Pakistan: NATIONAL SECURITY
Armed Forces Overview: The military is formally called the Pakistan Armed Forces, and as of 2004 consisted of approximately 619,000 active personnel in the army (550,000), air force (45,000), and navy (24,000), as well as 513,000 reserves. Under the 1973 constitution, the federal government controls the armed forces, and the president is the commander in chief. The Ministry of Defence has a permanent staff of civil servants headed by the defense secretary general, and the minister of defense is a civilian member of the prime minister’s cabinet. The Joint Chiefs of Staff Committee deals with problems concerning military aspects of state security and is charged with integrating and coordinating the army, navy, and air force. The committee’s secretariat acts as the principal link between the service headquarters and the Ministry of Defence. The Directorate for Inter-Services Intelligence (ISI) is of particular importance at the joint services level because it manages covert operations outside of Pakistan (and in internationally disputed areas) and because it has been involved in domestic politics, usually to keep track of the incumbent regime’s opponents. The chief of the army staff (COAS) is the key power holder in the armed forces and is also one of the triumvirate that runs the country, along with the prime minister and president. The COAS usually operates from army headquarters in Rawalpindi. General Pervez Musharraf acts as both president and COAS. Musharraf also heads a National Security Council composed of politicians and senior military officers.
Under the constitution, the military is responsible for defending the nation against external aggression and threats of war and is to aid civil authorities only when called to do so. The military is forbidden constitutionally from acting independently of the elected political leadership in domestic matters. However, from 1947 to 2004 military generals have acted as head of state for nearly 30 years, and in times of civilian government the armed forces have routinely intervened on domestic and foreign policy issues. The military justifies its consistent involvement in politics as protection from malign foreign interests and corrupt and incompetent politicians. Although public opinion surveys are rare, it appears that the public dislikes military rule, yet consistently has a more favorable view of the military than of elected officials.
Because the military conducts its affairs with carefully defended secrecy, the degree to which army officers and personnel are religiously motivated is debated. However, Western analysts tend to conclude that whereas the military increasingly sees itself as serving Islam, the institution’s decision making is still largely secular. Military intervention in politics is designed to limit civilian involvement in sensitive matters, such as Kashmir, nuclear disarmament, internal military personnel decisions, and defense spending. The military also is extensively involved in the economy, and military enterprises produce approximately 3 percent of the gross national product. Military enterprises include the Army Welfare Trust (AWT), whose assets include the Askari Bank, one of the country’s largest financial institutions, and the Fauji Foundation, which is the country’s biggest conglomerate. These and other military financial institutions often are exempt from taxes and regulations covering the manufacturing sector and asset disclosure.
With regard to military strategy, the military’s budget and personnel have reduced strategy to largely defensive objectives, such as limited offensive tactics in bordering areas (particularly Kashmir), use of irregular forces, and deterring and countering possible attacks from foreign powers (particularly India). The military’s history of far lower military expenditures and capabilities than India has prompted the military to attempt to impose high costs on India to force its withdrawal from Kashmir. Furthermore, the military hopes that its nuclear capabilities can reduce the disadvantages of its conventional forces. However, the theoretical deterrence between nuclear powers has not limited military engagement between India and Pakistan—as exemplified by the 1999 Kargil War—and analysts believe that Pakistan’s military strategy historically has suffered from overly optimistic assessments of potential success and underestimations of diplomatic and military losses, as well as a lack of contingency planning.
Foreign Military Relations: Pakistan has sought to become an important actor in international politics, but its foreign military alliances often are intended to address matters with bordering countries. Other countries have established alliances with Pakistan to address their own strategic interests in South and Central Asia, and these alliances have tended to be ephemeral. Pakistan’s military relationship with China started in the 1970s as a way of countering India, but China has softened its relations since India’s military strength has increased. Still, Pakistan and China maintain a military relationship, including periodic joint military exercises. United States aid in the 1980s was significantly reduced after the Soviet Union pulled out of Afghanistan in 1989 but resumed after the September 11, 2001, terrorist attacks. Moreover, in March 2004 the United States granted Pakistan status as a major non-North Atlantic Treaty Organization ally, which provides access to U.S. military equipment and cooperation. In fact, the United States is one of the largest suppliers of military equipment to Pakistan along with China and Russia. Pakistan’s military relations with India have been contentious, and the two countries fought a limited conflict in Kashmir in 1999. However, under the 1999 Lahore Agreement the two countries provide each other with advance notification of missile tests, and in 2003 and 2004 they engaged in several high-level discussions that have eased tensions.
External Threat: The military and public generally view India as the nation’s primary security threat, and opposition to India is often a greater source of social cohesion than either Islam or Urdu. India’s far greater military capabilities have been a source of both fear and frustration, and many suspect that this imbalance has prompted Pakistan to engage Indian forces indirectly through supporting insurgents morally, financially, or otherwise. Whether Pakistan has done so is debated, but it seems clear that the country’s newly demonstrated nuclear capabilities have helped level military differences with its rival neighbor. Yet India is not the country’s only security concern, as Pakhtun and Balochi irredentist movements in Pakistan’s western provinces have contributed to sometimes-tense relations with neighboring Afghanistan.
Defense Budget: According to World Bank figures for 1988 to 2003, Pakistan’s military expenditures represented 25–29 percent of central government expenditures and 6–7 percent of gross national income. In fiscal year (FY) 2004, military expenditures constituted 18 percent of government expenditures. Historically, Pakistan’s governments have used defense spending to stimulate economic growth.
Major Military Units: The army, with 550,000 active personnel and 500,000 reserves, is organized into nine corps located at Bahawalpur, Gujranwala, Karachi, Lahore, Mangla, Multan, Peshawar, Quetta, and Rawalpindi. The Northern Area Command is headquartered at Gilgit and is directly responsible to army general headquarters. The army has 2 armored divisions, 19 infantry divisions including 1 area command, 9 corps artillery brigades, 26 independent brigades (7 armored, 1 mechanized, 6 infantry, 5 artillery, and 7 engineer), 3 armored reconnaissance regiments, 1 special forces group, and 1 air defense command. The navy has 24,000 active personnel—including 1,400 marines and 2,000 in the Maritime Security Agency—and 5,000 reserves. The navy has four commands: fleet, logistics, naval installations in the north of Pakistan, and fleet headquarters at Karachi, the nation’s only major naval base. Two bases are under construction at Gwadar and Ormara. The air force has 45,000 active personnel and 8,000 reserves. Air force headquarters in Rawalpindi has directorates for operations, electronics, administration, and maintenance. The air force has three regional air commands: Northern (in Peshawar), Central (Sargodha), and Southern (Faisal).
Major Military Equipment: In 2004 the army had an estimated 2,461 tanks, 1,146 armored personnel carriers, 1,829 tube-launched optically-tracked wire-guided “TOW” missiles, 260 self-propelled artillery, 52 multiple rocket launchers, 2,350 mortars, 165 surface-to-surface missiles, 10,500 antitank guided weapons, and 1,900 air defense guns. The army also had 80 observation aircraft, 45 liaison aircraft, 2 survey aircraft, 22 attack helicopters, and 131 transport helicopters. The navy had 8 anti-surface warfare submarines, 3 inshore submarines, 7 frigates, 6 missile craft, 3 coastal patrol craft, 6 combat aircraft, and 9 armed helicopters. The air force had 415 combat aircraft and no armed helicopters. Pakistan became a nuclear state in 1998 and periodically tests nuclear-capable short- and medium-range missiles.
Military Service: Military service is voluntary, and active-service personnel are liable for duty eight years after active service ends. Officers are obligated to serve until 50 years of age, other ranks until 45 years of age. Women serve in the military but are a numerical minority.
Paramilitary Forces: The central government (specifically the Ministry of Interior) controls the coast guard, paramilitary forces, and numerous specialized police agencies, such as the Federal Investigative Agency and railroad and airport police forces. However, provincial governments organize paramilitary forces, which often act as an extension of the army to assist provincial police in internal security matters. In addition, senior government officials often have strong control over security forces and have at times established personal security forces. The largest paramilitary organization is the 185,000-member National Guard, which comprises the National Cadet Corps, the Women Guards, and the Janbaz Force. The Frontier Corps reportedly has 65,000 members and is responsible for Balochistan and the North-West Frontier Province. The Pakistan Rangers has 35,000 to 40,000 members and deals with unrest in Punjab. The Northern Light Infantry has an estimated 12,000 members, and the Maritime Security Agency, which is under the navy’s direction, has an estimated 2,000 personnel.
Foreign Military Forces: Pakistan hosts 45 military observers from nine countries stationed in Jammu and Kashmir under the United Nations Military Observer Group in India and Pakistan (UNMOGIP). U.S. military forces occasionally work with Pakistan’s military against insurgents supporting the Taliban and al Qaeda in areas of Pakistan bordering Afghanistan.
Military Forces Abroad: In 2004 Pakistan’s military participated in United Nations peacekeeping missions in Burundi, Côte d’Ivoire (9 personnel including 3 observers), the Democratic Republic of the Congo (1,092 personnel including 26 observers), East Timor (78 personnel including 5 observers), Georgia (8 observers), Liberia (2,762 personnel including 16 observers), Sierra Leone (3,865 personnel including 15 observers), Serbia and Montenegro (1 observer), and Western Sahara (7 observers).
Police: Provincial governments are charged with police administration in their respective jurisdictions, and provincial police forces operate independently. The federal government is largely uninvolved in provincial police administration but controls police in federally administered and tribal areas. The federal minister of interior supervises police nationwide, and the Police Service of Pakistan (PSP) selects, trains, and assigns senior officers to provincial or central government agencies. Although service in the PSP is competitive and well paid, lower-ranking police personnel often have far lower education, skills, and motivation. Police often are accused of routine extortion, violating civil liberties, and acting to preserve the tenure of government officials rather than the rule of law. The quantity of overall crime and various types of crime (such as murder and banditry) increased steadily from 1992 to 2003, and the extensive availability and use of automatic weapons in Pakistani society is often referred to as the “Kalashnikov Culture.” Furthermore, the population generally does not perceive the police to be effective against crime or publicly accountable.
Internal Security and Terrorism: Pakistan has numerous categories of terrorism and internal threats, with most insurgent groups identifying themselves as religious or ethnic separatists. Some political parties represent distinct religious and ethnic communities, and rivalries among these parties have been violent. Violence between religiously identified groups is rarely based solely on differing religious doctrines but rather the different social, political, and economic statuses that correlate with religion. Some Islamic militias have connections to the Taliban and al Qaeda, which was linked to two assassination attempts on President Musharraf in December 2003. Militant organizations have some influence on Pakistan’s foreign policy, and militants in Pakistan (such as Harkat-ul-Ansar) have assisted militant organizations in countries whose governments are perceived as oppressing Muslims. There are also concerns that Pakistan’s nuclear arsenal could be seized by insurgents in an event such as a coup or assassination of the nation’s president. However, the government claims that it has enacted security measures to prevent such a threat and that the numerical and political superiority of religious moderates over religious extremists is a substantial obstacle to the latter’s access to Pakistan’s nuclear weapons.
The most significant violence between religious groups is between Islamic militias, the Shia militia Sipah-e-Mohammed Pakistan (SMP, “Army of Mohammed”) and the Sunni militias Sipah-e-Sahaba Pakistan (SSP, “Army of the Friends of the Prophet”) and Lashkar-e-Jhangvi (LeJ, “Army of Jhangvi”). The violence has, at times, disrupted both civil order and the economies in areas of Sindh and Punjab provinces. The violence has resulted in large part from the influx of weapons and returning mujahideen from Afghanistan, as well as financial support from large landowners, drug lords, and some political parties. Tensions between ethnic groups often stem from perceptions that other ethnic groups dominate politics and economics to the detriment of minority ethnicities. The Muhajir Quami Movement (MQM) was involved in substantial conflict in the 1980s and early 1990s but has since been far more quiescent as a result of internal factionalism and an apparent lack of motivating doctrine. The only other significant ethnic violence involves secessionists in Balochistan, who contend that the government is appropriating the province’s mineral wealth while providing little economic benefit in return. There are also long-suspected connections of foreign-sponsored subversion, such as Indian support of Sindhi dissidents and Iranian ties to Shia and Balochi militants.
Human Rights: The government’s human rights record is generally regarded as poor by domestic and international observers, although there have been some improvements since 2000. Security forces use excessive and sometimes lethal force and are complicit in extrajudicial killings of civilians and suspected militants. The police and military have been accused of engaging in physical abuse, rape, and arbitrary arrest and detention, particularly in areas of acute conflict. Although the government has enacted measures to counter these problems, abuses continue. Furthermore, courts suffer from lack of funds, outside intervention, and deep case backlogs that lead to long trial delays and lengthy pretrial detentions. Many observers inside and outside Pakistan contend that Pakistan’s legal code is largely concerned with crime, national security, and domestic tranquility and less with the protection of individual rights. Provincial and local governments have arrested journalists and closed newspapers that report on matters perceived as socially offensive or critical of the government. Journalists also have been victims of violence and intimidation by various groups and individuals. In spite of these difficulties, the press publishes freely, although journalists often exercise self-restraint in their writing. In 2002 citizens participated in elections for the National Assembly, but those elections were criticized as deeply flawed by domestic and international observers.
Societal actors also are responsible for human rights abuses. Violence by drug lords and sectarian militias claims numerous innocent lives, discrimination and violence against women are widespread, human trafficking is problematic, and debt slavery and bonded labor persist. The government often ignores abuses against children and religious minorities, and government institutions and some Muslim groups have persecuted non-Muslims and used some laws as the legal basis for doing so. The Blasphemy Law, for example, allows life imprisonment or the death penalty for contravening Islamic principles, but legislation was passed in October 2004 to eliminate misuse of the law. Furthermore, the social acceptance of many these problems hinders their eradication. One prominent example is honor killings (“karo kari”), which are believed to have accounted for more than 4,000 deaths from 1998 to 2003. Many view this practice as indicative of a feudal mentality and as an anathema to Islam, but others defend the practice as a means of punishing violators of cultural norms and view attempts to stop it to as an assault on cultural heritage.
PUBLISHER / AUTHOR: This series of profiles of foreign nations is part of the Country Studies Program, formerly the Army Area Handbook Program. The profiles offer brief, summarized information on a country's historical background, geography, society, economy, transportation and telecommunications, government and politics, and national security. In addition to being featured in the front matter of published Country Studies, they are now being prepared as stand-alone reference aides for all countries in the series, as well as for a number of additional countries of interest. The profiles offer reasonably current country information independent of the existence of a recently published Country Study and will be updated annually or more frequently as events warrant.
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