Democracy in Pakistan

[The Star]

THE TRANSITION TO GUIDED DEMOCRACY IN PAKISTAN

INTRODUCTION

On 12 October 1999, the Pakistani army under General Pervez Musharraf deposed the democratically elected government of Prime Minister Nawaz Sharif after Sharif tried to oust the General. Musharraf’s justifications for the coup echoed refrains similar to those offered by his military predecessors:
“Not only have all the institutions been played around with, and systematically destroyed, even the economy is in a state of collapse…self-serving policies have rocked the foundations of the Federation of Pakistan. My singular concern has been the well being of our country alone…the armed forces have moved in as a last resort to prevent any further destabilization.”

Since its inception more than fifty years ago, Pakistan has experienced four military coups. The first was staged by General Ayub Khan (1958), followed by General Yahya Khan (1969), General Zia ul-Haq (1977) and, finally, General Pervez Musharraf (1999). While the failure of democratic institutions in Pakistan is typically attributed to constitutional and judicial weaknesses, the poor quality of political leadership and the lack of socio-economic development, the structural constraints imposed on democratic institutionalization by the ‘political militarism’ of the Pakistani army remain generally under analyzed.The roots of authoritarianism in Pakistan can be traced back to the early years of independence when a host of internal, regional and external factors tilted the civil-military equation in the army’s favor.Only the military-bureaucratic-intelligence elite that has guided Pakistan’s destiny since 1947’, argues noted Pakistani political analyst Ahmed Rashid, ‘has had the right to determine the nature of threat to Pakistan’s national security and its solutions—not elected governments, parliament, civic organizations or even common sense’.When the British ceded power in 1947, the Muslim League was entrusted with the task of nation building in a multi-ethnic state.

With few or no support-bases in the areas that constituted the post-colonial state, the migrant League leadership sought refuge in centralized rule, swiftly adopting the Government of India Act 1935.

Pakistan’s cold war alliance with the United States driven in most part by its perceived insecurity vis-à-vis India, as well the inchoate nature of its political institutions and civil society, provided the military bureaucratic elites the opportunity to gradually expand their role within the power structures of the state.This institutional imbalance more than any other development would impede the development of democratic institutions. After the country’s first constituent assembly tried curtailing his powers, for instance, Governor-General Ghulam Muhammad disbanded the assembly on 24 October 1954.By the time the Second Constituent Assembly was convened, ‘it could do little more than follow the framework established by the governor-general. Instead of a decentralized legislature-dominated system, a form of presidential government emerged’.The country’s first constitution, promulgated in 1956, envisaged general elections within two years.

Wary that holding elections would entail handing over power to elected officials, President Iskander Mirza declared martial law on 7 October 1958. On 27 October 1958, the military under General Ayub, which had backed the President’s earlier action, deposed him to assume direct political power.Ayub quickly moved to ban political parties, disqualify politicians from seeking public office and gag the press.

While generous aid from the United States helped the junta achieve impressive economic growth rates, per capita gains were to remain restricted to a small urban industrial elite.

Within a decade, the negative political fallout from military’s misguided adventure in Indian-administered Kashmir, pervasive economic inequalities and growing political polarization along regional and class lines had begun to erode Ayub’s legitimacy, prompting populist forces like Zulfiqar Ali Bhutto’s Pakistan People’s Party to mobilize public opposition .

Transition to civilian rule proved short lived. In July1977, the army under General Zia deposed Bhutto amidst allegations of electoral rigging and manipulation by the Pakistan National Alliance (PNA), an umbrella grouping of nine opposition parties.Zia imposed martial law, dissolved parliament and
put the 1973 constitution in abeyance.Why did Bhutto fail to neutralize the military when its public credibility in the wake of the military defeat in East Pakistan was at an all-time low?

Bhutto had tried to dilute the military’s political influence, if only to secure his grip on power. The 1973 Constitution put the armed forces firmly under the ‘command and control’ of the federal government (Article 243). Moreover, military officers ha to swear not to engage in any political activities.Upon assuming power, General Zia had pledged to restore democracy and hold elections within the constitutional timeframe of 90 days.Lacking both domestic legitimacy and a broad support base, he postponed this for almost eight years.

In the meanwhile, he enlisted the support of the religious right by embarking on a sweeping Islamizationprogram, introducing parallel Islamic institutions in the judiciary and the economy and enacting discriminatory legislation against minorities and women..Zia used a rubber-stamp parliament to indemnify all the laws, acts and orders issued by his government.
The eighth Amendment to the 1973 Constitution empowered the president to dissolve the National Assembly, appoint military service chiefs, judges of the superior courts, and provincial governors.With his flanks secured, General Zia formally lifted martial law and handed over power to a civilian government in October 1985.

RETURN TO CIVIL RULE (1988-1999): CONTINUITY OR CHANGE?

Zia’s death in a mysterious plane crash in August 1988 paved the way for the restoration of civilian rule.

Convinced that its corporate interests would be served best by restoring democracy, the military agreed to transfer power to the PPP and its leader Benazir Bhutto only after ensuring that it would retain its institutional autonomy as well as an exclusive monopoly over significant external and internal policy areas including foreign and defense affairs.Hamstrung by these awesome structural constraints and preoccupied with maintaining its narrow parliamentary majority, the first PPP government failed to live up to the expectations of its electorate.Thus facing confining limits on their authority and the constant threat of coups and removal from power, elected leaders of both the PPP and PML-N were expected to perform the formidable task of simultaneously consolidating democracy and reforming the economy.Throughout Pakistan’s history, the military has claimed that its intervention was necessary to counter the threats to national security posed by the corruption and mismanagement of civilian politicians. But it is interesting to note that the alleged corruption of elected governments hardly ever triggered their dismissal.By entering into a substantive dialogue with NewDelhi, the prime minister had also hoped to ease bilateral tensions and sideline the military.

Unsurprisingly, the army sabotaged his peace overtures to India by sending troops into Kargil. Wary of the army’s discontent, Sharif made a futile attempt to remove General Musharraf when the former was on a trip to Sri Lanka. The army then seized power, dismissed the Prime Minister, and suspended the parliament and the constitution.In May 2000, the Supreme Court once again invoked the doctrine of necessity to rule that Musharraf’s coup was justified.

However, blaming the judiciary for legalizing military rule reveals only one side of the coin.

Military rulers have deftly pre-empted any opposition from the judiciary by ‘encouraging the superior judiciary to be compliant and to mandate their extra constitutional practices’.

RECONSTRUCTING RECONSTRUCTING ‘REAL’ DEMOCRACY ‘REAL’ DEMOCRACY (1999-2008 (1999-2008): ):

PAKISTAN’S GUIDED DEMOCRACY

When General Musharraf assumed power, he justified his coup on the grounds that destroying the ‘shame’ democracy of past civilian governments was necessary for restoring the ‘real’ one. Justifying interventions on the promise of democratic reforms is a time – tested tradition in Pakistan.
Like his predecessors, General Musharrafhas rarely disguised his desire to exercise absolute control over state power.

‘I am a soldier, I do not believe in sharing power’, he proclaimed cynically in a televised address, ‘I believe in the unity of command’.
In August 2001, he had named himself President in the National interest.
In the wake of 9/11 terrorist attacks on the United States, Musharraf, sensing an opportunity to secure international acceptance for his coup, quickly railed Pakistan behind the US-led anti – terror coalition.The US Congress waived democracy sanctions( imposed under Section 508 of the US Foreign Operations Appropriations Act after the military coup).
Japan and European donors follow suit, rescheduling loans and extending grants in aid.

International support boosted Musharraf’s domestic standing, providing him a chance to further entrench.

On 6 October 2001, the very eve of US military strike on Afghanistan, Musharraf extended his tenure as the COAS indefinitely.

In April 2002, the general elected foe another 5 years through a fraudulent referendum.In August of that year, he promulgated the Legal Framework Order (LFO) that empower him to dismiss elected government, dissolve the national assembly, appoint military services chiefs and approve appointments to the superior judiciary.

A supra – parliamentary National Security Council, headed by Musharraf, was created to oversee the performance of civilian
government.

In the run – up to the election October 2002, the military regime deployed the army – led National Accountability Bureau (NAB) as welas intelligence agencies to coerce the opposition parliamentary candidates and force them to join the pro – Musharraf, Pakistan Muslim League Quaid – e – Azam.
General Musharrafalso introduced several legal measures to stack the process against his political opposition.

The ‘Qualification to Hold Public Office Order, 2002’, barring anyone from holding the portfolio of prime minister twice, clearly targeted the two former prime ministers, NawazSharif and Benazir Bhutto.

Another, the Political Parties Order, 2002’, prevented those disqualified from seeking elections to parliament on corruption and other criminal convictions under Article 63 of the 1973 constitution from holding party posts.

The LFO amended Article 63 to include non – payment of utility bills and loans as well as convictions for absconding from court as grounds for disqualification.

In addition, the holding of bachelor’s degree was made compulsory for contesting elections.

While this condition disqualified half the members of National and Provincial Assemblies dissolved after the October coup.

The military regime also resorted to other forms of what opposition politicians called ‘pre – poll rigging’, namely gerrymandering and delimiting constituencies to assist the PML – Q, and other parties in pro – Military.

Grand National Alliance.

In the 10 October polls, no single political party was able to score a clear majority at national level, indicating a hung parliament.

More notably, the Muttahida Majlis –e – Amal (MMA), a coalition of six religious parties, secured third largest tally of seats in the National Assembly besides sweeping the ballot in Northwestern and Baluchistan provinces.

Systematic suppression of the moderate political parties ( and public resentment against the UA – led war on terror) has played into the hands of Islamist in a structural shift that could become entrenched the new reality of Pakistani politics.

But in the recent elections, this had been written on the wall, that it is time to show the door to the corrupt government of PML – Q.
Time has been proved the illegitimacy of PML Q and the last legion of corrupt government.


CONCLUSION

– Hide n’ Seek of self – advantage

– Hide and seek is not just an innocent game of children. It is also played with equal gusto by adults especially so, in Pakistan—hiding intentions and seeking self – advantage without mercy for the legitimate rights and concerns of others.
– Intentions are sometimes kept hidden fromeven close associates, who are likely to be
– most affected by the blowback repercussions of bad decisions.

– The game of musical chairs, which is at a core of politicking here, is often brazen
– exhibition of maneuvering and how act without self – respect when the ultimate
– goal is chair seeking.

– No opportunity is spared to make the common citizen feel small.

– There is an aura of permanent entitlement which surrounds the over privilege seekers,
– who feel little shame in stacking the cabinet, parliament and other sinecure posts with their kith and kin, with no thought about usurping the rights of the meritorious.

– The overriding philosophy is me first

– But most recent narrative is replete with episodes of stealth and deception, of loot-all
– and grab all.

– Beneath the burqa of democracy is plutocracy.

– The pioneers of the nation did not envision the homeland to be an oasis for the privileged few.

– 60 years after Pakistan’s independence, the time may have come for brutal self –
– examination. A few key questions are simply inevitable: where do things stand, what is happening, and what to expect?