Global Security: Afghanistan and Pakistan - Foreign Affairs Committee Contents


Examination of Witnesses (Questions 40-60)

PROFESSOR SHAUN GREGORY AND SEAN LANGAN

25 FEBRUARY 2009

  Q40 Sir John Stanley: Did you have a concluding point?

  Professor Gregory: I suppose I want to slightly condition what Sean just said by saying that the question that we need to ask at some point is: what is preventing the Pakistan army and the ISI from going decisively after the Afghan Taliban and other Taliban-related groups on their side of the border? The answer is that they still believe that the Taliban will serve their regional, strategic interests. They do not believe, therefore, that they have lost full control of those groups or that those groups now imperil the state of Pakistan.

  Q41 Mr. Heathcoat-Amory: Some of the terrorist attacks in this country, especially in London, have been linked to the troubled areas and to al-Qaeda or associated groups. Is the threat still a very real one? How worried should we be?

  Professor Gregory: Let us look at the figures in the public domain. As the Prime Minister repeated recently, we have some 75% of those who the security services are watching in relation to planned or intended plots in this country. That number seems to float somewhere between 1,600 and 2,000 individuals in the UK about whom the security services know. Some 75% of those are of Pakistani origin. The interesting figure is that only 43% of UK Muslims are of Pakistani origin, so clearly something is going on here in relation to the flow of expertise, training and so on. I think that there are some 400,000 movements of individuals between the UK and Pakistan each year, so it is an enormous two-way flow. Of course, not everyone going to Pakistan, or vice versa, is a terrorist. However, the conduits are in place. The FATA has become so important not only because of the presence of al-Qaeda and related groups, but because many of the groups to which UK-based terrorists have been linked in the past, such as the 7/7 bombers, spent time at Lashkar-e-Taiba training camps in Azad Jammu and Kashmir as part of their training in Pakistan. Many of those groups, as I mentioned at the outset, have relocated to the FATA, so not only is it completely beyond the reach of the west and, perhaps, of the Pakistan army, but we need to see it as a tremendous concentration of militancy and of knowledge and skills. The paradox is that many of the groups that are passing on this knowledge on insurgency, terrorism and so on are the ones that, in the past, were trained in insurgency by the Pakistan army or by the ISI: Afghan, Taliban, LET, Jaish-e-Mohammed, etc.

  Sean Langan: From my own experiences on the ground, first in Kashmir in 1998 and then in Afghanistan, where I visited training camps during the Taliban regime, including Pakistan militant Jaish-e-Mohammed training camps, and in my last few years in Afghanistan, I would concur with British intelligence, which has said that it poses the greatest strategic threat to British national security.

  This is where it is slightly separate to the Afghan Taliban. Afghans do not travel well. It is much more in Pakistan. All the Pakistan militant groups that were set up initially to fight Indian forces in Kashmir signed up to al-Qaeda in 1998, including Harkat al-Ansar. They changed their names, but these Pakistan militant groups, which were initially configured to fight in that region, have signed up to the global jihad. They are in the tribal areas. I have met members of Lashkar-e-Taiba, which was held largely responsible for the Mumbai attacks. It is said—I have seen it on the ground and I concur—that al-Qaeda, logistically, has tapped into these Pakistan militant groups, which now provide the logistical ability and capability of al-Qaeda. Lashkar-e-Taiba has a desire to be on the global stage. Because of the problems with America, Britain is seen as the soft underbelly. It is the Trojan horse—the way to get into the west, because of the close links between Pakistan and Britain, the high number of dual nationality passports and the numbers of people crossing and going between the two countries every year. On average, visitors from Britain spend 40 days a year in Pakistan, which is enough to go to a wedding, but also to receive training in the tribal areas. These people are very focused. They have time and space, and they are planning the next attacks in London. If someone asked me, I would say that when the next attack occurs in mainland Britain it will be linked back to these groups in the tribal areas. It is a case of when, not if.

  Q42 Mr. Heathcoat-Amory: It sounds as though we have invaded the wrong country. Does it follow from what you say that if we succeeded in Afghanistan in pacifying the country, supporting the Government there and driving out the training bases and so on, that would not do any good, because the real threat comes from the Pakistani side of the border and, in fact, there could be a switch from Afghanistan to the tribal areas? So Afghanistan is not the key to our security.

  Sean Langan: Certainly not. It was only ever a host to al-Qaeda and the host has changed—it is now Pakistan. Al-Qaeda and the Pakistan militant groups, which always had links, are very close now. In fact, I would question the point, even if we stabilise Afghanistan. My impression of what Shaun has said, and what I feel very strongly, is that we cannot pacify Afghanistan or solve any of the problems there without first dealing with Pakistan. We need bases, primarily for British national security interests, but the threat comes from within Pakistan not Afghanistan. Even with the problems in Afghanistan we must first deal with the tribal areas. I have read Shaun's written evidence and we are both speaking today. I am not saying this only to salvage any small chance I have of ever getting a visa again from the British High Commission here in London—

  Chairman: You mean the Pakistani High Commission.

  Sean Langan: The Pakistani High Commission. It is worth mentioning that the policy of using terrorist groups as proxies was not dreamt up by Pakistan. It was developed and funded by America, Saudi Arabia and the UK during the jihad against the Soviet Union. That is when Inter-Services Intelligence was created, or reconfigured, to become an organisation that ran a jihad. I wanted to say that, but not only for visa reasons. It is worth mentioning.

  Q43 Chairman: It is 30 years on. We can look at the origins, but we are dealing with the situation now.

  Sean Langan: It is interesting that you mention 30 years. What do we do now? The Islamisation process of the ISI, and dealing with those proxy forces has fed back into the Pakistan establishment. It thought that it could hold these proxy forces at arm's length, but there has been a cross-fertilisation. The problem of Pakistan and the strategic threat to Britain will not be dealt with in Afghanistan or by mowing the lawn—mowing down young Taliban in Helmand province. It will take a concerted effort and needs to counterbalance 30 years of the process whereby billions and billions of dollars have been funnelled into Pakistan and the madrassahs from Saudi Arabia.

  Q44 Mr. Heathcoat-Amory: Could I ask Professor Gregory about the possibility of nuclear terrorism having its origins in Pakistan? You gave some interesting written evidence and I would like you to expand on that, particularly if you can give any evidence for it.

  Professor Gregory: When I first went to Pakistan, my background in no small measure was on the nuclear side. I looked at that very carefully over a number of years with the close collaboration of the Pakistan strategic plans division—the organisation within the army that deals with the command and control, and safety and security of Pakistan's nuclear weapons. After Pakistan became an overt nuclear weapons state with the weapons test in '98, it was keen to reassure the west that it had tight control of those weapons. It therefore opened the door to people like me with a degree of nuclear expertise and I had access to people at the very highest levels inside the SPD. I can report that the Pakistanis have in place very robust measures for the safety and security of their nuclear weapons. It is important to put on the record what that means for us in the west. A second reason—there are many others—why we cannot leverage or put serious meaningful pressure on Pakistan is not only because it has its hands on our jugular through the logistics, but because the Pakistan army and the ISI are all that stands between nuclear weapons and the terrorists. I have called this a custodial strategy. In other words, the Americans will put up with almost anything the Pakistanis do—within limits—as long as they keep tight control of their nukes and stop those weapons from getting into the hands of terrorists. Do I think that the Pakistanis have completely secured their nuclear weapons against the terrorist threat or nuclear-related technologies? The answer to that is a firm no. I have written extensively about this; there is a short paper on my website should members of the Committee want to have a look. It essentially boils down to a number of issues. First, paradoxically, is the very interesting geographical issue that when the Pakistanis developed their nuclear weapons, their principal concern was that they would be subject to being overrun by the Indian army if it poured across the Pakistan-Indian border, across the Lahore plains. They therefore moved all the nuclear weapons infrastructure to the north and west of Islamabad, so that the key centres are at Wah, Taxila and so forth. There are one or two exceptions, such as Sargodha, which is not in that area. But a substantial proportion of Pakistan's nuclear weapons-related infrastructure is to the north and west of Islamabad, which is of course close to the tribal areas and precisely the instability that we have been discussing this afternoon. That was not on Pakistan's agenda when it was making early decisions about its nuclear weapons.

  There are two or three areas of concern for us. One is that there is evidence in the public domain of there being direct contact between some of those who have nuclear weapons-related experience and know-how, and al-Qaeda.

  Q45 Chairman: Are you referring to A. Q. Khan?

  Professor Gregory: No, I am not. A. Q. Khan is a side issue which I would be more than happy to talk about. There is a documented example of two very senior Pakistan atomic energy commission individuals—Chaudhry and another one, whose name I forget.

  Sean Langan: I know about them meeting Osama bin Laden.

  Professor Gregory: They went to meet bin Laden in 2001. The Pakistanis tried to dismiss this as irrelevant, but A. Q. Khan tells us that it is not knowledge of specific individuals that matters; what matters is the relationship between those individuals and the networks that they can reach—that is a very important meeting. One of the dynamics that we need to be worried about is the risk of transfer in that way. Another is the direct physical threat to these weapons and weapons-related infrastructure. They could, for instance be blown up, or catch fire and could certainly create a radiological hazard. If that sounds implausible, last year suicide bombers attacked one of the entrance points to Wah cantonment—a weapons production facility where part of nuclear weapons are thought to be assembled. Another huge issue of concern—certainly in my research—was the possibility of collusion between those with extremist, Islamist sympathies inside the army and the ISI, with terrorists or extremists. The Pakistanis have put a huge amount of effort into trying to mitigate that problem. But they recognise, as we all do, that you cannot have 100% assurance that the people who have day-to-day control over nuclear weapons are wholly reliable in that way. As Sean said earlier, one of the key dynamics here is what might broadly be called the Islamisation of the Pakistan army and of the ISI, which has been under way since the time of Zia-ul-Haq. There are at least three or four major areas of concern for us in this nuclear-terrorist relationship.

  Chairman: We could obviously explore these matters in greater detail, and if you would like to send us a note afterwards, we would be happy to receive it. However, we need to move on to some other areas.

  Q46 Ms Gisela Stuart: That leads very nicely to what I wanted to ask. To what extent do you think that the policy aims of the ISI and the military are the same? Much more to the point, what degree of control do you think the new Pakistani Government have over the military?

  Professor Gregory: My own view is that there is virtually no separation any more. I know that during the 1980s and the years of the Soviet-Afghan war, huge amounts of American and Saudi money poured directly into the ISI and, as a consequence, the ISI to some extent became empowered as a state within a state. Actually the situation has changed profoundly since then. It began to change after the end of the Soviet conflict, but it has certainly been tightened up since the military coup in 1999. When President Musharraf came to London in September 2006, he gave an interview to The Times in which he was quoted as saying that the ISI is a disciplined force doing what the military Government tell it to do. That is virtually verbatim. What were Musharraf's grounds for saying that? I have written a lengthy paper about the ISI.

  Q47 Ms Stuart: That was Musharraf. I am worried about post-Musharraf and the current Government.

  Professor Gregory: Of course. Let me go through this bit, and I will then get to that. Musharraf introduced the notion of rotation, or at least he developed the notion of rotation, so 80% of the ISI is comprised of army officers who rotate into the ISI for between two and three years. Not only that, but there has a been a series of changes in terms of the leadership of the ISI away from individuals such as Hamid Gul and others who are deeply sympathetic to Islamists to people who are considered to be more pro-Western. When it comes to post-Musharraf, Kiani is chief of staff, and you may have noticed that in the immediate aftermath of Kiani's appointment, an individual called Taj was appointed director-general of the ISI. The Americans did not like Taj, and put the army under intense pressure to replace him with someone called Pasha, who is now the director-general of the ISI. That tells me that the Pakistan army wants at least to convey to the west that it is serious about keeping pro-west individuals and being responsive to the west, and particularly the American agenda. My view is that the practical changes that have been introduced, particularly rotation—by the way, that still leaves the other 20% of the ISI who are career servers and operatives and so on—essentially tied the army and the ISI extraordinarily closely together under Musharraf. I am not saying that at the fringes of the organisation, individuals are not acting alone or even under the influence of foreign intelligence agencies, or have not seen local opportunities in relation to drugs and so on to do a little on the side, but the ISI and the Pakistan army are broadly one and the same beast.

  Q48 Ms Stuart: What about the Government?

  Sean Langan: After the atrocities in Mumbai, Zardari immediately announced that he was sending the head of the ISI to India, and that was an incredibly critical moment between the two countries and neighbours. He announced that he was dispatching the head of the ISI, and it then turned out that that was a clerical error, and that the Prime Minister had not asked permission from the right people, so it was vetoed and someone else was sent. That is a clear indication of who tells what to whom. The ISI has been described as a state within a state, but, even on paper, I think it remains a fact that the political Government have no control over foreign policy and nuclear policy. The most important strategic areas of government are under the direct control of the military, and there is no pretence that they are otherwise. From my experience in Pakistan over the years—I spent a lot of time with Benazir Bhutto—I cannot imagine that the situation is very different with her husband running things. He is seen in the same light by the military establishment. Benazir Bhutto had very little control and was pretty powerless. By all accounts, the same state of affairs exists today. Turning to the other side of the question that you asked me, I am not sure how monolithic the situation is. There is hope for British efforts to convince elements of the Pakistan military that the future lies with closer ties with India and in the Commonwealth, because a strong Anglophile strain of influence exists in the military. Although ISI it is made up of military people, it has its own ethos and cadre, and I would not say that it is a monolithic block. Clearly, politicians are in office, but not in power.

  Q49 Ms Stuart: I have two questions on FATA and dealing with militancy. First, to what extent are the Government committed to dealing with it? Secondly, and more to the point, do they have the money, given the resources that are needed and the poverty of the area?

  Sean Langan: There was a recent large-scale operation in Bajaur, which I would say is the classic safe haven. The fact that hundreds of thousands of refugees left the area and crossed the border was, to me, a sign that the Pakistan military operation must have been real. Unlike previous operations in other areas, the scale of the fighting was such that people left the area in large numbers. That began last August or September, I think, and it is ongoing. The fighting or the Taliban moved to Swat because it was like pressing down on one part of a balloon—it reappeared somewhere else. The Pakistan military have said that they were being provided with weapons for those operations on that occasion. I think the figure is $12 billion that they have received under Bush—since Bush—most of which has been in military aid. Bajaur is just one agency out of the seven, and I am sure that what I saw there is not dissimilar from the other agencies, where there are not such operations. Before that operation, there was a complete lack of Pakistan military presence. The Frontier Corps and the military and police stations were flattened, as if a joint direct attack munition had been dropped on them. That was a clear sign from the Taliban that that is Taliban country. You would have seen no sign of the Pakistan military in the streets. I am talking about not the middle of the mountains, but tarmac roads. There would be a checkpoint, manned by two men, but even as a British man in a land where foreigners are banned, being driven there by a mullah and a Taliban, I was waved through the checkpoints. So the security is pretty tight.

  Professor Gregory: We must not get seduced by the idea that if we can simply give the Pakistanis more money or material, they can or will make a difference in Bajaur. As Sean said, they have had billions of dollars, but look where they have gone. They have gone into the kind of military hardware that is useful only in relation to India. They have gone, to some extent, on propping up Pakistan's balance of trade. Paradoxically, they have also gone towards expanding the economic presence and role of the military. The military has been buying up half of Pakistan—land, ports, companies, fishing and so on.

  Q50 Mr. Illsley: I think you have covered most of the questions I was going to ask about the Pakistani military and how it has selected targets in FATA and so on. What are the consequences, or the effects, of the recent decision to impose Sharia law in the North-West Frontier province? I know that in the west and the UK, the phrase "Sharia law" conjures up all manner of images, but what have been the practical effects?

  Professor Gregory: I would say a couple of things about that. We need to keep in our minds the kind of dispensation that existed in Swat and elsewhere before. In other words, there is a track record of Sharia and other local forms of justice and law being tolerated and accepted. The introduction of Sharia is not, on one level, a great capitulation in its own terms. But that is not the significant thing, really—it is to whom the Pakistanis have ceded this area. Fazlullah, in particular, who has taken de facto control over the region, is a murderous thug, at the end of the day. The forms of Sharia that have been introduced and have been operating there in the past few months are brutal and barbaric. It is hugely significant not so much that we worry about Sharia per se, but how that Sharia is expressed and who is in control of the region. It is important in another way: Swat is not part of FATA, but is in what is termed the settled areas. That is hugely important, because for this to have taken place in part of the settled areas, relatively close to Islamabad in real terms, is very significant. One other issue to introduce is the notion of the Indus River, which runs down through Pakistan and which serves in a way as a mental metaphor, I guess, for the elite that runs Pakistan. As long as the violence is on the west side of the Indus, to some extent, it can be tolerated and dealt with—as long as it is not impacting Punjab, Islamabad and other places on the eastern side of the Indus. That is why the Marriott bombing last year was so hugely important: it was a major shock to Pakistan's elite, and it explains to some extent—as I have said before—the way in which Pakistan, to some degree, has now become dependent on Omar's ability to check the TTP and the TNSM.

  Q51 Chairman: May I ask you a couple of quick questions about the US role in Pakistan—the air strikes that took place? What are the consequences in terms of both the impact on any threat to US and western interests from al-Qaeda, and the consequences in Pakistan?

  Sean Langan: I have been on the ground a lot there. A congressional hearing last week, I think, described as a colossal foreign policy failure the support that Bush provided for Musharraf. I believe Britain is already paying the price, with the attacks on the British mainland, and will continue to pay the price for following that failed Bush policy, which was to prop up Musharraf, who had a very blatant dual policy to support and fund the Taliban. Some of the $12 billion—it has been commented on by the American military, and I have seen it myself—has wound its way back into funding the Taliban, and ended up being spent on killing British and American soldiers. The years of the US policy of propping Musharraf while quashing democracy and the civil society in Pakistan—Musharraf had a policy of funding, as Sean has pointed out, using the Taliban as a proxy force, and I have seen direct evidence of the supply lines—has been a failure.

  Q52 Chairman: But specifically, in the Obama transition period, we have seen continuation of the policy of using air strikes.

  Sean Langan: Can I finish on that? On one level they have been incredibly successful with the Predator drone and Hellfire missile strikes, which Obama has continued. There are always military successes and their wider implications. It is playing with fire and I think Osama bin Laden is more popular in Pakistan among the average people, when these surveys are done, than Bush was. That is perhaps a question of degree. Part of me thinks it is diplomacy by fire. But at the same time, it sent a very clear message to Pakistan. These people were there and everyone knew they were there. These missiles have been hitting their targets. It is perhaps too early to tell. What with everything else in Pakistan, everything is on the brink.

  Q53 Chairman: But what impact has it had on al-Qaeda?

  Sean Langan: I think it has had an impact on al-Qaeda.

  Professor Gregory: I was going to echo some of what Sean said. Essentially there is a real conundrum here. You can understand from an American military point of view why, in the face of obfuscation of the Pakistan army and in the knowledge of certain al-Qaeda assets in the FATA, they feel the need to use air strikes. I can see the military imperative for this, but it is absolutely clear that these air strikes are radicalising young Pakistanis. There is a very well known quote that Baitullah Mehsud gave in an interview to The News or Dawn last year. He said that he would come into a town or village and he struggled to get 10 to 15 fighters, but if he came in the aftermath of an American air strike, he could get 150.

  Sean Langan: I would disagree. For three months I am sitting in a house, and the tribal family can hear the CIA drones flying overhead. On one night I would hear a drone and a faint sound of the missile being fired and a little poof. Two days later on the World Service, I heard how an al-Qaeda house had been hit in Damadola, just across from where I was. I am sitting with a bunch of tribal people and they are completely acclimatised to the hum—the deep bee-like sound—of a drone. They do not have television, but they are used to hearing CIA drones every night. They are aware of it. It is precision bombing. It is not like the munitions being dropped in Afghanistan where there are civilian casualties. There have been civilian casualties, but it is not the same as the aerial bombing of Afghanistan on compounds. Many civilian lives have been lost.

  These are accurate munitions and there have been 29 strikes. What I have heard on the ground is that people are aware that these are precision strikes and they are hitting, to use the American parlance, the bad guys. I do not think that it is adding much more to the anti-American feeling that already exists. It is happening anyway. I do not know whether it has made a big difference.

  Q54 Chairman: Perhaps, Professor Gregory, you can confirm my interpretation of what you said: the perception in wider Pakistani society is that it acts as recruitment for radicalisation?

  Professor Gregory: Absolutely. I have given you the quote from Mehsud. I accept some of what Sean has said, but I disagree with other elements of it. There are two other issues that we must not lose sight of here. First, this is seen as a violation of Pakistan's sovereignty. That plays very badly in terms of western and anti-western sympathies, particularly in the Pakistan army and ISI. They resent this. It is fuelling that sentiment, which obviously has the knock-on effects that we have been talking about.

  The other concern is that although Sean is right that some of these strikes have been very good in terms of the intel. They have killed al-Qaeda leaders and possibly Rashid Rauf and so on. Others have not done that. Others have fallen on villages and killed innocent people. Indeed, one of them struck Pakistani soldiers and killed 11 of them. That played very badly indeed inside the Pakistan army, I can tell you. That is an issue. The third point about these strikes, aside from fanning general anti-western and pro-Islamist sympathies in Pakistan in the army and ISI, is the danger that they will provoke wider unrest in the tribal areas. At the moment, there are thousands of potential fighters there who are staying out of this for one reason or another. There is just a possibility of the so-called rising of the Lashkar.

  Chairman: I have to bring in the last questioner because we have gone way over time.

  Q55 Mr. Horam: My question is simple. In the light of the dangerous situation that you have described graphically, what is the right US and UK strategy towards Pakistan?

  Sean Langan: Thank you for asking that question. It is not military. My answer goes back to the quotation from the US general about what NATO is doing in Afghanistan being like mowing the lawn. It will not be achieved by Predator missile strikes. I believe that the key is Pakistan. It will need an enormous diplomatic effort on the part of Britain and America to convince Pakistan to support them and not to use a stick, or the modern day equivalent of a stick.

  Q56 Mr. Horam: To convince them that there is an existential threat to the Pakistan state?

  Sean Langan: I think that there is finally hope on the horizon after so many years. Let us not forget that ISI was itself attacked in Rawalpindi last year by the militants. I genuinely believe that the wider public in Pakistan are aware that an existential threat is posed by this Frankenstein's monster.

  Q57 Mr. Horam: So the Americans have to convince them of that. What policy should they have? Is it a matter of finance or of diplomacy?

  Sean Langan: This is the key. They have been talking about Petraeus's success in Iraq and the Sunni Awakening, in which Sunnis were turned against al-Qaeda. The key to Afghanistan and Pakistan is to turn ISI, first and foremost, rather like the Sunnis were turned.

  Q58 Mr. Horam: Is that doable?

  Sean Langan: That is the question. There has been a de-Islamicisation process under Musharraf. He sacked a number of groups. It must be put in harsh terms to Pakistan that it is in a do-or-die situation. I believe that the American military has been speaking in harsh terms vis-a"-vis the strikes. It is for Parliament to ask what the FCO is doing—vis-a"-vis the strategic threat in Britain—to tell the Pakistan Government that they have to make stark choices for their future and survival. ISI needs to be turned, but I do not know if that is possible. On the wider level, the diplomatic route works. As we have said, this process has been going on for 30 years. We have spent £12 billion buying F-16 fighter jets that have not been used and it is costing Britain money to station forces in Helmand. Some money and an enormous effort should be put into state education in Pakistan to start to close down the madrassahs.

  Q59 Mr. Horam: Are the Saudis still funding the madrassahs?

  Sean Langan: There are hundreds of thousands of madrassahs.

  Mr. Horam: That is Saudi charitable money; not Government money.

  Sean Langan: I think more and more it is private money. The Saudi official policy previously was to export the Wahhabi, anti-American, anti-western view. I have been to madrassahs. They get children at the age of 5 and by 15 they are—

  Chairman: Members of the Committee went to a madrassah on a visit to the region.

  Sean Langan: An enormous effort is needed. I would not want to sit here and—

  Q60 Chairman: Do you agree with that Professor Gregory?

  Professor Gregory: No. I agree with the diagnosis, but the treatment is not practical. ISI cannot be turned in that way. Anybody who reads about Pakistani history and about the Pressler sanctions will know that it cannot be done. I would suggest four ways forward. First, NATO and the United States have to reduce their strategic dependence on Pakistan to enhance their leverage over it. As long as we are vulnerable, we cannot exercise leverage.

  Chairman: Professor Gregory, Mr. Langan, I regret that we must conclude our discussion because of other meetings. We have run over our period of time. I thank you both for coming. It has been extremely valuable. If you wish to follow up with any notes on issues that have not been communicated, you can do so through our Clerk and we will deal with them.





 
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