Guarding the Guardians: Civil-Military Relations and Democratic Governance in Africa

229 Pages·2010·2.38 MB·English

by  Mathurin C. Houngnikpo

Guarding the Guardians
Civil-Military Relations and Democratic
Governance in Africa
Mathurin C. Houngnikpo
GuardinG the Guardians
This page has been left blank intentionally
Guarding the Guardians
Civil-Military relations and democratic Governance
in africa
Mathurin C. hounGnikpo
National Defense University, USA
© Mathurin C. houngnikpo 2010
all rights reserved. no part of this publication may be reproduced, stored in a retrieval
system or transmitted in any form or by any means, electronic, mechanical, photocopying,
recording or otherwise without the prior permission of the publisher.
Mathurin C. houngnikpo has asserted his right under the Copyright, designs and patents
Act, 1988, to be identified as the author of this work.
published by
ashgate publishing Limited ashgate publishing Company
Wey Court east suite 420
union road 101 Cherry street
Farnham Burlington
surrey, Gu9 7pt Vt 05401-4405
england usa
www.ashgate.com
British Library Cataloguing in Publication Data
houngnikpo, Mathurin C.
Guarding the guardians : civil-military relations and
democratic governance in africa.
1. Civil-military relations--africa. 2. Military
government--africa--history. 3. democratization--africa.
4. africa--politics and government.
i. title
322.5'096-dc22
Library of Congress Cataloging-in-Publication Data
houngnikpo, Mathurin C.
Guarding the guardians : civil-military relations and democratic governance in africa /
by Mathurin C. houngnikpo.
p. cm.
includes bibliographical references and index.
isBn 978-1-4094-0414-9 (hardback) -- isBn 978-1-4094-0415-6 (ebook)
1. Civil-military relations--africa. 2. africa--politics and
government--1960-3. africa--armed Forces--political activity. i. title.
JQ1873.5.C58h68 2010
322'.5096--dc22
2010007093
isBn 9781409404149 (hbk)
isBn 9781409404156 (ebk)
Contents
Preface vii
Acknowledgements ix
introduction 1
1 Conceptual and theoretical issues 23
2 Civil-Military relations in africa 47
3 explaining army intrusion in african politics:
an on-going debate 73
4 the african Military and Modernization 89
5 the performance of Civilian and Military regimes:
a Comparative assessment 105
6 towards new Civil-Military relations in africa 125
7 Legitimacy and democratic oversight of the security
sector in africa 145
Conclusion 163
Bibliography 173
Index 215
This page has been left blank intentionally
preface
africa was swept up in the frenzied round of regime transformations that were
set off by the thaw of the Cold War in the early 1990s. however, while well over
half of africa’s states embarked on some form of democratization, the process
lost steam for many soon after it started. two decades later, it has become amply
clear that democratization in africa has arrived at something of a crossroads.
even countries that generated some optimism are now facing serious challenges
of consolidation. More importantly, the democratization process has failed to
adequately address the key feature of african politics: military intervention.
Contrary to conventional wisdom or expectation, african militaries in recent
years have felt emboldened to take out civilian leaders when certain military
officers saw it in their interests. Despite the African Union’s 2007 Democracy
Charter resolving not to recognize unconstitutional changes of government, the
military continues to stage coups. democratic norms have not yet taken hold. in
fact, the new trend in africa is what i call the “democratic coup” which amounts
to staging a coup, making a tactical withdrawal to hold elections, and then
“wining” these elections to become a legitimate elected leader—to the accolades
of both regional and international organizations.
Whether african militaries can ever accept civilian control is the thrust of this
book. i have always been leery about military commitment to democratization in
africa and recent reversals through military coups only reinforce my view that the
subordination of the military to political control is still decades away. Yet, without
civilian control of the military, democracy is unlikely to mature and consolidate.
the challenge in addressing civil-military relations and democratic governance in
africa, thus, remains a critical priority.
Civilian control of the military is a doctrine that places ultimate responsibility
for a country’s strategic decision-making in the hands of the civilian political
leadership, rather than military officers. Given that broad strategic decisions,
such as the decision to declare a war, start an invasion, or end a conflict, have a
major impact on all citizens of a country, legitimate civilian leaders, guided by
the will of the people, are the best authority of what is in the national interest. the
proper subordination of a competent, professional military to the ends of policy
as determined by this civilian authority is a prerequisite feature of a stable liberal
democracy. the actual level of control employed by a civilian leadership depends
not only on their legitimacy, but may also vary greatly in practice, from a statement
of broad policy goals to the direct selection of specific targets for attack on the part
of governing politicians. regardless, the military serves as a special government
agency, which is supposed to implement, rather than formulate, policies.
viii Guarding the Guardians
in a democracy, a well-crafted, well-understood, and carefully protected
separation between political and military decisions should allow a civil supremacy
of the military. Wise civilian leaders, in turn, understand that operational issues
such as weapons procurement, manning levels, conditions of service in the
armed forces, or strategic security planning decisions, should be left to military
professionals. Just like their civilian counterparts, the armed forces in a democracy
have a direct responsibility to the law, to parliament and to the public. While civil
supremacy in a democracy is enforced through the constitutional, legislative
and budgetary mechanisms—it ultimately depends on military leaders accepting
these principles—the essence of military professionalism. Military acceptance of
civilian authority remains the “missing piece” of the democratic transition puzzle
in africa.
under no illusion that it could be overtaken by events in africa, this book seeks
to add a key parameter to the civilian control debate: the legitimacy of the civilian
leaders tasked with controlling the military. ultimately, true civilian supremacy
goes beyond mere control. all three branches of government must have some
control over the military, and the system of checks and balances maintained among
the other branches would serve to help control the military and give a genuine
chance to democracy in africa.
MCh
Washington, dC (usa)
2010
acknowledgements
any undertaking that attempts to take stock of such a complex issue must depend
on the generosity and wisdom of others. First and foremost, i owe this book to
the africa Center for strategic studies that gave me the opportunity, as Chairs of
the Departments of Security Studies first and of Civil-Military Relations later, to
better grasp not only the security challenges facing africa, but also to sharpen my
keen understanding of civil-military relations on the continent. In fact, I benefited
tremendously from my intellectual exchanges with africans, both civilian and
military officials, who participated in the Africa Center’s programs.
several colleagues and friends, too numerous to mention individually, have
humbled me by providing invaluable insights, factual corrections, inspiration and
advice. nonetheless, i would be remiss without at least mentioning Joe siegle at the
africa Center, amy eckert at Metro state College in denver, Boubacar n’diaye
at the College of Wooster, and abdoulaye saine at Miami university of ohio.
to anonymous reviewers whose pertinent comments improve the manuscript, i am
grateful. none of these, needless to say, bears the slightest blame for any part of
the content of this book.
i also wish to express my gratitude to my extended family for their unconditional
support. Finally, my sincere thanks and appreciation go to the able staff of ashgate
publishers for their patience, courtesy and solicitude throughout the process.