‘NON-STATE ACTORS’

SCOPE
 Definition
 NSA Conceptual Contours
 Types of NSA
 NSA Affecting Pakistan
 Implication on Internal Security
 Analysis & Way Forward

NON STATE ACTORS

Introduction

1. Pakistan, ‘land of the pure’ was created as a separate homeland for the Muslims.
Since coming into existence as an independent state, Pakistan has been facing internal
and external threats. Most of the problems and threats are created from within, by its
geopolitics, its location, economics and history. The effect of these threats has many
manifestations and one such term which we keep hearing is non state actors, although
they are neither simple actors nor members of the state. With changing dynamics the
role of non state actors (NSAs) in international affairs is becoming increasingly
important, especially in terms of conflict. Ironically, now Traditional warfare, in the form
of conventional war between two states has been replaced increasingly by asymmetric

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and unconventional warfare with states using NSAs to undermine an enemy state from
within.

2. Pakistan is confronted with the challenge of reigning in these NSAs. A

combination of weak government, under development, poor economic outlook, lack of
basic amenities and general discontent, coupled with external factors like power play
between world powers in the region, have made Pakistan the hotbed of NSAs, where
they can germinate, propagate and operate with impunity. Therefore, it is imperative to
understand the Non-State Actors (NSA), for which I shall make an effort to discuss
different contours, mechanisms of non-state actors and their effects on our security
paradigm.

3. Aim. The aim of this paper is understand the concept of NSAs, their
implications on national security and suggest a way forward to deal with NSAs under
the environment.

NON STATE ACTORS – CONCEPTUAL CONTOURS

4. It is generally recognized that the process of building a capable state requires the
participation of all the vital forces of a nation. A capable state is one that has all the
attributes of a modern, strong, responsible and responsive state, a state capable of
effectively discharging its duties of delivering security, peace, prosperity and other public
goods to its people. Although the state has traditionally been considered as the focal
point of this process, non-state ones, have an important role to play, and the importance
of this role has grown significantly over the past couple of decades. It is thus important
to identify these other actors and recognize those areas wherein they can contribute, ,
to the process, as well as to appreciate better their nature, their mode of intervention,
the constraints hampering their action as well as to explore ways in which their
participation can be rendered more fruitful and less problematic. NSAs have been
defined by many institutions and scholarly individuals but the most acknowledged
definition is that, the NSAs are entities:-

(a) Participating or acting in the sphere of international relations.

(b) Organizations with sufficient power to influence and cause change in

politics.

(c) Not belonging to or existing as a state-structure or established institution

of a state.

5. Or in simple terms Non-State Actors can be defined as, “Organizations with

sufficient power to influence and cause change in politics and not belonging to
established institution of a state”. And in the simplest terms it can be defined as
“Any entity which has a role to play (i.e. actor) but it is neither a state nor its
established institution”.

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Types of NSAS

6. NSAs can be found in all sizes and configurations but they are mainly
characterized by two main elements, power and means to wield that power. The
proliferation of NSAs has led the observers of international relations to conclude that
states are declining in importance and that NSAs are gaining powerful status and
influence. Based on their nature, NSAs can be divided into two broad categories :-

(a) Non-Violent Non-State Actors (NVNSAs)

(b) Violent Non-State Actors (VNSAs)

Non Violent NSAs

7. To have a better understanding each shall be discussed in little detail. A s the

name suggests, those NSAs which use non violent means to propagate their agenda
fall in this category. Some examples of these are:

(a) Non-Governmental Organizations (NGOs). NGOs are institutions,

which are not part of state but help state in welfare and development of people
but at times have their own agendas hidden behind their real motives. NGOs are
more recently termed as NPOs- Non-Profit organizations.

(b) Multinational Corporations (MNCs). They are large corporations

having branches and subsidiaries operating in many countries simultaneously.
MNCs are major driver of global economic integration and establish
unprecedented linkages among economies worldwide. The most notable MNCs
are industrial and financial corporations (the most important being banks).

(c) International Financial Institutions (IFIs). The International Monetary

Fund (IMF) and World Bank (WB) are dominated by USA, West Europe, and
Japan. These countries have more than half of all the votes in all major
decisions.
(d) Media. Media today is playing the role of “King Maker”. The
influence of media regionally as well as globally has achieved enough power
which can help in making or breaking of government / state machinery. Media
has the capability to directly interfere and influence political, social, diplomatic,
ethnical, cultural and psychological infrastructure of a state. Resignation by
President Musharraf on issue of judiciary and Lal Masjid is one of the examples
of influential power of media.

(e) Non Violent Religious Organizations including Madrassas. In 1947

there were only 189 madrassas in Pakistan. In 2002 the country had 10,000-
13,000 unregistered madrassas with an estimated 1.7 to 1.9 million students. A
2008 estimate puts this figure at "over 15,000".

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Violent NSAs

8. These are those individuals or organizations which use violent means to project
their power and disseminate their agenda. The most important and frequently
encountered Violent-NSAs and their salient characteristics are:-

(a) Rebels or Guerrilla Fighters. They pursue a political – mostly

revolutionary agenda. In theory, guerrilla fighters depend on the local population
for support. However, they may benefit from support of foreign governments for
safe havens, weapons, equipment and know-how.

(b) Militias or Paramilitaries. They are irregular combat units that usually act
on behalf of, or are at least tolerated by, a given regime, handling the dirty
business of kidnappings, targeted killings, massacres or ethnic cleansing.
Zulfiqar Ali Bhutto’s Federal Security Force was one of such kinds.

(c) Clan Chiefs. They are traditional heads of a particular tribe, clan, ethnic or
religious community. They usually attain their positions according to traditional
rules and control a territory, either formally or informally. They also keep an
armed force recruited from members of their tribe or clan. Baloch chieftains are
typical examples of the clan chiefs.

(d) Warlords. They are local leader who control a particular territory during
or after a violent conflict, maintain private armies and benefit from war or post-
war economies by exploiting resources (precious metals or drug cultivation)
and/or local population (through looting or extortion).

(e) Terrorists. They aim to spread panic and fear in societies in order to
achieve political goals, whether revolutionary, nationalistic or religious. They are
organised in a clandestine way, most often in small groups and cells, sometimes
also in larger transnational networks (e.g. Al-Qaida).

(f) Criminals. These are members of Mafia-type structures, syndicates or

gangs. Lyari gang or Rehman dacoit are a classical example.

(g) Mercenaries. They are who takes part in an armed conflict, are not
nationals or party to the conflict and are motivated by desire for private gains
(Blackwater).

Consequential Change in the Nature of Conflict

9. As we analyze we see that the rise of these NSAs has affected the nature of
conflict, the four major patterns which emerge out of them:-

(a) Inter State to Intra State Wars. “Over the decade 2001 - 10, only 2 of
the total of 29 major conflicts have been interstate.”

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 (b) Asymmetric Warfare. In the present scenario even traditional military
powers, like the US, are confronted by NSAs- that employ unconventional tactics
in wars.

(c) Terror as a Weapon of Choice. Acts of terrorism have become the

major vehicle for their malcontent, especially for well-organized and well-funded
groups like al-Qaeda.

(d) Lack of Distinction between Combatants and Non Combatants. In

contemporary conflicts, especially intrastate ones, distinction between
combatants and non-combatants is increasingly blurred. In fact, the civilian
population has become the primary target of various VNSAs.

(e) Trans-nationalisation. As a result of globalization; most groups and

NSAs increasingly operate via transnational networks and transnational ties,
thereby gaining new room for manoeuvre. Trans – nationalisation also promotes
rebellious political agendas. In a recent development, Tehrik-e-Taliban Pakistan
has announced to send its fighters to Syria to fight against the government.

NSAs in Pakistan – A Background

10. The phenomenon of NSAs is not new to Pakistan. Non-violent NSAs have
always been in the political system of Pakistan. The introduction of VNSAs in Pakistan
can be traced to the tribal invasion of Kashmir in October 1947. The practice was
repeated in the Afghan War against the Russians. VNSAs did the work for the state
while the state turned a blind eye to their activities. But in the aftermath of 9 / 11, these
Violent NSAs spun out of government control, and their alliance with criminal and anti –
state elements, coupled with external support, produced a systemic security disorder.
Almost all types of NSAs can be found in Pakistan.

11. The NSAs operating in Pakistan are diverse and have divergent traits. Some
major types have been tabulated below :-

Non Violent NSAs

Types Examples Modes of Operation

As per Asian Development Bank
(ADB), 35000-45000 NGOs in
NGOs Pakistan Advocacy networks, media and protests

IFIs WB, IMF, ADB etc Loans / grants.

MNCs Banks, Oil corporations etc Bribes to safeguard their interests

Media Pakistan has over 60-70 channels Yellow journalism, sensational issues.

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Violent NSAs

Types Examples Modes of Operation

Terrorists Al Qaeda, Lashkar e Jhangwi, Terrorist attacks, sabotage,

Clan Chiefs Baloch and Sindhi Feudals Extortion, Human rights’ violations

Criminals Lyari Gang, Rehman Dakait Group Target killings, kidnapping, extortion

Analysis of NSAs in Pakistan

12. Before moving any forward let us analyze why these NSAs got roots in Pakistan
and how did they survive. Pakistan is often tagged as a failing state. An analysis points
out few major reasons which helped these NSAs to slowly creep into our society as
following :-

13. Lack of Effective Control of State’s Territory by Government. Maintaining

writ of the government has always been a problem for the ruling party. In rural Sind,
South Punjab and parts of Baluchistan, tribal chiefs still rule their areas with liberty and
impunity and Lack of writ of Government in FATA needs no elaborations. Pakistan
shares 6,774 kilometers of border with other countries. Amongst these, porous and
volatile border with Afghanistan poses the greatest threat in form of illegal movement,
smuggling of arms/stolen vehicles and drug trafficking.

14. Disregard for Rule of Law and Dispensation of Justice. As a nation we

have very less respect for the rule of law, moreover our Justice System suffer from work
overload, tenuous procedures and resultant delays in dispensation of justice. At the
same time, Pakistan suffers from absence of effective counter – terrorism, anti – money
laundering and witness protection laws. Pakistan’s Law Enforcing Agencies especially
Police are affected by a score of problems. Police, which is a major institution to ensure
Rule of Law, is demoralized, under-strength, poorly equipped and ill - trained. Its
operations are marred by lack of coordination, credible intelligence and above all
political will which is indicated by the fact that its personnel are often recruited on
political grounds.

15. Provision of Basic Services. As for the welfare function of state, a large
percentage of the Pakistanis are deprived of the basic necessities of life such as clean
water, food, health and education. In accordance with the Multidimensional Poverty
Index (MPI), 51.2 percent are deprived of education, 29.2 percent of health and 42.9
percent of basic living; 11.8 percent are at risk of multidimensional poverty and 55
percent are living without sanitation.

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16. Favourable Demographic and Social Characteristics. Pakistan is a pre-
dominantly Muslim country, with 98 per cent Muslims. When VNSAs were taking root in
Pakistan, a huge chunk of population was favourably disposed towards them. Moreover
their Invisibility i.e ability to blend into Local Population and social support based on
religion and ethnicity was a major cause of their proliferation. Shops in Pakistan earlier
displayed small silver boxes into which sympathizers could drop spare change to help
finance what was described as “the Islamic cause” and Contributions from individuals
are also collected at mosques and madrassas. An incomplete national database also
facilitates the VNSAs who operate and benefit from human trafficking networks.

Implications on Security of Pakistan

17. Security is a wholesome process, at one end it has physical aspect whereas on
the other side it makes a happy compromise with certain NSAs to operate under rules
and strict administrative control of the government but in our case, with afore mentioned
problems and conditions, these NSAs not only have invaded in the space provided by
the lack good governance but also have developed strong feelings of mutual suspicion
between the state and even NVNSAs including NGOs. Pakistan generally mistrusts
them for a variety of reasons, these include :-
(a) The suspicion that many NGOs are ‘invading’ traditionally government
territory, thus, undermining their authority and discrediting them.
(b) The fact that most of these NSAs do not have their own funding and have
to rely on foreign funding has led to suspicion as to their real motivation.
(c) That they have not been assigned by any recognized, representative
authority, they are not elected and do not report to anybody apart from their own
internal mechanisms.
(d) Some NGOs have over stepped from their declared agendas like US
based Human Rights Watch (HRW) issued a highly controversial statement in
memogate issue. Then HRW director Mr. Ali Dayan Hasan also attended a highly
objectionable hearing in US Congress about issue of Baluchistan.

(e) The media can contribute to conflict escalation, either directly or indirectly.
Terrorists often rely on the media. In the absence of media coverage, many types
of terrorism would be useless. Electronic media in Pakistan particularly tend to
focus on dramatic and violent events. Pakistani media is still in its embryonic
stage and Pakistani TV journalists are some of the easiest to manipulate.

18. Similarly VNSAs has direct implication on our security and they for their own
motives or under the influence of their masters damaged Pakistan to a great extent.
Some of these areas are :-

(a) Karachi’s violent landscape has long been scarred by ethnic and sectarian
conflicts, in addition to conflicts, and is plagued by extortion and politically
motivated crimes as well. Karachi has, indeed, the unfortunate distinction of

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 being the worst affected district in all of terror-ridden Pakistan. Enormously
compounding the problem are the various sectarian-terrorist groupings operating
in the city. These include Lashkar e Jhangvi (LeJ), Sipah-e-Sahabah Pakistan
(SSP), Sipah-e-Muhammed Pakistan (SMP) Jundullah and the more recent, but
increasingly visible Tehrik-e-Taliban Pakistan (TTP).

(b) Baluchistan has different dynamics of militancy. With tribal and sub-
nationalist undertones. Baluchistan is caught up in a virtual state of insurgency.
Militant groups, with some 150 training camps in various areas of the province
out of which at least 40 are reported to be supported by Indian RAW, are
targeting the security forces personnel and the state assets.

(c) South Punjab is a region mired in poverty and underdevelopment. Major

militant outfits like SSP, Jaish-e-Muhammed (JeM) and Lashker-e-Taiba (LeT),
are all comfortably concealed in South Punjab. Sources claim that there are
about 5,000 to 9,000 youth from South Punjab fighting in Afghanistan and
Waziristan. The area has become critical to planning, recruitment and logistic
support for terrorist attacks in Pakistan and Afghanistan.

(d) The major area marred with VNSA is Khyber Pakhtun Kuwa (KPK) and its
tribal belt. TTP is estimated to have 28 groups within its folds in this area. These
have criminals and foreign fighters in their ranks. They not only challenge writ of
the government but also make local population hostage to their policies. As a
result Government and armed forces are engaged in a long drawn out war.

19. A detailed analysis of the threat posed by above mentioned NSAs reveals
following hazardous trends :-

(a) Hostage to IFIs and MNCs. Globalization of economy has also

caused many developing countries to be in deep economic debt. Pakistan takes
more loans in order to pay off the old debts. The loans became more expensive
when the value of the US dollar rises. This has left Pakistan poorer than ever and
thus more desperate for loans than before. The IMF and World Bank have lent
attaching conditions such as deficit-reduction targets or the sale of state-owned
assets. MNCs have deprived the poor countries from their resources. Tethyan
Copper Company initially offered only 2% share in Reko Diq project. It is
pertinent to note that, Pakistan’s extensive oil, gas, gold and copper reserves,
are largely located in Baluchistan, as well as its pipeline corridors have strategic
importance attract many MNCs to exploit the situation.

(b) Proliferation of Terrorist Networks. A proliferation of militant groups

has made the task of countering the threat more difficult for law enforcement
agencies. Splinters of banned militant organizations and some emerging groups
have been found involved in the recent spike in terror attacks in Punjab, Sindh

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 and KPK. Given the fact that security agencies are already confronted with
problems of militancy and extremism, the volatile dynamics of sectarian violence
of specific Sunni-Shia matrix compounds the threat in Pakistan.

(c) Nexus between Terrorists and Criminals. A growing nexus between

criminals and terrorists emerged as a serious concern for the security agencies.
Intelligence agencies’ reports indicate that militants are aiding criminals in their
activities, especially in abductions for ransom and robberies, in order to generate
funds. Drug mafia and weapons smugglers are known to cooperate with militants
and nationalist insurgents in Pakistan. They also benefit from each other’s
networks for smuggling and cross-border movement.

(d) Radicalisation of Youth. The most dangerous trend has been the
radicalisation of youth. Some Madrassas have contributed to this trend by
preaching extremism and producing potential terrorists.

The Way Forward

20. Pakistan urgently needs an effective and coherent national security strategy in
the face of alarming threats posed by the NSAs. It is proposed that the government
targets these actors and their environments through simultaneous application of a “Two
Stream Strategy”; Firstly Kinetic Strategy (Direct) focusing on the short term actions
required to be taken on immediate basis and Secondly Non-Kinetic Strategy (In-Direct),
which is a long term Strategy aiming at the permanent elimination of the root causes
and the environments for their proliferation.

Kinetic Strategy

21. The Kinetic or Direct response should focus on elimination of the actors, their
leadership, disruption of financial, logistic and recruitment networks and their nexus.
The two prong strategy can be:

22. Strike at the Heart. The operations intended to defeat and destroy Violent
NSAs should be conducted keeping in view their capabilities, threats posed, prevalence
and most importantly, based upon credible intelligence. Following table explains the
suggested contours of these operations:-

NSAs Agencies Areas Timelines Success Matrices

Armed Reduction in terrorist attacks all over

Terrorists Forces FATA 2 years Pakistan

FC Reduction in number of terrorist attacks

Separatist Army Baluchistan 2 years and sectarian violence

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 Rangers Reduction in crime, target killings,
Criminals Police Karachi 1 year processional violence

South Reduction in sectarian violence,

Madrassas Police Punjab 6 months Terrorists recruitment

23. If we look at this timetable we will realize that Kinetic strategy aimed at these
VNSAs require minimum of 2 years to eradicate or reduce their influence but most
importantly, it must be simultaneously supplemented by shaping of the political and
social environment.

24. Stop Re-emergence. To prevent these NSAs from taking root again, in the
realm of direct operations, capacity building of the armed forces and LEAs assumes the
greatest importance. Only deterrence can keep these actors in check. Capacity-building
is particularly important for Police. Major areas of concern are as follows:-

(a) Completion of manpower is the first step for building capacity of

Police.

(b) LEAs should be provided with military-equivalent small arms and

anti – terror gear for conduct of counter-terror operations.

(c) Training in criminology, intelligence, detection, investigation and

interrogation should be continued. Police forces should also be trained to
deal with the threats posed by terrorists including bomb blasts.

Non Kinetic Strategy

25. Skillful employment of kinetic ways and means alone cannot ensure lasting
peace. This denotes that a strong civilian backup is crucial for ultimate security. Military
forces and law enforcement agencies have performed remarkably, yet the threat
persists because of inadequate consolidation by civil agencies. Lasting peace comes –
that is, lasting victory – comes through conciliation. This is achieved first by direct
actions second, by a sound and stable political program and a non kinetic strategy
aimed at shaping the environment.
26. National Will. Before any of these could shape into effect a strong national
will is mandatory, which can only be developed through:-

(a) Strong political will.

(b) Taking politicians, civil society, clergy and media on board.

(c) Achieving national consensus on reformative action.

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27. Good Governance. Good governance can ensure the long term success
and lasting security. It is only through this step that influence of MNCs, NGOs and IFIs
can be reduced. Otherwise, these NSAs, in addition to VNSAs will continue to affect the
security milieu of Pakistan. The important components of the strategy to covert Pakistan
into a welfare society are as follows:-

(a) Democratic governance.

(b) Devolve governance to lowest level.

(c) Deliver on education, health and environment.

28. Rule of Law and Quick Dispensation of Justice. One of the most important
pillars of Non-Kinetic strategy is the implementation of rule of law and quick
dispensation of justice. That means we need to have adequate legislation and strong
resolve for implementation. Therefore needs action in two areas:-

(a) Legislation. To clothe the dream of internal security, it is imperative to

improve upon the existing laws and enact new ones. Key ones are as under:-

(i) Protection of Judges and Witnesses Law.

(ii) Anti-Terrorist Act (taking out legal gaps hampering dispensation of

justice).

(iii) Anti Money Laundering Act should be toughened.

(iv) Legislation laying down rules of business for NGOs and MNCs.

(v) A crime data bank should be maintained by National Counter

Terrorism Authority (Ministry of Interior) with the help of NADRA.

(b) Implementation. That means we need to have necessary will and

strong resolve to implement the law in true spirit

29. Education. An effective Education system is one of the cardinal pillars of long
term strategy towards peace and prosperity, because it is the correct education which
inculcates comprehension of nationalism and patriotism in the society, especially the
youth. Uniform education to be implemented across the country irrespective of class
difference and madrassa system should be merged into that programme by:-

(a) Registration of all madrassas with the Ministry of Education.

(b) Review of madrasa curriculum by the Ministry of Education. For this

purpose, a board of scholars needs to be formed.

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 (c) Fund auditing of all madrassas through Auditor General of Pakistan.

(d) Integration in mainstream education system. Madrassas without general

education should be gradually banned.

Miscellaneous Steps

30. Dialogue. Dialogue should be undertaken with political parties for peace in
Karachi and with sub-nationalist elements for peace in Baluchistan.

31. De – radicalise Society. Government to take all necessary steps to

de–radicalize society by banning hate material / speeches against other sects and
religions.

32. De - Weaponise. All arms licenses in the country should be digitized. The
drive against weapons should include: disarming the militant organizations besides
militant wings of political parties, and elimination of sources of supply. Illegal weapon
factories should be banned.

Conclusion

33. Many vulnerabilities undermine the security of Pakistan and there are cracks in
the present political, economic, cultural and social realms which are being exploited by
our enemies. Developing countries like Pakistan cannot entirely impart from these
NSAs, however, governments have to identify rules of the game and code of conduct for
these organisations to ward off their negative influences. Pakistan presently faces
extensive internal threats to its physical and human security, which arise mainly out of
intolerance and terrorism. Criminal corruption and societal crimes further compound the
problem. On the whole, these threats hamper prosperity of the people and progress of
the state. The possible solutions are through National Resolve, Education and Justice
only. In this regards, government is the focal segment. I shall end my discussion with
the words of our founding father Quaid-i-Azam Muhammad Ali Jinnah :-

“…the first duty of a government is to maintain law and order, so that the life, property
and religious beliefs of its subjects are fully protected by the State”
Quaid-i-Azam Muhammad Ali Jinnah

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