Institution-Building in Practice Since the Offensive
Based on the institution-building and reforms implemented over the past four and a half years, Hayat Tahrir al-Sham was prepared to take advantage of any military gains on the ground. It is difficult to know if they believed they could take Aleppo, let alone in four days. But even if unexpectedly, due to the professionalization and whole-of-society approach to dealing with crises or new events, Hayat Tahrir al-Sham’s apparatus was able to fill vacuums and voids quickly. Had they not been able to consolidate so quickly, there may have been greater pushback by the regime and its backers, or the local populace may have not greeted the Hayat Tahrir al-Sham–led offensive positively enough. From the outside it appears they already have some level of buy-in, even if there are likely some skeptics.
When the Hayat Tahrir al-Sham–led administration of military operations announced the new “deterrence of the aggression” operation, not only did the military forces of this integrated command fight more professionally, but so did the operation in the mechanisms of the Liberated Areas state.
For example, in the immediate aftermath of the announcement, the Syrian Salvation Government
reactivated its emergency response committee to assist in any fallout as a consequence of the military campaign. This body was first
established in March 2020 to help respond to the COVID-19 pandemic locally. It was later
activated after the massive earthquake that hit northwestern Syria in February 2023. It is essentially an emergency interagency apparatus that initiates integrative responses amongst its different ministries.
In the hours after the operation began, the ministry of development and humanitarian affairs began
preparing new tents for internally displaced persons from the subsequent regime bombing campaign and provided village-/city-based phone numbers for whom to contact most easily. There were also efforts by the committee to
mobilize all medical resources for the injured and
expedite the work of bakeries to meet the needs of the local population. It was not shocking to then see when the Hayat Tahrir al-Sham–led offensive took Aleppo that the emergency response committee was able to quickly mitigate the bread crisis by first having Idlib bakeries
send 100,000 loaves to Aleppo, but then the minister of the economy and resources
promising that the Syrian Salvation Government would provide the necessary resources to keep the local bakeries on line. The emergency response committee also quickly deployed the E-Clean Foundation to not only clean the rubble from regime airstrikes, but also to
clean the streets of the newly liberated areas to illustrate their competence and care.
While these are early efforts, in the aftermath of Hayat Tahrir al-Sham taking territory from the Turkish-backed Syrian National Army in October 2022, the group began to conduct more sophisticated activity such as public works
projects to completely rehabilitate roads in the area. Do not be surprised if such activity begins soon, too. In the aftermath of the takeover from the Syrian National Army, we also saw Hayat Tahrir al-Sham deploy forces from its Administration of Checkpoints, and even they returned someone’s stolen car. That is why to develop some semblance of a new security architecture in Aleppo, the day after the insurgency entered the city, elements from the Administration of Checkpoints had taken up
posts in different parts of the city.
There are also early
signs that the local municipal councils (Administration of the Liberated Areas) are beginning to extend a new proto-governance apparatus to Aleppo city to assist in the transition to a Liberated Areas local order. On Dec. 1, the director of public relations for the Syrian Salvation Government, ‘Abd al-Rahman Muhammad,
promised the local residents that “we will start by repairing the gaps and restoring the service sectors to work, including communications, electricity, water supply, cleaning work, supporting bakeries, restoring transportation, and removing the explosive remnants left behind by the criminal regime.” Time will tell how successful they will be, but based on their track record in the original Liberated Areas, they will do as much as they can within their limits. As Jawlani stated, it is not a “big state” and therefore it’s not reasonable to expect anything along the lines of a traditional state, especially when the main fighting force remains designated as a terrorist organization by many governments, including the United States and Turkey.
On the battlefield front, the most noteworthy addition to the offensive is the
use of drones for surveillance prior to the campaign, but also as suicide drones against regime targets after the operation began. The proof of concept for how successful they could potentially be was when an unclaimed Hayat Tahrir al-Sham drone attack
targeted a regime military college graduation ceremony in Homs, which killed at least 80 individuals in October 2023. In retrospect, it likely provided even more confidence to this operation and the potential successes they would garner on the battlefield. Interestingly, besides purely kinetic uses, maybe for the first time ever, a non-state actor
dropped leaflets on the local populations using drones in the areas they were about to overrun. They were small cards from the Syrian Salvation Government’s center for safety and defection, which was
created in December 2023, and called on individuals that were part of the regime to flee or defect. It also provided contact numbers on how to do so. Interestingly, the center
released a video of a defector’s story only nine days prior to the offensive, a potential signal of what might be ahead. To push others to follow suit as the offensive took over Aleppo, the center
shared a video on November 30 of a FaceTime conversation with someone from the regime holed up in the Aleppo International Airport. Even if the numbers are low on how many people might defect versus flee, the effort shows a level of planning not previously seen.
Messaging Campaign to Assuage Fears
In addition to activity on the ground, Jawlani and Hayat Tahrir al-Sham’s political affairs department have made a concerted effort to legitimize their project and make sure outside actors can accept the new reality on the ground. For example, regarding the local population, Jawlani on Nov. 29 put out a series of
recommendations for soldiers in the field related to the takeover of Aleppo that stated that the first priority is to protect the property and lives of civilians and to establish security and calm the fears of people from all sects. He noted that Aleppo is a meeting place of civilization with cultural/religious diversity for all Syrians and that anyone who defects from the regime is safe. This was followed up the next day with another series of
recommendations that the lives of civilians and their beliefs and possessions must be safeguarded, that fighters must ensure safety without vengeance, that prisoners and the wounded must be treated humanely, and that calls for avoiding excesses in violence or retaliation must be avoided. Jawlani reminded revolutionaries that true victory lies not only in the current battle, but also what follows after (governance and providing for the population). Similarly, the Hayat Tahrir al-Sham–led administration of military operations also put out a
notice to the Syrian Democratic Forces and Kurdish population in Aleppo on Dec. 1 noting that their fight is with the regime and Iranian proxy militias, not the Syrian Democratic Forces, offering them passage to leave Aleppo toward northeast Syria with their weapons without harassment, and affirming that Kurds are an integral part of Syria, are afforded the same rights with everyone else in the country, and that they are responsible for protecting them and ensuring they have a decent life.
Put together, these are efforts to assuage the fears from minority communities now under the Liberated Areas rule. However, we will have to see how things play out in the longer term. Thus far, local residents have
stated that Christians have
not been targeted. This should not necessarily come as a surprise since Jawlani
engaged with Christians in the Idlib region in July 2022 and
engaged with Druze notables in September 2023. That being said, politically, both groups remain second-class citizens within the Liberated Areas insofar as not having any political representation in the General Shura Council. Yet there is a directorate of minority affairs that engages those communities, which has also
signaled in recent days that Christians would be safe. So while they might not be harassed, their needs might not be met or at least not as efficiently as those of the majority Sunni community.
Beyond the local population, the political affairs department has tried to highlight to outside actors that their fight is not with them and that they should be willing to engage them. For example, in response to Russian bombing attacks, the department put out a statement
saying that “we call on Russia not to link its interests with the Assad regime or Bashar himself, but rather with the Syrian people, their history, civilization, and future. We affirm that the Syrian people seek to build positive relations based on mutual respect and common interests with all countries of the world, including Russia, which we consider a potential partner in building a bright future for a free Syria.” A similar message was also
released aimed at Iraq, likely due to rumors that Iraqi Shia militia will once again be
called upon to assist the Assad regime in regaining territory. Interestingly, beginning on Dec. 1, the department also
provided numbers to local foreigners and diplomatic assets in Aleppo to contact them in case they need assistance with safety and
announced they would be guarding local consulates in Aleppo. Likewise, Hayat Tahrir al-Sham’s humanitarian action coordination has
reached out to local U.N. employees to try and safeguard their complex and facilitate anyone’s interest in leaving the city.
Put together, this highlights a far more mature messaging campaign, showcasing that Hayat Tahrir al-Sham is not yesterday’s Jabhat al-Nusrah — even
inviting international journalists and organizations to come to the Liberated Areas via its Center for Media Services to see the reality on the ground. Neither the Islamic State nor al-Qaeda would tolerate any such messaging to minorities or foreign countries, highlighting a huge difference in discourse from just a decade ago. It also showcases that they want to be taken as serious actors and interlocutors.
Yet there is still the issue that foreign fighters and foreign terrorist groups
remain within the offensive’s ranks, as well as the fact that Hayat Tahrir al-Sham backed Hamas’ Oct. 7 terrorist attack against Israel and eulogized
Isma’il Haniyah and
Yahya al-Sinwar. That is why the White House
distanced itself from any connection to the operation and still referred to the group as a designated terrorist organization.
Going Forward
To further consolidate its control and deepen its institution-building in other parts of Syria, Hayat Tahrir al-Sham will likely rely upon two bodies to assist with rapidly controlling and governing these areas — the various councils of those displaced from different parts of Syria, and the Tribal and Clan Council, which overlaps with areas now within the new Liberated Areas. Since the system that Hayat Tahrir al-Sham has built has had much involvement with notables and tribal figures, it would easily be able to deploy those already within the system back to their hometowns, villages, and cities to follow the methodologies that Hayat Tahrir al-Sham has been building in the territories it has already been in control of. It also would provide a local face to the populations that have been under regime control in the past five to ten years. This way, it does not seem as if an “outsider” from a different part of Syria is pushing something onto the local population, and it can better integrate these new populations into the Liberated Areas system. Additionally, the Hayat Tahrir al-Sham-adjacent
al-Raqi Li-l-Insha’at Company will likely get contracts to help rebuild areas that the regime never rebuilt or that have been hit by recent airstrikes. In the past, this company has taken away rubble, built new roads and highways, and constructed residential and commercial buildings, malls, and industrial zones in the area that Hayat Tahrir al-Sham has controlled over the past two-plus years.
Either way, however the current dynamics play out, I do not think anyone can predict what will happen. Yet if the new territories that Hayat Tahrir al-Sham has gained become stabilized and it is able to extend its bureaucracy and institutions to other parts of Syria, it is plausible that in the future, Hayat Tahrir al-Sham once again could be on the march. It would be even more surprising than Aleppo if it was Damascus by this coming Eid al-Fitr. Nevertheless, one of the key lessons in the case of Hayat Tahrir al-Sham is that although many still view it through the old lens of being part of al-Qaeda and the Islamic State, the group and the government it has built in northwest Syria have changed tremendously in the past four and a half years. Understanding this new reality is crucial to identifying how things might evolve in the future. And it also likely will not be quite as surprising when one realizes how sophisticated of an enterprise the forgotten Hayat Tahrir al-Sham polity has become. Understanding all of this makes what has happened in recent days make much more sense.
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Aaron Y. Zelin is the Gloria and Ken Levy Senior Fellow at the Washington Institute for Near East Policy where he also directs the Islamic State Worldwide Activity Map project. Zelin is also a research scholar in the Department of Politics at Brandeis University, an affiliate with the Global Peace and Security Centre at Monash University, and founder of the widely acclaimed website Jihadology. He is author of the books Your Sons Are At Your Service: Tunisia’s Missionaries of Jihad (Columbia University Press) and The Age of Political Jihadism: A Study of Hayat Tahrir al-Sham (Rowman and Littlefield). Zelin is currently working on a third book tentatively titled Heartland of the Believers: A History of Syrian Jihadism
.