Military restructuring: unraveling a tangled web

Since 2011 the international community has feared a total breakdown of the Yemeni military establishment, fragmenting the armed forces to a degree where major conflict would erupt leading to a civil war. This scenario developed in April after a number of government officials defected from the government on March 21, 2011 and declared their protection of civilian protesters. Beginning in April, Yemenwitnessed a number of proxy battles between government supporters and armed militias ʻAligned to Gen. ʻAli Muhsin and the al-Islah party. This fear of total fragmentation then led to the initial GCC-led initiative for political transition in April. The back and forth game that ensued inYemen, on whether to sign the GCC initiative or not, allowed both sides to strengthen their own positions. The periphery was soon lost, or abandoned, and handed over to a number of tribal or militant groups in areas such as al-Jawf in the north, Ma’rib and Hadhramawt in the East and Abyan in the south. The province of Saʻdah, bordering Saudi Arabia, continues to remain under control of Huthi rebels under the leadership of ʻAbd al-Malik al-Huthi. This group, at war with the central government since 2006, represents a major security threat to the Kingdom of Saudi Arabia, and stability along the border continues to depend on a delicate agreement placing renowned arms dealer Faris Manʻa as governor of the province of Saʻdah. Contacts with the rebels has prevented cross-border incursions since 2011, but has not decreased the threat to Saudi Arabia.

Obstacles for Institutional Restructuring

Fears among regional and international actors led to a re-drafting of the GCC Initiative for political transition, signed on 23 November 2011 in Riyadh, wherein priorities where set beyond the handing over of power by ʻAli ʻAbdullah Saleh to his Vice President Hadi. The top priority set to strengthen the political transition became the orderly demilitarization of cities and restructuring of the entire armed forces, not just the army. This is set to be followed by the start of a comprehensive National Dialogue process. The framework established to administer demilitarization and restructuring of the armed was organized within a military commission with equal numbers of officers from units which defected in March 2011 and those still under the control of Ministry of Defense.

The first move to implement one of the “pillars” of the GCC Initiative was the removal of General ʻAbdullah Qayran in Taʻiz and Mahdi al-Maqwalah (of Sanhan), chief of the Southern Command based in ʻAden, in January and March respectively. While General Qayran’s removal was cause for much jubilation inside Freedom Square in Taʻiz, Maqwalah’s departure left a sour taste after Ansar al-Shariʻah escalated their activity in Abyan and caused more people to flee the province to neighboring ʻAden. It has been clear to many that President Hadi and his advisors are carefully calculating their moves, amidst mounting pressure from Western governments, in order to minimize consequences from such an unpredictable balancing of personalities within the armed forces. The incident that followed the sudden announcement Saturday morning April 7^th by President Hadi replacing Air Force Chief Muhammad Saleh al-Ahmar (half brother of ʻAli ʻAbdullah Saleh) is a perfect example of the difficult task. Sanʻa International Airport was closed the entire day as result of fighting within the property, which also serves as the main runway for the Air Force located in the southern area of the civilian airport. Accusations flew back and forth between loyalists to General  Muhammad Saleh, who was then appointed Deputy Minister of Defense, and airport officials. The airport re-opened on Sunday. General Saleh appears to have accepted President Hadi’s order and on 16 April he left his post and traveled to Sanhan. But the issue remains unresolved as of 21 April.

In her most recent opinion piece, Ginny Hill indicated many of the obstacles to restructuring the armed forces were anchored on continued regime competition. That is, in the context of the equation that pins ousted President ʻAli ʻAbdullah Saleh, his long-time confidant General ʻAli Muhsin (Firqahh Commander) and the al-Ahmar family on a confrontation for survival in a transitional period. Much of this competition is indeed obstructing the restructuring, but observers are also missing much of the larger picture. The military has not only been a family dominion, it forms part of the principle instrument of patronage inYemen since 1962 in the north and 1967 in the south. It would be a colossal mistake to assume that Saleh’s relatives and their regime competitors where the only ones standing in the way of a comprehensive restructuring of the armed forces. Elites from the north and south are fully dependent on the military and intelligence services for the own survival. In addition, the most difficult obstacle to overcome will be the deeply rooted tribal interests that overlay the armed forces.

Hashid and Sanhan

In this situation we must first consider the struggle for survival within the Hashid tribal confederation. Shaykh Sadiq ibn ʻAbdullah al-Ahmar, brother of Hamid al-Ahmar, is the paramount shaykh of Hashid, to which the village of Sanhan belongs by means of tribal alliance. Many attribute the rise of ʻAli ʻAbdullah Saleh and his 33 years of rule to a “deal” from 1978 between Shaykh ʻAbdullah al-Ahmar, ʻAli ʻAbdullah Saleh, and ʻAli Muhsin. This deal would protect the longstanding position of Hashid and its tribal members within the political structure of the Republic. It is then no mystery as to why Shaykh Hamid al-Ahmar has been one of the principle supporters of the ‘Youth Revolution’ of 2011. Primarily, the al-Ahmar family began to feel threatened by changes in the relationship with Saleh in the past ten years, when it was decided to prepare Ahmad ʻAli ʻAbdullah Saleh to succeed his father as president of Yemen.

This move to select Ahmad ʻAli as successor was not in itself a threat, but rather the restructuring of political relations that aimed at alienating Bayt al-Ahmar from the decision making process. Hamid began to see new blood at the presidential palace, a new patronage network that threatened his own. Such moves were also reflected in the repositioning of the Republican Guard, in particular, vis-à-vis ʻAli Muhsin’s Firqahh. During the six wars against Huthi rebels in the north the struggle between Ahmad ʻAli and ʻAli Muhsin deepened to direct conflict within al-Urdhi (headquarters for the Armed Forces) and the office of the Chiefs of Staff. The internal conflict also began to affect tribal relations. Interests of various shaykhs were threatened when some tribal areas were protected by the government while others were neglected during the war against Huthi rebels. These tribal leaders not only had interests in areas in ʻAmran and Saʻdah, but also their tribesmen were being killed without any retribution. Many shaykhs were requested to send troops to fight Huthis only to be underpaid or under equipped. While Sanhan believes to be the center of power over the past 33 years, it is Hashid who claims primacy and aims to prevent southerners from taking over a unified Republic, and its resources.

Tribal Patronage

Underneath the surface then lie the mid-level shaykhs of Hashid and Bakil (the second-most powerful tribal confederation). Many of these tribal leaders, allied to the house of Shaykhs al-Shayf and ʻAbu Ras, for example, in addition to Bayt al-Ahmar, believe that restructuring of the armed forces is a direct threat to their own individual survival. Northern shaykhs are inherently linked to an extensive patronage network with origins at the end of the northern civil war of 1962-1970. They are not just part of Saleh’s or ʻAli Muhsin’s patronage, they are part and parcel of the Republic’s patronage legacy. Many leaders may not be in government of Parliament, but they and their tribes have been vital keepers of the Republic, and if their patron is removed then they will lose all privileges, most importantly income and weapons as result of their conscripts within the various branches of the military. A comprehensive restructuring of the armed forces, beyond the removal of Saleh’s, ʻAli Muhsin’s and al-Ahmar’s relatives would also require addressing the presence of many tribal elements loyal to one side or the other. President Hadi must first calculate the consequences from removing personnel from one side quicker then the other, or removing a larger contingency from one side as oppose to the other.

President Hadi must surely be asking himself, which side do I remove first? Which will pose the least challenges? What will the one side do when elements from the other are removed? If a tribal leader with interests in the armed forces begins to feel his patron will lose in the process, they may recall their tribesmen and withdraw to their local area. This will strengthen their position in the periphery and deprive the government of authority within their territory. By withdrawing their men, they will not hold loyalty to any one until it is renegotiated, at a high price indeed. The men will withdraw with their weapons, since no one at this time is powerful enough to prevent them from doing so. How many shaykhs will opt for this choice? We don’t know. If one side is removed before the other, in proportion or otherwise, it may be clear to both patron and client that a fight against the President as proxy or against the other side directly will be in their best interest. President Hadi has everything to lose in this scenario.

At a time of deep economic crisis across the country, ignored by all sides, tribal leaders must protect their own interests in order to prevent further unemployment and deeper discontent among local populations. Patronage is not only a tool for wealth creation in Yemen, it is a way to remain relevant vis-à-vis local tribal populations and retain the prestige of hereditary titles. Reports of widespread famine in Yemenoften focus on urban populations, which suffer tremendously as result of sky-rocketing inflation, but it is in the mountain and dessert villages where hunger is merely satisfied with bread and water, or wheat (‘azid) and yogurt. Shaykhs may not spread the wealth around as evenly as people would want, but at minimum they do provide some relief to people in their villages. It is not in their own interests to allow people to starve, for they will lose the foundation of their own reputation and status. Shaykhs do not only have a dozen or so tribesmen as guards for their own protection in the public sphere, this is a way to provide ‘employment’ to tribesmen and also to strengthen their own patronage networks.

A Careful Balancing Act

As one tribal figure put it, and as much as I tried to avoid the cliché, there are three main concentric circles when dealing with restructuring of the armed forces. The first circle includes Saleh and his family, ʻAli Muhsin and Bayt al-Ahmar, in essence, Hashid and Sanhan. The second circle is referred to as the circle of corruption. This is where the patronage network extends to relatives, business associates and tribal elements. The third circle is what many refer to as the circle of hope, where many of the officers capable of constructing a modern, professional military lay. Tribal elements in the military and mature officers do see a light at the end of the tunnel, but they realize it’s a long tunnel. The GCC initiative was meant to primarily prevent a civil war in theArabian Peninsula. It managed to stave off much of the tension mounting through 2011. But the GCC deal was mainly a deal between the elite, Saleh and ʻAli Muhsin, Saleh and al-Ahmar, and Saleh and al-Islah. It failed to address the people’s demands, and left a window of opportunity for whoever can rescue those hopes for change.

At the moment al-Islah seems to be gaining ground on this front. Although protest squares are now occupied by a solid majority of supporters of al-Islah, Friday prayers continue to attract a large number of independents. This portion of society is no longer interested in the permanent, physical presence at Change Square (Sanʻa) or Freedom Square (Taʻiz), but rather makes itself available to the rally calls to protest each week. This is a great asset for al-Islah, ʻAli Muhsin and bayt al-Ahmar. They have proven their resolve and to a certain degree, their public support. In real terms, it may not mean much since Friday prayer demands are no longer based on issues espoused by large crowds in 2011. Yet, this still keeps President Hadi thinking of what the intent is and what may be the options available to Islah’s side, and to ʻAli ʻAbdullah Saleh on the other hand.

President Hadi has yet to make his mark in the public sphere, but he has moved cautiously to strengthen his position in the face of mounting pressures from all sides. The president still has much to accomplish in the short term, while his options still remain open and potentially leading to change in real terms. The relationship between Prime Minister Muhammad Salem BaSundwah and President Hadi may not be a match made in heaven, but it is not a destructive one either. Outside influences on the Prime Minister are obvious, as he is the spokesperson for the opposition group the Joint Meeting Party (JMP), as part of the transition government. Everyone understands that although the JMP is fragmented at the moment, half of the ministers in government must protect the group in order to protect themselves. It still remains a difficult task to convince cabinet members to accept losses on their side of the camp. Whether the losses are on the civilian side, such as governors, or the military, neither the General People’s Congress (GPC) nor the JMP can accept huge losses at any one time. At the moment, reality points to all losses being one sided, and even though Gen. ʻAli Muhsin promises to resign and retire from government service, the GPC sees no movement against the opposition on the part of President Hadi, who is in fact the leader of the GPC as its Secretary General.

All of this balancing comes in the backdrop of demands by all sides to engage the process for National Dialogue. As prescribed by the GCC Initiative, the Dialogue process is meant to reconcile all sides, in particular the Southern Secessionist movement and the Huthi rebels in the north. Most in the opposition claim dialogue is moot without military restructuring, aimed at removing all influence from former president ʻAli ʻAbdullah Saleh and his relatives. But some, in diplomatic circles and within the party in majority in parliament (GPC) claim there cannot be any restructuring until the dialogue begins. We are back to square one, what comes first, the chicken or the egg? It seems even the United States has realized restructuring of the armed forces will take longer than expected, and this has led officials visiting Sanʻa to announce their support for the start of the Dialogue process even though the military is still relatively intact. If work is to be done inYemen, under relative stability, it will continue at a slow pace. As of April 11 President Hadi initiated new military operations against Ansar al-Shariʻah in the south (some units have refused the order). This will lead to further clashes around the country that have to be contained, at minimum, before the president’s next move regarding the armed forces or the National Dialogue. BaSundwah’s visit to Doha from April 9-11 may lead to further support from regional neighbors, but unfortunately his first announcement focused on support for the National Dialogue, not the economy or further pressure to be exerted on personalities on the list to leave the country. Further patience will be required if deeper fracturing of the armed forces is to be avoided, which could once again threatened a civil war scenario.

The new enigma: who will be the next Vice President?

Fernando Carvajal looks at the possible picks for President Hadi's deputy:

Does Yemen’s President, 'Abd Rabbuh Mansur Hadi, need a strong or weak vice president? This may not be the only question we have to deal with, for we would also ask if the new Deputy should be close to Saleh’s family in order to maintain party cohesion or someone close to those who dissented after the March 18 massacre?

Article 105(B) of the Yemeni Constitution stipulates “The President shall have a Vice President” (http://www.al-bab.com/yemen/gov/con94.htm), making it an obligation to appoint a Deputy, even during the transition period. The final version of the GCC initiative does not at all address this matter, but as understood by insiders, what ever is prescribed by the Initiative stands above the constitution, and what ever is not directly specified in the GCC document falls within the constitutional text. Rumors that President Hadi would neglect Article 105 (B) and decide not to appoint a Deputy for the duration of the two year transition period have been laid to rest as new rumors of potential candidates for the post surfaced.

With this is mind we can then move to address the question at hand. President 'Abd Rabbuh will need a Deputy that strengthens his primary goals, which remain obscure. Analysts can spend hours trying to decipher priorities of the new government, but as we have learned in the past, what we believe to be a priority may not even be on the radar. We can speculate on whether further cooperation with the US government is a priority, hence the strong statement during Hadi’s swearing-in speech on February 25 against al-Qaeda in the presence of the US Ambassador. Or may be it was to send a message to the new Saudi Crown Prince, knowing that the Kingdom will remain Yemen’s primary ally and provider of financial assistance. His priority may be to consolidate power in order to strengthen his position at the start of the National Dialogue process. We can go on and on speculating and still end up flat wrong at the end. But if we look into the potential names of candidates we may gain further insight once the individual is chosen and takes up his post beside President 'Abd Rabbuh.

The rumor over who would be the next Vice President began with two names, Abdul Qader Hilal (former governor of Hadhramawt and son-in-law of former president Ali Abdullah Saleh) and Ali Muhammed Mujawar (originally from Shebwa and former Prime Minister). The latter has most likely been instantly dismissed since it has been agreed that the next deputy must be a northerner, and more specific, of tribal origin and not just from Ibb or Taiz. Mujawar would be the third top official of southern origin and it would be nearly unacceptable to have the executive branch fully composed of southerners. Mr. Hilal is not only a relative of Saleh but he is also from Senhan, which would indicate President Hadi would aim at deterring any potential threats from Senhanis who face the end of over 30 years of political and military domination. His appointment would also strengthen Saleh’s family position in the transition period and prevent their marginalization in the period leading to the next parliamentary elections, presidential election and most importantly restructuring of the armed forces.

Reaction to this initial rumor naturally led to people countering by injecting Dr. Abdul Karem al-Iryani’s (former prime Minister and primary political advisor to Ali Abdullah Saleh) name along with Hilal’s. Yemenis saw this as a natural balance to rumors of Hilal as the front runner. Dr. Iryani has made no public comment on the issue, and it would be difficult to imagine that such an experienced politician would allow others to use his name in a game of ponds, but it would also be difficult to imagine him saying no to President Hadi if personally offered the post. There is also the matter of Dr. Iryani’s persona. There is no other Yemeni politician with the degree of respect and confidence internationally as well as within the region of the Arabian Peninsula. He would represent a high value asset for Hadi with regards to the necessary confidence required to secure international assistance during the transition period, whether financial or technical.

Yet, if we were to be logical in our analysis (if!) then most would agree that Dr. Iryani would be a greater asset for president Hadi within the General People’s Congress (GPC). Iryani has also served as deputy Secretary General of the GPC, under 'Abd Rabbuh, for a long time, and as co-chair of the Dialogue committee, also with 'Abd Rabbuh, no one else knows the process and the actors like him. Dr. Iryani will remain a major asset for the president within the party, and this would allow him to multi-task and multiply his contributions to Hadi’s priorities. As Hadi’s Deputy his role may be limited vis-à-vis the party and the opposition, whether it’s Islah or Houthis or the Southern Movement. Again, how do we identify the president’s priorities?

Some insiders go beyond the suggestion that the next Deputy should be a northerner. Some have even suggested it would be a smart move for Hadi to appoint a Zaydi northerner, not so much a Houthi or a sayyid, but a Zaydi tribesman. Along this line some also suggested Rashad al-Ailami (former Minister of Interior and highly trusted security official) and Yahya al-Ra’i (current speaker of Parliament). Both were injured during the attempted assassination of President Saleh on June 3, 2011. Neither would fit the criteria proposed but they represent ties to Saleh’s family as well as people of confidence within the security establishment.

The last name suggested by few people is Qaleb Mutahar al-Qamish (current head of PSO and former Minister of Interior, also of Hashid origin). Mr. Qaleb represents the most interesting candidate. A northern tribesman of Zaydi origin and highly trusted across the GPC establishment. In addition, he represents the future of the security establishment. Rumor has it the intelligence agencies will merge under a new agency. This new structure may serve to ease the way out of Saleh’s relatives as well as serve as confidence building measures for relations with the West and Saudi Arabia. He would be a strong asset for Hadi but problematic vis-à-vis the revolutionary youth and activists. Islah itself might not have a problem with Mr. Qaleb, but grassroots activists and other opposition parties will look at this nomination as intensifying the image of a police state.

It is still unlikely that President Hadi will appoint a Deputy on Monday during the farewell ceremony for 'Ali 'Abdullah Saleh, but it would be a priority if he wishes to deter further criticism over the lack of constitutional legitimacy for the transition process. We must keep in mind that pressure on Hadi doesn’t only come from protesters in San'a and Ta'iz, who will use Syria’s situation in order to sustain numbers every Friday, but pressure also comes from regional neighbors needed increased stability and Western governments who have invested a lot in the transition process as a potential model for other Arab states confronting the Arab Spring tsunami. If the rumor is correct that the option to pass on a Deputy was considered then we imagine the nomination of a non-threatening personality, who does not represent and asset to Hadi either but merely serves a ceremonial post for the duration of the transition period. This person may not even contribute to the constitutional reform process and therefore not have any ambitions to be in office after the coming parliament elections.

It's (still) the economy, stupid.

We're pleased to present another guest post by PhD candidate Fernando Carvajal, who spent most of 2011 embedded in Yemen's revolution, and is now deeply involved in the task of helping the country rebuild. In today's post he argues that the new government and administration--as well as the international community--must prioritize Yemen's economic situation.

Now that people refer to this as the post-Saleh era, and the Gulf Cooperation Council removed a thorn from its side, it is time to step up or shut up. Regional and international actors worked tirelessly to ensure a quick and ‘peaceful’ end to Yemen’s popular uprising of 2011, but none have spoken of concrete efforts to aid the Republic and its new President to recover from a dire economic crisis. The promise of a meeting of the Friends of Yemen lingers on since President Saleh signed the GCC initiative on November 23, 2011. The goals of political stability and a peaceful transfer of authority have been achieved, but what of addressing the root causes of the uprising in order to avoid a renewed conflict?

Some observers and government officials in Sana’a may say that security is the number one priority for the post election period, but this is merely playing with the age old debate over what comes first, security or the economy. The people were suffering from a near famine and worsening economy at the national level prior to the start of the popular uprising of February 2011. Then, the economy was not a priority. Officials always blamed international partners for not delivering on promises made after the 2006 presidential election, while the international community and neighbors blamed widespread corruption as the reason for delay in delivering over $5 billion in aid. This became the same excuse when the dysfunctional Friends of Yemen group was established and again no aid was delivered outside the $150 million authorized following the terrorist attempt by the Underware Bomber Christmas day 2009.

The uprising in Yemen was perceived as a higher threat to stability in the Peninsula than Egypt of Tunisia. It was believed events in Yemen would serve to encourage dissent in Bahrain and other Gulf states. The powers that be moved immediately in early 2011 to ensure no Yemeni center of power would escalate the conflict and create a spill-over throughout the Peninsula. The youth movement was overwhelmed by the organized opposition and military defectors aiming to regain the monopoly on mobilization. This has ultimately failed, for protest squares still maintain the physical presence of resolute young men and women who may not yet be satisfied with the transfer of authority from President Saleh to his Vice President, Abdo Rabo Mansur Hadi, through the one man election of February 21, 2012. But aside from a lack of organization and cohesive leadership the youth do remain hopeful in realizing the remaining goals of their ‘revolution’. And while the precedent of yet another successful electoral process in Yemen does represent a challenge for neighboring rulers, there is still no popular awareness in the Peninsula demanding increased access to the ballot box. The Peninsula is now on Guarded (blue) level rather than Severe (Orange).

Yemen’s economy is so deeply neglected internationally and regionally that it is completely off the media radar. Also, Yemen has been ignored even by the upcoming Jeddah Economic Forum of 3-6 March, 2012. The people of Yemen continue to be ignored while they lack access to stable fuel supplies, electricity, suffer from increasing inflation and diminishing imports. The Yemeni Rial has made gains against the dollar in recent weeks, but banks continue to suffer from low deposits and with minimal international trade, this will not improve any time soon.

Arab governments can no longer neglect dire economic crises. This is no longer time for international priorities, it is time for action to serve the people, or gains will be lost to renewed conflict. In addition, this vacuum will provide fertile ground for the expansion of groups aiming to further destabilize the country. It is a fact that neither the Houthi group nor the Southern Movement currently offer any relief to their ‘people’, never mind a viable option nationally, but they will continue to agitate their followers. During his visit to Riyadh and Abu Dhabi at the start of 2012 PM BaSundwa mentioned Yemen would need about $10 billion, but no one stepped up. In mid-February President Obama’s administration announced a total of $800 million in support of the Arab Spring, Yemen’s share of ‘millions’ don’t begin to scratch the surface. If we look at the government’s budget and the impact of the uprising it is estimated Yemen needs an instant influx of cash of around $3 billion. This will allow the government to inject cash into all ministries in order to meet payroll, deferred for almost three months for some people. The amount will also support payments to the military and allow the government to deal with restoration of public areas around the country.

In addition to this immediate cash the government will need about $5 billion for fiscal year 2012. This amount will provide liquidity to address a number of priorities that will lead to popular trust on the government and the transition process. Without a comprehensive strategy to address the economic crisis no one will be able to call for a stable dialogue process, nor be able to challenge continued agitation by Houthis or the Southern Movement. Unfortunately, people have to accept that an “anti-corruption” campaign by President Hadi will be suicide. It cannot be a priority this year. Corruption is not only at the top, but deeply rooted among ordinary employees whose salaries do not meet the standard of living. One still has to pay the electrician to connect the power line even after the official bill has been paid, never mind government agencies with extensive bureaucratic procedures. International donors should demand increased transparency and accountability, but not a head on anti-corruption campaign. If Yemenis and international partners really want a ‘new Yemen’ each must put forth their best effort to fight corruption from the bottom-up and implement stronger accountability measures immediately. The standard of living will not improve unless the government makes it the number one priority.

Will the GCC deal destroy itself, or can a real transition be salvaged?

I was asked last week to write an op-ed about Yemen's upcoming presidential "election" for a German magazine. Because most of our readers don't read German (myself included), I'm publishing the English version of my article here, and the German version is available at Zenith Magazine Online. I expect many readers to disagree with parts of this piece, or think that I'm oversimplifying things. I think there's a lot about these issues that needs to be discussed, so please comment if you feel so inclined. In particular, I expect some readers to take issue with the last section, where I lay out a very simplistic prescription for a very complicated problem. I'm aware that these things are easier said than done, but the problem at hand is an existential one and must be confronted, regardless of how hard this solution might be to implement.

On February 21, Yemen will hold a presidential election that will defy almost every notion of what an election should be. Contrary to Yemeni law, the “election” will feature only one candidate, whose victory has been decided ahead of time; but even if the election’s result is certain, its effects are difficult to predict.

The voting process in question—“referendum” is a more accurate description than “election,” but both words are far too suggestive of democracy for this occasion—has been mandated not by the Yemeni constitution, nor by popular demand, but by an agreement signed by the heads of Yemen’s largest political parties and written by representatives of the Gulf Cooperation Council (GCC), hardly experts in the science of representative government. The GCC initiative, which was heavily sponsored by the United States and brokered in part by the United Nations, was foisted upon Yemen as an ostensible solution to what the GCC liked to call Yemen’s “political crisis,” the year-long popular revolution against the regime of President ʻAli ʻAbdullah Saleh. In actual fact, the deal could fail to meet any the revolution’s demands, while giving Saleh everything he could ask for.

Vice President ‘Abd Rabbuh Mansur Hadi—who has served Saleh since 1994 and has no real power base of his own—has been “nominated” by both Saleh’s ruling party, the General People’s Congress (GPC) and the opposition coalition, the Joint Meeting Parties (JMP), and will run unopposed (a few independent revolutionaries have declared their intentions to run, but none has been certified by parliament). With no opponent, Hadi is guaranteed victory. But other than a promotion for Hadi, it’s not clear what, if anything, the election will achieve.

The GCC initiative was drafted in late May after a series of negotiations that began in March, when a number of prominent political and military figures broke away from the regime in response to the March 18 massacre of over 50 protesters in Sanʻa. By the time Saleh signed the deal in late November, his forces had killed hundreds more and pushed the country to the verge of all-out civil war. Since the signing, incidents of large-scale violence have decreased, but otherwise not much has changed.

The unity government formed in December (another creation of the GCC deal) has thus far failed to achieve its most pressing objective, the demilitarization of Yemen’s cities and the restructuring of Yemen’s divided military. Saleh’s close relatives still command much of the armed forces and other coercive apparatuses. In fact, a great deal of Saleh’s regime remains intact. ‘Ali Saleh himself is currently vacationing in New York, and has said more than once that he plans to return to Yemen before February 21 to “participate” in Hadi’s big day. His exact plans for the near future are unclear, but neither the GCC deal nor the facts on the ground would prevent him from meddling in the political arena once the letter of the agreement has been carried out, especially since Yemen’s parliament has already passed a law granting Saleh and his henchmen full immunity from legal action (another stipulation of the deal).

Plenty of intelligent and well-meaning observers have argued in favor of both the immunity provision and the one-candidate election. Full immunity, they argue, was necessary to induce Saleh to sign the agreement and step down. In reality, however, the immunity provision has been counterproductive. It has alienated several revolutionary factions from the political process, prompting the so-called Huthi movement and much of the Southern Movement to announce boycotts of the coming election. It has deprived the new government of an avenue by which it could have removed regime officials from power and recovered purloined state revenues. Most important, though, is the lesson the provision teaches Saleh (not to mention Bashar al-Assad, Hamad al-Khalifah, et al.): that in the eyes of the world, ten months of brutality is no worse than four; that the reward for intransigence is leniency. The GCC deal handed Saleh a victory over his opponents he could never have won by force of arms; with that victory under his belt, and his loyal sons, nephews, and brothers still firmly ensconced in positions of power, what does it matter who bears the title of president?

The GCC initiative contains several provisions that are well thought-out and have the potential to be extremely beneficial. In fact, much of the initiative mirrors the original demands of Yemen’s revolutionary youth: the formation of a Conference of National Dialogue that includes all factions and parties, the drafting of a new constitution and a popular referendum to approve it, a sweeping process of political, judicial, educational, and economic reform to address the basic grievances of the people. But in order for any of those plans to come to fruition, two things must happen first. Before any other progress can be made, the entire Saleh family must be removed from power. With half of the military and huge tranches of the economy in their hands, any other reforms will be superficial. Second, the leaders of the transition and their foreign backers must convince all of the major revolutionary factions to buy in to the transitional process. By granting Saleh and his associates immunity from legal action and failing to place any other restraints on their behavior, the GCC agreement renders impossible the first of these. By forcing a farcical election on the country, it seriously hinders the second.

The international community’s mistakes can still be remedied, however, if the Yemeni transitional authorities are willing to take immediate, decisive action. President-elect Hadi should draft, with the approval of the unity government, a mechanism that would forbid ‘Ali Saleh from having any involvement in politics, and ban all of his immediate family members from military and political positions as well. This won’t be easy to accomplish, but one way or another it must be done if there is to be a meaningful transition. If the governments of the GCC and their friends in the west are at all serious about helping Yemen move forward, they must encourage Hadi in taking this step, and support the decision in any way possible. Once the complete removal of Saleh and his kinsmen is achieved, Hadi and the unity government must immediately assemble the Conference of National Dialogue and constitutional commission. The longer it takes the government to implement this phase of the GCC initiative, the more alienated the revolutionary factions will become, and the less likely groups like the Huthis and the Southern Movement will be to participate in Yemen’s transitional institutions.

If Hadi can summon the will to take decisive action now, Yemen may yet make the most of the deeply flawed transition plan. If not, come February 22, Hadi may find himself a president without a country.

Implementation Mechanism of the GCC Agreement

Although the GCC agreement was signed in Riyadh almost three months ago, most people have never seen a full text of the document, or of the implementation mechanism that was signed with it. Newspapers have only published quotations or summaries. Thanks to our friend in San`a, Abdulaziz al-Sakkaf, we're able to finally publish here the official English translation of the Implementation Mechanism. I plan to provide some commentary on this at some point, but for now, the document is here for all to read. Translated from Arabic

In the name of God, the Merciful, the Compassionate

Agreement on the implementation mechanism for the transition process in Yemen in accordance with the initiative of the Gulf Cooperation Council (GCC)

Contents:

Part I. Introduction

Part II. The transition period

Part III. First phase of the transition

Part IV. Second phase of the transfer of power

Part V . Settlement of disputes

Part VI. Concluding provisions

Annex: Draft Presidential Decree

Part I. Introduction

1. The two parties recognize that

(a) As a result of the deadlock in the political transition, the political, economic, humanitarian and security situation has deteriorated with increasing rapidity and the Yemeni people have suffered great hardship;

(b) Our people, including youth, have legitimate aspirations for change; and

(c) This situation requires that all political leaders should fulfil their responsibilities towards the people by immediately engaging in a clear process for transition to good democratic governance in Yemen.

2. The two parties deeply appreciate the efforts of the Gulf Cooperation Council (GCC) and its Secretary-General, the United Nations Secretary General acting through his Special Adviser, the ambassadors of the five permanent members of the Security Council, and those of the GCC and the European Union, to support an agreement on the peaceful transfer of power. The two parties adopt this Mechanism on the basis of the GCC initiative and fully in accordance with United Nations Security Council resolution 2014 (2011).

3. The following definitions shall apply in relation to this Agreement:

(a) The term "GCC Initiative" refers to the GCC initiative to resolve the Yemeni crisis in the draft of 21 and 22 May 2011;

(b) The term "the Mechanism" refers to this Agreement on the implementation mechanism for the transition process in Yemen in accordance with the GCC Initiative;

(c) The term "the two parties" refers to the National Coalition (General People’s Congress and its allies) as one party, and the National Council (Joint Meeting Parties their partners) as the other.

4. The GCC Initiative and the Mechanism shall supersede any current constitutional or legal arrangements. They may not be challenged before the institutions of the State.

Part II. The transition period

5. The two parties acknowledge that under Presidential Decree No. 24 of 2011, the President of Yemen irrevocably delegated to the Vice-President the presidential powers to negotiate, sign and bring into force this Mechanism, along with all constitutional powers pertaining to its implementation and follow-up. Those powers include calling for early elections and taking all of the decisions necessary to form a government of national unity, including swearing in its members, as well as establishing the other bodies set forth in this Mechanism.

6. The transition period shall enter into effect as follows:

(a) In accordance with United Nations Security Council resolution 2014 (2011), which notes the commitment by the President of Yemen to immediately sign the GCC Initiative and encourages him, or those authorized to act on his behalf, to do so, and to implement a political settlement based upon it, and in accordance with Presidential Decree No. 24 of 2011, the President or the Vice-President acting on his behalf shall sign the GCC Initiative concurrently with the signature of this Mechanism by the two parties.

(b) Concurrently with the signing of this Mechanism, and acting under the powers delegated by the President in Presidential Decree No. 24 of 2011, the Vice-President shall issue a decree providing for early presidential elections to be held within 90 days of the entry into force of this Mechanism. In accordance with the relevant provisions of the Constitution, the decree shall enter into force 60 days before the elections. The draft text of the Decree is annexed to this Mechanism (Annex 1).

(c) This Mechanism shall enter into force when the President or Vice-President has signed the GCC Initiative, all parties have signed this Mechanism in accordance with this paragraph, and the decree referred to in subparagraph (b) above has been issued.

7. The transition period shall begin with the entry into force of this Mechanism. The transition period shall then consist of two phases:

(a) The first phase shall begin with the entry into force of this Mechanism and end with the inauguration of the President following the early presidential elections;

(b) The second phase, which shall last for two years, shall begin with the inauguration of the President following the early presidential elections. It shall end with the holding of general elections in accordance with the new Constitution and the inauguration of the new President of the Republic.

8. During the first and second stages of the transition, decisions of Parliament shall be taken by consensus. If consensus on any given topic cannot be reached, the Speaker of Parliament shall refer the matter for decision by the Vice-President in the first phase, or the President in the second phase. That decision shall be binding for the two parties.

9. The two parties shall take the necessary steps to ensure that Parliament adopts the legislation and other laws necessary for the full implementation of commitments in respect of the guarantees set forth in the GCC Initiative and this Mechanism.

Part III. First phase of the transitional period

Formation of the government of national unity

10. Immediately on entry into force of the GCC Initiative and the Mechanism, the opposition shall nominate its candidate for the post of Prime Minister. The Vice-President shall issue a presidential decree requesting that person to form a government of national unity. The government of national unity shall be formed within 14 days of the issuance of the decree. A republican decree shall be issued to that effect and signed by the Vice-President and Prime Minister;

(a) Each party shall account for 50 per cent of nominees for the government of national unity, and due consideration shall be given to the representation of women. With regard to the distribution of portfolios, one of the two parties shall prepare two lists of ministries and transmit them to the other party, which shall have the right to choose one of the lists.

(b) The Prime Minister-designate shall appoint the members of the government as proposed by the two parties. The Vice-President shall then issue a decree setting forth the agreed names of the cabinet members. Nominees shall have a high standard of accountability and commitment to human rights and international humanitarian law.

11. The members of the government shall take the constitutional oath before the Vice-President. Within ten days, the government of national unity shall submit its programme to Parliament for a vote of confidence within five days.

Functioning of the government of national unity

12. The government of national unity shall take its decisions by consensus. If there is no full consensus on any given matter, the Prime Minister shall consult with the Vice-President or, after the early presidential elections, the President, in order to reach consensus. If consensus between them is not possible, the Vice-President or, after the early presidential elections, the President, shall take the final decision.

13. Immediately after its formation, the government of national unity shall

(a) Take the necessary steps, in consultation with the other relevant actors, to ensure the cessation of all forms of violence and violations of humanitarian law; end the confrontation of armed forces, armed formations, militias and other armed groups; ensure their return to barracks; ensure freedom of movement for all through the country; protect civilians; and take the other necessary measures to achieve peace and security and extend State control;

(b) Facilitate and secure humanitarian access and delivery wherever it is needed;

(c) Issue appropriate legal and administrative instructions for all branches of the State sector to comply immediately with standards of good governance, the rule of law and respect for human rights;

(d) Issue specific legal and administrative instructions to the Office of the Public Prosecutor, the police, prisons and security forces to act in accordance with the law and international standards, and to release those unlawfully detained;

(e) The government of national unity shall comply with all resolutions of the Security Council and Human Rights Council and with the relevant international norms and conventions.

Powers of the Vice-President and government of national unity

14. In implementing this Mechanism, the Vice-President shall exercise the following constitutional powers, in addition to those appertaining to his office:

(1) Convening early presidential elections; (2) Exercising all functions of the President in respect of Parliament; (3) Announcing the formation of, and swearing in, the government of national unity in the first phase; (4) All functions relating to the work of the Committee on Military Affairs for Achieving Security and Stability; (5) Managing foreign affairs to the extent necessary for the implementation of this Mechanism; (6) Issuing the decrees necessary for the implementation of this Mechanism.

15. In the first phase, the Vice-President and government of national unity shall exercise executive authority encompassing all matters pertaining to this Agreement, including the following, acting in conjunction with Parliament where appropriate:

(a) Formulating and implementing an initial programme of economic stabilization and development and addressing the immediate needs of the population in all regions of Yemen;

(b) Coordinating relations with development donors;

(c) Ensuring that governmental functions, including local government, are fulfilled in an orderly manner in accordance with the principles of good governance, rule of law, human rights, transparency and accountability;

(d) Approving an interim budget, supervising the administration of all aspects of State finance and ensuring full transparency and accountability;

(e) Taking the necessary legislative and administrative steps to ensure that presidential elections are held within 90 days of the entry into force of this Mechanism;

(f) Establishing the following institutions as provided for by this Mechanism:

(1) Committee on Military Affairs for Achieving Security and Stability;

(2) Conference for National Dialogue.

(g) The government of national unity and the Vice-President shall immediately establish a liaison committee to engage effectively with youth movements from all parties in the squares and elsewhere in Yemen, to disseminate and explain the terms of this Agreement; initiate an open conversation about the future of the country, which will be continued through the comprehensive Conference for National Dialogue; and involve youth in determining the future of political life.

Committee on Military Affairs for Achieving Security and Stability

16. Within five days of the entry into force of the GCC Initiative and the Mechanism, the Vice- President in the first transitional phase shall establish and chair a Committee on Military Affairs for Achieving Security and Stability. The Committee shall work to

(a) End the division in the armed forces and address its causes;

(b) End all of the armed conflicts;

(c) Ensure that the armed forces and other armed formations return to their camps; end all armed presence in the capital Sana'a and other the cities; and remove militias and irregular armed groups from the capital and other cities;

(d) Remove road blocks, checkpoints and improvised fortifications in all governorates;

(e) Rehabilitate those who do not meet the conditions for service in the military and security forces;

(f) Take any other measures to reduce the risk of armed confrontation in Yemen.

17. During the two transitional phases, the Committee on Military Affairs for Achieving Security and Stability shall also work to create the necessary conditions and take the necessary steps to integrate the armed forces under unified, national and professional leadership in the context of the rule of law.

Early presidential elections

18.(*) The early presidential elections shall be held in accordance with the following provisions:

(*) Translator's note: this paragraph is mis-numbered 20 in the original Arabic text.

(a) The elections shall take place within 90 days of the signature of the GCC Initiative and the Mechanism;

(b) The early elections for the post of President shall be organized and supervised by the Higher Commission for Elections and Referendums using the current register of voters on an exceptional basis. Any citizen, male or female, who has attained the legal age for voting and can establish as much on the basis of an official document such as a birth certificate or national identity card, shall have the right to vote on the basis of that document;

(c) The sides commit not to nominate or endorse any candidate for the early presidential elections except for the consensus candidate Vice-President Abd Rabbuh Mansur Hadi;

(d) The Secretary-General of the United Nations is requested to provide and coordinate electoral assistance to help ensure the orderly and timely holding of elections.

Part IV. Second phase of the transfer of power

Functions and powers of the President and government of national unity

19.(†) After the early Presidential elections, the newly elected President and the Government of national unity shall exercise all of their customary functions as set forth in the Constitution. In addition, they shall exercise the powers necessary to continue the tasks specified for the implementation of the first phase, and additional tasks specified for the second phase of the transfer of power. The latter include

(†) Translator's note: this paragraph is mis-numbered 21 in the original Arabic text.

(a) Ensuring that the Conference for National Dialogue is convened, and forming a preparatory committee for the Conference, as well as an Interpretation Committee and other bodies established pursuant to this Mechanism;

(b) Establishing a process of constitutional reform that will address the structure of the State and the political system, and submitting the amended Constitution to the Yemeni people in a referendum;

(c) Reforming the electoral system; and

(d) Holding elections for Parliament and the Presidency in accordance with the new Constitution.

Conference for National Dialogue

20.(‡) With the beginning of the second transitional phase, the President-elect and the government of national unity shall convene a comprehensive Conference for National Dialogue for all forces and political actors, including youth, the Southern Movement, the Houthis, other political parties, civil society representatives and women. Women must be represented in all participating groups.

(‡) Translator's note: this paragraph is mis-numbered 18 in the original Arabic text.

21.(§)The Conference shall discuss the following issues:

(§) Translator's note: this paragraph is mis-numbered 19 in the original Arabic text.

(a) The process of drafting the Constitution, including the establishment of a Constitutional Drafting Commission and its membership;

(b) Constitutional reform, addressing the structure of the State and political system, and submitting constitutional amendments to the Yemeni people through a referendum;

(c) The dialogue shall address the issue of the South in a manner conducive to a just national solution that preserves the unity, stability and security of Yemen.

(d) Examination of the various issues with a national dimension, including the causes of tension in Saada;

(e) Taking steps towards building a comprehensive democratic system, including reform of the civil service, the judiciary and local governance;

(f) Taking steps aimed at achieving national reconciliation and transitional justice, and measures to ensure that violations of human rights and humanitarian law do not occur in future;

(g) The adoption of legal and other means to strengthen the protection and rights of vulnerable groups, including children, as well as the advancement of women;

(h) Contributing to determining the priorities of programmes for reconstruction and sustainable economic development in order to create job opportunities and better economic, social and cultural services for all.

Constitutional Commission

22. The government of national unity shall establish a Constitutional Commission immediately on the conclusion of the work of the Conference of National Dialogue within six months. The Commission shall prepare a new draft constitution within three months of the date of its establishment. It shall propose the necessary steps for the draft constitution to be discussed and submitted for referendum in order to ensure broad popular participation and transparency.

Organization of elections under the new Constitution

23. Within three months of the adoption of the new Constitution, Parliament shall enact a law convening national parliamentary elections and, if provided for by the Constitution, presidential elections. The Higher Commission for Elections and Referendums shall be reconstituted and the new register of voters re-compiled in accordance with the new Constitution. That law will be subject to subsequent review by the newly elected Parliament.

24. The term of the President elected under paragraph 7 of this Mechanism shall end upon the inauguration of the President elected under the new Constitution.

Part V. Settlement of disputes

25. Within 15 days of the entry into force of the GCC Initiative and the Mechanism, the Vice- President and the Prime Minister of the government of national unity shall form an Interpretation Committee to which the two parties shall refer in order to resolve any dispute regarding the interpretation of the GCC Initiative or the Mechanism.

Part VI. Concluding provisions

26. Women shall appropriately represented in all of the institutions referred to in this Mechanism.

27. The Government shall provide adequate funding for the institutions and activities established by this Mechanism.

28. In order to ensure the effective implementation of this Mechanism, the two parties call on the States members of the GCC and the United Nations Security Council to support its implementation. They further call on the States members of the GCC, the permanent members of the Security Council, the European Union and its States members to support the implementation of the GCC Initiative and the Mechanism.

29. The Secretary-General of the United Nations is called upon to provide continuous assistance, in cooperation with other agencies, for the implementation of this Agreement. He is also requested to coordinate assistance from the international community for the implementation of the GCC Initiative and the Mechanism.

30. The following are invited to attend the signature of this Mechanism: the Secretary-General of the GCC and the Secretary-General of the United Nations or their representatives, as well as the representatives of the States members of the GCC, the permanent members of the United Nations Security Council, the European Union and the League of Arab States.

(Signatures and dates)

Annex

Exercising(**) the authority conferred on me by the President under Presidential Decree No. 24 of 2011, I hereby solemnly convene elections for the office of President of the Republic to be held on 00/00/2012. This Decree is deemed to be in force from today, and the convening of elections contained therein is irrevocable. The convening of elections shall take effect in accordance with the provisions of the Mechanism, without any need for any further steps, sixty days before the holding of elections as set forth in the Mechanism.

** Translator's note: On the basis of the unofficial English translation, the following may be missing from the Arabic text:

" Annex: Decree issued by the Vice-President concurrently with the signature of the GCC Initiative and the Mechanism.

The Vice-President of the Republic, acting under to the authority conferred on him by the President under Presidential Decree No. 24 of 2011."

This decree shall be published in the Official Gazette.

US Yemen policy: worse than you thought

Over the past few days, most Yemen-watchers (both Yemeni and foreign) on the internets have expressed dismay over the possibility that the United States would allow President/Former President/Honorary President 'Ali 'Abdullah Saleh into this country. As of yesterday, if the New York Times' sources are to be believed, the Obama administration had as good as made up its security-addled mind to grant Saleh a visa "for legitimate medical treatment" in New York City. I've talked to a few people this week who don't understand why I think this is a terrible idea. If you're one of these people, I suggest you read Andrew Exum's post from last night on the subject, because I don't feel like repeating what's already been well said. The main points I'd like to make are that, while we all know by now that Obama's CT advisor John Brennan has more say on Yemen policy than the entire State Department, the US government has been pursuing a full-court press of stupidness when it comes to Yemen and Arabia in general, and that the administration is not prepared for the consequences of this stupidity.

On Friday and Saturday the Saleh regime's security forces attacked protesters who had made a five-day march from Ta‘iz to San‘a, killing at least 10 and injuring dozens. US Ambassador Gerald M. Feierstein decided this would be a good time to say publicly and on the record that the marchers were not, in fact, peaceful protesters, but agents of chaos and violence. Even for Yemenis accustomed to America's arrogance and wrongheadedness, this statement was shocking.

The administration officials quoted in the NYT article above are quick to blow off any suggested parallels between their decision to host Saleh now and the Carter administration's welcoming of the Shah of Iran in 1979. They've got all kinds of justifications for the decision, which might even sound convincing to some Americans. These justifications are misguided and dangerous. Let me spell this out in terms simple enough for John Brennan to understand: for 11 months, Yemenis have demanded the ouster of Saleh and the establishment of a democratic government. For 11 months, the US has refused to support those demands; has refused to condemn Saleh's murderous repression of his people; has tried to force unwelcome, Saudi-crafted false solutions down Yemen's throat; has repeatedly blamed protesters for the regime's violence against them; has continued to kill innocent Yemeni civilians in ill-conceived and poorly-executed CT efforts; has continued to support the regime's military; and now appears ready to allow Saleh to take a free vacation in New York while his children continue to murder Yemenis. In short, the Obama administration is treating the people of Yemen as The Enemy. Can any of us really expect Yemenis not to return the favor?

Mr. Brennan, how do you think this will end?

Houthi Expansion and Marginalization

For the second day in a row, we're pleased to offer a piece by PhD candidate and renowned Yemen-watcher Fernando Carvajal. This one covers recent developments in the far north, where the al-Huthi movement is facing battles on several fronts. One of the main issues prolonging Yemen’s instability beyond the recent GCC agreement on transition of power from President Saleh remains the unresolved conflict between Zaydi Houthi rebels and religio-political forces. This issue continues under reported inside and outside Yemen, with only a few videos found online and often brought to our attention by dedicated observers like Aaron Zelin (jihadology.net). The conflict is by no means new, nor confined to events related to the youth revolution, nor is it confined to the six wars fought between Houthis and government forces throughout the predominantly Zaydi northern territories of Saʻdah, al-Jawf and Harf Sufian.

Today’s conflict has reached a point beyond mere political positioning or demands over religious freedom. People still continue to debate its origins, whether it resulted from the new political alignments following the 1994 civil war giving the Sunni Islamists (al-Islah) a share of power, or from broken promises by the regime to the sons of Badr al-Din al-Houthi following the success of the 2000 Border Treaty with Saudi Arabia. Houthis, who were part of the military and ruling party, were instrumental in gaining the support of many Zaydi tribes along the border in order to ensure Saudi Arabia of stability along its southern flank, but in the past 11 years Zaydis had remained targets of Islah’s political agenda in Sanʻa which focused on a stronger hold for Sunni-based education nation-wide. In addition, Zaydis continued to face increasing pressure from Salafist groups bent on engaging Dawa (Calls to Islam) projects in predominantly Zaydi territories, such as the now four-decade-old Damaj ( Saʻdah) Dar al-Hadith center which is part of a major network of teaching centers around the country under the leadership of students of the late Shaykh Moqbil al-Wada’i.

Houthi rebels, led by Abd al-Malik b. Badr al-Din al-Houthi, are now engaged in what could be a war for survival. Following a ceasefire agreement with the government in 2010 the group still remains engaged in armed conflicts in al-Jawf (against Islahi tribesmen), in Saʻdah (vs Salafis in Damaj), in Hajja (against tribes that may offer government forces positions from which to attack Saʻdah) and unarmed conflicts with Islah within Change Square in Sanʻa since late April as they joined the physical occupation of the streets of Sanʻa in support of the Youth Revolution. As a result of their continued marginalization within the political process, Houthis have now moved to a strategy of expansion in order to produce a network of potential launching sites proving them with bargaining power. This expansion includes presence in southern areas as far as ‘Aden, and newly territories such as Rada which would allow them access to Dhamar, an area with Zaydi population. Such positions should be of interest since both Aden and Rada are major targets of Islah during the ten month long revolution and in a post-revolution electoral process as well. Rada has itself witnessed increasing clashes between tribes from al-Ghaysh, loyal to Islah and often associated with Salafist/AQ related training camps (this is where Anwar al-Awlaqi’s brother-in-law comes from as well). The government has so far failed to settle the security issues in Rada, even after visits with Ahmed Ali by the city’s major shaykhs, and while the population has so far remained in support of President Saleh they have threatened to withdraw their support if they have to engage Islahis on their own. Rada is far from joining Islah in a political agreement, and though we see pro-revolution demonstrations in Rada residents indicate they are often under guard of heavily armed men and of low numbers.

We must also keep in mind that the Houthi issue has remained outside the political negotiations that produced the GCC Initiative signed by President Saleh on Wednesday. The Zaydi group, often associated with Iranian elements based in the Yemen Affairs Offices in Tehran and Damascus, has been marginalized politically even though its leadership formed part of the high ranks of the military and were members of parliament. One reason given in Sanʻa for such marginalization has been the fact that there is no viable Zaydi political party active in the negotiations. Al-Haqq party, member of the Joint Meeting Party (JMP), is not recognized legally by the government. Leaders of al-Haqq party have often remain in conflict with the Houthi leadership, and the only contacts of influence for the Houthis have been with personalities outside Yemen that remain in direct conflict with the regime. Neither Mr. Hasan Zaid nor Dr. Mohamed Mutawakkil have been able to produce a rapprochement between the government and Houthis over the past seven years, even though they have full access to the leadership of al-Islah within the JMP that would allow Zaid and Mutawakkil to mediate between Islah and Houthis and pave the way to the end of confrontations with the government.

This week Aaron Zelin posted a video of Salafist shaykh Yahya al-Hajuri from YouTube (dated November 6th) encouraging jihad against the ‘drunk’ Houthis, while we read at the same time this week that Salafis in Damaj and Houthis had agreed to a ceasefire. Last week, before I left Sanʻa I also posted on twitter that Yemeni analysts had mentioned Saʻdah was probably the safest area in Yemen and its economy actually showed signs of growth at a time of complete economic stagnation in Yemen. The accusations against Houthis, which have previously included rapes and forced marriages, in the video of al-Hajuri seem out of place and beyond the Iranian-linked accusations. This conflict in Damaj should also be considered in relative terms and not as an all-out Salafi-Houthi conflict since most Salafis are pre-occupied with the ten-month-old political crisis as they position themselves in support of President Saleh and in direct opposition to Sunnis of al-Islah, mainly seen as Muslim Brothers and not Salafists. This conflict with al-Islah has resulted in a demonizing narrative of the Muslim Brotherhood as the new vanguard of al-Qaeda during sermons, Friday speeches at Sabaeen Stand, even radio talk shows in Sanʻa.

As if things were not yet confusing enough, the role of Saudi Arabia further complicates matters. After the outright failure of Saudi armed forces against Houthis along the border in 2009 the Kingdom had secretly established direct contact with Abd al-Malik al-Houthi and set up confidence building mechanisms in order to avoid clashes along the border. Things were then made more complicated as Gen. Ali Muhsin al-Ahmar, head of al-Firqa, reached an agreement with Houthis in March in order to prevent clashes between Houthis and Firqa in Saʻdah in order to focus on the political crisis, then he completely disengaged when he defected on 20 March to ‘protect’ the revolution. This situation handed Saʻdah to Houthis and saw the appointment of Faris Man’a, a weapons dealer, as de facto provincial governor. Firqa were withdrawn to the borders of Saʻdah, while Republican Guard forces remained beyond Firqa positions, and Houthis were allowed free movement while encircling Damaj district housing the salafis. All the meanwhile Houthis refused to withdraw from territory gained inside al-Jawf province, to the east of Saʻdah. Since the deals with KSA and Ali Muhsin only addressed the situation in Saʻdah Bakil confederation tribal forces loyal to al-Islah began to engage Houthis in al-Jawf under presumed patronage from KSA. Under Shaykh Ameen al-‘Ukaimi tribal forces had already taken control of al-Jawf and formed a Tribal Council in late March to substitute central government authority and declared their support for the Youth Revolution.

Saudi does not automatically support Salafis in Damaj. The relationship with al-Wada’i’s successor still remains fragile as result of conflicting agendas. It is unclear where Damaj-based Salafists obtain their funding, but they have managed to resist Houthi pressure this year. Houthis still face a long uphill battle in the post transition period, and it seems political actors are in no hurry to take on the issue any time soon. Failure to address the matter immediately will result in prolonged instability and force Houthis to find new staging points around the country in order to exert pressure on the interim government and potentially increasingly destabilize many regions as the 90 day deadline for elections approaches. We must wait to see which political actor assumes the mantel of mediator between Houthis and their religious and political rivals. Just as we see no alternatives for the post of Prime Minister and President in the coming weeks, it is difficult to think of one individual within the JMP or among the Zaydi community willing to take on this task. Also, the previous failure of Qatar to intervene in the matter removes potential international actors able to fill the vacuum. It would also be against Qatar’s interests to represent the Houthis at a time when their vested interests may rest only with Islah and Bayt al-Ahmar as reported by Yemeni journalists and analysts. Iran is often mentioned as a potential mediator, but as the international community continues its rhetoric against Iran vis-à-vis the nuclear issue and Syria’s revolution, it seems highly unlikely the interim government under al-Hadi and BaSundwa will accept any overtures from Tehran and endanger any relations with KSA, the US and the EU at a critical time.

He signed...now what?

We're honored once again to offer our readers a guest-post by University of Exeter PhD candidate and renowned Yemen-watcher Fernando Carvajal. I should probably stop calling them "guest-posts," though, since Fernando is responsible for more of our recent content than we are. This one offers some much-needed insight into the behind-the-scenes politics of the formation of the new unity government and the immediate future of Yemen after the signing of the infamous GCC agreement. Fernando prefaces his post with a phrase familiar to American readers: "Sic semper tyrannis"

So far this has been one of those intense weeks for Yemenis and our group of observers.  Events began to develop on Saturday November 19^th with news that UN Special Envoy Jamal Ben Omar would cancel a planned trip to Riyadh with Opposition leaders and representatives from president Saleh’s government, and instead would remain in Sana’a until the final deal would lead to agreement on the GCC Initiative introduced in April.  Ben Omar pressed both sides for a final agreement as the 30 day deadline imposed by UN Security Council Resolution 2014 approached. This deadline would require Ben Omar to produce a report on the situation, which would not paint a favorable picture for President Saleh, who already began to feel the heat from calls to freeze his assets outside Yemen and impose sanctions on his relatives and government officials by activists like Tawakkol Karman and others online.  Such efforts against Saleh gained the ear of French officials who made their opinion public and threatened to act on sanctions if the stalemate and killings continued in Yemen.

As I left Yemen on Monday November 21^st it looked like I would miss another historic event this year, even though my Yemeni friends remained pessimistic about the president’s intentions.  On Wednesday, as I waited for my flight from London to Los Angeles I began to read the news that President Saleh had signed the GCC initiative in Riyadh, which was then followed by a series of signatures elsewhere of the documents containing amendments and additions to the initiative as agreed by the Joint Meeting Parties and government officials like FM Abu Bakr al-Qirbi and Dr Abd al-Kareem al-Iryani.   As people in Sana’a informed me before my departure, two points were essential to ensuring signatures on both sides. First was the issue over immunity. Many people still think this only concerns President Saleh and his relatives, but indeed the deal includes immunity for about 16 major personalities directly involved in the conflict since February in areas like Aden, Arhab, Sana’a and Taiz.  All individuals involved in violent clashes with official posts are covered by the immunity deal, even so-called defectors who curiously enough have remained on official government payrolls since March 20^th.

Second, the Southern question had been a vital issue to address before any deal could be agreed. This was Dr. Yasin Saeed No’man’s main agenda.  Dr. No’man, head of the Yemen Socialist Party, has remained the primary face of the Southern issue since the failed National Dialogue process. Al-Harak, or Southern Movement, has been unable to become a legitimate representative of the South within political negotiations as an ‘unconstitutional’ entity.  This leaves Dr. No’man with the burden to carry on under pressure from the population in the South and obstacles created by ‘leaders’ in exile.  Dr. No’man, and his junior political allies within the JMP, had to press for the issue to be included in the agreement in order for it to remain in the agenda for the Dialogue process leading to the interim government. The issue had to be recognized within the agreement in order to marginalize any communiqué produced during the two day meeting of southern leaders in Cairo between November 21 and 22.  Fortunately for Dr. No’man the meeting in Cairo was a fiasco. Only a few activists attended the meeting and the few opted to continue supporting secession, moving away from loud voices supporting negotiations on the establishment of a Federal Republic, whose political entities are still debated inside and outside Yemen.  The matter remains highly volatile but at least the Southern question has not been completely ignored as the Houthi issue, which remains completely outside the political process today.

Finally, today we began to hear news of Mr. Mohammed BaSundwa as the most probable candidate from the JMP for the post of interim Prime Minister for the 90 day period under the GCC Initiative.  The Twitter-sphere also began to transmit opinions of many at Change Square who claimed BaSundwa was not the ideal candidate but would be acceptable, we assume this is the case for JMP youth, not independents who continue rejecting the legitimacy of the GCC deal.  I was told last weekend that the other two candidates would be Dr. Yasin No’man and Abd al-Wahhab al-Anesi of al-Islah.  The former would be the ideal candidate but Dr. No’man failed to accept President Saleh’s offer after 22 May 2010 and he would lose further credibility in the South by merely participating in the interim government.  People have hopes for No’man as a Prime Minister after the elections, not merely within the 90 day transition period.  Mr. al-Anesi would be problematic as a candidate since he is the head of al-Islah party, blamed for hijacking the youth revolution, and representing the old guard within the party with a more conservative image.  His candidacy would also represent Islah’s hegemony over the JMP and would raise red flags for the US and UK governments at a time when Islamist parties begin their ascent through the Arab Spring in North Africa.

As for Mr. BaSundwa, a former UN Ambassador and Foreign Minister under president Saleh, his candidacy appears the most appropriate for the interim period.  I spent my Fridays during Ramadan this year with him and a group of opposition personalities in Sana’a, where I had the opportunity to gain further insight into the complexities faced by the National Transition Council.  It was also a great opportunity for me to understand some of the personalities involved.  My most memorable exchange with Mr. BaSundwa and company was when I complained to the group about the Council’s holiday announcement. I was a bit harsh, in a diplomatic way, when I expressed my disgust of the idea that politicians could go on Eid holiday in the middle of a ‘revolution’ while youth remained at Change Square and Freedom Square away from their own families. Many agreed with me but at the end they said ‘this is Yemen’.  Mr. BaSundwa impressed me with his understanding of the crisis and international actors, but I have to say that we must keep our expectations low during his brief term in office.  His role will be to maintain the parties engaged, as he did during the National Dialogue process.  We must also keep in mind that his presence will not be well received by President Saleh, who still holds BaSundwa responsible for the direct attacks on him produced by the final communiqué from the Central Committee of the National Dialogue.  Saleh also opposed BaSundwa’s presence during the signing of the GCC Initiative in May.  We must also keep in mind that the interim government, if it includes BaSundwa, will actually be an ‘all Southern government’. Both VP al-Hadi and BaSundwa are southerners, and if we look at the overwhelming majority of Deputy Ministers they too are Southerners. We need to see who will be the new Vice President and how many Deputy Ministers are changed after the 90 day transition period.  I guess Hamid al-Ahmar will get his wish.

Some analysts in Sana’a also point to BaSundwa’s relations with Hamid al-Ahmar as a major point of friction between him and President Saleh.  After all these negative points against BaSundwa one may wonder why him?   We must keep in mind the process engaged in ending the nearly ten month long stalemate merely included regime actors, not the youth or groups beyond existing political parties.  Choices are few from within the political elite.  Many of us will agree this has been a direct negative consequence of the many opportunities missed by the independent youth to organize themselves and become active participants rather than marginalized and co-opted numbers contained by Firqa and al-Islah.  The major theme over the past ten months in Yemen has been the absence of viable alternatives.  None have surfaced, even from among the defectors, like Muhammad Abu Lahum of the Justice & Building Bloc or from within the newly announced Democratic Awakening Movement.  No individual or group has been able to challenge the JMP leadership, yes, not even Tawakkol Karman.  The lack of viable alternatives leaves the elite to negotiate among themselves and to proceed along expected political lines without any plans to change the status quo.

We must keep in mind that no political actor, not Abu Lahum or the Democratic Awakening, have produced any vision for progress following the transition process.  It is a shame that after ten months neither the government nor groups of activists have a program for constitutional reform, economic recovery or national reconciliation.  We are now in the days after the signature and since March all I hear is ‘the plan will come out after the signature, it will be ready’.  Well, where is it? As a foreigner I understand that my role should be limited to that of an observer, but after spending so much time with activists and government officials I cannot avoid asking such questions. I truly hope that some vision is announced within hours, otherwise the youth will find themselves having thrown away ten months of their lives for nothing.  Occupation of streets in Sana’a or Ta‘iz will mean nothing without a vision of what the ‘post-Saleh period’ should look like.

A voice from Yemen

I'm pleased to be able to share with you all this very thoughtful video, made by a friend of ours in Yemen, about the current situation there. [youtube http://www.youtube.com/watch?v=zyv71sirA-8&w=420&h=315]

RIP Christopher Boucek

Yemen analyst, author, and Carnegie Endowment associate Christopher Boucek died suddenly this morning at the age of 38. He leaves behind a wife and two young children. Boucek was one the Yemen watchers whom I greatly admired. His work showed a real concern understanding for the needs of Yemen's people. I never knew Boucek personally, but I know that the community of Yemen analysts and policy makers are greatly impoverished by this loss.

Below is a Storify of many of the tweets I saw today commenting on Boucek's passing.

[View the story "Christopher Boucek: Condolences" on Storify]

What Saudi Arabia wants

Who says you can't fit everything you need to say into a tweet? This entry was originally a very long tweet by our friend and sometimes blogger Fernando Carvajal. It was in response to a conversation (Storified below) between a few Yemen-watchers about why Saudi Arabia hasn't decided to back Yemen's opposition Islah party as a replacement for President Saleh and the GPC. View "What Saudi Arabia wants" on Storify

A strong Yemen means its institutions within the Jumhuriya (Republic) context are strong, this means democracy is strong. This threatens the KSA because even under Abdullah they have a reform project that is to run at a pace comfortable to Al Saud, and if Yemen, or any other neighbor in the peninsula reforms too quickly it will force Al Saud to speed up reform, confront rivals sooner then they want, and it will be a distraction for their own mid- and long-term projects. This will also impact the rest of the GCC of course, not just KSA. Any advance on democratization in yemen would mean the entire Peninsula would have to catch up quicker. Monarchs have not yet figured out how to do this without losing. I'm sure they like King Felipe (Spain) & Queen Elizabeth some, but they dont envy their symbolic positions. [I.e., Gulf rulers aren't ruling out a transition to constitutional monarchy with a functional, empowered parliament, but not on their own schedules and not without maintaining a significant degree of power and wealth.]

On the other hand, a weak Yemen poses other challenges for Al Saud: if the country spirals downward away from "controlled chaos," like Bernard Haykel says, it will force KSA to focus on security issues and neglect mid long term projects, which already carry natural rivals from within the Kingdom. Al Saud can't handle too many rivals or challenges at once; all of this Arab Spring is getting in the way of a mid-term plan to increase hegemony in the region vis a vis Iran, Iraq and yes, Israel. If it has to watch its flank all the time it can't focus on succession, economic stimulus, energy markets, competing with Dubai in finance sector, playing a new role in Palestinian-Israeli conflict, Iraq and placating US on counter-terrorism. People forget that 'terrorists' are still trying to kill Saudis, never mind Iran. We forget migration, human trafficking, tribal disputes along the border. Also, an unstable Yemen means KSA needs to spend more money on tribal leaders to minimize, not end, distabilizing disputes that might end up costing more, like this revolution. This cuts into their own budget, and as the new generation fights amongt themselves, it leaves less cash to go around the family itself.

KSA is not the only Gulf state threatened by a weak Yemen. Oman fears spread of Salafi groups into its territory at a time when the Sultan is also looking at succession, and is also going through an economic crisis. People forget KSA just saved Oman's butt in February with a large contribution to counter any type of Arab Spring there. The UAE, for it's part, can't afford increased instability in Gulf of Aden because it affects its port operations at a time when they can't afford to lose any more cash or investments. AQAP will remain a threat not because of numbers but because it still has a hideout in Yemen for ideologues and small groups of operatives able to reach KSA or the Horn. With Awlaki out of the way and yemen cracking down on visas for Westerners and Asians the training camp factor decreases as well as the recruitment ops, [but none of the Gulf states can afford to neglect counter-terrorism efforts until and unless Yemen is able and willing to address the threat itself.]

People need to forget about the old myth in which Saudi's king 'Abdul 'Aziz told his sons, while on his death bed, to "keep Yemen weak." This was more about the Imam [Yahya] than any crystal ball effect on his part for his successors. The King didn't trust Imam Yahya or Ahmad ibn Yahya or the British in the south so he needed to ensure his son Faysal learned from his campaign in Tihama and prevent the Imam from returning to Najran and Asir (the treaty of 1934 was never intended as a permanent border, until 2000). Being a holy man, the Imam threatened Al Saud's hold on al-Haramain as other Sunni groups (MB) wished the Zaydis could fill the power vacuum after the Ottomans.

The new reality is that KSA and the other Gulf states can't afford to allow Yemen to become too weak, or too strong, yet.

Saleh's return

Fernando Carvajal, PhD candidate at the Institute of Arab and Islamic Studies, University of Exeter. The author has visited Yemen for over eleven years and witnessed the initial five months of the popular uprising in Sana’a. His most recent visit to Yemen was during the past month of August. I am one of those who hates blurb and sound-bite articles so as soon as I heard the news of Saleh’s return this past Friday morning I decided to sit and write about conversations I had in Sana’a during Ramadan.  Everyone I met with from the ruling party assured me the president would return and that even though some in the Saudi ruling family preferred him not to, Saleh would return, as long as his health permitted.  The original version of this piece was written before I had a chance to catch up with news of the clashes and dozens of deaths. This is an updated version based on information from Sana’a and my own analysis.  The article changed direction from the idea of ‘Saleh’s major opportunity to rescue any legitimacy he had remaining’ to ‘the major opportunity he failed to capitalize on’.  Much still remains unclear about the events of September 23^rd, but we can be assured that even with the support of Saudi Arabia, the US and UK, he is now the one with his back against the wall instead of the opposition elements. It’s a bit long, but this was the plan agreed by members of the GPC to address the crisis.

As Yemen’s president Ali Abdullah Saleh abruptly returned to Sana’a under the cover of dawn on “the Friday of Confidence in God’s Victory” protesters and outside observers brace for prophetic escalation into civil war.  The immediate reaction from Yemenis at the protests sites and observers outside the country was one of surprise to Saleh’s apparent ‘defiance’ of the US and UK stance and the Gulf Cooperation Council’s brokered plan for peaceful transition of power.  A second reaction raised prospects once again of a devastating civil war as consequence of Saleh’s expected revenge against the opposition for the June 3^rd attack inside the Presidential Palace.  Saleh’s close advisors and members of the ruling party dismiss such views back in August and for a month spoke of a deal that would work to de-escalate the crisis and present a more realistic plan for the peaceful transition of power from Saleh to his Vice President, Abdo Rabo al-Hadi.  Essentially, Saleh’s last opportunity to prove he is able to be part of the solution.  The events of September 23^rd shocked everyone, even those    predicting  Saleh’s savage revenge, which seemed to be released upon unarmed protesters at the perimeter and center of Change Square in Sana’a.

Most important to president Saleh’s return to Sana’a has been his health.  After spending nearly “112 days” convalescing in Riyadh, as Mohammed al-Basha of the Yemeni Embassy in Washington DC indicated, Saleh’s return indicates his health is in good condition.  His spokesman in Sana’a, Abdo al-Janadi, had often reported on Saleh’s imminent return since late July, as if teasing people each week.  Another sign of why his return indicates Saleh is now in good health is the lessons learned over past two months as his close allies injured along with him began returning to Yemen.  One such official was mentioned during my last visit to Sana’a in August, who upon his return from Riyadh in early Ramadan passed away as result of complications from his burns and the poor medical care available in Sana’a.  No doubt Saleh arrived with what should be substantial medical assistance.

While most people in opposition to Saleh and many observers in the West began writing Saleh’s political obituary following the attempted assassination, his relatives, along with political and tribal allies have worked for nearly four months to hold the fort until his return. As many have speculated, the timing of his return is no coincidence, as the crisis once again escalated following deadly clashes on Sunday September 18 leaving over 60 peaceful protesters dead in Sana’a. We can deduce from his unannounced arrival that President Saleh perceived this to be the right time to re-engage the opposition in dialogue to prevent further escalation and show regional and international allies he indeed represented the only solution to the crisis.  His return followed a private meeting with King Abdullah of Saudi Arabia on September 19 and renewed efforts to implement existing transition plans brokered by the US, UK and the GCC.  Until the morning of his return we knew this was completely rejected by independent youth protesting in Sana’a, Taiz and the port of Aden, and further complicated the opposition’s efforts to negotiate a transition directly with the Vice President.

Most observers and opposition personalities now see no solution to the crisis beyond a protracted and devastating civil war as result of the savagery this past Friday.  Yet members of the ruling party continue to see things different and the membership remains confident President Saleh’s own initiative from August still provides the best way forward.  This is evident by the lack of defections from Saleh’s camp following the clashes this past Friday.  I can only assume that the plan drafted under the umbrella of a committee established by Saleh in late July to address amendments to the GCC Initiative introduced in April remains en force.  The ruling party assumes that even after the violence of the past week the president holds enough political capital to force the opposition to sit at the negotiating table.  The committee stands firm with the arguments they original resented against the transfer of power to the Vice President as unconstitutional, and second, arguing the provisions in the GCC Initiative to hold presidential elections within 90 days after Saleh stepped down remain unrealistic. The latter view gained unsolicited support from a report produced by IFES on June 7^th, titled transitions in Yemen: An Overview of Constitutional and Electoral Provisions, where it argued much had to be done before any legitimate elections could be held in Yemen.  The committee agreed to a number of changes to the GCC plan under the guidance of President Saleh.

While Ali Muhsin al-Ahmar, head of the 1^st Armored Division, strongly condemned the acts of September 23^rd and blamed Saleh for the savagery against unarmed civilians, the ruling party believes the opposition is has more to lose and will still be forced to accept negotiations along with the Joint Meeting Party (JMP) and tribal leaders and allies of the al-Ahmar family.  It is understood that the independent youth will never accept anything short of a full transfer of power beyond the hands of the president and his relatives, which has been the case from day one.  Yet, the more ‘realistic’ plan to be offered to the opposition, and diplomatic actors, was drafted to include seven steps: 1) an initial plan for de-escalation; 2) following the ceasefire we could expect direct dialogue; 3) an extensive agreement for de-militarization of the Capital; 4) the formation of a military council to oversee de-militarization and address the security vacuum; 5) a committee to pave the way for Parliamentary elections in six to eight months; 6) the new Parliament would address reforms and presidential elections would still be held in September 2013, and 7) President Saleh would delegate most of his authority to the Vice President until 2013.

None of this could actually move forward of course until the president announces a comprehensive amnesty retroactive to February, and seeing that Shaykh Sadeq al-Ahmar signaled a willingness to negotiate on Saturday September 25^th we assume there is no talk of amnesty for the president.  In order to de-escalate the crisis it is understood the youth would have to abandon their positions across the country, now made even more difficult following the events of this past week. The opposition will not be able to guarantee demobilization on its own and if Saleh is to be taken seriously as the only ‘light of hope’ it cannot be achieved by force, as it is rumored to occur in the coming days.  Persons within the government and the ruling party mentioned in August that the amnesty would be a guarantee for all youth participating in protests across the country and that no one would be arrested or prosecuted.  No one mentioned the mechanisms guaranteeing such safety, and I am sure the youth and activists would live under constant fear of random arrests.  Without a legitimate body to serve as guarantor and capable of investigating violations of the amnesty the youth would not receive this as a credible offer.

President Saleh’s plan has plenty of support among ruling party members and allies, who also believe the GCC plan is completely unrealistic.  The ten main points contained in the GCC plan, from elections in 90 days to a new constitution before parliamentary elections, would be unachievable under a working government, never mind under a fractured coalition where the opposition has not presented to the people of Yemen or international mediators the ability to manage such transition.  Prior to leaving Riyadh President Saleh should have clearly expressed his views to King Abdullah and GCC officials denying his defiance of the Initiative but rather ‘considering the reality of the situation.’  His defiance is more directed at demands from the people on the street, who continue to be firm in their demand for Saleh to step down and be prosecuted along with his son Ahmed and nephews Yahya and Ammar Mohammed Saleh.

Up until this past Friday the opposition had their backs against the wall, they either escalate to full direct military conflict or acquiesce to sit at the same table with Saleh.  At this point, the president’s plan would not grant the opposition the same offer as in early February of a shared government until Parliament elections are held.  He will insist on the current care-taker government, under Prime Minister Ali Mohammed Mujawar, to oversee his conflict resolution plan.  As we await President Saleh’s first address to the people of Yemen, tentatively scheduled for Sunday September 25^th (a day before celebrations of the 1962 Revolution) we already witnessed the usual moves by Saleh of offering a cease-fire while continuing to engage with force on the day of his arrival.  His first step was to address the cease-fire between the opposition’s military forces and government security forces led by his son Ahmed and nephews Yahya and Ammar, which in reality led to a violent strike against protesters and al-Firqa in order to attempt to regain lost territory around the streets of Sana’a.  We now expect Saleh to speak on Sunday and an olive branch once again in order to gain the support of diplomats once again.  Who would sit with Saleh at this point is beyond reason.  Saleh will naturally aim for direct negotiations with his former confidant Gen. Ali Muhsin, and while the JMP would be tempted to have either Mr. Mohammed BaSundwa, president of the National Transition Council and former head of the National Dialogue Committee, or someone like Abdul Wahab al-Ansi, Secretary General of the Islamist party al-Islah (less likely a candidate since he always remains in the background) they will risk political suicide in the eyes of the youth.  In any case Saleh will instantly oppose Mr. BaSundwa, even tough he served as Ambassador to the United Nations and was Foreign Minister under Saleh in the 1990s.  General Ali Muhsin has already indirectly expressed his objections to engaging Saleh as consequence of Friday’s clashes and especially after a blatant attempted assassination following his defection in late March of this year.  But since Saleh will never sit with any member of the al-Ahmar family after all the animosity from Shaykh Hamid al-Ahmar and his eldest brother Shaykh Sadeq al-Ahmar, Ali Muhsin appears as the only logical actor to sit with Saleh, which may ultimately have to include Shaykh Sadeq keeping with Yemeni political tradition.  This meeting will undoubtedly have to take place at the house of Vice President Abdo Rabo, which now lies within the perimeter secured by forces loyal to Ali Muhsin following last Sunday’s clashes.

Having overcome the most difficult steps, which may likely be aided by US and UK diplomats who often meet with Gen. Ali Muhsin, the second most difficult step would come when the committee is formed to oversee de-militarization of the capital.  The most difficult step will remain asking the youth to accept such rapprochement. Mistrust on both sides will be the most difficult obstacle to overcome once the decision is made, considering the regime’s atrocities against unarmed civilians since March and the fact that al-Firqa maintains nearly 40,000 soldiers and militia within Sana’a’s borders.  To this we add the protesters’ heightened mistrust of the regime, and if Ali Muhsin were to ever agree to de-militarization it would leave protesters absolutely vulnerable if they remain within protests squares around the country.  The opposition will lose further credibility in the eyes of the youth who already believe they will only protect their own interests.  The response to Saleh’s overture will depend on whether the opposition wants still wants to risk civil war or prevent further atrocities, which it can later claim as their virtue for saving hundreds of lives.  Ali Muhsin, the JMP and the al-Ahmar family will only save face if they become the primary mechanism to guarantee full amnesty and prevent violations until final solutions are in place.

It is believed that once the primary confidence building measures are in place the remainder of Saleh’s plan will allow for a “peaceful” process toward holding elections.  A remaining obstacle will be opposition from the youth to the fourth point in Saleh’s plan, a military council, which would include direct participation by Saleh’s son and nephews.  This point is in no doubt in response to US concerns over control of the armed forces and assurances the regime will not allow subversive elements to gain safe-haven anywhere in Yemen.  How this military council will incorporate officials who defected still remains unclear. Ali Muhsin has already expressed his assurance to Western diplomats he will remove himself from all military service once transition begins, yet we still don’t know at what exact point he will do so and what his role would be in a post-transition Yemen.

The most important issue for the youth is reform, and it appears as the major task.  Yemen has not had a full voter registry since February 2009.  Many of the youth protesting today were under age and will instantly demand access to the electoral process.  IFES also commented on the state of the Supreme Commission for Elections and Referendum (SCRE), which was a primary source of conflict in December 2010 when Saleh appointed a number of judges without consulting the opposition.  If security were to return to the entire country and ensure safety of polls and transport of ballot boxes following the elections there still remains the problem that poll committees need to be appointed and staff trained, in addition to training local and international observers.  None of this could be accomplished within the 90 days set by the GCC initiative.  Once the committee is in place to begin work on elections, whether parliamentary or presidential, dates must be set and a number of benchmarks met before legitimate elections can take place.  This will also test the credibility of the opposition in the eyes of the independent youth as the opposition’s dedication to democracy will definitely be tested.  This process may take six to eight months, and the thought of such a long period will continue to worry the youth who believe Saleh will pull another ace from under his sleeve in order to prolong his term in office or guarantee his son’s succession in 2013.

The prospect of president Saleh remaining in office until 2013 will lead to a demoralized youth movement which has proven its resolve over the past eight months.  The movement has revitalized each time following clashes with government forces, and proven they do not fear death or clandestine persecution.  Yet, if the opposition sits with Saleh to negotiate a deal short of removing him from office, they ill feel as though all their efforts would have been in vain as they do not see anything at all positive from an electoral process including Saleh and his regime.  The youth will also question the credibility of the plan drafted by the ruling party concerning the authority and power of Vice President Abdo Rabo. The Vice President has disappointed all in the opposition, and some in the care-taker government, for his lack of authority during Saleh’s absence.  Abdo Rabo is also perceived as having given into the power of Ahmed Ali Abdullah Saleh and his cousins Yahya and Ammar.  The reality of any deal negotiated by the regime and the opposition clearly indicates that Abdo Rabo will remain without real authority and power under a military council and an interim coalition committee drafting the electoral procedures in the coming months.  President Saleh will still have the ability to influence the military council, as commander-in-chief (a position difficult for him to give up), and the elections’ committee, as head of the ruling party.

Prior to September 23^rd it was difficult to imagine the opposition rejecting Saleh’s olive branch under such scenarios.  Without a doubt Saleh will once again publicly offer dialogue to the opposition and if they reject such offer, the opposition will risk losing any credibility they have left in the eyes of Western diplomats who are desperate for final solution to the crisis. Saudi Arabia is however a different story.  By rejecting dialogue they would all then be risking their own lives during direct military conflict beyond the numerous ongoing proxy battles around Sana’a and Taiz.  The only way the opposition would retain some credibility with the masses will be if they were to organize the National Transition Council as a legitimate entity truly safeguarding protesters under full immunity and acting against the regime in cases where violations take place in full view of the public and with international collaboration.  Anything short of this will seal their political suicide in the eyes of the independent youth.  On the other hand, Saleh has a much tougher road to travel as he attempts to de-mobilize the streets occupied by his opponents.  His first step would have to be a public address to his own supporters in the streets of Sana’a to withdraw and allow only government forces to oversee security.  This would mean Saleh will have to appease many of his tribal supporters already used to nearly eight months of sustained financial contributions.

Saleh’s return to Sana’a has proven many correct on predictions of his vengefulness, but he is now forced to prove to his allies that he can end the crisis.  Friday’s events ultimately destroyed Saleh’s image as the responsible head of state willing to contribute to the stability of the region and Western interests.  Relations with the youth after so many deaths will be irreparable.  Saleh knows that political and financial support from Saudi Arabia will never be sufficient to avoid Bin Ali’s or Hosni Mubarak’s fate, especially since all Western diplomats from the start rejected the immunity clause within the GCC initiative.  If he is to retain what ever legitimacy he has left in the eyes of Western diplomats, President Saleh simultaneously must rein in his son and the rest of the regime, de-militarize the capital and other cities, complete the defeat of terrorist elements in the southern provinces of Abyan, Lahj and Shebwa, and fully engage a credible process that delivers as many of the demands from the youth as possible.  Anything short of this will definitely etch his political obituary in stone once and for all.

Activists and protesters on the street will object to this analysis in full, but reality in Yemen still adheres to traditional modes of positioning and both sides look after their own interests, not the people’s interests.  For those of you who follow Yemeni history remember al-Sabaeen (70 days) when Sana’a was besieged by Royalists forces and all retreated at the end.

Confusion and counter-revolution

The word "Yemen" has not been spoken very often in State Department press briefings of late. Two weeks ago (the last time a question about Yemen was asked in such a briefing) DoS spokesperson Victoria Nuland seemed completely disinterested in answering questions about President Saleh's possible return. "Whether he stays, whether he comes back," she said, "we need him to sign this GCC agreement and move on, allow his country to move on. So our position is unchanged." Readers of this blog already know how I feel about the GCC deal. It's insulting to the people of Yemen, and completely irrelevant to the political process, because it excludes most of the factions that need to be included for a real resolution of the current situation. The US administration's continuing insistence is basically an admission that the US is not interested in playing any role in such a resolution, and a slap in the face to Yemen's protesters. Unfortunately, the US is still involved in Yemen in other ways.

Just over a month ago, back when 'Ali 'Abdullah Saleh still looked frail and beaten, President Obama's CT advisor, John Brennan, went to visit him in Riyadh. The White House assured us that Brennan was trying to convince Saleh to step down. We were told that the US insisted on a peaceful and immediate transfer of power in Yemen. We were told that Brennan even takallum-ed a little 'arabiyah to drive the point home. But the evidence suggests that the administration's mind was elsewhere. While Brennan was doing his "y‘ani shwayah mumkin" routine in Riyadh, the Pentagon and CIA were supposedly hard at work ramping up their "covert" war against AQAP (by "covert" I mean "constantly leaked to the press in order to make the administration look proactive").

The real signal that the US administration is not, in fact, committed to a peaceful transition in Yemen came at the beginning of this month, when Undersecretary of Defense for Intelligence Michael Vickers visited San‘a to meet with the chief of staff of Yemen's (regime-loyal) army. Neither DoD nor the White House felt like talking about this meeting, so we don't have much to go on other than the Yemeni state media's account, according to which the two men discussed military cooperation and the ongoing fight against AQAP.

The optimist in me wants to believe that Vickers was talking to the chief of staff about how Yemen's army can stop killing civilians and play a positive role in the dismantling of the Saleh regime. But I don't think that's what happened. Were the US committed to Saleh's removal, Saleh would be gone. Were the US committed to Yemeni self-determination, the process of forming a new government, free of the Saleh family and the regime's inner circle, would be much further along. Clearly the Obama administration isn't supporting President Saleh, but its confused policy is enabling his persistence.

But there's more to hate about America's current confused policy than its impact on the Yemeni people. The Obama administration and congress should be looking at how their short-sighted decisions affect American security and interests in the Middle East. Since the start of the "Arab Spring," Saudi Arabia has been flexing its muscle and showing the world that it has the capability and the will to pursue a regional policy that may be at odds with those of its western allies. Al Saud has always seen Yemen as its plaything, and has an interest in a certain level of continued instability in Yemen which is directly at odds with American interests. By thoughtlessly promoting the GCC deal instead of trying to engage with the various anti-regime factions in Yemen, the US is effectively letting the KSA dictate the terms for future engagement with Yemen.

It's also pretty clear that the escalation of the "covert war" against AQAP is designed mainly to bolster Obama's counter-terror cred in the run-up to the 2012 elections. Otherwise the super-secret plan to build a new airbase in Yemen wouldn't have been leaked to every single journalist in the world before the lease has even been typed up. There has already been plenty of debate among analysts over the effectiveness of drones in Yemen. To my mind the most obvious argument against the current US drone/missile campaign is that it has killed far more civilians than AQAP operatives (I would estimate the ratio at about 10:1). Aside from the simple fact that killing people is wrong and should be avoided whenever possible, the killing of innocent, non-terrorist Yemenis has several negative effects on the counter-terrorism effort in general.

One of these effects is that it hands AQAP a ready-made recruiting tool even without launching a single missile. Obama et al. seem to have forgotten that Bin Laden's original rallying cry back in the 1990s was the expulsion of infidel armies from the Land of the Two Holy Mosques. The presence of US troops and military facilities in Saudi Arabia inspired many of al-Qa‘idah's early recruits. Do the policy makers in Washington not think that AQAP will use the construction of new US bases on Yemeni soil to recruit Yemenis? I admit I don't know the miles-per-gallon figures for Predators and Reapers, but would the tactical advantages of launching drones from Hodaydah instead of Djibouti really outweigh the rhetorical advantages this move has already given AQAP?

What the US needs to do is stop running its mouth in all directions, and put together a policy toward Yemen--the real Yemen, not the boogeyman Yemen of congressional hearings and campaign speeches--that considers American interests and the needs of the Yemeni people.  If we wait until after the 2012 elections, it may be too late.

Politics and proxy wars

We are pleased to present a fascinating guest-post by an experienced scholar/analyst who has been in Yemen for most of the revolution. This piece provides a rare insight into the dynamics of the multiple armed conflicts occurring around the country right now. Fernando Carvajalis a PhD candidate and Yemen specialist at the University of Exeter (UK) and is currently in Sanʻa. He has conducted field work throughout Yemen since 2000.

(This piece will be updated to include events following a cease-fire in al-Jawf between Huthi rebels and tribesmen this week)

A Revolution by Proxy

As the number of pundits add their voices to warnings of Yemen’s ‘Somaliazation’ local analysts and officials remain confident escalation will be averted. This confidence remains misunderstood outside the country due to a reality that sees a number of ongoing low-intensity conflicts in areas like Arhab (Sanʻa), Abyan, al-Jawf, al-Haima, Hodeida (Western Province), Hadhramawt (Eastern Province), Lahj, Mareb, Nahm, and Taʻiz. While covering such conflicts local and foreign media present skirmishes between pro-Revolution and pro-Government forces as mainly battles to “protect protestors” on the one hand, and erratic knee-jerk reactions by the regime to cling on to power while President Ali Abdullah Saleh recovers in Riyadh from injuries sustained during and attempted assassination on 3 June inside his Presidential Palace in the Capital Sanʻa.  As sources in Yemen begin to confirm the ongoing clashes across the country developed from a strategy of war by proxy “in order to slowly weaken the enemy” within an intra-regime power struggle.

While former Prime Minister Dr Abd al-Karem al-Iryani indicates that “the only solution to the conflict is a peaceful one within the parameters of the GGC Initiative”, the opposition continues to prepare for violent escalation amid news of President Saleh’s release from a hospital in Riyadh this past Saturday, August 6.  Sanʻa residents and media outlets soon jumped on this possibility when new clashes were reported this past weekend in the area of al-Hassaba, under limited control of tribal militias loyal to Shaykh Sadeq al-Ahmar (head of the Hashid tribal confederation) who now heads the new Tribal Alliance.  The skirmishes ended quickly with casualties on both sides, which included a colonel of the Republican Guard under the leadership of Saleh’ son Ahmed Ali.  Such clashes inside the Capital city began two weeks before the attempted assassination on Saleh and ended with a cease-fire brokered by the King Abdullah of Saudi Arabia, and “still managed behind the scenes to prevent any major escalation” says Nasser al-Muwada, an independent analyst in Sanʻa.

Origins of intra-regime power struggle

Soon after President Saleh announced three major amendments to the constitution on 29 December 2010, the opposition Joint Meeting Party (JMP) began to voice its condemnation of the amendments that could extend Saleh’s rule by a third seven-year term. The JMP’s primary financial supporter, Shaykh Hamid al-Ahmar (brother of Shaykh Sadeq al-Ahmar) also increased his opposition to Saleh’s regime through his National Solidarity Forum.  Since the Arab Spring protests began in February, Shaykh Hamid has remained a staunch supporter of the youth movement in Sanʻa and Mareb, as he once promised he would to a US Embassy official in 2009 and revealed through a cable published by WikiLeaks. Although Hamid remains one of the most outspoken opponents to President Saleh, many people in Yemen recognize that he had been part and parcel of the regime along with his brothers who held positions such as Deputy Speaker of Parliament, Executive of the ruling General People’s Congress, Deputy Minister of Youth and Sport and positions within Yemen’s Oil Company.  In 2006 Shaykh Hamid was the primary supporter of Faysal Bin Shamlan’s presidential campaign and other candidates of al-Islah party, the Sunni Islamist party within the JMP coalition.  Soon after Hamid also increased his public rants against Saleh and his son Ahmed during interviews with Doha-based al-Jazeera satellite network. Hamid was also the man supporting the efforts to establish the National Dialogue process through the National Solidarity Forum under the Chairmanship of former Foreign Minister Mohammad Basundwa.  The National Dialogue process was suspended in 2009 after a final meeting issuing a communiqué with proposals for a national reconciliation, but this statement also included a direct accusation against President Saleh as the person responsible for Yemen’s crises and the primary obstacle to reconciliation.

As cables published by WikiLeaks also showed Brg. Gen. Ali Muhsin Saleh al-Ahmar (of Senhan), commander of the North-West Army Command known as al-Firqahh and former primary ally of President Saleh, had a gripe to settle with Saleh. In the cables released early this year there is an account of an attempt to kill Ali Muhsin during the protracted conflict with Zaydi Huthi rebels in the north regions of the country in 2009.  We learned how Saudi Arabia’s Air Force was given coordinates to Ali Muhsin’s position rather than the location of rebel tribesmen presumably in order to eliminate another source of opposition to the rise of Ahmed Ali as successor to President Saleh.  Such tension within the regime unraveled two days after the March 18 massacre of unarmed youth protesters in Sanʻa when Ali Muhsin publicly announced his opposition to Saleh and declared himself and his troops protectors of the Youth Revolution, setting up a security corridor around the expanded area controlled by the youth in Sanʻa.  His ‘defection’ also prompted dozens of government officials including members of the al-Ahmar family, in Yemen and abroad, to resign their posts and either declare their support of the Youth movement or simply join Gen. Ali Muhsin.  Although al-Firqah’s area of operation covered the northern provinces bordering Saudi Arabia its headquarters are in Sanʻa across from Sanʻa University and behind the Yemen Economic Corporation.

Both primary opponents to President Saleh, the al-Ahmar family and Ali Muhsin, have always been staunch supporters of al-Islah party.  In particular, the former due to the late patriarch’s (Shaykh Abdullah Hussain al-Ahmar) role as tribal leader within the party and Speaker of Parliament from 1993 until his death in late 2007.  The party itself remained the primary partner in government with the GPC since the end of the 1994 Civil War.  Led by its charismatic spiritual leader, Shaykh Abd al-Majid al-Zindani, al-Islah is also the strongest party headed by Secretary General - within the JMP coalition.  Shaykh Zindani, as head of Yemen’s cleric council made a number of attempts in February and March on behalf of Saleh to disperse the street protests in Sanʻa through TV interviews and an impromptu appearance on the main stage at Change Square in Sanʻa, where he gave a log winded speech about the coming Islamic Caliphate, his pride and admiration over what the youth had accomplished to the minute, and finally on how the crisis should end through dialogue between the ruling party and the opposition, dismissing early on any role within the process for the disenfranchised youth joining the Arab Spring.

Alternative Strategies by Proxy

At the end of March, nearly two months since the sit-in at Change Square in Sanʻa began, fighting erupted once again in the northern province of al-Jawf, bordering Saudi Arabia.  The province had already fallen to a tribal council formed by Shaykh Ameen al-Ukaimi in opposition to President Saleh.  This province also borders Sa’dah province, under full control of Huthi rebels after the elected governor retreated to Sanʻa and was replaced by Shaykh Faysal Mana’a, under what Yemenis believe to have been an agreement between Huthi leader Abdul Malek Badr al-Din al-Huthi and Gen. Ali Muhsin.  The agreement would guarantee both sides a cease-fire while Ali Muhsin ‘protected’ the Youth Revolution.  The cease-fire in Sa’dah has lasted but the four month-long clashes between Huthi tribesmen and pro-Islah tribesmen in al-Jawf presents itself as a proxy war outside Sa’dah aimed at weakening al-Huthi’s forces and support until an eventual settlement of the political crisis in Sanʻa.  Analysts in Sanʻa also mentioned that al-Firqah has sent personnel in civilian clothes to join the fight and that as result of the ongoing conflicts elsewhere and the lack of funding and resources, the pro-Islah fighters are primary funded by Saudi Arabia under the same goals, to weaken a potential growing threat from al-Huthi.

While the conflict in al-Jawf has largely gone unnoticed by media outside Yemen it has been well covered by Yemeni journalists like Muhammad Ghazuan with a nine page report published by as-Shara newspaper on 30 July.  This coverage also raised a number of questions for Yemenis following the conflict in the city of Taʻiz.  In the past two months clashes escalated between government armed forces and militias led by Shaykh Hamoud al-Maghlafi , a known member of the Muslim Brotherhood wing of al-Islah party, former bodyguard of Shaykh Zindani and former employee of the Ministry of Education as mentioned during brief conversations with Dr. Mustafa Bahran (former minister of Electricity) and journalist Nasser Arrabyee.  Shaykh al-Maghlafi declared himself and his militia as “protectors” of the youth movement in Taʻiz following a bloody attack on Freedom Square by elements of the Republican Guard.  The aim of the attack was to disperse protestors from the sit-in, as the government had done in late April in al-Mansura District of Aden.  The Square was later retaken by the youth and continues to organize demonstrations against President Saleh and his relatives remaining in power.  A Source inside al-Firqah also corroborated information that indicates Gen. Ali Muhsin granted leave to junior officers and soldiers of al-Firqah, such as Commander Sadeq Serhan, in order to join the militia in Taʻiz against government forces.  Dr. Bahran also commented that if it were not for financial, personnel and material support from Firqah soldiers, al-Maghlafi would be unable to independently maintain his position against government forces.  The situation in Taʻiz is extremely unique, for although the area within the province has been a hotbed of dissent since the early twentieth century, it has always been led by intellectual movements rather than direct violence against rulers.

Toward a “Compromise of Weakness”

Clashes in al-Jawf and Taʻiz are clear examples of what al-Muwada referred to as “battles of attrition” (harb Istinzaf). The fighting in Arhab, which began in mid-July, now represents the most brutal confrontations between opposition forces and the government of President Saleh.  News of government soldiers and tribesmen dying by the hundreds in an area controlling the northern entrance to the Capital and where Mount as-Sama’ overlooks Sanʻa International Airport, which also serves as a main runway for the Yemeni Air Force, have captured the attention of international media networks.  This village is also where Shakh Zindani resides since his failed attempt to disperse the youth at Change Square. Confrontations in Arhab represent more than simple clashes between a desperate group of relatives of Saleh and villagers.  Observers agree this is a major strategic battle by both the regime and al-Firqah since “the road from Arhab represents the door into Sanʻa” and would provide either side with a strategic artery into the Capital for reinforcements and logistical support, said Dr. Bahran.

The source within Firqah also confirmed information that soldiers in civilian clothes travelled to Arhab in order to join tribesmen led by Shaykh Mansour al-Hanaiq (Minister of Parliament for Arhab, cleric of the Muslim Brotherhood wing of Islah and right hand man of Shaykh Zindani).  Officials within the government have no doubt al-Hanaiq coordinated with Ali Muhsin prior to the battle against the 3^rd Brigade’s camp on Mount as-Sama’ on 28 July.  Nasser Arrabyee and members of al-Islah party also confirmed al-Hanaiq position and role in Arhab. It is presumed Firqah’s headquarters in Sanʻa currently hold around 39 light-armed units of 600 soldiers each, which include some of the recently defected soldiers from the Republican Guard and Central Security looking for salaries around one hundred and twenty dollars per month, and they are mostly identified by sources as non-active reserves who carried no weapons upon defecting.  Same source indicated many soldiers abandoned their posts during the Holy Month of Ramadan.  The tribes of the Bakil confederation in Arhab allied to al-Islah party form part of a strategy that would eventually push south into Sanʻa from the airport road past al-Imam University and as far as the area of al-Qa’a, near Tahrir Square where the Republican Palace is located. While such analysis may seem outrageous to some observers, Yemeni analysts indicate it is also urgent for Ali Muhsin to advance prior to the potential arrival of president Saleh, where a take-over of the airport would symbolically deprive the president of a landing strip of significant relevance as Saleh aims for a triumphant return.

Such confrontations where the opposition avoids direct conflict with government forces primarily aims at dispersing the armed forces throughout a number of battle theatres requiring an overwhelming show of force against low funded and undermanned tribal militias.  This has given further credibility to claims by foreign observers that Yemen is close to a Somaliazation as it breaks up into conflict areas led by perceived war-lords.  The presence of al-Qaʻidah affiliates in the southern provinces of Abyan and Lahj also adds to such alarmist scenarios that ignore a political crisis as both the creator and manager of the armed conflicts.  The proxy battles have government forces gravitating toward areas claimed by the opposition, which prevents them from providing stronger support to forces based in Sanʻa. Also, analyst view the clashes as “a controlled armed struggle with a variable escalation” aimed at producing “a military balance of power” which no side can win.  The strategy is also evident in Firqah’s daily containment of protestors and during Friday prayers, when some groups agitate the masses to march toward the Presidential Palace producing direct clashes and further civilian casualties.  While the clashes represent tactical moves by the opposition led by Ali Muhsin, neither side seems to move strategically because they recognize the country could break up into pieces and would be beyond their ability to regain territories upon taking power, in the case of the opposition, or upon an agreement for the regime.  Abd al-Ghani al-Iryani, an independent analyst based in Sanʻa, repeated what analyst Ahmed Saif Hassan has called the “compromise of weakness” necessary for a peaceful end to the crisis avoiding a ‘committed step’ that would launch all out war between a number of factions with divided allegiances.

Muwada agrees with Dr. Abd al- Kareem al-Iryani in that the only solution is a peaceful transition under the GCC Initiative and mediation of both Saudi Arabia and the United States.  Both sides are beholden to Saudi support during the crisis and after it is resolved.  Yemen’s government will continue its dependence on Saudi aid that is beyond the capacity of Western governments, and the opposition also requires aid in order to sustain expanding patronage networks to balance the regime in order to avoid a civil war or retribution by elements of the regime as result of the violence perpetrated in recent months.  Observers in Sanʻa also believe that Saleh’s regime has no chance of survival after this crisis due primarily to its internal weakness created by defections and overt opposition more so than as direct result of the now fragment and powerless Youth Revolution. Yet, we cannot dismiss the youth movement as completely irrelevant since the course of events developing in Yemen prior to the resignation of Tunisian President Zein El Abidine Ben Ali (January 15) under the leadership of the JMP would not have led to such dissent within the regime or violent clashes in such short period of time.  The youth movement accelerated events as they joined the Arab Spring tsunami, and the escalation of conflict between the regime and its opponents would have continued simply through dialogue following Saleh’s preemptive speech in Parliament on February 2^nd, when he promised to withdraw amendments submitted by the ruling party in December 2010.  Any violence would have erupted in 2012 as political opponents began to position themselves for Parliamentary elections and scheduled presidential elections of 2013.

US Senate hearings, part II

My previous post presented a Storified version of the live-tweeting of yesterday's Senate hearings on US Yemen policy. Here I'd just like to add a little bit of analysis. As is often the case with these things, one of the most notable things about the hearings was what wasn't heard. The witnesses testifying included several individuals from the Department of State, and two think-tankers who commented on US involvement in Yemen more broadly. But there was no one among the witnesses from the CIA or the Joint Special Operations Command, the two organizations involved in so-called "kinetic" operations in Yemen--that is, targeted counter-terrorism strikes.

What this means is that while US diplomatic and humanitarian efforts were put on trial (very politely, of course), US military operations were not. At a time when the Congress is looking for programs to cut, and politicians are looking to score points ahead of elections, this discrepancy is particularly noteworthy. The Obama administration loves drones and special ops (as does much of the public), and Congress is much more willing to fund military projects than diplomatic ones. A hearing like this one, in which senators challenged witnesses to prove the effectiveness of "soft" assistance to Yemen, could certainly aid in explaining the prioritization of the kinetic approach to America's problems in Yemen, while still maintaining the fiction that this country cares about the plight of the Yemeni people. I doubt it's a coincidence that on the same day, someone from the military/intelligence community fed ABC news a very sexy and impossible to verify story on just how close US operators have come to killing the dreaded Anwar al-Awlaqi.

US Senate hearings on Yemen Policy

View "US Senate hearings on US Yemen policy" on Storify

Why Mr. Brennan should shut up

President Obama's counter-terrorism advisor, John O. Brennan, visited President Saleh in Riyadh recently. Almost nothing new was said in this meeting, but in that "almost" hides a great deal of trouble. The penultimate sentence of the White House press statement on the matter reads:

Mr. Brennan said that the United States is working closely with Yemen's friends and supporters in the Gulf Cooperation Council, Europe, and elsewhere to ensure that much needed assistance will flow to Yemen as soon as the GCC proposal is signed and implemented.

The Yemen Peace Project has, since its inception, called upon the US to cut off aid to the Saleh regime, or to make such aid contingent upon political reform. The contingency Brennan suggests, though, is absolutely contrary to the objective of reform. There are two major dangers with this formulation.

First, foreign aid to Yemen has always gone through Saleh himself, or members of his inner circle. Saleh has appropriated foreign military aid to fight his own political enemies, while non-military aid has mostly gone into the president's own pocket. The US administration thinks it's offering Saleh a way to help his country, but the fact is that President Saleh has absolutely no interest in securing the welfare of the Yemeni people, only in protecting his own wealth and power (though the latter is now greatly diminished). Right now, that means keeping his closest allies, particularly his son and nephew, in Yemen and in power. The continued presence of Ahmad and Yahya Saleh in Yemen is the main cause for the current stalemate, and the continuing loss of life in Yemen. But telling Saleh that aid will start pouring in once the GCC deal is signed only gives him more incentive to keep his relatives in place, directing a new flow of funds and perhaps a measure of power back into his own hands.

Second, this formulation denies the demands of Yemen's revolutionaries, the only ones in the equation that actually do care about their country. The White House is essentially telling them (despite the embassy's effort to reinterpret the message) that to secure foreign aid for Yemen, they must give up their movement for democracy and reform.

Gregory Johnsen called Saleh (before the assassination attempt) a warlord with half an army. He may never return to Yemen, and the dynamics within his inner circle may change if and when he finally signs the GCC deal. But whether Ahmad and Yahya continue to serve the interests of 'Ali 'Abdullah Saleh, or whether the inner circle fragments after the president steps aside with each member pursuing his own goals, the result for the Yemeni people will be the same.

We have argued, along with many in Yemen, that the GCC deal represented an attempt to maintain the status quo. In fact its result could be much worse. What the US wants is a quick fix for Yemen, one that will allow the administration to pursue its stated objective of fighting al-Qa‘idah, and allow Mr. Obama to enter the 2012 election having not "lost Yemen." But if the deal goes ahead as envisioned, it will once again place power and foreign money in the hands of the most irresponsible, destructive elements in Yemen, leaving the country in tatters, and the Yemeni people at the mercy of the same warlords, newly empowered and rearmed.

Breaking daggers

This week and last have brought few if any real developments in Yemen. Daily life for most Yemenis gets harder day by day, as water, fuel, and money run out. Politicians continue to bicker and play for points, and the remnants of the regime continue to lash out at their enemies. At present, we can see the regime using a few different kinds of violence. There is the violence of deprivation, experienced by people all over the country. In Arhab, Nihm, and Ta‘iz, Republican Guard units launch artillery barrages against civilian neighborhoods. In Abyan artillery is complemented by air strikes and ground attacks. In Lahj and 'Aden, it seems that regime agents may be responsible for sporadic, random incidents of gunfire and the like. In this post, I'm less concerned with detailing such acts of violence than with looking at the motivations behind them.

Essentially, I want to look at the regime's use of what anthropologists call "symbolic violence," what political scientists would refer to as "signalling." The best academic treatments of symbolic violence in Yemeni society can be found in Shelagh Weir's A Tribal Order and Steve Caton's Yemen Chronical. The basic point they make, in reference to uses of violence among Yemen's northern tribes, is that in the tribal context a violent act is usually intended primarily as a means of communication. This does not mean that the violence isn't "real," that people don't get hurt; rather, it means that the primary function of such violence isn't to harm or to kill, but to signal an intention or a demand.

To give a basic example: if a tribesman feels he has been wronged in some way by another tribesman, he may attack his enemy in a public place, where neutral bystanders will be present. He does this because tribal law, 'urf, forbids "ganging up" and requires bystanders to intervene in such a situation. He's not attacking because he wants to hurt or kill the other man, but because he wants a third party to mediate and provide him with redress for his grievances. The same principle applies to bigger acts of violence within the tribal system, even pitched battles or prolonged wars between tribal factions. People are hurt and killed in such events, but the violence always retains a symbolic and communicative dimension as well.

For most of Yemen's history, violence between the state and other segments of society has tended to follow these precepts as well, though some rulers have been more willing than others to use extreme force to subdue unruly subjects (Ahmad ibn Yahya Hamid al-Din, the last real Imam of Yemen, was one such ruler, and his violent tendencies were a big part of why he inspired the overthrow of the imamate). But violating the social norms of symbolic violence is also a symbolic act. 'Ali 'Abdullah Saleh is a legendary violator of tribal law and social order; and much like Imam Ahmad, Saleh's crimes against these norms are directly responsible for the fact that he's now in a hospital bed covered with burns. And I believe that we can see in each of his crimes--each of his unacceptable uses of violence--a clear message to his opponents.

I'm not going to go too far back into the past in this blog post, because I tend to get a bit wordy as it is, but suffice it to say that the civil wars of 1994 and 2004-2010 were marked by excesses intended to send certain messages to Saleh's enemies and to outside observers. Here I'm just going to look at some of the regime's uses of violence since the start of the 2011 revolution--using two specific but representative examples--and what I think they mean.

On a number of occasions, forces directly answerable to the president have committed acts that are flagrant violations of Yemeni social codes of honor and decency. One that comes to mind, from mid-April, was the kidnapping of four female medical volunteers on their way to Change Square in San‘a. This one doesn't take much explaining: male security forces--maybe soldiers, maybe paid thugs--physically grabbed and abducted women, and not just women, but women doctors. Just in case violating Yemeni social codes wasn't clear enough, the act violates international laws, or at least norms, about the protection of medical aid providers in a conflict zone. This incident came a month after the Change Square massacre, at a time when the youth and other protesters were demonstrating their strength and resilience with great effect and the movement was drawing in new tribal and political allies by the minute.

The regime's intended message with this abduction was clear: Saleh and his security forces would make no consideration for decency in their campaign against protesters; they would combat the revolution without any concern for honor. In fact, the abduction signals clearly that regime intended to fight dishonorably. This message, I believe, was entirely deliberate. It was intended to intimidate, and to signal (especially to the tribal factions of the revolution) that the regime was not interested in an honorable process of negotiation or mediation.

In the tribal/traditional system (non-tribal segments of society, like sadah and qudah, historically adhere to the same system), all negotiation and mediation is based on a recognition of mutual honor. Although it seems like a strange thing to do, the regime's goal was to do the opposite of what warring parties are supposed to do: the regime sought to demonstrate that it was without honor, and thus could not be bargained with. The regime pursued the same tactic throughout the Sa‘dah wars of 2004-2010.

This message was sent most explicitly on the morning of May 23, when Saleh's forces shelled the home of Shaykh Sadiq ibn 'Abdullah al-Ahmar, the paramount leader of the Hashid confederation. To attack the private home of such a man, without provocation, is one of the most shameful crimes that one can commit. This, and the fact that attacks on al-Ahmar's compound were launched while a mediation committee was present (seriously, Saleh?), sent Saleh's message in the clearest possible terms: the regime was not interested in coming to terms. The revolution would be crushed, not negotiated with, and not mediated away. I should note that it was Imam Ahmad's assassination of Shaykh Sadiq's grandfather and uncle that swung the bulk of Hashid's weight behind the Republican movement last century.

While such acts of violence are reprehensible, and especially disgusting within the traditional Yemeni frame of reference, Yemen has certainly been overshadowed, in terms of the ferocity of its regime, by Syria, Libya, and, I believe, Bahrain. The regimes in these countries have shown no mercy and no restraint in attacking their opponents, and they have the military capability--for now--to demonstrate this lack of restraint. In Yemen, however, we've seen what looks like a greater level of restraint. Yes, there have been terrible and costly attacks on unarmed protesters, most clearly the May 29 Freedom Square massacre in Ta‘iz. But it could all have been much worse (though maybe not in Abyan. Things seem to be almost as bad as they can get there). So we have a regime that signals no respect for rights or for laws, but security forces that fail to destroy the regime's enemies. What accounts for this gap?

I argue that it is, in fact, the inability of Saleh's security forces to crush the revolution that necessitates such extreme symbolic violence. Saleh, and now his son Ahmad and nephew Yahya, knows that his men just aren't up to the task. The Yemeni military has never been a reliable institution, and its commanders know that if the Republican Guard and the Central Security forces are pushed too far, they will disintegrate. This is why these forces now favor artillery barrages and other indirect applications of force. Since May 29, there has been no ground assault against protesters, and I get the feeling that none of the regime's commanders would feel confident in ordering such an attack. So, the symbolic demonstrations of ferocity were intended to scare the regime's opponents precisely because the regime knew it couldn't match such symbolic acts with real, effective violence.

And for the record, it didn't work. But the violence expended in the effort has been only too real for thousands of Yemenis.

On borrowed time, but how much?

Wednesday the 25th: the bloodiest day of street battles San‘a has seen since the start of the revolution. Accurate numbers aren't available, but it's possible today's fighting claimed more casualties than the March 18 massacre, or any of the massacres since. The obvious difference is that this was warfare, not a one-sided attack on unarmed protesters. And to be totally fair, the term "street battle" doesn't really cover it, since most of today's casualties came from artillery and rocket fire. On Tuesday, President Saleh's forces attacked the home of Sadiq al-Ahmar, oldest son of the late 'Abdullah al-Ahmar and current paramount shaykh of the mighty Hashid confederation of tribes. This alone would have been a bad move, but the timing of Saleh's attack made it an indefensible crime. Saleh's forces bombarded al-Ahmar's compound as the shaykh was hosting a mediation committee, come to negotiate an end to the fighting between Hashid and the president. A number of other notable shaykhs, not all of them from Hashid, were killed or wounded. The head of Yemen's Political Security organization was among them. This single incident has become a rallying point, and has brought the Bakil and Mur'ad tribal groupings into the San‘a conflict on the side of al-Ahmar.

On Wednesday the fighting and bombardment spread beyond al-Ahmar's neighborhood in north central San‘a. The airport seemed to be engulfed in fighting, and shells landed near Change Square as well, probably killing a number of soldiers from 'Ali Muhsin's 1st Armored Division (commonly known as al-Firqah, or "The Division").

But the significance of the tactic of bombardment goes beyond its potential to cause tons of casualties, among combatants and non-combatants alike. It goes beyond the fact that it raises specters of the Sa‘dah Wars, when civilians in Huthi-controlled areas were labeled as foreign enemies and infidels, unworthy of life or justice. What matters most about Saleh's tactic of choice is what it tells us about his range of options.

To make a long argument short, Saleh is relying on artillery and other medium- to long-range weapons because they are the only military assets he can trust. He's lost most of his military to the revolution; some of the units he has left are tactically worthless. A couple weeks ago, Saleh sent one of his younger sons--fresh out of Sandhurst but with the rank of Colonel--to subdue anti-regime protests in Hadhramawt at the head of a large, newly-formed mechanized unit. Their advance to the east was stopped by the tribes of Nihm, who forced the colonel to retreat, leaving behind his armor (which in Yemen is not so easily replaced).  In the south, the tribes of Yafi‘ forced the surrender of a Republican Guard garrison. The abandoned base and the villages that led the battle against the garrison were then bombed from the air, but the point had been made: Saleh's soldiers cannot, or will not, impose the president's rule by force.

Many soldiers are too young, or too old, or just untrained and unmotivated. Given the country's economic situation, they are likely unpaid. But there are also many in the Republican Guard and other loyal units who have personal ties to those they're being asked to kill. Now that Saleh has violated tribal law and gone to war with nearly all the tribes of Yemen, this is even more the case. There are today very few soldiers under the president's command who will be willing to kill for him, face to face, in street or mountain combat. His once-stalwart air force is divided as well, with some ranking officers defecting and a general shortage of planes, parts, and fuel.

But I'm getting away from the intended subject of this post, which was the people on the other side of the artillery. Since March just about every segment of Yemeni society, with the exception of his own immediate family and those they command, has been united against President Saleh. Huthis, Southern secessionists, Hashid, Bakil, Mur'ad, Yafi‘, you name it, they all called for the fall of the regime. Many of us thought and hoped that this united show of will would be enough to convince Saleh that his time was up. All of the tribes thought that the threat of their presence in San‘a would be enough to dissuade any more attacks. Clearly this was not the case. Now Saleh is testing the determination and unity of the tribes. His goal is the same as it has been since February: outlast the opposition.

The GCC deal was perfect for Saleh. Its content was abhorrent to most of the revolutionary factions, but it offered a way out. He hoped that it would splinter the opposition, draw the JMP leadership and the traditional elite away from the Youth. It didn't. Now that the tribes have taken his bait and started fighting, his hope is the same. First, he figures, the tribes and other armed groups will put themselves at odds with the Youth. Then, eventually, they'll turn on each other. All he has to do is survive long enough to reap the benefits.

This is not an unlikely path for events to take, now that fighting has begun in San‘a. Violence in Yemen can mean many things: in the tribal context, violence is usually symbolic, even when bloody (I'll be writing more about the symbolic value of violence during the current revolution in another post); in the political context, violence has sometimes served as a currency, a means by which power is transfered from one faction to another (from Socialists to Islamists, for example, during the 1994 war). But one universal truth about violence is that it is very good at perpetuating itself. Right now all the armed factions in Yemen may have a single enemy, but for this two-sided war to turn into a twenty-sided one, all that is required is time.

Back when the Yemeni revolution was just a twinkle in the eye of a few brave activists, analyst Gregory Johnsen made a conditional prediction: that revolution in Yemen would only stand a chance of taking off if 1) popular protest could break free of the mainstream opposition and sustain itself outside of the JMP, and 2) the Egyptian revolution was successful in deposing Hosni Mubarak (I think I'm summarizing accurately). In that spirit, I'm going to make my own prediction: that 'Ali 'Abdullah Saleh will survive in some position of power only if 1) major conflicts erupt among the important armed factions currently opposing him, and 2) Saudi Arabia and the US re-change their minds and throw their full weight behind Saleh again.

The first of these conditions is not too unlikely. As for the second, I can see the US re-backing Saleh, because they haven't fully un-backed him yet, and because the Obama administration lacks any kind of real vision for Yemen. But I doubt the Saudis will go back to supporting Saleh against all enemies. Unlike the US, they understand Yemen, and they recognize that Saleh is no longer as useful to them as many of his rivals are or could be.

I've been wrong before, including a few times in public and on this blog. What I'm offering here are my best guesses, based on a  good deal of research and hard thought. Your responses are welcome.

Playing with fire

President Saleh's speech earlier today was a textbook example of the first rule of propaganda: attribute all of your crimes to your enemy. It's the kind of political rhetoric that is beautiful in its pure dishonesty. That is to say that every single sentence in this speech is not only false, but the exact opposite of the truth. If you could take a photographic negative of this speech, or somehow reverse the polarity of it, it would become a perfect statement of fact. For your edification, the BBC's translation of today's speech is below:

In the name of God, the Merciful, the Compassionate

O large crowd, brothers and sisters, my young sons and daughters, may God bless this Friday and many happy returns of the day.

We salute this million-man crowd of great Yemeni people in all the governorates. This month, we will celebrate the national day of the 22nd of May.

We congratulate the great Yemeni people on these feelings and unprecedented enthusiasm and support for constitutional legitimacy.

We call upon all the sons of the country to be united in one rank to face all economic, political, and subversive challenges caused by the operatives of the Joint Meeting Parties, the JMP, who block roads and kill the people whose souls it is not permissible to kill.

O JMP and your allies, stop playing with fire. Our people, in all villages, districts, and suburbs, backed by our brave Armed Forces, will not stand idle; they will respond properly. On Wednesday, you attacked government institutions, killed people whose souls it is not permissible to kill, and assaulted the building of the Council of Ministers and the  radio building, and previously assaulted Al-Thawrah Sports City. These are acts of sabotage; you have damaged in three months what we have been constructing for 32 years. These are the subversive elements that want to profit at the expense of those in power to slaughter our Yemeni people, cut out their tongues, behead them and block roads. O JMP and the lawless elements that support it, stop playing with fire.

Our people will have to defend their institutions, villages, houses. We will face the challenge with a challenge. Those who want power have to get it through ballot boxes. No killing the souls of the people whose souls it is not permissible to kill, no road blocking, no cutting off gas and oil in Ma'rib; these belong to the people, not the General People's Congress [GPC] or the JMP - these belong to the people. You get your salaries through them, people live on these resources. O JMP, stop playing with fire.

These are subversive elements; they are not loyal to the country. We call upon everyone to start constructive dialogue, sponsored by any side, anywhere. We call upon you to start a reasonable dialogue.

A tribute to the millions of our people, and may God's peace be upon you.

Source: Republic of Yemen TV, Sanaa, in Arabic 13 May 11, BBC Monitoring

We've seen Brother President 'Ali 'Abdullah use this kind of quasi-religious talk before; he's not very good at it. After this week's massacres and pre-escalation activities in San‘a, Ta‘iz, and Hodaydah (and now Ibb), and a promise from the leading Youth organization of major escalations next week, the subtext of this speech is that Saleh has few or no cards left to play. He's slipping into the realm of Qadhafi-esque self-parody with this speech; all that's missing are the helwasa pills.

Saleh has threatened the collapse of the state. Done: the banks are out of money, there's no cooking gas, drinking water, or fuel. There's no parliament, most foreign missions and more than half of the military is in a state of mutiny. But the protests continue.

Saleh has threatened the rise of al-Qa‘idah. Well, according to Shatha al-Harazi and others, AQAP is operating in the open in parts of Yemen, and in other parts tribal leaders have AQAP on the run. And the Americans (the real audience for Saleh's hysterics) have re-started their own mis-guided counter-terror operations, and will continue to shoot up southern Yemen with or without Yahya Saleh's help.

Saleh has played all manner of games with the GCC, which is trying its best to save him from destruction despite his own best efforts to the contrary. But Yesteday Qatar—the only Gulf state that commands respect and admiration outside its own borders—publicly removed itself from the GCC's Yemen process, in what I take to be a challenge to the other Gulf states. Qatar has long been angling for regional influence and prestige; by taking a more realistic, tough line on the Saleh regime, it will certainly gain both from the Yemeni people and opposition factions.

Finally, President Saleh has threatened outright civil war. Of course no one wants war, but signs are that leaders on various sides are preparing for it. General 'Ali Muhsin al-Ahmar is ready. The tribes of Nihm and Yafi‘ proved this week and last that they are more than ready. Saleh still commands a military force, to be sure, but not necessarily the most formidable one in the country. Gregory Johnsen described him as "a warlord with an army"; my suspicion is that if he tried today to order that army into war, he would not be at all pleased with the results.

The Youth are planning the final stage of their protests, with the full knowledge that dozens if not hundreds of them will die. The rebellious military units and tribal armies are becoming more bold and more willing to take on the regime. The only one who doesn't know that Saleh's time is up is Saleh himself. The GCC deal was the best he'll ever see; in prolonging the endgame, he's the one playing with fire.