The main avenue is not the creation of democracy, per se, but the rebuilding of institutions. Practitioners have come a ways in rebuilding police forces, and they are beginning to work with justice institutions. Little has been done with military reforms, however. Most importantly, agencies have focused the least on rebuilding civil services. Herein lies the manual's major focus.
Democracy building is a very different enterprise than reconstituting a failed state.
At the same time, the democratic side of institution building cannot be ignored by, for example, focusing on elites in the reform process. The manual has outlined 12 negative indicators for sustainable security. These indicators are social, political, and economic. This differs from the previous point in that the movement is voluntary by nature, e.g. braindrain. These can range from outside states, as in the Congo, to potential do-gooders like the World Bank, whose programs can promote tensions.