Book review: Army and Democracy - the balancing act

The Army and Democracy is a simple insight into the complicated civil-military relations in Pakistan

Considering the ongoing anti-government agitation, Aqil Shah’s book, The Army and Democracy, is likely to attract a large number of readers. The book gives an in-depth analysis of civil-military relations since 1947 to the present day, with special focus on the army’s role vis-a-vis democracy. Understanding the army’s role in politics acquires special significance given the fact that since Pakistan gained independence in 1947, only once has an elected government transferred power to another one.

Based on archival material and more than 100 interviews with politicians, civil servants and military officers, including four services chiefs and three heads of the Inter-Services Intelligence, and assessment of military writings, Shah’s book provides deep insight into the military mind. The book traces the organistational culture of the army, whether real or perceived, as an institution that does not accept civilian superiority. It is, however, difficult to tell if the army has acquired this tendency on its own or if the role of the final arbiter has been thrust upon it by the corruption, ineptness and uncouth behaviour of politicians fighting among themselves. As the infighting among politicians continued, so did the army’s dislike and disdain of civilians. Politicians have tried to reduce the army’s influence in politics without first putting their own house in order, though Shah believes that the army’s superiority complex is built into the psyche of officers during training in various institutions. The author, a faculty member at the Princeton University, writes that at the National Defence University in Islamabad, very little time is given to explaining officers their role and subservience to civilian authorities as laid down in the Constitution. He writes that out of the total 987 contact hours, students attended just one two-hour lecture on the Constitution by a civilian legal expert.

As a corporate entity, Shah writes, the military seeks to enhance internal control and limit external interference. The military’s prerogatives over its internal structure and functions limit the scope for establishing civilian supremacy over the armed forces. He cites the example of General Kayani awarding service extensions to several officers beyond the age of retirement without even seeking the requisite formal approval of the government.

The book also brings home the point that the army considers foreign and security policy its domain.

Shah writes that the military has made nominal concessions since 2008 by allowing the disclosure of an itemised annual budget before the Parliament. The army maintains that the full disclosure of sensitive budgetary matters would undermine national security by exposing critical information to enemy agents. It has also advised the government to check wasteful expenditures rather than question the military budget.

The author gives several instances of the army’s displeasure with harsh criticism by politicians. For example, Ayub Khan’s annoyance at Suhrawardy’s intense questioning of the accused persons in the Rawalpindi conspiracy case of 1951, which was the first attempted coup in Pakistan against Liaquat Ali Khan’s government.

Overall The Army and Democracy is a treasure trove of information on civil-military relations in Pakistan. It is also a lesson on what the country needs the most at this critical juncture — a politics of inclusion by all stakeholders, rather than exclusion.

Shahabuddin Gilani is an editorial consultant for The Express Tribune.

Published in The Express Tribune, Sunday Magazine, September 14^th, 2014.