Egypt and the IMF - An
Economic Struggle for the Future of the New Middle East
By Younus Abdullah
Muhammad
In the 2 years since the Arab
Uprisings turned over the geopolitics of the Middle East, coherent outcomes
have escaped concrete formulation. Debate amongst policymakers in the West
tends to split analysis down traditional realist and liberal lines, but most
insight has failed to acknowledge that political outcomes will ultimately be
shaped by underlying economic decisions. Those decisions will have serious
implications, not only for region, but for the future make-up of the global
economy. Consequentially, the derivative political outcome may prove to
determine whether the current unipolar order perpetuates or transitions into a
balance of power system. In reality, the economic path chosen by Egyptians will
largely determine the outcome of the Arab Spring and will resonate to affect
the entire geopolitical order.
Egypt is the most influential
country in the new Middle East. With the Arab world's most populous nation and
a political-economy in rapid deterioration, meeting the aspirations that
propelled initial uprisings will depend largely on the ultimate formation of
economic structures in the country. A milestone related to Egypt's economic
underbelly may have occurred recently. Almost 2 years after President Obama
pledged $1 billion in debt relief and assistance, his newly appointed secretary
of state, John Kerry pledged to release $250 million in aid contingent on
President Morsi's pursuit of the conditionalities necessary to secure an IMF
loan. The decisions, if fulfilled, would not only cement ties between the
American hegemon and the Muslim Brotherhood but would sustain and extend
Egypt's participation in an unstable and uncertain international financial
order. There are substantial risks for both sides. In releasing aid now, the
U.S. is essentially accepting a role for political Islam. In agreeing to IMF
dictate, the Muslim Brotherhood-backed Morsi would essentially be accepting
participation with an economic order many Egyptians view as contrary to their
independent interests. In reality, if
economic principles endorsed by both Western and Islamic systems were advocated
a great deal of cooperation and prosperity would ensue and an effective step toward
an inevitable, multipolar order would be taken.
Mr. Kerry's announcement was not
met with much enthusiasm. His support was clearly contingent on President
Morsi's backing of IMF conditionalites that would trim popular food and fuel
subsidies that serve tens of millions of impoverished Egyptians. While he
called the assistance, "a good faith effort to spur reform and help the
Egyptian people," the crux of his message seemed to critics as a bit
paternalistic, typical of a common view that the U.S. pursues its own interests
while speaking rhetorically of humanitarianism.
"In light of Egypt's extreme needs and President Morsi's assurance
that he plans to complete the IMF process, today I advised him that the U.S.
will now provide the first $190 million of our pledged $450 million in budget
support funds," Mr. Kerry stated. The decision also indicates that the
U.S. has accepted a role for the Muslim Brotherhood in a New Middle East going
forward.
As a result, the decision sparked
the fury of Egypt's secularist opposition. They immediately signified an
awareness of the implicit endorsement. Egyptian caricatures at protests
portrayed Mr. Kerry wearing a beard and charged him with favoritism. Gameela
Ismail, a leader of the National Salvation front explained, "You [the
U.S.] have supported military rule, and now you are supporting a religious rule
just because it serves your interests; President Morsi is taking us, with the
support of the U.S., to another version of the Iranian State just because you want
to implement your interests through the regime in Egypt."
But these criticisms are
exaggerated and over-simplified, meant to appeal to populist anti-American and
anti-Islamic sentiments on the Arab Street but void of nuance and actuality.
Morsi has no intention of Iranian-style theocracy. And, in reality, secularists
have no coherent economic vision. They too would undoubtedly covet IMF
intervention were they in power. While western liberals may empathize with
their social liberalism, they are not very popular in Egypt. They previously
boycotted scheduled April parliamentary elections that were recently cancelled
by the judiciary for fear that it may bring salafistes, not secularists,
increased power. Public polling already shows overwhelming support for an end
to the peace treaty with Israel. Additionally, favorable opinions of the U.S.
in countries like Egypt have dropped considerably since the Arab Spring. The
U.S. is acting in interests that want to prevent the rise of radicalism and
that want to gain a foothold in the economy. With Arab economics in suspended
disarray and the global economy still suffering instability, the hope is that
IMF reform will prove mutually beneficial. That remains to be seen but the
outcome will make or break the success of Arab revolutions.
Negotiations about IMF reform
began shortly after the effective revolts in Tunisia and Egypt, two countries
touted as success stories by the transnational lending institutions up until
their economically-induced revolutions. The IMF offered a multi-billion dollar
loan in June 2011, about a month after President Obama embraced the sentiments
of the Arab Spring and pledged $1 billion in debt forgiveness. In that speech
he emphasized a need for IMF-World Bank intervention but cited the fact they had
overlooked corruption in the past. Additionally, his appointment of a academic,
developmental specialist to head the World Bank since has strengthen the
prospects for effective reform within the transnational lenders.
Understandably, many remain skeptical.
The Supreme Council of Armed
Forces (SCAF) that ruled Egypt through its democratic transition rejected the
IMF loan, ostensibly because it resembled an assault on sovereignty but also
because it threatened the military's dominant role over large sectors of the
economy. A popular Egyptian Facebook page 'DropEgyptsDebt' stimulated effective
Leftist opposition and Hamden Sabahi, who almost won the presidency, has touted
a return to Nasserite, Arab socialism. President Morsi has endorsed IMF
reforms. He classifies his economic platform as 'renaissance' and pledges to
boost the private sector, limit the role of the state and attracts foreign
direct investment (FDI). The question is how his platform will benefit the
average Egyptian. IMF reform calls for raising taxes, repealing subsidies,
fails to protect internal investment, open to foreign conglomerates and honors
onerous debt. Such an agreement effectively resembles neocolonialism to many
Egyptians and could provoke additional discontent.
It took until August, 2012 until
a preliminary agreement was reached between President Morsi and IMF chief
Christine Lagarde for a $4.8 billion loan. The proposed precursory
conditionalities include higher taxes and a repeal of energy subsidies. In
reality, servicing Egypt's $35 billion in debt to foreign banks already takes
$3 billion per year in interest payments. That is more than the cumulative
amount of subsidies. And because foreign lenders certainly knew that most of
the money borrowed under Mubarak would assist the corrupt regime and embed
authoritarianism. A recent delegation t Egypt of 50 American multinationals was
led by Paul Hormats, a former Goldman Sachs executive. Banks like Goldman Sachs
contributed greatly to the decline of the Egyptian economy under Mubarak, at
least for the average Egyptian. A general critique of present IMF-World Bank
practice is that it helps utilize the debt accumulated under dictatorship to
enforce privatization and effectively limit true democratization. The $35
billion in private Egyptian debt certainly helped props up an economy that was
guided by IMF-World Bank induced reform from the 1990's, reform that similarly
served only the interests of indigenous and foreign elite. Many Egyptians fear
that agenda will continue now, only substituting members of the Muslim
Brotherhood for the Mubarak regime.
Because previous privatization
schemes in Egypt relied on FDI and tourism, it will be very difficult,
especially in lieu of foreseen Islamist governance, to sustain Egypt's present
economic structure. It may also prove particularly difficult for average
Egyptians to compete with large-scale foreign competitors. Thus many postulate
that proposed reforms will hurt the poor and resistance is evident. Andres
Bauer, IMF chief in the Middle East and North Africa, told the Wall Street
Journal at the end of 2012 that, "the authorities intend to raise revenues
through tax reforms, including by increasing the progressivity of income
taxation and by broadening the general sales tax to become a full-fledged
value-added tax." However, when President Morsi angered secularists and
pushed through an Islamist constitution, weeks of public protest forced the
Egyptian government to request a delay from the IMF. The actual cause of the
prolongation however remained mostly unaddressed in the mainstream press. The
actual cause of delay was to the public's vehement reaction to a sudden decree
by Egypt's prime minister during the constitutional protests that immediately
raised taxes on luxury goods like cigarettes and alcohol but also on
necessities like oil, cement, fertilizer, water and electricity. Within hours,
further outrage forced Morsi to withdraw the order by posting on Facebook that
he, "does not accept that the Egyptian citizen carries an extra burden
without consent." So much for the simple repeal of subsidies and increased
taxation the IMF requires as a precondition for the loan.
Such taxes and subsidy repeal
could mostly hurt the poor, would do little to create pathways to economic
opportunity or to dismantle totalitarian structures of economic privilege
surrounding an elite largely connected to the Egyptian military in receipt of
over $1 billion in annual aid from Washington. In fact, the proposed approach
is not only eerily similar to IMF structural adjustments under Mubarak but
reminiscent of rapacious tax and privatization placed on Egypt during its
colonial era when the poor were taxed to pay off usurious international loans
and to fund the extravagant lifestyle of the Khedive (see Rosa Luxemburg’ s
Accumulation of Capital). Secretary of State Kerry's announcement that the
relatively meager financial assistance was conditional on President Morsi's
endorsement of IMF conditionalities is certainly an effort to appeal to
short-term economic unrest in order to induce the U.S.'s own preferred
long-term economic outcome.
Back and forth negotiations
occurring for almost two years represent one reason many Arabs suggest the U.S.
backed the rise of the Muslim Brotherhood even before the Arab Spring. They
trace the roots of that support to enforced parliamentary elections in 2005-06
and accompanying neoliberal reforms that brought prosperity to many Brotherhood
members. Secularists of all ideological stripes see the release of aid now and
an explicit endorsement and as an effort to replace the secular
authoritarianism of Mubarak with an Islamist alternative. This is something
leftist dissidents like Noam Chomsky have described as typical of a long
history of U.S. efforts to "prevent democratization." He states
support for Somoza's Nicaragua, the Shah's Iran, Marcos in the Philippines,
Duvalier in Haiti, Chun in South Korea, Mobutu in the Congo, Ceausescu in
Romania and Suharto in Indonesia as authoritarian regimes not unlike Mubarak
the U.S. supported in the name of economic liberalization only to be abandoned
at the moment populations removed them from power. Nearly every one of these
countries was immediately subject to IMF-World Bank intervention (see Naomi
Klein's Shock Doctrine).
Support for entrance into the
West's economic agenda precedes any concern with democracy. As a result, in
almost every instance, most of those countries retain democracy but still
suffer from rapacious elites that control the economic arena, and thereby
politics. The apriority assumption that that the benefits of free market
doctrine led to effective democratic reform have allowed for a mostly
unrecognized correlation between things like torture and IMF-World Bank
intervention. What the 1993 Vienna Conference celebrating the Universal
Declaration of Human Rights once explained as, “the alarming evidence of
massive human rights violations in every part of the world as a result of the
international financial institutions or the Washington Consensus,"
generally continues. Willing compliance with the neoliberal norms Thomas
Friedman used to refer to as the 'golden straightjacket' guarantee that regimes
will retain favorable coverage that touts the path to democratization in
exchange for compliance in opening up the economies to foreign penetration and,
as a consequence, political influence.
Far from conspiracy theory
however, this necessitates awareness that economic interests and not concern
for democracy drives behavior in the international arena. Those in the Arab
world may recognize a western hand in their internal politics but they would do
much better were they to understand they have the potential to effectively
pursue their own interests. Were they to balance economic cooperation with the
international community and a respect for sovereignty, they could induce an
Arab block of rapid development while generating a general spread in the global
balance of power.
All international politics
represents a shadow cast by a transnational economics. In reality, a very real privileged global elite dictates much of
policy. Rising inequality across the world is the rational consequence of such
power imbalance, extended since the end of Cold War conflicts. While the U.S.
hegemon struggles to maintain its relative dominance, most do not understand
the effects its exorbitant economic privilege grant it in the international
arena. While developing countries like Egypt are told to raise taxes, repeal
subsidies and balance budgets to take on foreign loans, a U.S. economy carrying
its own exorbitant debt and special-interest subsidies has used its status as
the global reserve currency to print money, buy its own bonds, bailout a
bankrupt financial system and exasperate enormous deficits. Similarly however,
this series of bailouts, stimulus, low interest rates and the like have
primarily benefited transnational elite's interests.
Fareed Zakaria explained this
imbalance in a recent Foreign Affairs article saying, "When Western
governments and international organizations such as the International Monetary
Fund (IMF) offer advice to developing countries on how to spur growth, they
almost always advocate structural reforms that will open up sectors of their
economies to competition, allow labor to move freely between jobs, eliminate
wasteful and economically distorting government subsidies, and focus government
spending on pro-growth investment. When facing their own problems, however,
those same Western countries have been loath to follow their own advice."
Indeed, since the near collapse
of 2008, U.S. Federal Reserve policy has pumped liquidity into an American
economy everyone knows will continue to suffer from pernicious public and
private debt. In reality, the insertion of liquidity (QE 1,2,3...) has
exasperated income inequalities domestically; U.S. unemployment remains high
and jobs are paying much less while statisticians under exaggerate core
inflation. While such intervention has ostensibly been to help banks earn their
way out of negative equity resulting from bad loans made during the real estate
bubble, it has actually only shored up multinational firms and private,
too-big-to-fail international lenders so that they can invest overseas and
control the future of a globalized economic system where it is anticipated
growth will have to come from the developing world.
The Fed's zero interest rates may
have artificially inflated stock prices to all time highs but American
multinationals that make up the stock indexes now make most of their money
overseas and stimulus and cheap money have accumulated an approximate $1.7
trillion on corporate books corporations currently pay no taxes on because they
are designated for eventual investment overseas. In fact, inflation induced by
the Fed's QE2 policy sparked the initial protests of the Arab Spring which were
largely a reaction to rising commodity prices. The primary reason the U.S.
endorses Egypt's participation with the IMF today is the prospects it will
facilitate an opening for foreign investors and put those dollars in
circulation to preserve the currency's dominance. In a sense, the IMF's
existence is to serve as a mechanism for inserting countries of the developing
world in participation with an imbalanced system. This system has tended to
favor repressive transnational (and mostly Western) capital to the powers, also
typically abused, of sovereign governance.
The potential to alter some of
that imbalance may lie in the Arab world. Having suffered first from
colonialism and then from authoritarianism, the 30-plus countries that make up
the modern Middle East have virtually undeveloped economies, rich human and
cultural capital, natural resources and 350 million consumers. If the Arab
League were a single country, its GDP would have been $1.9 trillion in 2010.
And a recent 5-year study by the Institute for Liberty and Democracy found
that, 82% of businesses and 92% of landholdings were unrecorded and thus
unprotected by the rule of law." That led the study to estimate the size
of Egypt's "extralegal" economy at $350 billion, six times the level
of FDI in Egypt. Additionally, the 2002 UN Arab Developmental Report may have
highlighted inequality, suppression of freedom and lack of intellectual and
technological contribution but it also stressed that the region holds the
lowest level of abject poverty, no doubt a consequence of culture, religion and
the remnants of an Arab socialism that once made Egypt especially influential.
Global powers are obviously aware
of this economic potential. European and South American countries, Russia,
China, Turkey, Iran, and others have made significant proposals for major
economic cooperation since the Arab Spring. The New York Times called a recent
conference organized by the U.S. Chamber of Commerce in Cairo as, "one of
the largest trade delegations ever." Nevertheless political gridlock and
sustained violent contestation weakens the prospect for the stability that
could allow for true sovereign economic development and, in turn, successful
political outcomes.
Thus, the early struggle for
democracy in the New Middle East may prove a contest of economic positions. At
this time secularists have diverse and discombobulated platforms and Morsi's
backing of the IMF agenda may backfire. As a consequence, the true
beneficiaries may be the salafists and that might actually not be so bad, even
as it pertains to U.S. interests. The salafists have criticized Morsi's use of
international loans on the grounds that they are explicitly un-Islamic and bear
interest. They recently published a list of Brotherhood who have been granted
influential government positions and have cited gains made under previous
neoliberal reform by key Brotherhood members. The salafists, Al-Noor party
based its economic model on Brazil during the run up to their successful
parliamentary elections. No doubt their reference to Brazil is a challenge to
the military. Today Brazil is a rising economy and democracy but it was run by
a right-wing military dictatorship from the Kennedy-era into the 1990's. That
dictatorship conducted its coup and preserved its power with Washington's
explicit backing on the grounds it "created a greatly improved climate for
private investment."
But economic outcomes in the Arab
Spring will be as much about what happens to the global economy outside the
Islamic world as within it. If the global economy returns to recession and
crisis in the medium term, Egypt will be jumping aboard a sinking ship. Because
modern mixed economies are compatible with Islamic economics and a role for the
Islamic sharia is evident in all polling of the Arab world's majority,
Egyptians should encourage foreign investments and participation in the
international order while developing a modern Islamic economic system. There is
no doubt Egypt suffers from a lack of economic freedom. The 2013 Index of economic
Freedom published by the Heritage Foundation documents totalitarian practices
and an actual decline in economic freedom since the Arab Spring. Where IMF
reform concentrates on repealing subsidies, it would do much more to enforce
the repeal of regulation and legal mechanisms that privilege an Egyptian elite
and to promote the break up statist monopolies in favor of Egyptian
entrepreneurship granted protections form competition from foreign
conglomerates. That would effectively address underlying Arab concerns while
preventing similar outcomes in the past that enforced authoritarianism. It
would also induce prosperous relations between Arab governments and Western
nations who would garner leverage to guarantee pluralist politics and liberal
reform that could achieved the expressed objective of economic penetration and
foreign investment.
A modern Islamic economics is
completely free market. Subsidies and price controls are clearly considered
illegitimate in Islam but the poor still benefit because there must be a
coincident equality in opportunity and protection under the law that crosses
ethnicity, religion and gender. The embedded emphasis on charity, education and
government investment in infrastructure, technology and etcetera can only ensue
with a write-down on the onerous Egyptian and confiscation from those that
benefited from past corruption. This alters the role of the state so that it
may restructure international loans and build on the already existent social
service networks that helped to bring Islamists to power. The IMF, like
Washington, would have to be willing to cooperate with Islamist regimes but
collaboration along economic lines with emphasis on cultural nuance could
induce an era of prosperity and effective relations that could revamp the
entire global economy.
Additionally, the expansion of a shariah-compliant
financial industry over about a generation creates the potential for innovative
products like sukook bonds that are attached to the underlying success of
projects and thereby avoid the prohibition of interest, placing borrower and
lender in shared profit-loss relationship. Other instruments like musharaka and
mudaraba profit-sharing mechanisms set a basic structure for the sophistication
of both capital markets and micro lending. The potential issuance of the gold
dinar and silver dirham, required for zakat (charity) payment, provide a hedge
against inflation and devaluation from central banks trying to print their way
toward recovery. There are many methods for the issuance of a region-wide
currency. In fact, there is much in the Islamic order that would benefit the
Arab block and would help to alter IMF reform so that it effectively eases the
need for austerity and transition to free market practice. True Islamic
economic reform could open up the Egyptian economy in a manner that benefited
the average Egyptian. For many reasons, it would be in the interests of all
Egyptian politicians to recognize the Islamist majority, discuss the benefits
with secularist skeptics and consider negotiations with the IMF and other
foreign investors as a mechanism for dispelling the myths around the negative
effects of Islamization and, at the same time, Arab concerns about Western
conspiracy and loss of sovereignty.
Additionally, a truly
"New" Middle East will only prove successful if it can promote
regional cooperation. The Oxford Centre for Islamic Studies recently
categorized the Arab world's economic plight as due to "market
fragmentations" - a consequence of centralized privilege and authoritarian
economic networks. The institution documented that red tape, poor
infrastructure and other barriers add 15% to the cost of Egyptian clothes and
10% to goods shipped in the region. It is actually more expensive to ship goods
between two Middle Eastern ports than to send them from the region to America.
If the rise of Islamist governance from Syria in the East to Morocco in the
West can produce Arab cooperation and alter these trends, the entire region
would become part of the global supply chain and its location, common language
and connection to other majority Muslim societies would formulate the rise of a
regional block no less magnificent than the rise of China or India.
And so, while participation with
the international community is beneficial and necessary, it is also important
to recognize the dangers implicit in allowing economic policy to be dictated
from afar. An important example which would probably gain the appall of many
ultraconservatives is the rise of modern India. India remained nonaligned
throughout the cold war. Like Egypt, its roots are in British imperialism and
an anti-colonial struggle. It attained independence from a puppet regime backed
by the British in 1947 and while Pakistan remains in despotism and debt largely
as a result of its reliance on Washington's transnational institutions, India
took an independent path in its rise as a growing democratic power. Historians
like to credit liberal ideas inherited from the era of colonialism as
influencing India's rise but a new book Righteous Republic by Ananya Vajpyi
documents that India's nationalist leaders drew their ideas from the indigenous
Hindic texts in recreating their country. Many of these traditional ideas were
also compatible with contemporary Western liberal principles. The Muslim
majority in the Middle East today would do a great deal of good were it to
learn from the Indian experience. India today is not perfect but continues to
evolve and few doubt its role as an influential international power. All of
this is to suggest that the economic platform of the New Middle East must
properly be viewed as needing to balance between participation with
contemporary norms and the populist currents that demand freedom and justice
and that have propelled the Arab uprisings.
The modern economic paradigm is
the cause of exasperating discrepancies in income levels across the globalized
world and the fundamental reality is that democracy has become increasingly
subverted by an elitist interpretation of free market doctrine. Because the protests
that sparked the Arab Spring were as much about economic opportunity as
politics, a clear economic platform would go much further in redirecting
sustained tensions into productive activity than any political appeasement. The
Arabs demand freedom and, while underdeveloped, a truly Islamic economics is
the best hope. It incorporates the best of free market doctrine while its
prohibitions of interest and blind speculation have the potential to create an
Islamic version of contemporary calls for a more conscious capitalism. In a
world shifting from one of unipolarity to a balance of power system, the Arab
world must utilize its common culture, language and religion to formulate a
sovereign block that can contribute to altering the international arena.
That also means that antagonist
anti-Americanism and radical populism will do little good. However Egyptians
and Arabs generally, should look at the facts and be weary of participation
with transnational institutions like the IMF. A rich history documents its
subversion of democracy through primary support of a free market doctrine that
has tended to preserve authoritarian political structures. As Dr. Henry
Kissinger put in his book Diplomacy, which John Kerry quoted from extensively
in his secretarial confirmation speech, "For the greatest part of humanity
and the longest periods of history, empire has been the typical mode of government?
Empires have no interest in operating within an international system; they
aspire to be the international system. Empires have no need for a balance of
power. That is how the U.S. has conducted its foreign policy in the Americas,
and China through most of its history in Asia." Today's imperial
institutions serve the interests of global capital that trumps the powers of
social protection typically attributed to the nation state system.
The Muslim world is all too
familiar with the process. It was born with the collapse of an Islamic
caliphate that once united the region, was carved by the betrayal of the
secretive Sykes-Pichot accords, creating nations led by secularists loyal to
colonial powers. Support for authoritarianism and efforts to prevent sovereign
development have been commonplace since but so too has a general internal
backwardation. Understandably, anti-Americanism is rampant, but it is most
important to recognize that the U.S. operates not primarily on humanitarian
concerns but in the pursuit of its own interests. The U.S. economy is the most
powerful and dynamic in the world and its democracy one of the most developed.
Its not that it seeks to support corrupt dictatorship but it is undeniable that
has often been an unintended consequence. Today, the U.S. government is just as
controlled by corporatist and transnational, foreign interests as are the
countries of the Middle East. Effective economic reform and cooperation could
contribute greatly to rising demands for reform in the international arena and
even help prevent a return to global recession.
Secularists, Muslim Brotherhood and Salafist leaders would
do a great deal of good were they to realize this and not repeat past mistakes
that used anti-Americanism to generate political allegiance. Were such
developments to induce a model for regional reform and international
cooperation, the Muslim world will play a significant role in the emerging
balance of power system. If things continue toward division and disputation,
the region will remain insignificant and the powerful will continue to divide
its wealth and prosper from exploiting its strategic resources and location.
So too, American society suffers
from a decline in infrastructure, unequal distribution of wealth, the harmful
effects of borrowing and interest, over a decade of senseless war in the Muslim
world and a xenophobic population ignorant of international affairs. The
development of an Islamic economic block would even indirectly contribute to
healing those problems. Recall that Americans first in Wisconsin, then with the
Occupy Movement attempted to emulate the spirit of the Arab Spring. People everywhere
are inspired by social struggle that represents true justice and progress.
While in Egypt, Secretary Kerry asserted that, "the best way to ensure
human rights and strong checks and balances in any democracy... is that there
is the broadest possible political and economic cooperation." However,
that is a principle that underlies the rhetoric of all regimes whether they be communist,
capitalist or Islamic. The proof, for the new democracies of the Middle East
and the U.S. hegemon that suggests it backs them will be not in the rhetoric
but in in the substance of policy and practice.
Younus Abdullah Muhammad is a Muslim American and master in
International Relations. He is the founder of IslamPolicy.com but is presently
incarcerated in the U.S. Federal Prison System. He can be contacted by emailing
islampolicy@gmail.com