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Friday, April 20, 2012

Bahrain: Reform, Security, and U.S. Policy

Kenneth Katzman
Specialist in Middle Eastern Affairs

The uprising that began in Bahrain on February 14, 2011, following the revolt that overthrew Egypt’s President Hosni Mubarak three days earlier, began a political crisis that defies easy resolution. The unrest demonstrates that the grievances of the Shiite majority over the distribution of power and economic opportunities were not satisfied by the efforts during 1999-2010 to increase the role of the Shiite majority in governance. Bahraini Shiites say they demand a constitutional monarchy in which an elected parliament produces the government, but the Sunni minority believes the Shiites want nothing less than outright rule.

In March 2011, Bahrain’s government rejected U.S. advice by inviting direct security assistance from other Gulf Cooperation Council countries, declaring a state of emergency, forcefully suppressing demonstrations, and arresting dissident leaders and pro-opposition health care workers. Although the state of emergency ended on June 1, 2011, the continued imprisonment of dissidents contributed to the resulting failure of a “national dialogue,” held in July 2011, to reach agreement on more than just a few political reform recommendations. Hopes for resolution were raised by a pivotal report by a government-appointed “Independent Commission of Inquiry” (BICI) on the unrest, released November 23, 2011, which was critical of the government’s actions against the unrest as well as the opposition’s responses to government proposals early in the crisis. The government asserts it has implemented many of the BICI recommendations—an assertion largely corroborated on March 20, 2012, by a national commission appointed to oversee implementation—and says it will institute the remainder. However, stalemate on major political reforms has contributed to the continuation of significant demonstrations and dashed hopes that a complete solution is in sight.

The Obama Administration has not called for a change of the Al Khalifa regime and has to some extent concurred with the Bahrain government view that Iran is likely to take advantage of the Bahrain unrest, but the Administration has criticized the regime’s use of force against protesters and urged further political reform. The U.S. position on Bahrain has been criticized by those who believe the United States is downplaying regime abuses because the U.S. security relationship with the Al Khalifa regime is critical to U.S. efforts to contain Iran and secure the Persian Gulf more broadly. In exchange for a tacit security guarantee against Iran or other aggressors, Bahrain has provided key support for U.S. interests by hosting U.S. naval headquarters for the Gulf for over 60 years and by providing facilities and small numbers of personnel for U.S. war efforts in Iraq and Afghanistan. U.S. officials are concerned that the instability in Bahrain could render U.S. use of the naval headquarters facilities untenable, but there are no evident moves to relocate it. Beyond the naval facility, the United States signed a formal defense pact with Bahrain in 1991 and has designated Bahrain as a “major non-NATO ally,” entitling it to sales of sophisticated U.S. weapons systems. Partly to address criticism from human rights and some Members of Congress, the Administration has put on hold a significant proposed sale of armored vehicles and anti-tank weapons. Consumed by its own crisis, Bahrain has joined with but deferred to other GCC powers in initiatives to resolve uprisings in Libya, Syria, and Yemen.

Fueling Shiite unrest is the fact that Bahrain, having largely run out of crude oil reserves, is poorer than most of the other Persian Gulf monarchies. The country has tried to compensate through diversification, particularly with banking and some manufacturing. In September 2004, the United States and Bahrain signed a free trade agreement (FTA); legislation implementing it was signed January 11, 2006 (P.L. 109-169). The unrest in 2011 has further strained Bahrain’s economy.

Date of Report: April 13, 2012
Number of Pages: 35
Order Number: 95-1013
Price: $29.95

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