{"id":20196,"date":"2013-12-08T10:18:10","date_gmt":"2013-12-08T15:18:10","guid":{"rendered":"http:\/\/joshualandis.com\/blog\/?p=20196"},"modified":"2013-12-16T17:07:47","modified_gmt":"2013-12-16T22:07:47","slug":"al-qaedas-governance-strategy-raqqa-chris-looney","status":"publish","type":"post","link":"https:\/\/joshualandis.com\/blog\/al-qaedas-governance-strategy-raqqa-chris-looney\/","title":{"rendered":"&#8220;Al-Qaeda\u2019s Governance Strategy in Raqqa,&#8221; by Chris Looney"},"content":{"rendered":"<p><strong>Al-Qaeda\u2019s Governance Strategy in Raqqa<\/strong><br \/>\nby Chris Looney (Syria analyst working in DC: clooney@colgate.edu &#8211; twitter <a href=\"https:\/\/twitter.com\/looney_89\"><s>@<\/s>looney_89<\/a>)<br \/>\nFor <em>Syria Comment<\/em><br \/>\nDecember 8,2013<\/p>\n<div style=\"width: 298px\" class=\"wp-caption alignright\"><a href=\"http:\/\/www.dailystar.com.lb\/News\/Middle-East\/2013\/Dec-05\/239954-isis-seizes-armenian-church-in-raqqa.ashx#axzz2mtW2xT4h\"><img loading=\"lazy\" decoding=\"async\" alt=\"\" src=\"http:\/\/www.dailystar.com.lb\/dailystar\/Pictures\/2013\/12\/05\/8-Raqqa%20church%20brief_635218006381021871_mainimg.jpg\" width=\"288\" height=\"176\" \/><\/a><p class=\"wp-caption-text\">Armenian Church in Raqqa converted into an Islamic Missionary Center.<\/p><\/div>\n<ul>\n<li>\u201cEvery 15 minutes someone poured water on me, electrocuted me, kicked me, and then walked out,\u201d says one activist in an <a href=\"http:\/\/www.cnn.com\/2013\/11\/05\/world\/meast\/syria-al-qaeda-town-walsh\/\">interview<\/a> with <i>CNN<\/i>.<\/li>\n<li>\u201cThey beat me with a rifle and with their hands when they arrested me,\u201d <a href=\"http:\/\/www.bbc.co.uk\/news\/world-24926584\">says<\/a> another in a conversation with <i>BBC<\/i>. \u201cAnd they threw a wheel on my back so I couldn\u2019t move.<\/li>\n<\/ul>\n<p>Such is the situation in Raqqa, a city in northeastern Syria with approximately one million inhabitants now under control of the Islamic State of Iraq and al-Sham (ISIS), the most powerful Al Qaeda (AQ) affiliate currently operating in Syria.<\/p>\n<p>Since ISIS came to power in May, its abuse of Raqqa\u2019s citizens has been well documented. It has begun to enforce its extreme interpretation of Islam upon the city\u2019s residents, forcing women to <a href=\"http:\/\/www.telegraph.co.uk\/news\/worldnews\/al-qaeda\/10463017\/Al-Qaedas-battle-for-hearts-and-minds-in-Syria.html\">&#8220;cover their beauty,&#8221;<\/a> banning tobacco products, and brutally repressing dissident voices.<\/p>\n<p>On the surface, this violence appears to be indiscriminate and irrational. Yet, it is also organized and tactical. For a group that has never before fully controlled a large city, the transition from insurgent to administrator has hardly been smooth. Still, ISIS has managed to develop a robust, systemic strategy of governance for Raqqa that links the city to sister strongholds in Iraq. Through the control of goods and services, ISIS has made the city\u2019s residents dependent on it. As intricate as it is oppressive, this strategy is serving ISIS well; ISIS has consolidated its authority in Raqqa as it expands its reach over much of eastern Syria and Iraq.<\/p>\n<p><b>ISIS Gains Control<\/b><\/p>\n<p>Raqqa remained relatively calm throughout the first two years of the revolution. A city with roughly 240,000 residents before the war, the population quickly swelled to one million as refugees fled the escalating conflict. Still, strong <a href=\"http:\/\/www.understandingwar.org\/backgrounder\/opposition-takeover-al-raqqa\">ties<\/a> between local tribal leaders and the regime ensured stability in the province, allowing Assad to retain control despite committing minimal forces to the region. Thus, as support for Damascus eroded and rebel forces began to move in towards Raqqa in late February, they were able to take the city with relative ease.<\/p>\n<p>As the first provincial capital to fall fully into rebel hands, the March 4 takeover of Raqqa was a significant step forward for the opposition. The victors were a contingent of rebel battalions that included Ahfad al-Rasul, a <a href=\"http:\/\/www.ctc.usma.edu\/posts\/the-non-state-militant-landscape-in-syria\">moderate<\/a> Islamist group with strong ties to the Western-backed Supreme Military Council (SMC), Jabhat al-Wahdet al-Tahrir al-Islamiyya, a small <a href=\"https:\/\/joshualandis.com\/blog\/capture-of-raqqa-daraa-offensive-schooling-crisis-kerry-supportive\/\">regiment<\/a> of local militias, and Ahrar al-Sham, a <a href=\"http:\/\/www.understandingwar.org\/backgrounder\/opposition-takeover-al-raqqa\">powerful<\/a> Salafist brigade.<\/p>\n<p>Looming among them was another group active in the campaign to liberate Raqqa that was perhaps more formidable than the other three combined. Jabhat al-Nusra (JN), at the time the only AQ affiliate <a href=\"http:\/\/www.npr.org\/2013\/04\/01\/175891884\/syrian-government-stronghold-raqqa-falls-to-rebels\">fighting<\/a> in Syria, would soon exert its authority in the city.<\/p>\n<p>Bolstered by deep pockets and a strong alliance with Ahrar al-Sham, JN pushed forth a strict Islamic agenda. Despite this and its subsequent record of civil and human rights abuses, the group at least managed to avoid alienating the entire community. Speaking to <i>The Telegraph<\/i>, one <a href=\"http:\/\/www.telegraph.co.uk\/news\/worldnews\/middleeast\/syria\/10051207\/Under-the-black-flag-of-al-Qaeda-the-Syrian-city-ruled-by-gangs-of-extremists.html\">storeowner<\/a> put it simply. \u201cI like Jabhat,\u201d he said. \u201cThey are better than the regime at any rate.<\/p>\n<p>A big reason for this was JN\u2019s deep local ties. Even with its links to AQ, which were not made public until April, many of the group\u2019s fighters were still Syrian, some even from Raqqa province. Thus, they were able to forge more intimate connections among the community. \u201cThey don\u2019t wear face masks,\u201d said one resident while <a href=\"http:\/\/beta.syriadeeply.org\/2013\/09\/raqqas-fsa-brigades-join-jabhat-al-nusra\/\">speaking<\/a> with <i>Syria Deeply<\/i>. \u201cPeople have friends who are in al-Nusra.\u201d<\/p>\n<p>Yet Nusra\u2019s rule in Raqqa would be short lived. In April, Abu Bakr al-Baghdadi, head of what was then known as the Islamic State of Iraq (ISI), announced that JN would be merged with ISI to form ISIS.<\/p>\n<p>JN\u2019s leader, Abu Muhammad al-Golani, rejected this union, asserting his group\u2019s independence and, for the first time publicly, swearing allegiance to Ayman al-Zawahiri, the head of AQ. Despite al-Zawahiri\u2019s June order that the two remain separate, al-Baghdadi forged ahead in his attempt to integrate the groups.<\/p>\n<p>In Raqqa he was particularly successful. JN had been formed with strong support from ISI, and a significant number of its fighters had fought in Iraq and remained loyal to al-Baghdadi.<\/p>\n<p>By May, ISIS had <a href=\"http:\/\/eaworldview.com\/2013\/08\/syria-feature-islamic-state-of-iraq-jabhat-al-nusra-and-the-story-of-raqqa\/\">lured<\/a> away many of JN\u2019s forces in Raqqa. This, combined with an influx of foreigners as ISIS made its way into Syria, cemented al-Baghdadi\u2019s takeover. The group <a href=\"https:\/\/www.youtube.com\/watch?v=cbhspbVmL5A&amp;oref=https%3A%2F%2Fwww.youtube.com%2Fwatch%3Fv%3DcbhspbVmL5A&amp;has_verified=1\">celebrated<\/a> its victory with the execution of three Alawites in a town square on May 14.<\/p>\n<div style=\"width: 520px\" class=\"wp-caption aligncenter\"><a href=\"http:\/\/pietervanostaeyen.wordpress.com\/2013\/05\/15\/the-ar-raqqa-executions-confirmation-of-the-islamic-state-in-iraq-and-as-sham\/\"><img loading=\"lazy\" decoding=\"async\" class=\" \" alt=\"\" src=\"http:\/\/pietervanostaeyen.files.wordpress.com\/2013\/05\/isis_raqqa.jpg\" width=\"510\" height=\"288\" \/><\/a><p class=\"wp-caption-text\">The ar-Raqqa executions ~ Confirmation of the Islamic State in Iraq and as-Sham<\/p><\/div>\n<p>As ISIS solidified its authority, the violence only increased. Protests became a nightly ritual throughout the summer, reaching a crescendo in mid-August when ISIS responded to a gathering by <a href=\"http:\/\/beta.syriadeeply.org\/2013\/08\/raqqa-islamist-rebels-form-regime\/\">firing<\/a> rocket-propelled grenades into the crowd. While JN had <a href=\"http:\/\/www.telegraph.co.uk\/news\/worldnews\/middleeast\/syria\/10051207\/Under-the-black-flag-of-al-Qaeda-the-Syrian-city-ruled-by-gangs-of-extremists.html\">clashed<\/a> with the more moderate brigades in Raqqa, ISIS turned these disputes into a verifiable war. The group used a series of four suicide car bombings to take out the leadership of Ahfad al-Rasul, a battalion that enjoyed strong support from the local population. It even <a href=\"http:\/\/eaworldview.com\/2013\/08\/syria-feature-islamic-state-of-iraq-jabhat-al-nusra-and-the-story-of-raqqa\/\">squabbled<\/a> with JN in an attempt to assert itself as the sole legitimate AQ affiliate in the city.<\/p>\n<p>By late September, many battalions had <a href=\"http:\/\/beta.syriadeeply.org\/2013\/09\/raqqas-fsa-brigades-join-jabhat-al-nusra\/\">resorted<\/a> to an alliance with JN, believing it to be the only force left in the city still capable of countering ISIS. But this had little effect, as ISIS retained control and by November had <a href=\"http:\/\/www.dailystar.com.lb\/News\/Middle-East\/2013\/Nov-04\/236758-isis-receives-pledges-from-14-raqqa-tribes.ashx#axzz2lZQ1dhoe\">received<\/a> pledges from 14 local tribes, presumably out of fear. As one activist glumly put it in an <a href=\"http:\/\/beta.syriadeeply.org\/2013\/09\/raqqas-fsa-brigades-join-jabhat-al-nusra\/#.Upn3_JGQfHg\">interview<\/a> with <i>Syria Deeply<\/i> \u2013 \u201cWe have a saying in Arabic. The hand that you cannot beat: kiss it, and pray that it breaks.\u201d<\/p>\n<p><b>The Governance Strategy of ISIS<\/b><\/p>\n<p>ISIS shows no signs of weakening in Northern and Eastern Syria. On the contrary, because of its strategy of governing ISIS has grown stronger in the face of increased opposition to its rule.<\/p>\n<p>ISIS placed greater importance on asserting full control over the city than on winning the goodwill of the populace. It solidified its rule through intimidation, rather than the more diplomatic means that Jabhat al-Nusra (JN) had employed. This strategy was evident by the public executions of May 14 that the group used to announce its presence. From that day, ISIS began to arrest dissidents. It currently <a href=\"http:\/\/www.aawsat.net\/2013\/11\/article55323968\">holds<\/a> approximately 1,500 prisoners in Raqqa, often mistreating and torturing them.<\/p>\n<p>A pillar of this crackdown has been the Islamification of the city. Christians, who have a long history in Raqqa and who made up 10% of its population before the war, were not aggressively persecuted under JN. Though churches were <a href=\"http:\/\/www.telegraph.co.uk\/news\/worldnews\/middleeast\/syria\/10051207\/Under-the-black-flag-of-al-Qaeda-the-Syrian-city-ruled-by-gangs-of-extremists.html\">closed<\/a> and services suspended, families were able to remain and continue their lives unmolested.<\/p>\n<p>Yet as ISIS gained control, violence against Christians increased. The group <a href=\"http:\/\/www.aleteia.org\/en\/world\/article\/christian-book-burning-in-raqqa-7954003\">held<\/a> public bible burnings, destroyed churches, and kidnapped priests, causing most of the city\u2019s Christians to flee.<\/p>\n<p>Despite the ensuing backlash, these actions did achieve a significant strategic objective for ISIS, an organization that makes no pretense about preserving minority rights. By expelling Christians, it has paved the way for a series of indoctrination programs that aim to promote both religious purity and the AQ principles through youth reeducation and a careful manipulation of civil society.<\/p>\n<p>For ISIS, this is a long term strategy. The group seems confident in its ability to maintain power for an extended period of time, and while it is comfortable sustaining its rule through coercion in the short term, ISIS has also engineered a series of initiatives aimed at rebuilding its reputation among the community.<\/p>\n<p>In addition to <a href=\"http:\/\/www.ansar1.info\/showthread.php?t=47059\">writing<\/a> textbooks for schools, ISIS has sought to reframe itself as part of the mainstream revolution, countering the widely held <a href=\"http:\/\/www.mcclatchydc.com\/2013\/09\/19\/202655\/us-backed-syrian-rebels-being.html\">belief<\/a> among locals that it either collaborates with the regime or is made up primarily of foreigners who have no connection to Syria. Many of its prisoners are labeled as regime sympathizers, and the Alawite population has been <a href=\"http:\/\/www.lrb.co.uk\/blog\/2013\/08\/02\/syriafiling\/the-last-alawite-in-raqqa\/\">driven<\/a> from the city.<\/p>\n<p>In addition, it has targeted media outlets in an attempt to control the flow of information. In early November, the Raqqa Information Center (RIC) shut its doors after one of its correspondents was <a href=\"http:\/\/syriafreedomforever.wordpress.com\/2013\/11\/04\/statement-of-the-raqqa-information-center-in-protest-of-the-continued-harassments-by-isis-islamic-state-in-iraq-and-syria\/\">beaten<\/a> and \u201caccused of treason and espionage.\u201d In casting the RIC as hostile towards the revolution and implying a connection with the regime, ISIS has continued in its bid to reposition itself as liberators moving the city forward into the post-Assad era rather than as an occupying force regressing to autocracy.<\/p>\n<p>The shutdown of the RIC and other media outlets has also served to somewhat isolate Raqqa from the rest of Syria. Though residents still have many other ways to access information, the media blackouts have been reinforced by other actions designed to create an environment where Raqqans are increasingly dependent on ISIS for basic goods and services. In September, ISIS <a href=\"http:\/\/beta.syriadeeply.org\/2013\/09\/raqqas-fsa-brigades-join-jabhat-al-nusra\/#.Up-kxcRDvms\">closed<\/a> the only remaining foreign exchange office in Raqqa, which had allowed money to be sent into the province from abroad. The group also <a href=\"http:\/\/www.foreignpolicy.com\/articles\/2013\/10\/10\/al_qaeda_s_syrian_strategy?page=full\">controls<\/a> the majority of wheat and oil coming into the city and provides food relief packages to families throughout the region. As this dependence increases, ISIS undoubtedly hopes it can transform it into loyalty and gain popularity among the community.<\/p>\n<p>In implementing this strategy of dependence, ISIS has also expanded the connection between the territory it controls in eastern Syria and its strongholds in Iraq. For an organization that does not recognize colonial borders, fusing the two regions is of key strategic importance as it works towards the establishment of an Islamic emirate. The flow of funding from Iraq into Syria has been a source of strength for ISIS, allowing it to outpace rival opposition groups. Through extortion and other criminal techniques, ISIS is able to <a href=\"http:\/\/www.al-monitor.com\/pulse\/originals\/2013\/10\/al-qaeda-mosul-iraq-sunnis-minorities.html\">raise<\/a> an estimated $8 million a month in Mosul alone.<\/p>\n<p>By using this funding to take advantage of poorly governed territories in Raqqa, eastern Syria, and Anbar province, ISIS has carved out a safe haven from which it has the <a href=\"http:\/\/www.washingtontimes.com\/news\/2013\/oct\/22\/rep-rogers-al-qaeda-allies-fighting-syria-also-plo\/\">ability<\/a> to conduct external operations. Although ISIS may be focused on consolidating its rule locally and expanding its sway within Syria and Iraq for the time being, <a href=\"http:\/\/www.telegraph.co.uk\/news\/worldnews\/middleeast\/syria\/10495894\/Britain-holds-first-face-to-face-talks-with-Islamists-fighting-Assad.html\">attacking<\/a> the West remains a long term strategic objective.<\/p>\n<p><b>Conclusion<\/b><\/p>\n<p>Since its takeover of Raqqa in May, ISIS has employed a governance strategy that has focused on solidifying its rule through intimidation, creating an economy of dependence, and seeking to integrate eastern Syria with its strongholds in Iraq<\/p>\n<p>In this regard it has been highly successful. Yet its hostility towards minority groups, draconian legal system, and brutal repression of dissidents has generated a significant backlash, severely undermining the group\u2019s credibility and keeping it from being seen as a legitimate part of the opposition. Because of this, ISIS\u2019 current governance strategy is likely unsustainable.<\/p>\n<p>Still, ISIS thrives on instability, and as the Syrian war reaches its 1,000<sup>th<\/sup> day with no end in sight, the group is likely to be able to maintain its hold in Raqqa. Whether it can learn from its mistakes remains to be seen, but absent a dramatic shift in the trajectory of the conflict, ISIS is here to stay.<\/p>\n","protected":false},"excerpt":{"rendered":"<p>ISIS has employed a governance strategy in Raqqa that is focused on solidifying its rule through intimidation, creating an economy of dependence. 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