by Helen Lackner
Yemen remains in the grip of its most severe crisis ever: the civil war between forces loyal to the internationally-recognised government of President Abd Rabbuh Mansur Hadi and the Saudi-led coalition on the one side and those of the alliance between the Houthi rebel movement and former president Ali Abdullah Saleh on the other has devastated the country. ‘Chaos’ is an appropriate term to describe the situation in a turbulent region. With no immediate prospects for the stable, peaceful, and democratic state that hundreds of thousands of demonstrators called for during the 2011 uprisings, what went wrong? Why is there no prospect even of an internationally brokered plan to help end hostilities, let alone find peace? Conflicts in Yemen stem from a combination of internal rivalries between elites, rising demands of an increasingly impoverished population, interventions from the Gulf Cooperation Council (GCC) and western states and neoliberal financiers.
On 12 July 2017, the United Nations Special Envoy told the UN Security Council, ‘The situation in Yemen remains extremely grave. The intensity of the conflict increases day after day…The humanitarian situation is appalling…The country is not suffering from a single emergency but a number of complex emergencies, which have affected more than 20 million people and whose scale and effect will be felt long after the end of the war.’ The UN also declared the spread of cholera in Yemen the worst ever recorded worldwide. There are now over 300 000 suspected cases and over 1 700 people have died as a result of the epidemic. Fourteen million people are food insecure, of whom almost 7 million are at risk of famine.
This paper probes the main causes behind the disintegration of the Yemeni state established in 1990, and discusses early promises that were dashed by a succession of problems culminating in the 2011 uprisings, the failed transition of 2012-14, the Houthi takeover of Sana’a, their alliance with Saleh, and the Saudi-led intervention. It also deconstructs the rationale behind the events that led to the collapse of the Yemeni state, as well as the reasons why the international military intervention, starting in 2015, has ensured the prolonging of the war, and its catastrophic consequences for the population.
Origins of the New Republic
The Republic of Yemen was established in 1990 by the merger of the Yemen Arab Republic (YAR) and the People’s Democratic Republic of Yemen (PDRY), the former resulting from the overthrow of the imamate in 1962 by a group of republican officers, and the latter emerging from British-administered Aden and the protectorates. These states had different political orientations; the YAR following a capitalist one while the PDRY was the only socialist state in the Arab world. Despite these differences, the two states shared common features that made Yemen a nation: a common culture, a similar fundamental social structure despite both regimes’ efforts to transform society in divergent directions, and a shared economic base of agriculture and fisheries with hopes of discovering oil. Families – and both states – relied considerably on remittances from migrant labour elsewhere in the peninsula and beyond.
Unification was the most popular political slogan on both sides of the border, and was embraced by both populations. But unification was born by forceps rather than through a democratic process: Saleh, who was president of the YAR (1978-2017), persuaded southern leader Ali Salem al-Beidh to agree to a full merger only hours after the PDRY’s ruling Yemeni Socialist Party (YSP) had confirmed its commitment to a federal agreement that left considerable autonomy to each former state. This shift laid the basis for tension and led to a short civil war in 1994, decisively won by Saleh with the military support of the factions that had been defeated in the 1986 internal conflict in PDRY, including current ‘legitimate’ president Hadi, and the Salafis returning from Afghanistan.
Mounting Crisis and The 2011 uprisings
The Republic of Yemen’s first two decades were characterised by economic crises. More than 800 000 Yemenis were deported from GCC states when Yemen voted against UNSC Resolution 678 that approved military action against Iraq following its invasion of Kuwait. This reduced foreign economic aid to Yemen to almost zero, and added close to a million job seekers at a time of high unemployment. Although this crisis receded by 1995 and aid was resumed, it is worth remembering that remittances from workers abroad, mostly in GCC states, remained more important to Yemen’s economy than aid. Moreover, remittances directly reached mostly rural households, while aid went to state institutions in the early years. This shift changed in the late 1990s when IFIs actively weakened the state by financing organisations such as the Social Fund for Development and the Public Works Project, which operated according to ‘efficient’ private sector principles, though in fact they are parastatals whose salaries allow them to poach the best staff from line ministries, thus reducing their technical capacity. Other factors, such as climate change, rapid population growth and the corruption of the ‘elite’, contributed to increasing poverty and worsened the gap between the majority of the population and the small group of beneficiaries of the Saleh regime. Earning potential within Yemen and beyond was negatively impacted by constraints on migration and lack of job creation policies at home.
Political tensions increased through three episodes:
Combined with the social and economic crises, the only missing element was a trigger for a major uprising. The turning point came in the form of the apparently successful overthrow of the regimes in Tunisia and Egypt in 2011, encouraging Yemenis to believe that fundamental change was possible. Symbolised in the slogan ‘Saleh out’, the movement included thousands of independent youth and women, and members of opposition parties who were later joined by their leaderships. With a split in the military/security forces in March 2011, the country came close to large-scale warfare between opposing military factions, while the anti-Saleh peaceful civil movement persisted but was increasingly influenced by the political parties, particularly Islah and the Houthi movement. These developments led to intervention by the ‘international community’ in the alleged pursuit of a peaceful solution to the crisis.
The GCC Agreement and the transitional regime
Various events in the course of 2011 gradually weakened the Saleh regime and led, by the end of the year, to the GCC Agreement, which included Saleh’s resignation and his replacement by his former vice-president Abd Rabbuh Mansour Hadi, who was to lead a transitional regime. According to the GCC Agreement, the two-year transition would get the political and economic support of the international community. It included a government of national unity that brought together Saleh’s forces and the opposition’s forces, the restructuring of the military/security sector, and a National Dialogue Conference (NDC) to design Yemen’s post transition structures. This was to be followed by a Constitution Drafting Committee, a referendum on the draft constitution, and elections.
Most of these steps were formally undertaken between 2012 and 2014. However, they failed to achieve the desired result, largely due to inherent design faults, such as allowing Saleh not only to stay in the country, but to continue leading the GPC, and allocating half of the government posts to his party. While this arrangement reflected the actual balance of power in 2011, it jeopardised the national unity government’s potential as ministers from the two main groups (GPC and Islah) competed for power and actively undermined each other. The government developed an unenviable reputation of being Yemen’s most corrupt ever, while failing to halt the deterioration of living conditions. The international community also shared considerable responsibility for the absence of social and economic development. Close to USD 8 billion was pledged for Yemen in September 2012, but these funds were withheld under various pretexts, resulting in continued deterioration in public services.
This period witnessed the quiet rise of the Houthis, who consolidated their control over the northern governorate of Sa’ada. They expanded their control zone militarily and politically westward towards the Red Sea, aiming to control the small port of Midi to ensure they were not landlocked, as well as controlling the entire western part of the border with Saudi Arabia. They also moved east into Jawf governorate, again on the Saudi border, but this time in the belief that the area had significant oil resources. Moreover, they expanded southwards and reached Amran town in mid-2014, only fifty kilometres north of Sana’a, after taking over the stronghold of the senior Hashed leaders.
There have been several points of correlation between the waning transitional regime and the rise of the Houthis. The former was known for its corruption, incompetence, and inability to address the social and economic problems of the population, whereas the latter benefited from their (secret) alliance with Saleh. A final contributor to their success was the internal rivalry within the transitional regime. Hadi had sought to weaken Islah by allowing the Houthis to defeat it, with the intention of controlling the Houthis. One can only presume that he was unaware of their cooperation with Saleh.
In the summer of 2014, large anti-government demonstrations contested the IMF-recommended rises in fuel prices. The Houthis capitalised on their image as an oppressed minority, supporting the popular demands and pushing for government accountability. They managed to take over Sana’a on 21 September 2014, and consolidated their position in the following months.
By January 2015, the submission of the new constitution draft to the post-NDC body was an excuse for a final showdown. Both Houthis and Saleh regarded the proposed federal state as unacceptable for different reasons. Hadi and his new government were placed under house arrest as the Houthi-Saleh military forces moved further south and captured Aden by March. After escaping from Sana’a, Hadi named Aden the country’s interim capital. He and his ministers escaped to Riyadh, while requesting the GCC to provide military support to restore the transitional regime.
A Wider Radius of the War
In the regional context, there was a likelihood of victory in favour of the Saleh-Houthi forces in spring 2015. The newly-appointed minister of defence in Saudi Arabia, ambitious young Mohammed bin Salman (MbS), saw the Yemen downturn as an opportunity to prove himself as a new leader, full of initiative, and determined to solidify Saudi Arabia’s role in the region. He presumed his modern air force, equipped with the latest western weaponry, would easily defeat the ill-trained forces of the poorest Arab state. The Saudi-led coalition destroyed the Yemeni airforce on the first day of the war. By the summer of 2015, it became imperative to involve ground troops, mostly from the UAE and other coalition members, primarily Sudan, alongside mercenaries from various Latin American states. This tactic enabled the coalition forces to ‘liberate’ the area of the former PDRY and some of the northeast of the country by the autumn of 2015. However, the military stalemate has prevailed.
The UN-sponsored negotiation process has thrice failed to stimulate a settlement plan between the warring parties. Since mid-2016, UN mediation has not been able to convene another round of talks. There have been two main political developments in the last two years:
While the Arab Coalition includes several states, the decision-making process is controlled by Saudi Arabia and the UAE. However, there is increasing divergence in policy and strategy between them, most visible in the south. Regardless of the rhetoric, Emirati forces are actively supporting separatists via the STC and the security forces. While claiming to address the problem of jihadi groups (AQAP and the Islamic State group), most of their interventions and arrests are against Islah, considered by the UAE to be Muslim Brothers, whom they pathologically detest. Outsiders have difficulty understanding support for extremist Salafi groups who are more dangerous to a moderate Islam than the Muslim Brothers. Divergence with the Saudi regime focuses on this aspect as it supports Ali Mohsen, who is an important Islah leader, and have had, for decades, very different approaches to Muslim Brother-related institutions.
Deepening humanitarian crisis
In the poorest Arab country with high levels of poverty and malnutrition, the current war has caused the world’s worst humanitarian crisis. Some 22 million of the 29 million population are in dire need of humanitarian assistance; 16 million individuals lack clean water and sanitation; 18 million are food insecure, including 8 million ‘on the brink’ of famine; and more than 1 million are victims of cholera, another world record.
About 16 000 individuals have been killed by coalition air strikes, with the most effective weapon being the blockade of Yemen’s main port Hodeida and other Red Sea ports, as well as the imposed closure of Sana’a airport. Several thousands of Yemenis have died by hunger, disease and other side effects of the blockade, a driving force behind the humanitarian crisis.
An Open-ended war?
The perpetuation of the Yemeni war derives from two main reasons. First, international intervention has added another layer of complex issues, which seem irrelevant to Yemen and Yemenis. The main issue is Iranian-Saudi rivalry. Saudi accusations that the Houthis are no more than ‘Iranian proxies’ have become part of the official discourse throughout the region and beyond, including in the USA. While the reality is that Iran’s actual involvement is minimal, it benefits from a massive propaganda advantage in exchange for limited practical support to the Houthis. This added element tends to complicate the pursuit of a solution.
The second reason is both internal and external vis-à-vis Yemen. In the domestic context, numerous figures on all sides benefit from the war. Not only do they have no incentive to end it, but they have every incentive to prolong it. They include men and boys manning checkpoints and ‘taxing’ passengers and goods (including the basics to keep people alive: food, fuel and people seeking medical aid). Next are the Houthis in areas they control. They both fill their pockets and finance their ‘administration’ through the ransoming of traders and others, but do not use these funds to pay salaries of medical, education or any other civil staff. In the ‘liberated’ areas, the beneficiaries of the war include any number of groups, ranging from AQAP and IS militants to officials of everything from the various southern separatist groups to the few remaining Hadi loyalists. Outside the country, members of Hadi’s government collect massive salaries, submit exorbitant bills to the coalition, but fail to pay staff inside Yemen. This is the irony of the political economy of war.
On the international level, western states sell sophisticated and expensive weapons and ammunition to Saudi Arabia and the UAE. According to SIPRI, in the period 2013 to 2017, Saudi Arabia was the second largest importer of arms in the world, with 10 per cent of all arms imports. Its share of imports had risen by 225 per cent from the previous five-year period. About 61 per cent of its weapons came from the USA, 23 per cent from the UK, and 3.6 per cent from France. In the case of the UAE, the fourth largest importer, the USA is also its largest supplier (58 per cent) followed by France (13 per cent) and Italy (6 per cent). Recently, the US president, Donald Trump, sat with MbS and did a ‘show-and-tell’ display of the latest proposed sales.
This paper has provided a rapid sketch of the events which led to Yemen’s disintegration. Fundamentally, the collapse is due to a combination of internal rivalries between elites, the rising demands of a population which has experienced increased hardship, and the impact of international interventions, both from neoliberal international financiers and politically-motivated actors in support or opposition to the internal rival factions.
The Yemeni war shares some characteristics with the Lebanese civil war, with different external actors attempting to use local factions to pursue international rivalries. Yemenis suffer the consequences to a nightmarish extent. A small ray of hope emerged early 2018 with the appointment of a new Special Envoy of the UN Secretary General, as well as the presence in the UNSC of members who are committed to end this war. This window of opportunity, however, will demand major transformations of the current UNSC resolutions, as well as a new complex and sophisticated approach involving many actors currently excluded from the official negotiating process. This will not be easy, and success is not guaranteed, particularly in view of the complicated international dimension of Saudi-Iranian rivalry.
* This article was first published by AlJeazeera Centre for Studies
* Helen Lackner is a research associate at the London Middle East Institute in SOAS and author of the forthcoming book Yemen in Crisis: Autocracy, neoliberalism and the Disintegration of a State
 Helen Lackner (2017). Yemen in Crisis: Autocracy, Neo-Liberalism and the Disintegration of a State, London: Saqi Books.
 Lackner (2017). “Yemen in Crisis”.
 A detailed analysis of the transition can be found in Helen Lackner (2016), “Yemen’s Peaceful Transition from Autocracy: could it have succeeded?” Stockholm, International Institute for Democracy and Electoral Assistance.
 UN News (2018). “Secretary-General's remarks to the Pledging Conference on Yemen”, 3 April. https://www.un.org/sg/en/content/sg/statement/2018-04-03/secretary-generals-remarks-pledging-conference-yemen-delivered.
 SIPRI (2017. “Trends in international arms transfers, 2017”. https://www.sipri.org/publications/2018/sipri-fact-sheets/trends-international-arms-transfers-2017.
By Justin Podur
Yemen is a small, poor country in a region empires have plundered for centuries. This civil war is a local struggle that has been escalated out of control by the ambitions of powers outside of Yemen—mainly Saudi Arabia.
The British Empire ruled the Yemeni city of Aden in South Yemen as a colony, a refueling station for ships on the way to the Empire's Indian possessions. Gaining independence in 1967, South Yemen had a socialist government from 1970 on, becoming the People's Democratic Republic of Yemen (PDRY).
Northern Yemen was ruled by a king from the city of Sana'a who followed of the Zaydi denomination of Islam, clashing periodically with both the British and with the Saudi kingdom over borders in the 1930s. Arab nationalist revolutionaries overthrew the king in 1962, starting a civil war between nationalists, backed by Arab nationalist (Nasserite) Egypt and royalists, backed by Saudi Arabia, Jordan, and Iran (then a monarchy too). A peace deal was reached and by 1970, even Saudi Arabia recognized North Yemen as the Yemen Arab Republic (YAR).
North and South Yemen talked about unification throughout the 1970s and '80s, and it finally happened in 1990, after the fall of the Soviet Union that had been South Yemen's most important ally.
Ali Abdullah Saleh, who was killed this December 3, was a military man who had been president of North Yemen since he was appointed by a junta in 1978. He became president of the unified country in 1990.
Saleh had to navigate a dangerous time for the Arab world. When Saddam Hussein's Iraqi forces invaded Kuwait in 1990, the US under Bush declared a New World Order, showing that the US could now operate in the region without any concern about a Soviet deterrent. Yemen happened to be on the UN Security Council in November 1990 when Resolution 678 authorizing the use of force to remove Iraq from Kuwait—authorizing the first Gulf War, in effect—came up for debate. Yemen voted against the resolution. The American representative famously told his Yemeni counterpart, “That was the most expensive vote you ever cast.” Yemen, which had hundreds of thousands of workers in the oil-rich Gulf countries including Kuwait, found its workers expelled and its Western aid programs cut when the war was over. Yemen was made an example of.
The post-1990 war sanctions on Iraq, which by most estimates killed hundreds of thousands of children through malnutrition and preventable disease, as well as the US military bases in the Arabian peninsula, were extremely unpopular in Yemen (as elsewhere in the Arab world). So was the lack of progress in ending the occupation of the West Bank and Gaza by Israel, as people gradually realized that the Oslo Accords had frozen the occupation rather than ending it.
People from wealthy and powerful Yemeni families, among them veteran of the Afghan jihad Osama bin Laden (in fact there were numerous Yemenis who fought against the Soviets in Afghanistan), wanted to raise a local Arab force to secure the Arab peninsula and have the US military leave. But the idea was a non-starter with the Saudi kingdom that hosted the Americans.
When bin Laden's al Qaeda attacked US embassies (killing 44 embassy personnel and 150 African civilians), a US naval vessel (the USS Cole), and finally US civilians on 9/11, the US declared a war on terror. Saleh had learned his lesson from 1990 and agreed to cooperate with the US after 2001.
By this time, Saleh had been in power for more than two decades, and had enriched himself and his family in the process (his son, Ahmed Saleh, was a commander in an elite army unit). The vice-president, Abdrabbah Mansur Hadi, also headed a powerful and wealthy family. Other “big names” in Yemen include the Al-Ahmar family (which includes the current Vice President in exile and army general Ali Mohsen al Ahmar, billionaire media owner Hamid al Ahmar, and the founders of the Islamist, Muslim Brotherhood affiliated Islah party) and of course the Houthi family of Sa'ada, a mountainous governorate on the border with Saudi Arabia. The Houthis, like the old kings of North Yemen, are of the Zaydi denomination.
The term “tribe,” used by the British Empire for its imperial purposes of classification and rule, refers to a genuine social phenomenon, but is not especially useful in explaining the politics of Yemen. The country's elite is indeed organized in extended family networks, but this is arguably not so different from Western countries (how many Bushes and Clintons have participated in ruling the US empire by now?). Politicians and bureaucrats use public office to enrich themselves.
This, too, is not so different from Western countries, with the Trump brand being the starkest example. The Yemeni version of elite profiteering is exemplified in the smuggling of diesel fuel out of the country. Sarah Philips, author of Yemen and the Politics of Permanent Crisis, cites analyses suggesting that 12% of Yemen's GDP is smuggled out, the profits siphoned off by the elite – dollar estimates run as high as $900 million, with reports of a single man from a prominent family taking $155 million in smuggling profits in one year.
As Yemenis watched Israel crush the second Intifada from 2000 on, as well as the invasions and occupations of Afghanistan in 2001 and Iraq in 2003, Saleh's cooperation in the war on terror became ever more unpopular. One prominent scion of the Houthi family, Hussein al-Houthi, led followers in Sa'ada in a famous chant: “God is great, death to America, death to Israel, curse on the Jews, victory to Islam.”
In the chant, "curse on the Jews" stands out from the group of otherwise hyperbolic items seeking victory for one's own side and death to the other. Even before this civil war, the Jewish community in Yemen was very small and long-suffering. Ginny Hill, author of the 2016 book Yemen Endures, found in her travels that “prejudice against the Jews was prevalent and unabashed,” and that Yemeni Jews in Sa'ada and elsewhere have suffered greatly from being caught in the middle of the Houthi insurgency.
Provoked by the Houthi chant and hoping to show his eagerness to fight the war on terror, Saleh sent the army into Sa'ada in 2004. The Houthis fought back. The army killed Hussein al-Houthi, who became a martyr of the Houthis' cause. Six waves of warfare followed over the next seven years, as Saleh's forces kept trying to quell the Houthis, whose power base in the north continued to grow. Saudi Arabia stepped in to support Saleh in 2009, and the Houthis responded with a quick raid from Sa'ada into the Saudi kingdom itself.
Meanwhile, in what had been South Yemen, al Qaeda in the Arab Peninsula (AQAP) was growing as well, and also challenging Saleh's government. President Obama's drone program blasted away in the south, leaving civilian casualties and terror in its wake. Saleh's strategy was to focus on fighting the Houthis and make exaggerated claims that they were sponsored by Iran, while keeping a lighter touch with AQAP, which had more powerful patrons in Yemen's elite.
At the same time, the Saudi royals were escalating their arms purchases, with contracts in the tens of billions with the US (and a $1.5 billion contract with a Canadian company now famous in that country). Saudi oil sales to and arms purchases from the US underpin the unbreakable bond between the kingdom and the empire. It explains why you hear much more about Russian (a competitor in the global arms trade) than Saudi (the greatest and most reliable purchaser of US arms) collusion in the US media. It also explains why the US provides military advice and help with targeting and intelligence to the Saudis as they use all their expensive purchases destroying Yemen.
In 2011, the Arab Spring came to Yemen and an alliance from the elite families joined the mass call for the end of Saleh's rule. Saleh first agreed to step down, then refused. He was injured by a bomb blast in June and went to Saudi Arabia for medical treatment. He finally did step down, handing power over to his vice-president, Hadi, in 2012.
Hadi presided over a constitution-drafting exercise. One feature enraged the Houthis: a plan to redraw the regions of Yemen, making Sana'a and Aden self-governing and merging Sada'a into a new highland governorate, “a formation that would deny the Houthis control over the Red Sea coast to west, cut them off from natural resources to the east, and fence them up against the Saudi border to the north,” as Ginny Hill wrote.
The Houthis, in alliance with the ex-president Saleh, arrived in force in the capital, besieging the presidential palace in 2014 and taking it at the beginning of 2015. Hadi fled to Aden, where he declared that he was still the lawful president of Yemen.
Saudi Arabia began bombing Yemen in support of Hadi in March of 2015. The Saudi intervention magnified the humanitarian impact of the civil war into a full-blown catastrophe, bombing, besieging, and blockading the entire country to try to force the Houthis out.
The Saudi blockade and bombing have scaled up a local power struggle to genocidal proportions. They believe Yemen is their backyard and that it is their right to impose a solution. Military victory has proven elusive for them, but their unlimited resources and the wide license given them by the Western media to freely commit crimes has allowed them to keep raising the stakes and nudging Yemen towards catastrophe.
The Houthis have held on, however, withstanding the bombardment and siege, even as the humanitarian catastrophe continues to expand. By now, the casualty figures are more than 10,000 dead, two million displaced, 2.2 million facing starvation, and one million infected with cholera since 2015 (27% of whom are under 5 years old). In addition to directly helping the Saudi military use its weapons, the US, including the media, has continued to run interference for the Saudi intervention. The humanitarian disaster is presented as a natural disaster, not a direct outcome of the way the Saudi kingdom has pursued the war.
Saleh, a wily operator who had survived in power since 1978, could not survive this last alliance with the Saudis: he was killed within 24 hours of making it. This December 3, Saleh announced he was switching sides, leaving his alliance with the Houthis and joining Hadi and the Saudis. The Houthis quickly routed his forces in the capital and blew up his house. The next day they stopped him at a checkpoint and killed him too, announcing that they had avenged Hussein al-Houthi. Saleh's son Ahmed quickly announced his plans to avenge his father.
The UN, Oman, Iran, and others have put forward peace plans to end the Yemeni civil war. Most feature a national unity government that includes the Houthis, who will convert their movement into a political party, with elections to follow. Saleh switching sides and the Houthi killing him makes a peace deal much less likely in the short term. But the biggest obstacle to peace remains Saudi Arabia, which has also been the biggest escalating force of the war.
* This article was first published on alternet.org
The 4 December death of former Yemeni president Ali Abdullah Saleh, at the hands of his former Houthi coalition partners, is a culmination of the differing interests that informed the coalition’s initial inception, and alludes to the intractable and unwieldy nature of the conflict’s many belligerents. Saleh’s death foreshadows further fragmentation of the warring coalitions, and is likely to ensure that ‘smaller’ wars transpire in the country’s northern highlands in addition to the existent southern conflicts. In addition, the rapid consolidation of the Houthi in Sana'a represents a blow to Saudi Arabia’s attempts to extricate itself from the unwinnable Yemeni quagmire and the UAE’s intention to support regional strongmen in an attempt to contain participatory Islamists.
Having once equated the task of governing Yemen to ‘dancing on the heads of snakes’, Saleh’s death was the result of his incessant duplicity, which saw him fight six wars with the Houthi between 2004 and 2010, with limited success, yet later successfully enticing them to unite with him in efforts to force the Abd Rabbuh Mansur Hadi government out of Sana'a in 2014. Prior to this Saleh emerged victorious in two civil wars between Yemen’s South and North; angered the USA by not supporting the 1991 Gulf War, but then received US support for his claimed role in the ‘global war on terror’; and withstood the 2011 Arab uprisings, in which he survived a failed suicide bombing in 2011. At the heart of Saleh’s actions was his belief that he alone could only hold Yemen together, and that the November 2011 Gulf Cooperation Council Initiative, negotiated by GCC states in an attempt to contain the Yemeni uprising from initiating real change, had betrayed him. Under the initiative, Saleh received immunity in return for his transfer of power to his then deputy, Hadi. He remained in control of the General People’s Congress (GPC) and was allowed to remain in Yemen, although he was forced to cease his attempt to transfer power to his son Ahmed Ali Abdullah Saleh. Saleh’s thirty-three years in control of Yemen had allowed him to entrench alliances with the country’s disparate military, civil and tribal elements, and he remained in de facto control over the elite Republican Guard and tribal leaders in the North. His acquiescence was thus imperative in ensuring the success of the Houthi takeover of Sana'a; Republican Guard forces refused to halt the Houthi move southward, especially in Sana'a and Abyan.
However, the partnership between Saleh’s GPC and the Houthi was bound to fail in light of their differing agendas, and was mainly a ‘marriage of convenience’. At the time, both Saleh and the Houthi were aggrieved at being left out of governing following the implementation of the GCC initiative. Despite having a place at the national dialogue conference between March 2012 and January 2014, which intended to chart a path forward for the country, both quickly realised that a Hadi-Islah coalition still controlled the day-to-day running of the state.
The Houthi remain sceptical of the GPC in light of their history of opposition, while many in the GPC oppose the Houthi’s religious fervour. The alliance was thus tactical; both sought to extend their influence by creating parallel governance structures. Already in February 2015 Saleh criticised the Houthi decision to dissolve the then government, and in March that year, Houthi–GPC conflict erupted over control of the Raymat military base in Sana'a. The subsequent Saudi coalition aerial intervention in March 2015 only served to postpone this inevitability.
Tensions had since increased owing to Houthi weariness over UAE attempts to lure Saleh away from the coalition. As part of these attempts, in June 2017 Saleh’s son Ahmed, the current ambassador to the UAE, met with Ahmed al-Asiri, Saudi Arabia’s former army spokesperson in charge of the Yemeni war and current advisor to Saudi’s defence minister, crown prince Mohammed bin Salman. Subsequently, ties frayed between Saleh and the Houthis as the Emirates sought to more overtly back the former president as an alternative to Hadi. In August, the intra-coalition violence heightened when the Houthi unsuccessfully sought to halt the GPC’s thirty-fifth anniversary celebrations. Last week’s clashes resulted in the deaths of over two hundred people and Saleh announcing his defection. The Houthi had been preparing for this eventuality since August and had consolidated control of the North’s religious institutions and finances.
Seeking to extricate itself from Yemen, Saudi Arabia supported the defection, and has since provided aerial cover to troops loyal to Saleh. However, Saleh’s death likely means that Mohammed bin Salman (MBS) has miscalculated on regional matters once again, especially since the Houthi have largely consolidated control over Sana'a. Further, the reported clash between MBS and Ahmed Ali Abdullah Saleh in 2015 would ensure that Riyadh does not wholly support him as an alternative to Hadi, inhibiting the fruition of UAE interests in the country. This is in a context in which Abu Dhabi is supporting the Southern Hirak and Southern Belt forces in Aden and Taiz in an attempt to counter the influence of the participatory Islamist Yemeni Islah party, which still receives support from Saudi Arabia.
Houthi troops have since managed to consolidate control of the Sawad and Raymat military bases, the two main GPC-affiliated bases in Sana'a; Saleh’s nephew Tariq, who commanded the Republican Guard, was killed, and his two sons, Salah and Madyan were arrested; and tribal shaykhs, such as the Hashed’s Mabkhout Mashraqi, have been forced to defect. This alludes to the fact that although the Houthi governance of the North is tenuous, the group’s military capacity has increased, and its control over finances in Sana'a has meant that it remains able to pay combatants.
Consequently, clashes in northern provinces are likely to intensify, especially since many tribes support Saleh, and because the UAE will intensify its support for Ahmed. Intra-northern clashes, similar to those between groups in the South, will increase, making a political solution more unlikely. This is especially since the GPC remains popular, as demonstrated by the tens of thousands that gathered in Sabeen Square in August 2017, in defiance of Houthi attempts to halt the party’s thirty-fifth anniversary celebrations. Further, the party’s long existence has enabled it to develop its institutional capacity, and it continues to maintain influence over Republican Guard units. In addition, Saleh’s death will make it more difficult for MBS to conceive a face-saving solution to the conflict, even though the Houthi have expressed their willingness to enter into negotiations. The current civil war is thus likely to continue, ensuring the country’s further fragmentation, and making it more difficult to envisage a solution that will allow the various political, tribal and military elements to reunite.
By Afro-Middle East Centre
The increasing tensions between forces loyal to former Yemeni president Ali Abdullah Saleh and the Houthi are a symptom of the differing interests both have maintained from the initial stages of Yemen’s current civil war. These are being manipulated by countries in the region, especially the United Arab Emirates, as Abu Dhabi seeks to influence the path and goals of the Saudi coalition.
The recent spat between Saleh and the Houthi originated from a 19 August speech by Abdel-Malek Houthi, in which he accused Saleh’s forces of playing a double game in the country by claiming to support the Houthi coalition while also negotiating with the Saudi coalition. This is especially since Saleh has expressed his willingness to negotiate with Saudi Arabia. The speech reiterated Houthi grievances of not being proportionally represented in governance structures. Despite being jointly represented in the supreme political council, the Houthi are weary of not participating in local structures. Saleh’s 20 August response, accusing the Houthi of corruption and comparing the group to a militia, was also criticised as crossing a red line and seen as a declaration of war.
It was feared that these differences would erupt into violence at the thirty-fifth anniversary celebration of Saleh’s General People’s Congress (GPC) on Thursday, 24 August, especially since thousands were expected to attend, and because the Houthi leadership criticised the gathering and deployed troops to prevent citizens from attending. Despite these measures, the celebration went ahead; Saleh vehemently criticised Houthi corruption, while also astutely expressing his opposition to the Saudi intervention.
Violent clashes were largely contained; however, Houthi combatants prevented citizens residing outside Sana'a from attending. The past week’s events have rendered the alliance’s survival tenuous, especially since the two have openly criticised each other.The killing on Saturday of Colonel Khaled al-Rida, deputy head of the GPC’s foreign relations committee, has worsened the antagonism, and it seems only a matter of time before the coalition falls apart.
The Houthis still require the support of Saleh’s well-equipped troops to contain the Saudi intervention, especially in Sana'a where they lack support, and will thus act to contain the situation. However, as Rida’s killing indicates, the popular resistance committees are difficult to control, and coordination between them and Saleh is limited. Rida’s assassination has given GPC officials the impression that it was deliberately allowed by the Houthis, leading to the GPC accusation that the Houthis are a ‘group that knows no morality or oaths’. It is, however, unlikely that the Houthi would have actively sought Rida’s death, thus running the risk of losing GPC support – which is crucial to maintain control over Sana’a. There is, clearly, a breakdown of communication between the allies, a factor that will be further weakened as the mistrust between them increases.
Saleh conversely will likely accept a deal, which would see him being incorporated into a new Yemeni government. This is in a context wherein the success of the celebration, which saw tens of thousands of Yemenis defy the Houthi ban, clearly indicates his enduring popularity, and wherein regional powers are seeking exit strategies.
This was predictable, especially since the coalition was formed to realise different objectives, and was thus more a marriage of convenience than a strategic pact. Saleh has sought to protect his influence following the November 2011 GCC agreement, which saw him forced to hand over power to his deputy, Abd Rabbuh Mansur Hadi. He thus coalesced with the Houthi to undermine Hadi’s administration. The Houthi conversely saw the GPC, specifically the powerful military units allied to the party, as critical in allowing the group to extend control over Aden and ward off Saudi intervention. Already in March 2015, the two groups clashed over control of the Raymat military base, and in February that year, Saleh criticised the Houthi decision dissolving the government. Saudi Arabia’s intensified aerial campaign since March 2015 forced the two groups together, and in November 2016 they formed a ‘national salvation government’ headed by Abdel Aziz Habtour. Notably, Saleh fought four wars against the Houthi between 2004 and 2010, creating an intractable trust deficit and calcifying Houthi paranoia over Saleh’s double game.
In recent months, mistrust between the two has also been influenced by the UAE’s attempt to court Saleh in line with its stance of backing strongmen to reverse the gains of the 2011 uprisings. In June, Abu Dhabi reportedly organised a meeting between Saleh’s son Ahmed, the current Yemeni ambassador to the UAE, and Ahmed al-Asiri, Saudi Arabia’s former army spokesperson in charge of the Yemeni war and now advisor to the kingdom’s defence minister, crown prince Mohammed bin Salman. Further, leaked emails of the emirate’s Washington ambassador Yousef al-Otaiba, show the UAE as envisaging a role for Saleh in a Yemeni peace agreement.
Moreover, in the south, the UAE has continued to finance and arm separatist forces in Aden, and Salafi anti-Islah forces in Taiz and Hadhramawt. Abu Dhabi perceives participatory Islamist parties like Islah as posing an existential threat to the regime. Further, in line with its attempt to consolidate control over the Bab al-Mandeb waterway, it has also begun constructing a base on the island of Socotra together with its bases in Berbera (Somaliland) and Assab (Eritrea).
These have severely weakened the Saudi coalition’s efforts to recapture Sana'a, and even parts of Taiz; Hadi has accused them of being an occupier and not a liberator. The battle lines have thus remained largely constant, despite two years of external intervention. The UAE had already halted frontline operations in June 2016 in line with its ambitions to empower proxy forces, while the Saudi Crown Prince, Mohammed Bin Salman, has expressed his desire to exit the two-year long expensive military adventure, which has cost kingdom between two and five hundred million dollars daily.
Friction has intensified, especially since the institution of a transitional council to govern areas in the South by the separatist southern Hirak movement in May 2017. It is thus difficult to envisage a unified Yemen; Hirak has consolidated control over Aden, while UAE-supported forces in Hadhramawt and Taiz will be difficult to dislodge, especially since it is unlikely that Abu Dhabi will sanction a partnership between them and Islah. It is also significant that prior to 1994, Yemen was two distinct countries with two different models of governance. Hirak and likeminded groups are greatly influenced by this, and by the fact that following unification power has been concentrated in the north.
Saudi forces have since been deployed to protect the presidential palace in Aden, as well as its air and naval ports, at Hadi’s request. This indicates that the differing Saudi and Emirati interests in the conflict may be intensifying. Further, a pro-Hadi parliamentary delegation met senior Saudi officials, including Mohammed Bin Salman – the individual responsible for initially sanctioning the Saudi intervention – in the past week, prior to the Saudi troop deployment. It is significant that Ali Mohsen al-Ahmar, Yemen’s current vice president, is close to both Islah and elements within the Saudi regime. This militates against Riyadh being swayed by the UAE to combat Islah, a move that will inadvertently work against its interests, especially if it leads to the secession of the south.
While this ‘new’ fragmentation may see a reduction in the intensity of the Saudi coalition’s interference in the country, it will be replaced by more localised conflicts. This is especially since tribal differences have hardened, and because the conflict has engendered a situation, wherein provinces such as Hadhramawt and Marib now possess autonomy, which they are unlikely to relinquish. Further, the separatist Hirak and Houthi now possess more sophisticated arms. The foregoing will ensure that the country remains in conflict unless a solution that incorporates all the different actors is formulated. However, regional contestations over the roles of Iran, participatory Islamists and militants such as Al-Qa'ida in the Arabian Peninsula have ensured that peace talks have remained elusive. This is especially since the fulfilment of UNSC Resolution 2216, which advocates a Houthi and Saleh arms surrender unrepresentative of the balance of forces, continues to be the basis for negotiations.
The UAE likely sees the current stalemate as a means of installing a client regime, and is positioning itself to maintain influence in both Aden and Sana'a, especially since secession would likely impede its ability to maintain its bases in Socotra. Further, both Saleh and Aidarus Al-Zubaidi (the former governor of Yemen and head of Hirak’s Southern Transitional Council) are strongmen who view Islah negatively. It is however questionable that Riyadh will alter its stance in favour of reincorporating Saleh, even though Mohammed bin Salman has expressed his desire to exit the Yemeni conflict. Riyadh still views Saleh and the parts of the GPC he controls as renegades, especially since the kingdom was influential in negotiating the November 2011 GCC agreement.
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.