Egypt’s Deep State Dilemma. By Walter Russell Mead. Via Meadia, July 11, 2013.
Mead:
With political
frustration running high during the holy month of Ramadan, the situation in
Egypt still looks more like a gathering storm than any kind of transition to
democracy. Muslim Brotherhood politicians are again being accused by the army of deliberately inciting violence, and there are reports that members of
Egypt’s Christian minority, many of whom vocally supported the ouster of Morsi,
are being attacked and lynched by enraged Islamist mobs. A very potent and
poisonous brew is simmering on the banks of the Nile.
Yet an
article in today’s NY Times seems to
suggest that, despite it all, a kind of normalcy is returning to Egypt:
The
apparently miraculous end to the crippling energy shortages, and the
re-emergence of the police, seems to show that the legions of personnel left in
place after former President Hosni Mubarak was ousted in 2011 played a
significant role—intentionally or not—in undermining the overall quality of
life under the Islamist administration of Mr. Morsi.
And as
the interim government struggles to unite a divided nation, the Muslim
Brotherhood and Mr. Morsi’s supporters say the sudden turnaround proves that
their opponents conspired to make Mr. Morsi fail. Not only did police officers
seem to disappear, but the state agencies responsible for providing electricity
and ensuring gas supplies failed so fundamentally that gas lines and rolling
blackouts fed widespread anger and frustration.
The
Egyptian deep state was certainly working to undermine Morsi, and it will now
try to make the new system work. We’ve actually written about this kind of
sabotage in the past, and anyone thinking about Egypt’s future has to take
these kinds of forces well into account. But the bigger question not explored
in the Times piece is whether the passions unleashed over the past few months
can be controlled by the army and the deep state, especially given that the
lack of growth and the danger that instability will keep investment and
tourists at bay.
The
long term outlook is not pretty. The divisions between the Brotherhood and the
rest of society will probably deepen, and Egyptian Islamism will curdle and
sour while the army and its allies continue to make things work well enough to
keep the peace…for a while. Polarization and authoritarianism, a “managed democracy”,
Mubarakism without Mubarak—it’s what the army wanted all along. And the Saudis
and the United Arab Emirates seem ready to grease the wheels with money for a
while. They are rightly worried about what an Egyptian meltdown would do to the
region.
However,
it’s very important to remember that the old system that the deep staters want
to restore was and is a profoundly dysfunctional one. It was crony capitalism
for the rich and the high ranking, with large subsidies to keep the poor quiet
and complacent—and thuggish torturers in jail for those who didn’t shut up.
Public services were shambolic, the educational system was a disaster, and
poorly paid make-work government jobs offered a pale imitation of middle class
life for those lucky enough or connected enough to get them. For decades, this
system hasn’t been able to prepare Egypt for anything better, and Egypt’s youth
bulge has exacerbated all of these trends past the breaking point.
The
danger facing the Egyptian deep state isn’t the kind of liberal revolution that
the short sighted and uninformed once thought they spotted in Tahrir square.
That’s the good kind of revolution, where a more advanced and developed society
emerges from authoritarian rule like a butterfly hatching out of a cocoon. That’s
Spain after Franco, Chile after Pinochet, Poland after Communism. That’s the
crocuses bursting through the snowbanks as winter ends and spring begins.
That’s not, by and large, what the Egyptian Revolution was about.
Egypt
doesn’t face a Singapore-style tradeoff between a successful authoritarian
order and the risks of democracy. (Would that it did.) Egypt must choose
between an ineffective democracy and a dysfunctional authoritarianism. Probably
right now most Egyptians prefer dysfunctional order to dysfunctional chaos, so
the deep state has public opinion on its side. But unlike in Singapore or
China, where an authoritarian regime is presiding over a period of massive
growth, development, and rising living standards offering hope of profound
social transformation for the better, Egyptian authoritarianism can at best
promise to keep the lid on the mess for a while longer.
The
military seems to be the only player that has gotten what it wanted out of the
Egyptian Revolution so far: it wanted Mubarak gone, and it wanted military
supremacy over civilian politicians reaffirmed. Check and check. Better still,
the military top echelons probably think, some of the younger officers who used
to sympathize with the Brotherhood have recognized the error of their ways.
Those who don’t recoil from the Brotherhood will likely find promotions and
plum assignments mysteriously delayed.
People
worry whether Egypt will become another Algeria, with a long and bitter civil
war between the military and the Islamists driven out of the political system.
That’s conceivable but unlikely; the Brotherhood does not at this point seem to
have what it takes to mount a national insurgency. Also, the Saudis are pumping
money into an Islamist rival of the Brotherhood that will divide Egyptian
Islamism and make it harder for a powerful armed resistance to emerge.
Occasional acts of violence can’t be ruled out, but Egypt doesn’t seem headed
for an Algerian style civil conflict, with 100,000 or more dead.
But in
another sense, Egypt is already Algeria. In both countries the army is not just
a powerful political force; it is a leading economic actor with tentacles
extending throughout society. These are military republics, not to be confused
with democratic ones. Turkey used to be a military republic; Pakistan still is
one. They used to be common in Latin America.
In Iraq
and Syria, military republics fell when a single individual mastered the state
and transformed the military republic into a personal (and in the Syrian case,
dynastic) dictatorship. That is what Mubarak tried and failed to do, and why
the military allowed popular unrest to drive him from power. The Turkish
military republic fell when a charismatic politician at the head of a
majoritarian political movement was able to break its power. This is what
Egyptian President Morsi thought he was doing until the guards ushered him out
of his office.
The
Egyptian military republic is stronger and better run than Pakistan’s, but it
has never been as successful in modernizing Egypt as Atatürk and his successors
were in Turkey. Without the oil that lubricates military rule in Algeria,
Egypt’s rulers face stark social and economic problems, and the ossified,
pharaonic bureaucracy that is Egypt’s curse and government today has no hope of
solving these, ever.
What
Egypt’s deep state has to worry about is what Pakistan’s deep state has to
worry about: the progressive meltdown of the authoritarian structures on which
the system depends. In Pakistan, society’s infrastructure is rusting away as
society gradually degrades and order progressively gets less orderly—a social
implosion rather than social explosion is what we see there.
The
question is whether Egypt will slither down that slippery slope. Egypt’s
government structures are probably more bureaucratic and less competently
staffed than many offices in Pakistan, but Pakistan’s ethnic, religious and
regional differences make it a harder country to govern minimally well. Also,
one must note that Egypt’s military has succeeded at one big thing that the
Pakistani army hasn’t done: Egypt made peace with Israel on a basis that
satisfied its territorial claims; Pakistan hasn’t made peace with India on any
terms and is far from resolving its claims.
Nevertheless,
Egypt could start looking more like Pakistan. Unfortunately, Egypt gets harder
to govern as its population grows and becomes more demanding. Implosion more
than explosion is what we should worry about in the largest country in the Arab
world. The danger is real, and it is growing.