Viewpoint
Online issue # 27
November 19,2010
http://tinyurl.com/2b6vhtt
The missing link in drone debate
by Dr. Mohammad Taqi |
Politicians have been coerced by the Army to publicly condemn the drone attacks and parliamentary resolutions were used to indicate to the US the purported public outrage. However, privately, many are appreciative of the drone campaign
With about a hundred drone attacks this year and roughly two hundred since June 2004, in the Federally Administered Tribal Areas (FATA) of Pakistan, the discussion over this issue does not seem to go away. In fact, since David Kilcullen and Andrew Exum last year, Peter Bergen this year and Hamid Karzai this week, weighed in against the use of drones – at least under the current ‘rules’- the debate has only heated up.
Between 2004 and 2007 there were about ten attacks by the CIA-operated Predator drones but the number rose exponentially after George W. Bush commissioned the CIA to conduct action against the al-Qaeda and its Taliban allies in FATA. However, the covert nature of the program and the murkiness around the understanding regarding these attacks, between the United States and Pakistan , more specifically the Pakistani Army, continues to give rise to endless questions and myths. In his recently published book, Decision Points, George Bush notes:
“By the middle of 2008, I was tired of reading intelligence reports about extremist sanctuaries in Pakistan . I thought back to a meeting I’d had with Special Forces in Afghanistan in 2006.
‘Are you getting everything you need?’ I asked.
One SEAL raised his hand and said, ‘No, sir.’
I wondered what his problem might be.
‘Mr. President,’ he said, ‘we need permission to go kick some ass inside Pakistan .’
I understood the urgency of the threat and wanted to do something about it. But on this issue Musharraf’s judgment had been well founded… no democracy can tolerate violations of its sovereignty.
I looked for other ways to reach into the tribal areas. The Predator, as unmanned aerial vehicle, was capable of conducting video surveillance and firing laser-guided bombs. I authorized the intelligence community to turn the pressure on the extremists. Many of the details of our actions remain classified…”
This brief anecdotal section of Bush’s memoir gives some insight into the genesis, success and the criticism of the drone operations. The issues of sovereignty and the alleged civilian casualties remain perennial favorites with the Pakistani right wing and the international left. The common intuitive response to a foreign power’s actions in what is otherwise considered sovereign territory is usually that of condemnation but the militant menace in FATA significantly changes the equation.
Minds entrenched in the notions of Westphalian and international legal sovereignty are inclined to denounce, in a knee-jerk manner, any violation of the international geographical borders or presence of an external authority. While it may, prima facie, appear a reasonable approach but it ignores that legitimacy and authority – two key components of the modern concept of sovereignty- are not enough by themselves to support a nation-state’s claim to sovereignty. The sine qua non of sovereignty is the ability and willingness of the entity claiming such sovereignty to exercise control and establish its writ over its territories and prevent them from being used against other sovereign entities.
The Pakistani state’s de facto policy since the 1973 has been to use the FATA as the point d'appui for launching its Islamist militant proxies against Afghanistan . Faced with the post-9/11 predicament of how to preserve its jihadist assets – then on the run from Afghanistan- the Pakistani security establishment opted to use the FATA to provide such sanctuary. The Pakistan army had retracted its Taliban and Al Qaeda allies into FATA right after the Tora Bora battle and ushered them through Kurram agency into Orakzai and the North and South Waziristan agencies, where they thrive to date.
The traditional tribal elders-led Maliki system of governance however, was a hindrance in the movement, settlement and operations of these jihadist forces. The Pakistani state, therefore, aided and abetted the systematic elimination of the traditional power structures of the Maliki system between 2002 and 2004 and hundreds of tribal elders were killed by the jihadists. Territory and authority was either ceded to or held jointly with panoply of jihadists ranging from the Haqqani network in North Waziristan to local thugs-turned-jihadists like Mangal Bagh in Khyber Agency.
The operations against the US and ISAF troops in Afghanistan were planned and executed from the bridgeheads used by jihadists throughout FATA. Where the Pashtun tribes resisted the jihadists e.g. in the Kurram agency, the state sided with the jihadists against its own people. The Pakistani establishment literally created a Somalia-like situation in the FATA where its favored warlords ruled the roost. What that navy SEAL was referring to was true from his vantage point but it was important from the Pakistani people’s standpoint too.
While the ideological heart of jihadism throbbed throughout Punjab and its brains resided in Rawalpindi , its execution arm remained active in the FATA. Hundreds of bombings across Pakistan with the resultant death toll in the thousands were planned and launched from the tribal areas. On the face of it, the covariation between the Pakistani state’s proclaimed authority and the effective control of its territories remains nonexistent. But the state has actually been perpetuating a massive fraud on its people and the world at large, as it continued to remain in bed with the jihadists, who now exercised authority on behalf of the security establishment.
Under pressure from its military commanders in Afghanistan , the US political leadership had to act. But like the original anti-Taliban campaign of 2001, they tried to take the easy route and do it at a minimum dollar and human cost. Instead of openly confronting Pakistan they opted to press, appease and buy off the junta at the helm in Islamabad . What should have been a declared joint operation with publicized and documented status of forces agreement (SOFA) with Pakistan became a legally and politically tainted back-street gig.
Musharraf at the head of the army, as Bush notes in his book, was successful in scaring the Americans away from not only direct action but also to sufficiently muddle the venture, making it nearly impossible to evolve a public opinion favorable to drone attacks. However, not willing to risk a US incursion into FATA, Pakistan reluctantly acquiesced to the drones operating from places like Shamsi airbase inside Pakistan . But the buffer created by the absence of a (publicized) legal instrument of understanding between the Pakistan and the US outlining the parameters governing the drone operations has served the Pakistan Army well, while the Americans and the Pakistani people who support the drone attacks are readily painted as evil.
The Pakistani politicians from across the political divide have been coerced by the Army to publicly condemn the drone attacks and parliamentary resolutions were used to indicate to the US the purported public outrage. However, privately, many of the center-left politicians, including from the ruling parties, are appreciative of the drone campaign but are reluctant to say that openly. This attitude of the civilian leadership has weakened the case for pursuing the jihadists through drones or other armed means. It also sends a mixed message to the US military and political leadership who then tend to rely more upon the Pakistan Army.
A corpus of research- predominantly through the efforts of the Pashtun intelligentsia- has emerged over the last two years that debunks the myths of civilian casualties and public outcry in FATA over the drone attacks. However, to let the intellectuals do all the heavy lifting on this issue is somewhat unfair and also has its limitations. Without the political leadership taking a lead in shaping the narrative in favor of sustained action against the militant sanctuaries, the public opinion could be swayed with planted news and slanted views. We have seen that, despite claims to the contrary, the Pakistani mainstream media remains beholden to the Army and whether it is the Kerry-Lugar Law or NATO incursion over Mata Sangar, it sings in chorus with them. However, when politicians speak – on record – it is hard for the media and the world powers to ignore their concerns.
It is important not just for the US to hold the Pakistani Army’s feet to fire but for the Pakistani politicians to clearly state their position on the subject of drone attacks in FATA. Americans have the luxury to pack up and leave but most Pakistani politicians do not. They must seek a formal and public state policy on the drones operations preferably through the parliament. With the Pakistan Army’s reluctance to move against the jihadists holding the FATA hostage, the Predator drones remain the most viable option against terror. Only a bold political stance can clear the fog over the FATA skies; the politicians must speak up to regularize the drone campaign.
About 90 people — 12 in just one instance — were assassinated in Karachi earlier this week and approximately 1,300 have been killed in various acts of violence in the city this year. These are not random or targeted killings: this is civil war.
Unlike interstate wars, a civil war is defined as “an armed combat within the boundaries of a recognised sovereign entity, between parties subject to a common authority at the outset of hostilities”. While all wars are hell, civil wars are particularly nasty and are aptly termed dirty wars as the common authority usually stands eroded and the combatants who deem every foul act fair, do not abide by the customary laws of war.
In most instances, a civil war is the continuation of politics by other means and must be understood in this context. An inaccurate narrative of the conflict and use of incorrect nomenclature and descriptive terms, especially by the media and analysts, may mask the political motives of the warring factions and make the already elusive solutions even harder to find.
Whereas an overexposure of the brutalities can desensitise a population, the attempts to sanitise the narrative are also counterproductive. Using euphemisms like target or targeted killing makes the conflict opaque to the people, hampers their understanding of the situation and, in a land where human life is the cheapest commodity, keeps them from demanding answers and definitive action from their elected representatives.
Historically, civil wars have been used to make cities and regions ungovernable, thus making the competing sections of the population and the rulers cede territory and political control. Traditionally, the root cause of many civil wars has been ethnic and religious antagonisms endemic to that region, but in Karachi’s case the continued prevalence of an armed conflict is the composite result of such hostilities, a steady accumulation of unresolved conflicts since at least the 1970s and the gradual emergence of new demographic and political realities.
Political instability — real or perceived — at the federal level indicates disorganisation, weakness and erosion of the state’s monopoly over the coercive and administrative apparatus. This provides a milieu as well as a cue for the various competing groups to contest with each other and the state for power and in the process worsens the perception of governmental weakness. In order to protect their interests, the major political players, therefore, respond to this perceived weakness by seeking means to project their soft and hard power.
In a multi-ethnic, mega city like Karachi, where an overt secessionist movement or insurgency does not exist, various ethnic — and occasionally religious — groups use systematic violence to project hard power. Violence is also used as a coercive adjunct to negotiating and obtaining concessions from opponents, competitors and partners. The so-called land-grabber, drug and extortion mafias or the gangs operating with impunity, serve as the coercive muscle that the different ethnic and political outfits use to demonstrate hard power.
Whereas the Mafiosi and gangsters are a problem by themselves, their importance lies in their association with various political outfits. In some ways these gangs are a revival of certain armed student outfits of the 1970s and 1980s that various political parties, especially the Jamaat-e-Islami and later the Muttahida Qaumi Movement (MQM), had used to bring the university campuses under their control. It would be erroneous to assume that the criminal outfits of Karachi are just a function of the urban sprawl and disarming them, without a concomitant political solution, is going to be useful or even possible. However, political rapprochement by itself would also be insufficient and ineffective.
This is precisely the predicament that the Pakistan People’s Party (PPP) finds itself in: damned if it takes a stern action and damned if it does not. The PPP’s central leadership, especially President Asif Zardari, is under pressure from its own Sindh and Karachi leaders, as well as allies like the Awami National Party (ANP) to call in the military in support of the civilian administration. So far it has resisted these calls because its other coalition partner, the MQM, is totally averse to the idea of an army operation.
The PPP thus faces a political dilemma at two levels. Firstly, and perhaps more importantly for the PPP and others, an army action has its own dynamics and may take a life of its own with consequences that in the long run could undermine the democratic process. Secondly, if the MQM were to exit the provincial and central coalitions, the Sindh government could sustain itself numerically, but the central government would lose its simple majority.
At a juncture when Mian Nawaz Sharif has kept completely mum about the Karachi situation while opting to castigate President Zardari, the PPP would not want to rely on his support to run a minority government. If the PPP’s central government is weakened, Mian sahib — who does not seem to be in a conciliatory mood — may nudge the things towards an in-house change or early polls.
However, the rise in the Pashtun population of Karachi and the resultant ascendancy of the ANP there is something that the PPP cannot ignore. The ANP and its predecessors like the NDP have had political roots in Karachi but the higher profile of the party is reflective of the changing demographics that make the MQM cower. Unlike the rather unnatural and uneasy PPP-MQM coalitions that historically have ended in failure, the ANP perhaps would be the PPP’s natural ally in the Karachi politics in the years to come.
In a situation where the PPP is finding it difficult to break the cycle of violence and an army action may not be in sight, a bolstered police and rangers action with a clear mandate must start in earnest, and soon. The public perception of the PPP’s weakness is seriously damaging its political base, especially in Sindh. However, for such an action to deliver even the bare minimum, the PPP will have to restrain its coalition partners. If the PPP leadership is able to demonstrate some crisis management skills, it could project the party’s soft power through its image restoration. Karachi’s perennial inter-ethnic problems are unlikely to evaporate soon but a proactive PPP could manage to keep them from spiralling into a full intensity civil war.
The writer can be reached at mazdaki@me.com