
Violence is rooted in the flawed 1943 power-sharing pact.
Beirut, Lebanon - Huddled
at home in front of their TVs during last week's fighting, the Lebanese
relived one of their worst memories: masked gunmen setting up makeshift
checkpoints and demanding people's identity cards. The image of gunmen
stopping civilians at checkpoints to sort and often murder them on the
basis of religion is perhaps the most enduring symbol of Lebanon's
15-year civil war.
During that war, the sectarian divide was
between Muslims and Christians. This time, the conflict is mainly
between Sunnis and Shiites. It is also an extension of the ongoing
proxy war in Iraq – pitting Iran and Syria (which support the Shiite
militia Hezbollah) against the United States, Saudi Arabia, and other
Sunni Arab regimes (which back Lebanon's Sunni- and Christian-dominated
government).
Each Lebanese faction accuses the other of serving
external masters. Hezbollah claims the US put the ruling coalition up
to issuing two recent orders: one outlawing the militia's private
communications network and another dismissing the security chief at the
Beirut airport. In turn, the government accuses Hezbollah of carrying
out a "coup" at the behest of Iran and Syria.
But while external
players have a hand in the latest bloody confrontations, they don't
deserve all the blame. For the most part, the Lebanese did this to
themselves – and they need to find a political settlement of their own
by modernizing an antiquated power-sharing system. Otherwise, the
Sunni-Shiite rift in Lebanon will explode, especially since it has been
fueled by years of sectarian bloodletting in Iraq. TV stations showing
pictures of mutilated bodies, rumors of forced evacuations on both
sides, and a gunman opening fire on a funeral – these sound like scenes
from Iraq, but now they're taking place in Lebanon.
On May 9,
Hezbollah dispatched hundreds of heavily armed fighters into West
Beirut, and they quickly routed Sunni militiamen, took control of their
political offices, and shut down media outlets owned by the Sunni
leader Saad Hariri (son of former Prime Minister Rafik Hariri,
assassinated in 2005). The US-allied government of Prime Minister Fouad
Siniora appeared powerless, while the Lebanese Army stood on the
sidelines. On May 15, the government rescinded its orders, Hezbollah
pulled its fighters off the streets, and leaders of the two factions
headed to Qatar to negotiate.
The standoff in Lebanon is
extremely dangerous, and a political settlement will be difficult. The
country has been without a president since November, when Syrian ally
Emile Lahoud's term ended. Since then, the two opposing factions – a
parliamentary majority led by Mr. Hariri, and an opposition led by
Hezbollah and its Maronite Christian ally Michel Aoun – agreed on Gen.
Michel Suleiman, head of the Lebanese Army, as a compromise for
president. But the two blocs have failed to agree on the makeup of a
new cabinet, and the parliamentary vote to choose a new president has
been postponed 19 times.
The paralysis actually began in November
2006, when six ministers representing Hezbollah and its allies resigned
from Mr. Siniora's cabinet. Hezbollah and Mr. Aoun then launched an
ongoing protest in downtown Beirut.
Today, Lebanon's crises are
interconnected – the pressure on Hezbollah to give up its weapons, the
need to agree on a new electoral law before parliamentary elections in
2009, the country's future relationship with Syria, and the disarming
of various factions in 12 Palestinian refugee camps scattered across
the country.
Lebanon's problems are rooted in a 1943
power-sharing agreement installed when the country won its independence
from French colonial rule. The system was designed to keep a balance
among 18 religious sects, dividing power between a Maronite president,
a Sunni prime minister, and a Shiite speaker of parliament. This system
extends from the top ranks of government to the lowest rungs of civil
service jobs, and has barely changed since it was put in place 65 years
ago.
When civil war broke out in 1975, the political imbalance
helped drive the major sects to form their own militias. Because of the
confessional system, Lebanese political institutions never got a chance
to develop; the country remained dependent on the powerful clans and
feudal landlords that held sway in much of Lebanon. The zaeem, or confessional leader who usually inherited rule from his father, became paramount during the war.
Confessionalism
leads to a weak state. It encourages horse-trading and alliances with
powerful patrons. And it is easily exploited by outside powers. But
most of the current players are too invested in this system to really
change it. And foreign patrons do not want change, because that could
reduce their influence.
Even if the two factions can diffuse the
unfolding sectarian tragedy and reach a compromise on the presidency,
another political crisis is sure to emerge, unless Lebanon's leaders –
and its people – tackle the root causes of the country's instability.
Eventually, the Lebanese will have to address the question of what kind
of country they want: one built on sectarian gerrymandering or a more
egalitarian way of sharing power.
• Mohamad Bazzi is the Edward R. Murrow Press Fellow at the Council on Foreign Relations in New York city.
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