	Scope of the Issue

Although long a component of U.S. foreign policy, successive U.S. The past three U.S. National Security Strategy documents all point to several threats emanating from states that are variously described as weak, fragile, vulnerable, failing, precarious, failed, in crisis, or collapsed. These threats include providing safe havens for terrorists, organized crime, and other illicit groups; causing or exacerbating conflict, regional instability, and humanitarian emergencies; and undermining efforts to promote democracy, good governance, and economic sustainability. However, as U.S. policy toward these states has grown in priority and cost—particularly since the terrorist attacks of September 11, 2001—some U.S. officials and other analysts have begun to question the effectiveness of the Administration's policies for dealing with these types of problem states. In recent years, this has resulted in a proliferation of new programs designed to address the challenges of strengthening weak and failing states. The report first provides definitions of weak states and describes the links between weak states and U.S. national security and development challenges. Second, it surveys recent key U.S. programs and initiatives designed to address threats emanating from weak states and identifies remaining issues related to the new programs. Finally, it highlights potential legislative issues that Congress may be asked to consider. Challenges to Development

In addition to the potential transnational security threats that weak and failing states pose to the United States, they also present unique challenges from a development perspective—a dimension of U.S. international policy that the 2002 U.S. National Security Strategy elevated in priority to be equivalent to U.S. policy on defense and diplomacy. They include (1) civilian post-conflict management authorities, (2) DOD transfer authority to the State Department for Security and Stabilization Assistance, (3) DOD global train and equip authorities and funding, (4) foreign police training authorities, and (5) interagency policy effectiveness. At the State Department's request, Congress is considering new authorizations to develop civilian post-conflict stabilization capabilities in the Reconstruction and Stabilization Civilian Management Act of 2008 ( S. 613 , H.R. 1084 , and H.R. 5658 ). These bills seek to authorize funding for stabilization and reconstruction assistance in failing states, as well as the creation of a Response Readiness Corps. Under authority stated in Section 1207 of the National Defense Authorization Act for FY2006 ( P.L. 109-163 , H.R. In the conference report that accompanied H.R. At the heart of this debate is a temporary congressional authority to allow DOD to train and equip foreign military forces for counter-terrorism operations and military and stability operations in which U.S. armed forces are involved (under Section 1206 of the National Defense Authorization Act for Fiscal Year 2006 [ P.L.
Although long a component of U.S. foreign policy, strengthening weak and failing states has increasingly emerged as a high-priority U.S. national security goal since the end of the Cold War. Numerous U.S. government documents point to several threats emanating from states that are variously described as weak, fragile, vulnerable, failing, precarious, failed, in crisis, or collapsed. These threats include providing safe havens for terrorists, organized crime, and other illicit groups; causing conflict, regional instability, and humanitarian emergencies; and undermining efforts to promote democracy, good governance, and economic sustainability.
The U.S. government remains in the early stages of developing targeted capabilities and resources for addressing a complex mix of security, development, and governance challenges confronting weak states. U.S. programs and initiatives fall under five main categories: (1) conflict and threat early warning, (2) international cooperation and diplomacy, (3) foreign development assistance, (4) post-conflict stability operations, and (5) interagency coordination. However, as U.S. policies toward weak and failing states have grown in priority and cost, particularly since 9/11, some policy makers and analysts have begun to question the Administration's commitment to addressing effectively the problems posed by these states.
Congress plays a crucial role in the funding and oversight of programs designed to address weak and failing states. Several recent bills in the 110th Congress and laws directly relate to and have changed aspects of U.S. policy toward these states. Among these include efforts to address (1) civilian post-conflict management authorities and funding (S. 613/H.R. 1084, S. 3288, and H.R. 5658), (2) temporary Department of Defense (DOD) funding transfer authorities to the State Department for security and stabilization assistance (S. 3001/H.R. 5658), (3) temporary DOD security assistance authorities and funding (S. 3001/H.R. 5658), and (4) options for reforming foreign assistance and interagency coordination (as mandated in P.L. 108-199 and P.L. 109-364).
This report first provides definitions of weak states and describes the links between weak states, U.S. national security, and development challenges. Second, the report surveys recent key U.S. programs and initiatives designed to address threats emanating from weak states. Finally, it highlights relevant issues about U.S. policy toward these states that Congress may consider.
For further analysis, see CRS Report RL32862, Peacekeeping/Stabilization and Conflict Transitions: Background and Congressional Action on the Civilian Response/Reserve Corps and other Civilian Stabilization and Reconstruction Capabilities, by [author name scrubbed]; CRS Report RS22855, Section 1206 of the National Defense Authorization Act for FY2006: A Fact Sheet on Department of Defense Authority to Train and Equip Foreign Military Forces, by [author name scrubbed]; CRS Report RS22871, Department of Defense "Section 1207" Security and Stabilization Assistance: A Fact Sheet, by [author name scrubbed]; and CRS Report RL34455, Organizing the U.S. Government for National Security: Overview of the Interagency Reform Debates, by [author name scrubbed], [author name scrubbed], and [author name scrubbed].