Democratic Republic of Afghanistan

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This article is about Communist rule in Afghanistan (1978-1992).

The Communists take power, 1978

On April 27, 1978 a coup was initiated, reportedly by Hafizullah Amin while he was under house arrest. Mohammed Daoud Khan was killed the next day. The communist People's Democratic Party of Afghanistan (PDPA) gained control and on May 1 Nur Mohammed Taraki became President. The country was then renamed the Democratic Republic of Afghanistan (DRA), which lasted until 1992.

The PDPA had split into several factions in 1967, soon after its founding. Ten years later the efforts of the Soviet Union had brought back together the Khalq faction of Taraki and the Parcham faction of Babrak Karmal. The "Saur Revolution," as the new government labeled its coup d'etat, after the month in the Islamic calendar in which it occurred, was almost entirely the achievement of the Khalq faction of the PDPA. This success gave it effective control over the armed forces, a great advantage over its Parchami rival. Khalq's victory was partially due to Daoud's miscalculation that Parcham was the more serious threat. Parcham's leaders had enjoyed widespread connections within the senior bureaucracy and even the royal family and the most privileged elite. These linkages also tended to make their movements easy to trace.

Khalq, on the other hand, had not been involved in Daoud's government, had little connection with Kabul's Persian speaking elite, and a rustic reputation based on recruitment of students from the provinces. Most of them were Pashtuns, especially the Ghilzais. They had few apparent connections in the senior bureaucracy, many had taken jobs as school teachers. Khalq's influence at Kabul University was also limited.

These newcomers to Kabul had seemed poorly positioned to penetrate the government. Moreover, they were led by the erratic Mohammed Taraki, a poet, sometime minor official, and a publicly notorious radical. Confident that his military officers were reliable, Daoud must have discounted the diligence of Taraki's lieutenant, Hafizullah Amin, who had sought out dissident Pashtun officers. The bungling of Amin's arrest, which enabled him to trigger the coup ahead of its planned date, also suggests Khalq's penetration of Daoud's security police.

The organisers of the coup had carried out a bold and sophisticated plan. It employed the shock effect of a combined armored and air assault on the Arg or palace, the seat of Daoud's highly centralized government. Seizure of the initiative demoralized the larger loyal or uncommitted forces nearby. Quick capture of telecommunications, the defense ministry and other strategic centers of authority isolated Daoud's stubbornly resisting palace guard.

The coup was by far Khalq's most successful achievement. So much so, that a considerable literature has accumulated arguing that it must have been planned and executed by the KGB, or some special branch of the Soviet military. Given the friction that soon developed between Khalq and Soviet officials, especially over the purging of Parcham, Soviet control of the coup seems unlikely. Prior knowledge of it does appear to have been highly likely. Claims that Soviet pilots bombed the palace overlook the availability of seasoned Afghan pilots.

Political leadership of the Democratic Republic of Afghanistan was asserted within three days of the military takeover. After thirteen years of conspiratorial activity, the two factions of the PDPA emerged in public, refusing at first, to admit their Marxist credentials. Khalq's dominance was quickly apparent. Taraki became president, prime minister and General Secretary of the PDPA. Parcham's leader, Babrak Karmal, and Amin were named deputy prime ministers. Cabinet membership was split eleven to ten , with Khalq in the majority. Khalq dominated the Revolutionary Council, which was to serve as the ruling body of the government. Within weeks purges of Parcham began and by summer Khalq's somewhat bewildered Soviet patrons became aware of how difficult it would be temper its radicalism. The destruction of Afghanistan's former ruling elite had begun immediately after the seizure of power. Execution (Parcham leaders later claimed at least 11,000 during the Taraki/Amin period), flight into exile, and later the devastation of Kabul itself would literally remove the great majority of the some 100,000 who had come to form Afghanistan's elite and middle class. Their loss almost completely broke the continuity of Afghanistan's leadership, political institutions and their social foundation. Karmal was dispatched to Czechoslovakia as ambassador, along with others shipped out of the country. Amin appeared to be the principal beneficiary of this strategy.

The Khalq leadership proved incapable of filling this vacuum. Its brutal and clumsy attempts to introduce radical changes in control over agricultural land holding and credit, rural social relations, marriage and family arrangements, and education led to scattered protests and uprisings among all major communities in the Afghan countryside. Taraki and Amin left a legacy of turmoil and resentment which gravely compromised later Marxist attempts to win popular acceptance.

Government was reconstructed in classical Leninist fashion. Until 1985 it was governed by a provisional constitution, "The Fundamental Principles of the Democratic Republic of Afghanistan." Supreme sovereignty was vested in a Revolutionary Council, originally a body of fifty-eight members whose number later varied. Its executive committee, the Presidium, exercised power when the council was not in formal session. The Revolutionary Council was presided over by the president of the Democratic Republic.

Beneath the council the cabinet functioned under a Prime Minister, essentially in a format inherited from the pre-Marxist era. Two new ministries were added: Islamic Affairs and Tribes and Nationalities. Administrative arrangements for provincial and sub-provincial government were also retained.

In Leninist style, the PDPA was closely juxtaposed with the formal instruments of government. Its authority was generated by its Central Committee, whose executive stand-in was its Politburo. Presiding over both was the party's secretary general. Policy generation was the primary function of the executive level of the party, which was to be carried out by its members serving throughout the government.

On 5 December 1978 a friendship treaty was signed with the Soviet Union and was later used as a pretext for the Soviet invasion. Major uprisings occurred regularly against the government. On 15 February 1979, the United States ambassador in Kabul, Adolph Dubs, was taken hostage and later killed when Amin ordered the police to attack. The US did not appoint a new ambassador.

In mid-March the 17th infantry division in Herat under the control of Ismail Khan mutinied in support of Shi'ite Muslims. A hundred Soviet advisors in the city, and their families, were killed. The city was bombed, causing massive destruction and thousands of deaths and later it was recaptured with Afghan army tanks and paratroopers.

Taraki visited Moscow on March 20, 1979 with a formal request for Soviet ground troops. Alexei Kosygin told him "we believe it would be a fatal mistake to commit ground troops... if our troops went in, the situation in your country... would get worse." Despite this statement Taraki negotiated some armed support - helicopter gunships with Russian pilots and maintenance crews, 500 military advisors, 700 paratroopers disguised as technicians to defend Kabul airport, also significant food aid (300,000 tons of wheat). Brezhnev still warned Taraki that full Soviet intervention "would only play into the hands of our enemies - both yours and ours."

During this period, many Afghans fled to Pakistan and Iran and began organizing a resistance movement. Although the groups organizing in the city of Peshawar, Pakistan would later, after the Soviet invasion, be described by the western press as "freedom fighters"--as if their goal were to establish a representative democracy in Afghanistan--in reality these groups each had agendas of their own that were often far from democratic.

The intense rivalry between Taraki and Amin within the Khalq faction heated up. Amin became prime minister on 28 March 1979 with Taraki remaining President. In September 1979, Taraki's followers had made several attempts on Amin's life. However, it was Taraki who was overthrown and killed, with Amin assuming power in Afghanistan. The Soviets had at first backed Amin, but they realized that he was too rigidly Marxist-Leninist to survive politically in a country as conservative and religious as Afghanistan. The KGB in Kabul speculated that Amin's rule would be marked by "harsh repression and... [result in] the activation and strenghtening of the opposition... The situation can only be saved by the removal of Amin from power."

Taraki's death was first noted in the Kabul Times on 10 October, which reported that the former leader only recently hailed as the "great teacher... great genius... great leader" had died quietly "of serious illness, which he had been suffering for some time." Less than three months later, after the Amin government had been overthrown, the newly installed followers of Babrak Karmal gave another account of Taraki's death. According to this account, Amin ordered the commander of the palace guard to have Taraki executed. Taraki reportedly was suffocated with a pillow over his head. Amin's emergence from the power struggle within the small divided communist party in Afghanistan alarmed the Soviets and would usher in the series of events which lead to the Soviet invasion.

In Kabul, the ascension of Amin to the top position was quick. Amin began unfinished attempts to moderate what many Afghans viewed as an anti-Islam regime. Promising more religious freedom, repairing mosques, presenting copies of the Qur'an to religious groups, invoking the name of Allah in his speeches, and declaring that the Saur Revolution was "totally based on the principles of Islam." Yet many Afghans held Amin responsible for the regime's harshest measures.

The Soviets established a special commission on Afghanistan, of KGB chairman Andropov, Ponomaryev from the Central Committee and Ustinov, the defence minister. In late October they reported that Amin was purging his opponents, including Soviet sympathisers; his loyalty to Moscow was false; and that he was seeking diplomatic links with Pakistan and possibly China.

Opposition forces

Outside observers usually identify the two warring groups as "fundamentalists" and "traditionalists." Rivalries between these groups continued during the Afghan civil war that followed the Soviet withdrawal. The rivalries of these groups brought the plight of the Afghans to the attention of the West, and it was they who received military assistance from the United States and a number of other nations.

The fundamentalists based their organizing principle around mass politics and included several divisions of the Jamiat-i-Islami. The leader of the parent branch, Burhanuddin Rabbani, began organizing in Kabul before repression of religious conservatives, which began in 1974, forced him to flee to Pakistan during Daoud's regime. Perhaps best known among the leaders was Gulbuddin Hekmatyar, who broke with Rabbani to form another resistance group, the Hizb-e-Islami, which became Pakistan's favored arms recipient. Another split, engineered by Yunus Khales, resulted in a second group using the name Hizb-e-Islami--a group that was somewhat more moderate than Hikmatyar's. A fourth fundamentalist group was the Ittehad-i-Islami led by Rasool Sayyaf. Rabbani's group received its greatest support from northern Afghanistan where the best known resistance commander in Afghanistan--Ahmad Shah Massoud--a Tajik, like Rabbani, operated against the Soviets with considerable success.

The organizing principles of traditionalist groups differed from those of the fundamentalists. Formed from loose ties among ulama in Afghanistan, the traditionalist leaders were not concerned, unlike fundamentalists, with redefining Islam in Afghan society but instead focused on the use of the sharia as the source of law (interpreting the sharia is a principal role of the ulama). Among the three groups in Peshawar, the most important was the Jebh-e-Nejat-e-Milli led by Sibghatullah Mojadeddi. Some of the traditionalists were willing to accept restoration of the monarchy and looked to former King Mohammed Zahir Shah, exiled in Italy, as the ruler.

Other ties also were important in holding together some resistance groups. Among these were links within sufi orders, such as the Mahaz-e-Milli Islami, one of the traditionalist groups associated with the Gilani sufi order led by Pir Sayyid Gilani. Another group, the Shia Muslims of Hazarajat, organized the refugees in Iran.

The Soviet invasion, December 1979

The Soviet Invasion of Afghanistan began as midnight approached on December 24, 1979. They organised a massive military airlift into Kabul, involving an estimated 280 transport aircraft and 3 divisions of almost 8,500 men each. Within two days, they had secured Kabul, deploying a special Soviet assault unit against Darulaman Palace, where elements of the Afghan army loyal to Hafizullah Amin put up a fierce, but brief resistance. With Amin's death at the palace, Babrak Karmal, exiled leader of the Parcham faction of the PDPA was installed by the Soviets as Afghanistan's new head of government.

A number of theories have been advanced for the Soviet action. These interpretations of Soviet motives do not always agree -- what is known for certain is that the decision was influenced by many factors -- that in Leonid Brezhnev's words the decision to invade Afghanistan was truly "no simple decision." Two factors were certain to have figured heavily in Soviet calculations. The Soviet Union, always interested in establishing a "cordon sanitaire" of subservient or neutral states on its frontiers, was increasingly alarmed at the unstable, unpredictable situation on its southern border. Perhaps as important, the Brezhnev doctrine declared that the Soviet Union had a "right" to come to the assistance of an endangered fellow socialist country. Presumably Afghanistan was a friendly regime that could not survive against growing pressure from the resistance without direct assistance from the Soviet Union.

The government of Babrak Karmal faced crippling disabilities. Installation by a foreign power prevented popular acceptance of the legitimacy of his government. Even though the Parchamis, themselves, had been among the groups most viciously persecuted by the Khalqis, their identification with Marxism and Soviet repression was not forgiven. Indeed, the decimation of their members forced the Soviets to insist on reconciliation between the two factions. The purging of Parchamis had left the military forces so dominated by Khalqis that the Soviets had no choice but to rely upon Khalqi officers to rebuild the army.

Soviet miscalculation of what was required to crush Afghan resistance further aggravated the government's situation. The Afghan army was expected to carry the burden of suppressing opposition, which was to be done quickly with Soviet support. As the war of pacification dragged on for years, the Babrak Karmal government was further weakened by the poor performance of its army.

Whatever the Soviet goals may have been, the international response was sharp and swift. United States President Jimmy Carter, reassessing the strategic situation in his State of the Union address in January, 1980, identified Pakistan as a "front-line state" in the global struggle against communism. He reversed his stand of a year earlier that aid to Pakistan be terminated as a result of its nuclear program and offered Pakistan a military and economic assistance package if it would act as a conduit for United States and other assistance to the mujahedin. Pakistani president Zia ul-Haq refused Carter's package but later a larger aid offer from the Reagan administration was accepted. Questions about Pakistan's nuclear program were, for the time being, set aside. Assistance also came from the People's Republic of China, Egypt, and Saudi Arabia. Also forth coming was international aid to help Pakistan deal with more than 3 million fleeing Afghan refugees.

The foreign ministers of the Organization of the Islamic Conference deplored the invasion and demanded Soviet withdrawal at a meeting in Islamabad in January 1980. Action by the United Nations Security Council was impossible because the Soviets had veto power, but the United Nations General Assembly regularly passed resolutions opposing the Soviet occupation.

In mid-January 1980 the Soviets relocated their command post from Termez, on Soviet territory to the north of Afghanistan, to Kabul. For ten years the Soviets and their Afghan allies battled the mujahedin for control of the country. The Soviets used helicopters (including Mil Mi-24 Hind gunships) as their primary air attack force, supported with fighter-bombers and bombers, ground troops and special forces. In some areas they conducted a scorched-earth campaign destroying villages, houses, crops, livestock etc.

The search for popular support

In attempts to broaden support, the PDPA created organizations and launched political initiatives intended to induce popular participation. The most ambitious was the National Fatherland Front (NFF), founded in June 1981. This umbrella organization created local units in cities, towns and tribal areas which were to recruit supporters of the regime. Village and tribal notables were offered inducements to participate in well publicized rallies and programs. The party also gave affiliated organizations that enrolled women, youth and city workers high profile exposure in national radio, television, and government publications.

From its beginnings in the mid-1960s, the membership of the PDPA had taken keen interest in the impact of information and propaganda. Some years after their own publications had been terminated by government, they gained control of all official media. These were energetically harnessed to their propaganda goals. Anis, the mainline government newspaper (published in Pashto and Dari), the Kabul New Times (previously the Kabul Times), published in English, and such new publications as Haqiqat-i-Inqelab-i-Saur exhibited the regime's flair for propaganda. With Kabul as its primary constituency, it also made innovative use of television.

The early efforts at mobilizing popular support were later followed up by national meetings and assemblies, eventually using a variation of the model of the traditional loya jirga to entice the cooperation of rural secular leaders and religious authorities. A large scale loya jirga was held in 1985 to ratify the DRA's new constitution.

These attempts to win collaboration were closely coordinated with efforts to manipulate Pashtun tribal politics. Such efforts included trying to split or disrupt tribes who affiliated with the resistance, or by compromising notables into commitments to raise militia forces in service to the government.

A concerted effort was made to win over the principal minorities: Uzbeq, Turkoman, and Tajik, in northern Afghanistan. For the first time their languages and literatures were prominently broadcast and published by government media. Minority writers and poets were championed, and attention was given to their folk art, music, dance and lore.

Internal refugees: flight to the cities

As the Afghan-Soviet war became more destructive, internal refugees flocked to Kabul and the largest of the provincial cities. Varying estimates (no authentic census was taken) put Kabul's population at more than 2 million by the late 1980s. In many instances villagers fled to Kabul and other towns to join family or lineage groups already established there.

At least 3, perhaps 4, million Afghans were thus subject to government authority and hence exposed to PDPA recruitment or affiliation. Its largest membership claim was 160,000, starting from a base of between 5,000 and 10,000 immediately after the Soviet invasion. How many members were active and committed was unclear, but the lure of perquisites, for example, food and fuel at protected prices, compromised the meaning of membership. Claims of membership in the NFF ran into the millions, but its core activists were mostly party members. When it was terminated in 1987, the NFF disappeared without impact.

Factionalism

The PDPA was also never able to rid itself of internal rivalries. Burdened by obvious evidence that the Soviets oversaw its policies, actively dominated the crucial sectors of its government, and literally ran the war, the PDPA could not assert itself as a political force until after the Soviets left. In the civil war period that followed, it gained significant respect, but its internal disputes worsened.

Born divided, the PDPA suffered virtually continuous conflict between its two major factions. The Soviets imposed a public truce upon Parcham and Khalq, but the rivalry continued with hostility and disagreement frequently rising to the surface. Generally, Parcham enjoyed political dominance, while Khalq could not be denied the leverage over the army held by its senior officers. It was a marriage necessary for survival.

Social, linguistic, and regional origins and differing degrees of Marxist radicalism had spurred factionalism from the beginning. When Soviet forces invaded, there was a fifteen-year history of disagreement, dislike, rivalry, violence and murder. Each new episode added further alienation. Events also tended to sub-divide the protagonists. Hafizullah Amin murder of Taraki divided the Khalqis. Rival military cliques divided the Khalqis further.

Mohammad Najibullah, 1986-1992

Parchami suffered a series of splits when the Soviets insisted on replacing Babrak Karmal with Mohammad Najibullah as head of the PDPA on May 4, 1986. The PDPA was riven by divisions which prevented implementation of policies and compromised its internal security. These fundamental weaknesses were later partially masked by the urgency of rallying for common survival in the immediate aftermath of the Soviet withdrawal. Yet, after military successes rifts again began to surface.

Karmal retained the presidency for a while, but power had shifted to Najibullah, who had previously headed the State Information Service (Khadamate Ettelaate Dowlati--KHAD), the Afghan secret service agency. Najibullah tried to diminish differences with the resistance and appeared prepared to allow Islam a greater role as well as legalize opposition groups, but any moves he made toward concessions were rejected out of hand by the mujahedin.

Factionalism had a critical impact on the leadership of the PDPA. Najibullah's achievements as a mediator between factions, an effective diplomat, a clever foe, a resourceful administrator and a brilliant spokesman who coped with constant and changing turmoil throughout his six years as head of government, qualified him as a leader among Afghans. His leadership qualities might be summarized as conciliatory authoritarianism: a sure sense of power, how to get it, how to use it, but mediated by willingness to give options to rivals. This combination was glaringly lacking in most of his colleagues and rivals.

Najibullah suffered, to a lesser degree, the same disadvantage that Karmal had when he was installed as General Secretary of the PDPA by the Soviets. Despite Soviet interference and his own frustration and discouragement over the failure to generate substantial popular support, Karmal still had retained enough loyalty within the party to remain in office. This fact was shown by the fierceness of the resistance to Najibullah's appointment within the Parcham faction. This split persisted, forcing Najibullah to straddle his politics between whatever Parchami support he could maintain and alliances he could win from the Khalqis.

Najibullah's reputation was that of a secret police apparatchik with especially effective skills in disengaging Ghilzai and eastern Pashtuns from the resistance. Najibullah was himself a Ghilzai from the large Ahmedzai tribe. His selection by the Soviets was clearly related to his success in running KHAD, the secret police, more effectively than the rest of the DRA had been governed. His appointment thus, was not principally the result of intra-party politics. It was related to crucial changes in the Soviet-Afghan war that would lead to the Soviet military withdrawal.

The Soviet decision to withdraw, 1986-1988

The Soviets grossly underestimated the huge cost of the Afghan venture--described, in time, as the Soviet Union's Vietnam--to their state.

The peak of the fighting came in 1985-86. The Soviet forces launched their largest and most effective assaults on the mujahedin supply lines adjacent to Pakistan. Major campaigns had also forced the mujahedin into the defensive near Herat and Kandahar.

At the same time a sharp increase in military support for the mujahedin from the United States and Saudi Arabia allowed it to regain the guerilla war initiative. By late August 1986, the first FIM-92 Stinger ground-to-air missiles were used successfully. For nearly a year they would deny the Soviets and the Kabul government effective use of air power.

These shifts in momentum reinforced the inclination of the new Mikhail Gorbachev government to view further escalation of the war as a misuse of Soviet political and military capital. Such doubts had developed prior to the decision to install Mohammad Najibullah. In April 1985, one month after Gorbachev assumed the Soviet leadership, its May Day greeting to the Kabul government failed to refer to its "revolutionary solidarity" with the PDPA, a signal in Marxist-Leninist rhetoric that their relationship had been downgraded. Several months later, Babrak Karmal suggested the inclusion of non-party members in the Revolutionary Council and the promotion of a "mixed economy." These tentative concessions toward non-Marxists won Soviet praise, but divergence in policy became obvious at the Twenty-Seventh Congress of the Communist Party of the Soviet Union in February 1986. Gorbachev's "bleeding wound" speech hinted at a decision to withdraw "in the nearest future." In his own speech Karmal made no reference to withdrawal. In early May he was replaced by Najibullah.

Najibullah was obliged to move toward the evolving Soviet position with great caution. Karmal's followers could use any concessions to non-Marxists or acceptance of a Soviet withdrawal against him. Accordingly, he moved in conflicting directions, insisting there was no room for non-Marxists in government, only offering the possibility of clemency to "bandits" who had been duped by mujahedin leaders into resisting the government. In addition to air strikes and shelling across the border, KHAD terrorist activity in Pakistan reached its peak under Najibullah.

Late in 1986 Najibullah had stabilized his political position enough to begin matching Moscow's moves toward withdrawal. In September he set up the National Compromise Commission to contact counterrevolutionaries "in order to complete the Saur Revolution in its new phase." Allegedly some 40,000 rebels were contacted. In November Karmal was replaced as now-ceremonial president by a non-party member, Haji Muhammad Samkanai, signaling the PDPA's willingness to open government to non-Marxists.

At the end of 1986 Najibullah unveiled a program of "National Reconciliation." It offered a six-month cease-fire and discussions leading to a possible coalition government in which the PDPA would give up its government monopoly. Contact was to be made with "anti-state armed groups." Affiliation was suggested, allowing resistance forces to retain areas under their control.

In fact much of the substance of the program was happening on the ground in the form of negotiations with disillusioned mujahedin commanders who agreed to cooperate as government militia. The mujahedin leadership rhetorically claimed that the program had no chance for success. For his part Najibullah assured his followers that there would be no compromise over "the accomplishments" of the Saur Revolution. It remained a standoff. While a strenuous propaganda effort was directed at the both the Afghan refugees and Pakistanis in North-West Frontier, the program was essentially a sop to Moscow's hope to tie a favorable political settlement to its desire to pull its forces out.

Najibullah's concrete achievements were the consolidation of his armed forces, the expansion of co-opted militia forces and the acceptance of his government by an increasing proportion of urban population under his control. As a propaganda ploy "National Reconciliation" was a means of gaining time to prepare for civil war after the Soviet departure.

The Geneva accords, 1987-1989

By the beginning of 1987, the controlling fact in the Afghan war was the Soviet Union's determination to withdraw. It would not renege on its commitment to the Kabul government's survival--Mikhail Gorbachev's options were restricted by Soviet military

insistence that Kabul not be abandoned. Nevertheless, the Soviet leadership was convinced that resolution of Cold War issues with the West and internal reform were far more urgent than the fate of the Kabul government.

Other events outside Afghanistan, especially in the Soviet Union, contributed to the eventual agreement. The toll in casualties, economic resources, and loss of support at home increasingly felt in the Soviet Union was causing criticism of the occupation policy. Leonid Brezhnev died in 1982, and after two short-lived successors, Mikhail Gorbachev assumed leadership in March 1985. As Gorbachev opened up the country's system, it became more clear that the Soviet Union wished to find a face-saving way to withdraw from Afghanistan.

The civil war in Afghanistan was guerrilla warfare and a war of attrition between gover