Pakistan's history has demonstrated that the legitimacy
of a democratic government is drawn not so much from the formal or legalistic
structures of power, but by its ability to achieve a minimum of three
objectives: (1) Initiating a process of economic development in which
an improvement in the economic condition of the deprived sections of the
populace becomes palpable. (2) A rule of law which can at least ensure
security of life to the citizens. (3) Building institutions through which
the will of the people could become operative in the system of national
decision making.
The government of Mian Muhammad Nawaz Sharif lost
its legitimacy because it had demonstrably failed in achieving these minimal
objectives. This failure to deliver, intensified to a critical level,
the three key elements of the crisis that threatens the state: (i) A collapsing
economy (ii) The emergence of armed militant groups as rival powers to
that of the state within its formal territorial domain (iii) The erosion
of many of the institutions of the state through which effective governance
is exercised.
Given the dynamics of Pakistan's power structure and
the relatively greater institutional strength of the military, when a
democratic regime fails to deliver, both power and legitimacy would be
expected to flow to the military. (An analysis of these dynamics was attempted
in my 1991 paper titled: The Dynamics of Power: Military, Bureaucracy
and the People, published in K. Rupasinghe and K. Mumtaz e.d.: Internal
conflicts in South Asia, Zed Books, London 1996). Before its end Mr. Nawaz
Sharif's government was unable to comprehend this structural feature of
power dynamics in Pakistan. It attempted to wrest back power in its favour
not through better performance, but through juvenile aggressiveness, deception
and intrigue against the military, (the last remaining institution), and
in so doing brought the country to the edge of civil war.
The regime of Prime Minister Nawaz Sharif like the
earlier regime of Prime Minister Z.A. Bhutto, with a huge electoral majority
in Parliament had a golden opportunity to strengthen democracy in Pakistan.
It could have been done by delivering to the citizens, economic well being,
security, and institutionalized expression of the popular will. Tragically
in both cases the leaders sought to personalize power instead of building
democratic institutions and empowering the people. The Nawaz regime represented
the paradox of an elected government attempting to internally divide,
demoralize and subordinate to executive authority those institutions of
state and civil society which impart the checks and balances to governmental
power so essential to democratic rule. Thus governance became a process
of eroding the democratic structure to a point where it became a thin
façade for authoritarian rule. Inspite of the adverse international
environment for a coup, power did flow to the military when the crisis
of the state had reached a critical level, and the democratic government
was seen to be exacerbating rather than resolving the crisis.
The question that now arises is what are the constraints
and challenges which will condition the form and functioning of the military
regime in this interregnum before the next democratic dispensation. Just
as in the preceding democratic government, the legitimacy of the new military
regime will be determined by the extent and pace of its success in resolving
what has now become an interlocking crisis of state and economy. Four
constraints appear to constitute the parameters within which this regime
can find the space for maneuver. (As Hegel pointed out, "freedom
is the recognition of necessity"):
1. The international community has demonstrated considerable
understanding of the circumstances under which the military intervention
had become necessary. However they will apply continuing pressure on the
military government to lay the ground work for ushering in democracy in
Pakistan.
2. There appears to be a wide spread sense of relief
amongst the people of Pakistan that the military may have pulled back
the country from the precipice. At the same time they are impatient for
efficacious government actions which could bring them security, and relieve
them from the crushing economic pressures of unemployment, poverty and
lack of basic services. In a situation where Pakistan's polity is polarized
along various sectarian, linguistic and provincial identities, the sense
of relief that accompanied the army take over could be replaced by violent
social upheaval, if this regime does not initiate a credible process of
improving the economic conditions and the provision of security to the
citizens. Thus the second constraint is time. The military regime must
not only deliver but be seen to be delivering quickly.
3. Given the unprecedented magnitude and complexity
of the crisis that the military government faces, it may be prudent to
limit its agenda to objectives which it can achieve by a time bound set
of actions. The government does not necessarily have to announce the time
frame, but it must work in terms of one, in its internal councils. It
must take quick surgical actions to steady the ship of state and economy
and then withdraw. It cannot afford to get bogged down into the minutiae
of an open ended agenda. In any case even the task of restoring the writ
of the state and reviving the economy is a herculean one It will require
the finest talent to devise a strategy to achieve these objectives and
then manage their implementation. The best and the brightest must be mobilized
for what is nothing less than the battle for Pakistan. Let us make no
mistake about it. If the military does not succeed in stemming the rot
then there is no institution left to shoulder the burden. To turn a phrase
from De Gaulle: Apres Vous, le-deluge (After you, the deluge). The third
constraint therefore is to acquire the expertise to devise and implement
a strategy for resolving the crisis of state and economy.
4. In a situation where the people within the country
expect quick results on the economic and law and order fronts and where
the international community expects a return to democracy without much
delay, the question of effective communication by the government becomes
important. Truthful and effective communication regarding the performance
and effects of the government's crisis resolution actions, may be vital
for winning both time and financial space.
It is an irony of history that leaders in successive
democratic governments in their lust for power and wealth have so undermined
the institutions of state and society and have so exacerbated the crisis
of the economy that now the people expect a military regime to lay the
foundations of a new democratic order. Socrates was once asked, "How
will the state of Greece decline?". His answer resonates through
Pakistan's history: "When two kinds of individuals come into government:
Those with a lust for power and those with a greed for wealth". The
crisis of state and economy in Pakistan today is sad testimony to the
validity of Socrates' insight. Once grasped, it also signifies the challenges
for the military regime and civil society respectively. For the military
regime the challenge is to initiate the process of economic reconstruction
and re-establish the writ of the state. For civil society the challenge
is to build a political culture and the institutions of a democratic polity
through which leaders of integrity and competence can emerge, to sustain
democracy when it flowers again.
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