In Hungary, the military has traditionally not played a significant political role since the country became independent following World War I. Though various changes of regime and political transitions have taken place, these did not involve the military in any notable role. Even when the historical context offered an opportunity for the military to gain a determining political role (i.e., during the 1956 revolution or possibly the 1989 regime change), apolitical traditions, institutional checks, and civilian control, as well as a lack of will from the armed forces, prevented such outcomes.
The main reason why Hungarian armed forces have never interfered in politics is not the historical traditions of civilian control over the armed forces, but actually the lack of them. Before 1989, the armed forces have always been directly subordinated to the actual highest political leadership, which was above everyday party politics. Consequently, the armed forces too have historically stayed out of everyday politics, with the partial exception of the Communist era, when the army was heavily politicized according to the Soviet model.
Nevertheless, the periods when the armed forces became politicized or played an active political role have later always been considered as anomalies by the subsequent political systems.
After 1989, along with the democratic transition a full-fledged, functional system of civilian control over the armed forces was established. Early-21st-century norms and practices of civilian control over the Hungarian Defense Forces (HDF) are institutionally fully aligned with the practices of any democratic North Atlantic Treaty Organization (NATO) or European Union (EU) member state in this regard, prohibiting the possibility of any political participation of the HDF or even its members. Legal and institutional checks, as well as the apolitical socialization of service members support this tradition.
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Hungary: A Historically Apolitical Military
Tamás Csiki Varga and András Rácz
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Turkey: The Rise and Fall of the Influence of the Military in Politics
Acar Kutay
The continued influence of the Turkish Armed Forces (TAF) on politics characterized the political history of the Turkish Republic, until such influence was first bridled and then ultimately broken by the Justice and Development Party governments during the 2000s. When the new regime was established in 1923, the military identified itself with its founding ideology, namely Kemalism, which was built on the ideas of modernism, secularism, and nationalism. Because the TAF assumed the roles of guardian of the regime and vanguard of modernization, any threat to the foundational values and norms of the republican regime was considered by the military as a threat to the constitutional order and national security. As a self-authorized guardian of the regime and its values, the TAF characterized itself as a non-partisan institution. The military appealed to such identity to justify the superiority of the moral and epistemological foundations of their understanding of politics compared with that of the elected politicians. The military invoked such superiority not only to intervene in politics and take power (1960, 1971, 1980, 1997, and 2007). They also used such identity to monitor and control political processes by means of the National Security Council (established after the 1960 military intervention) and by more informal means such as mobilizing the public against the elected government’s policy choices. In the context of the Cold War, domestic turmoil and lasting political polarization helped legitimate the military’s control over security issues until the 1980s. After the end of the Cold War, two threats to national security drew the TAF into politics: the rising power of Islamic movements and the separatist terrorism of the Kurdistan Workers’ Party (PKK), which posed threats to the constitutional order.
Turkey’s EU membership bid is one of the most important aspects that bridled the influence of the TAF on politics. Whereas the democratic oversight of the military and security sector constituted a significant dimension of the EU reforms, events that took place around the nomination of the Justice and Development Party’s candidate, Abdullah Gül, for the presidency created a rupture in the role and influence of the military on politics. Two juristic cases against members of the TAF in 2008 and 2010 made a massive impact on the power of the military, before the ultimate supremacy of the political sphere was established after the coup attempt organized by the Gülenist officers who infiltrated the TAF during the 2000s.
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Ukraine: Democratizing Civil–Military Relations in the Midst of Conflict
Marybeth P. Ulrich
Ukraine’s civil–military relations continue to democratize in the midst of its ongoing conflict with Russia. Ukraine’s progress in its political, economic, and military reforms is linked to the development of its civil–military relations, which, in turn, can be a catalyst for further advances in democratization and the application of the national power so essential to it prevailing in its existential struggle to preserve its national independence and fledgling democracy. However, Ukraine’s challenging geopolitical hand has limited its democratic and economic development postindependence. Prior to the war with Russia, due to the Ukraine swaying between the liberal democracies of Europe and the lure of authoritarian Russia, the conflicting interests of stakeholders from the disparate camps limited Ukraine’s ability to break decisively toward either one. The Euromaidan protests, followed by Russia’s annexation of Crimea and incursion into the Donbas region of eastern Ukraine propelled Ukraine onto a pro-Europe path. However, the legacy of Soviet-era bureaucracy, weak political culture, and scarce resources have limited the country’s progress. Key elements of democratic civil–military relations, such as meaningful civilian oversight within the relevant ministries and parliamentary defense committees, are still insufficiently present. So far, the combined impact of limited progress in the development of democratic institutions, poor economic performance, insufficiently mitigated corruption, and war in eastern Ukraine has held the country as a whole back from achieving the results of the higher-performing postcommunist states in the region. However, the Zelensky administration has a clear mandate and the parliamentary majority to implement its vision for Ukraine.
Ukraine’s civil–military relations are an important aspect of its strategic success. Political–military and societal–military cooperation and coordination can serve as the catalysts needed to bridge crucial divides and reinforce the parallel reforming tracks of democratic, economic, military, and cultural development and institution-building.
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Ghana: The Military in Transition from Praetorianism to Democratic Control
Eboe Hutchful, Humphrey Asamoah Agyekum, and Ben Kunbour
With the end of the Cold War and onset of democratization, the academic field of “civil–military relations” (CMR) has arguably gone into relative decline, replaced by the new global template of “Security Sector Reform and Governance” (SSR/G). This is a notable shift in several senses: firstly, from a narrow focus on the military (and coups in particular) to the “security sector” as a whole; and secondly because the two “fields” have been driven by different imperatives, priorities, and methodologies, in part shaped by changing historical contexts. In contrast to the CMR scholarship, SSR/G has been much more of a “policy and operational science” than an academic discipline, primarily oriented toward norm development and formal institution building in response to imperatives of democratization. This “policy praxis”—driven by sovereign actors and often delivered by consultants and private contractors with a primarily technical focus—has not always prioritized evidence-based research or interrogated real power dynamics. And while the nation-state remains the core actor, external powers (bilateral partners and international and multilateral institutions) have emerged as a critical supporting cast in SSR/G, evolving their own normative and policy frameworks and providing the financial resources to drive reforms (paradoxically, these are usually the same powers that conduct humanitarian interventions and extend security assistance to contain the proliferation of terrorist attacks in the region).
Nevertheless, there are strong linear links between the two “disciplines,” as CMR legacies have shaped the SSR discourse and agenda. An offshoot of the SSR focus has been the implementation of practical programs to address some of the weaknesses of the defence sector exposed in the CMR literature, evident in a set of technical and “how to” tools, such as defence reviews, security sector public expenditure reviews, the “Defence Anti-Corruption Index” (pioneered by Transparency International), and a variety of “toolkits” designed to enhance military professionalism and strengthen civilian oversight bodies and institutions. Academic research has also reflected this shift by broadening out from the analysis of the military and coups to encompass other agencies in the formal security sector (police and intelligence in particular), as well as looking much more closely at nonstate security and justice providers and their interaction with state security institutions and actors, through the prism of concepts such as “hybridity” and “hybrid security governance.”
Even so, militaries per se have never strayed far from the center of the discussion.
Militaries have not only remained the focal point of SSR efforts—in the process even acquiring new roles and missions and (undoubtedly) sources of influence—they have even been propelled back to center stage, as the security landscape has shifted and African states and armies (particularly in the Sahel) have struggled against a growing proliferation of armed groups and terrorist attacks, and as coups have threatened to make a comeback.
However, both the theory and practice of these African transitions defy neat delineations and linear interpretations. Their many commonalities notwithstanding, these transitions have been multifaceted, ambiguous, and contested, as well as fragile and subject to reversal, nowhere more so than in the CMR arena. Nevertheless, three elements stand out:
1. A growing trend over time toward “illiberal democracies,” as a variety of African leaders have made willful efforts to hollow out democracy, cultivating or (over time) perfecting the tools to evade or erode the strictures of democracy, an activity in which security forces are increasingly implicated.
2. A consensus in both the academic and policy literature about the fragile foundations of CMR in these transitions, which have been replete with “democratic deficits” and operational weaknesses, addressed only selectively by SSR, and likely to be further aggravated by the trends toward “soft authoritarianism” in the region.
3. Importantly, democratization in the region has coincided with (if not spawned) a proliferation of terroristic activity and new forms of armed conflict which African states have been unable to contain, triggering “humanitarian interventions” and security assistance from a variety of external actors. This has been dubbed the new “global militarism,” accompanied by a reorientation (rollback) of SSR in favor of “hard security” and operational capacity building (“Train and Equip”).
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Honduras: All-Purpose Militarization
Kristina Mani
The Honduran military has a long history of established roles oriented toward both external defense and internal security and civic action. Since the end of military rule in 1982, the military has remained a key political, economic, and social actor. Politically, the military retains a constitutional mandate as guarantor of the political system and enforcer of electoral rules. Economically, its officers direct state enterprises and manage a massive pension fund obscured from public audit. Socially, the military takes on numerous civic action tasks—building infrastructure, conserving forests, providing healthcare, and policing crime—that make the state appear to be useful to its people and bring the military into direct contact with the public almost daily. As a result, the military has ranked high in public trust in comparison with other institutions of the state. Most significantly, the military has retained the role of arbiter in the Honduran political system. This became brutally clear in the coup of 2009 that removed the elected president, Manuel Zelaya. Although new rules enhancing civilian control of the military had been instituted during the 1990s, the military’s authority in politics was restored through the coup that ousted Zelaya. As no civilian politician can succeed without support for and from the military, the missions of the armed forces have expanded substantially so that the military is an “all-purpose” institution within a remarkably weak and increasingly corrupt state.
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Civil-Military Relations in Asia: Between Democratization and Autocratization
Aurel Croissant
The civil-military relations of many Asian countries are subjectto important changes. In authoritarian, democratized, and autocratizing countries in South, Southeast and Northeast Asia, praetorianism—once prevalent in the region—has been in decline since the late 1980s, though it is still relevant in a number of countries. The erosion of praetorianism is mainly a consequence of the Asian-Pacific wave of democratization from the mid-1980s to the early 2000s. Democratic liberalization and transition had a positive impact on political control, military effectiveness and civilian supremacy in many transitional democracies. Since the late 2000s, however, the region has experienced a pronounced trend in autocratization or democratic backsliding. While endogenous modes of democratic weakening and termination , especially incumbent-driven executive aggrandizement,are dominant in post–Cold War Asia-Pacific, open-ended and promissory military coups are also very important. In many countries, soldiers either supported civilian efforts at democratic backsliding and autocratic consolidation. In other cases, they stood by while autocratization played out. Three key variables, combined, can account for the different roles of militaries in episodes of autocratization. The first one is the existence of a strong political organization which can be used by the incumbent executive to organize and mobilize political support and which can counterweight the political power of the military organization and its elites. The second factor concerns the existence of perceived threats to the organizational interests of a military. The third factor concerns strong praetorian legacies. The role that military officers and their organizations play in such episodes of democratic backsliding and autocratic hardening are important for the future trajectories of democracy, autocracy and civil-military relations. .
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Colombia: Civilian Control and Militarized Repression
William Aviles
The relationship between the Colombian armed forces and civilian leaders within the state has been marked historically with the continuity of civilian control and the general avoidance of military coups or regimes. After a series of major civil wars during the 19th century, civil–military relations were guided by the need to preserve the power of economic and political elites, with the military consistently acting as a central pillar in the survival of this elite. Interestingly, in the context of civil–military relations in Latin America, Colombia has been a model of how a regime can pair formal “civilian control” with intensive levels of state repression and violence against opposing forces within civil society. This model has been maintained during periods of relative political stability as well as during periods of widespread internal conflict. Thus, illustrating the limits that formal institutional arrangements within the Colombian state have led to shifts in the behavior of its military.