Shadow Government

Previewing Iraq’s provincial elections

This Saturday, Iraqis head to the polls to vote for provincial councils — the country’s first elections since U.S. troops withdrew sixteen months ago. The balloting comes at a time of growing peril for Iraq. Violence is escalating, as are tensions pitting the Shiite-dominated government of Prime Minister Nouri al-Maliki against the country’s Sunni and ...


This Saturday, Iraqis head to the polls to vote for provincial councils — the country’s first elections since U.S. troops withdrew sixteen months ago. The balloting comes at a time of growing peril for Iraq. Violence is escalating, as are tensions pitting the Shiite-dominated government of Prime Minister Nouri al-Maliki against the country’s Sunni and Kurdish communities — all exacerbated by the raging civil war in neighboring Syria. While posing a stern test to the viability of Iraq’s democratic system, the elections will also serve as an important indicator of the relative strength of Iraq’s competing coalitions — especially Maliki’s — in advance of national elections scheduled for 2014.

At stake are nearly 450 seats on local governing bodies. More than 8100 candidates from some 265 political entities are competing. The elections cover 14 of Iraq’s 18 provinces. The three provinces comprising the Kurdistan Regional Government will vote later this year, while elections in oil-rich and ethnically disputed Kirkuk have (by tacit agreement among the competing communities) not been held since 2005.

But in a highly controversial move, Maliki’s cabinet decreed in March that balloting would be delayed by up to six months in Iraq’s two most influential Sunni-majority provinces, Anbar and Nineveh — both of which border Syria and have for months been the locus of large-scale (but mostly peaceful) anti-Maliki protests. Maliki claimed — not entirely without justification, especially in Anbar — that he was simply responding to the petition of local leaders worried that voters could not be adequately protected from growing collaboration between al Qaeda affiliates on either sides of the Iraq-Syria border. 

His opponents charge that the prime minister’s real agenda is avoiding a massive anti-Maliki turnout that would further escalate opposition to his government. They correctly note that previous elections were conducted under far more threatening conditions. Both the U.S. and U.N. urged Maliki to reverse course, worried about the appearance of disenfranchising millions of Sunnis already agitated by claims that Maliki has been systematically moving to marginalize their community in the interests of establishing an Iranian-backed Shiite dictatorship. Maliki turned aside these criticisms, while suggesting the delayed elections might occur as early as May.

The reality is that violence threatens voting throughout Iraq. A series of more than 20 terror attacks on Monday hit targets across the country, including prospective polling places, killing Sunnis and Shiites alike. These were but the latest in a string of al Qaeda-linked assaults that have occurred at increasingly regular intervals. The campaign has also been marred by at least 15 candidate assassinations, all of them Sunnis and many believed to have been killed not by Al Qaeda but by political rivals within their own community. 

Whether Iraqi security forces can successfully protect the elections without the support previously provided by tens of thousands of U.S. troops is a major question mark. The fact that close to 700,000 army and police officers went to the polls in early voting last Saturday without incident was encouraging. Also of concern, however, is the possibility that the mere threat of violence could significantly depress turnout, stoking doubts about the legitimacy and future of Iraq’s shaky democracy. An especially important indicator could be the participation of Sunnis — a potential barometer of that disgruntled community’s continued commitment to the post-2003 political order or, alternatively, a troubling sign that, perhaps inspired by co-religionists in neighboring Syria, they are looking to more confrontational methods to redress their grievances. 

Beyond violence, ensuring the integrity of the electoral process has to be a real worry. There is no doubt that America’s heavy involvement during past elections helped deter fraud to a minimum. Absence that involvement, the risk of widespread wrongdoing — or simply the perception of wrongdoing — increases dramatically, even with the presence of a few hundred international observers and several thousand domestic monitors. The danger that significant swaths of the public may simply reject the legitimacy of the results cannot be discounted. 

Assuming a relatively free and fair vote, the outcome of Saturday’s elections is hard to predict. No reliable polling is publicly available. Maliki has confidently claimed that his coalition will win big. In recent weeks, he has shrewdly sought to divide his Sunni opposition (including through a surprising set of proposals to ease de-Baathifcation laws), successfully co-opting stalwart nationalists like Deputy Prime Minister Saleh Mutlaq. The Iraqiya bloc of his main rival, former prime minister Ayad Allawi (a secular Shiite), has splintered, with the current speaker of parliament, Osama Nujaifi, and the former finance minister, Rafi Issawi, forming their own Sunni-based coalition.

Nevertheless, surprises remain possible. In local elections, a voter’s familiarity with a hometown candidate can often trump allegiance to a national party. In provincial balloting four years ago, Iraqis voted to punish incumbents — an inclination that if repeated on Saturday could well work against Maliki and to the benefit of his major Shiite rivals in the Islamic Supreme Council and Sadrist camp — both of which are fielding their own candidates. For all his troubles, Allawi’s bloc is the only one competing in all Iraq’s provinces, both Sunni and Shiite, a nationalist vocation that could well accrue to his benefit. And even if Maliki’s State of Law emerges as the top vote getter, post-election coalitions among his opponents could emerge that deny him the degree of local domination that he seeks.

Should Maliki nevertheless secure an overwhelming victory, it will likely fuel fears that his most worrisome authoritarian tendencies will be emboldened: more consolidation of control over key state institutions, particularly the means of coercion and the courts; more targeting and exclusion of political opponents; an intensified effort to resolve disputes with Iraq’s Kurdish and Sunni minorities through confrontation; and increased dependence on Iran. Maliki’s chances of winning next year’s national elections, another four years in office, and increasingly unconstrained powers would increase significantly.  Should such fears be realized, the results for Iraqi stability and unity could be dire indeed — especially in a regional context of dramatically heightened sectarian and ethnic tensions, perhaps leading to all-out state collapse in next-door Syria.

From that standpoint, Iraq’s future may be best served if Saturday’s elections see not only minimal violence, maximum participation, and limited irregularities, but also no clear winners and losers — a triumph not only of the democratic process, but a therapeutic re-balancing of Iraq’s political landscape that reminds all parties of the continued imperative of negotiation, compromise, and political partnership. 

John Hannah is a senior counselor at the Foundation for Defense of Democracies and former national security advisor to Vice President Dick Cheney.

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