I think you're quite right on a number of fronts.
In order for Haiti to shed the label of being a fragile state, state institutions need to be strengthened. This includes the police force, and it means making sure there are funds available so that wages can be paid on time.
A second component of a vibrant society--no question--is a vibrant civil society. There are quite a number of NGOs and civil society groups working in Haiti right now. Many of them are faith-based groups and are doing some very important work in Haiti. These groups should be encouraged to continue what they're doing and their efforts should be supported. They are definitely a part of the solution.