46655 Brief for Policymakers The missing link--fostering Positive citizen- State Relations in Post-Conflict Environments The "conflict trap" is a widely discussed concept in political and development fields alike. Though extensive research has been undertaken and books written, policymakers are still looking for answers to the challenges observed. Unable to respond effectively we continue to witness a large percentage of post-conflict countries slide back into violence and tragedy. To help these countries and societies emerging from violence climb out of the conflict trap, the international community not only needs to redefine its focus and priorities, but also must break out of its stove-piped assessments and operations. The Missing Link presents a conceptual approach to Timor Leste and Liberia--serve as examples, help policy-makers recognize the societal challenges illustrating how to understand and approach the of post-conflict countries and their relation to policy and operational challenges encountered in governance and long-term stability. The publication the field. shows the shortcoming of the current state-building and reconstruction approach, and it provides policy key challenges observed and operational suggestions on how to design and Severed citizen-state relations, lack of public deliver more effective post-conflict assistance. trust, high expectations for a peace dividend, and a fragmented and traumatized society pose This study calls for a change in the way the governance challenges that are particular to international aid community operates. It is a fresh countries emerging out of violent conflict. and comprehensive look at governance issues that has been missing in the post-conflict reconstruction These challenges affect political and social and state-building debate. developments, and they can constitute a threat to stability. Their importance is often reflected in Practitioners will profit from the assessment guide "lessons learned" exercises, at a time when it is and tool-kit included. Three case studies--Burundi, too late to act. Brief for Policymakers | 1 The Missing Link argues that a well-placed series Further, the ideal public sphere has an active and of strategic and coordinated activities can help inclusive civil society that not only empowers manage expectations, alter perceptions, build citizens to participate in and respond to public public trust in state institutions and repair citizen- discourse, but also can relate to the media and state relations. At the heart of these activities the state. The media is a self-regulated and lies the construction or restoration of national professional system that has the capacity to dialogue mechanisms and processes that are objectively collect, analyze and present information central to reconnecting citizens with each other to the public. The public is media literate, shares and with their state, to rebuilding public trust and discusses information, and forms an opinion--a and to managing expectations after conflict. It public opinion--about state performance. is a functioning public sphere that helps to close the space that gives room to peace-spoilers Public opinion, articulated by civil society groups and undermines the success of the transition and channeled through the media, reaches the processes. state apparatus and influences the acts and decisions of public decision-makers. All this takes A functional public sphere helps to close place within an enabling environment based on the rule of law, which is shaping constructive relations. the societal space that gives room to peace-spoilers and undermines the Any practitioner knows that post-conflict success of transition processes. environments are far from this ideal. Most often neither state, media nor civil society has the capacity for such dialogue. Participation in decision-making is rarely practiced: more often key Questions: the government is aloof from the people. Reliable information is unavailable, rumors abound and the environment is not enabling but is defined · What is the public sphere? by uncertainty and lawlessness. Relationships · How is the public sphere related to among the different public sphere actors are rarely governance and post-conflict recovery? constructive, and public discourse is shaped by · How is a national dialogue built? hostile attitudes and interactions. As the Missing Link demonstrates, these exact structural governance challenges are commonly What is the Public sphere? found in post-conflict countries and are at the very heart of the dynamics threatening stability. From a democratic perspective, the study Addressing them is essential. illustrates that the ideal public sphere encompasses a legitimate, inclusive and How is the Public sphere related to transparent state that informs the public of its Governance and Post-Conflict Recovery? undertakings, political debates, administrative In the long run, participation is fundamental to decisions and legislative acts, and provides entry sustainable governance. Robust public sphere points for public participation. dynamics are essential for a participatory political system with a responsive state and an engaged Brief for Policymakers 2 and trusting citizenry. Building the national public intent and capacity to exercise its functions fairly sphere is good for development in all cases, not just that will determine the stability of the post-conflict in war-to-peace transitions; yet it is here where it period. acquires critical importance. As a consequence of violent conflict, state abuse In the end, it is the citizens' cumulative and exclusion, people in post-war areas have little decision to trust the state's intent and trust in the fair functioning of state institutions and rely on personal networks: tribes, clans, family, capacity to exercise its functions fairly religious groups. The fabric of society is torn by that will determine the stability of the displacement and fighting. Government is absent post-conflict period. and non-state actors play an important role. Individual and group mind-sets are framed by the How is a National Dialogue Built? conflict experience, shaping the way they think, Power-holders are unlikely to put political will act, speak and view themselves and others. Poverty behind the implementation of transparent and is deep and destruction large-scale. Expectations participatory governance unless they are convinced for a tangible peace-dividend are high. Under such that it will contribute to the long-term stability of conditions, reconnecting people to the state and their own political survival. Understanding both managing expectations through inclusive dialogue the need for information sharing and the value become priorities. of participatory processes for stability requires a change of mind-set. Post-conflict governments are elected because they promise change toward a better life and accountable Many stakeholders fail to recognize how profoundly public service delivery. Even if supplemented by conflict and military background affect the way political will, such a change agenda is likely to be actors perceive information and dialogue. It is here challenged by slow aid delivery and by resistance where the building of a national dialogue has to from those profiting under status quo. begin. Citizens who are not informed enough to Crucial steps to facilitate public sphere processes understand the reasons underlying such delays are are establishing dialogue mechanisms and likely attribute the lack of visible improvements capacities. The public sphere is systemic: unless to a lack of political will. The consequent loss of all actors--state, civil society, and media--have an trust in the fledging state institutions can be easily enabling environment to engage their "speaking" exploited by those with a vested interest in renewed and "listening" capacities, the public dialogue will unrest. not function. Building an inclusive public dialogue and giving Building comprehensive parallel societal and a voice and a stake to a wide group of societal environmental capacities is essential to ensure stakeholders is essential to avoid renewed sustainability and avoid imbalances. fragmentation and violence. In the end, it is the citizens' cumulative decision to trust the state's Brief for Policymakers 3 Policy recommendations following elements to support public sphere Current donor policy places great emphasis on dynamics: the importance of state building in post-conflict assistance. Restoring public sector capacity and · Apply the public sphere governance framework early in post-conflict assessments. service delivery is recognized as central to long- term stability. Similarly, donors acknowledge · Think systematically. Ensure cross-sector planning and donor coordination to create synergies and to the relevance of a vibrant civil society and a capture public sphere dynamics. professional media sector for successful war-to- peace transitions. · Work with civil society, media and government to ensure a common understanding of and respect for their respective roles. Promote programs to Operationally and conceptually these two areas increase interaction. are treated as separate sectors. Current stove- · In building state institutions, pay particular atten- piping practices leave no space for a "big picture tion to the creation of entry points for public par- view" and coordination across program areas. ticipation and to the "listening" capacity of both, They fail to support the synergistic processes central and local structures. that serve as connective tissue, linking state · Pay attention that media sector development and institutions, civil society and media together. This communication capacity within government go oversight is responsible for incomplete governance hand-in-hand, as one outpacing the other carries assessments, loss of synergies, reduced impact the risk of manipulation or alienation. and, most importantly, missed opportunities. · Promote inclusive national civil society networks and internal, downward accountability within these If overlooked, the damage done by dysfunctional networks. public sphere dynamics makes any later · Support civic education programs that promote intervention difficult and costly. Incorporating the public understanding about the right to informa- public sphere framework in early post-conflict needs tion. assessments and intervention frameworks will · Develop legislative frameworks and cultivate politi- enable donors to comprehensively and strategically cal will and resources--engage in strategic advo- cacy. repair citizen-state relations, manage expectations and build trust in the fledgling governance · Do not accept the purely political nature of lan- institutions and the reconstruction process. This is guage choices; provide evidence and advice on the economic and social cost of exclusive language the missing link in the current state-building and policies. governance agenda. · Donor behavior tends to be exclusive and to lack transparency: practice what you preach! To help post-conflict societies more effectively, donor assistance policy should incorporate the Brief for Policymakers 4 commGaP The communication for Governance and accountability Program (commGaP), a global program at the World Bank, seeks to confront the challenges inherent in the political economy of development. By applying innovative communication approaches that improve the quality of the public sphere ­ by amplifying citizen voice; promoting free, independent, and plural media systems; and helping government institutions communicate better with their citizens ­ the program aims to demonstrate the power of communication principles, processes and structures in promoting good and accountable governance, and hence better development results. CommGAP is funded through a multi-donor trust fund. The founding donor of this trust fund is the UK's Department for International Development (DFID). CommGAP has launched a blog entitled People, Spaces, Deliberation to share ideas about the role of the democratic public sphere in governance among a growing global community of practice with members who are united in their commitment to improve governance and accountability in developing countries. The blog is addressing issues such as accountability, governance, media development, anti-corruption, post-conflict environments, and public opinion. Join the conversation at http://publicsphere.worldbank.org. communication for Governance & accountability Program (commGaP) Development communication Division external affairs Vice Presidency The World Bank 1818 H Street, NW, MSN U11-1102 Washington DC, 20433 P 202.458.7955 f 202.522.2654 e commgap@worldbank.org WeB: www.worldbank.org/commgap BloG: publicsphere.worldbank.org orDer form ProDUcT Price QTy* The Missing Link: Fostering Positive Citizen-State Relations in Post-Conflict Environments free *5 copies maximum per organization This publication will also be available to download on CommGAP's website, www.worldbank.org/commgap. complete this form and mail it to Johanna martinson The World Bank, commGaP Development communication Division, external affairs 1818 H street NW, msN U11-1102 Washington Dc 20433, U.s.a. you may also send this form by fax to 202-522-2654, or e-mail to commgap@worldbank.org. for more information, please send us an e-mail or call 202-458-7955. mailiNG aDDress Name _____________________________________________ Organization ________________________________________ Address ____________________________________________ City _______________________________________________ State __________ Zip_________________________________ Country ____________________________________________ Phone______________________________________________ Fax________________________________________________ Email ______________________________________________