"Failed States Are Ungoverned Spaces."
Not necessarily. Somalia, the land of the perpetual war of all against all, is our beau ideal, so to speak, of the failed state, and for the fourth year running it is No. 1 on the Failed States Index. Nobody can match Somalia for anarchy, but elsewhere in the world, government, rather than its absence, is chiefly to blame for state failure. Consider Sudan, where the state, deploying its national army as well as paramilitaries, fomented the violence that has dominated Sudanese life for decades and placed it near the very top of the index. Somali violence is a symptom of state failure; Sudanese violence is a consequence of state policy.
Gérard Prunier, a prominent Africa scholar, has written that since coming to power in 1989, Sudanese President Omar Hassan al-Bashir has adopted a policy toward restive ethnic groups that is "verging on genocide." The same was true in Burundi in the 1990s, where Hutu governments massacred Tutsis, after which the Tutsis turned around and did the same to Hutus. In these and other failed states, mass atrocity has almost become an accepted form of politics.
A categorical divide, albeit a sometimes blurry one, separates two classes of failed states. A country like Somalia is incapable of forming and executing state policy; it is a hapless state. States like Sudan, by contrast, are precarious by design. Or take Pakistan, which has followed clear and consistent policies, laid down by the military, since its inception in 1947. Unlike Somalia, or, for that matter, its neighbor Afghanistan, Pakistan is an intentional state. But just as Sudanese policy has provoked decades of violence by pitting the state against the periphery, so the cultivation of jihadi groups by the Pakistani military and intelligence services -- as a counterweight to India and a source of "strategic depth" in Afghanistan -- has turned Pakistan into a cockpit of terrorist violence. Pakistan does, of course, have ungoverned spaces, in the Pashtun-dominated badlands along the border with Afghanistan. But the country's military leaders have made a strategic choice to allow the Pashtuns to govern themselves there, the better to be able to use them against their alleged adversaries. Intentional states, in short, often pose far greater threats to the world than hapless ones do.



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