Crisis of Command
America’s Broken Civil-Military Relationship Imperils National Security
Addressing graduates of military academies is a standard responsibility for high-ranking military officers all over the world. But last week, Abdel Fattah al-Sisi, the commander of Egypt’s armed forces, which recently deposed the country’s first freely elected president, went far beyond the conventions of the genre in a speech to graduates of Egypt’s Navy and Air Defense academies. Sisi’s true audience was the wider Egyptian public, and he presented himself less as a general in the armed forces than as a populist strongman. He urged Egyptians to take to the streets to show their support for the provisional government that he had installed after launching a coup to remove from power President Mohamed Morsi, a longtime leader of the Islamist Muslim Brotherhood. “I’ve never asked you for anything,” Sisi declared, before requesting a “mandate” to confront the Muslim Brotherhood, whose supporters have launched protests and sit-ins to denounce the new military-backed regime.
Sisi’s speech was only the latest suggestion that he will not be content to simply serve as the leader of Egypt’s military. Although he has vowed to lead Egypt through a democratic transition, there are plenty of indications that he is less than enthusiastic about democracy and that he intends to hold on to political power himself. But that’s not to say that he envisions a return to the secular authoritarianism of Egypt’s recent past. Given the details of Sisi’s biography and the content of his only published work, a thesis he wrote in 2006 while studying at the U.S. Army War College in Pennsylvania, it seems possible that he might have something altogether different in mind: a hybrid regime that would combine Islamism with militarism. To judge from the ideas about governance that he put forward in his thesis, Sisi might see himself less as a custodian of Egypt’s democratic future than as an Egyptian version of Muhammed Zia ul-Haq, the Pakistani general who seized power in 1977 and set about to “Islamicize” state and society in Pakistan.
Last summer, when Morsi tapped Sisi to replace Minister of Defense Muhammad Tantawi, Morsi clearly believed that he had chosen someone who was willing to subordinate himself to an elected government. Foreign observers also interpreted Sisi’s promotion as a signal that the military would finally be professionalized, beginning with a reduction of its role in politics and then, possibly, the economy. Sisi’s initial moves as defense minister reinforced this optimism. He immediately removed scores of older officers closely associated with his corrupt and unpopular predecessor. And he implicitly criticized the military’s involvement in politics after the ouster of Hosni Mubarak in 2011, warning that such “dangerous” interventions could turn Egypt into Afghanistan or Somalia and would not recur.
The Muslim Brotherhood also had a favorable attitude toward Sisi, and certainly did not see him as a threat. Brotherhood spokesmen praised his dedication to military modernization and noted that, unlike his predecessor, who maintained close ties to Washington, Sisi was a fierce Egyptian nationalist -- “100 percent patriotic,” in the words of Gamal Hishmat, the official spokesman for the Brotherhood’s Freedom and Justice Party. In May, when a prominent ultraconservative Salafist named Hazem Abu Ismail criticized Sisi for making “emotional” appeals for popular support for the military, a number of Brothers leapt to the general’s defense.
Throughout Sisi’s tenure as defense minister, the Brotherhood dismissed his political potential. Obviously, they underestimated him. That is not to say that he had been planning a coup the entire time; there is not enough evidence to determine that. But there is plenty of evidence that Sisi is not nearly as modest as he has always preferred Egyptians to believe. It is significant that he not only remained minister of defense in the new government but also took the post of first deputy prime minister. Following the cabinet’s formation, Sisi’s spokesperson appeared on television to say that although the general was not running for the presidency, there was nothing to prevent him from so doing if he retired from the military. Sisi also had his spokesman release a 30-minute YouTube video glorifying the general and the military, taking particular care to illustrate the military’s provision of goods and services to civilians. Not long thereafter, demonstrators in Cairo and elsewhere were seen carrying large photos of Sisi.
As fears of the general’s political ambitions have intensified, so have concerns about the nature of his political views. Since deposing Morsi, Sisi has clearly been trying to give the impression that he is committed to democracy. He has taken pains to ensure that civilian political figures share the limelight with him. Hazem al-Beblawi, who was appointed as the prime minister of the transitional government, claimed in his first television interview after taking office that he had not met Sisi prior to the swearing-in ceremony and that the general had not intervened in any way in his choice of ministers.
But even though he overthrew a government dominated by Islamists, there is reason to suspect that Sisi’s true goal might not be the establishment of a more inclusive, secular democracy but, rather, a military-led resurrection and reformation of the Islamist project that the Brotherhood so abysmally mishandled. Indeed, after Morsi became president, he tapped Sisi to become defense minster precisely because there was plenty of evidence that the general was sympathetic to Islamism. He is reputed to be a particularly devout Muslim who frequently inserts Koranic verses into informal conversations, and his wife wears the conservative dress favored by more orthodox Muslims. Those concerned about Sisi’s views on women’s rights were alarmed by his defense of the military’s use of “virginity tests” for female demonstrators detained during the uprising against Mubarak. Human-rights activists argued that the “tests” were amounted to sexual assaults; Sisi countered that they were intended “to protect the girls from rape.”
Morsi likely also found much to admire in the thesis that Sisi produced at the U.S. Army War College, which, despite its innocuous title (“Democracy in the Middle East”), reads like a tract produced by the Muslim Brotherhood. In his opening paragraph, Sisi emphasizes the centrality of religion to the politics of the region, arguing that “for democracy to be successful in the Middle East,” it must show “respect to the religious nature of the culture” and seek “public support from religious leaders [who] can help build strong support for the establishment of democratic systems.” Egyptians and other Arabs will view democracy positively, he wrote, only if it “sustains the religious base versus devaluing religion and creating instability.” Secularism, according to Sisi, “is unlikely to be favorably received by the vast majority of Middle Easterners, who are devout followers of the Islamic faith.” He condemns governments that “tend toward secular rule,” because they “disenfranchise large segments of the population who believe religion should not be excluded from government,” and because “they often send religious leaders to prison.”
But Sisi’s thesis goes beyond simply rejecting the idea of a secular state; it embraces a more radical view of the proper place of religion in an Islamic democracy. He writes: “Democracy cannot be understood in the Middle East without an understanding of the concept of El Kalafa,” or the caliphate, which Sisi defines as the 70-year period when Muslims were led by Muhammad and his immediate successors. Re-establishing this kind of leadership “is widely recognized as the goal for any new form of government” in the Middle East, he asserts. The central political mechanisms in such a system, he believes, are al-bi'ah (fealty to a ruler) and shura (a ruler’s consultation with his subjects). Apologists for Islamic rule sometimes suggest that these concepts are inherently democratic, but in reality they fall far short of the democratic mark.
Sisi concludes that a tripartite government would be acceptable only if the executive, legislative, and judicial branches are all sufficiently Islamic; otherwise, there must be an independent “religious” branch of government. He acknowledges that it will be a challenge to incorporate Islam into government, but concludes that there is no other choice. (As an afterthought, he adds that “there must be consideration given to non-Islamic beliefs.”)
If Sisi’s thesis truly reflects his thinking -- and there is no reason to believe otherwise -- it suggests not only that he might want to stay at the helm of the new Egyptian state but that his vision of how to steer Egyptian society differs markedly from those of the secular-nationalist military rulers who led Egypt for decades: Gamal Abdel al-Nasser, Anwar al-Sadat, and Mubarak. The ideas in Sisi’s thesis hew closer to those of Zia ul-Haq, who overthrew Pakistan’s democratically elected government in 1977 and soon began a campaign of “Islamicization” that included the introduction of some elements of sharia into Pakistani law, along with a state-subsidized boom in religious education. It is worth noting that Sisi has gone out of his way to court the Salafist al-Nour Party, by ensuring that the constitutional declaration issued on July 13 preserved the controversial article stating “the principles of sharia law derived from established Sunni canons” will be Egypt's “main source of legislation.” He also tried to undercut support for the leaders of the Brotherhood by appealing directly to their followers, referring to them as “good Egyptians” and “our brothers.” These moves may have been intended to inoculate him against the charge that the coup was anti-Islamist -- a critical point, since Islamism still enjoys broad support in many parts of Egyptian society. But it may also reflect a genuine belief in and commitment to Islamism.
If Sisi continues to seek legitimacy for military rule by associating it with Islamism, it could prove to be a disaster for Egypt. At the very least, it would set back the democratic cause immeasurably. It would also reinforce the military’s octopus-like hold on the economy, which is already one of the major obstacles to the country's economic development. And it would also pose new dilemmas for the military itself: somehow it would need to reconcile serving the strategic objectives of Islam and those of its American patrons. It’s not clear whether that circle could be squared. And the experiment would likely come at the expense of the Egyptian people.