Hassan Rouhani’s landslide victory in the Iranian presidential election on Friday, 17 May heralds a continuation on the country’s path towards global re-engagement, both on a popular level and in terms of economic and political cooperation. However, the intense campaign that preceded the election points to increasing tension between state institutions such as the presidency, and parallel institutions, including the Revolutionary Guard and parts of the clerical establishment, especially since presidents have previously frequently become more confrontational towards such institutions at the end of their tenures, as evidenced by former president Mahmoud Ahmadinejad’s fallout with Supreme Leader Ayatollah Ali Khamenei in 2011.
With a turnout of nearly seventy-five per cent, Rouhani’s victory, by a margin of twenty per cent over his nearest competitor, principlist cleric Sayyed Ibrahim Raisi, suggests an evolutionary shift within the calculus of Iranians. Although many citizens had previously abstained from voting as it had been seen as endorsing the system, Iranians, in particular those from younger and urban backgrounds, are increasingly turning to the electoral process to shape the country’s politics. Further, most citizens prefer non-violent, incremental changes to Iran’s governance structures. Trita Parsi observes that in most Iranian elections the system outsider has had the most appeal – Khatami in 1997 and Ahmadinejad in 2005 are examples – because Iranian citizens see elections as the only means of altering the country’s political trajectory. Significantly, Khamenei tacitly supported Raisi, especially in the weeks preceding the poll through criticisms of the nuclear deal and of Rouhani’s ‘unwillingness’ and ‘inability’ to implement a ‘resistance economy’. He also publicly confronted the administration over its acceptance of a UNESCO-developed education curriculum, which some saw as undermining gender roles, although the programme had been endorsed, with little opposition, in 2015.
Rouhani’s victory also benefited from the successful conclusion of the nuclear deal in 2015 – despite the less-than-expected foreign investment that followed – and the growth of Iran’s economy by over 10 per cent in 2016, which caused the riyal to appreciate. Fears over a curb in social freedoms if a principlist candidate were to win also influenced the poll, especially since candidates such as Raisi and Mohammad Bagher Ghalibaf had repressed dissent in the past.
Campaigning had been vigorous, and the candidates – especially Rouhani – crossed many ‘red lines’. The president blamed the Islamic Revolutionary Guard Corps (IRGC) for stunting the gains of the nuclear deal; the judiciary for its limits on freedoms; and the public news broadcaster for backing Raisi. He also offended the clergy by demanding that the largest Islamic charity organisation, Astan Quds Razavi, headed by Raisi, be subjected to tax compliance. He further accused the IRGC of crowding out private business. Raisi and Ghalibaf conversely pointed out the nuclear deal’s failings, corruption and recent increases in unemployment during Rouhani’s incumbency. This is typical of Iranian politics, where intense competition for positions increases openness, accountability and criticism, especially in electoral years. The system thus provides room for and tolerates a diversity of opinions, despite vigorous vetting of candidates.
Although most power in Iran remains vested in the Supreme Leader, the president is able to shape most domestic and economic policies through his ability to appoint staff to key institutions, and because of the power he wields in formulating these. Further, in most instances the Supreme Leader prefers to maintain an image of political insulation, and usually contours his political pronouncements in line with popular sentiment, opting to work through informal institutions to realise his preferences. Rouhani’s victory will require him to continue his attempts of increased cooperation globally. This is despite the fact that Khamenei has become disenchanted with this stance, fearing potential reforms, and will act to inhibit it. Further, although many of Rouhani’s criticisms of the IRGC, judiciary and clerical establishment in the regime were politicking, these direct and sharp criticisms and the tendency of Iranian presidents to seek to empower their office in the second term will escalate confrontation between these competing centres of power. This will especially be the case as Rouhani considers his legacy, which is important for Rouhani since seventy-eight-year-old Khamenei reportedly suffers from cancer, and it is reliably believed that Rouhani (and Raisi), wish to succeed him. Therefore, Rouhani tacitly criticised the IRGC and the judiciary in his victory speech, acknowledged his support for the popular reformist cleric and former president Mohammad Khatami (1997-2005), and promised to negotiate directly with the Trump administration for the removal of non-nuclear sanctions.
At a regional level, Rouhani’s victory will not drastically alter the Syrian and Yemeni conflicts, although the administration seems to prefer political solutions to both. Khamenei and the IRGC largely control foreign policy, particularly in this arena. The Iranian-Saudi cold war will likely endure, especially since the Saudi monarchy continues to replenish its military capacity, and because the Trump administration’s pronouncements have emboldened hawks on both sides. Rouhani’s victory will, however, guarantee the maintenance of the nuclear deal, and intensify the administration’s attempts to increase its economic benefits. This will be challenging, especially since the USA is unlikely to remove its ‘non-nuclear’ sanctions component, which has so far complicated efforts to invest in the country and caused its economy to remain sluggish. Rouhani will need to consider domestic measures, such as enhancing productivity and cracking down on corruption, to stimulate economic growth.
Despite Rouhani’s massive victory, he will face constraints both from Iran’s complex governance structure and regional ructions. Significantly, Raisi’s populist rhetoric, including pledges to increase subsidies and create jobs, attracted over 15 million votes (thirty-eight per cent). If Rouhani fails to fulfil his campaign promises, we will see a rise in opposition numbers, opening the doors to a principlist resurgence.
By Alaa Tartir
To speak of Israeli-Palestinian ‘cooperation’…is to use no less than a misnomer. This is not, however, simply because ‘the outcome of cooperation between an elephant and a fly is not hard to predict’, as Chomsky so pithily writes…but because in the context of the Oslo peace process, ‘cooperation’ is often only minimally different from the occupation and domination that went before it. ‘Cooperation’, in this context, is above all an internationally pleasing and acceptable signifier which obscures rather than elucidates the nature of Israeli-Palestinian relations. - Jan Selby, 2003
I…applaud the Palestinian Authority’s continued security coordination with Israel. They get along unbelievably well. I had meetings, and at these meetings I was actually very impressed and somewhat surprised at how well they get along. They work together beautifully. – Donald Trump, 2017
From the outset, the Palestinian Authority (PA) security establishment has failed to protect Palestinians from the main source of their insecurity: the Israeli military occupation. Nor has it empowered Palestinians to resist that occupation. Instead, the PA has contributed to a situation in which the Palestinian struggle for freedom has itself been criminalised.
Rather than recognise resistance as a natural response to institutionalised oppression, the PA, in tandem with Israel and the international community, characterises resistance as ‘insurgency’ or ‘instability’. Such rhetoric, which favours Israeli security at the expense of Palestinians, echoes discourse surrounding the ‘war on terror’ and criminalises all forms of resistance.
This dynamic can be traced back to the 1993 Oslo Accords, but it has been galvanised over the last decade through the PA’s evolution as a donor-driven state that espouses neoliberal policies. The donor-driven reform of the security sector has been the linchpin of the PA’s post-2007 state building project. The enhanced effectiveness of the PA’s security forces as a result of massive donor investment has in turn created additional ways of protecting the Israeli occupier, thus creating spaces that are ‘securitised’, within which the occupier can move freely in the execution of its colonial project.
Such a development could only have two outcomes: ‘better’ collaboration with the occupying power in a way that shored up the destructive status quo; and greater violation of Palestinians’ security and national rights by their own government and national security forces.
This policy brief analyses the evolution and ‘reform’ of the Palestinian security forces since the establishment of the PA, and examines Palestinian-Israeli security coordination and its deleterious effects on the Palestinian ability to resist Israel’s occupying forces as well on basic liberties. It focuses on the PA forces in the West Bank and not the situation in Gaza, which requires separate research and analysis. It concludes with policy recommendations to reinvent the PA security forces’ operations and overhaul their structures so that they may truly serve to protect their own people.
The Rise of the Palestinian Authority Security Forces
The evolution of the PA security forces can be categorised in three phases: the Oslo Accords (1993-1999), the Second Intifada (2000-2006), and the post-2007 PA state-building project.
The Oslo Accords were characterised by two parallel, yet conflicting, projects: state building and national liberation. The former implied constructing state-like institutions and a bureaucracy under occupation, while the latter meant pursuing the revolutionary programme for self-determination that had been adopted by the PLO. The tension between these ventures already manifested themselves under the late president Yasser Arafat’s rule. Arafat’s personalised style of governance and its resultant complex network of corruption and patronage meant that the evolution of the PA security forces was from its advent neither inclusive nor transparent. Rather, it was fraught with nepotism, and was used as a tool to address the threats posed by Oslo’s opponents and to stabilise the population. In turn, it also solidified the nascent ‘peace’ agreements. The 9 000 recruits in the ‘strong police force’ envisaged in the 1994 Cairo Agreement became nearly 50 000 security personnel by 1999.
This proliferation of the security forces – all spying on each other, as Edward Said once said – has had severe consequences for Palestinians. Arafat’s establishment of security-driven political structures nourished authoritarianism and blocked accountability mechanisms in the Palestinian political system. This resulted in a dearth of legitimacy and further insecurity for Palestinians. As the security establishment grew in numbers and institutions, Palestinians remained ill-protected, and corruption and patronage within the forces became endemic. The divide-to-rule approach paved the way for future Palestinian fragmentation.
During the Second Intifada, Israel destroyed the PA’s security infrastructure because PA security forces participated in the uprising. This created a security vacuum into which non-PA actors inserted themselves, with mixed results for Palestinians. This exacerbated intra-Palestinian competition and led external donors, the PA, and Israel to be even more concerned with building a strong and dominant security sector. In June 2002, the PA announced its 100-Day Reform Plan; in 2003 the Quartet Road Map demanded that a ‘rebuilt and refocused Palestinian Authority security apparatus’ must confront ‘all those engaged in terror’ and dismantle ‘terrorist capabilities and infrastructure’. PA security structures were forced to combat terrorism; apprehend suspects; outlaw incitement; collect illegal weapons; provide Israel with a list of Palestinian police recruits; and report progress to the United States.
Accordingly, Palestinian security reform ‘remained…an externally-controlled process, driven by the national security interests of Israel and the United States, and characterised by very limited ownership on the part of Palestinian society.’ The international donor community led this reform in 2005 through the establishment of the European Union Coordinating Office for Palestinian Police Support (EUPOL COPPS) and the US Security Coordinator (USSC). This situation persists in the form of a ‘one gun, one law, one authority’ strategy through which the PA’s monopoly on force and violence is ensured.
The post-2007 state-building project under the PA has aimed, mainly through EUPOL COPPS and USSC, to reinvent the PA security forces through technical means, including training and weapons procurement. It has also aimed to reinvent the forces politically by constraining Hamas and its armed wing, curbing Fatah-allied militants through co-optation and amnesty, cracking down on criminals, and conducting security campaigns, particularly in Nablus and Jenin. These forces became known as Dayton’s forces in reference to Keith Dayton, the US lieutenant general who led the PA military establishment’s ‘professionalization and modernization’ process. Local and international human rights organisations have accused these reformed forces of human rights violations and of suppressing freedoms.
The current phase has further entrenched the predominance of Israeli security interests at the expense of the Palestinians. Disarmament and criminalisation have impaired popular resistance against the occupation, including peaceful demonstrations and marches, advocacy against Israel’s violations of human rights, and student activism. Today, PA security forces largely protect the security of the occupier and not that of the occupied. In short, the security of Palestinians has been jeopardised because their own leadership has been subcontractedto repress them. The post-2007 security reform agenda has thwarted Palestinians’ national struggle, their resistance movement and their everyday security, and has subverted the very functioning of Palestinian politics.
To understand the magnitude of the security coordination enterprise, it is useful to note that the Palestinian security sector employs around half of all civil servants, accounts for nearly $1 billion of the PA budget, and receives around 30 per cent of total international aid disbursed to the Palestinians. The security sector consumes more of the PA’s budget than the education, health, and agriculture sectors combined. The sector is currently comprised of 83 276 individuals in the West Bank and the Gaza Strip, including 312 brigadier generals, of whom 232 report to the PA and 80 to Hamas. In comparison, the entire US Army has 410 brigadier generals. The ratio of security personnel to the population is as high as one to forty-eight – one of the highest in the world.
Security collaboration between Israel and the PA has fulfilled the Oslo Accords’ objectives of institutionalising security arrangements and launching a peace process that is tightly controlled by the security sector in order to enable Israel to fulfil its colonial ambitions while claiming to be pursuing peace. This process of ‘securitised peace’ is manifested in a number of ways, including the PA security forces’ arrest of Palestinian suspects wanted by Israel (as in the recent case of Basil Al-‘Araj, who was arrested and released by the PA only to be hunted and eventually assassinated by the Israelis); the suppression of Palestinian protests against Israeli soldiers and/or settlers; intelligence sharing between the Israeli Defense Forces (IDF) and the PA security forces; a revolving door between Israeli and PA jails through which Palestinian activists cycle for the same offences; and regular joint Israeli-Palestinian meetings, workshops, and training.
Though Palestinian Authority President Mahmoud Abbas has threatened to suspend security coordination, he has at the same time declared it a ‘Palestinian national interest’ and a ‘sacred’ doctrine. PA security force activities and Abbas’s political manoeuvrings have created a deep gap in trust between the Palestinian people and the PA.
Indeed, multiple surveys over the years have shown that the majority of Palestinians in the West Bank and Gaza Strip (between 60 and 80 per cent) oppose security coordination with Israel. In a March 2017 Palestinian Center for Policy and Survey poll, two-thirds of respondents demanded Abbas’s resignation, with 73 per cent expressing the belief that Abbas was not serious in his threat to suspend security coordination with Israel. In a 2010 Maan News Agency poll, 78 per cent of respondents said they believed that the PA security forces were engaged in surveillance, monitoring activities, and intervening in people’s privacy. Finally, according to Visualizing Palestine, 67 per cent of West Bank Palestinians said they felt they were living in an undemocratic system that cracked down on freedoms in large part as a result of the security realm.
Negative public perceptions about security coordination are fuelled by lived experiences – from which elites are often spared – as well as by official rhetoric and the contents of the leaked Palestine Papers. For instance, Keith Dayton remarked in 2009 that senior IDF commanders had asked him, in regard to the Palestinian security forces he was training, ‘How many more of these new Palestinians can you generate, and how quickly?’ He also said a senior Palestinian official addressed a graduating class of these ‘new Palestinian men’ in Jordan, saying, ‘You were not sent here to learn how to fight Israel…you were rather sent here to learn how to keep law and order, respect the right of all of our citizens, and implement the rule of law so that we can live in peace and security with Israel.’ And in 2013, in a speech before the European Parliament, Israeli president Shimon Peres stated: ‘A Palestinian security force was formed. You and the Americans trained it. And now we work together to prevent terror and crime.’
While security coordination between Israel and the PA has been cemented since the Oslo Accords, the status quo is not a foregone conclusion. However, change will be difficult to achieve, as the system has created a segment of Palestinian society that will seek to maintain it. This segment is composed not only of security personnel in the West Bank and Gaza, but also of those Palestinians benefiting from institutional arrangements and a network of collaboration and domination. The status quo is beneficial for them, and ‘stability’ is their mantra. They are committed to an approach that privileges the political, economic and security elite, and they have no incentive to reverse the rules of the game.
Any attempt to halt security coordination would thus have real consequences for the PA and its leadership. Yet the perpetuation of the status quo is destructive for the majority of Palestinians living under Israel occupation and for the Palestinian people at large. With the crushing of the ability to correct political wrongdoing and hold elites accountable, business as usual will likely continue. Security coordination will remain a defining feature of the skewed reality that favours the occupier if action is not taken – soon.
The entrenchment of the PA security establishment requires policy interventions at multiple levels, from correcting biased rhetoric to establishing accountability mechanisms. The following recommendations, addressed to different stakeholders, propose an overhaul of the PA security forces’ operations and structures.
The Palestinian Authority
The PA must listen to Palestinian people and respect their wishes and aspirations, including in the security domain, otherwise the legitimacy and trust gap will grow larger. There has never been an inclusive Palestinian political system, but a more responsive, representative, and responsible leadership would ensure that the security of Palestinians, rather than that of their occupier and coloniser, is a core concern. An authentic security sector, as Tariq Dana has argued, would mean an end to the ‘focus on internal policing known as the “Dayton Doctrine”’ and ‘a program that demands accountability and justice be put in place’.
As Hani Al-Masri has elaborated, this would require gradual but firm steps to eventually freeze or suspend security coordination, including: ending Palestinian security apparatus intervention in political issues; reducing security allocations in the annual budget; disbanding parts of the security apparatus and restructuring the remainder, with an emphasis on professionalism, patriotism, and freedom from political nepotism; and instructing the security apparatus to resist raids by Israel in the West Bank’s Area A.
Although the PA still argues that the current security arrangements and division of labour serve the two-state solution, the relentless Israeli colonisation of Palestinian land means that the PA and its leadership must reassess their function. The looming threat of annexation should push the PA to take action before its role solidifies as a subcontractor to the Israeli occupation.
Palestinian Civil Society
Palestinian civil society organisations, especially human rights organisations, must form more effective coalitions and intensify their efforts to hold the PA and its political and security leadership accountable for their human rights’ violations. In the absence of institutions that perform checks and balances, pressure that goes beyond writing and publishing reports (though this in itself is an important act) is urgently needed. In other words, Palestinian civil society organisations need to develop practical actions that confront the PA’s continuous rights’ violations.
These civil society actors, including academic institutions, public intellectuals and think tanks, must also address the PA’s discourse in which Palestinian resistance is reframed as criminal insurgency or instability. Israeli and international actors who use this discourse should also be confronted. Civil society must embrace and operationalise resistance rather than see it criminalised, and view it as an all-encompassing way of living under occupation and in exile. Resistance as a way of life can help to reverse how the political and security elite currently portray it. Resistance can then ensure the restoration of the core values and ideas that enable Palestinians to engage collectively to realise their rights.
External actors, particularly security bodies EUPOL COPPS and USSC, need stringent scrutiny from civil society, both within Palestine and in their home countries. They cannot continue to dominate the security realm without accountability or transparency. By promoting the rule of law in an authoritarian context, these bodies contribute to the ‘professionalization’ of authoritarian practices by (ab)using a good governance framework. Their claim that their mandate is ‘technical’ enables them to evade the political results of their operations and interventions. After a decade of operation, it is time to conduct an independent Palestinian-led evaluation of these bodies and use that as an accountability mechanism to reform these erstwhile ‘reformers’ and decide on the way forward.
Donors and the Donor Industry
In a context highly dependent on aid, the supremacy assigned to securitisation and militarisation extends to the realm of development. Policymakers in donor states and Palestinians who facilitate donor programmes should address how ‘securitised aid’ has transformed a liberation movement into a subcontractor to the coloniser, and has resulted in authoritarian tendencies that favour the security establishment at the expense of sectors such as health, education, and agriculture, as well as at the expense of democracy.
Moreover, in Palestine, securitised aid and development have not only failed to address poverty, unemployment and empowerment, but have also created new insecurity and illegitimacy. Development planners must acknowledge that these patterns will never be reversed unless people, and not the security establishment, drive actions and are the constant reference point.
All these actions are the duty of the Palestinian people, especially when policymakers do not represent them and their aspirations. Palestinian society needs to confront the tools used to repress its mobilisation and organise in order to ensure the realisation of its fundamental rights. The non-factional youth-led initiative End Security Coordination that emerged in the aftermath of Basil Al-‘Araj’s assassination in March 2017 represents an example of such mobilisation. In their call for action, the group stated
'Our people have struggled for too long for us to stand idle while repressive leaders barter our oppression and dispossession for their personal gain…We are approaching 30 years since the Oslo Accords that transformed what remained of our land into open air prisons administered by unrepresentative PA officials who have hired themselves out to be our colonizers’ first line of defense…The Oslo regime does not represent us. Now is the time for us to come together and rebuild our collective struggle for the liberation of all of Palestine.’
If such organised resistance can continue and increase, pressure from the people may be able to change the trajectory of PA-Israeli security coordination, rendering Palestinians better equipped to work toward self-determination and the attainment of human rights.
* Alaa Tartir is the Program Director of Al-Shabaka: The Palestinian Policy Network, a Research Fellow at the Centre on Conflict, Development, and Peacebuilding (CCDP), The Graduate Institute of International and Development Studies (IHEID), Geneva, Switzerland, and a post-doctoral fellow at The Geneva Centre for Security Policy (GCSP).
** This article was first published by Al-Shabaka: The Palestinian Policy Network
By Afro-Middle East Centre
Almost three years have elapsed since the reconvening of Libya’s General National Congress (GNC) in July 2014 and subsequent division of the country into two, now three, centres of power, with no conclusion forthcoming. The April meeting between the Government of National Accord’s (GNA) Fayez al-Sarraj and General Khalifa Haftar initially engendered some optimism. However, their differing understandings of the balance of forces, and views on ways out of the current impasse meant they were unable to agree on a unified statement. Continuing clashes in Sabha, in the south, mainly at the hands of forces aligned to Haftar, suggest that the Libyan National Army still believes in a military solution. This is despite attempts by global and regional powers to foster compromise. The 2014 Algeria plan and subsequent 2015 Skhirat (Morocco) agreement have had only limited success. Key in accounting for these failures has been the interference of foreign powers, and a lack of inclusiveness. Russia’s intensified support for the Libyan National Army (LNA), commanded by Haftar, has also been worrying.
With the Islamic State group (IS) largely ejected from its Libyan strongholds, a renewal of the 2015 Libyan political agreement (LPA) is required. However, for it to succeed it must be more inclusive, and expand its focus on governance. Moreover, clear consequences for outside interference need to be stipulated. A fresh election is a likely eventuality, as a means of finally solving the impasse. However, this will only succeed if it is seen as fair and representative, and if it is coupled with security reform.
Roots of the current divide
Former president Muammar Gaddafi’s personalised and extended authoritarian rule meant that governance institutions were severely deficient. Following the NATO-led ouster of the regime in 2011, the new National Transitional Council was not very successful in dealing with governance challenges. Social service provision was non-existent and armed militia flourished. A May 2013 political isolation law, passed under pressure from various militia, resulted in the removal of a small number of technocrats and politicians who had had minimal ties to the Gadhdhafi regime. This was aggravated by the limited support provided to Libya by international institutions, which incorrectly calculated that the removal of the regime would ensure a consolidation of democratic governance.
Disillusionment amongst the population increased, and by February 2014, remnants of the old regime under Haftar’s command began agitating for a revolt against the governing GNC. Initially prompting widespread opposition from Libya’s political and military elite, by May 2014 Haftar launched ‘Operation Dignity’ in an attempt to provide a Libyan version of the regional backlash against Islamists willing to participate in electoral politics. Successfully appealing to perceived marginalisation amongst eastern federalists, tribes and separatists, Haftar’s forces greatly increased their capacity, garnering support from the country’s naval and special forces.
The May 2014 parliamentary election exacerbated the situation. The emergent Council of Deputies (now called the House of Representatives (HoR)) was comprised of a limited number of Islamists, elected with a 20 per cent voter turnout. Fears of this ‘new’ marginalisation were greatly influenced by the 2013 Egyptian coup, which overthrew the Muslim Brotherhood’s (MB) Mohamed Morsi, and the declaration of the MB as a terrorist organisation by Gulf Arab heavyweights in March 2014; thus, Libyan Islamists sought to reconstitute the GNC. Under the Libya Dawn banner, sympathetic militia began supporting the GNC, and by July clashes intensified around Tripoli airport. As a result, the country experienced a de facto division between eastern and western Libya; the HoR relocated to Tobruk and intensified its support for Haftar’s dignity campaign, which now overtly sought to confront Islamist-leaning politicians and militia. Haftar garnered support from Egypt and the United Arab Emirates, which are both fearful of participatory Islamists and had led the regional campaign against them. Financial, intelligence and military support from the two states meant that Haftar’s Libyan National Army (LNA) has been able to consolidate control of much of the country’s east.
The situation has been aggravated by the growth of IS, which consolidated control of the Libyan city Sirte in May 2015. Western countries’ exaggerated perception of IS’s military strength, and their wariness over migration to Europe from Libya had seen countries such as Britain and France coordinate with Operation Dignity, unintentionally increasing suspicion amongst Islamist-leaning politicians and militias. This myopic focus saw these states push through the Libyan political agreement (LPA) in December 2015, in an attempt to create a ‘unified’ government, which would sanction direct intervention. The imposition of the LPA, which resulted in the formation of the Government of National Accord (GNA), stalled what was then a domestic process between local actors. The GNA, under the leadership of Fayez Sarraj, has thus received limited support from the GNC and HoR; and the Sarraj administration exercises limited territorial and administrative control. The HoR has voted against endorsing it, while parts of the GNC have formed the National Salvation government out of Tripoli.
Currently there are three centres of power in the country: the GNA, GNC (Salvation government) and the HoR. The HoR remains based in Tobruk and has consolidated control over eastern Libya. Haftar’s forces have pushed GNC-supported militia, under the banner of the Benghazi Defence Brigades, out of most of Benghazi, and encircled Derna. Moreover, in September 2016 Haftar’s forces successfully captured Libya’s oil crescent, allowing it to control most of Libya’s oil, and enabling Haftar to increase his influence in the HoR. Through staffing local councils with military allies, Haftar is now more influential than the prime minister recognised by the HoR, Abdullah al Thinni, and HoR speaker Ageela Saleh.
Conversely, the GNA controls parts of western and southern Libya, including the influential city of Misrata. Misratan forces support the Sarraj regime, which is regarded by the international community as the legitimate government. Parts of Libya Dawn are allied to the GNA; however, more hard-line groups have resolved to back the GNC and its head Khalifa al-Ghwell. Prior to March 2016 Sarraj operated out of Tunis; he has since managed to consolidate control in parts of Tripoli. Ghwell had attempted a coup in Tripoli in September 2016, but GNA-supported militia rapidly quelled this effort. Notably, many GNC-aligned militia have frequently interchanged support between the GNC and GNA, although most would support the GNA in a confrontation with Haftar. In March 2017, for example, the GNC-allied Benghazi Defence Brigades briefly gained control over the oil refineries of Ras Lanuf and Sidra, most likely with support from Misratan militia. Moreover, in April, GNC-aligned forces supported the thus far successful effort by Misrata’s Third Force to repel LNA troops from capturing the Tamnihint airbase in Sabha.
Conflict among the three parties is currently centred in the south and centre between the HoR and GNA, and in Tripoli between the GNA and GNC. At present, although Haftar’s forces have the best training and equipment, a military victory is unlikely. This is especially since the federalist and separatist elements that support Haftar in the east are not present in the west, because the Misratan militia are reasonably well trained and possess aerial capabilities, and because many western tribes still support the GNA. Recent clashes, between Misrata’s Third Force and Haftar, over aerial bases in the southern city of Sabha and over the strategic central city of Jufra will shape the military side of the conflict in the immediate term.
IS in Libya has been largely defeated, and only a few hundred fighters remain in the country’s south. This is mainly the result of actions of the Misratan militia under the al-Bunyan al-Marsoos operation, and because of support from US airstrikes. Sirte was regained in September, and IS is unlikely to regroup. Significantly, Sirte’s recapture weakened the Misratan militia, allowing Haftar’s forces to move west into Jufra. IS’s relatively rapid routing from Sirte does point to the group’s comparative weakness in the country and the often-exaggerated perception of its influence.
Politically, all three governments possess only nominal control over areas they claim to govern. Social services such as electricity and health care are often irregular and intermittent. Inflation has increased and the Libyan dinar has weakened. Oil production, the country’s main source of revenue, has increased to around 700 000 barrels daily. However, in recent months, the GNA and HoR have disputed the sharing of such revenue.
Efforts to form a unified government incorporating the HoR into the LPA have faltered. In December 2016 it was agreed that the LPA would be amended to include Haftar’s command of the Libyan army and to provide a greater role to the HoR in shaping policy, the two main factors impeding HoR endorsement. The subsequent meeting between Haftar and Sarraj reinforced this, especially as the two reportedly concurred on the need to reform the GNA’s presidential council to allow for HoR representation, and that Haftar would head a unified national army. However, it is unlikely that Sarraj would allow Haftar a voice on a reformed presidential council, and it is implausible that militia aligned to both the GNC and GNA would sanction the LNA being incorporated into the GNC’s presidential guard if it meant that their influence would be subsumed.
The March 2018 date for presidential and parliamentary elections, agreed upon by Haftar and Sarraj, provides a means out of the current impasse. However, for this to be successful, the election would need to be seen as fair and representative. Turnout would need to be greater than the 20 per cent seen in the 2014 poll, and stipulations for regional seat allocation would need to be enacted, especially since federalism and secession have previously had much appeal. Moreover, a formula for military unification would need to be concluded and implemented in the interceding period, failing which militia groupings would continue to hold sway.
Increasing role of foreign actors
Since its inception, the Libyan conflict has been greatly influenced by outside powers. Gadhdhafi’s overthrow can largely be attributed to international support for rebel groups and the NATO-enforced no-fly zone. Haftar’s forces had subsequently received vast amounts of military backing from Egypt and the UAE, which deployed ground and aerial forces into eastern Libya. Haftar’s recapture of Sidra and Ras Lanuf in March 2017 was planned in Egypt and executed with the assistance of UAE aircraft, based out of a UAE-controlled airbase in eastern Libya. The Misratan militia and those allied to the GNC receive support from Turkey and Qatar; however, this is limited when compared to foreign support for Haftar. The IS threat has meant that France, Britain and Algeria have also deployed special forces to the country. These have usually been in support of different militia groupings, including Haftar’s LNA, aggravating the conflict and often impeding efforts to engender political compromise.
Worryingly, Russia has intensified its focus on the country. Over the past year, both Sarraj and Haftar visited Moscow, and in January 2017 Haftar was hosted on the Russian Admiral Kuznetsov aircraft carrier. Comparable to its renewed focus on Egypt and support for the Asad regime in Syria, Moscow does not distinguish between militant extremist and participatory Islamists. It has thus militarily supported Haftar’s Operation Dignity and is likely to provide over two billion dollars of arms to the LNA. Haftar reportedly participated in a video conference with Russia’s defence minister, Sergei Shoigu, while on the Admiral Kuznetsov, and methods of circumventing the arms embargo were discussed. Haftar has thus been emboldened and has intensified his intentions to militarily confront Tripoli. Notably, prior to Gadhdhafi’s ouster, Moscow concluded over ten billion dollars in arms and trade deals with Libya, and is seeking to reactivate those agreements. In addition, agreements over Russian use of Libyan aerial and naval bases have also been concluded with the HoR in the east.
Thus, regional and international diplomatic and political manoeuvres have had only limited success. The Algeria initiative of September 2014 was impeded by Egyptian support for Haftar and a subsequent parallel Egyptian initiative. Conversely, the LPA has been hampered by the willingness of international actors to work with Haftar to combat militancy. Recently, Algeria, Egypt and Tunisia collaborated in an attempt to formulate a more localised solution to the Libyan crisis, which would involve all actors. This culminated in the Tunis Declaration of February 2017, which calls for the protection of Libya’s territorial integrity, involvement of all actors in finding a political solution, and desisting from the use of force by regional and international actors. It is difficult to see this being implemented, especially since neighbouring countries are already involved in the conflict, and because they believe their interests can better be guaranteed by Haftar prevailing. Egypt continues to support the LNA, while there are reliable reports that Russia seeks to work through Algeria to circumvent the Libyan arms embargo. Further, the UAE, through its organising and hosting of the meeting between Haftar and Sarraj, seeks to initiate its own negotiations. These will likely undermine those held by the Algeria-Tunisia-Egypt troika, which have African Union support.
While most international and regional actors concur that a political solution is the only means of solving Libya’s conflict, they maintain support for different parties. This support, military and financial, has emboldened these groups, which continue to seek a military victory. The consolidation of governance structures has thus not occurred as different groups divert resources to military efforts, and negotiations aimed at amending the LPA have stalled, owing to disagreements over who will be in command of the military. Though it was a possibility in 2014, secession is no longer on the cards, mainly because international actors are not in favour; however, polarisation between eastern and western Libya is calcifying, and secessionist sentiments occasionally arise in the south. In the immediate term, the confrontations in Jufra and Sabha will greatly influence which faction possesses the upper hand, but the outright military victory of a single faction is unlikely. International and regional powers need to ensure that good-faith negotiations are expedited. Key in this regard is facilitating the maintenance of a ceasefire and ensuring that military support from outside powers results in clear consequences. Building governance institutions, which was an aim of the Skhirat agreement, must be emphasised and pursued, and an agreement over the sharing of oil resources formulated. The LPA needs to be revised; however, caution must be exercised to ensure that the agreement represents the balance of forces and is not seen as favouring certain factions.
By Afro-Middle East Centre
The 29 March decision by the administration of US president Donald Trump declaring Somalia an ‘area of active hostility’ will likely ensure an escalation of this already-brutal conflict, with possibly dire consequences for Somalis and the East African region. The declaration, consistent with Trump’s intensification of US military operations in Yemen, Syria and Iraq, and his expressed determination to work with dictatorial regimes in Syria and Egypt, will result in more civilian deaths, engendering further anger over US actions in the region. Somali rebel group al-Shabab will likely point to US actions as an exemple of the Somali government’s willingness to allow international powers influence over Somali politics, and its complicity in civilian casualties, thus hoping to increase support for the movement.
Although US operations in Somalia have been ongoing since 2001, and despite the fact that the USA actively assisted Ethiopian troops in 2006, previous US administrations regarded al-Shabab as a domestic militant group that did not pose a direct military threat to the USA. The Trump decision alters this posture, decreasing the checks and balances required before airstrikes and combat operations in Somalia, and increasing the number of possible targets. Oversight for operations now resides with the Pentagon and operational commanders, and targets no longer require to pose a direct threat to the USA for operations to be executed. Consequently, the already-dubious conditions concerning collateral damage and civilian deaths have also been reduced. Already in 2016, the Obama administration relaxed the 2013 presidential guidance policy on targets in Somalia, allowing US forces to provide support to the AU-UN AMISOM forces, whose mandate included offensive targeting of Shabab combatants. Further, the USA despatched between 200 and 300 special forces to the country and currently operates a temporary base at Mogadishu airport.
While cognisant of threats posed by non-state actors, previously US administrations were reticent to expand operations beyond areas of direct combat. Although the US Congress is, constitutionally, the only US institution vested with the authority to declare war, the 1973 congressional War Powers Resolution altered this power, allowing the president to initiate an active war, but stipulating that authorisation for the use of military force (AUMF) needed to be sought from Congress within ninety days. Obama and Trump have relied on AUMF resolutions from 2001 and 2002 regarding Afghanistan and Iraq to pursue groups such as al-Shabab and the Islamic State group (IS). This despite the fact that these groups came into being only years after the AUMF and, in the cases of al-Shabab (Somalia) and Al-Qa'ida in the Arabian Peninsula (AQAP; Yemen), operate in a different geographical area from Iraq and Afghanistan.
At the heart of Trump’s intensified focus on Somalia are two key factors. First, confronting Islamist militancy is a key cog of his declared foreign policy and was one of few constants throughout his presidential campaign. Thus, he has increased troop deployments to Syria, expanded operations in Yemen and Somalia, and expressed a willingness to cooperate with US opponents such as Bashar al-Asad. Unlike Obama, Trump is willing to relax US laws on combat and human rights compliance; in January, an airstrike in Yemen’s Bayda region resulted in the deaths of thirty civilians, and realised ‘no actionable intelligence’ on AQAP.
In addition, many observers have cautioned against the resurgence of al-Shabab. In recent months the group has regained many towns in southern and central Somalia, including, briefly, the port city of Merca in February 2016, and intensified insurgent operations on AMISOM troops. AMISOM has become battle fatigued, and troop contributors have either pulled out forces (in the case of Ethiopia) or publicly announced their intentions to do so (in the cases of Burundi, Uganda, Djibouti and Kenya); and the Somali National Army has been unable to enhance its operational capacity. Obama and Trump both see an intensified response as a means of combating al-Shabab and assisting AMISOM. Notably, AMISOM has somewhat degraded al-Shabab’s capabilities, and although the group is resurgent, its real strength is being exaggerated.
The US intensification is unlikely to provide a lasting solution, and will give al-Shabab a popularly-acceptable reason for its opposition to the regime. Already the group adeptly instrumentalises its transcendence of clan politics to act as a mediator and increase its appeal. Moreover, many in central and southern Somalia see the group as providing services, and as being less corrupt and beholden to regional and international interests when compared to the regime. Further, the February appointment of Mohamed Abdullahi ‘Farmajo’ Mohamed as the country’s new president, on a nationalist platform, is an indication of how many Somalis, especially from parts of the tribal and clan elite, view outside influence in the country’s politics.
Farmajo’s victory provides a new opportunity to revitalise Somalia’s political institutions. His stance against corruption and previous steps when he was prime minister in 2011 augur well in this regard. More importantly, he will need to undertake a process of nation building and local reconciliation; the process of individual amnesty for previous al-Shabab operatives needs to be expanded. International powers will do well to support this process, especially since AMISOM is beginning to draw down its troops because of funding and domestic factors in contributing countries. With al-Shabab gaining territory in southern and central Somalia, and with ten years of only limited success from the deployment of AMISOM forces, a more local political solution needs to be formulated to counter al-Shabab’s continued endurance.
By Afro-Middle East Cantre
On 5 March, the upper house of the Bahraini parliament passed a constitutional amendment which, critics say, will result in the country living under undeclared martial law. The amendment allows for civilians to be tried by military courts when the case involves the military. This was followed the next day by the justice ministry filing a lawsuit to ban the Wa'ad party, the second biggest opposition party after the now-banned Al-Wefaq party. The repression of dissent in Bahrain is clearly increasing.
The suspension of civil liberties implicit in this amendment as well as the removal of limitations in the constitution on who may be tried by a military court are both characteristics of martial law. When this amendment was initially passed by the lower house of parliament Sayed Alwadaei, the director of advocacy at the Bahrain Institute for Rights and Democracy (based in London) accused Bahrain’s king of ‘effectively creating a police state’and of implementing ‘de facto martial law’. Bahrain is following in the footsteps of Saudi Arabia which has also redefined its anti-terror laws to increase the power of security forces in the face of political dissent. The government is using counter-terrorism measures to clamp down on political opposition, and cases of opposition leaders will be passed on to military courts to adjudicate as per the instruction of the Minister of Justice, Islamic Affairs and Endowments, Shaikh Khalid bin Ali Al Khalifa, who stated that judges of military courts should adjudicate cases concerning terror activities.
Anti-regime and pro-democracy protests have been occurring frequently in Bahrain since the 2011 uprisings. These have been led by members of the Shi'a majority against the ruling al-Khalifa monarchy, which is Sunni. High unemployment, systematic discrimination against Shi'as, a deteriorating human rights record and the increasing executive power of the Emir are grievances repeated by the opposition. Apart from Bahrain’s Bloody Thursday on 17 February 2011, where police raided sleeping protestors camping at Pearl Roundabout in Manama killing four and injuring about 300; protests have been largely peaceful but generally accompanied by a police response using excessive force.
On 14 March 2011 troops from both the United Arab Emirates and Saudi Arabia entered Bahrain at the request of the al-Khalifa regime, and crushed the rebellion. Three months of martial law followed, and hundreds of civilians were tried in military courts; tortured prisoners were given lengthy jail terms on little to no evidence. Peaceful protestors and even medics who had treated injured protesters were jailed. Both an independent inquiry commissioned by Bahrain’s rulers and international human rights’ organisations condemned the military courts. After martial law was lifted on 1 June 2011, the main opposition party, Al-Wefaq, led weekly demonstrations until protests were banned in October 2012. Despite the ban, protests have continued. The reintroduction of military courts to try civilians now is a disturbing development in the erosion of rights within Bahrain.
Government repression has included the stripping of citizenship from top cleric Shaykh Isa Qassim in June 2016, the banning of Al-Wefaq in July, and the execution of three men in January 2017. In contrast to the religious-based Al-Wefaq, Wa'ad (the National Democratic Action Society) – which has just been banned – is a leftist political party whose stated mission is to: ‘To strive towards achieving equal citizenship, safeguarding people’s sovereignty, protecting their rights and public freedoms, achieving equality and social justice for all and rejecting all forms of discrimination and sectarianism.’ As a secular bloc it has attempted to reach out to both Shi'a and Sunni opposition figures.
Wa'ad was previously banned in April 2011, but reinstated two months later. Its former secretary-general, Ibrahim Sharif, served four years in jail for his role in the 2011 protests, after being convicted by a military-led tribunal for plotting to overthrow the government. He was arrested again in July 2015 for a speech allegedly inciting hatred and spent a year in prison, and was again arrested and charged in November 2016 for ‘inciting hatred against the regime’ after an interview he gave to the Associated Press where he argued that a forthcoming visit by Britain’s Prince Charles would ‘whitewash’ human rights abuses. Wa'ad has been an unusual target for the government since the uprisings due to its moderate stance; this suggests that the government is unwilling to tolerate even mild dissent.
The international response to Bahrain’s increasing repression has been contradictory, with calls for condemnation ignored by both the USA and the UK. Various human rights NGOs, Amnesty International in particular, have been vocal in their concern for the deterioration of human rights. Amnesty claims that Bahrain is at ‘a tipping point’, and that the first weeks of 2017 saw ‘an alarming upsurge in arbitrary and abusive force by security forces’. The USA has announced its intention to approve an arms deal with Bahrain that was halted under the Obama administration. This would see the transfer of nineteen F-16 fighter jets to Bahrain. In December 2016 British Prime Minister Theresa May visited Bahrain and addressed the Gulf Co-operation Council, emphasising the fostering of stronger economic ties with Gulf countries on the eve of Brexit. There was no mention of human rights abuses.
By Afro-Middle East Centre
With the Islamic State group (IS) losing territory in Syria and Iraq, many believe that the group will use the territory it controls in Africa as a fallback and shift its focus to the continent. This has seen international, and specifically western, powers grow increasingly weary of existing African conflicts, especially in Libya and Egypt, and we are beginning to see a convergence between Russia and the USA on supporting military strongmen. Egyptian president Abdel Fattah El-Sisi and Libyan General Khalifa Haftar have thus been empowered in their attempts to crackdown on dissent in the name of countering ‘terrorism’, further militarising politics in those countries and impeding efforts to negotiate political compromises. African states have subsequently been compelled to admit Morocco into the African Union and reinstate Egypt, partially as a result of western pressure and the belief that the two countries could form a bulwark against the Islamic State group’s expansion.
Although IS controls territory and possesses operational capacity in Libya and Nigeria, significantly this is more the result of the group appealing to existing cleavages and state fragmentation rather than inspiring the creation of new anti-state formations. The group has thus spent minimal efforts in establishing structures in southern and central Africa, rather promoting immigration to areas it already controls. IS has lost ground in Nigeria and Libya, two of its three strongest African ‘provinces’; however, failure to fill the vacuum left by its territorial losses and an inadequate focus on the economic reasons behind the group’s rise is paving the way for a resurgence of similar groups. With IS on the wane, a contextualised response emphasising governance in areas recaptured from the group needs to be promoted, especially since the group’s emergence has galvanised the international community.
Background: The declaration of provinces
Following the declaration of a caliphate in July 2014, IS initially had great success. It consolidated control of much of Iraq’s Anbar province, parts of Deir ez-Zor in Syria and Qamishli in Turkey, in addition to areas it originally controlled in Syria. This enabled it to traverse the Syrian, Iraqi and Turkish borders, giving it the flexibility to direct the flow of arms and generate revenue through taxes and trade in oil. However, the group has increasingly faced setbacks, especially following the surge in the intensity of the international and regional effort to displace it from Syria and Iraq. It has been forced to alter its strategies and tactics. Initially advocating immigration to its ‘state’, the group has begun declaring non-contiguous provinces, as a result of a few major changes: First, heightened awareness and tighter border controls meant that by September 2014 the ability of IS recruits to travel to Syria, especially from western countries, had severely diminished.
Second, because IS was conceived in a system that was already experiencing local conflict, the group sought to subsume this conflict and capitalise on it in order to increase its influence. The group also began prospecting for areas with resources, both human and natural, that could strengthen its operational capacity and scope. The group’s mantra evolved to encompass ‘remaining and expanding’, with an increased focus on enticing militant groups to pledge allegiance to it, allowing it to increase its appeal and reach, and a shift away from a sole focus on territorial consolidation in Syria and Iraq. The group increasingly saw its success as expansion into other hotspots and the ability to incorporate these into its territorial project. This had succeeded, and by November 2014 it had received pledges of allegiance from around twenty existing militant groups, including former al-Qa'ida franchises in Egypt, Saudi Arabia and Libya.
In recent times, especially since early 2016, the reversals suffered in its main area of focus, Syria and Iraq, have forced the group to begin contemplating the option of retreat in order to survive and remain relevant.
However, in assessing the group’s influence in Africa over the past year, a holistic contextualisation is required. First, distinctions between groups directly controlled by IS in Syria, those in Libya and those, such as Boko Haram, who exercise more control over strategy and tactics need to be made. Second, we need to identify areas that are strategically significant to IS, such as Libya and Egypt, and those, which the group sees more as a means of gaining increased publicity. Last, we need to remain vigilant and account for the nuances between the different threats posed by groups that have declared allegiance to IS and citizens emigrating to IS-controlled areas.
In the past, IS viewed Libya as critically important, because of its oil resources and large Mediterranean coastline. This, the group believed, would allow it to increase its operational capacity, and threaten Europe, especially because Libya is located close to European states such as Malta and Italy. The group thus declared three Libyan provinces (Fezzan, Barqa and Tripolitania) in 2014, and dispatched senior leaders to the country to convince militia to pledge allegiance. Further, unlike in other provinces, IS in Libya was led by an Iraqi, Abu Nabil al-Anbari, directly appointed by the group’s Syrian leadership. IS initially had some successes, capturing the jihadist stronghold of Derna in October 2014 and Gaddafi’s hometown of Sirte in May 2015. However, following its capture of Sirte and the group’s attempts to move westward towards Misrata, a concerted campaign commenced to combat the group comprised of local militia groupings and western powers including the USA, the UK and France. The December 2015 Government of National Accord (GNA) was forced through for this purpose, and since August 2016 the USA has launched over 300 airstrikes in the country.
This has been somewhat successful. Since June 2016, the group has largely been pushed out of Sirte, and leaders such as Abu Nabil have been killed. However, Libya is an exemplar of the paranoia around IS that currently marks the international community’s response to it. First, IS’s strength in Libya was already questionable following its inception. Although possessing between 3 000 and 6 000 combatants, IS in Libya appears outnumbered and outgunned when noting that the country is home to around 200 000 people belonging to different militias. By August 2015 it had already been pushed out of the hotbed of Derna by the relatively small, al-Qa'ida-linked Derna Mujahideen Shura Council. Significantly both the rival administrations in Tripoli (the General National Congress [GNC]) and Tobruk (the House of Representatives [HoR]) have used the paranoia over the threat of IS in Libya to gain international support and weapons.
Second, the international community has favoured international intervention at the expense of local political processes. The Libyan Political Agreement, signed in Skhirat in December 2015 and forming the GNA, was forced through, ignoring initial successes in obtaining local backing and in spite of the fact that a week prior to its conclusion the rival administrations had expressed their willingness to conclude a local unification agreement. Even though the agreement was likely disingenuous, international actors needed to hold the two parties to it instead of the flat rejection that had been evident from the UN’s response.
The result has been a lack of support for the GNA, which is likely to never receive ratification from the Tobruk-based HoR, and which in recent times has experienced opposition from the GNC. The country remains divided, and may be headed towards partition as the divisive General Khalifa Haftar strengthens his control over the eastern oilfields.
IS’s partnership with Nigeria’s Boko Haram was more a marriage of convenience than an ideological and strategic union. IS saw the group as important in terms of gaining appeal and publicity, while Boko Haram viewed the merger as a means of unlocking financial resources and benefiting from IS’s media arm. There was thus very little tactical and operational coordination between IS in Syria and its then-declared West Africa province (Wilayat Gharb Ifriqiyyah). As a result Boko Haram’s military losses, which began during the last few months of the Goodluck Jonathan administration in Nigeria, have continued. The group has largely been forced out of the territory it previously controlled in Borno and Adamawa, preferring to undertake operations in northern Cameroon. Attacks in Niger have declined to less than half a dozen from a peak of twenty-four in February 2015, and since July, these have also decreased to around eight per month in Cameroon. Boko Haram is no longer able to maintain and hold territory; the group is now mostly involved in smaller operations against weaker targets and isolated military bases.
Further, in August 2016 IS in Syria released a message recognising Abu Musab al-Barnawi as the new leader of the wilayat, supposedly because of indiscriminate attacks against Muslims by its former leader, Abubakar Shekau. Shekau’s inability to enact and implement governance structures in areas the group controlled had also influenced the move. Shekau has since disputed this, threatening to further fragment the group, which had already been reeling since Ansaru’s formal condemnation of the group in February 2015. Ansaru previously coordinated activities with Boko Haram, and prior to 2015 many analysts viewed it as the more sophisticated faction within the group, which was tasked with kidnappings and attacks on foreigners.
IS in Syria’s repudiation of Shekau is also influenced by the group’s recent recognition of a Saharan province based in Mali, which in June 2016 reportedly carried out an attack on a military post in Bosso (Niger) killing thirty-two soldiers, and in recent months has carried out two smaller attacks in Burkina Faso. Shekau’s repudiation is also significant since it is one of the first instances wherein IS’s Syrian leadership has acted to alter provincial leadership structures, and because it illustrates that the group has limitations on what it will tolerate from provincial leaders. Further, Barnawi’s appointment may be a sign that IS’s Syrian leadership is beginning to view West Africa as important since it continues to suffer setbacks in Syria, Iraq and Libya. However, the appointment has changed little thus far especially in terms of operational command and coordination. Shekau’s continued influence over factions within the group also points to the beginnings of a debilitating power struggle. The group’s infighting and the coordinated response by Lake Chad Basin countries has meant that by December 2016 it had been pushed out of its Sambisa Forest stronghold; in January 2017, a UN report went as far as claiming that it now lacks the resources to compensate fighters.
Notably, the success of the multinational Joint Task Force, consisting of troops from Nigeria, Niger, Chad, Cameroon and Benin, has been constrained owing to concerns over sovereignty and different command and control protocols. The effort has transitioned more into a coalition of the willing, wherein states share interests and undertake individual actions, rather than an actual coordinated effort to contain the group. Moreover, failure to establish governance structures in areas where Boko Haram has been driven out from has led to the group being able to return intermittently; incidentally this is one of the key reasons the group initially arose.
Previously recognised as Ansar Bayt Al-Maqdis, the group, now referred to as ‘IS Sinai Province’, declared allegiance to IS in November 2014, and currently remains one of IS’s most operationally and tactically capable fighting forces. Following the 2015 Sheikh Zuweid attacks, which saw around a hundred combatants mount a coordinated attack on Egyptian security installations, the group has continued to remain active, and in 2016 is alleged to have undertaken over 700 operations in the Sinai region alone. The most infamous of these was the blowing up of a Russian civilian aircraft in October 2015, killing over 200. The decades-long, 1 600-strong Multinational Forces and Observers mission stationed in the Sinai, which is tasked with monitoring the area following Egypt’s peace treaty with Israel, has also been affected and countries such as Fiji have pulled out troops. The USA has even proposed that an electronic monitoring system be used instead, to allow it to also decrease its troop contribution to the mission.
IS’s resurgence continues despite the third phase of Egypt’s Operation Martyr’s Right, which according to Egyptian security reports has killed around 2 300 militants and arrested a further 2 500 – even though most analysts estimated the group’s strength at between 1 000 and 2 000 fighters at its peak in 2015. The numbers of dead and arrested indicate the conflicting results of Egypt’s scorched earth policy, which has actually led to increased militancy, especially by other groups. Violence is also spreading to the mainland; in the past year, IS’s mainland Egypt province formed, and the younger, less ideological Popular Resistance Committees became hardened.
This is likely to continue, especially as the primary democratic alternative, the Muslim Brotherhood, remains stifled, and because the Sisi regime is facing increased economic pressure, and has thus curbed its state-led redistributive policies and widened its repression to include leftists and youth groupings.
Observations and returning combatants
It is clearly observable that in most instances IS uses already existent cleavages and groupings to further its influence and reach in areas outside of Syria and Iraq. In Nigeria and Sinai, it thus successfully rebranded existing organisations instead of establishing new ones from scratch. The presence of al-Qa'ida on parts of the continent has been significant in this regard, as IS has sought to entice militants belonging to it to declare their allegiance to it. For the most part, in Africa this has failed. Al-Qa'ida in the Islamic Maghreb has largely remained intact, and thus far Shabab has withstood attempts to declare allegiance to Baghdadi, despite the fact that splinter groups within these organisations have broken off to join IS.
Further, it is observable that IS-linked groups for the most part were already involved in conflict with the state and other powers prior to the declaration of the caliphate. Boko Haram had been militarily confronting the Nigerian state since at least 2010, while Ansar Bayt Al-Maqdis had turned inward following Mohamed Morsi’s ouster in 2013. Even in Libya, where the Derna Youth Shoura Council and the Battar Brigade were newly formed groupings that had previously been involved in fighting in Syria, IS’s ability to consolidate control of Sirte came as a result of aggrieved former Gaddafites joining the group, and because the Ansar Al-Sharia members present in Sirte rebranded and joined IS. This illustrates two key points: First, lack of governance and social services are a major factor accounting for the growth of IS on the continent, and ideology plays a supplementary role. Consequently, a military-only response, which does not improve governance, will lead to the group enduring, even though it may change its name and modus operandi. Second, as can be observed with the minimal coordination between IS and its West Africa and Sinai provinces, groups have had some form of agency. They have used IS headquarters to gain financial and operational support, and do not always follow its precepts entirely. Shekau, for instance, failed to install governance structures, and continued indiscriminate attacks on Nigerian Muslims while being allied to IS.
Apart from unsuccessful attempts to entice Shabab in East Africa, IS has refrained from attempting to establish wilayat further south. This results from various factors including the lack of a majority Muslim population as a base, the fact that many countries further south are more responsive to their citizens, and because most sub-Saharan countries are not directly involved in attempts to combat the group in Syria and Iraq. The group has however advocated emigration to areas it controls, and it is feared that returning combatants pose a threat to their home states. While justifiable in the cases of Tunisia and Morocco, which have seen thousands join the fight in Syria, for the most part this has been exaggerated. Most combatants have preferred to remain in IS-held territory, and most returnees cite disillusionment with the group as a reason for their return.
The current military-first approach to combatting IS, which has had some success, will only be long lasting if paired with a simultaneous focus on governance and restorative justice in recaptured areas. This will also help to stem the problem of IS recruitment, which, although partially curbed as a result of increased interstate coordination, may surge if former combatants and possible recruits feel aggrieved over perceptions around judicial unfairness and the lack of resource equitability.
Failure to create institutions to assist with this, as is the case in Libya, Egypt and to an extent Nigeria, risks engendering the conditions for the emergence of similar groups in future. African states thus need to ensure that the focus on IS extends from a military approach to one dealing with the root causes of militancy. This is especially pertinent as the group continues to lose territorial control in Libya and Nigeria, and its capacity wanes. Further, the reintegration of former IS combatants, and those belonging to other militant groups, is a necessity, especially as the majority of low-level combatants joined the group for economic reasons, and because the factors are an important weapon in disrupting IS’s claims of legitimacy.
By Ebrahim Deen
The rise of the Islamic State Group (IS) and resurgence of Iran is now perceived as posing a more acute threat to the regime than that of participatory Islamists such as the Muslim Brotherhood. Salman has thus sought to include these groups in a coalition with likeminded regional states to counter balance Iran and IS. Relations with Turkey and Qatar have consequently improved. However, the evolving nature of regional coalitions which are looser and more issue specific in contemporary times, and the drop in the oil price will limit the kingdom’s ability to influence the foreign policy decisions of other regional states. Moreover, domestic matters such as youth unemployment will in the short to medium term force the regime to look inward in the struggle for its survival.
Saudi foreign policy has historically been governed by four main principles. These include territorial integrity, regime protection, economic prosperity, and the promotion and preservation of its form of monarchical Islamic governance. However, because the kingdom possessed little influence and military strength during its initial stages, protection from a global power was usually sought. This took the form of partnerships with the British post World War I until the founding of the Saudi state in 1932, and with the U.S post World War II up to today. The Kingdom’s vast oil resources –it is currently the largest oil producer and possesses the largest amount of reserves– enabled it to gain influence and acquire strategic partner status with the U.S during the Cold War.
Domestic matters will force the regime to look inward in the struggle for its survival
Its aversion to communism and ability to cultivate coalitions with other Gulf States aided in this regard. The kingdom, in contemporary times, is now an aspiring regional hegemon; it has largely ensured its territorial integrity, possesses large cash reserves and military hardware, and as will be observed below, is willing to act financially and militarily to fulfil its national interests.
Although foreign policy and national interests in the Kingdom are an elite driven process, because the country is a monarchy, the king possesses a disproportional influence in shaping the state’s path. Noteworthy is the observation that domestic regime protection is the most significant thrust informing Saudi foreign policy.
Regarded by western commentators as a ‘reformer’, foreign policy under Abdullah sought to diversify bilateral Saudi relations. Visits to China, Russia, India, and Pakistan in 2006 and 2007 were noteworthy in this regard. These were mainly a consequence of Saudi Arabia’s opposition to the U.S’s 2003 invasion of Iraq and overthrow of the Saddam regime. The Kingdom viewed Iraq under Saddam as a bulwark against Iran, which it views as a regional competitor. It perceives Iran as posing a threat to it domestically in terms of inspiring its minority Shia population, who face much state sponsored discrimination.
The Kingdom also views itself as the protector of ‘Sunnis’ and ‘Arabs’ from what it believes is ‘Shia’ and ‘Persian’ Iran
Regionally it worries that Iran’s military and economic power, if allowed to flourish, will dilute the Kingdom’s regional influence, especially amongst the Gulf Cooperation Council (GCC). It thus supported Saddam during the eight year long Iraq-Iran war, and was opposed to the 2003 invasion. The Kingdom also views itself as the protector of ‘Sunnis’ and ‘Arabs’ from what it believes is ‘Shia’ and ‘Persian’ Iran, but this is of less importance in its calculations than the Islamic republic’s potential to undermine its domestic and regional interests.
However, the Kingdom still maintained warm relations with the U.S, and would confer with it before adopting decisions, even when it emerged that the removal of Saddam enabled the Iranian regime to gain influence in Iraq. A key factor informing this was the U.S’s then opposition to Iran’s nuclear programme and the administration’s implementation of strict sanctions on the Islamic republic. This changed after the ‘Arab spring’ uprisings.
Three issues were critical in shaping this evolution. First, the Kingdom was opposed to the forced resignation of Egyptian president Hosni Mubarak in February 2011 and the U.S’s role in enabling this. Abdullah and Mubarak were close allies and Egypt, during the latter end of Mubarak’s term, largely followed Saudi Arabia’s lead in responding to regional issues. The Kingdom thus felt that the U.S, which had been a close Mubarak ally, had betrayed him, and would adopt a similar position were the regime in Saudi Arabia threatened. This was especially critical in light of the fact that, at the time, the main actors to gain from the uprisings were participatory Islamists such as the Muslim Brotherhood. Saudi Arabia views the Brotherhood as posing a normative threat to its monarchical form of Islam and still bemoans the fact that senior Brotherhood figures refused to support its role during the 1990-91 Gulf War.
Second, Riyadh felt let down over the Obama administration’s failure to intervene in Syria in September 2013. This was especially true since the Assad regime had at the time been accused of using chemical weapons, flouting one of the Obama administration’s ‘red lines’. Last, the kingdom is opposed to the Iranian nuclear deal, fearing that the deal will allow Iran to increase support to proxy groups such as Hezbollah. The Kingdom is of the perception that Iran seeks regional hegemony, and that its rise will blunt Saudi Arabia’s relatively strong regional influence. This is especially true since the Islamic republic shares economic and energy interests with many Gulf States including Qatar and the UAE, is influential in Lebanon and Syria through its alliances with Hezbollah and the Assad regime, and has more popular legitimacy in light of holding elections.
The Kingdom sought to reverse the successes gained by participatory Islamists in countries such as Egypt
The Kingdom was especially angered for not being informed about the initial U.S-Iranian negotiations, which paved the way for the November 2013 interim agreement. It thus has become wary of future U.S support, believing that in a situation where the regime is threatened the U.S will not offer its full support and prefer to instead call for negotiations and compromise.
Riyadh thus responded by adopting a more assertive foreign policy. First it adopted a policy of containment. Through the use of its vast cash reserves (over 700 billion dollars in 2011) it sought to stifle protest movements from spreading to Gulf and Arab monarchs. Morocco and Jordan were invited to join the GCC and provided funding to withstand protests. The funding was used to quell protests through increases in public sector spending, especially in Jordan where they allowed the Abdullah II regime to stave off the need for subsidy removal.
The Kingdom also attempted to contain the uprisings through strengthening GCC cooperation and increasing the council’s capacity. GCC forces were deployed to Bahrain in 2011 and successfully supported and protected the Al Khalifa regime, while in December 2013 the GCC concluded an agreement to establish a unified command with a proposed hundred thousand strong deployable force. Agreements on a shared GCC police force and the opening of a centre (the Gulf Centre for Strategic Studies) to promote GCC security coordination were also signed.
Second, the Kingdom sought to reverse the successes gained by participatory Islamists in countries such as Egypt. Through financing remnants to the tune of between twenty-five and forty billion dollars, together with the UAE and Kuwait, the Mursi regime was overthrown and replaced by a former military head Abdel-Fattah El-Sisi. Riyadh supported the Abd Rabbuh Mansour Hadi administration in Yemen in its attempts to confront the Yemeni Islah party, and Saudi-Emirati relations strengthened, partly as a result of the UAE’s actions in Tunisia and Libya, which were targeted at undermining participatory Islamists (the Justice and Construction party, Libya Dawn forces in Libya, and Ennahdha in Tunisia).
This culminated in the March 2014 decision declaring the Muslim Brotherhood a terrorist organisation adopted by Gulf states, and the withdrawal of the Kuwaiti, Saudi, and Emirati ambassadors from Qatar in protest over Qatar’s support for the group. It is noteworthy that even though Riyadh supported opposition groups in Syria, this was more because it saw an opportunity to weaken Iran through removing an ally. Moreover, Saudi assistance to Syrian opposition sought to distinguish between participatory Islamists such as the Syrian Brotherhood and more Salafi groupings such as Jaish Al-Islam and Ahrar Al-Shaam, supporting the latter.
Following King Abdullah’s death in January 2015 and the ascension to the thrown of Salman bin Abdul-Aziz, Saudi foreign policy priorities have been reformulated. These have resulted from both domestic and regional factors. Immediately following Salman’s accession, rhetoric toward the brotherhood changed, and kingdom officials stated that the group as a whole wasn’t viewed as a terrorist organisation. Further, relations between Qatar and Turkey dramatically improved at the expense of those with Egypt and the UAE –Sisi and Mohammed bin Zayed Al Nahyan (crown prince of Abu Dhabi) were requested not to attend Abdullah’s funeral. Moreover, the Kingdom has severely reduced its aid to Egypt, providing long term loans and fuel grants instead. Since November 2016 it has even halted oil shipments to Cairo as a result of Egypt’s opposition to a UNSC resolution criticising the Iranian supported Syrian regime, and because it believes that Cairo had become increasingly dependent on its largess and was failing to restart its economy.
Key in influencing these decisions has been the Iranian nuclear deal and rise of the Islamic state group (IS). The Kingdom views these as greater threats than participatory Islamists. It fears an Iranian resurgence after the nuclear deal, especially as this may diminish its regional influence. This is particularly true since the Assad regime has consolidated its control in Syria, and with Michel Aoun, Hezbollah’s supported candidate, became Lebanese president.
IS, on the other hand, has been active in the country, claiming bombings on Mosques frequented by Shia and Special Forces, and its leadership has been critical of the Saudi regime. In May 2015 for example, the group undertook attacks on Shia sites of worship in Katif and Damam killing around twenty nine people, while an attack on a Mosque in Asir in August that year killed fifteen Saudi security personnel.
Salman has thus moved to adopt a policy of tolerance toward participatory Islamists.
Moreover, the group has been critical of the Kingdom’s leadership of the Sunni world, advocating internal rebellion and censuring its relative lack of support for Palestinian independence. This is aside from the normative threat that the group poses to the regime as a result of its use of religious texts legitimising its form of governance. It is noteworthy that some within the Saudi clerical establishment are partially sympathetic to IS’s ideology, that Saudi citizens have been involved in the financing of militant groups in Syria, and that they comprise a sizable portion of IS’s international recruits.
Salman has thus moved to adopt a policy of tolerance toward participatory Islamists. Ennahdha’s Rached Ghannouchi, the Jordanian Brotherhood’s Hamam Saeed, and Hamas’s Khaled Mishaal had all visited the kingdom in 2015. Further, it has re-established ties with the Yemeni Islah party and financed and armed it in its attempt to reassert influence in Yemen.
The kingdom has sought to form a coalition to confront Iran and IS. It stepped up coordination with Turkey and other countries to support and arm Syrian opposition in Syria, while in December 2016 it spearheaded the creation of an ‘anti-terrorism’ coalition together with thirty-four other, mainly Sunni countries. The coalition excluded Iraq and Syria in light of their governments’ close ties to the Islamic republic, even though Iraq and Syria were designated as two of the coalition’s main areas of focus and Iran is currently the only Gulf state with ground troups fighting IS.
In addition, in January 2016 the Kingdom severed diplomatic and trade ties with Iran following the storming of the Saudi embassy by Iranian protesters angered by the execution of influential Saudi Shia cleric Nimr Al Nimr. Nimr’s execution seemed calculated to coincide with the unfreezing of Iranian sanctions and was an attempt in foreign policy terms to both stall the improving relations between the Islamic Republic and the west, and to ensure that Gulf allies followed suit.
Yemen has provided the best example of Salman’s re-prioritised foreign policy. Being paranoid over Iran’s support for Houthi (Ansarullah) rebels, and fearing that the Islamic republic would now be in control of four Arab capitals, in March 2015 Saudi Arabia commenced airstrikes on Houthi positions. The strikes were a part of a ten member coalition which the Kingdom headed, and were without initial U.S endorsement.
The Yemeni Islah party (Yemen’s main participatory Islamist faction) has been empowered, especially in its attempts to consolidate control of the city of Taiz, and a coalition ground troupe component, consisting of around 50000 forces has since been implemented. Thus far the effort has had some successes, the Hadi administration has re-established control over Taiz and much of the country’s south. However Houthi fighters, in coalition with military units loyal to Yemen’s former president, Ali Abdallah Saleh, remain in Sana’a and many Northern regions. Moreover, it is unlikely that these will be dislodged easily as Houthi influence in Yemen is largely a result of disillusionment with Yemeni politics and opposition to Saudi meddling in the country; the Houthis have strong institutional bases and grassroot support in Northern provinces such as Sada.
It is noteworthy that Salman’s renewed relations with participatory Islamists constitutes tolerance and not necessarily rapprochement. Although Salman has had warm relations with Erdogan and the previous Emir of Qatar (Hamed bin Khalifa Al-Thani), the decision is more a result of the kingdom’s belief that the group has been weakened and now poses no real threat to the regime. Moreover, the regime has concluded that these participatory Islamists possess some influence regionally and that this influence will be useful in combating Iran and IS.
US-Saudi relations have however largely remained apprehensive since Salman’s accession.
The regime’s lingering long-term fears of participatory Islamists can be observed in its treatment of Sisi’s Egypt. Despite Salman’s dislike for Sisi –it is reliably reported that Sisi sought to ensure that Salman was bypassed and power transferred to Muqrin after Abdullah’s death, even endorsing the use of Egyptian forces if necessary. Although Sisi has been dismissive of Gulf regimes and their willingness to fund the coup, the Kingdom still maintains relations with Sisi and has not sought to engage closely with the Muslim Brotherhood. Last, it is notable that Salman has utilised similar means to that of Abdullah in implementing Saudi regional aspirations. Financial and military assistance has been provided to sympathetic parties and Salman has not held back from endorsing direct military action such as what occurred in Yemen.
Further, US-Saudi relations have however largely remained apprehensive since Salman’s accession. The administration was likely given little warning about the then impending Saudi intervention in Yemen in March 2015 and was likewise not informed about Nimr’s execution. The US had however retroactively supported the Yemen intervention, providing logistical and armament support to Saudi coalition forces, and securing a United Nations Security Council resolution (2216) endorsing the intervention.
However, during Obama’s term, this was informed more by the US’s need to placate the Kingdom in light of the Iranian nuclear deal. President Trump seems to signal a change, reinforcing support to Saudi forces in Yemen, and vowing to implement tougher measures against Iran. Further, the administration’s proposed ban on citizens travelling to the country does not include Saudi Arabia, but encompasses Iranians. although these moves can be seen as a convergence, US and Saudi regional interests still deviate, especially in light of Trump’s intent to provide priority to East Asia, specifically China, and his stance on shrinking the US’s military.
Regionally the main consequences of the shifts in foreign policy under Abdullah and re-prioritisation under Salman will see an intensification of regional conflicts, especially those involving Iran or its proxies. Finding political solutions to the Syrian and especially Yemeni conflicts will thus become exceedingly difficult. Yemen ceasefires throughout 2016 had largely failed, and a political solution is currently not on the horizon. In Syria, the only reason the December 2016 ceasefire has largely held is because Saudi Arabia had been sidelined ,while Turkey, a fellow regional heavyweight with a direct presence on the ground, is a guarantor together with Russia. Political talks to negotiate a transitional agreement are however proving more difficult, owing to the Assad regime’s strengthened position and increased demands from Iran.
Yemen ceasefires throughout 2016 had largely failed, and a political solution is currently not on the horizon.
This will ensure that the Kingdom continues its support to rebel groups, especially if Hezbollah and Shia militia groups are permitted to continue operating in the country. This will result in the worsening of conditions for civilians trapped in the middle of this battle, which is increasingly resembling a regional Cold War. Already in Yemen for example, since the Saudi intervention, over eighty percent of the population is now in need of humanitarian assistance, up from sixty per cent prior to the intervention; fifteen million people don’t have access to healthcare and twenty-one million don’t access to clean water, up fifty-two percent from before the intervention; and ten governorates are on the verge of experiencing famine.
Salman’s ambitions will however be constrained by various factors. First, coalition formation in the region is notoriously difficult. Balancing is more informed by domestic factors than states’ hard power resources, making coalition formation improbable and short term in nature. The UAE for example is more fearful of domestic participatory Islamists than it is of Iran, making it unlikely that the country will defer totally in a coalition with the Saudis. This is currently being observed in Yemen, wherein the Emirates is sceptical of Islah and has blamed it for much of the country’s problems, refusing to finance and arm it and preferring to make use of Emirati troupes and private contractors instead.
Moreover, economic ties are likely to ensure that coalition formation is loose and more issue specific. Dubai and Oman have important economic ties with the Islamic republic, while Qatar and Iran jointly share the South Pars/North Dome GAS field. All three of these refused to fully follow the Saudi lead and sever diplomatic relations after the Saudi embassy attack. Qatar and Oman maintained the same level of diplomatic engagement with the Islamic republic while the UAE downgraded relations but did not fully sever diplomatic ties. Further, Turkey is dependent on Iranian gas, and thus offered to play a mediating role between Iran and Saudi Arabia, despite the Erdogan regime’s continued opposition to the Islamic republic’s interests in Syria.
Second, the drop in oil and Liquefied Natural Gas prices will impede the Kingdom’s attempts to use its vast oil wealth to influence other, poorer regional states. 2015 saw the oil price drop by over thirty-five per cent from its 2014 level, and this trend has to date continued in 2016 despite the strong Saudi-Iranian tensions. The Kingdom, which relies on oil income for between seventy-seven and eighty-eight per cent of government revenue has thus been forced to utilise its cash reserves to fund domestic social programmes. This has caused its reserves to drop from around 735 billion dollars in 2014 to around 623 billion by the end of 2015, and the budget deficit for 2016 stood at seventy-nine billion, ensuring that the kingdom will need to make use of more of its reserves.
The drop in oil and Liquefied Natural Gas prices will impede the Kingdom’s attempts to use its vast oil wealth to influence other, poorer regional states.
Levies on petrol and gas have increased by fifty per cent and sixty-six per cent respectively and the GCC is mulling the introduction of a form of value added tax with income tax soon to follow by 2018. The funding it was able to provide to regional states in 2011 to stall protests and ensure state alliances will thus be curtailed. Some have argued that this is one of the reasons informing the Kingdom’s provision of loans instead of grants to the Sisi regime in Egypt.
Last, the country will increasingly be required to focus internally. Following the uprisings it sought to stymie domestic rumblings through increased social spending and utilised over a hundred billion of its reserves for this purpose in 2011 alone. However issues still remain, especially within the country’s restive youth population. Unemployment amongst the 15-24 year old group stands at over thirty per cent and around two-thirds of the country is aged under thirty.
Opposition to Salman’s policies from within the royal family is manifest
The 2016 budget allocated around twenty-three billion to education and a significant amount to other social services, however much more will need to be implemented, including finding employment and a sense of purpose for qualified graduates. It is argued that this is one of the reasons accounting for Salman’s appointment of his youngest son Mohammed (thirty-one) and the relatively young Mohammed bin Nayef (fifty-seven) as deputy crown prince and crown prince respectively. The Kingdom is seeking to reconnect with its youth population in an attempt to quell descent and ensure its perpetuation. This will be increasingly difficult especially in light of its lifting of subsidies and implementation of taxes. David Hurst thus argues that the other fourty-five executed with Nimr in January 2016 was a sign aimed at domestic dissenters. Most of these comprised Al-Qaida linked militants, some of whom had been on death row since 2004. Executing them at this juncture when levies and taxes are increasing is meant to illustrate that rebellion against the monarch would not be tolerated.
Things however can change quickly. The region is currently in flux, the chances for miscalculations are abound, especially in terms of further regional upheaval. The increasing regional interference of Russia is worrisome in this regard, especially as the country moves to fill the gap in Egypt and more overtly supports Khalifa Haftar in Libya.
Moreover, opposition to Salman’s policies from within the royal family is manifest; the appointment of Mohammed bin Salman as Deputy Crown Prince was not unanimously endorsed by the allegiance council. This may pose problems, especially were the king to suddenly be unable to govern. Mohammed bin Salman, who currently acts as a de-facto prime minister and is largely in charge of the countries defence policy, is viewed as lacking the capacity and credentials for such a high office by some within the royal family. His appointment was seen as risky and informed more by his proximity to his father than his ability to govern.
Furthermore, Crown Prince Mohammed bin Nayef, who is seen by most in the royal family as legitimate, does not fully agree with some of the policies adopted by the deputy Crown Prince, especially those concerning Yemen, and may thus act to freeze him out of political office once he ascends to the helm. This would most likely lead to a rethink in Saudi foreign policy and the means best suited for its achievement. However for the time being, while Salman is still at the helm, Riyadh’s foreign policy will mainly be concerned with confronting Iran and IS. Relations with democratic Islamists will improve as the regime seeks to create a bloc to balance Iran, consequently intensifying conflicts in Syria and Yemen and inflaming sectarian tensions in the process.
* Ebrahim Deen is a senior researcher at the Afro-Middle East Centre.
* This article was first published by Open Democracy on 20 February 2017.
By Afro-Middle East Centre
In the culmination of an extended process, Morocco was admitted to the African Union on 30 January 2017. This process saw the king undertake numerous visits to francophone allies, as well as concluding economic agreements. It also included the upgrading of ties with continental leaders such as Nigeria, South Africa and Kenya. A key cog in the country’s accession strategy was its resolve to no longer make accession contingent on the de-recognition of the Sahrawi Arab Democratic Republic (SADR). This resulted in the clear majority voting for its membership at the recent AU summit.
Central to this reconfigured stance is Morocco’s belief that the current civil war in South Sudan has diluted the independence drive among African states, as well as its view that counterterrorism cooperation will ensure closer ties with its allies. It also believes that the low oil price and leadership transition in Algeria will impair its support for the Polisario Front (PF), the main indigenous political force fighting for Sahrawi independence. Morocco thus believes that its 2007 autonomy plan will soon be recognised as an optimal solution for the forty-one year long conflict, especially since foreign powers such as the USA and France already support it.
Though indirectly, Morocco’s accession to the AU under this reconfigured stance will dampen support for SADR independence. Already twenty-eight states have formally advocated for SADR’s suspension. South Africa and Algeria will continue to support the PF and SADR; however, their influence will be limited in such an arena.
Autonomy for the territory within the Moroccan state, in some form, will thus likely be the eventual outcome. This will be complex and intractable, especially as the Moroccan monarch continues to maintain most state powers. However, in the short term we may see a return to active conflict, particularly if Morocco expands its territorial annexation.
History of the Sahrawi struggle
The issues currently facing the sparsely populated desert region of Western Sahara historically link to the 1884 Berlin Conference, which divided the continent among European powers. Spain took control of the 100 000-square-kilometre territory, known then as the Spanish Sahara. At the time, Spain saw it as strategically important because of its geographical location and fishing resources. Spanish rule remained until 1960, when UN Resolution 1514 advocated self-determination for former colonies. Between 1965 and 1973, the UN passed seven resolutions regarding the status of Western Sahara, and by 1975, Spain announced its intention to institute a referendum and relinquish control of the territory. However, at the time three contending actors sought the territory – Morocco, Mauritania and the indigenous Sahrawi under the banner of the Polisario Front. Feeling threatened that the referendum would result in Western Sahara’s independence, Morocco’s Hassan II successfully sought the International Court of Justice’s arbitration in the matter. Morocco contends that its colonial borders are incompatible with the country’s historical boundaries, which are believed to include the whole of ancient Mauretania, Northern Mali and parts of Algeria. Thus, it is unwilling to relinquish further territory.
In October 1975, the court ruled that although Sahrawi tribes have historical links with the Moroccan monarch, self-determination was incompatible with this claim. In November that year, around 350 000 Moroccans subsequently marched into the territory, stymieing the Spanish referendum attempt. As a result, Spain pulled out in 1976, without holding a referendum, and deferring sovereignty to Morocco and Mauritania. Subsequently, the Sahrawi Arab Democratic Republic (SADR) was declared on 27 February 1976, and currently maintains a government in exile from Tindouf. Mauritania renounced its territorial claims in 1979, redeploying its troops, and ceding most of the territory it controlled to Morocco.
Since then the PF and Morocco have been engaging in conflict. Algeria currently houses the PF’s leadership, and has financially, militarily and diplomatically supported the group. This is in line with Algiers’ historic stance on independence from colonialism, as well as due to the country’s fears that ceding this territory to Morocco would pose a threat to its southwestern border. The PF currently controls around fifteen per cent of Sahrawi territory, with Morocco controlling the rest. The struggle between Morocco and the PF was originally a military one. However, in recent years, it has been carried out in international institutions such as the UN and AU, and most recently the European Court of Justice. The two sides signed a settlement agreement in 1991, which foresaw the holding of a referendum on Sahrawi self-determination, and endorsed the creation of the United Nations Mission for the Referendum on Western Sahara (MINURSO). Originally slated for 1992, the referendum has yet to be instituted. Both sides still disagree on issues surrounding voter eligibility, even though in 1999 the UN approved an 86 000-person voter roll. Furthermore, the Moroccan monarch sought to circumvent the process over the fact that independence was to be an option on the ballot. Rabat thus left the Organisation of African Unity (OAU) in 1984, following the admission of the Sahrawi Arab Democratic Republic (SADR), and has remained outside the organisation since.
The disagreements between Morocco, SADR and Algeria culminated in the 2003 ‘Peace Plan for the Self-Determination of the People of Western Sahara’, drafted and supported by UNSC Resolution 1429. The plan advocated for a four-year transitional period, during which the territory would be governed autonomously, followed by a referendum. Originally intended to force compliance among the main parties, subsequent UN resolutions (1495 and 1541) weakened the enforcement and implementation capabilities. By this point, Morocco was fully entrenched in the Bush Administration’s War on Terror and was seen as a key ally. The Secretary General’s special envoy to the region, James Baker, resigned in 2004, and the council has not formulated a credible initiative since. Morocco has recently been emboldened, and following former Secretary General Ban Ki-Moon’s alleged labelling of the territory as ‘occupied’ during a trip to refugee camps in Tindouf in March 2016, the country expelled around eighty personnel from MINURSO, and thereby severely impeding its monitoring capacity.
Recent events: The 2007 autonomy plan
In 2007, the country launched an autonomy initiative for the territory, which was to allow limited judicial, legislative, and executive autonomy in return for control over defence, foreign affairs and religious affairs. Furthermore, in step with this initiative, the country invested into the territories and announced its intention to invest an additional one billion dollars, in an effort to integrate the territory into Morocco, as part of its ‘advanced regionalisation initiative’. At the heart of this move is Morocco’s attempt to shift the Sahrawi issue from the realm of international politics to one of local negotiations. It now refuses to even recognise the whole territory as having special status under the autonomy plan, while viewing it as the first step in its regionalisation process. This would enable the king to remain in control, yet give an impression of decentralisation. Mohammed VI considers the Western Sahara issue as critical for his survival, since most Moroccans support his stance.
Thus, the king has also sought to expand its control of Sahrawi territory. In 2015, it dispatched troops into the PF-controlled region of Guerguerat, and now controls over eighty-five per cent of Western Sahara. In July 2016, the country announced its intention to join the African Union without preconditions; it submitted a formal request in September. The PF has threatened to recommence armed struggle, with student groupings already issuing declarations in this regard. However, thus far, the situation remains peaceful yet tense.
Morocco’s renewed confidence centres on two major factors: perceived disillusionment from the international community with independence struggles and the impact of the oil price on the PF’s Algerian backing. Rabat believes that the struggles in South Sudan have diluted the continent’s optimism for independence struggles. No African state has gained independence since Eritrea in 1994, with South Sudan’s 2011 recognition being an anomaly. Morocco assesses that many states will reconsider SADR recognition if major African countries and the AU accept the 2007 autonomy plan. As of 2016, more than thirty of the eighty-four states that had previously recognised Western Saharan independence globally have frozen and/or withdrawn SADR recognition, even though such a move does not comply with the 1933 Montevideo Convention on statehood recognition. Further, the country believes that the rise in weapons proliferation and militancy in the Sahel, largely caused by the NATO-led ouster of Muammar Gaddafi, will increase the tendency for states to favour their own stability over the right to self-determination of others. Consequently, after Gaddafi’s ouster, Morocco has actively engaged with states such as Mali and Mauritania, in addition to supporting France’s 2013 Mali intervention. Its position received a boost when it was elected to lead the executive committee of the twenty-eight-member Community of Sahel-Saharan States’ (CEN-SAD) in 2013.
Rabat likewise believes that the oil and liquefied natural gas (LNG) price drop has negatively affected Algeria to the extent that it would be unable to continue supporting Polisario at the same level as previously. It also believes that Algeria’s succession question will weaken its resolve. Algeria, however, argues that it remains committed to the Sahrawi struggle, and that its economy will weather the oil price crisis.
Sub-Saharan Africa’s economic opportunities and the need to re-engage
For Morocco, Sub-Saharan Africa represents a significant market for its industries, especially following the 2008 global crisis, which slowed the US and European economies. Under Mohammed VI, the country is thus looking southwards. Moroccan exports to sub-Saharan Africa have increased more than tenfold from around 250 million dollars in 2000, to exceeding 3.5 billion in 2014. This is in addition to foreign direct investment from Morocco to the rest of Africa, which was doubled to around 500 million dollars in 2010, from 250 million just two years earlier. The continent remains third in Morocco’s foreign relations priorities, after Europe and the USA.
Morocco-Western Sahara and the AU
With this change in approach, Morocco is also increasing its diplomatic influence and activities in multilateral organisations. Apart from its leadership role in CEN-SAD, it was elected to the UN Security Council in 2012 as a non-permanent member. Morocco also regards conflict resolution as an important component guiding its foreign policy. It attempted to mediate between various parties following the failed coup in Guinea in 2010, and acted as a mediator to smooth US relations with Mauritania after the 2008 coup. Furthermore, the December 2015 agreement to form a unified Libyan government (GNA) was partly driven by Morocco, and signed in the Moroccan resort city of Skhirat.
The country was thus keen to restore its African Union seat. To this effect in September 2016, Mohammed VI formally submitted his request to accede to the AU. Morocco was subsequently admitted as a member in January 2017, with a clear majority. A key factor in this was Mohammed VI’s decision not to make the country’s admission contingent on SADR’s de-recognition. As a result, an unprecedented thirty-nine out of fifty-four AU member states supported the move, with only nine voting against it. Mohammed VI now believes that advocating for SADR de-recognition would have a better chance from within the organisation. This is especially since being inside the AU allows Rabat to lobby against the efforts of Algeria and South Africa, and use the support it receives from allies to weaken the organisation’s positions on the crisis. Significantly, continental heavyweights Algeria and South Africa voted not to instate the country.
Implications for SADR independence
Morocco’s accession to the AU has dampened support for SADR from within the institution. Already in July 2016, twenty-eight states formally requested that the organisation suspend SADR. Security coordination with Morocco was explicitly stated as a reason informing the appeal. While the AU’s Constitutive Act does not permit de-recognition of a state, the act can be amended to allow for this. Furthermore, AU commission chair Moussa Faki Mahamat represents Chad, whose leader Idriss Deby Itno is a strong advocate of Morocco’s stance. Only thirty-six votes are required for SADR’s suspension from the organisation, and already thirty-one members have expressed their support for this move.
Autonomy in some form will thus likely be an eventuality, especially since the USA and Spain now see the 2007 autonomy plan as credible. In addition, it is unlikely that the AU will remain assertive in its calls for self-determination, with Mahamat at the helm. This is especially since Morocco can provide much needed funding to the organisation.
Already in the 1980s, the UN envisaged such an autonomy-based solution, iterated by former Secretary General Javier Perez de Cuellar, who conceptualised the plan. However, autonomy will be difficult to implement in an autocratic political system, which complicates the matter, especially since Morocco’s king has near absolute powers. He chairs the supreme council of the judiciary, the national security council, and the council of ministers, and is the self-designated ‘amir al-mu'minin’ (leader of the faithful). The king will thus retain his power to dissolve governmental institutions, inhibiting checks and balances, and enabling him to influence the territory’s domestic self-determination. Mohammed VI’s influence over judicial institutions means that even matters concerning the division of powers and responsibilities, which were to be adjudicated by the constitutional council and administrative courts, would be discredited and seen as prioritising the Moroccan state. In addition, a solution based on democracy within autocracy is incompatible with the rights provided to ordinary Moroccans, and consequently may lead to problems with implementation, and cause friction between citizens from Western Saharan territories and the rest of the country. Anna Khakee thus observes that it would be difficult for freedom of speech to be fully implemented in the territory when criticism of the monarch is not tolerated in the rest of the country; the king will face difficulty in allowing the participation of communal Sahrawi parties when the largely communal Al-Adl Wal-Ihsane group remains banned. This raises pertinent questions about the applicability of the solution in the current Moroccan political system and the impact of the proposed reforms in engendering nation-building.
In the short term, this may mean a return to active conflict, especially if Morocco continues to expand the territory it controls. This is particularly if institutions such as the AU and UN are not able to constrain Rabat’s demands, and if the PF begins to believe that armed struggle is the only means to ensure self-determination. Morocco and the PF may consider it more likely now that twenty-eight states formally requested that the AU suspend the SADR. Rabat thus intends to work through the institution to alter its constitutive act and realise this suspension. It believes that the aforementioned change in stance among many African states will enable this to be achieved swiftly.
For the moment, it remains improbable that the organisation will institute such a radical measure in the immediate term. The already vociferous opposition from South Africa and Algeria over Morocco’s accession to the organisation without the monarch’s recognition of SADR will be heightened. Article 10 of the resolution adopted at the twenty-eighth head of states summit in Addis Ababa was thus very stringent in its calls for the UNGA to set a date for the referendum, and in its criticism of Morocco’s exploitation of Sahrawi natural resources. Moreover, South Africa and Algeria are able to leverage similar interests as Morocco. Both countries have well-developed security sectors, and Algeria is seen as a country with vast amounts of knowledge in countering militancy. Further, both have vast resources – liquefied natural gas in the instance of Algeria, and financial and technical expertise in South Africa. These will likely be leveraged to ensure that countries, especially in southern and eastern regions of the continent vote against SADR’s suspension. Notably, the level of South African and Algerian opposition to Moroccan admission was tempered by the country’s modification of its previous stance that accession was contingent on SADR’s suspension.
In conclusion, continental heavyweights, such as South Africa and Algeria will continue to support the PF financially and diplomatically. This is especially the case for its main supporter, Algeria. In light of the current leadership transition, Algiers will exert extra effort to support the PF, since, just as is the case with Morocco, the Algerian regime’s legitimacy has become increasingly entangled with the Sahrawi struggle. An autonomy-based solution will thus meet much opposition, unless there is reform of the Moroccan political system, with real autonomy for Western Saharans, or until we see a real rapprochement between Morocco and Algeria.
By Afro-Middle East Centre
Talks between the Syrian regime and opposition forces, held in Kazakhstan’s capital from 23 to 24 January, concluded with Russia, Turkey and Iran announcing their intention for a trilateral mechanism to monitor and enforce the ceasefire between regime forces and rebels. The talks aimed to build on the 30 December truce, which was brokered by Ankara and Moscow, and endorsed by the United Nations Security Council. Delegations from armed opposition groups and the Syrian regime were meant to speak directly; however, this failed to materialise. The talks suggest the possibility of a diplomatic resolution for Syria in the future, but one which will favour the regime, and will not totally end the fighting.
The Astana talks highlighted the role of these three regional powers in Syria’s civil war, and the sidelining of the USA and Saudi Arabia; the former was invited as an observer, and the latter not at all. Astana did little to change the situation on the ground as regime forces continue attacking rebel fighters in Wadi Barada, near Damascus, while fighting between rebel groups broke out in Idlib, further weakening the opposition in the face of an assertive regime.
The nature of the Syrian civil war, with the involvement of a number of states supporting a range of actors, and the role of the Islamic State group (IS), has led to the failure of several UN-mandated peace talks. The organisers positioned the Astana talks as a basis for upcoming UN talks in Geneva, intended to cement the ceasefire while establishing a trajectory for future negotiations. The fall of Aleppo in December was a turning point in the conflict, and allowed the Syrian president, Bashar al-Asad, to claim victory and rubbish any attempts to exclude him from any transition process. Since Turkish and Russian support led to Asad’s success in Aleppo, they also took the diplomatic initiative. Their ceasefire deal was signed by Syria and seven major opposition groups. It was active in all areas not under IS control, and excluded UN-designated ‘terrorist’ groups, particularly IS and Jabhat Fateh al-Sham (formerly al-Qa'ida-affiliated Jabhat al-Nusra). When the parties decided early January that the ceasefire was substantially holding, Russia and Turkey began preparations to host talks between the regime and opposition forces.
Differing expectations of the Astana talks threatened to collapse the dialogue before it has started. Asad expressed hope that the armed rebel groups will disarm in exchange for an amnesty deal. Opposition groups expected to the talks only to strengthen the ceasefire, leaving any discussion of Syria’s political future to Geneva. The ceasefire agreement between Russia and Turkey has been more successful than previous agreements between Russia and the USA, and the organisers hoped that excluding the USA from a pivotal role may invoke greater trust between participants. Washington’s involvement in the Syrian peace process has decreased not only due to Asad’s ascendency with Russian support or Iran wishing to exclude them from the process, but also as Obama’s presidency ended. Syria’s Foreign Minister Walid al-Moallem also spoke highly of the chance of success due to ‘strong guarantees’ from Moscow, calling the ceasefire a potential starting point for a political process.
Although all opposition groups that had signed the 30 December ceasefire had received invitations to Astana, the Islamist Ahrar al-Sham, one of the larger rebel groups, did not attend, citing the fighting in Wadi Barada. The USA had insisted that the Syrian Kurdish Democratic Union Party (PYD, the largest group in the US-sponsored Syrian Democratic Forces) be involved; Moscow remained silent while Ankara refused to consider the inclusion of either the PYD or its armed wing, the YPG, due to their links to the Kurdistan Workers’ Party (PKK). The SDF responded by announcing its rejection any decisions that would be made in Astana. Opposition groups are divided, and the loss of eastern Aleppo highlighted their weakened position. Turkey is the opposition’s major state ally; however, Ankara’s rapprochement with Moscow forces opposition groups to question the usefulness of a diplomatic route that constrains their offensive options and increases tensions with Jabhat Fateh al-Sham. The current fighting between Fateh al-Sham and allies against Ahrar al-Sham and allies in Idlib highlights this tension among rebel factions.
The Astana talks were largely unproductive, and their primary impact emerged from discussions on the sidelinesbetween Russia, Turkey and Iran on strengthening the ceasefire. In their agreement to set up a trilateral mechanism to monitor the ceasefire, the parties agreed there could be no military solution in Syria, and that the conflict could only be resolved through compliance with UN Security Council Resolution 2254. Neither the Syrian regime nor the rebel delegation appeared satisfied by the outcome of the talks. The opposition protested Iran’s inclusion in monitoring the ceasefire and mediating the conflict, and refused to sign any agreement. The government, meanwhile, announced the continuation of an offensive in Wadi Barada despite the ceasefire and had recaptured all rebel villages within a week.
An agreement to extend the ceasefire is a shaky foundation for the UN-mandated talks in Geneva starting on 20 February. Further, the exclusion of up to two thirds of opposition groups does not provide the rebel delegation with a popular mandate. The exclusion of armed groups with alleged al-Qa'ida links has further divided the opposition while providing the regime with an excuse for violating the ceasefire. Iran’s commitment to the ceasefire is a positive step towards freezing the conflict. Ultimately, it seems that a diplomatic solution is on the horizon, with the main drivers being Russia, Turkey and Iran. It will likely be a resolution that sees the co-option of certain sections of the opposition into the government, and an agreement that Asad will remain in power until the next election, when he will gracefully exit.
By Afro-Middle East Centre
The stepping down, under duress, of long-term Gambian president Yahya Jammeh clearly illustrates the impact of credible collective security. However, for this ‘African solution’ to be replicable, much will need to be allayed regarding possible future attempts to renege on the deal, which reportedly gives him immunity from future prosecution.
The agreement followed a month of uncertainty over the acceptance of the results of Gambia’s 1 December 2016 presidential poll, which saw opposition candidate Adama Barrow gain around forty-five per cent of the vote, nine per cent more than Jammeh. Jammeh, who had ruled the country for over twenty-two years since attaining power in a bloodless coup in 1994, initially conceded on 2 December through a phone call, which subsequently went viral.
However, a week later, he announced his intention to contest the results and filed a challenge in the country’s Supreme Court. Mediation efforts, under the auspices of the Economic Community of West African States (ECOWAS) have since been ongoing, and, after numerous dead ends, culminated in the 20 January agreement.
Jammeh’s acceptance of the deal, which saw him transported to the Guinean capital Conakry en route to Equatorial Guinea, was greatly influenced by the credible threat of force wielded by the West African sub-regional bloc. To this effect, ECOWAS members threatened to forcefully remove him if the election result was not accepted and implemented. Further, troops from ECOWAS states were dispatched to the Senegalese–Gambian border, and Nigerian forces were to provide aerial support.
This ‘African solution’ was only achieved because of the success of previous ECOWAS missions in Liberia, Sierra Leone and especially Cote d'Ivoire, which ensured that the threat to forcefully remove Jammeh was seen as credible. Initially formed to stabilise Liberia in the late 1980s following the first Liberian Civil War, the bloc was influential in halting civil conflicts in Liberia and Sierra Leone in the late 1990s and early 2000s. Further, in Cote d'Ivoire after former president Laurent Gbagbo refused to relinquish power following his defeat in elections to Alassane Ouattara in 2010, ECOWAS troops, together with the French, were crucial in enabling Gbagbo’s capture. Gbagbo’s fall was significant as unlike with Sierra Leone and Liberia, Cote d'Ivoire is one of the larger states in the bloc, and at the time, had a reasonably strong army. Further, unlike with Sierra Leone and Liberia, Cote d'Ivoire’s government did not sanction this mission. This meant that the bloc had acted militarily to ensure compliance with electoral results. Jammeh was thus confronted by a bloc, which had historically acted to enforce respect for electoral processes, even within powerful sub-regional states. Gambia, with a military of less than 5 000 soldiers thus stood little chance. This was further worsened by Jammeh’s tetchy relationship with Senegal, and the fact that the country shares almost its entire border with it.
The mission, however, could have been accomplished more quickly, with a smoother alternation of power. Jammeh only reconsidered his initial concession of defeat on 10 December, once opposition parties, including now president Adama Barrow, implied that he would face trial at the International Criminal Court (ICC). This was exacerbated by the case of Charles Taylor, whose asylum to Nigeria and reported immunity from trial ceased in 2006 when Liberian president Ellen Johnson Sirleaf requested his extradition; he now faces charges at the ICC for war crimes committed in Liberia in the 1990s. This set a precedent, hamstringing efforts by Guinea and Mauritania to negotiate a compromise wherein Jammeh would hand over power in return for immunity from prosecution. It is noteworthy that Sirleaf currently heads ECOWAS.
Thus, Jammeh would likely have fought harder to remain in power had he had a larger military and were it not for the military chief’s tacit support for the incoming administration. This implies that replicating this successful regionally mediated alternation of power will be increasingly difficult. African countries need to develop a mechanism that allows for accession to the ICC yet enables them to postpone and in instances halt the prosecution of heads of states when doing so would assist a peaceful transfer of power. This is significant on the continent, especially since leaders in Burundi, Sudan, the Democratic Republic of the Congo and Zimbabwe are not likely to allow for electoral transitions unless immunity is provided. Aggravating this is the fact that other sub-regional blocs on the continent lack the capacity and will to implement such a mission were a leader refusing to relinquish control. In this regard, the inability to enforce a solution to the current Burundian crisis, wherein most of the powerful sub-regional states, including South Africa, have adopted a similar stance on president Pierre Nkurunziza’s ineligibility to stand for a third term in office is a stark reality of the continent’s inability to exercise and implement a more collective mechanism promoting democratic consolidation.
Jammeh’s extradition to Equatorial Guinea, a country that is not currently a signatory to the ICC, will momentarily postpone this peace–justice conundrum and the need to formulate a response that can accommodate both. However, Gambia remains an ICC member, despite Jammeh’s previously stated intention to withdraw its membership. Further, President Barrow has acquiesced to the pressure placed on him by parties comprising the ruling coalition and continues to insist that the results of a truth commission will be sent to the court. This means that African states, especially ECOWAS members, will need to begin formulating a solution for this eventuality. Failure to do so risks impairing the credibility of mediation efforts and may result in leaders refusing to relinquish control in future. In the immediate term, the agreement’s success, and the publicity it has received, will empower Abdoulaye Bathily, ECOWAS’s candidate for the position of African Union chairperson, which is to be voted on at the twenty-ninth summit scheduled for 30 and 31 January.
By Maren Mantovani
By defending their national rights the Palestinian people have defended the rights of all revolutionaries in the world and the blood spilled by their sons is like the blood of our peoples. (Fidel Castro, 23 August 1982)
Fidel Castro’s passing has been for many a moment of reflection on Cuba’s past and present. We want to revisit here the Cuban revolution’s contributions to peoples’ struggles across the globe and to the Palestinian people in particular. Firmly convinced about the necessity of internationalism, Cuba played a key role in strengthening concepts of solidarity, bringing peoples together and supporting liberation struggles all over the Americas, Africa and Asia. For the Palestinian people, Cuba has been an important ally for decades and the gateway to the liberation movements in Latin America.
Today, as many movements around the world are grappling to understand, redefine and practice contemporary and effective forms of internationalism and solidarity, a look at this history and at present-day efforts may help to identify new inputs to shape global connections among peoples.
Palestine and Cuba’s Tricontinental Conference
In the first decade since the Nakba ('catastrophe' in Arabic), when Israel’s formation in 1948 meant the expulsion of the majority of the Palestinian people from their homeland and the transformation of the Zionist movement’s settler-colonial aspirations into a state based on apartheid, ethnic cleansing, occupation and aggression, the Palestinian people had two central tasks to complete. On the one hand, they had to organise resistance structures; on the other they had to create awareness about the existence, rights and motivations of their struggle, countering at the same time the notion that expelling the Palestinian people from their homeland and creating a new colonial regime on Palestinian land could somehow be justified as reparation for the Nazi holocaust. In less than a decade the PLO achieved an incredible feat – establishing concrete and solid relations with peoples, governments and movements from Asia to Latin America. The efforts of these years ensured that until today a large majority of the world’s governments support Palestine, even if only nominally during UN voting sessions. This would have been impossible if not for the support of some of the leaders, governments and movements that shaped the world in those days.
Arab leaders, most importantly the Egyptian president Jamal Abdel Nasser, India’s Jawaharlal Nehru and the leadership of the People's Republic of China were among the first to help put the Palestinian cause on the agenda of the Non-Aligned Movement and socialist countries, elevating it to a central struggle embodying anti-colonial and anti-imperialist aspirations. Their support ensured strong ties with Asia. Palestine’s breakthrough in Africa started with support from Nasser and Algerian prime minister Ahmed Ben Bella in the Organisation of African Unity (OAU). Founded in 1963, the OAU was central in supporting African liberation movements against colonialism. The existence of close ideological, military and economic ties between apartheid South Africa and Israel, both using apartheid as a framework to preserve a settler colonial regime in the twentieth century, and direct relations between the African National Congress and the Palestine Liberation Organisation (PLO) strengthened support for the Palestinian people throughout Africa.
The Palestinian people’s entry to Latin America was largely due to support received from Cuba, in particular during the Tricontinental Conference held in January 1966 in Havana. The Palestinian people played an often forgotten role in the construction of this historic event, which brought together more than 500 representatives of eighty-two delegations. Linking the experience of the Non-Aligned Movement and socialist and national liberation struggles in the global south, it bridged the geographic and ideological divides between revolutionary movements in Latin America and African and Asian anti-colonial struggles and governments. Amongst the delegates were leading figures such as Fidel Castro, Salvador Allende and Amilcar Cabral. It was in fact in Gaza that the celebration of a tricontinental conference was agreed upon. In 1961, the Palestine Committee for Afro-Asian Solidarity hosted a meeting of the Afro-Asian Solidarity Organisation, linked to the Non-Aligned Movement. The meeting, held in Gaza as a sign of solidarity with the Palestinian and Arab people, made significant steps forward in the construction of the Tricontinental Conference.
The First Tricontinental Conference opened up Latin America to the Palestinian liberation movement. A sizable delegation of Palestinian representatives from various PLO factions participated and presented the case of Palestine. They forged solidarity ties and further developed their understanding of Latin American struggles.
Defining solidarity: The tricontinental spirit
Once gathered in Havana, the delegates developed what became known as a ‘tricontinental spirit’. They were imbued with a sense of urgency to form, in the words of the conference declaration, a unique alliance against the ‘system of oppression and exploitation of colonialism, neocolonialism and imperialism’ and to devise effective forms of cooperation. At the time, debates on solidarity centred on the Vietnamese people’s resistance; however, the Palestinian struggle had an outstanding place even then. The Tricontinental Conference’s final declaration called specifically for ‘solidarity of all peoples with the Arab people of Palestine in its just struggle for the liberation of its homeland from imperialism and Zionist aggression’. Just as the Palestinian cause was a fundamental part of the tricontinental spirit, the PLO considered its struggle a part of global anti-colonial and anti-imperialist efforts. PLO chairman, Yasser Arafat, in a 1969 visit to Cuba declared:
The alliance of the Arab and Palestinian national liberation movement with Vietnam, the revolutionary situation in Cuba and the People's Democratic Republic of Korea and the national liberation movements in Asia, Africa and Latin America is the only path to create a camp that is capable of confronting and triumphing over the imperialist camp.
In his letter to the Tricontinental Conference, Che Guevara pointedly stated: solidarity ‘is not a matter of wishing success to those who are being attacked’. This call for concreteness in action was a core element of the meeting. The encounters in Havana strengthened Cuban–Palestinian ties and set the basis for concrete cooperation between the PLO and liberation struggles in Latin America. Since then movements, such as the Farabundo Marti National Liberation Front in El Salvador, the Sandinista National Liberation Front in Nicaragua and the Montoneros in Argentina, maintained close relations with the PLO. Latin American militants fought together with the Palestinian movements, and Palestinian movements trained and provided weapons for national liberation struggles in Latin America. The Sandinistas’ spokesperson Jorge Manda stated in an interview in 1979:
There is a union of blood for a long time between the Palestinian revolution and us. Many of the units of the Sandinista movement have been in Palestinian revolutionary bases in Jordan. In early 1970, Palestinian and Nicaraguan blood was spilled together in Amman and elsewhere during the Black September battles.
At the official, diplomatic level, relations forged and strengthened during the Tricontinental Conference yielded important fruits. Cuba became one of the most outspoken supporters of the Palestinian cause in international fora. Cuba co-sponsored UN Resolution 3379, which defined Zionism as ‘a form of racism and racial discrimination’, based on existing resolutions of the Non-Aligned Movement and the Organisation for African Unity. During the 1960s and 1970s, many countries from the global south broke diplomatic ties with Israel. Already in the first years of the PLO’s existence, the Palestinian struggle became a symbol of resistance and inspiration for progressive, left and social justice movements across the entire global south and, by the end of the 1960s, the movement had built increasing ties in Europe and North America as well.
Re-encounters at Durban’s World Conference against Racism
Unfortunately, the 1990s saw a weakening, if not collapse, of many efforts to build global solidarity among peoples struggling against colonialism, neocolonialism and imperialism. The collapse of the socialist bloc dealt an almost fatal blow even to the idea of non-alignment, and global anti-capitalist struggles faced dramatic challenges. US and European interventions broke down the last remnants of Arab nationalism. For the Palestinian people, the Oslo ‘peace’ process period mediated by the USA and Europe reflected a new paradigm: Left without almost any safe haven in the Arab world, and at the start of a decade where the West dominated a unipolar world order, Palestinian movements focused much of their international relations on western states.
However, by the year 2000 it was clear that no ‘Pax Americana’ would arise anywhere, let alone in Palestine: Military aggression, not only in the Arab world, continued to increase and, instead of creating a Palestinian state on the 1967 borders, Israeli settlements had dramatically increased in the occupied West Bank, stealing ever more Palestinian land and resources, and accelerating ethnic cleansing policies in the Palestinian territories. In September 2000, yet another Palestinian popular uprising, the second intifada, erupted and was drowned in blood only in 2002 when when the Israeli forces conducted large-scale military operations in the occupied West Bank and began building an eight-metre high apartheid wall, stretching more than 700 km in length and encircling Palestinian villages and cities. Israel literally cemented on the ground its plans for a final status solution for the Palestinian people in form of a Bantustan system, akin to the South African apartheid regime’s attempt to contain the black population in isolated reservations. For many years, Gaza has been an open-air prison, while Israel continues inflicting ethnic cleansing policies against the Palestinian population in roughly sixty per cent of the occupied West Bank. The right of return of the refugees, which make up the majority of the Palestinian population, seems further away from implementation than ever, and Palestinian citizens of Israel suffer increasing racial discrimination and displacement. The Oslo period’s end has thus created an urgency to develop new strategies and recover fading alliances.
For Palestine, the 2001 World Conference against Racism in Durban came at the right time to bring back centrality to a global south country – South Africa – and to revive an almost abandoned argument on Zionism’s racist nature. The grassroots movement’s decision to define Israel’s infrastructure project as an apartheid wall must be situated within this framework.
The re-encounter with South Africa and its anti-apartheid movement’s legacy strongly inspired the Palestinian call for boycott, divestment and sanctions (BDS) issued on 9 July 2005 by over 170 Palestinian organisations from all across the historic homeland and the diaspora. Uniting all Palestinian political parties and major unions and networks, this call created once again a cohesive strategy for action at an international level. The rationale of the BDS call is basic: A capitalist and colonial enterprise will only survive as long as it creates profit. As a direct response to the failure of the US and European governments to ensure a just solution for the Palestinian people, the BDS call is a call to the people across the world who share a common goal of fighting injustice, oppression and exclusion. It is a call to governments that respond to the voices of their people or, at the very least, are not intrinsically beholden to Israel.
The context of a tricontinental spirit of the twenty-first century
Fifty years after the Tricontinental Conference, the context in which internationalism operates has changed dramatically. While Cuba remained a reference throughout this time, and the Palestinian struggle remained a global symbol of resistance, resilience and hope for social justice struggles, in most of the countries that at that time supported the Palestinian people, the celebration of neoliberal trade and investment agreements superseded solidarity ties. Movements that once stood side by side with the Palestinian people, and received Palestinian support and training, have in the meantime come into power and favour Israeli investment over historical legacies.
These shifts in positioning of national movements and governments reflect the demise of anti-colonial aspirations as an achievable aim for states as well as economic transformations. Never before in history has transnational capital had such sophisticated institutions and regulatory frameworks protecting and implementing its interests. This does not mean the end of the role of state power but shapes it differently in the face of transnational capital, which is deeply linked with national governments and state institutions. Over the last decades, this understanding permeated movements across the globe, and therefore, they began dedicating significantly more focus in their struggles to targeting these corporate structures and interests.
Another landslide shift occurred with the growing space held by ‘emerging’ economies in Asia, Africa and Latin America in terms of world trade and global GDP. In 2015, the BRICS countries (Brazil, Russia, India, China and South Africa) alone accounted for a total nominal GDP of 16.92 trillion, equivalent to 23.1 per cent of global GDP, equal to the EU’s share. The BRICS share in global exports rose from eight per cent in 2000 to nineteen per cent in 2014. Over the last decades, transnational corporations formed based on capital in the BRICS countries. This theoretically gives emerging economies much greater potential for economic and political leverage. However, in fact this development has in no way overcome imperialist and colonial structures: The peoples of Africa, Asia and Latin America still pay the price for colonial and imperialist exploitation. Western states, including Israel, and their transnational corporations continue to reap the key profits from the system. The people in Asia, Africa and Latin America remain caught in proxy wars and brutally repressed whenever they rebel against the system. Israel in this context acts not only as an imperialist stronghold in West Asia but in the era of the ‘global war on terror’ has turned into the world’s most profitable laboratory and exporter of concepts and technology of repression and Orwellian systems of surveillance.
The Israeli military–industrial complex, which fuels and profits from Israel's wars of aggression and repression, has always been dependent on exports for its survival. Today it exports up to eighty per cent of its production. Between 2010 and 2015, eight of the ten major importers of Israeli weapons were in the global south, including India, Turkey, Singapore, Vietnam, Colombia and Brazil. In 2013, Israel exported almost US$4.8 billion worth of arms to Asia, Africa and Latin America, while only US$1.7 billion went to North America and Europe. Created after the 1967 war, the Israeli military industry’s first customers, which provided vital input to the industry, were Central and South American dictatorships that used weaponry to repress the liberation movements with which the PLO had cooperated since the Tricontinental Conference. Today, Israel continues to reap profits from repression and genocide in Latin America and beyond. In Rio de Janeiro, Israeli trainers pass on their knowledge to some of the most brutal police squads on the planet. Israel was directly involved in the Rwandan genocide. Security and military cooperation between India and Israel has exacerbated existing communal conflicts through anti-Muslim propaganda and provision of weapons and training to repress the Kashmiri movements in their quest for self-determination.
In addition, the global south is playing an ever-growing role in sustaining the Israeli economy via civilian trade. The 2008 economic crisis and victories of the growing Boycott, Divestment and Sanctions movement in Europe have both contributed to limiting the profits Israel can reap from economic relations with Europe. Over the last five years Israeli exports to the USA have shrunk by US$ 342 million, making the USA the Israeli market that shrunk more than any other in terms of net value of exported goods. Many EU countries have negative growth rates for imports from Israel as well. As a result, Israel’s financial establishment has looked towards the global south, especially Asia. Leo Leiderman, chief economist at Bank Hapoalim, stated: ‘Israeli exports to emerging markets account for about thirty-six per cent of total exports of goods, similar to emerging markets’ share of global trade...Asian markets, headed by its two giants, China and India, have paramount importance for Israeli export growth in the coming decades.’China is already Israel’s third biggest export destination and India the seventh. Both countries are currently negotiating free trade agreements with Israel. With 14.37 per cent of total Israeli imports (excluding diamonds) coming from China, Beijing ranks number one, even before the USA with 13.42 per cent, as a source of Israeli imports. The BRICS countries together are the source of 20.7 per cent of Israel’s imports. All BRICS countries have had rising annual growth rates of Israeli exports over the last five years. Today, Israeli exports to Asia exceed the value of exports to Europe. Among Israel’s top ten export items are medicine, cell phones, fertilizers and medical instruments – products for which Africa, Asia and Latin America offer huge markets.
Tricontinental solidarity today
This confers renewed tricontinental solidarity an unprecedented opportunity and responsibility. While these efforts and struggles cannot be disconnected from the struggles in North America and Europe the shared position and experience within Asia, Africa and Latin America defines a natural common ground.
One common ground can be found, as said, in the growing focus among social justice movements to hold transnational corporations to account for their infringements of people's rights. The struggles and victories of communities defending their lands and livelihood against mining corporations, such as Glencore International AG, mega-projects such as the Agua Zarca dam in Honduras, or multinationals destroying natural resources such as the struggle against Coca-Cola in India tell stories of popular uprisings successfully impeding, delaying or increasing the costs of construction and operations of transnational capital. Local protests, international pressure, legal struggles and efforts to defund these devastating projects by targeting the banks that give the loans to the corporations are shared tools developed by people to defend their rights and hold corporations and complicit governments responsible.
The Palestinian call for boycotts, divestment and sanctions – to stop impunity not only of the Israeli state but also of all corporations and institutions that profit from or sustain Israeli apartheid – mirrors such struggles. Victories against transnational corporations such as Veolia, which lost over US$20 billion in unsigned contracts and suffered several divestments from financial institutions before it quit operations in Israel, is one example. Another case in point is the growing number of victories against G4S. The global ‘security’ giant, now under pressure from movements across the globe, provides not only vital equipment for the Israeli prison system and military checkpoints but also is involved in mercenary services in Iraq and Afghanistan, and holds the security contracts to guard the Dakota Access Oil Pipeline against which indigenous people and social movements have launched a fierce struggle to defend their land and resource rights.
Probably the best example of how campaigns in support of the Palestinian struggle and its call for boycotts, divestment and sanctions target not only Israeli policies against the Palestinian people but also global structures of oppression is the ‘Stop Mekorot’ campaign. Israel’s national water corporation Mekorot is a key agent in the theft of Palestinian water, which simultaneously ethnically cleanses Palestinian communities by forcing them to abandon their living spaces due to lack of access to water and enables the colonisation of the land by Israeli illegal settlements, to which Mekorot provides water. Since it began international operations a decade ago, the company has profited from water privatisation across the globe. Its contract for a water desalination plant in La Plata, a province of Buenos Aires, which Palestine solidarity campaigners together with trade unionists defeated, highlights not only that the project violated the Palestinian BDS call but more importantly would have exported Israeli water apartheid to Buenos Aires, offering drinking water only to the rich districts and raising prices for consumers unnecessarily. In India, Israel’s proclaimed ‘support’ to the agricultural sector upon closer inspection also comes at a high to cost small- and medium-sized farmers. Israeli Elbit Imaging, for example, has been involved for many years in largely failed and damaging dairy projects, importing foreign breeds in order to industrialise and concentrate the sector under the control of large-scale agro-business enterprises. A report by the Global Forest Coalition on these practices tellingly concluded that: ‘Instead of blindly promoting foreign breeds, the government should support livestock keepers in improving their animals’ food, water and other conditions. The success of the Indian Gir breed in Brazil could provide some inspiration in this regard.’  Movements across the world are finding similar ways to target the oppressor, which unsurprisingly often end up to be the same – controlled by the same capital or employing similar methods.
Especially in the last decades, movements have tried to build new spaces in which to exchange ideas and experiences – ranging from the Intergalactic Encounters initiated by the Zapatista movement to the World Social Forums and other global campaigning networks, such as the Global Campaign to Reclaim Peoples Sovereignty, Dismantle Corporate Power and Stop Impunity. Yet, though we are all aware that only when we unite across the globe we can win against a global system of oppression, we far too often get caught up in the emergencies, contingencies and needs of our own struggles to be able to spare the necessary time to question how we can go beyond wishing success for the similarly oppressed.
It is essential that we understand our struggles as a common cause in order to accumulate the necessary forces to stand up against a system, which today is ever more blatantly showing its racist, exclusionary and oppressive nature. From the occupation of Palestine, to the devastating warfare all over West and Central Asia, to the rise of the right from Argentina to India and even in North America and Europe – we urgently need to identify our common ground and how to bring our efforts together into a powerful movement for land and resource rights, equality, self-determination and governing structures that respond to the people’s needs.
Remembering Fidel Castro’s legacy means reflecting on Cuba’s central contribution to the development of internationalism; today it is our responsibility to build an effective internationalism of the twenty-first century.
* Maren Mantovani is the coordinator for international relations of the Palestinian Stop the Wall Campaign and the Palestinian Land Defense Coalition
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 The Israeli 'security' company ISDS, for example, since 1982, trained police and military forces for dictatorships in Guatemala, Honduras, El Salvador and the Contras in Nicaragua. In the last decades it has entered the market of megaevents and holds a contract with the Rio 2016 Olympic Games. For many years, it has trained Rio de Janeiro's infamous military police to apply techniques in the favelas ‘just as we do in Gaza.
 Gross, Judah Ari (2016). ‘Records of Israeli arms sales during Rwandan genocide remain sealed’, Times of Israel, 12 April. http://www.timesofisrael.com/records-of-israeli-arms-sales-during-rwandan-genocide-to-remain-sealed; Konrad, Edo (2015). ‘The story behind Israel’s shady military exports’, +972, 22 November. http://972mag.com/who-will-stop-the-flow-of-israeli-arms-to-dictatorships/114080.
 SOS Kashmir (2011). ‘Indian Army using Israeli weapons in Kashmir’, Kashmir News, 15 July. https://soskashmir.wordpress.com/2011/07/15/indian-army-using-israeli-weapons-in-kashmir.
 Johnson, Jimmy (2010). ‘India employing Israeli oppression tactics in Kashmir’, The Electronic Intifada, 19 August. https://electronicintifada.net/content/india-employing-israeli-oppression-tactics-kashmir/8985.
 Simoes, Alexander (2014). Where does Israel export to? The Observatory of Economic Complexity. http://atlas.media.mit.edu/en/visualize/tree_map/hs92/export/isr/show/all/2014 (accessed 26 December 2016).
 Leiderman, Leo and Mozerafi, Irit (2015). ‘Israeli trade with emerging markets requires selectivity’, Globes, 7 June. http://www.globes.co.il/en/article-israeli-trade-with-emerging-markets-requires-selectivity-1001042422.
 ‘Imports, by Country of Origin, excl. Diamonds’. http://www.cbs.gov.il/hodaot2016n/16_16_109t4.pdf.
 Simoes, Alexander (2014). Where does Israel export to? The Observatory of Economic Complexity. http://atlas.media.mit.edu/en/visualize/tree_map/hs92/export/isr/show/all/2014 (accessed 26 December 2016).
 ‘Glencore International AG’, Environmental Justice Atlas. https://ejatlas.org/company/glencore-international-ag.
 The case has become even more famous after the brutal assassination of Berta Caceres, leader of the movement opposing the dam, on 3 March 2016, but is definitely not the only example. For more see: de Boissiere, Philippa and Cowman, Sian (2016). ‘For Indigenous Peoples, Megadams Are “Worse than Colonization”’, Foreign Policy in Focus, 14 March. http://fpif.org/indigenous-peoples-megadams-worse-colonization.
 Methews, Rohan D (2011). ‘The Plachimada Struggle against Coca-Cola in Southern India’, ritimo, 1 July. https://www.ritimo.org/The-Plachimada-Struggle-against-Coca-Cola-in-Southern-India.
 (2015). ‘BDS marks another victory as Veolia sells off all Israeli operations’, BDS Movement, 1 September. https://bdsmovement.net/news/bds-marks-another-victory-veolia-sells-all-israeli-operations.
 (2016). ‘UN World Food Programme Drops G4S’ BDS Movement, 6 December. https://bdsmovement.net/world-food-program-drops-g4s.
 Richard Norton-Taylor, Britain is at centre of global mercenary industry, says charity, The Guardian, 3 February 2016,
 Steve Horn, Security Firm Guarding Dakota Access Pipeline Also Used Psychological Warfare Tactics for BP, Desmog Blog,13 September, 2016 https://www.desmogblog.com/2016/09/13/g4s-dakota-access-pipeline-human-rights-bp
 (2014). ‘The agreement with Mekorot in La Plata (Argentina) has been suspended!’ Palestinian Grassroots Anti-apartheid Wall Campaign, 7 March. http://stopthewall.org/2014/03/07/agreement-mekorot-la-plata-argentina-has-been-suspended.
 Khadse, Ashlesha (2016). Dairy and Poultry in India – Growing Corporate Concentration, Losing Game for Small Producers. http://globalforestcoalition.org/wp-content/uploads/2016/12/india-case-study.pdf.
The 13 December surrender agreement between rebel groups and the regime of President Bashar al-Asad marked a turning point in the five-year long Syrian conflict. Opposition demands for Asad to step down through a transition process now seem impractical and unachievable, mainly because the government now controls most urban areas. Further, the agreement’s relative success will empower its chief negotiators, Turkey and Russia, to reshape the conflict to suit their converging interests, which increasingly sees a role for Asad. The regime will, however, find it difficult to establish its sovereignty over the entire country as Turkish troops and rebel groups backed by Turkey and certain Gulf states – including Saudi Arabia and Qatar – consolidate in more rural areas. Significantly, the regime is now more empowered to pursue its aims, even when these do not fully coincide with the interests of its Russian ally.
Announced late Tuesday, the agreement allowed for rebels and civilians trapped in besieged East Aleppo to evacuate to other rebel controlled areas as regime forces regain control of the remains of the city. This completes the main thrust of the regime’s latest strategy, which aimed at consolidating control of large population centres across the country’s east-west spine, confining the rebellion to rural provinces. The government now controls Damascus in the south, Aleppo in the north, and the central Homs and Hama provinces – the areas many refer to as ‘useful Syria’. This means that any transitional agreement that excludes Asad – as the opposition and Gulf states such as Saudi Arabia have been demanding – will not be possible, thus voiding a major demand of the rebellion.
Already, Qatar’s foreign minister, Mohammed bin Abdulrahman Al –Thani, referred to the Syrian opposition’s calls for negotiations without any preconditions regarding Asad’s role. Further, although rebel groups control parts of the Aleppo governorate, much of Idlib, as well as areas in the south, their armed capabilities have been severely weakened, due in part to fears about their links with Jabhat Fatah Al-Sham (formerly Jabhat Al-Nusra). This relationship has made some governments, especially the USA and Jordan (which train and coordinate activities with the Southern Front rebel group) wary. Funding, even from Saudi Arabia, has thus been reduced, and some states, especially USA and Jordan, prefer to conclude agreements with the Syrian regime around combatting the Islamic State group and preventing a spillover into Jordan and Lebanon.
Shifting geopolitical interests have also influenced the conflict. Following Turkey’s apology to Russia over its downing of a Russian fighter jet in November 2015, a rapid rapprochement has occurred between the two states, and a convergence on Syria is emerging. In September the two countries agreed on Turkish use of Syrian airspace, and in October Turkey aligned its stance on Jabhat Fatah Al-Sham closer to that of Moscow. It is probable that Turkey’s recent troop deployment into Syria was endorsed by Moscow. Russia and Syria have virtually ignored Turkey’s incursion into northern Syria and its efforts to form a buffer zone up to the IS-controlled town of Al-Bab – in return for it limiting its support for rebel groups in east Aleppo.
Ankara’s redeployment of thousands of rebel fighters from Aleppo and its August capture of Jarabulus, in the north of the Aleppo governorate, in was a key factor influencing the Syrian regime’s ability to reimpose its siege on Aleppo in September. In recent months Ankara has attempted to negotiate a rebel withdrawal from east Aleppo, initially only for Jabhat Fatah Al-Sham fighters, thus allowing some opposition governance in the city, and later, following regime objections, for civilians and fighters belonging to other groups. This deal was key to the rapid fall of east Aleppo, and to the fact that Turkish-backed forces rather than the Kurdish YPG will likely be prominent in attempts to drive IS from Al-Bab. Turkey and the other major regional power with troops in Syria, Iran, have also been discussing Syria in the past three months, and have agreed to protect the country’s territorial integrity.
Iran was not, however, directly involved in the surrender agreement negotiations, and has been accused by some as a spoiler, because of its demands that wounded civilians in the regime-supporting towns of Foua and Kefraya in Idlib governorate, which are besieged by rebels, also be evacuated, and by then supporting militia groups which have prevented many evacuation attempts from Aleppo. Iran has attempted a deal on these towns for the past eighteen months with Ahrar al-Sham. Its proposal was to engineer a population swap, with residents of these towns to be exchanged with Sunni residents of Zabadani and Madaya. This would consolidate the Shi'a presence in the area from Damascus to the Lebanese Beka'a Valley. Iran also demanded the bodies of slain militia fighters that it had sent to Syria, including members of Hezbollah in Lebanon, and Iraqi militias. It also demanded information about any fighters that had been taken prisoner.
The Turkey-Russia agreement stalled repeatedly, and although not part of the original Aleppo agreement, it now includes evacuation plans for Foua, Kefraya, and the parts of Madaya and Zabadani as well.Significantly, the USA and EU played no role in the recent surrender agreement, and initially were unaware of it.
With this reconfiguration in interests and power, Syria could be divided into zones of influence, allowing for some cooperation despite the divergences in the Russian, Iranian, and Turkish positions. The prominence of Jabhat Fatah Al-Sham in Idlib may complicate this plan, especially since Idlib directly borders Turkey, and because the group often coordinates with Ahrar al-Sham, which is supported by Turkey and some Gulf countries. Fissures in Ahrar al-Sham have already emerged, and a splinter group, Jaish Al-Ahrar, which is critical of the former’s reliance on Turkey and its supposed antagonism to Jabhat Fatah Al-Sham, has been formed.
With Aleppo back in Syrian government control, Asad has gained the upper hand in the conflict over control of the state. However, the conflict is not about to end; it will probably continue at a lower intensity as the regime conducts operations in Idlib and other rebel-controlled regions, and because rebel groups will alter their tactics in favour of smaller insurgent operations. Many opposition groups may be forced to accept a political solution as their position further weakens, but it is unlikely the regime will allow the opposition autonomy over areas it currently controls. Earlier versions of the surrender agreement, which would have allowed for the maintenance of the east Aleppo local council, and which was accepted by Moscow and Ankara, was discarded because it was rejected by the regime. In many places opposition to the regime from citizens will endure, and not all rebel groups will accept such an eventuality, arguing that they cannot allow all their sacrifices to amount to nought.
By Afro-Middle East Centre
Of the myriad political and social developments since the spectacular rise of the Islamic State group (IS) in mid-2014, it is perhaps the movement’s ability to exacerbate and capitalise on existing fractures between and within Syria and Iraq and regional powers Turkey and Iran that has dramatically altered the nature of politics in the region. IS can be perceived as less a cause than a symptom of the failure of state-building processes in Iraq since the US invasion and occupation in 2003. The operation to retake Mosul from IS began one month ago, but as alliances and rivalries are ever-shifting in the fight against IS, Baghdad has attempted to prevent Turkey from participating in the US-Iraqi campaign to recapture the strategic city.
Mosul, where 5000 IS fighters are based, has historically been an important crossroad for trade and ideas, and was once a major cultural centre of the Islamic world. While it and the Syrian city of Aleppo share an Ottoman past that remains a point of cultural affiliation with Turkey for the people of northern Syria and northern Iraq, Mosul has been the external frontier of Turkey’s war against the Kurdish Worker’s Party (PKK) – whose power and access to arms . That area in Iraq is also a centre for Turkish military support to Ankara’s ally, the Kurdish Regional Government (KRG) of Masoud Barzani.
Turkey’s military goes back to the early 1990s when a brutal civil war broke out between two Kurdish political groups – Barzani’s Kurdish Democratic Party (KDP) and the Patriotic Union of Kurdistan (PUK) under Jalal Talabani. Barzani has always been wary of the latter’s close relations with Baghdad and Tehran, and gave Ankara the green light to pursue PKK militants in the Kurdish area of Iraq under KDP control. His difficult relations with PKK leaders enabled a closer relationship between Erbil and Ankara. In the past few years, Turkey’s military has also had military training programmestohelp professionalise the KRG’s Peshmerga forces.
From the end of 2015, Baghdad began vocalising its desire to limit the Turkish presence in Iraq, throwing the generally stable relationship between the KRG and Ankara into stark relief. As the region saw greater Kurdish political consolidation as a result of the two-year battle against IS, Barzani has become less willing to sacrifice himself for the Turkish cause. In December 2015, the Iraqi president, Haider al-Abadi, under pressure from sectarian networks in Baghdad, called on the United Nations Security Council – with Russia’s assistance – to force Turkey to withdraw its troops from Iraqi territory.
Turkey’s refusal was met with attacks on its operating bases, for which both IS and Iraq’s Kata'ib Hizbullah claimed responsibility. The Iraqi government’s most recent refusal to allow Turkey to join the Mosul operation that beganmid-October was reluctantly accepted by Turkey, and it is believed that an agreement between the two limited Turkey’s combatant role to air support in exchange for it maintaining its bases in northern Iraq, particularly the key Bashiqa base.
Arguing there was a possibility of a spillover of the Mosul operation through the porous Iraq-Turkey border, Turkish Armed Forces and combat vehicles amassed in the border town of , prompting Abadi to threaten: ‘If a confrontation happens we are ready for it. We will consider [Turkey] an enemy, and we will deal with it as an enemy.’ Ankara’s response was as undiplomatic, with its foreign minister, Mevlut Cavusoglu, publicly challenging Abadi: ‘If you have the strength, why did you surrender Mosul to terror organisations?’ and ‘If you are so strong, why has the [PKK] occupied your lands for years?
Cavusoglu’s comment exposed a sore point for the Turks: the uncomfortable reality that its strategic relationship with the USA is being tested by the shift towards ethnic and sectarian politics in the region, which, since the rise of IS, has favoured the Kurds (including those in the PKK and the Syrian PYG that Turkey regards as an existential threat) and Iranian-backed Shi'a groups in Iraq. The institutionalisation of ethnicity as a means to attain power is largely a by-product of state reconfiguration initiated by the USA during its Iraqi occupation, when it distributed political power and financial support on ethnic and sectarian bases. Whereas Turkey could previously rely on its NATO membership and on the KRG to check the PKK’s influence, rapprochement between the USA and Iran, Russia’s entry into the Syrian conflict, and the legitimation of the Syrian PYD (a PKK ally) have limited Turkey’s ability to decisively influence what happens on its borders. The role of the Shi'a militia, the Popular Mobilisation Units (PMU), and abuses by some Kurdish groups against Sunnis have allowed Ankara to argue that Turkmen and Sunni Arabs in Tal Afar, in particular, will be targeted in revenge attacks, and thus Turkish presence is necessary.
Turkey’s key strategic objective is to limit PKK activities in northern Iraq, and to prevent the armed group from joining with the PMU in Sinjar, east of Mosul, which would create a long stretch of territory connecting the Syrian YPG with the PKK in Iraq. Additionally, Turkey has lost prestige as the guardian of Mosul, Sulaymaniye and Kirkuk – regions which historically had significant numbers of Iraqi Turkmen. These areas were ceded by the Ottomans after the breakup of the Ottoman empire following World War I, a sore point for Turkish nationalists like Kemal Atatürk and his successors.
Apart from , Turkey also regards Mosul, together with Aleppo in Syria, as the last outpost of the cultural and historical connection between Iraq, Syria and Turkey. Should the city be destroyed, three territories considered ‘disputed territories’ between Baghdad and the KRG will be at the centre of the rebuilding of a new Iraq and, by extension, a new Middle East. This uncertain outcome requires greater attention. Where will IS members seek refuge if not in the porous border region? Who will be responsible for millions of Iraqi refugees? How long can a military battle against IS (or the PKK) be sustained without completely engulfing the region in protracted warfare? To what extent can the politics of sectarianism be exploited at the expense of inclusive and democratic states in the Middle East?
With the operation against IS in Raqqa, Syria, underway at the same time, and with the YPG playing a key role there, Turkish anxieties about the creation of a Kurdish entity on its doorstep are heightening. Should IS continue to be tenacious,and should the war stretch out longer than planned, Turkey may enter the conflict regardless of the Iraqi position. This could no doubt raise serious legal questions, but would also signal a sharp change in the relations between Ankara and both Baghdad and Washington. ISmight be on its last legs as a pseudo-state, but there is little doubt that it has reshaped the nature of the state and politics in the Middle East for some time to come.
By Thabo Mbeki
Analysing two recent key reports issued in the UK regarding the 2011 NATO assault on Libya, former president, Thabo Mbeki, argues that regime change in Libya was always the objective of western countries, and the protection of civilians was not as relevant as claimed. He continues by arguing for a stronger anti-imperialist role that African countries should play in confronting powerful western states.
Twice, in less than a decade, the UK has been involved in two wars of aggression which have caused grave disasters in countries of the South. The first of these was the US-led invasion of Iraq in 2003, followed eight years later, in 2011, by the NATO aggression against Libya. The first took place under a Labour Party government, led by Prime Minister Tony Blair. The second took place under a Conservative Party-led government, headed by Prime Minister David Cameron.
Recently, in a period of just over two months, the UK published two reports which discussed these two wars of aggression. The first, published on 6 July, is ‘The Report of the Iraq Inquiry’ (the Chilcot Report), released by a committee of inquiry chaired by Sir John Chilcot. The second, published 14 September, is ‘Libya: Examination of intervention and collapse and the UK’s future policy options’ (HCFAC Report), prepared by the House of Commons Foreign Affairs Committee, and chaired by Conservative MP Crispin Blunt.
These important reports tell a story that is radically different from the misleading propaganda which the UK governments had sought to implant in the public mind, both in the UK and globally, to justify actions which practically amounted to crimes against humanity. In both Iraq and Libya, the UK governments presented themselves as knights in shining armour whose military intervention would bring democracy and human rights to peoples who had suffered for decades under brutal dictatorships. Accordingly, they sought to achieve popular acclaim throughout the world as the liberators to whom all humanity owed a debt of immense gratitude.
However, they also needed additional arguments to justify their acts of aggression. In the case of Iraq, the UK government argued that the Iraqi government possessed weapons of mass destruction which posed a present and immediate security threat to the UK and the peoples of the world, and that these weapons had to be eliminated. The UK claimed it had firm intelligence that these were biological and chemical weapons and that Iraq would develop nuclear weapons, all of which weapons could also fall into the hands of terrorist groups.
In the case of Libya, the UK made strong assertions that the Libyan government, led by the late Muammar Gaddafi, was about to conduct a frightful massacre of large numbers of Libyan civilians to perpetuate itself in power. Supported by a resolution of the UN Security Council, it joined various NATO member states and some Arab Gulf states to conduct a sustained military campaign against the Libyan government on the pretext that it was carrying out a noble Responsibility to Protect (R2P) large numbers of innocent civilians.
In this article I will discuss the matter of the war against Libya and, among others, draw attention to the important findings of the HCFAC Report. But first we must reflect briefly on the findings in the Chilcot Report concerning the war of aggression against Iraq.
It is now common knowledge that the claim by the UK and US governments that Iraq had weapons of mass destruction was entirely false. In this regard, when John Chilcot presented his report he said: ‘The judgements about the severity of the threat posed by Iraq’s weapons of mass destruction – WMD – were presented with a certainty that was not justified…The Joint Intelligence Committee should have made clear to Mr Blair that the assessed intelligence had not established “beyond doubt” either that Iraq had continued to produce chemical and biological weapons or that efforts to develop nuclear weapons continued…
‘It is now clear that policy on Iraq was made on the basis of flawed intelligence and assessments. They were not challenged, and they should have been.’
Chilcot continued: ‘The vision for Iraq and its people – issued by the US, the UK, Spain and Portugal, at the Azores Summit on 16 March 2003 – included a solemn obligation to help the Iraqi people build a new Iraq at peace with itself and its neighbours. It looked forward to a united Iraq in which its people should enjoy security, freedom, prosperity and equality with a government that would uphold human rights and the rule of law as cornerstones of democracy.’
However, Chilcot said, the practical outcome was that, ‘The invasion and subsequent instability in Iraq had, by July 2009, also resulted in the deaths of at least one hundred and fifty thousand Iraqis – and probably many more – most of them civilians. More than a million people were displaced. The people of Iraq have suffered greatly.’
The UK Government, thus, with its leading US partner, went to war against Iraq on the basis of a complete fabrication. Iraq neither had weapons of mass destruction nor did it pose any security threat to the UK or anybody else. The UK government had promised the people of Iraq peace, democracy, human rights and prosperity. Instead, its military intervention brought longlasting suffering to the Iraqi people, including continuing war, instability and further impoverishment.
The intervention affected the entire Middle East region negatively, and resulted in an increased threat to international peace and security, including through the emergence of the terrorist Islamic State group (IS), which has developed into a genuine global security threat.
With regard to these matters the Chilcot Report says: ‘The Iraq of 2009 certainly did not meet the UK’s objectives as described in January 2003: it fell far short of strategic success. Although the borders of Iraq were the same as they had been in 2003, deep sectarian divisions threatened both stability and unity. Those divisions were not created by the coalition, but they were exacerbated by its decisions on de‑Ba'athification and on demobilisation of the Iraqi Army, and were not addressed by an effective programme of reconciliation…
‘In 2008, Transparency International judged Iraq to be the third most corrupt country in the world, and in mid‑2009 the Assessments Staff judged that Government ministries were “riddled with” corruption…
‘By 2009, it had been demonstrated that some elements of the UK’s 2003 objectives for Iraq were misjudged. No evidence had been identified that Iraq possessed weapons of mass destruction, with which it might threaten its neighbours and the international community more widely. But in the years between 2003 and 2009, events in Iraq had undermined regional stability, including by allowing al-Qa'ida space in which to operate and unsecured borders across which its members might move.’
When he introduced the report, Chilcot said: ‘We have sought to set out the Government’s actions on Iraq fully and impartially. The evidence is there for all to see. It is an account of an intervention which went badly wrong, with consequences to this day…The Government failed to achieve its stated objectives.’
Let us now look at the war of aggression against Libya. Mass demonstrations started in Tunisia in December 2010. These resulted in the overthrow in January 2011 of the government led by President Zine El Abidine Ben Ali. The related mass uprising in Egypt started in January 2011, leading to the overthrow, a month later, of the government led by President Hosni Mubarak.
Similar demonstrations started in the city of Benghazi in Eastern Libya on 15 February 2011, and developed into an armed uprising. The Libyan government launched its counter-offensive against this armed uprising in March 2011 and quickly advanced towards Benghazi.
On 12 March 2011 the League of Arab States (LAS) called on the UN Security Council (UNSC) to impose a ‘no-fly zone’ over Libya. The UNSC adopted Resolution 1973 five days later on 17 March, immediately imposing a ‘no-fly zone’ and calling on member states to ‘use all necessary measures’ to protect the civilians whom both the LAS and the UNSC claimed faced massacre by the armed forces of the Libyan government.
Western countries, led by France, the UK and the USA, started bombing Libya on 19 March, two days after the adoption of Resolution 1973. Ultimately, a National Transitional Council (NTC) emerged as the alternative authority to the government of Libya. The UN recognised this NTC as Libya’s governing authority on 16 September, 2011. By the end of August 2011, the combined and sustained military offensive by NATO, the Arab League and the Libyan militia had largely placed control of Tripoli and other cities in the hands of the NTC.
Finally, Gaddafi was captured and assassinated by his armed opponents on 20 October 2011. The NTC declared victory on 23 October and NATO officially ended its deceptively named ‘Operation Unified Protector’ on 31 October 2011, seven months after it had started its bombing campaign.
Much earlier, on 21 March, two days after the start of the NATO bombing, the UK House of Commons had overwhelmingly approved the involvement of the UK in the war against Libya with 557 votes in favour and thirteen against. When UK Prime Minister David Cameron addressed the House of Commons he said: ‘It’s quite clear the population of Benghazi was under heavy attack. Civilians were being killed in significant numbers (and) an exodus from the town had begun. There was an urgent need to stop the slaughter…A successful outcome is the enforcement of the will of the UN, which is a cease of attacks on civilians.’
Supporting the involvement of the UK in the war of aggression, the leader of the opposition Labour Party, Ed Milliband, said: ‘We have to make a judgement about our role in the world and our duty to others. Where there is just cause, where there is reasonable action that can be taken, where there is international consent – are we really saying we should be a country that stands by and does nothing?’
When Cameron made his statement about civilians who were allegedly being slaughtered, he was echoing what French Foreign Minister Alain Juppé had said when he introduced Resolution 1973 at the UNSC, that ‘the situation on the ground (with regard to civilians) is more alarming than ever, marked by the violent re-conquest of cities…We have very little time left – perhaps only a matter of hours.’
The chilling scare that was used to justify the adoption of Resolution 1973 was that the Government of Libya, led by Muammar Gaddafi, was about to massacre countless numbers of civilians especially in Benghazi, where the anti-government demonstrations had started.
Resolution 1973 itself said, ‘[T]he widespread and systematic attacks currently taking place in the Libyan Arab Jamahiriya against the civilian population may amount to crimes against humanity’, and it ‘authorised Member States…to protect civilians and civilian populated areas under threat of attack in the Libyan Arab Jamahiriya, including Benghazi.’
One of the thirteen members of the UK House of Commons who voted against going to war against Libya was Jeremy Corbyn, now leader of the Labour Party. Explaining his position, he said: ‘I do not know the politics, the aims, the ambitions, or anything else of the people in Benghazi…I think we should be slightly cautious about going to war on behalf of a group of people who we do not know, understand or are aware of what their aims actually are. Many of them were ministers in the Gaddafi government only three weeks ago.’
Another was Caroline Lucas, member of parliament for the Greens. Showing great understanding of the situation, she said: ‘Given the West’s colonial past, its history of adventurism and support for dictatorship in the region, its failure to enforce UN resolutions in Palestine and the legacy of the invasion of Iraq in 2003, I think its motives in Libya will always be in doubt.’
Libya was one of the important member states of the African Union (AU), one of the five, including Egypt, Algeria, Nigeria and South Africa, which were levied a higher subscription than other member states to finance the budget of the Union. It was therefore inevitable that the AU would take steps to help resolve the conflict in Libya which started in February 2011.
On 23 February 2011, eight days after the start of demonstrations in Benghazi, the AU Peace and Security Council (AU PSC) adopted a decision calling for respect for the rights of the people of Libya to ‘democracy, political reform, justice and socio-economic development’, and condemned ‘the indiscriminate and excessive use of force and lethal weapons against peaceful protesters’. It also resolved to send ‘a mission of Council to Libya to assess the situation on the ground’. Unfortunately, this did not take place.
On 10 March, almost three weeks after its 23 February meeting, the AU PSC decided to constitute a five-nation ‘AU Ad Hoc High Level Committee on Libya’, made up of African heads of state and government, mandated to intervene to resolve the Libyan conflict. The committee was directed to ‘facilitate an inclusive dialogue among the Libyan parties on the appropriate reforms’, which would lead to the peaceful resolution of the Libyan crisis. The AU PSC also expressed its ‘rejection of any foreign military intervention, whatever its form’.
A mere week later the UN Security Council adopted its Resolution 1973, which prescribed exactly the ‘foreign military intervention’ which Africa had rejected. One of the immediate consequences of this was that the UN refused to allow the AU Ad Hoc Committee to visit Tripoli and Benghazi on 18 and 19 March 2011 to promote a peaceful resolution of the Libyan crisis, precisely to reduce the loss of human lives while promoting democratic rule in Libya. This meant that had the African peacemakers flown to Libya to carry out their mission, they stood the danger of their planes being shot down by NATO forces.
This was despite the fact that the UNSC was fully aware of the decisions which had been taken by the AU PSC on 10 March, a full seven days before the adoption of Resolution 1973. Indeed, Resolution 1973 itself said that it ‘took note’ of ‘the communiqué of the Peace and Security Council of the African Union of 10 March, 2011 which established an ad hoc High-Level Committee on Libya.’ This Resolution also took note of the 12 March decisions of the Arab League calling for a ‘no-fly zone’ and proceeded to refer to the Arab League as one of the inter-state institutions the UNSC expected to implement its Resolution. It made no similar reference to the African Union.
Indeed, the coalition of aggression against Libya made it a point constantly to mention the Arab League as some kind of mandating power for its actions and took great care never to mention the African Union as a player in terms of resolving the Libyan conflict. For instance, in a 15 April 2011 Joint Letter the principal sponsors of the aggression against Libya, French President Sarkozy, British Prime Minister Cameron and US President Obama, wrote: ‘We must never forget the reasons why the international community was obliged to act in the first place. As Libya descended into chaos with Colonel Gaddafi attacking his own people, the Arab League called for action. The Libyan opposition called for help. And the people of Libya looked to the world in their hour of need.’ They consciously excluded all mention of the African Union decisions taken specifically to help the people of Libya peacefully to resolve their differences.
In an article on 2 April 2011, entitled ‘Libya and African Self-Determination’, I said: ‘The marginalisation of Africa in terms of helping to determine the future of Libya paid absolutely no regard to the fact that failure to end the Libyan crisis correctly will have a long term impact on the Continent and especially the countries of North Africa and the Sahel, such as Sudan, Chad, Niger and Mali, with little effect on the Western
‘Nobody knows how many Libyans will be killed and injured as a result of the on-going civil war in that country and the evolving military intervention of the West, which has unquestionably evolved into support for the armed insurrection in Libya to achieve the objective of regime change.
‘The reality is that the Libyan conflict will claim many casualties. Because the space has been closed for the Libyans to sit together to decide their future, it is almost guaranteed that for many years Libya will experience sustained and debilitating instability, whoever emerges “victorious” from the current armed conflict.’
I also said in that article that the NATO aggression against Libya, marketed as an intervention to save civilian lives, had ‘unquestionably evolved into support for the armed insurrection in Libya to achieve the objective of regime change.’
By contrast, in his 21 March 2011 speech at the House of Commons, Cameron said: ‘In Iraq, we had been prepared to go into a country, to knock over its government and put something else in its place – that is not the approach we are taking here (with regard to Libya).’ Here Cameron made a solemn commitment to the people of the UK that the UK and NATO military intervention in Libya had nothing to do with regime change, as had been the case when the US, the UK and others invaded Iraq.
I quoted earlier from the joint letter which Sarkozy, Cameron and Obama published on 15 April 2011 in three newspapers – The Times of London, the International Herald Tribune and the French Le Figaro. This was only three weeks after Cameron had addressed the UK House of Commons.
In the joint letter the authors say: “Our duty and our mandate under UN Security Council Resolution 1973 is to protect civilians, and we are doing that. It is not to remove Gaddafi by force. But it is impossible to imagine a future for Libya with Gaddafi in power…It is unthinkable that someone who has tried to massacre his own people can play a part in their future government…
‘And because he has lost the consent of his people any deal that leaves him in power would lead to further chaos and lawlessness… (After NATO and its coalition partners have succeeded to protect the civilians) then a genuine transition from dictatorship to an inclusive constitutional process can really begin, led by a new generation of leaders. For that transition to succeed, Colonel Gaddafi must go, and go for good.’
This is a glaring and unashamed example of double-speak.
In the letter, Sarkozy, Cameron and Obama wrote that they had not intervened in Libya ‘to remove Gaddafi by force’; yet in the same letter they said, ‘Colonel Gaddafi must go, and go for good’.
This manner of proceeding confirmed exactly the point made by British MP Caroline Lucas when she said, ‘Given the West’s colonial past, its history of adventurism…I think its motives in Libya will always be in doubt.’
The joint letter was published exactly three weeks after Cameron had told the House of Commons that, unlike in Iraq in 2003, NATO and its Arab League partners were not pursuing any objective in Libya ‘to knock over its government and put something else in its place’.
The UK House of Commons Foreign Affairs Committee (HCFAC) had to consider all the foregoing when it conducted its inquiry and prepared its Report on ‘Libya: Examination of intervention and collapse and the United Kingdom’s future policy options’. Long before the HCFAC began its work on Libya in 2015, there were others who commented on some of the matters it considered.
For instance in a ‘Report on Libya’ published on 6 June 2011, the International Crisis Group (ICG) said: ‘Much Western media coverage has from the outset presented a very one-sided view of the logic of events, portraying the protest movement as entirely peaceful and repeatedly suggesting that the (Libyan) regime’s security forces were unaccountably massacring unarmed demonstrators who presented no real security challenge. This version would appear to ignore evidence that the protest movement exhibited a violent aspect from very early on…
‘Likewise, there are grounds for questioning the more sensational reports that the regime was using its air force to slaughter demonstrators, let alone engaging in anything remotely warranting use of the term “genocide”.’
Similar observations had been made on 14 April 2011 by Professor Alan K Kuperman, writing in The Boston Globe. In an article headed ‘False pretense for war in Libya’, he said: ‘Evidence is now in that President Barack Obama grossly exaggerated the humanitarian threat to justify military action in Libya. The president claimed that intervention was necessary to prevent a ‘bloodbath’’ in Benghazi, Libya’s second-largest city and last rebel stronghold.
‘Obama insisted that prospects were grim without intervention… Thus, the president concluded, “preventing genocide’’ justified US military action. But intervention did not prevent genocide, because no such bloodbath was in the offing. To the contrary, by emboldening rebellion, US interference has prolonged Libya’s civil war and the resultant suffering of innocents…’
The ICG Report also said: ‘The prospect for Libya, but also North Africa as a whole, is increasingly ominous, unless some way can be found to induce the two sides in the armed conflict to negotiate a compromise allowing for an orderly transition to a post-Qaddafi, post-Jamahiriya state that has legitimacy in the eyes of the Libyan people. A political breakthrough is by far the best way out of the costly situation created by the military impasse.
‘Instead of stubbornly maintaining the present policy and running the risk that its consequence will be dangerous chaos, (the international community) should act now to facilitate a negotiated end to the civil war and a new beginning for Libya’s political life…
‘To insist that, ultimately, [Qadhdhafi] can have no role in the post-Jamahiriya political order is one thing, and almost certainly reflects the opinion of a majority of Libyans as well as of the outside world. But to insist that he must go now, as the precondition for any negotiation, including that of a ceasefire, is to render a ceasefire all but impossible and so to maximise the prospect of continued armed conflict.
‘To insist that he both leave the country and face trial in the International Criminal Court is virtually to ensure that he will stay in Libya to the bitter end and go down fighting.’
In 2011 there were many throughout the world, including those who considered themselves genuine friends of the Libyan people, who did not believe the ‘dissident’ voices of those such as the ICG and Kuperman. These, like the coalition of aggression against Libya, had elected to ignore the earnest African demand to ‘(reject) any foreign military intervention (in Libya), whatever its form’.
The UK HCFAC made its own determination relating to many of the matters which had been raised by the African Union and others, including the ICG and Kuperman. It decided that the scary story of the impending massacre of unarmed civilians in Benghazi and elsewhere, told to justify the adoption of UNSC Resolution 1973 and the subsequent NATO and Arab League aggression against Libya, had no foundation.
The HCFAC says: ‘Despite his rhetoric, the proposition that Muammar Gaddafi would have ordered the massacre of civilians in Benghazi was not supported by the available evidence. The Gaddafi regime had retaken towns from the rebels without attacking civilians in early February 2011…
‘The disparity between male and female casualties (after the Government had restored its authority in Tripoli) suggested that Gaddafi regime forces targeted male combatants in a civil war and did not indiscriminately attack civilians. More widely, Muammar Gaddafi’s 40-year record of appalling human rights abuses did not include large-scale attacks on Libyan civilians.
‘On 17 March 2011, Muammar Gaddafi announced to the rebels in Benghazi, “Throw away your weapons, exactly like your brothers in Ajdabiya and other places did. They laid down their arms and they are safe. We never pursued them at all.” Subsequent investigation revealed that when Gaddafi regime forces retook Ajdabiya in February 2011, they did not attack civilians. Muammar Gaddafi also attempted to appease protesters in Benghazi with an offer of development aid before finally deploying troops…
‘Alison Pargeter (an expert academic who assisted the HCFAC) concurred with Professor Joffé’s judgment on Muammar Gaddafi’s likely course of action in February 2011. She concluded that there was no “real evidence at that time that Gaddafi was preparing to launch a massacre against his own civilians”.’
The HCFAC went on to say: ‘An Amnesty International investigation in June 2011 could not corroborate allegations of mass human rights violations by Gaddafi regime troops. However, it uncovered evidence that rebels in Benghazi made false claims and manufactured evidence. The investigation concluded that much Western media coverage has from the outset presented a very one-sided view of the logic of events, portraying the protest movement as entirely peaceful and repeatedly suggesting that the regime’s security forces were unaccountably massacring unarmed demonstrators who presented no security challenge…
‘Subsequent analysis suggested that the immediate threat to civilians was being publicly overstated and that the reconquest of cities had not resulted in mass civilian casualties…In the course of his 40-year dictatorship Muammar Gaddafi had acquired many enemies in the Middle East and North Africa, who were similarly prepared to exaggerate the threat to civilians…
‘In short, the scale of the threat to civilians was presented with unjustified certainty. US intelligence officials reportedly described the intervention as “an intelligence-light decision”.’
In other words, in the view of US intelligence, the military intervention by NATO and its Arab League partners was based on very scanty intelligence.
Thus, the HCFAC determined that the propagation of the fabrication by Prime Minister Cameron and the UK Government that there was a dire and immediate threat to civilians, which justified the military intervention, was based on a number of negative factors.
One of these was that the UK had limited understanding of Libyan reality, with ‘the UK’s understanding of Libya before February 2011 (being) constrained by both resources and the lack of in-country networks for UK diplomats and others to draw on’. Another was that the UK government did not make a proper analysis of the Libyan rebellion. Yet another is that it did not verify the threat to civilians actually posed by the Libyan government.
The UK government happily accepted the false assertions made by Libyan emigrés and Arab Gulf countries about the massacre of civilians by the Gaddafi government, despite the self-serving nature of these assertions by people and governments which were hostile to that regime. It selectively used particular elements of what Gaddafi said, deliberately took these at face value, and used what was mere rhetoric to justify its invasion of Libya. It failed to identify the Islamist terrorist element involved in the armed uprising against the Libyan government. It willingly accepted the lead given by France, at all times ready to react to developments manipulated by France, without setting its own strategic goals.
The HCFAC says that, altogether, the strategy of the UK government was ‘founded on erroneous assumptions and an incomplete understanding of the evidence’. It also exposes the bare lie that France led the offensive to intervene in Libya because of its serious, well-meaning and passionate concern to protect innocent civilians who stood the danger of being massacred by the Gaddafi government.
It says that ‘on 2 April 2011, Sidney Blumenthal, adviser and unofficial intelligence analyst to the then United States Secretary of State Hillary Clinton, reported [his] conversation with French intelligence officers to the Secretary of State’. Blumenthal reported that these officers said that President Sarkozy’s suggestions immediately to conduct a military campaign against Libya ‘were driven by the following issues:
In this regard, the HCFAC says: ‘The sum of four of the five factors identified by Sidney Blumenthal equated to the French national interest. The fifth factor was President Sarkozy’s political self-interest.’
None of the French objectives explained by French intelligence officers, and known to Hillary Clinton, and therefore to President Obama and the US government, had anything to do with protecting Libyan civilians. They were focused on promoting French imperial interests in Africa, consistent with the historic neocolonial French policy of Francafrique. This explains why the USA went along with the French proposal, supported by the UK, to commit an act of aggression against Libya.
It is necessary to explain this conclusion. The HCFAC explains that the US government was reluctant to support the French and UK proposal to conduct a military operation against Libya. It says:
‘[Former UK Defence Secretary] Dr Fox told us that “the US were quite reticent about getting involved militarily and tying up assets in a Libyan campaign.” [Former UK Foreign Secretary] Lord Hague added that “there were divisions in the American Government” and that the UK and France influenced the United States to support Resolution 1973...Former US Ambassador to NATO, Ivo Daalder, pointed out:
“Cameron and Sarkozy were the undisputed leaders, in terms of doing something. The problem was that it wasn’t really clear what that something was going to be. Cameron was pushing for a no-fly zone, but in the US there was great scepticism. A no-fly zone wasn’t effective in Bosnia, it wasn’t effective in Iraq, and probably wasn’t going to be effective in Libya. When President Obama was confronted with the argument for a no-fly zone, he asked how this was going to be effective. Gaddafi was attacking people. A no-fly zone wasn’t going to stop him. Instead, to stop him we would need to bomb his forces attacking people.”
‘The United States was instrumental in extending the terms of Resolution 1973 beyond the imposition of a no-fly zone to include the authorisation of “all necessary measures” to protect civilians. In practice, this led to the imposition of a “no-drive zone” and the assumed authority to attack the entire Libyan Government command and communications network.’
Sarkozy and Cameron sought US support because they knew they could not get the UN Security Council resolution they needed without this support. They also knew that they could not use NATO in the aggression against Libya without the agreement of the USA. In practice, despite the repeated claims that the USA accepted the leadership of France and the UK with regard to the aggression against Libya, the fact is that the USA led the NATO military offensive.
It is true that the US government was not particularly in favour of the military intervention against Libya. Among others this led to the open division on the matter between the US State and Defense Departments, led by Secretaries Clinton and Robert Gates respectively, with Clinton in favour of the intervention, which Gates opposed. In the end, Clinton won the battle. This was because the State Department understood the reality that France was determined to intervene in Libya to promote its imperial interests in Africa. This would not serve the strategic interests of the US with regard to increasing its own influence in Africa, necessarily against France in certain instances.
The US State Department, and Clinton, understood that the only way in which the USA could promote its own interests would be to join the inevitable aggression against Libya, thus asserting its own imperial leadership in practical ways and thereby subverting the French strategic objectives which Sidney Blumenthal had explained to Clinton. It was in this context that Clinton sought to take US ownership of the outcome of the aggression against Libya when, in a very distasteful display of celebration of the death of the despised, she said of the assassination of Muammar Gaddafi, ‘We came, we saw, he died!’, and burst out in a macabre instance of merriment.
Later, when events in Libya and the disastrous consequences of the 2011 NATO aggression could no longer be presented as a merry outcome, President Obama felt free to denounce the disastrous outcome, blaming it on the ‘Europeans’ to whom he had earlier cunningly given leadership, and described it in earthy language as ‘a shit show’. ‘In April 2016,’ the HCFAC said, ‘United States President Barack Obama described post-intervention Libya as a “shit show”. It is difficult to disagree with this pithy assessment.’
As part of the scaremongering to justify both the adoption of Resolution 1973 and the subsequent NATO and Arab League aggression against Libya, much was made of the use of murderous ‘African mercenaries’ by the Gaddafi regime.
The HCFAC notes: ‘Alison Pargeter told us that
“the issue of mercenaries was amplified. I was told by Libyans here, ‘The Africans are coming. They’re going to massacre us. Gaddafi’s sending Africans into the streets. They’re killing our families.’ I think that that was very much amplified. But I also think the Arab media played a very important role here. Al-Jazeera in particular, but also al-Arabiya, were reporting that Gaddafi was using air strikes against people in Benghazi and, I think, were really hamming everything up, and it turned out not to be true.”’
At the same time, the UK government ignored the real threatposed by Islamist jihadists, about which the HCFAC said:
‘Intelligence on the extent to which extremist militant Islamist elements were involved in the anti-Gaddafi rebellion was inadequate. Former [UK] Chief of the Defence Staff Lord Richards of Herstmonceux…[said] that “a quorum of respectable Libyans were assuring the Foreign Office” that militant Islamist militias would not benefit from the rebellion. He acknowledged that “with the benefit of hindsight, that was wishful thinking at best.”’
The report then notes: ‘The possibility that militant extremist groups would attempt to benefit from the rebellion should not have been the preserve of hindsight. Libyan connections with transnational militant extremist groups were known before 2011, because many Libyans had participated in the Iraq insurgency and in Afghanistan with al-Qaeda.’
The report continues: ‘We asked Dr Fox whether he was aware of any assessment of the extent to which the rebellion involved militant Islamist elements. He replied that he did not “recall reading anything of that nature.” It is now clear that militant Islamist militias played a critical role in the rebellion from February 2011 onwards.’
This was exactly the point which the British MP, Jeremy Corbyn, had made when he said ‘caution’ was necessary before rushing to support the insurrectionists in Benghazi whose ‘politics, aims, ambitions, or anything else’ were not known. The reality, therefore, is that the HCFAC suggests that so determined were the UK and its NATO and Arab League allies to defeat the Gaddafi government as their strategic enemy that they were ready to cooperate with what it calls ‘militant Islamist elements’, the IS group which has played a major role in the destabilisation of Libya and the African countries in the Sahel.
Correctly, the HCFAC draws attention to Resolution 1973 calling for action to secure the weapons which had been accumulated by the Libyan government over a number of decades. ‘Lord Richards told us that it was a policy objective to secure ex-Gaddafi regime weapons and ammunition in the aftermath of the civil war. However, he could not remember the UK “doing anything to achieve it”.’
HCFAC adds: ‘The United Nations Panel of Experts appointed to examine the impact of Resolution 1973 identified the presence of ex-Libyan weapons in Algeria, Chad, Egypt, Gaza, Mali, Niger, Tunisia and Syria. The panel concluded that “arms originating from Libya have significantly reinforced the military capacity of terrorist groups operating in Algeria, Egypt, Mali and Tunisia.” In the 2010-15 Parliament, our predecessor Committee noted that the failure to secure the Gaddafi regime’s arms caches had led to “a proliferation of small arms and light weapons, and some heavier artillery, across North and West Africa”. It identified that Libyan small arms had apparently ended up in the hands of Boko Haram militants [in Nigeria].’
Earlier, the report states:
‘The international community’s inability to secure weapons abandoned by the Gaddafi regime fuelled instability in Libya and enabled and (sic) increased terrorism across North and West Africa and the Middle East. The UK Government correctly identified the need to secure weapons immediately after the 2011 Libyan civil war, but it and its international partners took insufficient action to achieve that objective. However, it is probable that none of the states that intervened in Libya would have been prepared to commit the necessary military and political resources to secure stocks of weapons and ammunition. That consideration should have informed their calculation to intervene.’
Naturally, the HCFAC also addresses the important question of the impact of the NATO aggression on the quality of life of the Libyan people.
‘The United Nations ranked Libya as the world’s 94th most advanced country in its 2015 index of human development, a decline [of 41 positions] from 53rd place in 2010.
‘In 2016, the UN Office for the Coordination of Humanitarian Affairs estimated that out of a total Libyan population of 6.3 million, 3 million people have been impacted by the armed conflict and political instability, and that 2.4 million people require protection and some form of humanitarian assistance. In its World Report 2016, Human Rights Watch stated that “Forces engaged in the conflict continued with impunity to arbitrarily detain, torture, unlawfully kill, indiscriminately attack, abduct and disappear, and forcefully displace people from their homes. The domestic criminal justice system collapsed in most parts of the country, exacerbating the human rights crisis.”
‘People-trafficking gangs exploited the lack of effective government after 2011, making Libya a key transit route for illegal migration into Europe and the location of a migrant crisis. In addition to other extremist militant groups, ISIL emerged in Libya in 2014, seizing control of territory around Sirte and setting up terrorist training centres.’
The HCFAC has also addressed the vitally important matter of the peace which Libya required so that there would be no need for any concern about the safety of civilians. In this regard, bearing in mind that the strident argument used to justify UNSC Resolution 1973 and the subsequent NATO and Arab League aggression against Libya was the alleged immediate threat against the civilian population in Benghazi, the HCFAC says:
‘The combination of coalition airpower with the supply of arms, intelligence and personnel to the rebels guaranteed the military defeat of the Gaddafi regime. On 20 March 2011, for example, Muammar Gaddafi’s forces retreated some 40 miles from Benghazi following attacks by French aircraft. If the primary object of the coalition intervention was the urgent need to protect civilians in Benghazi, then this objective was achieved in less than 24 hours [given that the NATO bombing campaign had started on 19 March].
‘We questioned why NATO conducted air operations across Libya between April and October 2011 when it had secured the protection of civilians in Benghazi in March 2011. Lord Hague advanced the argument that “Gaddafi’s forces remained a clear danger to civilians. Having been beaten back, they were not then going to sit quietly and accept the situation.” Dr Fox stated that “the UN resolution said to take all possible measures to protect civilians, and that meant a constant degradation of command and control across the country. That meant not just in the east of the country, but in Tripoli.” Throughout their evidence, Lord Hague and Dr Fox stuck to the line that the military intervention in Libya was intended to protect civilians and was not designed to deliver regime change.’
Further, HCFAC states:
‘We asked Lord Richards whether the object of British policy in Libya was civilian protection or regime change. He told us that “one thing morphed almost ineluctably into the other” as the campaign developed its own momentum…
‘When the then Prime Minister David Cameron sought and received parliamentary approval for military intervention in Libya on 21 March 2011, he assured the House of Commons that the object of the intervention was not regime change. In April 2011, however, he signed a joint letter with United States President Barack Obama and French President Nicolas Sarkozy setting out their collective pursuit of “a future without Gaddafi”...
‘We asked Lord Richards whether he was convinced that military intervention in Libya was in the [UK] national interest in March 2011. He replied that “the Prime Minister felt it was in our national interest.” Former Chief of the [UK] Secret Intelligence Service, Sir John Sawers, reportedly also doubted whether the intervention in Libya was in the British national interest. Lord Richards told us that he was unconvinced by the development of UK strategy in spring and summer 2011...
The report concludes that: ‘The deployment of coalition air assets shifted the military balance in the Libyan civil war in favour of the rebels…
‘The combat performance of rebel ground forces was enhanced by personnel and intelligence provided by states such as the UK, France, Turkey, Qatar and the United Arab Emirates. For example, Lord Richards told us that the UK “had a few people embedded” with the rebel forces.
‘Resolution 1973 called on United Nations member states to ensure the “strict implementation of the arms embargo”. However, we were told that the international community turned a blind eye to the supply of weapons to the rebels. Lord Richards highlighted “the degree to which the Emiratis and the Qataris…played a major role in the success of the ground operation.” For example, Qatar supplied French Milan anti-tank missiles to certain rebel groups. We were told that Qatar channelled its weapons to favoured militias rather than to the rebels as a whole…
‘The UK’s intervention in Libya was reactive and did not comprise action in pursuit of a strategic objective. This meant that a limited intervention to protect civilians drifted into a policy of regime change by military means…
‘Political options were available if the UK Government had adhered to the spirit of Resolution 1973, implemented its original campaign plan and influenced its coalition allies to pause military action when Benghazi was secured in March 2011. Political engagement might have delivered civilian protection, regime change and reform at lesser cost to the UK and to Libya. If political engagement had been unsuccessful, the UK and its coalition allies would not have lost anything. Instead, the UK Government focused exclusively on military intervention. In particular, we saw no evidence that it tried to exploit former Prime Minister Tony Blair’s contacts and influence with the Gaddafi regime…
‘We note former Prime Minister David Cameron’s decisive role when the (UK) National Security Council discussed intervention in Libya.’
Trying to restore a semblance of honourable strategic thinking on the part of the UK Government led by Cameron, the HCFAC inserted the following:
‘[Former Defence Secretary] Dr Fox helpfully explained his strategic criteria for UK participation in a military intervention:
“No. 1: what does a good outcome look like? No. 2: is such an outcome engineerable? No. 3: do we have to be part of the engineering? No. 4: how much of the aftermath would you like to own? I think that there is, and has been in our history, a tendency to answer No. 1 without answering the rest of the questions. It is not responsible for any Government at any time to go into any conflict and to deploy our armed forces without answering all four questions.”
‘The answer to question No. 1 was “civilian protection” in February 2011. In that case, the UK Government had plausible answers to questions Nos. 2 to 4. As Lord Richards explained, it had a coherent strategy based on protecting civilians and pausing to explore political options... However, it could not influence its coalition partners to agree and implement that strategy. Instead, it suddenly changed its answer to question No. 1 to “regime change” without addressing questions Nos. 2 to 4. This strategic incoherence formed the root of the international community’s failure to stabilise Libya.’
Perhaps, for understandable domestic political reasons, the HCFAC chose not to embarrass Dr Fox by pointing out that what Lord Richards understood as a ‘coherent strategy based on protecting civilians and pausing [military actions] to explore political options’ collapsed when Cameron appended his name to the infamous Joint Letter of 15 April 2011 which said that ‘Colonel Gaddafi must go, and go for good’.
Exactly because many of us in Africa and others in the world did not abandon the ‘political engagement’ which the HCFAC says was possible, but was not sought by the UK Government and its allies, during the course of the war in 2011 we supported an initiative to end the war through negotiations among the Libyans. The government of Libya, led by Muammar Gaddafi, the NTC and the traditional leaders had agreed that a senior retired European statesperson, well-known to all Libyans, and supported by former African heads of state and government, should convene them to negotiate an end to the war and agree on the future of Libya.
The European statesperson asked me to engage the UN Secretary General, Ban Ki-Moon, to get UN approval for the suggested non-governmental intervention, as agreed by all Libyan players, so that these principal Libyan stakeholders could engage one another in negotiations to end the war and determine the future of their country. We needed this UN approval because by then the UN Secretary General had already appointed a Special Envoy, Abdel-Elah Al-Khatib, with the task to facilitate negotiations among Libyan stakeholders. However, these Libyan stakeholders preferred the non-governmental intervention I mentioned. For his part, the European statesperson, and ourselves as former African heads of state and government, wanted to assure the UN that as the non-governmental intervention we would do everything necessary to cooperate with the UN Special Envoy. Accordingly, I did indeed engage the UN Secretary General. Naturally, he had to discuss our proposal with various member states of the UN to authorise him to convey to us the UN approval. The UN approval we sought never came!
Thus did a genuine and very serious effort to put in place an inclusive Libyan process to end the war in Libya perish even before it was born, killed by those in the UN who were never interested to allow the Libyan people to determine their destiny.
It therefore did not surprise me that the HCFAC has posed the critically important question about ‘why NATO conducted air operations across Libya between April and October 2011 when it had secured the protection of civilians in Benghazi in March 2011’. The answer, of course, is that the argument that had been used to justify the adoption of UN Security Council Resolution 1973, and therefore launch the NATO aggression, was nothing more than a deceitful manoeuvre used to hide the real intention of the sponsors of this resolution. The real goal was to effect regime change in Libya in the interests of the western powers which pushed for Resolution 1973, whose strategic goals had absolutely nothing to do either with protecting Libyan civilians or bringing democracy, human rights and prosperity to the Libyan people.
This is why then US Secretary of State Hillary Clinton could not hide her feeling of triumph when she openly celebrated the very repulsive and brutal assassination of Muammar Gaddafi by breaking out in hearty laughter saying, ‘We came, we saw, he died’.
What is the coherent story which emerges from these two important reports prepared by authorised UK institutions to assess the involvement of the UK in the two disastrous military adventures in Iraq from 2003, and Libya in 2011? These – “The Iraq Inquiry” conducted under the leadership of Sir John Chilcot, published on 6 July 2016, and the “Libya: Examination of intervention and collapse and the United Kingdom’s future policy options”, prepared by the House of Commons Foreign Affairs Committee, chaired by Crispin Blunt, MP, and published on 14 September 2016 – tell a story of a Labour government, led by Tony Blair, and a later Conservative government, led by David Cameron, which argued for and involved themselves in wars of choice in countries of the South, in Iraq and Libya.
Both these wars were launched and waged on the basis of absolute falsehoods which had no factual basis, confirming the correctness of the proposition that the western governments, and perhaps others as well, are ready as a matter of policy to rely on the propagation of lies to achieve their strategic objectives. Practical reality confirmed that the bulk of the mass media in these western countries stands ready to join these governments to communicate such lies. This reality also confirmed the global influence of this western media as much of the media in the rest of the world, including the countries of the South, parroted the false narrative communicated by their western counterparts.
Supported by the mass media, two UK governments went to war in Iraq and Libya despite the contrary opinion and opposition of the majority of the population they claimed to represent. In both instances, the UK and other western governments concerned launched wars of aggression against countries of the South to assert their hegemony in terms of determining the shape of the global order in all its elements.
In this regard, these western governments picked on governments of the South which they viewed as standing out in terms of setting a bad example as openly and consistently defiant rebels against such western hegemony. In this regard, they made certain that they exploited the wrong actions of these governments of the South to demonise them in their own countries and regions and globally, as the very representatives of everything that is evil and universally unacceptable. Accordingly, whatever the protestations of the western governments, the wars they would wage against the targeted countries of the South would pursue the central objective of regime change.
Experience has also shown that even in instances where it might not be necessary and possible to wage war, the western countries will use all other means to achieve such regime change. In the two instances at issue, the South African government, democratically elected as the representative of the masses of our people, also fortuitously serving, at the time, as a spokesperson of the peoples of the South, openly opposed the 2003 war against Iraq. Among other interventions intended to help avoid this war, it sent to Iraq a team specialised on the matter of eliminating weapons of mass destruction to assist the Iraqi government unit charged with the task to cooperate with UN weapons inspectors led by Hans Blix. Its task was to help ensure that the Iraqis worked honestly with the UN weapons inspectors to enable these inspectors properly to determine whether Iraq had these weapons of mass destruction.
After its visit to Iraq, this South African government team reported to the UN, through the UN Secretary General, that it was convinced that there were no weapons of mass destruction in Iraq. Blix admitted publicly that the visit to Iraq by the South African team had, at least, helped to improve the cooperation of the Iraqis with the UN inspectors. However, many years later, in 2011, the South African government prevaricated with regard to the war against Libya.
During the session of the UN Security Council which adopted Resolution 1973, the South African representative at the UN, who was also a member of the UN Security Council in 2011, said, ‘South Africa supported the dispatch by the African Union of a special mission to Libya.’ However, he also said that by adopting Resolution 1973, for which he voted as instructed by his government, ‘the UN Security Council had acted responsibly to answer the call of the Libyan people.’ He ‘hoped that the letter and spirit of Resolution 1973 would be implemented in full.’
In the instance of Iraq, the western governments concerned made certain that the views of the South African government did not get any significant global public exposure. In the instance of Libya, these governments made certain that the views of the peoples of Africa, as represented by the African Union, also did not get any significant global public exposure. Rather, they used the wrong positions taken by the three African governments which served on the UN Security Council at the time – South Africa, Nigeria and Gabon – to delegitimise the view of the African Union, on the basis that these three had voted in favour of Resolution 1973, which, most unfortunately, they did.
The western governments therefore argued that these three African governments were as legitimate a representative of African opinion as was the African Union. This served as a flimsy justification to exclude the AU as a legitimate player in terms of the resolution of the conflict in Libya. Even when, as private citizens, we engaged the UN Secretary General to encourage an intervention, acting together with a former European statesperson, by then a prominent non-governmental leader, to help peacefully to resolve the conflict in Libya, the western governments ensured that this initiative died on the vine. All this confirmed that the imperialist impulse which had informed the political attitude of many western ruling groups to perpetuate their neocolonialist hegemony over Africa had not disappeared.
The Chilcot and HCFAC reports confirm that the UK political establishment, regardless of political party affiliation, continues to share the objective to ensure that the UK remains part of the conglomerate of the western global hegemon. The reports tell an instructive story of what the UK political establishment is ready and willing to do to make certain that it is not excluded as a member of this global hegemonic power, thus communicating an important message about the contemporary exercise of imperialist power. That message is that while the individual western powers have competing interests with regard to Africa, and will act to promote those interests in conflict with one another, they will also act in concert when they believe that any of our countries constitutes a threat to their shared objective of ensuring that all of Africa accepts their neocolonialist diktat.
The HCFAC Report about the 2011 invasion of Libya by the common western military formation, NATO, illustrates this reality in graphic terms. Thus did the individual imperial interests of the western countries with regard to Africa, as explained in some detail by the HCFAC concerning the French selfish national interests, get overtaken by the larger objective to eliminate a common threat posed by Muammar Gaddafi’s Libya. Despite its many wrong interventions in Africa, which many of us as Africans opposed in a sustained and principled struggle, Gaddafi’s Libya fought in its own way for the genuine independence of Africa, determined to use the relatively considerable resources it had accumulated as an important oil-producing country with a small population.
It was for this reason, interpreted by the Sarkozy government as a threat to French control of Francophone Africa, that major western countries came to the conclusion that Gaddafi’s Libya constituted a shared threat to the western countries as it was setting a bad example in terms of putting on the agenda the possibility for Africa truly to exercise its right to self-determination. This was what gave the possibility for these western countries to unite around the false proposition of a non-existent threat against Libyan civilians, thus to authorise the NATO aggression against the common enemy of the western powers, Muammar Gaddafi’s Libyan government.
All this makes the vitally important statement that as Africans we owe it to ourselves clearly to understand what it means for us to determine our destiny, consistent with our hard-won right to self-determination which, through our own struggles, has been inscribed in international law as an inalienable right of all nations, big and small. This firmly places on our agenda as Africans, and other peoples of the South, the task that we have an absolute obligation to be vigilant at all times to ensure that we rely on ourselves and the masses of our people to guarantee our right to self-determination.
The UN Security Council Resolution 1973 and the subsequent NATO war of aggression against an African country, Libya, expressly sought to make the regressive and anti-African statement that as Africans we are grossly mistaken in our belief that we enjoy an inalienable right to self-determination and have any possibility to exercise this right. This is the central reason why the UN Security Council deliberately ignored the decisions taken by the AU PSC on 10 March 2011, which established a High Level Ad-Hoc Committee to mediate a peaceful resolution of the conflict in Libya and spoke strongly against any foreign military intervention to end this conflict.
It was exactly for the same reason that, together with the UN Security Council, the western sponsors of Resolution 1973 – France, the UK and the US, and NATO – emphasised that their decision to attack the Libyan government had been authorised by the Arab League, an organisation from which Libya had extricated itself. It was to make the statement that the African opinion had no standing even with regard to the most important African issues.
As Africans we have to understand that this is part of the deliberate and systemic reality in the contemporary system of power relations, that in the current geopolitical setting the major western powers hold the view that Africa, given its enormous reservoir of natural resources and its potential as a power bloc, if and when it acts in unity, cannot be left alone to determine its destiny. This must be understood within the context of the virulent contradiction and competition between western powers and especially China with regard to both these natural resources and the global balance of power.
The African intelligentsia and the continent’s progressive movement have a shared and urgent obligation properly to analyse, understand and speak openly about the domestic and international challenges Africa faces as it pursues its struggle to achieve its progressive transformation, whose objectives include the achievement of both African unity and Africa’s renaissance. Thus will we, having accepted the positions of this intelligentsia and progressive movement, give real meaning to what Africa seeks to achieve in the context of the agreed AU Agenda 2063.
Central to this must be the understanding that nothing in this Agenda 2063 can be achieved and have any meaning unless it is based on a real exercise by ourselves as Africans of our right to self-determination. Thus must the broad African leadership, in all its echelons, understand that the struggle continues to defend this right and ensure both the equality of all nations in the ordering of international affairs and respect for the rule of international law.
It will only be through the conscious pursuit of these objectives by the organised political and other formations of the African people and the African masses themselves that it will be possible for us to make the assertion without which it is impossible to inspire these masses to engage in the necessary sustained struggle: that the struggle continues, and victory is certain!
* Published with permission of the Thabo Mbeki Foundation
** The views in this article do not necessarily reflect the views of the Afro-Middle East Centre
By Afro-Middle East Centre
The election of General Michel Aoun as president of Lebanon earlier this month ends a two-and-half year stalemate when the country could not agree on who the president should be, and parliament extended its own term twice. It also points to a reconfiguration of the bipolar coalition politics which have severely gridlocked the country’s formal political processes. Aoun’s election was spurred mainly by domestic political manoeuvrings, but it will mean little in terms of service delivery and improvements in governance for the Lebanese citizenry. Nor will it result in any immediate change in the country’s stance toward the Syrian crisis. (Syria is an always-looming factor in Lebanese politics.) Indeed, Lebanese politics and governmental functions were only minimally impacted by the presidential vacuum; this because of the country’s entrenched sectarian and religious patronage networks, and because a convergence over the Syrian spillover into Lebanon had, since 2014, seen mainstream politicians being forced to work together. Aoun’s election does, however, indicate that Lebanon’s confessional political system remains entrenched.
Currently leader of the Christian Maronite Free Patriotic Movement (FPM), Aoun is a former army chief who had been previously involved in a failed attempt to eject Syrian troops from Lebanon after the 1989 Taif Accords which ended Lebanon’s fifteen-year-long civil war. He spent fifteen years in self-imposed exile in Paris after the war and after his unsuccessful attempt to head a rival administration in the years preceding Taif. In 2006 he and the FPM sealed an agreement with Hizbullah, and Aoun changed his position on the Syrian regime, then headed by Bashar al-Asad.
Elected by simple majority, Aoun’s installation as president was a mere formality after he had received the backing of the largest Sunni party, Saad Hariri’s Future Movement (FM), a week earlier. The main reason that a president could not be elected in the past two-and-half years was that the two main political blocs – one led by Hariri’s FM and the other by Hizbullah – could not agree on a single candidate. This stalemate has its origins in the confessional political system left behind by the French when Lebanon gained independence in 1943. In terms of that system, the 128 parliamentary seats are divided equally between Muslims (Sunni and Shi'a) and Christians (Maronite and Catholic); and the president must be a Maronite Christian, the prime minister a Sunni, and the parliamentary speaker a Shi'a. The Taif Accords were supposed to be a stepping stone to take the country beyond confessional politics, but the various roleplayers have not succeeded in transcending sectarian politics.
Hariri’s decision to finally support Hizbullah’s candidate meant that an eighty-six-member parliamentary quorum was realised, and thus, on the forty-fifth attempt since the term of the former president, Michel Suleiman, ended in May 2014, the country was able to elect a president. Hariri’s backing means that there has been a serious attempt by all sides to transcend the bitter divide between the Hizbullah-led March 8 and FM-led March 14 coalitions, formed after the assassination of Hariri’s father and former prime minister, Rafic. This is also the first time that the three largest political parties – FM, Hizbullah and FPM – have endorsed the same candidate.
The change is a result of both domestic and regional political shifts, which have caused Lebanese politicians to reassess the coalition politics that had been in place for over a decade. The impasse regarding the presidential vacuum did not serve Hariri’s political agenda. It ensured that he would not be able to become prime minister because he would be blocked by Hizbullah and its March 8 allies. Although the current prime minister, Tammam Salam, was nominated by Hariri’s March 14 coalition, he played the role of an independent candidate by also maintaining ties with March 8, leaving Hariri without firm control over the government. The deal to elect Aoun as president secured Hariri’s position as prime minister, and he is already rushing to form his cabinet before Lebanon’s Independence Day on 22 November. With Lebanon’s presidency being a ceremonial position, the prime minister is actually more important in terms of governance. The cabinet is expected to mirror the confessional proportions in parliament, and could see Hizbullah ministers serving in Hariri’s government. Hariri was likely also concerned that the delay in electing a president was keeping him out of power at a time when Sunni opinions on a number of issues were diverging. Further delays could see other Sunni politicians such as former justice minister, Ashraf Rifi, or Salafi cleric Ahmed Al-Assir, winning over Sunni support. He thus took a gamble – despite opposition even from within his party – and it seems the gamble will pay off.
Another reason for his acceptance of Aoun as president is his recent difficulties with his patrons in Saudi Arabia. His relationship with the Saudi crown prince, Mohammed bin Nayef, is said to be strained, and Hariri businesses in Saudi Arabia are facing difficulties because of the struggling Saudi economy. Saudi Arabia reneged earlier this year on four billion dollars in military and security aid to Lebanon after the Lebanese government failed to condemn the storming of the Saudi embassy in Tehran in January. The Saudis are also much more focused on their war in Yemen, and seem willing to temporarily postpone their interest in Lebanon. It is unclear whether Hariri’s decision to strike a deal with Hizbullah on the presidency was sanctioned by the Saudis, and, if it was, what their strategy might be for this move. It is possible that the January silence on the Tehran embassy issue has convinced the Saudis that they require more loyal leadership in Beirut – even if it means allowing an Asad-supporting Hizbullah candidate to become president.
Yet another domestic factor that should not be ignored is that Lebanese citizens have become increasingly disillusioned with their politicians. In 2015, the Lebanese government’s inability to efficiently dispose of refuse led to the founding of the Youstink movement, and in the May 2016 municipal election the non-aligned Beirut Madinati movement gained around forty per cent of votes in the capital. It has since announced its intention to also contest the 2017 parliamentary election. Both these movements include large numbers of non-partisan Lebanese youth frustrated with the failures of politicians and parties, and less influenced by confessional and sectarian identities. Even in Hizbullah strongholds such as in southern Lebanon and Baalbek, around forty per cent of votes in the municipal election were cast against the Shi'a joint list of Hizbullah and the Amal party.
Mainstream parties such as Hizbullah and Future have thus had to find some means of cooperation to break the political deadlock, prevent a loss of power, and to ensure a reinvigoration of traditional Lebanese politics. This resulted in previously unlikely coalitions for the municipal election, such as between Hariri’s Future and Aoun’s FPM.
For most of Lebanon’s citizens, however, little will change as a result of Aoun’s election and Hariri’s new government. Service delivery will likely continue to be devolved to patronage networks, especially since these are a means for mainstream parties to generate support and revenue. This is especially because these party patronage networks are entrenched, often work more effectively than the state, and have allowed the country to run relatively smoothly throughout the two-and-half-year presidential vacuum. In the meanwhile, Hizbullah’s influence and the maintenance of its armed wing and its weaponry (a cause of much protest from Future and the Saudis in the past) will endure. Further, Lebanon’s stance toward the Syrian conflict and its policy of ‘disassociation’ from the regional tensions between Saudi Arabia and Iran will continue – even if Aoun does make speeches supporting the Asad regime.
But as the political structure in Lebanon is tightened, the one million Syrian refugees in that country might find that their situation becomes worse. All mainstream political parties have already adopted steps to limit the Syrian conflict’s spillover into Lebanon; and President Aoun’s aggressive stance against Syrian refugees in Lebanon could result in attempts at repatriation.
The election of a new president after two-and-half years is an assertion of the sectarian Lebanese status quo that reinforces the letter of the Taif Accord, but fails to transition to its spirit, which aimed to transcend the confessional system to entrench a strong Lebanese national political identity. It is an indication of how Lebanon remains hostage to regional and international influences, and of its inability to assert its independence as a sovereign nation state. The country’s political system is a reminder of the remnants of the French colonial project, and of the consequences of foreign intervention. In this are lessons for those who are keen to divide Syria and further divide Iraq.
By Afro-Middle East Centre
The results of the recent, 7 October, Moroccan parliamentary election means little in terms of the exercise of actual political power, but is indicative of the continued popularity of the ruling Islamist Freedom and Development party (PJD) which won twenty-five per cent of the vote. Voter turnout stood at a low forty-three per cent because of apathy flowing from the realisation that King Mohammed VI will maintain control and the election meant little in terms of politics or power, and the belief that political parties’ objective was to join the extensive patronage networks rather than representing ordinary Moroccans’ grievances. Ideological polarisation and a skewed political system that inhibits the emergence of large political parties will further contribute to the legislature’s inability to keep the monarch in check.
With little real opposition to the king, the PJD’s victory is not terribly significant, especially in foreign policy and long term strategic planning. The party will rather attempt to further pry open the political space by confronting the palace on electoral and constitutional reform, and by focusing strongly on corruption. All this will be an incremental, attritional process.
Moroccan elections have been historically plagued by two major difficulties. First, the system promotes ideological fragmentation by encouraging the growth of multiple small parties. A low three per cent voting threshold is implemented, forcing larger parties to partner with small ones to gain a parliamentary majority. This inhibits ideological and policy coherence and allows Mohammed VI to stymie parliamentary opposition to his rule through what some call ‘political rationalisation’. Second, and more importantly, parliament has little actual power. Even though the king piloted constitutional reforms in July 2011 to curb his powers, he is still able to dissolve the government, and has absolute powers in the realms of foreign policy and strategic planning. Most major decisions must be ratified by the king, who chairs the supreme council of the judiciary, the national security council, and the council of ministers, and is the self-designated ‘amir al-mu'minin’ (leader of the faithful). Electoral power is thus circumscribed and many parties contest elections to gain access to the Makhzen (the palace) and thus its patronage networks.
This was manifest in the 7 October elections. The PJD increased its seat count from 107 in 2011 to 125, beating its main rival and the king’s favoured party, the Party of Authenticity and Modernity (PAM), which won 102 seats. The party must thus partner with some of the other thirty other parties to govern. It has entered into talks with the Democratic Front, consisting of the nationalist Istiqlal party (with forty-six seats), the Socialist Union of Popular Forces (USFP, twenty seats) and the Party for Progress and Socialism (PPS, twelve seats). These will likely form a coalition to exclude PAM. The PJD’s leader, Abdelilah Benkirane, has had to delicately balance his party’s opposition to aspects of the monarch’s power with the party’s need for monarchical endorsement to contest elections. Thus, although criticising the current political system that he calls tahakoum (politically manipulated authoritarianism), he repeatedly clarifies that he serves at the monarch’s behest and that bad decisions should be attributed to the monarch’s advisors and not Mohammed VI himself.
The low election turnout, down from forty-five per cent in the 2011 parliamentary election and fifty-three per cent in last year’s municipal vote, is due to voter apathy, and the boycott calls from the civil society Islamist movement Al Adl wa Al Ihsaane (Justice and Goodness) movement and the leftist Democratic Way party, which have been shunned from the political system. At the heart of the apathy is the realisation that the legislature’s power is severely curtailed. Hence the higher turnout for municipal elections, which many citizens see as more relevant to their needs.
The election has proven the popularity of the PJD, despite the Makhzen’s attempts to weaken it through ‘hard’ and ‘soft’ vote rigging and explicit backing for PAM. The PJD has improved from five per cent in the 2009 municipal election to sixteen per cent in the 2015 vote and from 107 seats in 2011 to 125 in the October poll. The party is thus likely to endure, despite its worse than expected performance in last year’s election, and in spite of the situation in the Middle East and North Africa region, that is unfavourable to parties referencing Islam. However, similar to Tunisia’s Ennahdha and Jordan’s Islamic Action Front, the PJD’s success lies in a focus away from ideology and toward partnerships with non-Islamist parties, and a reluctance to strongly pronounce on regional issues.
With youth unemployment at twenty per cent and graduate unemployment in many urban areas at forty per cent, the conditions that sparked the February 2011 Moroccan protests persist. Parties such as the PJD will need to carefully navigate the current political terrain else, or risk being seen as complicit when protests erupt again. Already around eighty per cent of people polled by the Arab Barometer III survey view the state as corrupt and judicial decisions as open to corruption.
By Afro-Middle East Centre
The 16 October declaration by Iraqi Prime Minister Haidar al-Abadi of the beginning of the offensive to retake the city of Mosul from the Islamic State group (IS) was welcomed by a range of forces in the Middle East and globally. However, there was immediately an attempt to address fears of potential sectarian violence that might be unleashed upon the liberation of the city, IS’s de facto Iraqi capital.
At a conference of Iraqi tribes held in Erbil, in Iraqi Kurdistan, to support the Mosul offensive, tribal leaders from Nineveh, the province in which Mosul is located, insisted Shi'a militias should not be involved in the military attempt to liberate Mosul. They feared that Mosul’s Sunnis will be blamed for IS’s crimes, and were afraid of revenge attacks. They based their fears on reports that more than 700 Sunni males had disappeared after Shi'a militias captured Fallujah, and that looting and mass killings occurred in Tikrit when that city was liberated from IS.
Responding to concerns about sectarian reprisals, Iraqi Kurdish leaders promised that their Peshmerga forces would not enter Mosul, and the USA conditioned its air support on Shi'a militias not entering the city. The alliance of Shi'a militias, the Popular Mobilization Force (PMF), one of the more successful anti-IS forces, has not been excluded from the battle, however. As the Iraqi army advances from the south and west, and Peshmerga forces conduct a multipronged assault from the north and east, the PMF headed westwards to block IS’s escape route from Mosul into Syria. Adding another sectarian dimension, Turkish forces stationed in Bashiqa camp near Mosul joined the fighting against IS this week – despite protests from the Iraqi government – after an invitation from the Peshmerga. Turkey claimed concern for Mosul’s minority Turkmen population and for the Sunni majority.
Mosul and its surrounding area, although having a majority of Sunnis, is one of the most ethnically and religiously diverse areas in Iraq. The last major stronghold of IS in Iraq, its three million population (before IS captured it) included Arabs, Kurds, Turkmen, Assyrians, Armenians, and Circassians, with a religious and sectarian diversity that included Sunnis, Shi'as, Salafis, Yezidis and Christians.
Over the past year IS has taken a battering on the battlefield. Its loss of the Syrian town of Dabiq earlier this month was a huge symbolic defeat. The Iraqi army, meanwhile, has regained morale and momentum with the recapture of major cities such as Sinjar, Ramadi and Fallujah over the past ten months. The Mosul offensive involves more than 30 000 forces, mostly made up of Iraqi troops and Kurdish Peshmerga, supported by US air strikes and special forces. IS probably has around 6 000 fighters in the city. The initial advance on Mosul saw more than twenty villages and hamlets liberated by Iraqi and Kurdish forces within two days, but the offensive then slowed down due to the number of explosives and booby traps on the roads. Earlier this week, around forty kilometres separated the coalition forces from Mosul.
There have already been reports of some local IS fighters abandoning Mosul, leaving foreign fighters behind. Nevertheless, IS is expected to mount stiff resistance from within the city. The fall of this crucial city will affect IS politically as it loses territory, thus jeopardising its state-building project, and also financially since Mosul has been a huge contributor of tax revenue for the group. Coalition forces claim, however, that Mosul will fall within two months. They are hoping that, as IS fighters defend the city against coalition forces, resistance within Mosul will rise up to battle IS from within. This has already begun with an Iraqi flag being raised over an IS government building last week.
Much of the city will likely be in ruins before it is liberated. It is uncertain whether the fragile Iraqi state will be capable of reconstructing this and other devastated areas. It will also have to take over the provision of services and security in areas in which it has not had the responsibility for the past two years, thus increasing its resource burden. Most importantly, the grievances and sense of marginalisation of Sunni communities in the north has not disappeared. The real mark of Iraq’s success in defeating IS will be whether the government is able to address this marginalisation, and include Sunnis in the state in a manner that removes these grievances. If not, then the reasons that IS was able to take Mosul so easily will persist, and the region will remain ripe for others who claim to support the Sunnis in the north against the central government.
By Majak D’Agoôt and Remember Miamingi
No country is entirely self-contained or lacking in interdependencies. These interlocking interests form the critical part of any country’s existence. Therefore, compartmentalising South Sudan in matters of interconnectedness is, at best, disingenuous, and at worst, sheer political autarky.
In December 2013, South Sudan descended into a brutal civil war. More than two years after independence, political division and contestation for power within the ruling Sudan People’s Liberation Movement (SPLM) quickly turned violent. One cause of this atrocious conflict was the fact that the de jure state had failed to become a de facto state with efficient, fair, politically neutral and transparent institutions capable of serving public interests. Governance institutions remain weak and politicised, lacking oversight. In the absence of a credible and coherent opposition, the government has maintained power via coercion. A highly militarised society and state have left no room for civil society, the media and non-partisan spaces to expand. Rather, this context has created fertile ground for impunity and a breakdown of rule of law.
In the absence of a history of governance and legitimate institutions, South Sudan, as a failing and fragile state, has easily become a source of incalculable security risks, a threat to peace and security domestically, regionally and internationally. Domestic security challenges arising from the rubble of a collapsed state are contagious and transcend its borders. As a result, South Sudan poses an acute risk to international security in the form of transnational organised crime, arms proliferation, civil conflict, terrorism and health hazards. Moreover, given the historical affinities between South Sudan and its immediate neighbours, the region’s countries are not only culturally intertwined but also geographically contiguous. Consequently, South Sudan is not only part of the African continent; it is also an important geopolitical player in the Horn of Africa and the Great Lakes region. In other words, South Sudan occupies a geostrategic position.
It is these interlocking risks that partly motivated regional actors to play an active role in South Sudan’s conflict. Since 2013, beyond the limits of judicial sovereignty, South Sudan’s regional neighbours and international partners have been impelled to respond to risks affecting the country. Strictly, one government’s blunders, resulting from its own untamed wagering, affect the neighbourhood and humanity at large. They should be viewed as occurrences within a wider ecosystem of risks, which may have blood-curdling implications across national borders. Specifically, trans-boundary criminality, such as foreign insurgencies from Sudan and Uganda operating in South Sudan, has increased – and international borders have become less relevant. Hence, its neighbours have the right to intervene, as they did in the past, especially during the Second Sudanese Civil War (1983–2005). Fundamentally, a state that considers its sovereignty a license to destroy itself and its people is an illegitimate enterprise.
Applying fire protection measures to one’s property – fire retardants or fire extinguishers – ensures a neighbourhood’s safety; in the same way, regional peace and security requires a united effort. For good or ill, decision-making powers in Juba as well as the armed opposition have already crossed borders to regional capitals, with serious ramifications. As the conflict intensifies, the geographic boundaries of national politics and economics are likely to ebb and flow accordingly.
Hawks in Juba have exaggerated the debate on South Sudan’s borders and sovereignty – even if its rulers are acting irresponsibly – in order to distract from the dire humanitarian situation caused by this manufactured disaster. To the extent that state-society relations are central to the functioning of a political entity, the underpinnings of popular and empirical sovereignty have been deliberately buried. State functions, such as the effective administration of territories, holding a monopoly on the legitimate use of violence, taxation, provision of public security, etc. are not viewed by the gun-toting leadership in Juba as critical to the government’s mandate.
Such dismal failure and utter denial does not allow a polity to generate a moral voice to claim legitimacy over the population and territories that are under its juridical control. A state operating at the peak of legitimacy is dangerously hollowed out. Clearly, it subjects itself to a low fire-sale price in the eyes of its citizens and allies – and as prey for its enemies. Substantive debate around sovereignty must include rights and responsibilities to act in tandem with national and international laws.
South Sudan’s independence followed decades of bloody conflict and enormous sacrifices by its people. Since 1955, southern Sudanese had taken up arms to end colonialism at the hands of their northern, Arab neighbours. South Sudan’s independence also rested upon significant, sustained regional and international efforts. The Intergovernmental Authority on Development (IGAD) region and the USA played a key role in the Comprehensive Peace Agreement (CPA), leading up to the 2011 independence referendum.
Since a change of established borders – especially the breakup of a fragile state like Sudan – is fraught with risks, the regional and international community closely followed developments in South Sudan. After the CPA’s signing on 9 January 2005, the UN Security Council (UNSC) adopted Resolution 1590, establishing the UN Mission in Sudan (UNMIS). Following South Sudan’s independence, and in light of the newborn state’s perceived fragility and potential threats to international security, the UNSC adopted resolutions 1996 (2011) and 2057 (2012), respectively, which established and extended the United Nations Mission in South Sudan (UNMISS) – a peacekeeping mission, in accordance with Chapter Seven of the United Nations Charter. Both UNMIS and UNMISS have involved large military components. In addition, UNMISS established a high-level mechanism to ensure the alignment of its goals to government priorities. Further spheres of cooperation include peace consolidation; decentralisation; infrastructure development; constitutional review; security sector reform, including disarmament, demobilisation, and reintegration; conflict prevention; and administration of justice.
Despite the unanimity leading to the establishment of UNMIS and UNMISS – both played an important role in keeping the UNSC actively involved in the peace-building process – external actors have played a negligible role in South Sudan’s state-building process. In fact, the UN system together with other external actors only succeeded in applying astute diplomatic strategies to maintain the peace during an interim period. On many other levels, however, such interventions have borne limited results in achieving the desired goals. More importantly, many external actors saw the region as a complex, continuous emergency, focusing their efforts on humanitarian aid rather than post-conflict recovery and reconstruction. Regardless of a limited shift to development assistance in 2011, the complex emergency response argument quickly appeared whenever levels of insecurity increased in the country.
Whether the 2013 crisis was the natural outcome of a false start or an inevitable tumble, the transformation of UNMIS into UNMISS under a new mandate in 2011 did have benefits. In 2012, when interethnic raids intensified in Jonglei, especially in Pibor County, UNMISS intervention prevented possible ethnic cleansing through mass violence, looting, widespread displacement and starvation. In 2013, UNMISS humanitarian action was remarkably swift. In an atmosphere of targeted killings and revenge attacks, thousands of victims found protection within UNMISS bases in Juba, Malakal, Bentiu and Bor. As violence gained traction, the mission also provided periodic reports and updates on the dire human rights situation in the country.
Throughout the conflict, an array of parties – the IGAD, AU, and the Troika (Norway, the UK and the USA) – took part in intensive mediation efforts, which culminated in the August 2015 peace deal meant to arrest the crisis at an embryonic stage. However, the 2015 peace deal was a compromise. It called for power-sharing and reform leading to a national constitution-making process. It also called for mechanisms to deal with crimes committed during the war and to prepare for democratic elections. The parties to the agreement have never been satisfied with its power-sharing and security components, and implementation got off to a slow start because of disagreements over timing and conflicting interpretations of the way forward.
Nearly a year after the deal was signed many of its security and political milestones have been only partially implemented. For instance, Juba was supposed to be demilitarised, but there remains heavy deployment everywhere; planned joint military and police units have yet to be established, and contrary to the agreement, rival forces have not been cantoned. These disagreements reached their peak in July 2016 when the main parties to the agreement resorted to fighting in the streets of Juba. When the civil war resumed, the IGAD, AU, Troika and the UN embarked on a last-ditch effort to save the deal, which resulted in UNSC Resolution 2304 of 2016.
The post-July 2016 conflict in Juba
There is little accord about what triggered the return to war. Whatever the preferred interpretation, one thing is certain: the Juba conflict resulted from the selective and poor implementation of the security components of the 2015 peace deal and a deep sense of mutual distrust between Salva Kiir and Riek Machar, South Sudan’s president and vice president, respectively. The fighting dims prospects for the 2015 peace deal’s successful implementation, a fact further aggravated by the splintering of the SPLM-in-Opposition [CS1]and the swearing in of Taban Deng Gai as the new first vice president. Any trust that might have existed between the main parties has now vanished. The dire economic situation and mushrooming of new rebel movements across the country make the need for a functioning government all the more urgent. The unfolding humanitarian catastrophe and looming famine further complicate an already hopelessly complex situation. According to the UN, a third of South Sudan’s population, nearly five million people, faces ‘dangerous levels’ of hunger and the ‘worst famine in the world’.
After the carnage in Juba, there are two potential outcomes: a return to the status quo ante and a full, immediate and unconditional implementation of the agreement, or a return to full-scale war. The former is the easiest, most principled, least costly and best scenario. The international community knows and supports the roadmap. However, clearly the main parties to the conflict lack the political will to proceed with the agreement. This could very well return the country to full-blown war. Obviously this scenario would be costly, complex and unpredictable. If war breaks out, many different armed groups could become involved with no end in sight. Regional or international players may enter the fray, further complicating the situation.
In order to encourage the former and discourage the latter, the UNSC passed Resolution 2304 of 2016. The resolution strengthens the UNMISS mandate, increases its capacity and capabilities, and provides for the deployment of a regional force to operate within the command structure of UNMISS, but with a specific mandate to provide, by all means, protection to civilians, to protect vital state installations and to ensure humanitarian access. In the event of non-cooperation from the Government of South Sudan, the UNSC may impose an arms embargo and further sanctions.
The way forward
In the wake of UNSC 2304 and the Security Council visit in September, the Government of South Sudan, in its usual waggish behaviour embarked upon semantic negotiations focusing on the differences between intervention and protection or consent and acceptance, as a means to barter and delay the regional protection force’s deployment through a game of synonyms. Yet, beyond the logjam of Juba’s doublespeak on the deployment, external actors have continued to engage with South Sudan, in order not to leave the nascent state to its own devices. Simply put, the region and the international community have taken on a unique ‘brother’s keeper role’ in order to preserve a fragile peace in South Sudan. However, Juba must be disabused of its tendency to intensify semantic arguments or commoditise and mis-sell sovereignty. Its actions and veiled threats to bludgeon internal dissent and gag civil society voices that support the regional protection force’s deployment must stop.
Worse still, the government will try to deceive the regional and international community as a way of watering down Resolution 2304 and the peace agreement itself. If it succeeds to call the international community’s bluff and impose what has been described as Pax Salvatica, South Sudan will find itself on a staircase to hell.
Therefore, the force’s deployment should not be an end in itself as it is not a sufficient condition for South Sudan to exit the conflict. Rather, the emergence of a resilient state requires profound and long-term engagement in peace consolidation and peace-building, reconciliation, healing and accountability, in addition to the creation of durable governance institutions. Such efforts will open up a political space to promote a smooth transition to democracy and crowd out violence in the exercise of political power in the country. This premise justifies the call for a roundtable of all stakeholders including political groups, civil society, and faith-based groups, in addition to partners of South Sudan, to repair aspects of the peace deal that have been fractured by violations and delayed implementation, and to produce an abbreviated, actionable roadmap for the transition. This is more practical than the current life-support option, which calls for either a form of neo-trusteeship/trusteeship or a UN transitional administration.
In particular, the images of President Kiir and former vice president Machar have been terribly tarnished by their self-serving agendas, as highlighted in a 2016 report on corruption, which implicates the two politicians, their families and cronies. Morally, the two leaders are unfit to be part of the transition. A roundtable conference should explore the possibility of a transitional arrangement that excludes Kiir and Machar. A return to the status quo ante must be on the basis of a modified peace deal that embraces a four-year-tenured caretaker administration led by carefully vetted national personalities and technocrats who will have no stake in the future politics of South Sudan. Such an arrangement must be buttressed by powerful international security and political oversight in form of a reinforced Joint Monitoring and Evaluation Commission (JMEC). This entails a split of executive authority between the caretaker administration and JMEC. This arrangement must be based on an all-party consensus derived from the deliberations of the roundtable conference.
As the country sits precariously on a cliff, it may fall and hit the surface with a minimum blow. Thereafter, to paraphrase former US Assistant Secretary of State for African Affairs Chester Crocker, if the world does not seize the moment opportunely, no amount of effort and innovation will be able to put humpty dumpty back together again.
Majak D’Agoôt is an economist and security risk analyst with wide-ranging expertise in war, security and politics. He is a former deputy minister of defence and veteran of the Second Sudanese Civil War (1983–2005)
Remember Miamingi is an international lawyer based at the Centre for Human Rights in the Faculty of Law at the University of Pretoria in South Africa
Alternatively, SPLM-IO is also known as anti-government forces (AGF) according to Wikipedia, or we could just refer to ‘the opposition’, if that would suffice.
By Afro-Middle East Centre
The collapse of the recent Syrian ceasefire and resultant blame game being played by the USA and Russia is an indication of the complex nature of the Syrian crisis and more importantly indicates the interests and motivations of the ceasefire’s chief protagonists. Although violence lessened slightly during the four- to five-day armistice, its collapse points to the differing interests of the actors involved, and to the partiality of the supposed enforcers. The consequent Aleppo offensive has compounded this, illustrating that Russia will continue backing the Syrian regime, while the USA is more concerned about the Islamic State group (IS). Moreover, even Russia recently admitted that it is now impossible to bring ‘peace’ to the conflict arena.
Negotiated between Russia and the USA, neither the regime nor opposition groups fully endorsed the 9 September ceasefire, revealing a clearly erroneous assumption that the conflict is between two clearly identifiable sets of belligerents that could be restrained by their supposed patrons. Further, the agreement was not made public (though it was subsequently leaked), or even made available to the rebel groups that were to implement it, thus inhibiting its chances for success and undermining the already tenuous US influence. Moreover, the regime, though using limited aerial bombardment, utilised the ‘pause’ to consolidate and continued attacking areas in Aleppo, Homs and east Ghouta (east of the capital Damascus). Rebel groups were also accused of violations, especially in Aleppo, although these were mostly less intense than those of the regime. The violations that fundamentally ended the ceasefire, however, were the 17 September USA-led attack in Deir al-Zor that killed sixty-two Syrian soldiers, and the attack on a thirty-one truck aid convoy entering Aleppo, allegedly carried out by Russian aircraft two days later. Fighting subsequently intensified, and the regime resumed its aerial bombardment of besieged east Aleppo, declaring a new offensive to ‘liberate’ the area.
The ceasefire’s flaws were already apparent when considering the interests motivating the chief protagonists and the steps it was to follow. The US views the fight against IS and Jabhat Fatah al-Sham (formally Jabhat al-Nusra), still believed by the Obama administration to have links with al-Qa'ida, as more pertinent, and believes that a political solution, however skewed in the regime’s favour, would help attempts to combat these groups. Further, it is wary of intensifying its military involvement in the conflict and has thus concentrated its assistance mainly on the fight against IS. Conversely, the Russians possess strategic interests in Syria, are fearful of a power vacuum were the regime to fall, and perceive most Islamist rebel groups as terrorists that pose a threat to the country. Since September 2015 Russia has acted directly, militarily, to protect these interests. Convergences over IS, and US reticence to confront Russia, meant that the USA endorsed or ignored Russia’s actions. The Obama administration also agreed to include Jabhat in the list of groups against which attacks were allowed even during the ceasefire, and committed to the formation of a joint intelligence centre with Russia to confront these groups if the ceasefire lasted more than a week. Notably, Jabhat had been actively involved in temporarily breaking the siege on Aleppo in July, and its entrenchment in Aleppo and other areas controlled by opposition groups prevent regime forces from continuing attacks in contested areas despite the ceasefire. The USA also altered its stance on the future role of Syrian president, Bashar al-Asad, and now is open to Asad leading a transitionary government of national unity.
The ceasefire, thus, to be enforced by parties who were partial, and, especially in the case of the USA, had little influence on the ground because of this partiality and its unwillingness to follow up on policy pronouncements. Further, this partiality inhibited the chances for effective monitoring of the ceasefire, allowing for violations, especially by the regime, to go unpunished. Opposition forces were in a bind: coordinating with Jabhat would render them susceptible to Russian and US attacks, while halting coordination with and confronting the former al-Qa'ida affiliate would allow the disciplined group to consolidate control. In some instances, regime forces captured territory when US coalition attacks forced IS to retreat, and it was feared that Jabhat’s retreat would have a similar result, especially around Aleppo. Therefore, unlike the February ceasefire attempt which was endorsed by groups representing the regime and opposition factions and which lasted around a month, the September truce lasted five days.
Although the ceasefire has failed, it is likely that attempts will be made to broker a new one along similar lines, despite the current war of words between USA and Russia. The USA, believing that IS poses a greater threat than the Syrian regime, and having misgivings about the main Islamist forces that are currently the strongest and most well-organised rebel components, and which would benefit most from Asad’s fall, will go along with a Russian initiative. The balance of power on the ground heavily favours Russia, and dissuades active interference by other foreign powers for fear of confrontation with Russia. Further, the Turkish incursion into Syria is also likely to lead to a weakening of support for opposition groups, especially in light of the recent Turkish-Russian and Turkish-Iranian rapprochements and the belief that Turkey is reassessing its position on Asad. Already, thousands of Turkey-backed fighters have withdrawn from east Aleppo to focus on consolidating Turkey’s control of its 900-square kilometre incursion, and to prepare for a push towards the IS-held town of Al-Bab. Talks on reviving the Geneva peace process will continue after the current US-Russian spat settles, mainly because international powers are unable and unwilling to conceive of new solutions. Thus, even though the twenty-three-member International Syria Support Group meeting, held on the sidelines of the UN General Assembly, collapsed on 22 September with accusations of partisanship and no new measures formulated, and although the USA, the UK and France have accused Russia of war crimes, little actual action is being proposed to make even a ceasefire more enforceable.
By Afro-Middle East Centre
Although the United Arab Emirates recently announced that its troops would no longer be involved in Yemen’s civil war, the conflict in that hapless country endures. A ceasefire, which had held between April and August has crumpled, largely due to the collapse of the most recent round of peace talks in Kuwait City. Although calls have been made for a simultaneous, two-track, military and political approach, the plan recently mooted by US secretary of state John Kerry is mostly a rehash of the failed June Kuwait three-point plan, with minor adjustments.
Militarily, a balance of power has emerged. Progress for both parties, the Hadi coalition and that of the Houthis, has been slow and subject to reversals, resulting in worsening conditions for ordinary Yemenis. Thousands of civilians have been killed and millions risk starvation; tens of thousands of refugees have fled the country. For a solution to be found that allows Yemen to emerge united, the nuances within the two blocs need to be considered and addressed in an inclusive manner, and the problem of spoilers will need to be dealt with.
Different actors, competing interests
Generally regarded as a conflict pitting Iranian-backed Houthis (or Ansarallah) against a Saudi-backed Abd Rabbuh Mansur Hadi coalition, Yemen’s conflict is contested by a variety of actors with varying agendas. The Houthi coalition consists of its own fighters as well as military units – particularly from the republican guard – loyal to Yemen’s former president, Ali Abdullah Saleh, who was removed from office in November 2011 by the Gulf Cooperation Council (GCC). Most of Saleh’s party, the General People’s Congress (GPC), and certain northern tribes also form part of the coalition. The agendas of these groups for Yemen’s future differ, and are sometimes contradictory; opposition to Saudi intervention seems to be the only uniting factor. There have even been clashes between groups within this coalition. For example, Houthi and Saleh fighters clashed in March 2015, prior to the Saudi intervention, for control of the Raymat military base near Sana'a. The GPC also opposed the Houthi decision to dissolve the government in February 2015. The Houthi are suspicious of the GPC, partly based on Saleh having fought six wars against them between 2004 and 2010; and many in the GPC oppose the Houthi religious fervour. But both were aggrieved at being marginalised from governance after the 2011 GCC initiative which saw Saleh transfer control to Hadi. The Houthis and GPC participated in the National Dialogue Conference (NDC) between March 2012 and January 2014, which was to chart a future for the country, but they realised that Hadi controlled the day-to-day running of the state, and that the process was stalling. Iran supports the Houthi-GPC coalition, more in terms of moral and political support, rather than military or financial assistance.
The Hadi alliance is even more disparate, including the southern secessionist Hirak movement, participatory Islamists such as Yemen’s Islah party, and former GPC officials such as Hadi and a group based in Riyadh. Some Salafis, especially from Taiz, and northern tribes – including the powerful Hashed tribe led by Hashim Al-Ahmar – are also in the coalition. The aims of these various groups are diametrically opposed: Hirak seeks the south’s secession, while Islah and Hadi want a unified Yemen. Hirak joined the coalition only because it regarded Houthi incursions into Aden in February 2014 as another attempt at Northern hegemony. Hirak’s members are mostly secular leftists, but a small pro-secessionist Salafi fringe is gradually emerging. Yemen was two separate political entities before 1990 when North and South Yemen reunited, leaving the northern elite dominant, causing tensions and engendering mistrust amongst southerners. A brief civil war between groups from north and south in 1994 paved the way for Sana'a to control Aden.
Formed in 1990, Islah (Reform party) includes tribal figures, businesspeople and Yemen’s Muslim Brotherhood (MB) chapter. It was initially close to the former Saleh regime, but that relationship grew tenuous and in 2001 it coalesced with other parties to form the Joint Multi Party coalition (JMP). It was one of the first groups to support the Yemeni uprising in 2011, and benefited from the 2012-2014 transitional period. Its role in the current conflict could allow it to consolidate the group within Yemeni institutional politics, and to develop enough of a relationship with Saudi Arabia that the latter might reverse its March 2014 decision labelling Islah a terrorist organisation. Islah also includes Salafis from Taiz and tribal elements from Mirab who seek to protect their regions from northern domination.
The Hadi alliance will probably fragment once a deal is reached that ends the fighting. Apart from their differing positions on southern secession, Hadi’s legitimacy is also tenuous, with the levers of power, especially in the south, now held by Hirak members.
A coalition of ten countries led by Saudi Arabia and the UAE have politically, financially and militarily backed the Hadi bloc and is responsible for Hadi retaking Aden in August-September 2015. The coalition even deployed ground troops to support Hadi. Saudi Arabia exaggeratedly paints the Houthis as an Iranian proxy in a context where it is fearful of Iran’s new role in the region following the Iranian nuclear deal. Different states within the Saudi-led coalition back different factions within the Hadi alliance; Saudi Arabia funded and armed Islah and the Ahmars, while the UAE, which wants to destroy the MB, worked with Hirak and its military wing, the Southern Resistance. The UAE’s decision to no longer deploy ground troops in frontline positions was mainly because Aden and other southern areas are relatively secure, and because it wants to strengthen Hirak and allied groups. It will thus remain involved in the conflict, propping up forces to oppose a revival of the MB.
Roots of the conflict
Even before the 2011 uprisings, conflict seemed to be on Yemen’s horizon. Corruption, a concentration of power, and Saleh’s intention to transfer power to his son Ahmad had caused much disquiet, especially from Islah and influential members of the Hashed tribe. The uprisings gave these movements impetus, and by mid-2011 threatened to erupt as the influential General Ali Mohsen Al-Ahmar and his first brigade changed allegiances. Fearing this would lead to a long civil war, the GCC secured a transitional agreement that saw Saleh hand over power to his deputy (Hadi) in exchange for immunity from prosecution. A national dialogue process was to formulate a new, more inclusive constitution, and Hadi’s term in office was to expire in February 2014.
The process was, however, flawed from its inception. Hadi and Islah benefited most, and a government comprising of GPC and JMP members (fifty per cent each) was formed. Hadi commenced restructuring the military and Saleh allies were removed from key posts, including from the republican guard and airforce, and replaced with Hadi allies. No one was held accountable for the 2011 events, and Saleh was allowed to remain in Yemen and head the GPC. This indicated too many that only a select few were benefiting from the transition, and that violence was the only means to secure representation. The problem was compounded by the ineffectiveness of the NDC, which was not fully representative and was perceived to be a means of stalling. Two Houthis attending the dialogue were assassinated in 2013-14 and southerners refused to participate as secession was not up for discussion. Government revenue plummeted as tribes from Mirab, often supported by Saleh sympathisers, halted Yemen’s oil and liquefied natural gas production. Social services were non-existent and insecurity and lawlessness increased.
A survey in January 2013 reported that over fifty-five per cent of Yemenis felt the economy was deteriorating and around seventy per cent that job prospects were worsening; forty-two per cent thought corruption was increasing. Events came to a head in August 2014when the government raised fuel prices by more than even the IMF had demanded, increasing disillusionment and support for Houthis. In September that year Sana'a was taken over by forces loyal to the Houthi alliance with little resistance; and in February 2015 the Houthis dissolved parliament, replaced it with a presidential committee, and commenced moving on Aden under the guise of combating al-Qa'ida in the Arabian Peninsula (AQAP). Hadi escaped to Saudi Arabia and successfully lobbied for Gulf assistance to halt the Houthi advance, playing on Saudi Arabia’s anti-Iran position. With the Iranian nuclear deal about to be concluded, and with Muhammad bin Salman appointed Saudi defence minister, the kingdom acted impulsively.
The current stage of the conflict was triggered in March 2015 when the Saudi coalition commenced airstrikes on forces in the Houthi alliance. Following the recapture of Aden by Hadi’s forces in September 2015, many, especially within the Saudi coalition, thought the civil war was reaching its end. However, the past year has illustrated that it will be extremely difficult, if not impossible, to force Houthi and Saleh forces from the north. Hadi’s forces have made gains in sum Northern provinces, recapturing most of oil rich Marib and Jawf, but this was largely due to the hundreds of Saudi coalition airstrikes, and most gains occurred December 2015 during a supposed ceasefire. Houthi forces have never felt welcome in southern provinces, but their entrenchment in the north, especially in Sa'dah and Sana’a, makes it unlikely that the population will revolt against it. Further, most of the forces loyal to Saleh are based in the north. The Saudi strikes also assisted in engendering closer ties between the Houthis and Saleh’s forces, and they recently formed a combined Supreme Military Council to administer territory they control and to better coordinate their activities. With this scenario, it will be difficult for Hadi’s forces to take control of the north.
In the areas around Sana'a, both coalitions maintain control of strategic territory; the frontline has remained relatively constant since Hadi’s gains December 2015. Taiz too remains elusive; though controlled by Islah, the routes around it remain under Houthi control despite the Saudi bombardment. Even after the collapse of the ceasefire in August, there has been little territory changing hands.
The power vacuum and lack of governance resulting from the aftermath of the 2011 uprising, exacerbated by the civil war, has allowed the strengthening of AQAP, adding an additional dimension to the war. The group held the port city of Mukalla in oil-rich Hadramawt province for a year until UAE-backed southern forces forced it out in April 2016, allowing the USA to redeploy troops into Yemen. AQAP has consolidated control in other areas in Hadramawt, and in Shabwa and Abyan provinces in the east. It now controls around 900 square kilometres of territory, but has been the target of coalition airstrikes and US drone attacks in recent months, which in June 2015 had killed its then influential head Nasir al-Wuhayshi. Before this, it had largely been ignored by the Saudi coalition which perceived it as a lesser threat than the Houthis. Although AQAP has consolidated control over a number of areas in southern Yemen, it has not claimed responsibility for any major attack on western targets in the past year and a half, since the Charlie Hebdo attack in January 2015. Its greater priority seems to be stemming the growth of the Islamic State Group (IS), which has struggled to gain a foothold in Yemen since the establishment of its Yemeni affiliate in 2014, and has been forced to resort to random bombings of Houthi and Hadi targets.
The rise of IS and re-emergence of AQAP has caused global powers to regard Yemen with increased importance. They are especially wary since the Bab-el-Mandeb (Mandeb Strait) is traversed by vessels carrying much of the world’s trade. The UN has thus sought to mediate. After two rounds of failed talks in Switzerland in June and December 2015, the two big alliances finally held three months of talks in Kuwait from mid-April. These too failed, with disagreement on sequencing and representation. The three-point Kuwait plan, which was to commence with the formation of a supreme military council consisting of military personnel not involved in the war, followed by the disarmament and withdrawal of Houthi forces from towns, and culminate in the formation of a government of national unity and holding of elections, was opposed by the Houthis. They oppose the proposal to disarm before the formation of a government of national unity. Kerry’s latest initiative proposes that disarmament and the formation of a unity government should occur simultaneously, but Hadi is unlikely to accept this, and the Houthis will insist on real institutional influence before disarmament. The mediation scenario is further complicated by the presence of Saleh, whose re-emergence is unlikely to be tolerated by Gulf countries and Hadi’s fighters, and whose allied troops are unlikely to agree to disarm. UNSC resolution 2216, the basis of the negotiations, has complicated matters further as it heavily favours the Hadi coalition, and does not represent the balance of power on the ground. For example, it requires disarmament from Houthi forces (and not from Hadi’s), despite their holding territory inhabited by around sixty per cent of the population.
Consequences, humanitarian impacts
The sixteen-month conflict is having dire consequences for the Yemeni population. Over 10 000 people, mostly civilians, have already been killed, and much of the country’s infrastructure is in ruins. Over eighty per cent of civilians (20 million) do not have access to medical assistance and 15 million are deprived of adequate water. Seven million people are severely food insecure, and around a million children risk death and stunted development as a result of severe malnutrition if the conflict continues. Significantly, Yemen imports over ninety per cent of its food requirements, and the coalition’s naval blockade has rendered such importation impossible, despite the formation of an inspection and verification committee.
Just thirty-two kilometres off the coast of Djibouti, the Yemen conflict is also having a dire impact on Horn of Africa states. Before the Saudi intervention, Yemen hosted over 250 000 registered Somali refugees and a million Ethiopian migrants seeking work in the Gulf. The conflict has reversed these patterns and thousands returned to their home countries while others remain trapped in Yemen. This has placed enormous sudden pressure to provide food and other services on already struggling states such as Ethiopia and Somalia, and it is feared that groups such as al-Shabab may use these migration patterns to replenish their capacity. Yemeni trade with Africa has also come to a halt. Remittances sent by African refugees in Yemen are decreasing, placing even more stress on the economies of Horn of Africa states.
Over half of the Saudi coalition, however, is composed of African states. Egypt, Sudan, Senegal and Mauritania have contributed troops to the coalition, and Morocco and Somalia have provided logistical and aerial support. Essentially, this African support is because of financial enticements and solidarity with the Saudis.
An inclusive solution, involving Yemeni actors, needs to be concluded as soon as possible in order to end the war and begin serious reconstruction of infrastructure and lives. The current perception, from the UN and policy makers, that the two blocs have clearly defined and unified agendas risks repeating the mistakes of the 2011 GCC initiative, which merely tried to include and incorporate Islah elements into the governing structure rather than assessing the differing interests of the many actors involved in the attempt to oust Saleh.Already some within the Hirak movement are calling for secession and Hadi, a southerner, has little to no influence over the situation on the ground. The Houthis are nominally open to a federal solution, while Islah and the GPC seek a unified Yemen. Tribes at the margins of the two alliances, such as those in Amran, Hadramawt and Mirab, have the potential to become spoilers if they feel excluded.
The larger conflict could be replaced by multiple smaller conflicts if inclusiveness, transparency and,most importantly, accountability are not enforced. Through the period of the war, small intra-northern and Southern tribal conflicts have re-emerged and been engendered. Further, unlike in the recent past, Hirak possesses arms and has sympathetic members governing southern provinces including Aden and Lahij. The Houthis too are unlikely to relinquish their weapons unless they are provided a real space in the country’s governance structures. Saleh’s supporters (especially from within the republican guard) would need to be incorporated into the newly emerging Yemeni military, but remain potential spoilers.
By Afro-Middle East Centre
While being a violation of the sovereignty of a neighbouring country, Turkey’s incursion into Syrian territory along the Syria-Turkey border and its attacks on Islamic State group (IS) and People’s Protection Units (YPG) positions there have not been heavily criticised except by the USA and various Kurdish groups. It has received mild criticism from the Russian and Syrian governments, and significant support from the Turkish population and many Turkish opposition groups. The intervention – called Operation Euphrates Shield – is expected to be a longterm one, and is set to worsen already-tense relations between Turkey and the USA.
The operation follows several fatal operations in Turkey by IS and the Kurdish Workers Party (PKK) in the wake of state security weaknesses after the July coup attempt. The Syrian YPG is the armed wing of the Democratic Union Party (PYD), and has strong links with the PKK, which Turkey considers a terrorist group. While the US also considers the PKK a terrorist group, it regards the PYD/PYG as an essential element of its anti-IS armed forces in Syria, and a component of what it calls ‘Syrian Democratic Forces (SDF)’. Relying on two diametrically opposed actors – Turkey and the YPG, both US allies – to fight a common enemy presents the USA with a tactical and strategic dilemma. Soon after Turkey’s incursion began on 24 August, the USA called on YPG forces to move east of the Euphrates River, a key demand of Turkey, but on Wednesday US spokespersons criticised Turkey’s moves against the group. With the YPG refusing to relocate, USA faces the prospect of losing the largest component of its SDF if it pushes too hard. The head of US Central Command, Joseph Votel,announced at a Pentagon press briefing this week that the YPG had moved east of the Euphrates, but the lack of agreement on whether this is true will exacerbate relations between the two NATO allies.
Turkey had been unable to convince its allies to impose a no-fly zone on the Syria-Turkey border which, Turkey claimed, would help keep millions of refugees safe; Operation Euphrates Shield is likely to create a de facto ‘safe zone’ for refugees and the Free Syrian Army (FSA).
Turkish planes had begun the first movements in the operation, bombing IS targets in the northern Syrian area of Jarablus. Two hours later 1 500 Free Syrian Army (FSA) fighters crossed over from the Turkish region of Karkamis, accompanied by an armed battalion of twenty-five M60A3 tanks, and close fire support from the Turkish Armed Forces (TSK). The FSA troops include Faylaq al-Sham and Ahrar al-Sham, which Turkey considers ‘moderate’ – particularly after the FSA sidelined al-Qa'ida-affiliated groups two weeks earlier.
The operation involves 350 TSK soldiers, 200 troops from mechanised units, and 150 special forces. They are supported by heavy aerial operations conducted collectively by the anti-IS coalition. In addition, seventeen Turkish war planes are participating in the operation, including eleven F16s. Turkey is also using newly-acquired Bayraktar TB2 unarmed drones. An armed brigade is on reserve at the border area of Karkamis and security analysts suggest the nearby base at Kilis Elbeyli will coordinate air support and medical evacuation with FSA units. Based on the type of armaments used by the TSK, Turkey is likely intending to have a longterm presence in Syria’s north with, possibly, a military base in Jarablus that serve as a coordination and training area for FSA fighters. Turkey hopes the FSA can prove its mettle in the field, and then be able to capture the IS stronghold of al-Bab. Should the FSA take that city, it will favour the opposition politically, and deprive the YPG of its status as the most efficient anti-IS force.
This is the first occasion that a NATO member puts boots on the ground in Syria since the war there began in 2011, and comes at a critical time for Turkey, which just six weeks ago experienced an attempted coup that dealt a severe blow to the TSK’s prestige. Caught between its membership in NATO and the deterioration of domestic security, Turkey extracted much benefit from the recent turnaround in relations with Russia to secure Moscow’s assurances that Russian aircraft will not fire on FSA and Turkish troops during this complex operation. The Russian foreign ministry has officially said it ‘is concerned about Turkey’s incursion into Syria’ and that actions against IS should be coordinated with Damascus. Syria itself responded with a statement complaining about the violation of its ‘sovereign rights’, but not suggesting it would do anything more about it.
Turkey’s direct involvement in Syria reflects a change in Ankara’s regional policy from one that claimed humanitarian issues at the core of its policy to a return to hard security goals by national interest. A key political and security aim is to prevent the creation of a contiguous area controlled by the PYD on the 822-kilometre Turkey-Syria border. To achieve this it becomes necessary for the FSA and other rebel factions to unite under a single political banner that regards the territorial integrity of Syria as a precondition for peace talks. Realising this political aim will require the FSA to secure more than just the Jarablus area, and to extend its control to terrain to the west up to the Rai-Azaz / Jarablus-Cobanbey line. Should it gain control of this area, Turkey will be able to cut off IS supply routes and isolate the PYD in the town of Afrin. Turkish warplanes and artillery targeted YPG targets in Afrin on the second day of Euphrates Shield.
The quiet responses to Turkey’s incursion by Russia and Syria (whose response was limited to a written statement) reflects their similar objective that Syria’s integrity be maintained; they thus would be unhappy to allow the PYD to set up an autonomous Kurdish area. Syria’s Iranian allies are also unhappy about what message Kurdish autonomy in Syria might send to Iranian Kurds – especially since recent clashes between the Democratic Party of Iranian Kurdistan (PDKI) and Iranian Revolutionary Guards, and reports that the USA might be supporting the PDKI. Tehran has already said it tacitly supported Turkey in its anti-PKK effort although the Iranian Foreign Ministry said Turkey should halt operations that challenge Syria’s against central government authority, suggesting that Iran remains sceptical of Turkey’s intentions in northern Syria.
Qatar, another regional actor which has supported the FSA, will support Turkey in its push against IS and the YPG as the two countries share similar perspectives on key issues. Qatar has sought to diversify its defence partnerships with the setting up of a Turkish-Qatari military base in the emirate state, which also reflects the rapidly changing security architecture of the region.
Russian President Vladimir Putin and US President Barack Obama are due to meet on the sidelines of the G-20 Summit in China on 4 September, but it is unlikely that any substantive movement on a Syrian peace deal will be announced as fighting between the government and rebels continue in the key area of Aleppo.
By Afro-Middle East Centre
The visit by Israeli Prime Minister Binyamin Netanyahu to Uganda, Rwanda, Kenya and Ethiopia early July was an indication of the Israeli confidence in the support it can expect on the African continent. Apart from intending to strengthen trade ties with these east African countries, Netanyahu prepared the scene for a public endorsement by African countries of the Israeli bid for observer status at the African Union, just weeks before the AU Summit in Rwanda’s capital, Kigali.
Israel has worked tirelessly in various African countries, and already has strong intelligence, security and agricultural ties across east Africa. In 2015 Israeli military advisers assisted Kenyan authorities against the Somali group al-Shabab during the group’s siege of Nairobi’s Westgate Shopping Mall; in 2014 Netanyahu provided logistical support to Nigeria in its search for schoolgirls seized by Boko Haram militants. Israel has also employed ‘water diplomacy’ across the continent, making water irrigation techniques available to African governments and civil society groups. However, a larger prize has eluded Israel since the AU’s establishment in 2002: observer status of the continental organisation, which it previously enjoyed in the Organisation of African Unity.
Netanyahu’s July charm offensive came after months of bilateral talks, and numerous African leaders visiting Tel Aviv. The choice of countries for his visit was clearly based on prior commitment obtained from them that they would publicly announce their support of Israel’s AU bid. With these countries’ support in the Israel also expects greater diplomatic support in the UN Human Rights Council, General Assembly and other major international bodies. The benefits of Israel’s courting of African countries are demonstrable. In September 2015, for example, if passed, an International Atomic Energy Agency proposal would have forced inspections of Israel’s Dimona nuclear facility. However, Burundi, Kenya, Rwanda and Togo voted against, and a number of other African countries abstained, thus defeating the proposal.
The relationship is reciprocal; Ethiopian prime minister, Hailemariam Desalegn, thanked Israel for helping secure Ethiopia a non-permanent seat on the UN Security Council for 2017, and promised to reciprocate by backing Israel’s AU bid, a position echoed by the Kenyan president, Uhuru Kenyatta. The July AU summit, however, did not discuss Israel’s bid, suggesting that Netanyahu’s east African trip was the beginning of a strategy that could culminate in the next AU summit in January 2017.
In Uganda, Netanyahu called for deeper relations between Israel and Africa; in Kenya, Kenyatta said ties with Israel were necessary in the global fight against terrorism. Nairobi is also seeking Israeli assistance to construct a wall on its border with Somalia, similar to Israel’s border fence with Sinai desert and Jordan. In Kigali Netanyahu spoke about joint experiences of genocide between Jews and Rwandans. He omitted to mention that Israel had supplied the 1994 genocidal Rwandan government with weapons, as it continued to do with President Paul Kagame’s government thereafter. In 2014 Kagame had even agreed to accept African refugees denied asylum in Israel and incarcerated in the Negev desert, in exchange for Israeli weapons. At every stop, Netanyahu emphasised joint engagement in development, security and trade.
Netanyahu’s tour launched a $13 million package to set up offices for Israel’s Agency for International Development Cooperation in the four countries. Businesspeople in Netanyahu’s delegation included a representative of Elbit Systems, Israel’s largest defence contractor; and Aeronautics Ltd., a drone manufacturer.
Israel’s focus on Africa has been part of its ‘periphery doctrine’ which seeks to encircle hostile Arab states with friendly non-Arab neighbours. In the past these friends of Israel included Iran under the Shah, Turkey, and the Sudanese People’s Liberation. Although Arab states and the Arab League are now complicit with Israeli – as seen by recent interaction with Israel by Saudi Arabia, the UAE and Qatar – this doctrine continues to be useful for Israel.
Since 2002, a number of African states have determinedly stood against the Israeli bid for AU observer status, including South African and Libya. With Libya’s Muammar Gadhdhafi no longer in power and that country involved in a messy civil war driven in part by western states, and with South Africa becoming friendlier towards the USA and its Africa Command, the question is how long AU members will resist the stronger Israeli push for its seat in Addis Ababa.
By Caroline Timoney
On 22 June, Qatar called for the national prosecution of those who had committed crimes against international humanitarian law in Syria.
This is recognition that the veto of Russia and China at the United Nations Security Council has prevented any attempt to send the issue to the International Criminal Court (ICC), that Syria has not ratified the Rome Statute and that the Prosecutor of the ICC, Fatou Bensouda, has so far not begun her own investigation into the issue.
But who would have jurisdiction to prosecute these crimes? What laws would be applicable?
In March, the UN Commission of Inquiry on Syria stated that prosecution of lower-level perpetrators of war crimes should not wait for peace in Syria, but should occur in foreign jurisdictions. The Commission intended to continue to lobby for a referral to the ICC or an ad hoc tribunal.
Our first question is what system of law would be applicable. In order to answer this one, we must establish whether this is an international armed conflict or a non-international armed conflict. The conflict in Syria easily meets the test for the existence of an armed conflict: is there protracted armed violence between governmental authorities and organised armed groups or between such groups within a state?
But in order to be international at least two different states would have to be involved on opposing sides. In Syria, although the United States and Russia have provided air support to government troops, their involvement would not elevate the conflict to be international. Although often criticised, due to this point the armed conflict in Syria does not meet this definition and thus remains a non-international armed conflict.
Common Article 3 of the the Geneva Conventions may be applied or customary international law, but not Additional Protocol II as Syria is not a party to the latter.
The date at which the armed conflict began in Syria becomes important as war crimes can only occur during a recognised armed conflict. The International Committee of the Red Cross (ICRC) and the Independent International Commission of Inquiry on the Syrian Arab Republic (COI) date the beginning of the armed conflict between February and August 2012. So were there crimes committed against international humanitarian law from this period?
In a word, yes, for the COI’s report from the period 15 February to 20 July 2012 found that there were reasonable grounds to believe that both Government and opposition forces had committed the crimes against humanity of murder, torture, war crimes and gross violations of both international human rights law and international humanitarian law. These violations included unlawful killing, torture, arbitrary arrest and detention, sexual violence, indiscriminate attack, pillaging and destruction of property.
Human Rights Watch released a report in 2013 that highlighted the lack of capacity of the Syrian air force to conduct precise air strikes leading to the deliberate or reckless attacks on civilians; compounded by the rebel Free Syrian Army basing themselves in civilian areas. The report noted the targeting of bakeries and hospitals both of which place renewed pressure on food supplies and medical resources (personnel, equipment and supplies).
Both Amnesty International and Human Rights Watch documented the use of cluster bombs by government forces, which are banned internationally.
On 4 July, Amnesty International released a new report detailing abuses committed by five armed groups in Aleppo and Idlib since 2012. These are the Nour al-Dine Zinki Movement, al-Shamia Front, Division 16, Jabhat al-Nusra and the Ahrar al-Sham Islamic Movement.
Since 2014 all five of these groups have received military and financial support either from the MOM – a coalition of the United States, France, Qatar, Saudi Arabia, Turkey, United Arab Emirates and United Kingdom – in the form of lethal and non-lethal equipment or, and in the case of the latter two groups, have reportedly received military and financial support from Qatar, Saudi Arabia and Turkey.
The Nour al-Dine Zinki Movement lost their funding from MOM in September 2015 but is thought to still receive financial and military support from Turkey, Qatar and other Gulf states.
The report details cases of abduction, torture, summary killings and the harsh application of Sharia law by inexperienced laymen – all of which are counted as war crimes under the Geneva Conventions.
But who has jurisdiction to prosecute and would it be feasible?
Under the Geneva Conventions of 1949, the concept of universal jurisdiction was introduced. If grave breaches of the Conventions occurred then the states parties are required to search for these alleged perpetrators and arrest them for trial under their own national jurisdiction or handed over to another state to prosecute.
States are not given a choice as this obligation imposes an active duty on states to both arrest and prosecute. A state party to the Geneva Conventions must therefore have domestic criminal legislation in place to try alleged perpetrators regardless of their nationality and the location of the offence.
States in the region that have ratified or acceded to the Geneva Conventions would have jurisdiction to try such a case if they are able to arrest an alleged perpetrator, or if they receive such a perpetrator from another nation in the region. Qatar, for example, signed all four Geneva Conventions in 1975 and Additional Protocol II in 1990, as too did the United Arab Emirates, Saudi Arabia, Oman, Lebanon, Kuwait, Jordan, Egypt and Bahrain.
Turkey, Iraq, Israel and Iran have only ratified the Geneva Conventions, while Yemen, currently in the midst of civil war, has ratified all the above treaties but is probably incapable of effecting a successful prosecution.
Of course the Rome Statute would provide a more coherent legal frame for prosecutors with its expanded list of crimes and greater definitions. However, the only states in the Middle East to have ratified the Rome Statute are Jordan and Palestine.
For example without the Rome Statute, the Geneva Conventions do not explicitly regard rape as one of the grave breaches and cases involving persecution based on gender, sexual slavery and other sexual violence would have to rely on the less clear-cut domestic legislation or customary international law.
The international community, in particular the United Nations Security Council, has often been wilfully blind concerning war crimes in the region. Any international tribunal or referral to the International Criminal Court will take many years to come to fruition; the case of Jean-Pierre Bemba, once vice-president of the Democratic Republic of Congo charged with two counts of crimes against humanity and three counts of war crimes, took six years before judgement was given.
Support for Qatar’s proposal may assist in bringing justice to the victims of such crimes. However, justice will be difficult to find where any evidence has fast been disappearing.
The UN high commissioner for human rights, which collates conflict death tolls, stopped counting Syria’s dead in mid-2014 which may hamper the prosecution of alleged perpetrators, and there is currently no solution to the conflict in sight. But any attempt at prosecution may help counter the current culture of impunity in Syria.
* This article was first published in The New Arab
** Caroline is a researcher at the Afro-Middle East Centre based in Johannesburg. She has a Masters in International Law from the University of Cape Town and her research interests include South African politics, refugee rights and international criminal law.