example, would it mean to enforce the right to an adequate standard of living?” Human rights discussions thus inevitably run into the tensions between state sovereignty as articulated in Article 2 (7) of the United Nations (UN) Charter and the need to protect them everywhere enshrined in Article 55 of the same Charter.

An Integrative Concept:

Human security has been touted by its framers as an integrative concept which allows the domains of security, development and human rights to be able to talk about issues in ways that were previously not possible (Christie, 2010: 170; Thomas, 2004: 354). Its vagueness and malleability, which has been critiqued above, is said by Christie (2010: 176) to have “allowed policymakers to fit a range of programmes within its framework. It provides an effective framework that tells policymakers where to look (at people inside of the state) to understand sources of conflict and what to look for in broad terms (things that threaten, risk or impoverish people).”

In any case, silo-thinking must lead to suboptimal results for any endeavour where effects in one silo can demonstrably impact the other silos. This logic then has seen the concept of human security adopted by states, and agencies such as the World Bank, IMF and the various bodies of the UN who have found it useful as a rationale for intervening and deciding how to intervene in at risk communities (Christie, 2008: 5). By all objective measures, the DRC satisfies the at-risk-community criteria, as human security is absent there. The DRC is ranked 186th out of 187 countries on the Human Development Index (HDI) (UNDP, 2013).

Kaldor (2007: 183) sees the concept of human security as adopted by Canada and Norway logically leading to the precepts of the “Responsibility to Protect” (R2P) as it emphasised security against political violence. Canada was at the forefront of the effort that saw R2P articulated in the outcome document of the International Commission on Intervention and State Sovereignty (ICISS). While the Canadian government’s approach is thought of as being narrower than the UNDP approach, as has been outlined above, both these approaches can find common ground in the “responsibility to protect” as a policy choice despite their ‘narrow’ and ‘wide’ orientations. The most cited example of positive policy impact by human security proponents is the Ottawa Convention of 1997 banning landmines, and the Rome Statute that brought the International Criminal Court (ICC) into existence in 2002 (Hubert, 2004: 351; Thomas, 2004: 354). Of course, it does not necessarily follow that this has enhanced human security. For example, former South African President, Thabo Mbeki, avers in reference to his mediation work in Sudan that justice cannot trump peace – as he views the United Nations Security Council (UNSC) referral of the Sudanese President Omar Al-Bashir to the ICC as counter-productive to the achievement of peace there (Al Jazeera, 2013). 

The term human security then has been adopted by policymakers to intervene in the domestic affairs of other states, even though not necessarily with military force. Even if the term was just a label, as suggested by Paris above, it still allows us to look at these policymakers’ actions so as to establish if they are enhancing or hindering human security. The DRC state itself by being a signatory to UN and African Union programmes and documents premised on human security, lends its actions to be analysed the same way. The elites in the DRC’s relationship with the international order as well as with their domestic population can thus be interrogated using the human security lens.

The other factor worth restating here is that because of development asymmetries in the world, the global South is on the receiving end of any interventions premised on human security. These interventions are premised on the principles of a liberal world order. Inevitably, there will be situations when policies designed to advance human security end up achieving the opposite effect. There are also structural features of the liberal world order which are inimical to human security. Human security therefore, will thus allow us, in Chapter 4, to look at what effects the international community’s interventions have had for the DRC population, as well as to identify where the DRC state is culpable for insecurity.

Conclusion:

In summary then, human security is the attempt by the international community to integrate the fields of development and security so as to secure mankind against the threats of the 21st Century. Human security’s great contribution to international relations is that it reflects the current security realities on the globe, where citizens are equally threatened by disease, hunger, poverty, and natural disasters as by military invasion by other states. It has introduced the individual as the referent object, unlike the traditional concept of security which privileged state sovereignty. As the dangers of invasion are still valid in some parts of the world, such as on the Korean Peninsula, this essay sees human security as a constitutive part of national security and not as an alternative. For this paper, the human security lens should be useful in critiquing more acts of commission or omission by the international community as well as by the DRC State, whereas a state-centric view of security would only have found fault if the state failed to defend the nation against military invasion.



Chapter Four

A Multi-Causal Analysis of State Weakness in the Democratic Republic of Congo

Introduction:

This paper has so far endeavoured to show that the ideas of a state and that of human security are universally applicable and exportable regardless of the cultures of receiving societies. Taking the fact that the states in existence have signed on to the tenets of human security as my departure point, I can now interrogate where, by acts of commission or omission, the international community and the DRC’s elites have contributed to state weakness and thus hindered human security there. This section will first discuss the international factors that have been inimical to human security. As it may not be so easy to discern where the international community is causing harm, the analysis on the international level will be guided by Johan Galtung’s structural theory of imperialism as well as by his theory of structural violence. The value of these two theories is that they can help us identify victim and assailant where there may not be identifiable actors or obvious harmful actions. The paper then turns to the state level to look at what actions, those entrusted with power in the DRC, have taken or not taken that have resulted in state weakness. State weakness has been argued to be the inability to provide human security as institutions of the state lack the resources and capacity to be effective.  

The International Level:

The first theory that helps in trying to identify where the international community may be implicated in human insecurity in the DRC is the structural violence theory which was coined by Johan Galtung. For Galtung (1969: 168), “violence is present when human beings are being influenced so that their actual somatic and mental realizations are below their potential realizations.”  He rejected “the narrow concept of violence - according to which violence is somatic incapacitation, or deprivation of health, alone (with killing as the extreme form), at the hands of an actor who intends this to be the consequence” (Galtung, 1969: 168). Further, he circumscribed his concept to what is avoidable, such that; “if a person died from tuberculosis in the eighteenth century it would be hard to conceive of this as violence since it might have been quite unavoidable, but if he dies from it today, despite all the medical resources in the world, then violence is present according to our definition” (Galtung, 1969: 168).

For Galtung (1969: 169), this is indirect violence because people are being prevented from reaching their full potential as “resources are monopolized by a group or class or are used for other purposes.” The important takeaway from his concept is that he makes a distinction between personal or direct violence where an actor who commits the violence is present, and structural or indirect violence where there is no such actor (Galtung, 1969: 170). Structural violence then “shows up as unequal power and consequently as unequal life chances” (Galtung, 1969: 171). According to this conception then, we can find fault with the international system insofar as there is global inequality which can be attributed to the global North. But to make the point much clearer, especially where relations between the global North and global South are concerned, another concept must be introduced which links the ideas being explored here together. The concept is that of a structural theory of imperialism.

Galtung’s structural theory of imperialism was concerned with explaining the levels of inequality between countries and within countries, as well as the difficulty in eradicating this inequality (Galtung, 1971: 82). According to him, this was due to imperialism which he defined as “a dominance relations between collectivities, particularly between nations” (Galtung, 1971: 82). Further noting that “it is a sophisticated type of dominance relation which cuts across nations, basing itself on a bridgehead which the centre in the Centre nation establishes in the centre of the periphery nation, for the joint benefit of both” (Galtung, 1971: 82). In this view, elites who would be allowed to assume power in the postcolonial states are those who could be trusted to protect the continued exploitative relationship whereby the postcolonial state would remain a provider of raw materials to the metropolitan centres (Galtung, 1971: 82). This view was shared by Hoogvelt (1997: 30) who saw the colonial period as the time when postcolonial states’ fates were decided as it was then that “the internationally imposed division of labour relegated colonial areas to the status of producers and exporters of primary, unprocessed goods.”

Therefore, the postcolonial state was inserted into the global economy in the same way it had been inserted during colonialism, a significant continuity where its underdevelopment is concerned (Kisangani, 2012: 213). If this relationship was ever threatened, then to protect it, the former colonizers were willing to use direct violence instead of the usual structural violence outlined above (Galtung, 1971: 85). The French policy called Francafrique exemplifies this type of willingness by the former colonial powers to use force to remove postcolonial elites who threatened this status quo. In the DRC, Lumumba was assassinated by the United States and Belgium for wanting to break free from this neo-colonial arrangement (Weissman, 2014). Since colonialism was instituted to benefit metropolitan centres through extraction of resources required to develop the metropolitan centres at the expense of the colonies, any continuation of that relationship must contribute to state weakness. Closer to home, the region the DRC is located in also works to confound any attempts at strengthening the DRC state.

A Bad Neighbourhood:

At the regional level, the bad neighbourhood argument proposed by Collier suffices for the DRC on both counts. Collier (2008: 54) first accepts Sachs's proposal that being landlocked affects a country’s growth rate due to high transportation costs. Anticipating the criticism that would come as to why countries like Switzerland have developed nonetheless, he argues that neighbours matter (Collier, 2008: 54 - 55). Thus if a country is landlocked and its neighbours have no viable transport infrastructure, then that country could not even dream of being involved in manufacturing as it would be impossible to move the goods to global markets (Collier, 2008: 55). A good transport infrastructure is also an indicator of developed economies, such that for Collier (2008: 55) Switzerland is not blocked from its global markets but, in Germany, France, and Italy; it is actually surrounded by its market. For all intents and purposes, the DRC is landlocked and surrounded by underdeveloped countries such as Uganda, Central African Republic, Angola, Rwanda, and Sudan. So, some of its underdevelopment can be described in those terms of reference.

The most important way the bad neighbourhood arguments manifest themselves for this paper pertains to how the DRC is surrounded by conflict ridden neighbours. This means it finds itself at the frontline of all the negative aspects such as smuggling, proliferation of small arms and refugee flows. Below, the paper discusses the aspects that made Mobutu Sese Seko’s rule untenable, but at this stage it is necessary to note that the First Congo War of 1996 – 7 which unseated him, as well as the Second Congo War of 1998 – 2002, had their origins in the Rwanda Genocide of 1994 (Turner, 2007). The aftermath of the Rwandan genocide saw the genocidaires cross into Eastern Congo and with them the defeated Hutu dominated Rwandan Armed Forces (FAR) who continued to plot and destabilise the new Tutsi government in Rwanda (Stearns, 2011: 15). Rwanda, Angola and Uganda then backed Laurent Kabila’s bid to overthrow Mobutu in what became the First Congo War (Stearns, 2011: 8; Kisangani, 2012: 28). While the Second Congo War is attributed to a falling out between the Rwandese and Laurent Kabila who they had helped install in Kinshasa. The Rwandan and Ugandan internal conflicts can also be traced to the same colonial legacy causes, as will be discussed below, such that if this paper was discussing conflict issues in Rwanda or Uganda, it would not be unreasonable to view the DRC itself as the bad neighbour.

This is also a situation where human security as a policy prescription may be found to lead to a deadlock. For example, to dissuade Rwanda or Uganda from destabilising the DRC it may be necessary to impose economic sanctions on these countries, but the effects of sanctions are such that they are detrimental to human security in the target country. So, the international community would find itself with no tools to punish malfeasance if the tenets of human security are pursued to their logical conclusion. The only solution would have to be for the DRC state’s institutions to have been strong enough in the first place so as not to tempt bad neighbours into thinking of gaining access to its resources through force.

The Resource Curse:

There are two other factors which contribute to state weakness in the DRC. The first factor is that of size dysfunction where by virtue of the DRC’s size – as large as Western Europe but sparsely populated – it is difficult and expensive for the central state to effectively project power (Herbst and Mills, 2009). Nothing much can be done about that. The second factor is that of the ‘resource curse.’ The resource curse was described by Collier (2008: 38) as referring to the fact that “the surplus from natural resource exports significantly reduces growth” since when a country has “enough natural resources it can forget about normal economic activity.” Where the state is in control as in Saudi Arabia then this curse is manageable, but where state authority does not exist it becomes a source of conflict. Stiglitz (2007: 135) explains the scenario that ensures where state authority is absent as; resources become “both the object of the conflict and the source of the financial wherewithal that enables the conflict to go on.” He also noted that resource rich countries tend to breed bad governance because the elites need not be accountable to the populace but only need to rely on resource rents to buy arms and to co-opt other elites (Stiglitz, 2007: 136). This second factor implicates the international community in structural violence as Wenar (2013) sees the international community as drivers of the resource curse since they are the market for these natural resources. So, for all the factors under discussion here, it is possible to see where the international community is implicated, and also where the DRC state is implicated though no direct violence may be present.

The State Level:

At the state level, this author sees state weakness to ensure from the self-defeating short-term survival strategies adopted by postcolonial states to deal with their lack of legitimacy at independence. These strategies led to the decimation of any institutional capacity that had been bequeathed to them by colonialism. Kisangani (2012: 1), surveying the civil wars between 1960 and 2010, contends that “the politics of exclusion is the major trigger of most civil wars in Congo rather than the tensions over resources, basic needs, or identity.” The value to be extracted from Kisangani’s work is that there are ‘politics of exclusion’ in the DRC and, also that once these excluded elites assume power, they tragically, “continue the same system of predation as their predecessors, setting an unending cycle of predation and conflict” (Kisangani, 2012: 2).

The cycles of predation have been seen, in Chapter 1, to have been repeated from Leopold II’s rule through to the current rule under Joseph Kabila. For the purposes of this paper, the seeds of state weakness in the DRC state can be seen to have been sown at independence and then, further nourished under Mobutu’s rule. In Chapter 2, it was noted that in response to a lack of legitimacy and lack of resources, the postcolonial elites adopted these five strategies; “a client state, a personalised identity, a centralized or overdeveloped morphology, a prebendal or rentier nature, and an extractive impulse” (Villalon, 1998: 11). This paper now expands on these factors so as to show how they have led to the continued weakness of the DRC state.

Colonial Legacy and the 'Lame Leviathan':

Colonial legacy refers to how colonialism bequeathed their successor states with dysfunctional elements such as the arbitrarily drawn colonial borders which put people with different allegiances in the same territorial unit. The post-colonial state also inherited an underdeveloped economy where the state bureaucracy was the only viable employment sector. As it turned out, these legacies meant that the postcolonial states would adopt very similar strategies to deal with the dysfunctions they inherited from the departing colonial rulers (Villalon, 1998: 11). A lack of legitimate authority to rule is the most important crisis that seized the attention of postcolonial elites. The strategies they adopted were functional in the short term but proved to be detrimental to the development of the institutions of the state in the long run. Where the state should have been an impersonal ‘public power,’ it became, of necessity, personalised. Thus the important factors as to why the DRC state continues to be weak can be found in these survival strategies instituted by the elites at independence.

Nationalism and the struggle against colonialism managed to unite people within the postcolonial states, but once independence was achieved the ethnic and tribal cleavages became obvious. On 4 July 1960, four days after independence, the DRC experienced a mutiny in the Force Publique over the fact that promotions to senior positions were not open to black Congolese soldiers (Kisangani, 2012: 17). The effect of this mutiny was that the nascent postcolonial state in the DRC lost its monopoly on the use of force and, as well, the exodus of Belgian civil servants due to the violence meant their places would be filled by inexperienced Congolese (Kisangani, 2012: 17). If we agree that the colonial state did not prepare the Africans for takeover of the state administration, then a degree of incompetence has to be admitted as a reason for some of the poor performance of the state institutions. But to the question whether everything that ensured henceforth was due to ineptitude, the answer from the extensive literature on the DRC is no. Instead, various authors see what happened under Mobutu’s rule, and elsewhere in postcolonial Africa, to be a rational strategy for people who lacked legitimacy and resources on assuming power. In the DRC, proof that there were competing centres of legitimate authority can be seen in the fact that Katanga seceded on 11 July 1960, albeit with Belgian encouragement and support, followed by South Kasai on 8 August 1960 (Kisangani, 2012: 17). Lumumba’s turning to the Soviet Union for military help in quelling these rebellions then led the United States to sanction his assassination, and as suggested above, this is evidence of how the West could only tolerate a leader who would serve their interests. These secessionist demands and ensuring legitimacy crisis led to Mobutu coming to power on 24 November 1965. 

Mobutu’s response to his own lack of legitimacy, defined by Kisangani (2012: 20) as the “belief by the ruled that the ruler has a right to exercise authority” then led him to adopt the strategies which define the nature of the DRC state today. The first face of the DRC, under Mobutu, precipitant from these strategies was that of becoming a client of the United States in the East – West Cold War rivalry. This provided him with strategic rents and military protection when his authority was challenged as happened in the invasion of Katanga in 1977 and 1978 by Katangan forces based in Angola (Jackson and Rosberg, 1982: 11).

The second face is that of personalised rule which was best described by Sandbrook and Barker (1985: 90) when they wrote that;
the strongman, usually the president, occupies the centre of political life, front and centre stage, he is the centrifugal force around which all else revolves. Not only the ceremonial head of state, the president is also the Chief political, military and cultural figure: head of government, Commander in Chief of the armed forces, head of the governing party (if there is one) and even Chancellor of the local University. His aim is typically to identify his person with the nation.
In a speech to the Ghanaian Parliament in 2009, President Barack Obama was lauded for voicing that “Africa doesn't need strongmen, it needs strong institutions” (White House, 2009); however, the value of his observations have since diminished as he invited leaders such as Joseph Kabila and Teodoro Obiang of Equatorial Guinea to the US-Africa Summit of 2014. Indeed, this configuration of power is inimical to the development of an impersonal public power’s institutions since the strongman has to fill key positions with personally loyal individuals (Sandbrook and Barker, 1985: 90; Young, 1985: 24).

The second face of a personalised rule is linked to the third face in that the state in Congo became overdeveloped when the public sector, by virtue of being the only viable employment sector was made to absorb more people as a way of buying loyalty (Villalon, 1998: 13). This has been described as the ‘burden of co-optation’ and its limit is that “the state itself becomes a massive consumer of resources, is highly inefficient, and fails to promote any significant degree of economic development, thus leading eventually to its own political weakness and failure” (Villalon, 1998: 13).

The fourth and fifth faces are that of the prebendal or rentier state, and that of the extractive state whose dynamics are closely related to what has been said above under the subheading resource curse, but worth restating here as a way of showing how the local elites are implicated in the curse. Prebendalism, also referred to as neo-patrimonialism, refers to the way  in which Mobutu rewarded loyal clients with positions which could then be used as sources of private wealth accumulation, to the detriment of resource availability for the state’s institutions (Villalon, 1998: 13). The extractive impulse refers to how the state in the Congo throughout its colonial and postcolonial times has served primarily the role of extracting resources for the benefit of the elites (Villalon, 1998: 13). The difference highlighted between Mobutu and the colonial times is that at least the colonial state re-invested some of its revenue back into maintaining the infrastructure; while under Mobutu neither hospitals were built nor reinvestment in transport infrastructure was made (Turner, 2007: 44; Kisangani, 2012: 32). As recorded by Kisangani (2012: 211), Congo had 145 213 kilometres of road in 1960 but by 2010 it only had 57 000 kilometres mostly in the urban areas. In sum, the institutions that matter where deinstitutionalized while patronage was institutionalized whereby “those in power developed clientelist networks to gain support from the elites, not the masses” (Kisangani, 2012: 32). These systems were replicated under both Laurent Kabila and Joseph Kabila.

The result from these five short-term strategies is a decay of state institutions and a feebleness which was lamented by Nzongola-Ntalaja when he wrote that;
the major determinant of the present conflict and instability is the decay of the state and its instrument of rule in Congo. For it is this decay that has made it possible for Lilliputian states the size of Congo’s smallest province, such as Uganda, or even that of a district, such as Rwanda to take it upon themselves to impose rulers in Kinshasa and to invade, occupy, and loot the territory of their giant neighbour (Turner, 2004: 11).
State crisis and failure can then be identified by the lack of capacity to carry out the core functions of the state across the domains described in this paper as constituting human security.

Conclusion:


This chapter has relied on the notions of structural violence and structural theory of imperialism so as to identify where human security is being hindered by actors whose declared intention may not be to hinder it. On the international level it has been argued that colonialism and its continuation as neo-colonialism is a factor for state weakness in the DRC. The actions of the DRC’s neighbours have also been said to impact negatively on human security. The most important factors for state weakness have been identified as the type of rule that was instituted under Mobutu. The strategies he employed to consolidate his rule were inimical to the creation of strong state institutions as evinced by their inability to defend the country from external aggression or to pacify the internal population.



 Chapter Five
Conclusion: The Centrality of the State in the Provision of Human Security

This paper’s has argued that the Westphalian/Weberian state is central in the provision of human security. This Weberian state has been taken here to be “a human community that (successfully) claims the monopoly of the legitimate use of physical force within a given territory” (Weber, 1948: 78). As this is already the organising principle on the globe, my task was to establish why some communities manage this while others do not. To establish this I used the Democratic Republic of Congo as my case study and the implied comparison was against the consolidated European states. I also relied on the concept of human security as a lens which can help best describe what strong and weak statehood means in the 21st century. It has been accepted in this paper that these concepts – that of the Weberian state and human security – are capable of “exportability irrespective of the cultural specificities of receiving societies” (Young, 2012: 33).

The first task in a project that tries to claim universal applicability of any concept is to try and show why this should be the case. I have attempted to justify the Weberian state as a concept that is universally applicable by relying on the state of nature metaphor as it was conceived by Thomas Hobbes and John Locke. Hobbes has been argued to have said that absent a power to enforce law and order life quickly becomes unbearable. Locke, too, felt that it is necessary to have an enforcer of law and order. Stateless societies may have existed in the past but once the modern state was instituted it managed to, in the main, supplant all these other forms of organising society. The important thing here is that even though these forms of organisation, prior to the Weberian state, may have managed to provide law and order in their respective societies, the failure to protect their members against external aggression should be taken to mean a ‘strategic inflection point’ occurred – their way of organising affairs was no longer viable (Grove, 1998).  This is particularly true in the case of Africa where the form of organisation as scattered kingdoms and not nation-states did not protect members of the community from being taken away as slaves by outsiders nor did it stop forced labour and the exploitation of the resources by foreigners.

The task of this enforcer of law and order is not just to provide defence against external aggression, but to create opportunities and conditions that allow the community under its control to live happy fulfilling lives. Having justified the state thus, the puzzle became why some communities have managed to institute states that are capable of providing human security while others have not. The distinction was then made between the older consolidated Western liberal democracies and the nascent postcolonial states.

The human security concept has been argued to be a theory insofar as it is capable of describing the main threats that face the population in the DRC and elsewhere in postcolonial states. An analysis of the causes of human insecurity in the DRC has yielded that at the international level there is a continuity of the exploitative relationship between the DRC and the West so underdevelopment and its concomitants continue to plague the state here. Bad neighbourhood as well as the resource curse are also important factors for the continued weakness of the state. All these factors are however possible because the elites in the DRC have not been able to achieve a monopoly on the use of force within their territory. Human security thus, is not an alternative to national security. The ability of Rwanda and Uganda to destabilise the DRC can only be seen as possible because it cannot repel or punish this aggression.  To be sure, these problems also arise because of the colonial legacy such that authors like Ayoob are hopeful that, in time, consolidation may still happen.

The most significant factor for the continued weakness of the state in the DRC has been argued to be the self-defeating short-term strategies that were adopted by Mobutu when he came to power. His policies of neo-patrimonialism and impunity for corruption, weakened the institutions to the extent that the DRC became easily susceptible to foreign invasion, and the monopoly on the use of force was compromised. Stewart’s concept of the “vicious cycles of lack of development leading to conflict leading to lack of development” finds its full expression in the Democratic Republic of Congo (Stewart, 2004: 278).




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