Bernard Lewis: The Two Changes that Sabotaged Democracy in the Middle East

... The Islamic tradition insists very strongly on two points concerning the conduct of government by the ruler. One is the need for consultation. This is explicitly recommended in the Koran. It is also mentioned very frequently in the traditions of the Prophet. The converse is despotism; in Arabic istibdad, "despotism" is a technical term with very negative connotations. It is regarded as something evil and sinful, and to accuse a ruler of istibdad is practically a call to depose him.

With whom should the ruler consult? In practice, with certain established interests in society. In the earliest times, consulting with the tribal chiefs was important, and it remains so in some places -- for example, in Saudi Arabia and in parts of Iraq (but less so in urbanized countries such as Egypt or Syria). Rulers also consulted with the countryside's rural gentry, a very powerful group, and with various groups in the city: the bazaar merchants, the scribes (the nonreligious literate classes, mainly civil servants), the religious hierarchy, and the military establishment, including long-established regimental groups such as the janissaries of the Ottoman Empire. The importance of these groups was, first of all, that they did have real power. They could and sometimes did make trouble for the ruler, even deposing him. Also, the groups' leaders -- tribal chiefs, country notables, religious leaders, heads of guilds, or commanders of the armed forces -- were not nominated by the ruler, but came from within the groups.

Consultation is a central part of the traditional Islamic order, but it is not the only element that can check the ruler's authority. The traditional system of Islamic government is both consensual and contractual. The manuals of holy law generally assert that the new caliph -- the head of the Islamic community and state -- is to be "chosen." The Arabic term used is sometimes translated as "elected," but it does not connote a general or even sectional election. Rather, it refers to a small group of suitable, competent people choosing the ruler's successor. In principle, hereditary succession is rejected by the juristic tradition. Yet in practice, succession was always hereditary, except when broken by insurrection or civil war; it was -- and in most places still is -- common for a ruler, royal or otherwise, to designate his successor.

But the element of consent is still important. In theory, at times even in practice, the ruler's power -- both gaining it and maintaining it -- depends on the consent of the ruled. The basis of the ruler's authority is described in the classical texts by the Arabic word bay'a, a term usually translated as "homage," as in the subjects paying homage to their new ruler. But a more accurate translation of bay'a -- which comes from a verb meaning "to buy and to sell" -- would be "deal," in other words, a contract between the ruler and the ruled in which both have obligations.

Some critics may point out that regardless of theory, in reality a pattern of arbitrary, tyrannical, despotic government marks the entire Middle East and other parts of the Islamic world. Some go further, saying, "That is how Muslims are, that is how Muslims have always been, and there is nothing the West can do about it." That is a misreading of history. One has to look back a little way to see how Middle Eastern government arrived at its current state.

The change took place in two phases. Phase one began with Bonaparte's incursion and continued through the nineteenth and twentieth centuries when Middle Eastern rulers, painfully aware of the need to catch up with the modern world, tried to modernize their societies, beginning with their governments. These transformations were mostly carried out not by imperialist rulers, who tended to be cautiously conservative, but by local rulers -- the sultans of Turkey, the pashas and khedives of Egypt, the shahs of Persia -- with the best of intentions but with disastrous results.

Modernizing meant introducing Western systems of communication, warfare, and rule, inevitably including the tools of domination and repression. The authority of the state vastly increased with the adoption of instruments of control, surveillance, and enforcement far beyond the capabilities of earlier leaders, so that by the end of the twentieth century any tin-pot ruler of a petty state or even of a quasi state had vastly greater powers than were ever enjoyed by the mighty caliphs and sultans of the past.

But perhaps an even worse result of modernization was the abrogation of the intermediate powers in society -- the landed gentry, the city merchants, the tribal chiefs, and others -- which in the traditional order had effectively limited the authority of the state. These intermediate powers were gradually weakened and mostly eliminated, so that on the one hand the state was getting stronger and more pervasive, and on the other hand the limitations and controls were being whittled away.

This process is described and characterized by one of the best nineteenth-century writers on the Middle East, the British naval officer Adolphus Slade, who was attached as an adviser to the Turkish fleet and spent much of his professional life there. He vividly portrays this process of change. He discusses what he calls the old nobility, primarily the landed gentry and the city bourgeoisie, and the new nobility, those who are part of the state and derive their authority from the ruler, not from their own people. "The old nobility lived on their estates," he concludes. "The state is the estate of the new nobility." This is a profound truth and, in the light of subsequent and current developments, a remarkably prescient formulation.

The second stage of political upheaval in the Middle East can be dated with precision. In 1940, the government of France surrendered to Nazi Germany. A new collaborationist government was formed and established in a watering place called Vichy, and General Charles de Gaulle moved to London and set up a Free French committee. The French empire was beyond the reach of the Germans at that point, and the governors of the French colonies and dependencies were free to decide: they could stay with Vichy or rally to de Gaulle. Vichy was the choice of most of them, and in particular the rulers of the French-mandated territory of Syria-Lebanon, in the heart of the Arab East. This meant that Syria-Lebanon was wide open to the Nazis, who moved in and made it the main base of their propaganda and activity in the Arab world.

It was at that time that the ideological foundations of what later became the Baath Party were laid, with the adaptation of Nazi ideas and methods to the Middle Eastern situation. The nascent party's ideology emphasized pan-Arabism, nationalism, and a form of socialism. The party was not officially founded until April 1947, but memoirs of the time and other sources show that the Nazi interlude is where it began. From Syria, the Germans and the proto-Baathists also set up a pro-Nazi regime in Iraq, led by the famous, and notorious, Rashid Ali al-Gailani.

The Rashid Ali regime in Iraq was overthrown by the British after a brief military campaign in May-June 1941. Rashid Ali went to Berlin, where he spent the rest of the war as Hitler's guest with his friend the mufti of Jerusalem, Haj Amin al-Husseini. British and Free French forces then moved into Syria, transferring it to Gaullist control. In the years that followed the end of World War II, the British and the French departed, and after a brief interval the Soviets moved in.

The leaders of the Baath Party easily switched from the Nazi model to the communist model, needing only minor adjustments. This was a party not in the Western sense of an organization built to win elections and votes. It was a party in the Nazi and Communist sense, part of the government apparatus particularly concerned with indoctrination, surveillance, and repression. The Baath Party in Syria and the separate Baath Party in Iraq continued to function along these lines.

Since 1940 and again after the arrival of the Soviets, the Middle East has basically imported European models of rule: fascist, Nazi, and communist. But to speak of dictatorship as being the immemorial way of doing things in that part of the world is simply untrue. It shows ignorance of the Arab past, contempt for the Arab present, and unconcern for the Arab future. The type of regime that was maintained by Saddam Hussein -- and that continues to be maintained by some other rulers in the Muslim world -- is modern, indeed recent, and very alien to the foundations of Islamic civilization. There are older rules and traditions on which the peoples of the Middle East can build....