Paul E. Salem
Continued
Michel Awn: From the Military into Politics Michel Awn was born to a lower middle-class family in the southern
Beirut suburb of Haret Hurayk. After high school, he joined the military
academy as a means of advancement and received his commission from General
Fuad Chehab, the former Commander of the Army. Chehab had been elected
President with support from Abd al-Nasir and the United Stated after
the brief civil war of 1958. It is perhaps the example of Chehab, a man
who had moved successfully from military to political power and who offered
an acceptable nationalist-statist middle ground in the wake of the brief
civil war of 1958, that first planted the seed of political ambition in
the young Lieutenant. Awn received gunnery training in France and the United
States and climbed steadily in the Lebanese Army's officer corps.
He achieved prominence in the early 1980s as the commander of the Army's
powerful Eighth Brigade. This Brigade was rushed to the mountains east
of Beirut in 1983 to control the area following fighting between the Christian
Lebanese Forces militia (LF) and the Druze Progressive Socialist Party
militia (PSP). This fighting had left the Christian militia routed, many
Christian mountain villages overrun, and threatened the seat of the Presidency
in nearby Ba`abda. It was the Eighth Brigade's defense of the mountain
town of Suk al-Gharb that preserved the constitutional government. Looking
down on the Presidential Palace from Suk al-Gharb, Awn must have felt that
the officers and soldiers who had put their lives on the line in defense
of the state had a right to a substantial say in its affairs.
Appointed Commander of the Army in 1984 to succeed General Ibarhim Tannous,
who had overseen the American re-equipping and re-training of the Army,
Awn consolidated his position within the military. Popular with the troops
since his days in Suk al-Gharb as a front-line general who mixed freely
with them and shared their risks, he gained widening support in the officer
outside interference from politicians or the militias in Army affairs.
Politically, he kept a low profile, trying to avoid any premature exposure
that might jeopardize his strategic but appointive position as head of
the Army.
As President Amin Gemayel's term approached its end, jockeying began among
the many Maronite contenders for the powerful six-year elective post of
President. As a prominent Maronite and head of the Army, which remained
at least nominally united and included soldiers and officers from all confessional
communities. Awn's name was frequently bandied about as a candidate. As
a military man with no political-family background, he stood apart from
the majority of candidates who represented the traditional Lebanese political
class.
Awn's public position was that he would not run for the Presidency, but
if elected, he would serve. It soon became clear, however, that Awn was
working quite actively for his candidacy. He had assembled a working team
and had begun putting out feelers of support to the U.S., Syria, and other
players on the Lebanese political scene. Both the Syrian and the U.S. response
was negative; Syria wanted a President over whom it would be sure to have
some influence, and so it took a dim view of Awn who had fought some of
its militia allies in Lebanon, like the Druze PSP and the Shi`ite Amal
movement. The U.S., on the other hand, was flatly opposed to a military
man who, it feared, would exacerbate a crisis the U.S. was trying to keep
out of the news and off its agenda. The first attempt at electing a President took place on August 18, 1988
when the Speaker of Parliament, Husayn al-Husayni, scheduled a Parliamentary
session which, had it secured a quorum, would have elected Former President
Sulayman Franjiyyeh, the candidate that Syria openly favored and campaigned
for. Franjiyyeh's election was opposed by the U.S., the powerful Lebanese
Forces militia, and Awn. Most of the Christian Deputies stayed home or
were kept home by the LF, and the election did not take place. Subsequently,
intensive rounds of negotiations between the U.S. and Syria ended in agreement
on the Maronite Deputy From Akkar, Mikhail Daher, as compromise candidate.
The Lebanese Forces and Awn, together, prevented a quorum and undermined
Daher's election. The country was left on September 22, 1988, the last
day of Gemayel's term, facing a constitutional vacuum.
Thursday, the 22nd of September, was taken up with desperate attempts to
form a caretaker government. They proved fruitless, however, as Gemayel
insisted on a Maronite Prime Minister to lead the caretaker government,
while Prime Minister Salim al-Hoss and other Muslims with Syrian backing
insisted that the Prime Minister should be, as is customary, a Muslim.
As day turned into night and the constitutional deadline approached, the
mood in the Presidential Palace, where many Christian leaders had assembled,
grew darker. Finally, in the wake of the failure to come to any compromise
allowing for a broad-based cabinet of politicians, and with only minutes
to spare, Gemayel turned reluctantly to Awn and exercised his last prerogative
as President by appointing Awn Prime Minister heading a military cabinet
made up of the members of the confessionally-balanced Military Council.
Upon the announcement of the new cabinet, the three Muslim officers of
the Military Council promptly declined to participate, and Awn was left
heading a cabinet composed of himself and two other Christian ministers,
Generals Isam Abu Jamra and Edgar Ma`louf.
Salim al-Hoss, who had become Prime Minister after Prime Minister Rashid
Karami was assassinated in 1987, refused to recognize Awn's government
and, with wide Muslim and Syrian backing, continued to head his government
in West Beirut. For the next year, there were, in effect, two rival governments
-- one in Ba`abda headed by Awn and the other in West Beirut headed by
Hoss.
Initially, the division was expected to be short-lived as both Awn and
Hoss were ostensibly committed to arranging for early presidential elections.
Indeed, necessary government business continued to be transacted through
tacit cooperation between the two cabinets. It soon became clear, however,
that Awn had greater ambitions. He denied the legitimacy of the Hoss cabinet
and considered his cabinet to enjoy not only the usual authority of the
Council of Ministers, but also the authorities of the President; for, according
to the Lebanese Constitution, if the post of the President falls vacant,
the powers of the Presidency are entrusted to the Council of Ministers.
He saw no urgency in holding presidential elections and embarked instead
on an independent political course.
The Challenge to the Status Quo The outlines of Awn's plans emerged as he moved to confront the militias
that had arisen in the war. His first clash was with the Christian Lebanese
Forces militia over control of the Beirut port. This turned into open battle
in mid-February of 1989 and led to the return of that port to the state.
His second clash came only a month later when he imposed a sea blockade
on all other ports in the country operated by militias. This triggered
the opposition of the Shi`ite Amal movement, the Druze PSP, and the Christian
Marada of Sulayman Franjiyyeh as well as the opposition of their Syrian
patrons. Syria's stand against Awn's move led to an escalation of the crisis,
and, on March 14, Awn declared a 'war of liberation' against Syrian forces
in Lebanon.
With strong Iraqi support and in alliance with the Lebanese Forces, Awn
fought for over six months, neither gaining nor losing ground. The cost
of the war was massive, with over 1,000 dead, 5,000 wounded, and $1.2 billion
of damages to homes, businesses, and the country's infrastructure. The
war, however, did generate intense international and regional attention
and focused efforts on the need for some resolution to the Lebanese crisis.
The diplomatic exit came in the form of an American-backed Arab League
initiative in which the Lebanese Parliament, meeting in Saudi Arabia, would
discuss and approve an agreement providing an acceptable middle-ground
for all. Awn would call of his 'war of liberation', Syria would provide
a timetable for the withdrawal of its forces from Lebanon, and the Lebanese
would agree on a new formula for equitable power-sharing among themselves.
This formula gained the support of the Arab states led by Saudi Arabia
and of the Western powers led by the United States.
Agreement was reached in Taif, Saudi Arabia, in September 1988 on political
reform, the ending of the war in Lebanon, the establishment of special
relations between Lebanon and Syria, and a framework for the beginning
of Syrian withdrawal from Lebanon. Awn, however, rejected the Agreement.
His main objection to it was that Syria had committed itself neither to
rapid nor complete withdrawal. To the contrary, he complained, Syrian forces
were to stay in place for a full two years, ostensibly "assisting
the Lebanese government extend its authority." After that, Syrian
forces were to be redeployed only as far as the Biqa` valley. The Agreement
gave no timetable for any further Syrian withdrawal, merely stipulating
that "such withdrawals would be negotiated at the appropriate time
by the governments of Lebanon and Syria." Furthermore, Awn charged
that the political reforms were unacceptable because they simply shifted
power from the office of the President to that of the Prime Minister without
solving any fundamental political problems. He tried to block the Agreement
and set out to undermine it by issuing a Decree dissolving Parliament before
the Parliament could meet, elect a new President, and enact the Agreement
into law.
The Road to Isolation and Defeat The Parliament, however, ignored him and went ahead to elect Deputy
Rene Muawwad to the Presidency on November 5. Muawwad was assassinated
seventeen days later, but the Parliament met again and elected Deputy
Ilyas al-Hrawi. With Arab and international support, the President, the
Parliament, and the new Hoss cabinet went ahead with measures to implement
the Taif Agreement. Awn ignored appeals to compromise and moved deeper
into isolation. He refused to recognize the Hrawi government and demanded
nothing less than the withdrawal of all foreign forces, the election of
a new Parliament and President, and a renegotiation of the Taif Agreement
under conditions of independence and democracy. The beginning of his downfall came in the fall of 1989 when the Lebanese
Forces broke their alliance with him and supported the Taif Agreement.
LF Leader Samir Ja`ja` was aware that this move might split the Christian
community and divide the Christian enclave, but he preferred to take this
risk than to continue to support Awn's policies which, after the ignominious
end of the 'war of liberation,' Ja`ja` openly criticized as suicidal. The
split erupted into open warfare between Awn's Army units and those of the
Lebanese Forces in late January of 1990.
Like the previous war with Syrian forces in 1989, this war, which lasted
for four months, also took a dreadful human and material toll and ended
inconclusively, with Awn neither victorious nor defeated. However, by the
end of it, Awn was more isolated than ever. He had already lost much of
the sympathy of the Arab and international community. Now he had also lost
his main internal ally, as well as the support of Iraq, France, and the
Vatican. He seemed to be squandering the political backing and sympathy
he had won earlier on an internal battle that few outsiders could understand
or stomach. He still commanded enthusiastic popular support in the area
he controlled, but he was unable to translate this popular support into
concrete political gains. Checked at every turn, he continued to resist
Taif, albeit lamely, while the Hrawi-Hoss government, with cooperation
from Syria and the Lebanese Forces, began to prepare for his demise. The
coup de grace came on October 13 in the form of a joint Lebanese-Syrian
military assault on Ba`abda and the entire Metn region under Awn's control,
Awn sought political asylum at the French Embassy where he has been ever
since. To be sure, the period of Awn's tenure in the Presidential Palace in
Ba`abda between September 1988 and October 1990 was a volatile and dangerous
one. This period, however, was also one of great popular enthusiasm and
activism. In the largest mass demonstrations of Lebanon's recent history,
hundreds of thousands of civilian, albeit mostly from, the Christian Eastern
Region, took to the streets in support of Awn. How is one to understand
this phenomenon in light of the losses suffered by this same population
during Awn's administration?
Assessing the 'Awn Phenomenon' The Hrawi-Hoss government and other opponents of Awn reluctantly referred
to his massive popular support as the 'Awn phenomenon,' in the hope it
would fade away as quickly as it had emerged. Indeed, even up to his last
days in office, a call from him could bring tens of thousands of people
onto the streets. The essence of his popularity was that he presented himself as a revolutionary
figure who would sweep aside occupying powers, militias, and the traditional
ruling groups and establish a strong state under the protection of the
Army. To a population suffering from a decade and a half of conflict and
chaos, these were exciting promises. Second, Awn was perceived by many as a man of the people. For the middle
class who has become poor, and the lower classes which had become destitute,
he was someone they could reach out to and put their hopes in. He was not
wealthy; he had not inherited political power; he was not from the traditional
political class that had become identified with the chaos, corruption,
and destruction of the war. He was a man of modest background who had lived
a disciplined and frugal life in the Army and had, they imagined, come
to put things right. In that sense, he appeared to many a revolutionary
and messianic figure; a savior from oppression, deprivation, corruption,
and evil.
His popularity was heightened as he appeared to allow the people a say
in their own affairs. By encouraging the people to take to the streets
and make their feelings known, he gave them an unprecedented feeling of
power and mastery over their own fate. This was achieved quite explicitly
in the Winter of 1989-90 when Awn was facing a threat from the newly-elected
President Hrawi, backed by Syria, to take Ba`abda and overthrow him by
force. Awn called on the people to take a stand: if they supported him,
they should come to Ba`abda and stand as human shields against any military
attack. This elicited an enthusiastic response and there followed a three-month
period of festivities, sit-ins, and demonstrations on the grounds of the
Ba`abda palace. The spirit of the demonstrations was not so much support
for one political figure over another as it was a heady celebration of
the common citizen's involvement in politics and his ability to take a
stand and change events previously under the control of militias, politicians,
and outside powers. Power, as Kissinger noted, is a strong aphrodisiac,
and it was this sense of empowerment that gave the demonstrations elicited
by Awn much of their wild energy. By entering directly into politics, the
people gave themselves hope and encouragement at a time when they were
still recovering from the ravages of recent battles and facing a very uncertain
political future. Finally, his charisma was enhanced by the fact that he came from the
ranks of the Army which had not been centrally involved in the war and
had thus maintained a relatively clean image. Wearing his battle fatigues
and surrounded by officers and regular soldiers, he gave the impression
that he had the power and the dedicated troops to carry out the promises
he was making. He presented a simple solution to Lebanon's complex political
problems: the Army would impose the authority of the state by force and
any remaining social or political conflicts would be dealt with within
the laws and democratic institutions of the state.
The 'Errors' of the Awn Administration An understanding of the 'Awn phenomenon' is basic to an understanding
of the popular image of Awn and the roots of his popularity in the area
he controlled, but his fate was eventually determined by the moves he made
on the political chessboard and the reactions he elicited from other political
players. His major failure was his inability to appreciate the subtleties and complexities
of politics in and around Lebanon. By adopting extreme positions, he made
himself popular with a large portion of the population but in so doing
he alienated himself from leaders of his own and other Lebanese communities
and drew the hostility of foreign powers having influence in Lebanon. His
eventual downfall came about as a result of almost complete political isolation
at the end of two years in office.
First, by refusing to hold presidential elections and instead embarking
on his own political program, Awn alienated the Parliamentary Deputies
and a large section of the traditional ruling class in Lebanon whose position
depended on the election of a new President and a perpetuation of the constitutional
order. They feared a military takeover which would jeopardize, if not eliminate,
their role. They had seen this happen in many Arab and other Third World
countries, and they were anxious to prevent any such takeover on their
own turf. Most of these political leaders had survived the collapse of state power
in 1975 and had long since become integrated into the power structure defined
by confessional militias, foreign armies, and a nominal constitutional
order. They retained a formalistic role in the governing process and enjoyed
working relationships with the forces on the ground. Awn threatened their
power; indeed, he openly distrusted civilian politicians, especially the
Deputies. He denounced them as corrupt and treasonous and effectively ran
them out of the areas he controlled. While this rebellious attitude was
popular with the masses, it ignored the fact that this class, and the Deputies
themselves, still enjoyed the constitutional power to elect Presidents,
approve cabinets, and amend the Constitution. By openly breaking with the
Deputies, Awn provided them with the incentive for bypassing him in the
Taif Agreement and later in the election of a new President.
Awn expressed the same hostility toward the militias in Lebanon as he
did toward the traditional political class. He charged them with corruption,
usurpation of power, extortion, and sundry other transgressions. Again,
this attitude was popular with the people, but it gained him strong and
well-entrenched enemies. Having alienated the traditional politicians and the militias, Awn also
made an enemy of the Maronite Patriarch and a large segment of the Maronite
clergy, the third pillar in the Christian power structure of war-time Lebanon.
He stood alone within the Christian community with his large popular following.
Eliminating his rivals was probably intentional, but when his ambition
for sole leadership was not matched by real political and military successes,
his isolation turned into weakness, immobility, and finally, defeat. He also became gradually isolated outside the Christian community. In
the first months of his term as Prime Minister, he was quite popular with
all segments of the population. He was an officer from the still relatively
neutral Lebanese Army, and he had the reputation of being a good soldier
and a fair and accessible leader. Most importantly, although he was a Maronite,
he did not come from the ranks of the Kata`ib Party or the Lebanese Forces,
both of which evoked dark associations in the minds of Muslims from the
earliest days of the civil war through the Israeli invasion of 1982, the
War of the Mountain in 1983, and beyond. In his first months in office, Awn had focused on corruption and governmental
inefficiency, issues appreciated in Muslim circles. They also applauded
his clash, albeit brief, with the Lebanese Forces in February of 1989.
The catastrophic results of Awn's 'war of liberation,' however, soon overshadowed
all other considerations, even though his declaration of war on Syria,
however ill-advised, was not without its sympathizers in Muslim circles.
As the 'war of liberation' stretched on, it turned into a military slugging
match between Awn's Army and the Lebanese Forces on the one hand and the
Syrian Army and its allied militias on the other. In the end, the brunt
of the firepower of Awn's Army and the Lebanese Forces did not fall surgically
on isolated Syrian Army positions but rather on neighborhoods, towns, and
villages with mostly Muslim populations. This, of course, produced deep
resentment and spelled the political end of Michel Awn as a potential man
of the middle ground.
Furthermore, Awn proved insensitive to Muslim demands for reform and
to their dissatisfaction with having an unfair share of political authority
in the state. This insensitivity appeared early on when Awn conducted 'business-as-usual'
after the three Muslim officers appointed to his cabinet resigned. He attributed
their resignation to external pressures and proceeded blithely in the assumption
that his cabinet was fully legitimate and required no expansion or reorganization.
Although he spoke in non-confessional terms (some of his most bitter
enemies were from his own Maronite community), he failed to make a successful
appeal to the Muslim community. The main problem was that he virtually
ignored the issue of internal reform in favor of the twin goals of eliminating
foreign occupation and getting rid of the militias. While almost all Muslims
supported those goals, they worried that without constitutional and political
guarantees, a victory by Awn could mean simply the return of Maronite hegemony,
something they had rejected finally and irrevocably at the beginning of
the Lebanese war. Although Awn proposed a strong and independent state,
something which virtually all Lebanese could support, he still presented
himself as the ruler of that state; and he, for better of for worse, was
a Maronite Christian. As such, and failing to present any convincing evidence
that he had fully overcome confessional boundaries, he represented only
another unacceptable alternative to the intolerable status quo.
Beyond Lebanon, Awn made a mortal enemy of President Hafiz al-Asad in
March of 1989 when he declared war on Syria and on Asad's regime. This
burnt any bridges that he might have needed later on and made it certain
that Asad would be his lifelong enemy. In Lebanon, where Syria is the main
power broker, this alone could have brought about Awn's eventual defeat.
Not stopping at that, Awn also made a sworn enemy of the United States.
The U.S. never favored him, but neither had it played a vigorous role in
opposing him. Awn accused the United States of responsibility for Lebanon's
demise and of conspiring with militias and occupying powers to oversee
the final dismemberment of the country. He looked the other way when his
supporters staged aggressive demonstrations in front of the U.S. Embassy
and spread anti-American slogans in the area he controlled. This confirmed
American suspicions that they could not do business with him, and it provided
them with an excuse to vacate the Embassy on September 7, 1989, and lend
their full weight to his removal. While in 1982-84 the U.S. was backing
the government of another Maronite leader, Amine Gemayel, against extrernal
threats, in 1989-90 Awn had succeeded in getting the U.S. to take the opposite
stand of more or less supporting Syria against his government and eventually
giving a green light for a Syrian-Lebanese military entry into Ba`abda
and the Metn district. That the final step was closely linked to the Gulf
crisis which had emerged as late as August of 1990 does not minimize the
effect of the atmosphere of hostility that Awn had allowed to develop between
himself and the Americans.
The war in 1990 between Awn and the Lebanese Forces exasperated those
few influential friends he still had left. As long as he was considered
the leader of a strong and united Christian community, he drew support
from Iraq as a counterbalance to Syrian power, and from France and the
Vatican as a protector of Christian, French, and Western power. After the
war with the Lebanese Forces, however, he seemed unable either to oppose
Syrian power or to promote the interests of the Christians. His attempts
to establish working relations with Damascus triggered the final break
with Iraq while the massive emigration of Lebanese Christians (estimated
at over 100,000) finally convinced the Vatican and France that Awn's presence
was more of a liability than an asset. By the summer of 1990, he was almost completely isolated politically.
Although he still commanded massive popular support within the Christian
community, he found himself with no viable political options. The Taif
Agreement had been approved, a new President and cabinet had been chosen,
and the government he refused to recognize enjoyed universal Arab and international
backing. He hoped that the loyalty of his troops and his popular support
would see him through this period of isolation and that he could survive
in his Ba`abda stronghold as he had done through the 'war of liberation'
and the subsequent war with the powerful Lebanese Forces. And indeed, he
may have survived, had the Gulf crisis not precipitated an unlikely American-Syrian
alliance which strengthened the Syrians' hand in Lebanon and allowed them
to conduct a military sweep of his forces.
The Demise of the 'First Republic' Whether it fails or succeeds, the Taif Agreement and the reforms it
introduced into the Lebanese Constitution usher in a new period in Lebanon's
modern political history. A recognizable autonomous Lebanon emerged in
the 16th century as a Druze dominated mountain Principate under Emir Fakhr
al-Din and the Ma`an dynasty of Druze princes. The Christian Maronite population
of the Principate grew steadily until the Maronites graduated to the stewardship
of the Principate under the Shihab dynasty in the late 18th and early 19th
century. This shift of power was contested by the Druze and erupted into
communal warfare between 1840 and 1860. France and other Western powers
had come to have strong influence in the crumbling Ottoman Empire, and
they reinforced Maronite dominance in the Lebanese Mountain province within
the framework of the Mutasarifiyya established in 1861. Lebanon, within
its present borders, was established in 1920 under the tutelage of France,
the Mandatory Power over Lebanon and Syria after the First World War. France
acted partially for its own purposes and partially in sympathy with the
demands of leaders of the Maronite community. In 1926 the Lebanese state
acquired a democratic constitution and in 1943 became independent. The
relative dominance of the Maronite community was preserved in the post-1920
Lebanon, but now over a population in which the Maronites were no longer
a clear majority.
The establishment of this 'Greater Lebanon' in 1920 was opposed by the
Syrian political leadership of the time as well as by a large segment of
the Sunni community in the new Lebanon. The National Pact of 1943 between
the Maronite politician Bishara al-Khoury and the Sunni leader Riad al-Solh
was a power-sharing arrangement in which the Sunni community agreed to
support the new state and forego its unionist demands with Syria in exchange
for the Maronites' promise to relinquish French protection. The Pact also
set up a political formula for governing the country. The formula enabled
the successful launching of the newly independent state and provided it
with three decades of relative stability and prosperity despite a temporary
breakdown in 1958.
The Maronite-Sunni partnership defined in the National Pact, however, was
not fully even. The Maronite President still enjoyed wide executive powers,
and Maronites headed the Army, the Bureau of General Security, Army Intelligence,
the Central Bank, and other key posts. Also, Christian representation outnumbered
Muslim in Parliament and in the civil service by a six-to-five ratio (the
ratio in the civil service was adjusted to equality in 1958). As demographic
realities changed, however, the Maronites lost their status as the largest
minority in the country to the Shi`a, while the Christians as a whole lost
their status as a majority to the Muslims. This provided a large portion
of the Muslim population with the justification for rejecting the political
status quo. Their rejection was expressed in various ideological forms
and ultimately caused the weakening of the political system just when the
state had to face its first serious challenge since independence: the growth
of the heavily armed and politically radical Palestinian movement in Lebanon
in the late 1960s and early 1970s. The state apparatus finally collapsed
in 1975 as Palestinian and Christian militias took to the streets, and
the polity divided into warring camps with the majority of Christians on
one side and Druze, Sunni, Shi`a, and Palestinian groups on the other.
The strong Palestinian element precluded an effective settlement based
on intra-Lebanese political reform, as such a settlement would not provide
a solution to the Palestinian problem in Lebanon. Indeed, the reform process
only started in earnest after the Palestinian factor was virtually eliminated
by the Israeli invasion of 1982. The dialogue on reform began at the Geneva
and Lausanne Conferences of 1983 and 1984 in which basic principles were
agreed upon. These principles were later elaborated in the abortive Tripartite
Agreement of December 1985 and then, more successfully, in the Taif Agreement
of 1989. What Awn failed to grasp was that Muslim demands for reform and
wider power-sharing were genuine and of first priority, and no progress
could be made on other issues before addressing them. He offered the reassertion
and reform of the state within its traditional power-sharing formula; most
Muslims, however, wanted change in the power-sharing formula itself and
were uninterested in other reforms if they did not begin with changes in
that fundamental formula.