Was Democracy Just a Moment?

The global triumph of democracy was to be the glorious climax of the American Century. But democracy may not be the system that will best serve the world—or even the one that will prevail in places that now consider themselves bastions of freedom.

IN the fourth century A.D. Christianity's conquest of Europe and the Mediterranean world gave rise to the belief that a peaceful era in world politics was at hand, now that a consensus had formed around an ideology that stressed the sanctity of the individual. But Christianity was, of course, not static. It kept evolving, into rites, sects, and "heresies" that were in turn influenced by the geography and cultures of the places where it took root. Meanwhile, the church founded by Saint Peter became a ritualistic and hierarchical organization guilty of long periods of violence and bigotry. This is to say nothing of the evils perpetrated by the Orthodox churches in the East. Christianity made the world not more peaceful or, in practice, more moral but only more complex. Democracy, which is now overtaking the world as Christianity once did, may do the same.

The collapse of communism from internal stresses says nothing about the long-term viability of Western democracy. Marxism's natural death in Eastern Europe is no guarantee that subtler tyrannies do not await us, here and abroad. History has demonstrated that there is no final triumph of reason, whether it goes by the name of Christianity, the Enlightenment, or, now, democracy. To think that democracy as we know it will triumph—or is even here to stay—is itself a form of determinism, driven by our own ethnocentricity. Indeed, those who quote Alexis de Tocqueville in support of democracy's inevitability should pay heed to his observation that Americans, because of their (comparative) equality, exaggerate "the scope of human perfectibility." Despotism, Tocqueville went on, "is more particularly to be feared in democratic ages," because it thrives on the obsession with self and one's own security which equality fosters.

I submit that the democracy we are encouraging in many poor parts of the world is an integral part of a transformation toward new forms of authoritarianism; that democracy in the United States is at greater risk than ever before, and from obscure sources; and that many future regimes, ours especially, could resemble the oligarchies of ancient Athens and Sparta more than they do the current government in Washington. History teaches that it is exactly at such prosperous times as these that we need to maintain a sense of the tragic, however unnecessary it may seem. The Greek historian Polybius, of the second century B.C., interpreted what we consider the Golden Age of Athens as the beginning of its decline. To Thucydides, the very security and satisfactory life that the Athenians enjoyed under Pericles blinded them to the bleak forces of human nature that were gradually to be their undoing in the Peloponnesian War.

My pessimism is, I hope, a foundation for prudence. America's Founders were often dismal about the human condition. James Madison: "Had every Athenian citizen been a Socrates, every Athenian assembly would still have been a mob." Thomas Paine: "Society is produced by our wants and government by our wickedness." It was the "crude" and "reactionary" philosophy of Thomas Hobbes, which placed security ahead of liberty in a system of enlightened despotism, from which the Founders drew philosophical sustenance. Paul A. Rahe, a professor of history at the University of Tulsa, shows in his superb three-volume Republics Ancient and Modern (1992) how the Founders partly rejected the ancient republics, which were based on virtue, for a utilitarian regime that channeled man's selfish, materialistic instincts toward benign ends. Man, Benjamin Franklin said in an apparent defense of Hobbesian determinism, is "a tool-making animal."

Democracies Are Value-Neutral

HITLER and Mussolini each came to power through democracy. Democracies do not always make societies more civil—but they do always mercilessly expose the health of the societies in which they operate.

In April of 1985 I found myself in the middle of a Sudanese crowd that had just helped to overthrow a military regime and replace it with a new government, which the following year held free and fair elections. Sudan's newly elected democracy led immediately to anarchy, which in turn led to the most brutal tyranny in Sudan's postcolonial history: a military regime that broadened the scope of executions, persecuted women, starved non-Muslims to death, sold kidnapped non-Muslim children back to their parents for $200, and made Khartoum the terrorism capital of the Arab world, replacing Beirut. In Sudan only 27 percent of the population (and only 12 percent of the women) could read. If a society is not in reasonable health, democracy can be not only risky but disastrous: during the last phases of the post-First World War German and Italian democracies, for example, the unemployment and inflation figures for Germany and the amount of civil unrest in Italy were just as abysmal as Sudan's literacy rates.

As an unemployed Tunisian student once told me, "In Tunisia we have a twenty-five percent unemployment rate. If you hold elections in such circumstances, the result will be a fundamentalist government and violence like in Algeria. First create an economy, then worry about elections." There are many differences between Tunisia and its neighbor Algeria, including the fact that Tunisia has been peaceful without democracy and Algeria erupted in violence in 1992 after its first election went awry and the military canceled the second. In Kurdistan and Afghanistan, two fragile tribal societies in which the United States encouraged versions of democracy in the 1990s, the security vacuums that followed the failed attempts at institutionalizing pluralism were filled by Saddam Hussein for a time in Kurdistan and by Islamic tyranny in much of Afghanistan. In Bosnia democracy legitimized the worst war crimes in Europe since the Nazi era. In sub-Saharan Africa democracy has weakened institutions and services in some states, and elections have been manipulated to restore dictatorship in others. In Sierra Leone and Congo-Brazzaville elections have led to chaos. In Mali, which Africa-watchers have christened a democratic success story, recent elections were boycotted by the opposition and were marred by killings and riots. Voter turnout was less than 20 percent. Even in Latin America, the Third World's most successful venue for democracy, the record is murky. Venezuela has enjoyed elected civilian governments since 1959, whereas for most of the 1970s and 1980s Chile was effectively under military rule. But Venezuela is a society in turmoil, with periodic coup attempts, rampant crime, and an elite that invests most of its savings outside the country; as a credit risk Venezuela ranks behind only Russia and Mexico. Chile has become a stable middle-class society whose economic growth rate compares to those of the Pacific Rim. Democratic Colombia is a pageant of bloodletting, and many members of the middle class are attempting to leave the country. Then there is Peru, where, all the faults of the present regime notwithstanding, a measure of stability has been achieved by a retreat from democracy into quasi-authoritarianism.

Throughout Latin America there is anxiety that unless the middle classes are enlarged and institutions modernized, the wave of democratization will not be consolidated. Even in an authentically democratic nation like Argentina, institutions are weak and both corruption and unemployment are high. President Carlos Menem's second term has raised questions about democracy's sustainability—questions that the success of his first term seemed to have laid to rest. In Brazil and other countries democracy faces a backlash from millions of badly educated and newly urbanized dwellers in teeming slums, who see few palpable benefits to Western parliamentary systems. Their discontent is a reason for the multifold increases in crime in many Latin American cities over the past decade.

Because both a middle class and civil institutions are required for successful democracy, democratic Russia, which inherited neither from the Soviet regime, remains violent, unstable, and miserably poor despite its 99 percent literacy rate. Under its authoritarian system China has dramatically improved the quality of life for hundreds of millions of its people. My point, hard as it may be for Americans to accept, is that Russia may be failing in part because it is a democracy and China may be succeeding in part because it is not. Having traveled through much of western China, where Muslim Turkic Uighurs (who despise the Chinese) often predominate, I find it hard to imagine a truly democratic China without at least a partial breakup of the country. Such a breakup would lead to chaos in western China, because the Uighurs are poorer and less educated than most Chinese and have a terrible historical record of governing themselves. Had the student demonstrations in 1989 in Tiananmen Square led to democracy, would the astoundingly high economic growth rates of the 1990s still obtain? I am not certain, because democracy in China would have ignited turmoil not just in the Muslim west of the country but elsewhere, too; order would have decreased but corruption would not have. The social and economic breakdowns under democratic rule in Albania and Bulgaria, where the tradition of pre-communist bourgeois life is weak or nonexistent (as in China), contrasted with more-successful democratic venues like Hungary and the Czech Republic, which have had well-established bourgeoisie, constitute further proof that our belief in democracy regardless of local conditions amounts to cultural hubris.

Look at Haiti, a small country only ninety minutes by air from Miami, where 22,000 American soldiers were dispatched in 1994 to restore "democracy." Five percent of eligible Haitian voters participated in an election last April, chronic instability continues, and famine threatens. Those who think that America can establish democracy the world over should heed the words of the late American theologian and political philosopher Reinhold Niebuhr:

The same strength which has extended our power beyond a continent has also . . . brought us into a vast web of history in which other wills, running in oblique or contrasting directions to our own, inevitably hinder or contradict what we most fervently desire. We cannot simply have our way, not even when we believe our way to have the "happiness of mankind" as its promise.

The lesson to draw is not that dictatorship is good and democracy bad but that democracy emerges successfully only as a capstone to other social and economic achievements. In his "Author's Introduction" to Democracy in America, Tocqueville showed how democracy evolved in the West not through the kind of moral fiat we are trying to impose throughout the world but as an organic outgrowth of development. European society had reached a level of complexity and sophistication at which the aristocracy, so as not to overburden itself, had to confer a measure of equality upon other citizens and allocate some responsibility to them: a structured division of the population into peacefully competing interest groups was necessary if both tyranny and anarchy were to be averted.

The very fact that we retreat to moral arguments—and often moral arguments only—to justify democracy indicates that for many parts of the world the historical and social arguments supporting democracy are just not there. Realism has come not from us but from, for example, Uganda's President Yoweri Museveni, an enlightened Hobbesian despot whose country has posted impressive annual economic growth rates—10 percent recently—despite tribal struggles in the country's north. In 1986 Museveni's army captured the Ugandan capital of Kampala without looting a single shop; Museveni postponed elections and saw that they took place in a manner that ensured his victory. "I happen to be one of those people who do not believe in multi-party democracy," Museveni has written. "In fact, I am totally opposed to it as far as Africa today is concerned.... If one forms a multi-party system in Uganda, a party cannot win elections unless it finds a way of dividing the ninety-four percent of the electorate [that consists of peasants], and this is where the main problem comes up: tribalism, religion, or regionalism becomes the basis for intense partisanship." In other words, in a society that has not reached the level of development Toqueville described, a multi-party system merely hardens and institutionalizes established ethnic and regional divisions. Look at Armenia and Azerbaijan, where democratic processes brought nationalists to power upon the demise of the Soviet Union: each leader furthered his country's slide into war. A coup in Azerbaijan was necessary to restore peace and, by developing Azerbaijan's enormous oil resources, foster economic growth. Without the coup Western oil companies would not have gained their current foothold, which has allowed the United States to increase pressure on neighboring Iran at the same time that we attempt to normalize relations with Iran "on our terms."

Certainly, moral arguments in support of democracy were aired at the 1787 Constitutional Convention in Philadelphia, but they were tempered by the kind of historical and social analysis we now abjure. "The Constitution of the United States was written by fifty-five men—and one ghost," writes retired Army Lieutenant General Dave R. Palmer in 1794: America, Its Army, and the Birth of the Nation (1994). The ghost was that of Oliver Cromwell, the archetypal man on horseback who, in the course of defending Parliament against the monarchy in the mid seventeenth century, devised a tyranny worse than any that had ever existed under the English Kings. The Founders were terrified of a badly educated populace that could be duped by a Cromwell, and of a system that could allow too much power to fall into one person's hands. That is why they constructed a system that filtered the whims of the masses through an elected body and dispersed power by dividing the government into three branches.

The ghosts of today we ignore—like the lesson offered by Rwanda, where the parliamentary system the West promoted was a factor in the murder of hundreds of thousands of Tutsis by Hutu militias. In 1992, responding partly to pressure from Western governments, the Rwandan regime established a multi-party system and transformed itself into a coalition government. The new political parties became masks for ethnic groups that organized murderous militias, and the coalition nature of the new government helped to prepare the context for the events that led to the genocide in 1994. Evil individuals were certainly responsible for the mass murder. But they operated within a fatally flawed system, which our own ethnocentric hubris helped to construct. Indeed, our often moralistic attempts to impose Western parliamentary systems on other countries are not dissimilar to the attempts of nineteenth-century Western colonialists—many of whom were equally idealistic—to replace well-functioning chieftaincy and tribal patronage systems with foreign administrative practices.

The demise of the Soviet Union was no reason for us to pressure Rwanda and other countries to form political parties—though that is what our post-Cold War foreign policy has been largely about, even in parts of the world that the Cold War barely touched. The Eastern European countries liberated in 1989 already had, in varying degrees, the historical and social preconditions for both democracy and advanced industrial life: bourgeois traditions, exposure to the Western Enlightenment, high literacy rates, low birth rates, and so on. The post-Cold War effort to bring democracy to those countries has been reasonable. What is less reasonable is to put a gun to the head of the peoples of the developing world and say, in effect, "Behave as if you had experienced the Western Enlightenment to the degree that Poland and the Czech Republic did. Behave as if 95 percent of your population were literate. Behave as if you had no bloody ethnic or regional disputes."

States have never been formed by elections. Geography, settlement patterns, the rise of literate bourgeoisie, and, tragically, ethnic cleansing have formed states. Greece, for instance, is a stable democracy partly because earlier in the century it carried out a relatively benign form of ethnic cleansing—in the form of refugee transfers—which created a monoethnic society. Nonetheless, it took several decades of economic development for Greece finally to put its coups behind it. Democracy often weakens states by necessitating ineffectual compromises and fragile coalition governments in societies where bureaucratic institutions never functioned well to begin with. Because democracy neither forms states nor strengthens them initially, multi-party systems are best suited to nations that already have efficient bureaucracies and a middle class that pays income tax, and where primary issues such as borders and power-sharing have already been resolved, leaving politicians free to bicker about the budget and other secondary matters.

Social stability results from the establishment of a middle class. Not democracies but authoritarian systems, including monarchies, create middle classes—which, having achieved a certain size and self-confidence, revolt against the very dictators who generated their prosperity. This is the pattern today in the Pacific Rim and the southern cone of South America, but not in other parts of Latin America, southern Asia, or sub-Saharan Africa. A place like the Democratic Republic of Congo (formerly Zaire), where the per capita gross national product is less than $200 a year and the average person is either a rural peasant or an urban peasant; where there is little infrastructure of roads, sewers, and so on; and where reliable bureaucratic institutions are lacking, needs a leader like Bismarck or Jerry Rawlings—the Ghanaian ruler who stabilized his country through dictatorship and then had himself elected democratically—in place for years before he is safe from an undisciplined soldiery.

Foreign correspondents in sub-Saharan Africa who equate democracy with progress miss this point, ignoring both history and centuries of political philosophy. They seem to think that the choice is between dictators and democrats. But for many places the only choice is between bad dictators and slightly better ones. To force elections on such places may give us some instant gratification. But after a few months or years a bunch of soldiers with grenades will get bored and greedy, and will easily topple their fledgling democracy. As likely as not, the democratic government will be composed of corrupt, bickering, ineffectual politicians whose weak rule never had an institutional base to start with: modern bureaucracies generally require high literacy rates over several generations. Even India, the great exception that proves the rule, has had a mixed record of success as a democracy, with Bihar and other poverty-wracked places remaining in semi-anarchy. Ross Munro, a noted Asia expert, has documented how Chinese autocracy has better prepared China's population for the economic rigors of the post-industrial age than Indian democracy has prepared India's.

Of course, our post-Cold War mission to spread democracy is partly a pose. In Egypt and Saudi Arabia, America's most important allies in the energy-rich Muslim world, our worst nightmare would be free and fair elections, as it would be elsewhere in the Middle East. The end of the Cold War has changed our attitude toward those authoritarian regimes that are not crucial to our interests—but not toward those that are. We praise democracy, and meanwhile we are grateful for an autocrat like King Hussein, and for the fact that the Turkish and Pakistani militaries have always been the real powers behind the "democracies" in their countries. Obviously, democracy in the abstract encompasses undeniably good things such as civil society and a respect for human rights. But as a matter of public policy it has unfortunately come to focus on elections. What is in fact happening in many places requires a circuitous explanation.

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Robert D. Kaplan is a contributing editor of The Atlantic. He is the author of five books, including The Ends of the Earth (1996).

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