THE JORDANIAN ARMY: BETWEEN DOMESTIC AND EXTERNAL CHALLENGES By Alexander Bligh* Jordan's armed forces have been an effective means for preserving the regime, though they have never been strong enough to spread Jordan's influence in the region, or even independently defend Jordan from external threats. This inadequacy has forced Jordan to rely on various coalitions to ensure its defense. In addition to examining the army's response to previous threats, the author examines the Jordanian regime's attempts to deal with its current and future security challenges. From the 1920s into the twenty-first continued throughout this period to serve century, the Jordanian Arab Army (JAA)-- mainly as the regime's defender and it is originally called the Arab Legion--has served mostly structured to be able to respond the Hashemite dynasty in eastern Palestine, rapidly to domestic challenges. The main Trans-Jordan, the Hashemite Kingdom and, improvement in the second third of the since 1967, in the Jordanian Hashemite twentieth century came in the context of the nation-state that emerged in the wake of the terrorist presence on Jordanian territory in the 1967 war. Yet changing political late 1960s, during which time the first circumstances contributed very little to the commando battalion was established as well nature of strategic risks, real or potential, as the first police brigade (as differentiated facing this state. from local police forces). Domestic, regional and international With a population composed of a constraints affect the definition of Jordanian majority of Palestinians, be it 51 percent or 70 national interests and consequently, the main percent of the total population, the regime has tasks of the army. While the armed forces are always been on the defense in domestic a central factor in Jordanian nationalism the terms. Palestinian participation in the only function they can fulfill on its own is Jordanian economy is significant, but their maintaining the incumbent regime against any service in the armed forces is problematic at domestic threat. The Jordanian army cannot best. They are always suspected of not being guarantee the existence of Jordan on its own fully loyal to the regime even though their and therefore the country, at times of crisis, economic involvement and their past of not always requires coalitions with other regional joining with the PLO during the 1970-71 civil forces. war speak favorably of them in Jordanian terms. Moreover, many of them do identify today as being Palestinian Jordanian, meaning THE CONSTRAINTS that their main focus of national identity and solidarity is Jordanian. Yet, traditional The JAA was first created as a police force on mistrust still dictates the policy of limiting the the East Bank in 1921.(1) Its main task at that promotion Palestinian officers in the time, as it is today, was to protect the Jordanian army: Palestinians cannot rise in Hashemite rule over that territory. In spite of combat units above the rank of major or its involvement in the 1948 and 1967 wars-- lieutenant colonel at the most whereas in obviously external threats--the army has Middle East Review of International Affairs, Vol. 5, No. 2 (Summer 2001) 13 Alexander Bligh supporting units they can reach a general On top of its claimed ideological role, rank. however, the army is first and foremost a From a political standpoint the weapon to head off domestic criticism or outlook of relations between Jordanians and challenge. For example, during the deep 1989 Palestinians seems positive. This is the result economic crisis, Hussein explained the of the fact that one of the major elements of problem as the result of military procurement King Hussein's legacy is the creation of needs.(7) This connection immediately Jordanian nationalism as a uniting force. rendered impertinent any criticism regarding That ideology analyzed by this author corruption and mismanagement since that elsewhere(2) is composed of several would seem to be an attack on the armed ingredients, one of them--attributes of forces. sovereignty--refers to the Jordanian armed While that particular economic forces as a source of solidarity for Jordanians analysis was not accurate, it is quite true that and legitimacy for the Hashemite rule. the capabilities of the Jordanian army have References to the Jordanian army been shaped by the severe financial were made very frequently in Hussein's constraints facing the country. Since the public appearances. They were not made as 1980s, Jordan has not implemented any frequently as the ones referring to Jerusalem significant military modernization program but both are used along similar lines: and has also suffered from an acute problem providing two pillars of sovereignty in the of obtaining spare parts.(8) Moreover, form of national symbols: one spiritual, one Jordan's siding with Iraq during the 1991 war materialistic. If Jerusalem is a source of caused a break in the channeling of funds inspiration and a reason for jihad(3), then the already earmarked for Jordan by the United armed forces are the Jordanian connection States and the Gulf Arab monarchies. All with the past, the carrier of jihad and the efforts since then to improve Jordanian unchanged solid foundation Jordan is built on. economy have not resulted in any significant The armed forces are in a sense Jordan itself, improvement. since the kingdom began with the Arab revolt Throughout the 1990s, Jordan had a against Ottoman rule of 1915 and so did the high rate of unemployment--about one-fifth armed forces.(4) of its work force--and the foreign debt Identifying the armed forces with reached almost $8 billion. In early 1999,(9) Jordan, Arabism and Islam were recurrent international lenders rescheduled the motifs in Hussein's speeches. On many kingdom's debt payments. Later that year, the occasions he spoke of the army being the International Monetary Fund complimented spearhead of Jordan and its defenses, Jordan for its achievements, including a rise connecting all the elements of Jordanian in foreign exchange reserves to $1.180 nationalism.(5) But the king also included in billion. Yet Jordan still faced serious external this category the claim that Jordan's armed factors. The ongoing international embargo forces also served the entire Arab nation, on Iraq, formerly Jordan's largest trading saying their prime directive is the defense of partner, hurt Jordan despite efforts to Arab sovereignty, Arab pride and Arab circumvent those sanctions. The eruption of civilization.(6) All these expressions tie in violence in the West Bank in late 2000 very clearly in the king's speeches with the reduced trade with the Palestinians, which concept of Israel as an enemy since this is the already stood at disappointing levels from a army that protects for the Arab nation the Jordanian perspective. A severe regional longest border with Israel. These references to drought damaged agriculture. Israel disappeared with the 1994 peace treaty Jordan's basic strategic problem arises but the army continues to be depicted by the from its geopolitical situation. It is incumbent king as a symbol of nationalism surrounded by countries that are all militarily and sovereignty. stronger or richer than Jordan. Each of these 14 Middle East Review of International Affairs, Vol. 5, No. 2 (Summer 2001) The Jordanian Army: Between Domestic and External Challenges states has some friction or problem with the confrontation with Iraq. The United States kingdom. Syria and Iraq have ambitions to provided Jordan with an important ally that dominate Jordan. Saudi Arabia has a could defend it against both Iraq and Syria. historical grudge over the past Hashemite Still, in case of war between Iraq and domination over the western part of that Israel, Jordan might be caught in the middle country and a more recent conflict arising and face a serious strategic challenge that from Jordan's 1991 support for Iraq. Israel is would not be easy to solve. Thus, the Iraqi a historic enemy whose dispute with the massing of forces on its western borders Palestinians threatens Jordan in different during the October 2000 Palestinian intifada ways whether it flares into violence or is posed as much of a threat to Jordan as to resolved with an agreement. The Palestinians Israel. Even after a decade of international are led by the same people who tried to sanctions, Iraq's army remained far more overthrow King Hussein in 1970. As one powerful than its Jordanian counterpart. observer wrote in 1989, "Jordan will never If Iraq is currently only a potential again rule the West Bank, but the Palestinians enemy, Syria already has a proven track may eventually rule Jordan."(10) This record of open confrontation with Jordan. concern is perhaps the main interest guiding Syria's planned 1970 invasion of Jordan was Jordanian strategists even to this day. stopped due to an Israeli warning that it Iraq and Syria are perhaps Jordan's would intervene militarily.(12) In 1980, two most frightening neighbors. Since the Syria, then the USSR's closest Middle East Iraqi republican revolution in 1958, which ally, massed troops and threatened Jordan deposed the Hashemite Iraqi dynasty, Jordan- with a new invasion. Again, a parallel Israeli Iraq relations have varied periodically from concentration of troops along the Syrian- open hostility to virtual alliance. Periodically, Jordanian-Israeli border removed the danger. Jordan preferred cooperation with Iraq as a Tensions have recurred sporadically. As with better alternative to dependence on Syria. Iraq, Jordan has periodically sought good This Iraqi orientation for Jordan was relations with Syria in order to reduce especially visible during the 1980-1988 Iran- frictions. Iraq war and the 1990-1991 Kuwait crisis. On Similar shifts over time have marked both occasions, Jordan and Syria backed Jordan's posture toward Israel.