Published at National Review
After long neglect, the media has finally recognized the role of the FREs—former (Saddam) regime elements—within the Islamic State (ISIS). But the pendulum has now swung too far: Some reports are now claiming that the FREs have transformed the leader of the terror army, Abu Bakr al-Baghdadi, into nothing more than a front man for the Baathists.
These suppositions are mistaken. Most FREs within ISIS have not been ideologically Baathists for a long time.
Let’s consider some specifics.
First, the ISIS-as-front-for-Baathists storyline relies on a misreading of ISIS’s revival after the 2007 Surge. It is true that after ISIS’s former leader was killed in April 2010, ISIS intensified its “Iraqization” process. (This began with Abu Musab al-Zarqawi’s effort in 2006 to reverse ISIS’s negative image as a foreign imposition on Iraqi Sunnis.) Within three months between April and June 2010, Iraqi and American forces picked off 34 of 42 senior ISIS operatives in the region. But the rise to predominance of the FREs was an internal shift in ISIS—not an external coup. It came about because ISIS—at its nadir and with a decreased flow of foreign-fighters—turned to its most militarily skilled members.
Second, the ISIS-as-front-for-Baathists storyline has a very serious timeline problem. One of the infamous FREs within ISIS was Haji Bakr (real name: Samir Abd Muhammad al-Khlifawi), a former colonel in Saddam’s army, who masterminded ISIS’s expansion into Syria; he was killed by Syrian rebels when they rose against ISIS in January 2014. What is noteworthy is that al-Khlifawi had joined ISIS in 2003 when it was a foreign-led organization with Zarqawi—the patron saint of the takfiriyeen (those who regard only Salafi-purists as Muslims)—as its emir. A “socialist infidel”—as ISIS refers to Baathists—was not going to pass muster in ISIS at that time.
Abu Abdulrahman al-Bilawi (real name: Adnan Ismail Najem al-Bilawi), a former captain in Saddam’s army and until his death in June 2014 the head of ISIS’s military council (believed to be the most important ISIS military institution), also joined ISIS in 2003. Abu Ali al-Anbari, the overseer of ISIS-held territory in Syria, joined ISIS in 2003 as well.
It’s no surprise that al-Khlifawi, al-Bilawi, and al-Anbari were already Islamic militants in 2003. From the mid 1980s, and with added intensity after the formal onset of Saddam’s “Faith Campaign” in June 1993, Saddam’s regime Islamized. This was “most likely a cynical step” on the part of Saddam, wrote Amatzia Baram, an expert on Iraqi Islam with the University of Haifa, but it gave Iraq “an extra push in the direction of an authentic Islamization process.” In other words, it took on a life of its own.
Saddam feared the Muslim Brotherhood, so he chose Salafism as a counterweight. With significant resources devoted to producing this regime-loyal Saddamist-Salafism, the Faith Campaign produced a more sectarian, Salafized population, with its focal points on clerics and mosques. Without this campaign, Zarqawi’s project could never have gotten off the ground in Iraq.
“[Zarqawi] thought that the Sunni in Iraq … had been ruined by Saddam and that a long period of dawa (proselytization) would be needed,” Craig Whiteside, a professor at the Naval War College who has worked extensively with internal ISIS documents, told me. “He was pleasantly surprised instead by the underground Salafist movement that existed in Iraq and produced so many early local Iraqi supporters.” Whiteside added: “[Saddam’s] regime was really tottering at the end, and people were looking for more successful ideologies.”
Indeed, the Faith Campaign worked almost too well. Saddam sent military and intelligence members of the Baath Party to mosques with the dual task of religious instruction and keeping tabs. “Most of the officers who were sent to the mosques were not deeply committed to Baathism by that point,” writes Joel Rayburn, a former U.S. military intelligence analyst in Iraq, in Iraq After America: Strongmen, Sectarians, Resistance. “And as they encountered Salafi teachings, many became more loyal to Salafism than to Saddam.” The empowerment of long-standing anti-regime “pure” Salafists, alongside the Baathist-Salafists the regime wanted, led to some acts of terrorism, for which some Salafists were executed by Saddam. But the Faith Campaign went on, not least because the dictator himself had a kind of “born-again” experience.
Additionally, Saddam had instrumentalized the Islamists in his foreign policy from as early as 1983—and, as with the Faith Campaign, stuck with it despite significant internal opposition from the party. A most significant connection was with a Salafi-jihadist group, formed by Zarqawi loyalists with al-Qaeda seed money, in northern Iraq between 1998 and early 2000 that became Ansar al-Islam in late 2001. Ansar al-Islam received money and weapons from Saddam, and it seems that the actual decision-maker in the group was an agent of Saddam’s intelligence. Ansar, by then led directly by Zarqawi, fled to Iran during the invasion and then returned to Iraq with the help of the senior members of Saddam’s regime. Ansar is now formally part of ISIS.
The Faith Campaign was implemented by Izzat Ibrahim ad-Douri, Saddam’s deputy. Douri was tasked with setting up what was effectively an organized-crime network whose goal was to evade the sanctions by smuggling across Iraq’s borders, and to provide for an internal patronage network that would give the regime some pillars of support. Patronage went especially to the Sunni tribes of western Iraq, and the removal of this income after the U.S.-led invasion was chief among the many reasons the tribes tactically sided with the Zarqawi’ists in an attempt to restore Sunni hegemony. Not just among the tribes, these networks largely passed to ISIS. This began early: In 2003, for instance, the stolen cars Douri imported through Jordan were put at the service of ISIS’s suicide bombers.
It is also notable that ISIS’s Syria strategy was not made up on the fly after the uprising began in March 2011. Haji Bakr was appointed to oversee operations in Aleppo in late 2010, and ISIS’s presence in Syria dates from 2002 and 2003 when Assad invited them in to wage war against the Americans and the constitutional government in Iraq. ISIS already had deeply embedded logistics networks in Syria that were easily “flipped” when ISIS wanted to move from Iraq into Syria, and ISIS already saw the potential of Syria, having run a low-level insurgency against Assad between 2007 and 2010. ISIS did send further agents into Syria in the summer of 2011 to form Jabhat an-Nusra, which would split from ISIS in April 2013 when ISIS tried to bring its covert subordinates under its command. By that time, however, ISIS had established itself well enough to weather the Nusra defection.
The FREs matter because they highlight the hybrid nature of ISIS—its fusion of elements of Baathism with Salafism—and also how difficult ISIS will be to defeat. The FREs are the products of a military-intelligence service trained by the KGB. They have brought to ISIS unique military and counterintelligence skills, directly in battle and in propaganda. Their skills are aiding ISIS’s military effort, bringing in fanatical foreigners to use as shock troops, and helping ISIS restructure the identities of local populations who have joined ISIS only out of necessity or convenience (as a means to restore order or against Iran’s proxies, for example).
The Iraqi nativism some detect within ISIS is probably a confusion borne of the fact that ISIS is also a hybrid of a locally and internationally focused organization. ISIS has more depth in Iraq because it has been there for decades in one way or another, and it has more popularity there because it is the vanguard of an attempt to restore Sunni dominion.
Even if ISIS was led by cynics, it has taken on a life of its own now, just like the Faith Campaign; there are too many true believers for the cynics to sideline. But, precisely because of the Faith Campaign, there is every reason to think that ISIS’s leaders mean what they say.