1 the Sudden Collapse of Hosni Mubarak's Nearly 30-Year Presidency and the Implosion of His Ruling National Democratic Party (
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COUNTRIES AT THE CROSSROADS COUNTRIES AT THE CROSSROADS 2011: EGYPT 1 JOSHUA STACHER INTRODUCTION The sudden collapse of Hosni Mubarak‘s nearly 30-year presidency and the implosion of his ruling National Democratic Party (NDP) in early 2011 came as a shock to Egyptians and international observers alike. Before the uprising occurred, few would have predicted that protesters could overwhelm and defeat Mubarak‘s extensive security apparatus, or that the military would turn on the president in an attempt to salvage parts of the old regime. However, there were many signs of an impending political impasse in the months and years leading up to the crisis, as the mounting grievances of the Egyptian people were consistently neglected by the government. The most visible strains on the system included unprecedented waves of collective industrial action—partly in response to aggressive economic reforms that almost exclusively benefited Mubarak and NDP insiders—as well as increasing political activism in the streets and online to voice the public‘s objections to blatantly rigged elections, the possibility of a hereditary presidential succession, and egregious cases of police brutality. The deterioration of the regime was particularly evident in the contraction of political freedoms and economic opportunities for those outside the political and economic elite. The Egyptian government frequently violated the civil and political rights of its citizens in the final years of Mubarak‘s presidency. Torture and arbitrary detentions became commonplace. The freedoms of assembly and association, which had always been subject to surveillance by the security services, were hampered by additional restrictions. The constitutional right to participate in elections as a voter or candidate became devoid of substance as the authorities imposed an array of legal and extralegal obstacles. The Supreme Council of the Armed Forces (SCAF), which assumed power after Mubarak‘s ouster, is set to remain in place until a presidential election can be held in 2012 or 2013. Egypt was not a military dictatorship during Mubarak‘s presidency, however. The military was instead a key constituent member of the country‘s ruling coalition. While generals were regularly appointed as provincial governors,1 they were 1 Joshua Stacher is an assistant professor of political science at Kent State University. His book, Adaptable Autocrats: Regime Power in Egypt and Syria, is forthcoming from Stanford University Press in March 2012. 1 COUNTRIES AT THE CROSSROADS infrequently named as cabinet ministers. According to a 2001 study, only 8 percent of Mubarak‘s ministerial appointees emerged from the military.2 This percentage was reduced further after a technocratic cabinet took over in July 2004. Compared with the tenures of former Egyptian leaders Gamal Abdel Nasser (1954–70) and Anwar al-Sadat (1970–81), appointments under Mubarak demonstrated the military‘s declining role in ordinary governance. The percentages of military officers in Nasser‘s and Sadat‘s cabinets were 33 and 20, respectively.3 Some have argued on this basis that Egypt‘s military was ruling but not governing in recent years.4 Also included in Mubarak‘s coalition were the security services and a new class of businessmen with close ties to the president‘s son and rumored heir, Gamal Mubarak. The remaining component of the regime was the NDP hierarchy, which managed an important patronage network. When challenged by labor strikes, political activists, independent judges, leading journalists, or groups like the banned but partially tolerated Muslim Brotherhood, the regime‘s constituents united to safeguard the power of the president. Mubarak, a former air force general and Sadat‘s vice president, wielded centralized authority over the political arena, and regime elites worked in various ways to enable the president‘s office to encroach on other potential sites of contestation. The security services grew in importance during Mubarak‘s final years in power. Charged with disrupting expressions of dissent, the General Intelligence Service (GIS) and the Interior Ministry‘s State Security Investigative Service (SSIS) suppressed public anger and maintained a façade of political stability. The GIS, led by Omar Suleiman, was the more powerful of the two, though it was principally concerned with external threats. The SSIS and the 300,000-strong Central Security Forces were the agencies used most frequently to quash domestic unrest or criticism. The Egyptian government spent more on internal security than on housing or health,5 with the security apparatus employing approximately 1.5 million people by 2010.6 As the coercive arms of the regime penetrated society and worked ever harder to prevent the spread of dissent, police brutality expanded in scope. Cases such as that of Khalid Said, a young man who was beaten to death by police in 2010, became matters of national public outrage. Even as the use of force increased, the legal manipulation that characterized Mubarak‘s presidency grew more sophisticated. New laws restricted the space in which opposition elements could organize and enabled state officials to silence dissenting voices in a variety of ways. Key opposition demands such as the cancelation of emergency rule, in place since 1981, remained unfulfilled. Popular objections to domestic and foreign policies were disregarded. Redundant courts and the restriction of judicial autonomy also became more pronounced in the late Mubarak period. The judiciary, which had once been a meaningful arbiter of political disputes, was emasculated after a surge of judicial activism in 2006 (see Rule of Law).7 Physical and legal attacks on journalists also became a fact of life in Egypt. The regime‘s initial response to the popular uprising in early 2011 consisted of extreme coercion. However, when this failed, a change in the ruling coalition became the most preferable option for the regime‘s surviving elites. The military returned to the apex of power, while the privileged business class and the NDP were sacrificed as the security forces were at least superficially dismantled. Leading figures—with the notable exception of Omar Suleiman—were charged or fled into exile, but the security apparatus is being reconstituted. Despite a name change from State Security to National Security, there is 2 COUNTRIES AT THE CROSSROADS little evidence of meaningful structural reforms in the country‘s most reviled security agency.8 While the future course of the ongoing transition remains uncertain, it is now possible to illuminate the breakdown in governance that occurred during Mubarak‘s last years in power. ACCOUNTABILITY AND PUBLIC VOICE National and local elections were held regularly during Mubarak‘s 30-year rule, but the state orchestrated the results, leaving the NDP with little electoral legitimacy. As in many authoritarian regimes, the leadership was generally hostile to the notion of election monitoring by independent organizations,9 and the electoral framework was so decidedly skewed toward the ruling party that vote rigging on election day itself was often superfluous. Law No. 173 of 2005 stipulates that there is universal suffrage, but voter lists and balloting procedures were so deeply flawed that most Egyptians declined to participate. This low turnout served the interests of the NDP by increasing the influence of fraudulent ballots and loyalist voters who could be mobilized through the misuse of administrative resources. Opposition-oriented voters were frequently exposed to violence. It was not unusual, particularly in hotly contested areas, for gangs of hired thugs (baltagiya) to prevent voting for an opposition candidate.10 Similarly, the state often deployed truncheon-wielding riot police to physically bar would-be voters from the polls.11 Nine people were killed in such confrontations during the 2010 parliamentary elections. Given the risk of violence, the citizenry overwhelmingly stayed home during elections, and official turnout figures were routinely dismissed as inflated. In 2010, the state claimed that 27.5 percent of the 41 million registered voters participated in the parliamentary elections,12 but this figure, even if accurate, would be one of the lowest in the world for national legislative balloting.13 The Egyptian Association for Community Participation Enhancement claimed that the actual turnout was around 10 percent, citing research by 1,000 monitors covering 40 of the 222 electoral districts across Egypt.14 The Egyptian Organization for Human Rights reported figures as low as 5 percent.15 Previous parliamentary elections in 2005, 2000, 1995, and 1990 all had similarly low rates of voter participation. Those who did vote were often enticed or compelled to do so by the state. In addition to the small number of people who directly benefited from the status quo, rank- and-file state employees were bused to polling stations and instructed to vote for their director‘s chosen candidate, inevitably an NDP member. The poor were also drawn to the polls by direct payments or threats that their limited public services and state assistance would be cut off if they failed to turn out for the ruling party.16 A major exception to the trend of low participation pertained to supporters of the banned Muslim Brotherhood, whose candidates ran as independents. Critics accused the Islamist group of exploiting religion to win electoral support, but the 83-year-old organization was the only true grassroots entity in Mubarak‘s Egypt. It has offices and members spread across much of the country, particularly in the Nile Delta, and most of its candidates actually lived in their constituencies.17 When the state chose to ease its repression of the group, it fared well at the polls. In 2005, the Muslim Brotherhood won 3 COUNTRIES AT THE CROSSROADS 88 of the 150 legislative seats it contested in the parliament‘s 444-seat lower house, the People‘s Assembly. With this 20 percent bloc, the group was able to influence the behavior of NDP lawmakers, though not how they voted.18 The People‘s Assembly grew in 2010 under a new law that set aside 64 new seats for women.