Abstract
A public policy underscores the measures by which a government addresses the issues affecting its citizens through the provisions stipulated in its constitution. An analysis of the formulation and implementation of public policy is essential for the evaluation of a given policy. A policy endorsed for implementation by the United Arab Emirates’ (UAE) government under the leadership of President Sheikh Khalifa forms the basis of this paper. A literature review is done to analyze the underlying issues that triggered the formulation of the policy before investigating the various aspects of the policy with respect to its implications for the Emirati citizens. The application of Frank Fischer’s evaluative approaches guides the paper in the assessment of the UAE National Service policy, which results in the exploration of its strengths and weaknesses.
Introduction
The political aspect of society plays a significant role in safeguarding the interests of the people through the alleviation of different societal challenges. The formulation of policies is essential in a bid to enhance the functioning of the entire system towards the attainment of national goals. A policy depicts the government’s reaction to an issue that requires attention. In this sense, a policy reflects what the government plans to do regarding a particular issue that affects the public. The policymaking process is usually continuous since the role of the government is to solve the problems for the citizens (Weimer & Vining, 2010).
The UAE government, through the leadership of President Shaikh Khalifa Bin Zayed Al Nahyan, has implemented various policies that aim at addressing the issues that have been affecting the Emirati citizens in a bid to improve their well-being. The issue of fostering the security of the UAE led to the formulation of the National Service Policy, which sought to recruit all the Emirati citizens aged between 18 and 30 years to join a mandatory military service program (Abu Dhabi e-government, 2014). This paper explores and analyses the UAE’s National Military Service policy based on the factors that led to its formulation, how it became an issue of public concern, and how the implementation of the policy has been effective to the Emirati citizens.
Background
The historical background of the UAE’s military service can be traced down to the 1971 period when the Trucial Oman Scouts were established to act as a symbol of national order. During this period, the British officers commanded the scouts, who later graduated to the UAE defense forces. Since the formation of the UAE armed forces, it has engaged in various wars including the Persian Gulf War. In spite of its small size, the UAE military is currently equipped with some of the sophisticated and modern weapons that aim at safeguarding its territories. The constitution of the UAE military troops comprises the Emirati citizens and additional soldiers from neighboring Arab countries (Davidson, 2009). However, the exotic troops have acquired Emirati citizenship in a bid to serve in the armed forces. In 2009, the French government facilitated the opening of the Abu Dhabi Base that collaborates with the Royal Military Academy, the United States Military Academy, and St. Cyr among other training centers to enhance the military base (UAEinteract, 2015).
The UAE has faced numerous challenges with its neighbors regarding territorial issues that emerged towards the end of the 20th Century (Davidson, 2009). Border conflicts with Iran over Abu Musa and the Greater and Lesser Tunbs have forced the UAE to improve its military base in a bid to safeguard its territory when under threat. Similar border wrangles emerged with Saudi Arabia and Oman, thus posing a threat to the country coupled with questioning the capabilities of the UAE military forces.
Therefore, the incapability of the UAE military forces to match the Omani and Saudi Arabian troops that operated the Chieftain and Bradley tanks respectively necessitated the formulation of military policies since the 1900s. Additionally, the US interference with the UAE’s military activities in the Arabian Gulf region towards the start of the 21st Century implied that Sheikh Zayed’s government had to formulate military policies to alleviate the situation.
Problem Definition
Defining the problem that surrounds policy analysis is significant for the process to be meaningful. In this respect, the rationale behind the selection of the UAE Military Service policy for analysis must be based on substantial issues that necessitated its formulation. Identifying the actors and stakeholders by conducting a comprehensive literature review is vital to understanding the problem under study.
Security aspects are a matter of interest for the development and sustainability of structures in a country. The lack of proper security measures to protect a state from internal and external threats is a serious social, political, and economic issue that needs the government’s response. In this regard, the topic entails the UAE government’s response to the question of security concerns that have affected the harmonious existence of the Emirati citizens and their neighboring countries for a long period. Therefore, the efforts put in place by the national Emirati government towards safeguarding the security interests of its citizens through policy formulation and implementation of the National Service is significant for understanding the policy analysis process. Furthermore, the topic falls under the public administration and foreign affairs scope, which is of significance to this course.
Actors and Stakeholders
The UAE National Military Service policy has various actors that play significant roles in the formulation and implementation of the policy. The official and unofficial actors in the National Military Service make up the stakeholders in the public policy process in the UAE setting. The official players in the policy include President Sheikh Khalifa and members of the cabinet who facilitate the implementation of the policy. The Vice-President and Dubai ruler, Sheikh Mohammed bin Rashid, is another key actor in the policy process as he has played significant roles in publicizing the policy over social media. The National and Reserve Service Centres are also significant players in the policy implementation process since they facilitate the registration of the eligible Emiratis (UAEinteract, 2015). The General Command of the Armed Forces has been active in the facilitation of the policy by signing agreements with various agencies such as the Etihad Airways to provide medical services to the National Service recruits.
Literature Review
Conducting a literature review is essential in a bid to gain a proper understanding of the policy analysis aspects regarding the UAE National Military Service policy. A literature review would enhance the definition of the policy issues and draw the limits of the problem triggering the policy formulation and implementation. In so doing, gaining a historical perspective on the issue surrounding the UAE problem would be essential to avoid the duplication of information throughout the paper. Additionally, a literature review would enhance the evaluation of previous research methodologies used to investigate the policy issues coupled with how the findings can be used to facilitate future research.
In 2009, Christopher Davidson authored the article, Dubai and the United Arab Emirates: Security threats in the British Journal of Middle Eastern Studies. The article covers the security issues surrounding Dubai and the UAE by giving a historical perspective. On the security issues that have contributed to the implementation of the National Military Service, a background perspective is provided as issues of border conflicts with Oman, Saudi Arabia, and Iran are illustrated. Furthermore, the article provides information about the UAE’s military policies and arms procurement strategies since 1992. In a bid to be up to date with the current developments surrounding the policy issues, online sources of information would be used to gain a comprehensive perspective on the new developments. In this light, reviewing the online sources that are available on government websites such as the Abu Dhabi e-government website is essential as it provides valuable information about the policy implementation strategies. Additionally, UAEinteract, which is an online source, provides information on the implementation process that the policy has adopted to enhance its military forces through the National Service.
Therefore, the review of various literature sources ranging from books, journals, government publications, and relevant online sources would be essential for the efficient analysis of the UAE National Service policy. Understanding the background of the underlying issues that contributed to the emergence of the policy as a public agenda equips the interested parties with valid information for in-depth analysis (Weimer & Vining, 2010). In this respect, the British Journal of Middle Eastern Studies serves the interest of the topic under study by providing a historical background of the UAE’s political and security issues that led to the formulation of public policies. Articles published by the Abu Dhabi government through online platforms add value to the analysis process as information concerning the principal actors is provided to identify the government’s response to the policy issue.
Issues Leading to the Development of the National Service Policy
Different underlying elements trigger the emergence of an issue as a public agenda. In the case of the UAE situation, various issues must have led to discussions by policymakers and other relevant parties in a bid to alleviate the Emirati citizens from hindrances that threaten their peace and success.
Enhancing the military capabilities of the UAE armed forces triggered the development of the issue as a matter of public agenda. Security problems have been an issue of concern for the UAE government over the years due to wars based on border issues (Davidson, 2009). Border conflicts with Iran over the Tunbs and Abu Musa islands portrayed the weaknesses of the UAE military capabilities that have threatened its territorial sovereignty. The border dispute with Iran resulted in frictions that would cause economic shortcomings in the UAE. Iran accounted for 20-30% of re-exports, and thus the disputes would weaken its economy in the event of negative relationships or war. The feeling that the Iranians could interrupt the Gulf shipping operations, which would interfere with the economy of the UAE, prompted the leadership of Sheikh Zayed to implement strategies to safeguard the country’s political, social, and economic sustainability (Davidson, 2009).
In response to the situation, the UAE president adopted peaceful policies that aim at minimizing Iran’s control over the islands. From 1971 to 1992, the UAE and Iran engaged in various agreements that saw the signing of a Memorandum of Understanding seeking to share the gains of the islands’ offshore trading activities. Border issues with Saudi Arabia and Oman threatened the security of the UAE since the 1990s, but the Emirati government used its wealth to settle the disputes due to its military inferiority (Davidson, 2009). The vulnerability of the UAE territories through invasion subjected the country to threats that would have detrimental implications for the economic, social, and political aspects. In this regard, the need for enhancing the capacity of the UAE troops through the National Service program was important.
The UAE government, through the Emiratisation initiative, seeks to improve the employment of the Emirati citizens in both the private and public sectors. Therefore, equipping the Emiratis with the requisite skills for employment in various sectors needed the establishment of an initiative that would empower all the citizens. For this reason, the Emirati government developed the National Service to spearhead and speed-up the drive towards the Emiratisation process. In the long-term, the policy would enhance the economy of the UAE by alleviating unemployment issues that have mainly affected the youth. Additionally, the National Service policy sought to strengthen the competitiveness of the Emiratis in the job market by facilitating their education in various fields of basic military training (UAEinteract, 2015). The implication of the training is that individuals from different backgrounds would be provided with equal education and employment opportunities resulting in improved social and economic conditions. Skills acquired through military training intend to give the Emirati youth a sense of direction and independence as a way of eliminating their idle and dependence characteristics.
The issue of physical health has been a matter of consideration for the Emirati government due to the increased reports of fitness-related complications. The Emirati youth have been faced with increased cases of diabetes and the emergence of the obesity epidemic, which has been termed as a national health emergency. The health issues are attributed to increased sedentary lifestyles characterized by the consumption of junk foods. This aspect has posed a threat to the general health of Emirati citizens, thus calling for the sensitization of healthy living through proper dieting and physical exercise (UAEinteract, 2015). In a bid to heighten awareness of the significance of personal health and the positive implications of physical activity, the formulation of the National Service program was necessary since it involved exercises in training that fostered physical health. Thus, recruiting youth in the National Service implied that more Emiratis would be physically fit and ready to serve the country in various capacities.
Reports indicating the recruitment of vulnerable Emirati youth into extremists groups have become an issue of concern to the UAE government. Security departments in the UAE have reported cases of youth traveling to other countries to join militia groups such as the Islamic State of Iraq and the Levant (ISIL). Families have reported missing cases of their members especially the youth who are suspected to have traveled abroad for ISIL recruitment (Fromkin, 2015). Efforts to curb increased radicalization compelled the UAE government to come up with the National Service policy that would facilitate education and raising awareness about the adverse impacts of extremists. Additionally, the National Service program would foster a firm sense of belonging to the youth in a bid to build nationalism through a collective identity.
Therefore, issues such as military capacity, health conditions, youth employment, and recruitment of the Emirati youth into radical groups prompted the UAE government to deliberate on them as a public policy agenda. In this sense, the formulation of the National Service policy implied that the government was embarking on strategies that would alleviate the problems for the attainment of a better UAE society, which is safe, of sound health, and full of employment opportunities for its youth.
Policy Analysis
A policy analysis succeeds in the definition of a problem whereby the relevant information that has been gathered concerning the issue is assessed. In this light, the criteria for the decisions made by policymakers in designing and actualizing the policy serve as the basis for the analysis before an evaluation is done. Therefore, exploring the UAE National Service Policy design would play an important role in the analysis of the policy.
In 2013, the UAE President, Shaikh Khalifa Bin Zayed Al Nahyan, endorsed a law that sought to facilitate a mandatory military service program for all the Emiratis between the age of 18 and 30 years. On 29 May 2013, the law was published in the Legal Gazette implying that it would take effect 180 days later. The National Service Law falls under the Federal Law number 6 of the year 2014, which has become one of the major policies developed by the UAE government in that year. Following the political waves in the Arab world during that period, the law aimed at improving the Emiratis’ loyalty and commitment to serving the UAE Federation (Abu Dhabi e-government, 2014).
The law is only applicable to the UAE nationals. It is mandatory for males, but optional for females who have to seek their guardians’ permission before joining the national service. Joining the National Service had to be through the fulfillment of certain conditions. The individuals joining the National Service must be within the 18-30 years’ age bracket and be medically fit. The individuals need to be approved by the National and Reserve Service Committee before engaging in the activities of the program (Abu Dhabi e-government, 2014). An important aspect of the law is the connection between the educational qualifications of the individuals and their duration of service under the program. Women do not require any educational qualification, as they all undergo a fixed nine months’ program in the national service (UAEinteract, 2015).
The law provides for some permanent and temporary exceptions that factor particular conditions that may inhibit an individual’s enrolment into the National Service. The law provides for two permanent exceptions that equally apply to all the Emiratis. The first one considers individuals with permanent medical unfitness. The second permanent exception considers situations where an individual is the only son in a family. Temporary exceptions are numerous. In cases where the son provides for his parents, an exception can apply. A temporary exception can also apply in a situation where the son provides for his parents are not in a position to earn a living. The Emiratis providing for their sisters, brothers, descendants, or ascendants are mandatorily required to join the service. Lastly, an individual under a custodial sentence is exempted (UAEinteract, 2015).
Analyzing how the policy has been designed, the Emirati government portrays its commitment to implementing the policy to cater to the issues that have affected the country’s operations. The policy conditions apply equally to all the Emiratis with exceptions that factor the needs of special groups. Considering the education levels enhances the efficiency of the programs as it seeks to train individuals who are intellectually fit for such programs. Incorporating women, who voluntarily join the National Service, depicts the government’s consideration of gender issues. In this regard, the government would be in a better position to handle issues of insecurity by building the capacity of its Armed Forces through training and acquisition of modern military equipment.
The Evaluation of the UAE National Service
The UAE law that requires all men and women aged between 18 and 30 years to join the military service has various aspects. Policy evaluation seeks to learn about the impacts of public policy. This assertion implies that an analysis of whether the National Service has or will achieve its objectives is necessary for gauging the effectiveness of the methods that were adopted for the implementation of the policy.
The evaluation of public policy seeks to serve two major conceptual and methodologic functions. The first function is to conceptualize the intended and unintended implications that need to be assessed. In this light, the conceptualization of the aims that the UAE National Service policy seeks to achieve is essential for the audience to gauge the results of the policy. The second function of carrying out the analysis is to identify the linkage between the observable changes and the policy measures under study. For this reason, linking the implications for the mandatory National Service in the UAE to the policy intentions helps in the assessment of the policy. In this regard, the application of qualitative methods in the analysis of public policy through the employment of the constructivist-interpretivistic approaches would facilitate an efficient policy evaluation process.
According to Fischer (2005), four aspects of considerations have an effect on the policy evaluation process. The first consideration is a positivist verification that seeks to investigate whether the policy objectives were attained. The second aspect is the validation of the public policies through the consideration of how the outcomes of the analysis would be affected by the aims of the policy. Thirdly, the validation assesses the contribution of the policy to societal development as a whole. The fourth aspect is the social choice that considers the examination of the ideological interests of the policy objectives.
By reflecting on the National Service policy that has been implemented in the UAE, different types of evaluation criteria could be employed to assess the implications of the law to the Emirati citizens. The assessment of the National Service policy will apply different types including process, effort, performance, efficiency, and effectiveness evaluation. The process evaluation seeks to evaluate the organizational methods enforced by the UAE government in the policymaking and implementation process whereby different tasks would be analyzed. Effort evaluation assesses the program input in terms of the energy applied by the government in achieving the objectives of the policy in financial aspects. Efficiency evaluation would investigate how the attainment of the policy goals would be attained economically. The effectiveness evaluation addresses the issues of the adequacy of the performance in terms of the realization of the intended goals (Weimer & Vining, 2010).
Effectiveness
The effectiveness criterion for the evaluation of public policy analyses the possibility of the attainment of the policy objectives and goals (Weimer & Vining, 2010). In this light, the UAE government operations regarding the implementation of the National Service Law would be conducted to analyze how well the government structures are working towards the fulfillment of the policy goals. One of the goals of the policy is to increase the capacity of the UAE Armed Forces in a bid to safeguard its security. The recruitment of eligible Emiratis into the National Service was initiated in September 2014 where the first batch was enlisted for training. The second batch that was recruited in “December 2014 witnessed the enlisting of thousands of Emirati citizens with enrolees from various backgrounds” (UAEinteract, 2015, par. 8). In this light, the mandatory enrolment of Emirati citizens aged between 18 and 30 years showed effectiveness as recruits came for military training in a bid to fulfill Sheikh Khalifa’s intention of developing a new national defense and a military reserve force.
Additionally, the policy has attained effectiveness in building confidence in the capacity of the UAE Armed Forces. Recently, the UAE government engaged in the Yemen crisis by deploying its military forces to the country in a bid to safeguard the security and safety of the Arabian Gulf. The motive of the intervention was to disable the activities of the Houthi rebels that have disrupted the harmonious coexistence of individuals in the Arabian Gulf region, thus posing a threat to regional and international security (Fromkin, 2015). The move could be attributed to the increased emphasis on the creation of a sophisticated defense force that would facilitate the enhancement of security and political stability of the UAE. Therefore, effectiveness is depicted by the increased enrolment into the national service and participation in regional security issues.
Equality
An evaluation of public policy requires an assessment of the fairness of the implementation of the policy. Government policies are geared towards the distribution of resources justly in a bid to foster equality among the citizens. By analyzing the National Service policy from an equality point of view, it is evident that the policy applies fairly to all citizens. The conditions required for enrolment into the military training program apply equally with the exception of special groups such as individuals providing for their economically unstable parents. The aspect of gender equality in the national service programs has also been catered for through the provisions that women should join military training voluntarily after seeking permission from their guardians. Additionally, enrolment in the National Service has enhanced the provision of equal education and employment opportunities for the Emirati youth (UAEinteract, 2015).
Evaluating the equality aspect of the law highlights fairness in the implementation process and the outcomes that have equal implications to the Emirati citizens. In this light, the just application of the law implies that the Emirati men and women between the age of 18 and 30 years acquire the skills equally after the basic military training.
Social Acceptability
Public policy can attract positive or negative response from the citizens of a particular country. The Emiratis from different social backgrounds accepted the mandatory National Service program that sought to improve the country’s military strength and provide a sense of collective identity to enhance unity. During the recruitment of the first batch of the Emiratis, which was done in September 2014, thousands of Emirati youth enrolled for the exercise. Subsequent enrolment exercises registered increased enrolment of citizens from different backgrounds including those working in the public and private sectors.
Recruiting over 7000 Emiratis to join the National Service in September 2014 implies that the citizens supported the move. Some recruits have lauded the program saying that it is a positive step towards enhancing the culture of civic responsibility amongst the citizens. Additionally, the Emirati citizens have supported the national service by terming it as a move that would ensure that the Armed Forces are made up of the Emirati natives as opposed to the perception that it is mainly comprised of foreigners. Furthermore, the high unemployment rates since 2009 have instilled a spirit of commitment among the Emiratis in support of the policy since it provides equal employment opportunities to its youth through the drive towards Emiratisation (UAEinteract, 2015). On the issue of health, individuals who have undergone military training have reported improvement in their health and living standards.
The move towards preventing the vulnerable Emirati youth from joining extremists groups such as the ISIL has been accepted socially. The aim of the National Service is to foster the territories of the UAE from internal and external attacks. Recruiting the youth into the program implies that their vulnerability is curtailed by the alternative opportunity presented by the government, and thus it safeguards its citizens from attacks from militia groups that would pose a threat to national security. The UAE President, Sheikh Khalifa, has endeavored to curb the threats posed by radical Islamism. Recently, the UAE military forces conducted attacks against ISIS in a bid to safeguard Jordan. This move was accepted by the Arabic states as it sought to weaken the activities of the extremist groups that threatened the political sustainability of the Arabian Gulf region (Abu Dhabi e-government, 2014). Therefore, the social acceptability of the National Service implies that the public is in support of the National Service policy. This aspect is shown by the increasing rates of enrolment in the program since its inception in late 2014.
Efficiency
Determining the economic implication of policy is essential for the evaluation of its efficiency. In this regard, a policy should be cost-effective since it seeks to alleviate the particular problem without the creation of negative issues in society. In line with the aims of the National Service Law, the UAE President has made substantial financial efforts to build up the capacity of the Armed Forces through the purchase of modern military weapons and intensified military training. In a bid to facilitate the implementation of the new military expansion strategies through the National Service, the UAE government has been in a position to increase its budgetary allocations to the security sector. The budgetary allocations for military activities were $1.3 in 2009 and they doubled to $3.13 in 2015 as the government sought to fortify its troops (Fromkin, 2015). Consequently, the UAE military has emerged as the most powerful armed forces in the Arabic region. Reflecting on the implications of the National Policy, the status of the UAE military can be attributed to the financial injections that have been triggered by the policy (Fromkin, 2015). Therefore, the financial resource allocation indicates how the National Service policy has been in a position to facilitate the enhancement of the capacity of the UAE’s defense force.
Shortcomings of the National Service
Despite the positive impacts that have been witnessed in the UAE economy through the implementation of the National Service policy, it has some weaknesses. Therefore, the analysis of the policy does not only look at the positive aspects of the policy, but also the detrimental implications that portray weaknesses.
Liberty/ Freedom
The liberty criterion for the evaluation of the UAE National Service policy considers the degree to which the policy limits or extends the privacy, rights, and choices of the Emirati citizens. In this light, the mandatory National Service infringes on the individual rights and freedoms of the Emirati citizens. Joining the military training program should be a voluntary choice for the Emirati youth instead of limiting their freedom of choice on whether to join the National Service. The compulsory requirement for men to join the National Service portrays unequal application to all citizens since women are exempted by allowing them to be recruited out of their personal choice and consent. Therefore, the UAE government tends to infringe on the rights of its citizens by coercing the Emiratis into joining the military through the National Service training program.
Administrative Feasibility
The recruitment of the Emirati youth into the National Service needs stable administrative structures for the successful implementation of the policy. However, the feasibility of recruiting all Emiratis irrespective of their backgrounds or status has been challenged by the unwillingness of some individuals that are already working. Therefore, the working class has shown low turnout in the three batches that have already been recruited. In this light, the UAE’s Federal Authority for Government Human Resources has urged public and private agencies to show their employees the importance of their involvement in the National Service (UAEinteract, 2015). Therefore, the administration of the National and Reserve Service Centres would be fostered by sensitizing the eligible Emirati employees to acquire the basic military skills through the National Service training programs.
Therefore, the National Service for the fortification of the Emirati citizens seems to be surrounded by some shortcomings that underscore loopholes in the enhancement of personal freedom and the feasibility of the administration. In this respect, the UAE government needs to review the process and allow effective administration of the policy and enhancement of personal liberty.
Recommendations
The analysis of the UAE National Service policy portrays some loopholes that need to be filled for the policy to be sufficiently beneficial to the Emirati citizens. In this regard, the shortcomings of the policy depicted in its liberty and administrative feasibility aspects need to be considered.
The National Service Law needs to be amended in such a way that the enrolment into the National Service would be out of free will and consent. This aspect implies that the mandatory recruitment provision should be changed to optional to respect the rights and freedoms of the Emirati citizens. Therefore, the Emirati males would be treated equally as females who join the program voluntarily. In doing so, the UAE government would implement a policy that upholds justice, fairness, and protects the rights and freedoms of the Emiratis as enshrined in the constitution.
Streamlining the administrative operations and capabilities of the authorities responsible for the implementation of the policy is vital for its feasibility. Therefore, the UAE government needs to implement quality operations mechanisms in agencies such as the cabinet, the General Command of the Armed Forces, and the National and Reserve Service Centres. Consequently, the improved processes would enhance the feasibility of the administrative functions that facilitate the implementation of the National Service policy in the UAE.
References
Abu Dhabi e-government: Mandatory National Service in UAE Approved. (2014). Web.
Davidson, C. (2009). Dubai and the United Arab Emirates: Security threats. British Journal of Middle Eastern Studies, 36(3), 431-447.
Fischer, F. (2005). Evaluating Public Policy. Belmont, CA: Wadsworth.
Fromkin, A. (2015). The UAE Military against Islamism. Web.
UAEinteract: Government Affairs – National Military Service. (2015). Web.
Weimer, L., & Vining, A. (2010). Policy Analysis: Concepts and Practice. Oxford, UK: Routledge.