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Bombs and Ballots: Terrorism, Political Violence, and Governance in Bangladesh

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Bombs and Ballots: Terrorism, Political Violence, and Governance in Bangladesh Bombs and Ballots: Terrorism, Political Violence, and Governance in Bangladesh Naureen Chowdhury Fink FEBRUARY 2010 INTERNATIONAL PEACE INSTITUTE Cover Photo: Bangladeshi political ABOUT THE AUTHOR activists throw stones at policemen during a blockade of the country’s NAUREEN CHOWDHURY FINK is Senior Program Officer at highways, railways, and waterways, the International Peace Institute. Her research interests demanding electoral reforms and the resignation of the chief election include politically and religiously motivated violence and commissioner, July 2, 2006. © Abir terrorism, with a particular focus on the Middle East and Abdullah/epa/Corbis. South Asia. The views expressed in this paper represent those of the author and ACKNOWLEDGEMENTS not necessarily those of IPI. IPI welcomes consideration of a wide The author is grateful to Professor Edward C. Luck and range of perspectives in the pursuit of a well-informed debate on critical Francesco Mancini for their continuing support and policies and issues in international guidance throughout this project; to Jenna Slotin for her affairs. invaluable insights on the challenges relating to IPI Publications governance and development; to Eric Rosand, Laila Adam Lupel, Editor Bokhari, Rounaq Jahan, and many others for their valuable Ellie B. Hearne, Publications Officer feedback and comments on earlier drafts of the paper; and © by International Peace Institute, to those interviewed for sharing their knowledge and 2010 insights. To preserve the confidentiality of the discussions, All Rights Reserved the identities of those interviewed remain anonymous, www.ipinst.org although a brief description of their role and function and the date and place of the interview are provided. CONTENTS Acronyms . iii Executive Summary . 1 Introduction. 1 The Threat: Terrorism, Political Violence, and Religious Militancy in Bangladesh . 2 KEY ACTORS ELEMENTS OF A TRANSNATIONAL THREAT The Context: Social and Political Facets of the Challenge . 7 SOCIAL CHALLENGES POLITICAL CHALLENGES Positive Trends in Bangladesh . 11 HUMAN DEVELOPMENT THE ROLE OF WOMEN POSITIVE POLITICS? Responding to the Challenge: What Role for National and International Actors? . 15 THE GOVERNMENT OF BANGLADESH’S RESPONSE THE ROLE OF INTERNATIONAL ACTORS: SIX RECOMMENDATIONS Conclusion . 19 Naureen Chowdhury Fink iii Acronyms AHAB Ahle Hadith Andolon Bangladesh AL Awami League BEI Bangladesh Enterprise Institute BNP Bangladesh Nationalist Party BRAC Bangladesh Rural Advancement Committee CHT Chittagong Hill Tracts CTED Counter-Terrorism Executive Directorate CTG caretaker government CTITF Counter-Terrorism Implementation Task Force DFID Department for International Development HuJI-B Harakatul Jihad-i-Islami–Bangladesh HuT Hizbut-Tahrir IOM Islam-o-Muslim ISI Inter-Services Intelligence JMB Jamatul Mujahedeen Bangladesh JMJB Jagrata Muslim Janata Bangladesh NGO nongovernmental organization RAB Rapid Action Battalion RAW Research and Analysis Wing SAARC South Asian Association for Regional Cooperation SALW small arms and light weapons ULFA United Liberation Front of Asom UNSCR United Nations Security Council Resolution iv Naureen Chowdhury Fink 1 Executive Summary promoting confrontational means of resolving political differences, and creating heavily personal- International initiatives to counter terrorism and ized patronage networks in place of strong civic militancy have more often than not been directed at bureaucracies and institutions. A broad-brush the military aspects of such threats, with insuffi- counterterrorism policy that fails to take into cient attention paid to the specific context—the account these context-specific dynamics will not be social, political, and regional dynamics—in which effective in addressing the factors that create a they evolve. In Bangladesh, for example, the permissive environment for terrorism and religious combination of development challenges, weak militancy. governance, violent politics, and regional tensions The government of Bangladesh’s response has has proved a combustible mix. These have been largely reactive, rather than preventive, and it prompted fears that the state is growing increas- is constrained by resource and capacity limitations. ingly fragile and that it may be unable to withstand However, the interrelated nature of governance and the threats posed by terrorism and violent religious violence in Bangladesh presents multiple entry radicalization over the long term. points for engagement by Bangladesh’s interna- The terrorist threat in Bangladesh is derived both tional partners. This paper explores national from groups with strong emphases on jihad, as well responses and the gaps therein which provide as those whose primary focus is on proselytizing opportunities for engagement by international (dawa), though these may overlap for some groups. actors, and it offers a series of guidelines and Exemplifying the former, groups like the Jamatul recommendations aimed at maximizing resources Mujahedeen Bangladesh (JMB) and Harakatul for effective assistance to counter terrorism and Jihad-i-Islami–Bangladesh (HuJI-B) challenge the violent religious radicalization. legitimacy of the secular government, declare their opposition to democratic political processes, and Introduction propose a violent transformation of Bangladesh into an Islamic state. A concurrent surge of International initiatives to counter terrorism and religious rhetoric in public and political life in militancy have more often than not been directed at Bangladesh has raised concerns about displacing the military aspects of such threats, with insuffi- the traditional practice of Islam in Bangladesh with cient attention paid to the specific context—the more rigid and intolerant practices imported from social, political, and regional dynamics—in which abroad. However, there are also a number of they evolve. In Bangladesh, for example, the important countervailing trends within Bangladesh combination of development challenges, weak that offer a means of combating these threats. governance, violent politics, and regional tensions has proved a combustible mix. Though the threat of In order to effectively counter the threat of terrorism and violent religious radicalization has terrorism and its causes, it is vital that key evolved gradually over the past decade and a half, it stakeholders better understand the domestic took a series of serious attacks across the country in context and operate within the opportunities and 2005 before Bangladesh appeared on international limitations it presents. Militancy in Bangladesh radar screens. Despite some early successes against feeds off national challenges such as divisive and militant groups, more recent discoveries of arms violent politics, weak governance, and the social caches, and the capture and detention of suspected impacts of underdevelopment. Moreover, acts of militant activists suggest that the threat is clear and terrorism in Bangladesh are perceived, in part, as present, and that it cannot be ignored.1 an extension of the violent means used by political actors to secure electoral victory and intimidate, if This case study reflects the international not eliminate, opponents and their supporters. community’s anxiety, prompted by the events of September 11, 2001, regarding fragile and failing These challenges combine to create an enabling states and their potential as incubators or safe environment for the emergence of political violence havens for criminals and terrorists. Highlighting and terrorism by promoting a culture of impunity, 1 See, for example, Animesh Roul, “Islam-o-Muslim and the Resilience of Terrorism in Bangladesh,” Terrorism Monitor 2, no. 22 (July 27, 2009). 2 BOMBS AND BALLOTS these concerns, the 2002 US National Security Bangladesh are best understood in relation to the Strategy declared, “America is now threatened less political and socioeconomic challenges confronting by conquering states than we are by failing ones,”2 the country. Moreover, the multifaceted nature of and state fragility was later described by World the challenge presents the international community Bank President Robert Zoellick as the “toughest with a number of possible intervention points but development challenge of our era.”3 also a series of limitations within which key In line with this trend, the numerous social and stakeholders need to frame their engagement in political challenges confronting Bangladesh have Bangladesh. Although this paper presents a specific prompted fears that the state is growing increas- case study and does not purport to put forward any ingly fragile and that it may be unable to withstand universally applicable theories, it presents some the threats posed by terrorism and violent religious important lessons which may be useful to other radicalization over the long term. Among these countries confronting similar challenges. challenges are political polarization, weak The first section will present an overview of key governance, and the influence of money and events and actors that shape the terrorist threat in violence on politics. In addition, many fear that an Bangladesh. The second section will introduce the ongoing process of “cultural radicalization”4 could political and social challenges which contribute to undermine the rights and values enshrined in an enabling environment for this threat. The third Bangladesh’s constitution and make the country section will highlight some of the countervailing less hospitable to minorities. However, there
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