SYRACUSE UNIVERSITY
The Maxwell School
Washington, D.C.
FALL TERM 2008
SYLLABUS
Conflict Mitigation and Development Promotion in
Africa's Weak States: Lessons and Prospects
Thursday evenings, 6:00-8:45 p.m.
Tony Gambino
Email: [email protected]
Telephone: (301) 787-6680
Course Description
This course will focus on the set of countries in Africa referred to as “weak” or “fragile” states,
analyzing causes of state weakness and examining the most promising strategies for states to progress
towards greater stability and development. In this context, we will discuss the tradeoffs involved for
a donor in allocating scarce resources to weak states in Sub-Saharan Africa. We will examine this
from the standpoints of bilateral and multilateral donors or UN operating units in a developing
country, and will also examine alternative positions from the standpoint of nongovernmental actors.
Are there promising approaches that donors can adopt to reduce conflict and promote development,
even in countries like the Democratic Republic of the Congo, Guinea, Liberia, Sierra Leone, Somalia,
Sudan, Togo, and Burundi? If so, what do we know about lessons learned and best practices?
The course will begin with a discussion of the fragile states: where are they, which countries, what
makes them fragile, why are they fragile, how are they different from other developing countries?
The course will look at what development theory tells us about fragile states particularly as regards
the primacy of agriculture.
Then, based on our sense of the best answers to these questions, we will proceed to an analysis of
what are the best practices for donors working in these countries. We will focus on real world
alternatives, looking at resource distributions as they presently exist. What are the tradeoffs, and how
do these play out with differential pressures from donor headquarters, from within the country, and
elsewhere? How great is the divide between how donor resources should be – and how they actually
are – allocated? In this context, we will also discuss donor coordination, sector-wide approaches
(SWAps), and the effect of the Poverty Reduction Strategy Paper and its accompanying process in
ensuring more coordination and better development outcomes (or not).
The goal of this course is to present you with the issues that on-the-ground agency heads face in
developing countries today and the types of decisions that they need to make, thereby providing a
practical basis for how to think through such issues. The methodology of this course is to examine
specific countries and issues both across and within sectors, such as education, health, and economic
growth. In some sessions, we will focus on specific sectors, such as education; in others, we will
focus on case studies of specific countries, such as the Democratic Republic of the Congo, Nigeria,
and Togo.
The overall structure of the seminar appears in the section below, but the specific emphasis of the
class will be further developed during the first session according to the interests of participants.
I will use a number of guest lecturers, particularly expert in their topics, to enrich our understanding
and enliven our discussions. “Career corner” sessions will occur whenever a guest speaker comes in.
During those times, the guest will be invited to discuss his or her career path and to answer career
development questions.
Course Requirements
All participants will be expected to participate in weekly discussions. Performance will be evaluated
on the basis of class participation, student group presentations, and two papers, one due after four
weeks, the other at the end of the semester. If you will be unable to attend a session for any reason,
please contact me ahead of time. Groups of students will make short presentations during some
sessions.
There are 3 assignments:

The first paper will be a short discussion (5 pages) of problems relating to state fragility and
will be due October 2 (10% of final grade).

Group presentations will be selected and prepared after discussion with me and will occur
throughout the semester (25% of final grade).

A final paper (15-20 pages), due at the end of the semester, will involve choosing a specific
country and sector and presenting your views of the most promising approach to address the most
pressing problems for your chosen country in that sector (40% of final grade).
Participation also will account for 25% of the final grade.
Course Materials
A core book, which will have a function similar to a textbook, will be The Bottom Billion by Paul
Collier. Another central reading will be The Evolution of the International Economic Order by
Arthur Lewis. The readings for the course also will include selected portions of the USAID strategy
for the Democratic Republic of the Congo 2004-2008, as developed in 2003, journal articles, books,
and links to websites.
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Session 1
September 4
Overview: What and Where Are the Fragile States?
This introductory session will give an overview of two broad topics. First, we will examine how
states are characterized and categorized. What is meant by the concept of state “fragility”? Where
are the “fragile states,” which countries, what makes them “fragile,” why are they “fragile,” how are
they different from other developing countries? Second, I will introduce three types of thinking
about how to respond to development challenges in the context of fragile states, represented by Paul
Collier, Jeffrey Sachs, and William Easterly.
 Rice, Susan E. and Patrick, Stewart, “Index of State Weakness in the Developing World”
found at
http://www.brookings.edu/~/media/Files/rc/reports/2008/02_weak_states_index/02_weak_stat
es_index.pdf
 Collier, The Bottom Billion, pp. 3-13.
 Sachs, Jeffrey and John McArthur, “The Millennium Project: A plan for meeting the
Millennium Development Goals,” The Lancet January 12, 2005, found at:
http://image.thelancet.com/extras/04art12121web.pdf
 More information on the Millennium Development Goals (MDGs) can be
found at http://www.unmillenniumproject.org/ I encourage you to spend some
time on this web site, particularly if you are unfamiliar with the MDGs.
 Easterly, William, The White Man’s Burden: Why the West’s Efforts to Aid the Rest Have
Done So Much Ill and So Little Good, pp. 112-157.
Session 2
September 11
What Does Development Theory Tell Us About the Fragile States?
Development theory contains striking insights concerning the relative importance of various sectors,
such as education, agriculture, health. What are these insights and how do they relate to issues in the
fragile states?

Lewis, Arthur, The Evolution of the International Economic Order, all.

World Bank, World Development Report 2008 “Agriculture for Development,” Overview,
found at http://siteresources.worldbank.org/INTWDR2008/Resources/27950871192112387976/WDR08_01_Overview.pdf

Collier, The Bottom Billion, pp. 17-96.
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Session 3
What Types of Strategies Do Donors Attempt in Fragile States?
September 18
First, we will look at issues around fragile states. What types of interventions do donors presently
attempt? What is the role for outside actors in promoting security in fragile states? Should the
concept of state sovereignty be viewed differently in fragile states? Is there a “responsibility to
protect”? What and how effective is the Poverty Reduction Strategy Paper (PRSP) and its associated
process? What different strategies to donors adopt? How well do donors coordinate?
 Collier, The Bottom Billion, pp. 99-134, 175-192.
 Easterly, The White Man’s Burden, pp. 367-384.
 Evans, Gareth, International Crisis Group, “The Responsibility to Protect: Creating and
Implementing a New International Norm,” found at
http://www.crisisgroup.org/home/index.cfm?id=5036&l=1
For a more detailed speech by Evans on the responsibility to protect, see
http://www.crisisgroup.org/home/index.cfm?id=5615&l=1
 High Level Forum on Joint Progress toward Enhanced Aid Effectiveness, Paris Declaration
on Aid Effectiveness, March 2005, found at
http://www.oecd.org/dataoecd/11/41/34428351.pdf
 IMF, brief description of the PRSP, found at http://www.imf.org/external/np/prsp/prsp.asp
(The IMF web site contains much more information on the PRSP.)
 Organization for Economic Cooperation and Development (OECD), Development Assistance
Committee (DAC), “Whole of Government Approaches to Fragile States,” found at
http://www.oecd.org/dataoecd/15/24/37826256.pdf Read at least the Executive Summary, pp.
7-11, and look at more of this document if possible.
The OECD’s Development Assistance Committee has additional useful
information on its site, found by starting at their “Development Effectiveness in
Fragile States” page, found at
http://www.oecd.org/department/0,3355,en_2649_33693550_1_1_1_1_1,00.html
 Department for International Development (DFID), “Sector-wide Approaches (SWAps),”
October 2001, found at http://www.keysheets.org/red_7_swaps_rev.pdf
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Session 4
September 25
Defense, Diplomacy, Development, and the Fragile States
What is the relationship between these three discrete activities undertaken by states? How are they
related? How have donor states altered their strategies based on a reconsideration of these
relationships? What does this mean for activities in fragile states?
 MONUC (Mission of the United Nations in the DRC; www.monuc.org ), 26th report of the
Secretary-General on the United Nations Organization Mission in the Democratic Republic of
the Congo, found at:
http://reliefweb.int/rw/RWFiles2008.nsf/FilesByRWDocUnidFilename/EGUA-7GDRJ4full_report.pdf/$File/full_report.pdf
 USAID, July 2008, “Civilian-Military Cooperation Policy.”
 ADDITIONAL READINGS TO BE ASSIGNED VIA BLACKBOARD
Session 5
October 2
From Theory to Practice
A Case Study: The Democratic Republic of the Congo
NOTE: FIRST PAPER DUE AT THE START OF CLASS.
This session will begin our consideration of the case of the DRC.
 OECD, African Economic Outlook 2008, “Democratic Republic of Congo,” found at
http://www.oecd.org/dataoecd/13/39/40577125.pdf
 International Rescue Committee, 2008, “Mortality in the Democratic Republic of Congo: An
Ongoing Crisis,” found at: http://www.theirc.org/resources/2007/20067_congomortalitysurvey.pdf
 MONUC (Mission of the United Nations in the DRC; www.monuc.org ), 25th report of the
Secretary-General on the United Nations Organization Mission in the Democratic Republic of
the Congo, found at:
http://reliefweb.int/rw/RWFiles2008.nsf/FilesByRWDocUnidFilename/EGUA-7DHPLYfull_report.pdf/$File/full_report.pdf
 USAID, Integrated Strategic Plan for the Democratic Republic of the Congo FY 2004-2008,
pp. 1-32.
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Session 6
October 9
Promoting Democracy, Promoting Governance
The role of democratization in reducing state fragility is hotly debated. Are democracies less fragile?
Is dictatorship “required” in some places at some times to help states move beyond fragility? What
types of strategies to promote democracy are employed by the leading donors? USAID has a joint
office for Democracy and Governance? Are the two issues conceptually similar or different? Are
governance issues different in the fragile states? What strategies should donors adopt to promote
improved governance?
REVIEW THE FIRST EASTERLY READING (FROM WEEK 2).
 USAID, “At Freedom’s Frontiers: A Democracy and Governance Strategic Framework,”
December 2005, found at http://www.cgdev.org/doc/shortofthegoal/chap12.pdf
 Collier, The Bottom Billion, pp. 135-156.
Session 7
October 16
Key Sectors: Health
We will broaden last week’s discussion by examining other sectors and sector choices. We will then
focus on issues within one sector, health.
 USAID, Integrated Strategic Plan for the Democratic Republic of the Congo FY 2004-2008,
pp. 47-73.
 Freedman, Lynn P. et al., Who’s got the power? Transforming health systems for women and
children, Executive Summary, found at
http://www.unmillenniumproject.org/documents/maternalchild-frontmatter.pdf
 Joint Learning Initiative, Executive Summary, found at
http://www.globalhealthtrust.org/report/executivesummary.pdf
Session 8
October 23
Donor Strategies
A Case Study: USAID
We will focus on USAID, and how it approaches issues of state fragility. Please read the USAID
Fragile States Strategy pamphlet. Also, please spend time on the USAID web site: www.usaid.gov,
and the Department of State web site, www.state.gov – please examine in detail the “Foreign
Assistance Framework” found at http://www.state.gov/documents/organization/75118.pdf
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We will be joined by Andrew Sisson, USAID Foreign Service Officer, formerly Mission
Director for the USAID Regional Mission based in Nairobi, Kenya, and formerly responsible
for Africa in the State “F” Bureau.
 USAID, Strategic Framework for Africa, 24 February 2006, found at
http://pdf.usaid.gov/pdf_docs/PDACG573.pdf
 ADDITIONAL READINGS TO BE ASSIGNED VIA BLACKBOARD
Session 9
October 30
Key Sectors: Economic Growth and Livelihoods
 Sanchez, Pedro et al., “Halving Hunger: It can be done,” Executive Summary, found at
http://www.unmillenniumproject.org/documents/Hunger-highres-frontmatter.pdf
 ADDITIONAL READINGS TO BE ASSIGNED VIA BLACKBOARD
Session 10
November 6
Case Study: Nigeria
 READINGS TO BE ASSIGNED VIA BLACKBOARD
Session 11
November 13
Key Sectors: Agriculture
 READINGS TO BE ASSIGNED VIA BLACKBOARD
Session 12
November 20
Case Studies: Togo and Sierra Leone
 READINGS TO BE ASSIGNED VIA BLACKBOARD
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Session 13
December 4
Key Sectors: Education
 Birdsall, Nancy et al., “Toward Universal Primary Education: Investments, Incentives, and
Institutions,” Executive Summary, found at
http://www.unmillenniumproject.org/documents/Education-part1.pdf
 World Bank, Education for All – Fast Track Initiative, found at
http://www1.worldbank.org/education/efafti/documents/FrameworkNOV04.pdf
 USAID, Integrated Strategic Plan for the Democratic Republic of the Congo FY 2004-2008,
pp. 129-146.
Session 14
December 11
The Axioms
Review and Wrap Up
NOTE: FINAL PAPER DUE AT START OF CLASS
Additional Sources for Reference
The web sites of USAID, DFID (Department For International Development, the British aid agency),
various UN organizations, including UNDP, UNICEF, the World Bank, etc. contain much pertinent
information going well beyond the readings assigned above. Also, the web sites of various
nongovernmental organizations, such as the International Rescue Committee (www.theirc.org) and
CARE (www.care.org), contain interesting information relevant to this course.
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