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Patrice C. McMahon - The NGO Game: Post-Conflict Peacebuilding in the Balkans and Beyond

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In most post-conflict countries nongovernmental organizations are everywhere, but their presence is misunderstood. In The NGO Game Patrice McMahon investigates the unintended outcomes of what she calls the NGO boom in Bosnia and Kosovo. Using her years of fieldwork and interviews, McMahon argues that when international actors try to rebuild and reconstruct post-conflict countries, they often rely on and look to NGOs. Although policymakers and scholars tend to accept and even celebrate NGO involvement in post-conflict and transitioning countries, they rarely examine why NGOs have become so popular, what NGOs do, or how they affect everyday life.After a conflict, international NGOs descend on a country, local NGOs pop up everywhere, and money and energy flow into strengthening the organizations. In time, the frenzy of activity slows, the internationals go home, local groups disappear from sight, and the NGO boom goes bust. Instead of peace and stability, the embrace of NGOs and the enthusiasm for international peacebuilding turns to disappointment, if not cynicism. For many in the Balkans and other post-conflict environments, NGOs are not an aid to building a lasting peace but are part of the problem because of the turmoil they foster during their life cycles in a given country. The NGO Game will be useful to practitioners and policymakers interested in improving peacebuilding, the role of NGOs in peace and development, and the sustainability of local initiatives in post-conflict countries.

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THE NGO GAME Post-Conflict Peacebuilding in the Balkans and Beyond PATRICE C - photo 1
THE NGO GAME
Post-Conflict Peacebuilding in the Balkans and Beyond
PATRICE C. McMAHON
CORNELL UNIVERSITY PRESS
ITHACA AND LONDON
To Hana and Julia
Peace is too important to be entrusted to states alone.
B OUTROS B OUTROS- G HALI, 1994
CONTENTS
ACKNOWLEDGMENTS
The ideas for this book started in late 2000 when I visited Bosnia for the first time after the conflict ended. Generous funding from several sources allowed me to return to the Balkans on several occasions for extended periods of time. In 2000 and 2001, the National Research Council Young Investigator Program provided me with numerous opportunities and contacts throughout the region. In 2003 I returned with the Nebraska National Guard and I thank General Roger Lemke for this invitation. I also received a Policy Research Fellowship from the National Council for Eurasian and European Research (20032004), a research grant from the U.S. Department of States Bureau of Intelligence and Research (20102011), and a Conference Grant (Building Coalitions to Build States) from the American Council for Learned Societies (2011). I am also grateful for the crucial funding I received from my university, including grants from the Department of Political Science, the Carl J. Schneider Research Grant, the University of NebraskaLincolns Research Council, and the Harris Center for Judaic Studies. My interest in international politics is motivated by people and their lives. This requires that I leave my office to listen, observe, and witness. Without financial support from many sources, I simply could not imagine writing this book.
Throughout this project I have been fortunate to have had numerous supportive colleagues and friends to listen to me, read drafts of chapters, and provide feedback. Some of these colleagues are also good friends who have read chapters more than once and continued to give comments and criticism. David Forsythe is exactly the person I have in mind. Although he retired while I was writing this book, he has remained a mentor, coauthor, and good friend. Many others have helped as well, including: Mary Anderson, William DeMars, Dennis Dijikeul, Adam Fagan, Flora Ferati-Sachsenaier, John Furnari, Chip Gagnon, Jill Irvine, Jenny Miller, Ambassador Ronald Newman, Paula Pickering, Elton Skendaj, Jelena Subotic, Hans Peter Schmidt, Jack Snyder, and Jon Western. Conferences and workshops at Mount Holyoke College, the University of Delaware, the University of Westminster, and the International Studies Association, particularly the ISA Workshop on the Contribution of NGOs to International Relations Theory, all shaped this book in different ways. My colleagues and friends at the University of NebraskaLincoln, especially Jean Cahan, Courtney Hillebrecht, Chantal Kalisa, Alice Kang, Linda Major, Elizabeth Theiss-Morse, and Tyler White provided a tremendous amount of support and assistance on this manuscript. Thanks also to my graduate students, specifically Maria Benes, Kate Hunt, Ryan Lowry, Matt Morehouse, and Laura Roost.
In my trips to the Balkans I met many warm, inspiring, and helpful individuals. I have included an appendix of organizations and individuals I encountered and interviewed over the years. In particular I want to thank Fatime Aliu, Mujo Hadi, Selma Hadihalilovi, Chris Hill, Saa Madacki, and Mirsad Tokaa for their key insights and assistance. Merely listing organizations or including a quote from a particular individual, however, does not capture my gratitude or all that I have learned.
Roger Haydon has helped make this a much better book and one that I hope readers will enjoy reading. I thank him for his feedback and encouragement.
Many thanks to other caring friends who kept me grounded, including but hardly limited to Valerie Cuppens, Michelle Kaminsky, Rebecca McMahon, Kelly Smith, Sandi Zellmer, and Malia Zoghlin.
Finally, I would never have started or finished this book without my familys unwavering support, including my in-laws Carolyn and Tillman. I am grateful for their eternal optimism and perspective on life. As usual, my gratitude is greatest to Jeff, Hana, and Julia, who love me and keep me laughing. Thanks for allowing me to get some good work done.
ABBREVIATIONS
CRS
Catholic Relief Services
CSCE
Conference on Security and Cooperation in Europe
DAC
Development Assistance Committee
EAR
European Agency for Reconstruction
ECLO
European Commission Liaison Office
ECOSOC
Economic and Social Council
EU
European Union
EULEX
European Union Rule of Law Mission (in Kosovo)
GHP
Global Humanitarian Platform
ICNL
International Center for Non-Profit Law
ICO
International Civilian Office
ICRC
International Committee of the Red Cross
ICVA
International Council of Voluntary Agencies
IGO
Intergovernmental or international organization
INGO
International nongovernmental organization
KFOR
Kosovo Protection Force
KWN
Kosovo Womens Network
KYN
Kosovo Youth Network
LNGO
Local nongovernmental organization
MBO
Member benefit organization
NGO
Nongovernmental organization
NSA
Nonstate actor
NPCG
NGO Peacebuilding Coordination Group
OECD
Organization for Economic Cooperation and Development
OSCE
Organization for Security and Cooperation in Europe
PBO
Public benefit organization
PISG
Provisional Institutions of Self-Government
PVO
Private voluntary organization
SRSG
Special Representative of the Secretary General
UNHCR
United Nations High Commissioner for Refugees
UNDP
United Nations Development Program
UNMIK
UN Mission in Kosovo
USAID
United States Agency for International Development
INTRODUCTION
Booms and Busts in Peacebuilding
In most post-conflict countries, nongovernmental organizations (NGOs) are everywhere, but their presence is misunderstood and their impact exaggerated. I started visiting Bosnia-Herzegovina in 2000, almost five years after the horrific violence ended. At the time, I was captivated by the NGOs that existed in every city I visited. Returning to Bosnia many times and doing fieldwork in other post-conflict countries, such as Vietnam, Cambodia, and Kosovo, I noticed interesting but disturbing patterns in these very different countries. International actors and international NGOs (INGOs) descended on a country, local NGOs (LNGOs) popped up everywhere, and lots of money and energy went into creating and strengthening NGOs. In time, though, the frenzy of projects slowed, the internationals went home, and local groups disappeared from sight. Excitement and enthusiasm for peacebuilding turned to disappointment, if not cynicism, about these actors and their activities. After a few years, NGOs were no longer the ally and aide. They were part of the problem.
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