The most basic pre-condition of a true democratic setup is the healthy CM relationship. In all democratic countries, elected civilian government enjoys full control over the military. However, in Pakistan, control over governance / power has been oscillated between civilian supremacy and military rule. Civilian government has always found it difficult to keep a balance between democratic parties and to keep top brass of military satisfied and happy. Every civilian government has taken its decision by keeping in view that military may not be alienated. Over time, military expanded its role to becoming an important actor in decision making to directly assuming power and to prefer role over rule.

2. History of Martial Law in Pakistan

The ascendancy of Pakistan’s military began sharply after the country achieved independence in 1947. Rapid deterioration of political process enabled military to become important decision maker at national level. Almost half of the life of Pakistan remained under direct military rule starting from the martial law of General Ayub Khan to the last dictator General Musharaf.

History of Martial Law in Pakistan is discussed as under:

1. In October 1958, Army Chief (Field Martial) General Ayub Khan assumed power by imposing first martial law in the history of Pakistan. He ruled under martial law till 1962 when he civilianized his regime by co-opting some politicians and established presidential constitution which legitimized his rule after the martial law.

2. Second coup was staged in 1969 by General Yahya Khan who then surrendered power to civilian leader Z.A. Bhutto in December 1971 after the debacle of Dhaka as a result of India-Pakistan War.

3. The military overcame the trauma of defeat within few years and in July 1977 general Zia Ul Haq reasserted military rule by overthrowing civilian rule. He presided over under martial law from 1977 to 1985 which is the longest period in the history of Pakistan. He ultimately handed over the power to civilian government.

4. After the death of Zia Ul Haq in 1988, there has been a civilian rule of almost one decade when in 12 October 1999, General Musharaf again toppled the civilian government and became chief martial law administrator and ruled till 2007.

3. Troika of Power

Because of long military rule in Pakistan and weak political institutions, army chief has become an important pillar of power sharing after 1988. Along with the President and the Prime Minister, COAS constitutes one-third of power of troika, an extra ordinary constitutional arrangement of civil military consensus on key domestic, security and foreign policy issues.

Troika meets periodically and discusses all important matter of the state. No civilian government can dare to break the troika by excluding COAS from the strategic decision making of the country.

4. History of Civil Military Relationship

During civilian rule, governance in Pakistan oscillated between military chiefs and the civilian leadership. Military has important influence over the key domestic, security and foreign policy issues. Almost every civilian government faced the problem of military intervention into civilian matters. No government in Pakistan could afford to alienate powerful military leadership from power.

i) Civil Military Relationship during Bhutto Era

During Zulfiqar Ali Bhutto (ZA Bhutto) era, army was initially demoralized and weak due to Dhaka debacle. ZA Bhutto initially controlled military and prevented it from growing politically. He installed mechanisms so as to not to allow military to flourish economically.

But soon military was in a position to regain its power because of political blunders made by politicians including the PPP and PNA (Pakistan National Alliance) and the failure of civilian government to bring country out of crises.It resulted in ruthless martial law of Gen. Zia who left no stone unturned to crush political institutions.

ii) First government of Benazir Bhutto (BB) and the Military

Benazir Bhutto (BB) became prime minister in December 1988 and remained in power till August 1990. Despite military’s distrust on PPP, BB was allowed to assume power as PPP emerged as the largest party in the elections.

Initially, BB was aware of military’s power so she gave major concessions to military like:

1) Support for 5 year term of the then acting president Ishaq Khan (A Zia’s loyal) to become president of Pakistan

2) Retention of Lt. Gen. Yakub Khan (A Zia’s Minister) in her cabinet and

3) She promised not to cut-off budget for defense expenditures.

But soon the relations of BB’s government with the military turned bitter (unromantic) because of the following reasons:

1) Her government’s politico-economic mismanagement and confrontation with the opposition parties (IJI – Islami Jamhori Ittehad).

2) Military considered its internal autonomy to be challenged by the civilian government like interference in appointments and transfer of army officers.

3) Law and order issues in Sindh which caused ethnic division of the province into Urban Sindh (urdu speaking) and Rural Sindh (sindhi speaking).

4) BB’s confrontation with the Punjab government which was controlled by the opposition IJI with Nawaz Sharif as Chief Minister of the Punjab.

As a result of the above mentioned factors, BB’s relationship with the president deteriorated. Ishaq Khan, after having detailed discussion with the COAS about this confrontation, sacked BB’s first civilian government in 1990.

iii) First government of Nawaz Sharif and the Military

Nawaz Sharif became PM in 1990 with endorsement of President and Military officers. He maintained cordial relations with the military on all the key issues including the 1991 Gulf war (Iraq occupied Kuwait).

Soon, NS’s relations with the military became bitter on the major issues like: transfer and posting of army personnel, poor law and order in Sindh, and government’s poor performance. But even in such circumstances, Civil Military relations were under control because of Ishaq Khan’s support for the NS’s government. He played the role of a bridge between military and sharif.

Then, Sharif retaliated presidency by announcing that his government would amend constitution to curb the discretionary power of the president to overthrow civilian government that was given to him in 8^th amendment (passed in 1987). His government also indicated that it will not nominate Ishaq Khan for the second term. These issues resulted in unhappiness of the top military brass. As a result, president Ishaq Khan dismissed Nawaz’s government with the back of army.

iv) Second government of BB and the Military

BB assumed office as PM for the second time in Octorber 1993. Farooq Laghari was elected as president by PPP’s government. BB’s relations with the military were much improved because she avoided interference into the internal affairs of the army and considered its input in major domestic, security and foreign policy issues.

Soon, BB’s relations with the army were deteriorated because of ethnic violence in Sindh, failure to have effective and transparent administration, drug mafia, violence, law and order issues, bad economy, inflation and corruption by her husband Mr. Asif Ali Zardari. She also antagonized top military in attempting to fill the top judiciary posts by political appointees.

Due such circumstances, president had no difficulty in gaining army support and to remove BB from her office in 1996.

v) Second government of Nawaz Sharif and the military

Nawaz Sharif again turned to power in 1997 with absolute majority and found government in three provinces of Punjab, NWFP and Sindh. President and the military elite welcomed the change because of the magnitude of his success. Sharif tried to undermine the members of troika and state institutions by using his numerical strength.

1) He introduced 13^th amendment to withdraw the discretionary powers of the president to overthrow civilian government by dissolving the assemblies.

2) He introduced 14^th amendment to enhance the party leader’s powers by declaring that a member would lose his seat if he violates party discipline and votes against the party.

Soon crises developed between the army and the civilian government when Nawaz Sharif started confrontation with the judiciary when justice Sajjad Ali Shah asked for the elevation of judges from HC to SC which the government rejected. This dispute turned into a general confrontation between the judiciary and the executive.

Further, the due to the deteriorated socio-politico-economic condition of the state, the army instead of toppling the civilian government by civilian president directly interfered and imposed martial law.

vi) Asif Ali Zardari and the Military

President AA Zardari assumed power in 2008. For the first time in the history of Pakistan, his government survived the five-year term although it also faced several issues like:

1) PPP’s government, in 2008, placed ISI under the Interior Ministry’s control. But this decision was reverted due to military’s pressure.

2) In 2009, Zardari concluded a deal with India about no first use of nuclear weapons.

3) Memo Gate Scandal was also an issue that led to controversies with the army. Due to this scandal, civil military relations were tensed and the army’s top command controlled foreign policy towards India, Afghanistan and the USA.

Despite these issues, no military adventure occurred as both sides adopted accommodating attitude towards each other.

vii) Third government of Nawaz Sharif and the Military

Nawaz Sharif came in power as a result of May 2013 elections. Although civil military relations are accommodating towards each other for the time being, controversies arose on certain issues like:

1) Geo News Issue

2) Attack on Hamid Mir and the statement of Information Minister to support pen

3) Army was also maligned by the government because government accused army of supporting PTI’s Dharna.

However, now the relations are normal because all the important issues relating to the domestic, security and foreign policy are decided in consultation with the army. Now the army prefers its role over its rule.

5. Interests of Army

i) National security and nuclear issues

Army wants its role in decision making and that its input should be considered positively in making decisions. It also wants safe control of nuclear assets therefore denies access of civilians to these assets.

ii) Foreign policy regarding India, Afghanistan and USA

Army wants its role in formulation of foreign policy regarding India on Kashmir issue, Afghanistan on Afghan war and USA on American Ally.

iii) Procurement of Military Equipment

Army also wants good and working relationships with the countries from whom it purchases it military supplies.

iv) Non-interference in administrative matters of army

Army also wants non-interference in appointments, transfers, postings and promotions of army personnel.

v) Defense expenditures

Army also wants that defense budget should not be cut off to combat security threats from India, Afghanistan and Russia.

vi) Army’s perks and privileges

Army also wants that the perks and privileges (lucrative jobs after retirements, allotment of agricultural land, cantonment housing societies, appointment of military officials to top civil jobs like 10% quota is reserved in CSS for army in three major groups i.e. DMG, FSP, and PSP) it enjoys should be continued and promoted.

vii) Army’s commercial and industrial activities

Army also wants to protect its share in commercial and industrial activities like FWO (Frontier Works Organization), FFC, Askari Bank, Askari Housing Societies, Fauji Foundation, NLC, and CSD stores.

6. Why military intervenes in civilian matters

i) Leadership crisis

After the death of M.A. Jinnah and the assassination of Liaquat Ali Khan, leadership crisis emerged which resulted in military intervention.

ii) Delay in constitution

Delay in constitutions of 1956, 1962, and 1973 and their abrogation in 1958, 1969 and 1977 respectively also led a way to military intervention.

iii) Weak institutions

Lack of procedures and processes in the state institutions and the lack of harmony among them also lead to military intervention to get the disputes settled.

iv) Weak political parties

Political parties are weak as these include industrialists and feudalists who support martial law to protect their interests.

v) Power of military and civil bureaucracy

Military has become powerful because of its emphasis on centralization, hierarchy, discipline, training and esprit de corps. Similarly, bureaucracy has also become strong while political institutions are deteriorated which also leads to military intervention.

vi) Repeated martial laws

Due to repeated martial laws, army became powerful and therefore influences civil leadership.

vii) Civilian’s dependence on army

Civilian’s dependence on army in case of elections, floods, earthquakes, security and law and order issues also leads to military intervention in politics.

viii) Personal interests of Politicians

Politicians in power usually focus on achieving their own interests at any cost and politicians in opposition focus on dislodging ruling politicians by any means which leads to military intervention in politics.

7. Recommendations / Way Forward

1. Laws and constitutional provisions should be placed to define civilian supremacy and control over the military command.

2. Security issues of the armed forces should be addressed positively.

3. Political parties should follow code of conduct and discipline of party members should be scrutinized.

4. Strong leadership should emerge that can control and alleviate socio-politico-economic challenges being faced by Pakistan.

5. Ethnic and religious extremism should be minimized.

6. Civilian intelligence (CIA, FIA, IB) and Law and Order agencies (Police, FC, Rangers, Judiciary and Courts) should be strengthened to minimize calling of armed forces to aid in civilian matters.

7. Military operations and national policy should be in complement to each other.

8. There should be positive role of media and judiciary.

9. There should be positive role of political parties.

10. Free and fair elections should be held.

8. Conclusion

Peaceful civil military relations are the prerequisite for the development of Pakistan. Both the stakeholders should enter into the negotiation for the gradual retreat of military from civil administration. To reciprocate, civil and political circles and media analysts should be trained to adopt a soft tone towards military in order to establish peaceful civil military relations.

What tradition military inherited?

1. Civilian supremacy over military

2. Aloofness from active politics

3. Commitment to professionalism

4. Assistance to civilians with respect to law and order and national calamities

How military gained strength?

Initial strategic steps

1. Retention of British officers

2. Quick promotion of competent officers

3. Calling back the released army personnel

4. Amalgamated regiments with common tradition, composition, and recruiting areas

5. Made fresh recruitments

Placed emphasis on:

1. Centralization

2. Hierarchy

3. Discipline

4. Training

5. Esprit de corps

CSS Related Material

Civil Military Relationship

Civil Military Relationship (CMR)

1. Introduction