When the Gift Becomes an Insult
By Michael Krepon
Stimson Center, Washington, DC
October 29, 2009
You know when US-Pakistan relations are in bad shape when what is perceived
as a generous gift in one country is widely received as an insult in the other.
Such is the case with the Kerry-Lugar-Berman legislation which authorizes up to
$7.5 billion in economic assistance to Pakistan over the next five years.
The strenuous opposition to this aid package by many in Pakistan genuinely
surprised supporters of this legislation in the United States. Granted, KerryLugar-Berman wasn't entirely philanthropic: American legislators understand that
Pakistan's stabilization serves US national security interests, and stabilization
depends on economic growth, better social services, and educational
opportunities in Pakistan. But the amounts authorized were between three and
five times more generous than in the years since 2001. And although Pakistani
readers may find this hard to believe, the conditionalities attached to the KerryLugar-Berman legislation were exceptionally lax by Capitol Hill standards.
It was therefore both ironic and disturbing that the hard-won consensus behind
this legislation on Capitol Hill generated such strident negativity in the Pakistani
media and the National Assembly, as well as a rare public statement of
disapproval by the Army Chief, General Ashfaq Kiyani.
To minimize further damage and to make the most of subsequent Congressional
economic aid appropriations, it's worth trying to distinguish between political
posturing, historical grievances, and genuine complaints within Pakistan. With
good reason, grievances are deeply rooted in the Pakistani psyche, political
culture, and national experience. Unfortunately, this grievance-oriented political
culture focuses on score settling. It's hard to move forward when so much time
is spent in the past.
Negative outcomes are widely expected in Pakistan's political culture - no matter
what someone else says, does or offers. Conspiracies exist in abundance in
Pakistan, both real and imagined. It doesn't take much effort to blur this line,
especially in a hyperventilating, free-wheeling media. But if enough Pakistanis
are convinced that they cannot win when dealing with the United States, then
eventually enough members of Congress will conclude that it's not worth trying to
convince Pakistanis otherwise.
Political point scoring between major parties is to be expected in a democracy.
Democrats and Republicans on Capitol Hill now have great difficulty finding
common ground on the most consequential matters of state and society. So
Americans should be able to understand political point scoring in Pakistan on
Kerry-Lugar-Berman - even though it weakens ties with the United States that
are essential for Pakistan's national security. But points would not be scored so
easily if grievances with the United States were not so wide and deep.
The variable state of civil-military relations in Pakistan has further complicated
consideration of Kerry-Lugar-Berman. This legislation includes hortatory
language in support of civilian control over the military, including a most unwise
reference to "the process of promotion for senior military leaders." Proper civilmilitary relations depend on merit promotion within the military, and are
subverted when politicians have a keen interest in which Colonels are promoted
to Brigadier Generals. Senator Kerry and Congressman Berman have issued an
important clarifying statement in this regard.
Senior military officers have also taken offense at the reporting requirements
associated with nonproliferation and counter-terrorism goals that both
governments share, viewing them as hunting expeditions for US auditors and
precursors for sanctions, as was the case in for Pressler amendment.