International Transitional Administrations and the Politics of Authority Building

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ABSTRACT This article critically examines authority-building practices of international transitional administrations (ITAs) engaged in statebuilding, and evaluates authority building as a framework for understanding the practices of statebuilding operations. It argues that war-torn states rarely lack actors claiming authority, but that these claims are often competing and mutually exclusive, and frequently not widely recognized. Building authority, therefore, requires ITAs to choose between different actors, recognizing the authority claims of some and withholding recognition from others, seeking ways to strengthen their ability to justify their authority claims vis-à-vis domestic and international audiences. Through authority-building practices, external actors directly become part of the political competition and dynamics of war-affected societies. The discussion of authority building by ITAs proceeds in three steps. The first section outlines the concept of political authority, in particular in the context of fragile states and of ITAs, and discusses relevant methodological issues. The second section then examines three distinct aspects of authority building by ITAs: claiming and justifying their own authority, recognizing and validating the authority claims of local actors, and strengthening the capacity of local actors to justify their authority claims. The final section concludes the paper with some reflections on political authority and authority building.