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Who calls the shots in Iraq — the government or the Popular Mobilization Forces (PMF)? Some observers think it is the latter, especially in light of
warontherocks.com
Warning Signs: Qassem Musleh and Iraq’s Popular Mobilization Forces
Nancy Ezzeddine and
Erwin van Veen
August 4, 2021
Commentary
Who calls the shots in Iraq — the government or the Popular Mobilization Forces (PMF)? Some observers think it is the latter, especially in light of recent events. On May 26, 2021, Iraqi police
arrested Qassem Musleh — the commander of the PMF in Anbar province — in connection with the assassination of a prominent Iraqi activist. Immediately after, PMF militias
circulated videos purportedly showing their fighters driving heavily armed trucks around Baghdad’s “Green Zone” in a show of force designed to compel Musleh’s release. When he was set free two weeks later, some analysts
interpreted it as another exhibit of state weakness vis-à-vis the PMF, an umbrella organization of
mostly Shiite, pro-Iran paramilitary groups that have fought the Islamic State.
In reality, the PMF has some pronounced weaknesses and faces growing challenges. Instead of viewing Musleh’s arrest and release as a victory for the PMF in a trial of strength against the Iraqi state, what actually occurred was a scramble by different PMF elements to maintain a united front against the prime minister when faced with the detention of one of their own. During Musleh’s two weeks in custody, it became clear that the PMF — which was incorporated into the Iraqi armed forces
in 2016 — is more divided and weaker than it used to be, even though the shared interests of its main armed factions keep it afloat.
The PMF’s major organizational challenges are competition between the various networks of forces, as they each seek to maintain their privileges and enhance their status, and limited central restraint on their actions. That reality generates the risk that further destabilization and provocation of the PMF by the Iraqi state might trigger more serious bouts of violence. The Iraqi government should, therefore, consider adopting a policy of non-confrontation toward the PMF, provided its constituent groups are willing to reciprocate.
Roots of the PMF’s Weakness: The Assassination of ‘Mr. PMF’ in 2020
Abu Mahdi al Muhandis was a
charismatic, father-like figure and as commander of the PMF he was a major source of the groups’ strength. When U.S. forces
killed him in a drone strike in January 2020 — in the same attack that killed Iranian Gen. Qassem Soleimani — it dealt a major blow to the PMF. Even though sentiments about him among the Iraqi Shiite leadership were mixed, he exercised a substantial level of control over the paramilitary groups. In part he did so through the PMF Commission — a state-sponsored umbrella organization under the office of the Iraqi prime minister — and also on the basis of his own
personal history, militant credentials, and leadership skills.
Muhandis was also a major power broker among Iraq’s political elites as well as a linchpin in Iran’s regional networks of armed groups and political parties. He was the proverbial glue that kept different PMF networks together —
Sunni, Shiite, and other ethno-sectarian factions, local and transnational PMF elements, as well as groups loyal to
Grand Ayatollah Ali al Sistani,
Muqtada al Sadr, and the supreme leader of Iran, Ali Khamenei. While the PMF has never taken the form of a single hierarchical organization, under Muhandis it comprised
an interlocking series of networks with interdependent interests and subject to a measure of central command.
The assassination of “Mr. PMF” shook those networks to their core in two ways. His removal left them relatively leaderless and weakened by a protracted struggle for control between different factions. Muhandis wielded more power than his fellow commanders — Falih al Fayyadh, Hadi al Ameri, or Qais al Khazali — and his death left the PMF leadership disputed and without a single unifying figure. Without Muhandis, individual groups also became subject to weaker constraints on their
local autonomy. Together, these developments halted a process that had been underway in which a set of fairly loose, and sometimes competing, PMF networks were moving toward becoming a more integrated organization. Admittedly this remained a work in progress under Muhandis, but the PMF has found it impossible to continue this trajectory without him.
The result has been growing fragmentation within the PMF and stresses on its collective organizational structure. Pressure from protestors, political factions not linked to the PMF, and Prime Minister Mustafa al Kadhimi have intensified these challenges. Since October 2019, protestors have condemned
Iran’s increasing intervention in Iraq’s internal affairs and some PMF groups have used violence against their critics. In response, Kadhimi set the
ambitious goal of holding the perpetrators accountable and imposing the government’s command over all armed groups.
The arrest and release of Musleh was a vivid illustration of the PMF’s fragmentation and weakening. To begin with, the seemingly integrated and much-touted PMF response of “occupying the Green Zone” on May 26 and 27 was misrepresented by the paramilitary groups. There was
no substantial incursion by PMF groups into the Green Zone beyond their usual presence. The temporary handover of a number of checkpoints by security forces to the PMF was relatively peaceful and resulted from a decision by Kadhimi to avoid direct confrontation. In addition, the media spin that PMF pressure on the Green Zone secured Musleh’s swift release turned out to be largely spurious. He was only
released about 14 days later, after the charges against him were officially dropped due to insufficient evidence. Behind the scenes, prominent Shiite leaders and commanders had rushed to negotiate the release with Kadhimi in order to avoid further escalation.
Widening Cracks in the PMF
There are several significant cracks in the PMF’s organizational structure. The most profound is the schism between the
Atabat — or shrine — groups, which are loyal to Sistani, and the rest of the PMF. The
Atabat groups
split from the PMF in April 2020 to join the Iraqi Army and Ministry of Defense structures. They were followed by several smaller groups. Their departure caused a serious loss of legitimacy for the PMF as a whole among its Shiite and non-Shiite followers because the organization and its networks are grounded in
Sistani’s fatwa of 2014 and he is the very person to whom the
Atabat groups pledge their loyalty. While the differences between the
Atabat groups and the rest of the PMF predated their actual split, it was largely the influence and control of Muhandis that had prevented it from occurring sooner. So far, leaders from the Badr and Asaib ahl al-Haq armed groups have failed to salvage the relationship between the PMF and Sistani, depriving those groups of some of their religious legitimacy. Notably, Sistani
recently condemned PMF actions in several statements.
Atabat groups also recently commemorated the fatwa’s anniversary without inviting other groups,
triggering hateful reactions from some of them toward the representative of Sistani who spoke at the event.
Another divide in the PMF has opened up between groups such as Kataib Hizballah, on the one hand, and Badr, Asaib ahl al-Haq, and Saraya al-Salam on the other, due to poor relationship management by Kataib Hizballah in the PMF Commission after Muhandis’ death. While it is unsurprising that a number of critical PMF functions — like
internal affairs and intelligence — are controlled by Kataib Hizballah given that Muhandis
founded the group before assuming the PMF’s leadership, he managed to exercise control in a manner that kept other factions onboard. But Kataib Hizballah’s imposition, in February 2020, of another one of its commanders — Abu Fadak al Mohammadawi — to succeed Muhandis on the PMF Commission alienated key groups such as Badr and Asaib.
Since then, opposing camps have formed in the commission that are in dispute about strategic matters, such as the allocation of the additional funds obtained through the 2020 state budget, but also about tactical issues, such as the framing of the response to Musleh’s arrest. In essence, this is a competition for domestic power. Khazali, the leader of Asaib ahl al-Haq, has for example made barbed comments over the past few weeks toward Badr’s leader — Ameri — and Kataib Hizballah that
express his dissatisfaction with their monopolization of power within the PMF. In response, Kataib Hizballah and Harakat al-Nujaba
excluded Asaib ahl al-Haq from the Tansiqiya, a loose confederation of resistance groups,
muqawama, that pursue the withdrawal of U.S. troops from Iraq.
Continued.....