The Invader’s Dilemma
Military invasions are typically considered illegitimate both by local populations and by the international community. How do invaders mitigate this legitimacy deficit? This chapter argues that invading states enlist local rebel groups not only for the expertise and operational capacity they provide but also to gain some degree of legitimacy vis-à-vis local and international audiences. Gaining legitimacy in this way, however, comes at a cost: to avoid the perception that rebel intermediaries are mere puppets, the invading state must refrain from exercising hard controls over them. The chapter illustrates this legitimacy–control tradeoff by contrasting the Rwandan and Ugandan invasions during the Second Congo War (1998–2003). Drawing on interviews with key protagonists, the chapter shows that the different levels of control exerted by Rwanda and Uganda help account for the vast difference in the popularity of their rebel intermediaries. While Rwanda continuously maintained hard controls, eroding its intermediary’s local legitimacy, Uganda initially limited itself to soft inducements, thereby enabling its intermediary to garner legitimacy. In developing these arguments, this chapter engages with the literatures on rebel governance, intervention in civil war, state-building, and military occupation.