Ministerial Portfolios : Rotation or Manipulation?
Some of the political forces, more precisely the Free Patriotic Movement, denounced the timing of the proposition on the grounds that the prospective government was expected to hand power over to a successor right after the presidential elections and hence its life span would not exceed 100 days, which would render portfolio rotation pointless. Apart from its fears of an imminent presidential vacuum and of the government staying in office longer than planned, the Free Patriotic Movement opines that the rotation of ministerial portfolios should occur only when ministers fail to live up to their responsibilities. The latter does not apply to the FPM whose telecoms, energy and water ministers have demonstrated impeccable performance throughout their tenures. Hence, any talks about portfolio rotation are deemed an attempt to cast out the FPM ministers and prevent them from reaping what they had sowed. For all these reasons, the opponents of portfolio rotation suggested that this strategy should be put off until after the presidential elections or until after the parliamentary elections in November 2014, arguing that the principle of rotation can only be effective in a case where a government will remain in power for the long haul.
This is not the first time that Lebanon has experienced delays in the formation of its Cabinet, nor is it the first time that the Zua’ama have quarreled over a ministerial office. Furthermore, the sudden political accord is something to which none of us has been unaccustomed. Yet, there exist sharp distinctions between the past and today. In the past, starting from Independence in 1943, Zua’ama would compete over a ministerial seat out of their strong sense of responsibility and their eagerness to reform and take charge of key portfolios- Rashid Karami and Kamal Jumblat were staunch seekers of the Finance and Interior portfolios respectively. Conversely, it is difficult to picture any member of today’s Zua’ama holding a ministerial position in person. Instead, they appoint loyalists and henchmen to assume office while they themselves operate behind the scenes.
Post-Taif Governments
From the approval of the Taif Accord in November 1989 until the government formed by Mikati in 2011, 15 governments have succeeded to power in Lebanon. By premiership, they were distributed as follows:
- Rafic Hariri: 5 governments
- Salim El-Hoss: 2
- Omar Karami: 2
- Najib Mikati: 2
- Fouad Seniora: 2
- Rashid As-Solh: 1
- Saad Hariri: 1
Combined, these governments consisted of 392 ministers (in addition to two ministers, one succeeding the deceased minister Joseph Mghayzel and one replacing the resigning minister Ghassan Salameh)
- 10 Cabinets, each with 30 ministers
- 2 Cabinets, each with 24 ministers
- 2 Cabinets, each with 14 ministers
- 1 Cabinet, each with 16 ministers
A close examination of the accompanying tables (pages 6 to 15) reveals that certain portfolios were frequently earmarked for specific sectarian leaders, to such an extent that we have grown accustomed to naming each ministry after its monopolizing sect: the “Shia’a portfolios of Health and Agriculture”, the “Sunni portfolio of Finance”, the “Druze portfolio of the Displaced”, and the “Al-Murr’s portfolios of Interior and National Defense”, during the time when the family was backed by the Syrian regime. This has transformed ministerial portfolios into platforms for exercising sectarian and political influence and favoring self-serving interests over national ones.
The Rotation Government
The new “national interest government” under Prime Minister Tamam Salam failed to achieve full ministerial rotation both at sectarian and political levels. Salam has partly admitted this, by stressing that “the position of Deputy Prime Minister was excluded from the principle of rotation” and hoping to apply this approach in its entirety in future cabinets.
Ministerial rotation did not materialize and below is the lineup of the new cabinet:
- The Ministry of Defense remained under the monopoly of the Greek Orthodox but was aken away from the Marada Movement to fall within the share of the President of the Republic.
- The Ministry of Energy and Water remained under the FPM monopoly but was passed on from the Maronite to the Armenian Orthodox.
- The Ministry of Culture remained under the FPM monopoly but was passed on from the Greek Orthodox to the Maronite.
- The Ministry of Telecommunications was handed over from the Greek Catholics to the Maronite.
- The Ministry of Agriculture was handed over from the Shia’a to the Druze.
- The Ministry of Public Works was handed over from the Druze to the Shia’a.
- The Ministry of Tourism was handed over from the Maronite to the Greek Catholics.
- The Ministry of Finance was handed over from the Sunni to the Shia’a
- The Ministry of Foreign Affairs and Emigrants was handed over from the Shia’a to the Maronite.
- The Ministry of Public Health was handed over from the Shia’a to the Druze
- The Ministry of Industry was handed over from the Armenian Orthodox to the Shia’a
- The Ministry of Information was handed over from Sunni to the Greek Orthodox.
- The Ministry of Interior and Municipalities was handed over from the Maronite to the Sunni.
- The Ministry of Social Affairs was handed over from the Druze to the Sunni.
- The Ministry of Justice was handed over from the Maronite to the Sunni.
- The Ministry of Labor was handed over from the Greek Catholics to the Maronite.
- The Ministry of environment was handed over from the Maronite to the Sunni.
- The Ministry of the Displaced was handed over from the Sunni to the Maronite.
- The Ministry of Youth and Sports was handed over from the Sunni to the Shia’a.
- The Ministry of Economy and Trade was handed over from the Greek Orthodox to the Greek Catholics.
- The Ministry of Education and Higher Education was handed over from the Sunni to the Greek Orthodox.
- The Ministry of State for Parliament’s Affairs from the Greek Catholics to the Shia’a.
- The Ministry of State for Administrative Reform from the Shia’a to minorities.
The birth of the government with its current components attests clearly that the ministerial rotation was an ostensible excuse for the delay and that the matter was actually tied to an alteration of external factors that proved decisive in tilting the scales.
Note:
When the late PM Rafic Hariri formed his first government in 1992, he introduced a number of portfolios that were later legalized by virtue of the following laws:
- Law No. 190 dated January 4, 1993 stipulated the establishment of the Ministry of the Displaced.
- Law No. 197 dated February 18, 1993 stipulated the establishment of the Ministry of Municipal Affairs as a stand-alone entity after the separation of the municipal department from the Ministry of Interior.
- Law No. 211 dated April 2, 1993 stipulated the establishment of the Ministry of Technical and Vocational Education as a stand-alone entity after the separation of the General Directorate of Technical and Vocational Education from the Ministry of National Education and Fine Arts.
- Law No. 212 dated April 2, 1993 stipulated the establishment of the Ministry of Social Affairs as a stand-alone entity after the separation of the General Directorate of Social Affairs from the Ministry of Health and Social Affairs. The name of the latter was also amended to ‘Ministry of Public Health.’
- Law No. 213 dated April 2, 1993 stipulated the establishment of the Ministry of Emigrants as a stand-alone entity and modified the name of the initial ministry from ‘Ministry of Foreign Affairs and Emigrants ’ to ‘Ministry of Foreign Affairs’.
- Law No. 214 dated April 2, 1993 stipulated the establishment of the Ministry of Transport as a stand-alone entity after the separation of the General Directorate of Transport and the General Directorate of Civil Aviation from the initial Ministry of Public Works and Transport, whose name was changed to ‘Ministry of Public Works.’
- Law No. 215 dated April 2, 1993 stipulated the establishment of the Ministry of Culture and Higher Education and modified the name of the initial Ministry of Education and Fine Arts into ‘Ministry of National Education, Youth and Sports’.
- Law No. 216 dated April 2, 1993 stipulated the establishment of the Ministry of the Environment.
- Law No. 642 dated June 2, 1997 stipulated the establishment of the Ministry of Industry and updated the name of the initial ministry from ‘Ministry of Industry and Oil’ to ‘Ministry of Oil’.
According to Law No. 247 dated August 7, 2000 (the Law of Merger, Cancellation and Establishment of Ministries and Councils):
- The Ministry of Emigrants was abolished and reinstated within the Ministry of Foreign Affairs and Emigrants.
- The Ministry of Municipal Affairs was abolished and reinstated within the Ministry of Interior and Municipalities.
- The Ministry of Transport was abolished and reinstated within the Ministry of Public Works and Transport.
- The Ministry of Housing and Cooperatives was abolished and cooperatives were reintroduced into the Ministry of Agriculture.
- The Ministry of Oil was merged with the Ministry of Hydraulic Resources under one ministry named “Ministry of Energy and Water”.
- The Ministry of Youth and Sports was established.
- The Ministry of Technical and Vocational Education was reinstated within the Ministry of Education and Higher Education.
Portfolio Rotation | |||||||
Premier and government’s term of office | President of the Republic | Ministry of Justice | Ministry of National Defense | Ministry of Foreign Affairs and Emigrants | Ministry of Interior and Municipalities | Ministry of National Education and Fine Arts (Education and Higher Education) |
Ministry of Public Works and Transport |
Deputy Premier | |||||||
PM Salim El-Hoss
from 25/11/1989 until 24/12/1990 |
Elias El-Hrawi | Edmont Rizk (Maronite) | Albert Mansour (Greek Catholic) | Salim El-Hoss (Sunni) | Elias Khazen (Maronite) | Omar Karami (Sunni) | Walid Jumblat (Druze) |
Michel Sassine | |||||||
PM Omar Karami
from 24/12/1990 until 16/5/1992 |
Khatchig Babikian
(Armenian Orthodox) |
Michel El-Murr (Greek Orthodox) | Fares Boueiz (Maronite) | Sami El-Khatib (Sunni) | Boutros Harb (Maronite) | Nadim Salem
(Greek Catholic) |
|
Michel El-Murr | |||||||
PM Rashid Solh
from 16/5/1992 until 31/10/1992 |
Nasri Maalouf (Greek Catholic) | Michel El-Murr (Greek Orthodox) | Fares Boueiz (Maronite) | Sami El-Khatib (Sunni) | Zaki Mazboudi (Sunni) | Chawki Fakhoury
(Greek Orthodox) |
|
Michel El-Murr | |||||||
PM Rafic Hariri
from 31/10/1992 until 25/5/1995 |
Bahij Tabbara (Sunni) | Mohsen Dalloul (Shia’a) | Fares Boueiz (Maronite) | Bechara Merhej
(Greek Orthodox) |
Mikhael Daher (Maronite) | Mohammad Bassam Mortada (Shia’a) | |
Michel El-Murr | |||||||
PM Rafic Hariri
from 25/5/1995 until 7/11/1996 |
Bahij Tabbara (Sunni) | Mohsen Dalloul (Shia’a) | Fares Boueiz (Maronite) | Michel El-Murr
(Greek Orthodox) |
Robert Ghanem (Maronite) | Ali Hrajli (Shia’a) | |
Michel El-Murr | |||||||
PM Rafic Hariri
from 7/11/1996 until 4/12/1998 |
Bahij Tabbara (Sunni) | Mohsen Dalloul (Shia’a) | Fares Boueiz (Maronite) | Michel El-Murr
(Greek Orthodox) |
Jean Oubeid (Maronite) | Ali Hrajli (Shia’a) | |
Michel El-Murr | |||||||
PM Salim El-Hoss
from 4/12/1998 until 26/10/2000 |
Emile Lahoud | Joseph Chaoul (Maronite) | Ghazi Zoueiter (Shia’a) | Salim El-Hoss (Sunni) | Michel El-Murr
(Greek Orthodox) |
Mohammad Youssef Baydoun (Shia’a) | Najib Mikati (Sunni) |
Michel El-Murr | |||||||
PM Rafic Hariri
from 26/10/2000 until 17/4/2003 |
Samir El-Jisr (Sunni) | Khalil El-Hrawi (Maronite) | Mahmoud Hammoud (Shia’a) | Elias El-Murr (Greek Orthodox) | Abdul Rahim Mrad (Sunni) | Najib Mikati (Sunni) | |
Issam Fares | |||||||
PM Rafic Hariri
from 17/4/2003 until 26/10/2004 |
Bahij Tabbara (Sunni) | Mahmoud Hammoud (Shia’a) | Jean Oubeid (Maronite) | Elias El-Murr (Greek Orthodox) | Sami El-Jisr (Sunni) | Najib Mikati (Sunni) | |
Issam Fares | |||||||
PM Omar Karami
from 26/10/2004 until 19/4/2005 |
Adnan Addoum (Sunni) | Abdul Rahim Mrad (Sunni) | Mahmoud Hammoud (Shia’a) | Suleiman Frangieh (Maronite) | Ahmad Sami Menqara (Sunni) | Yassin Jaber (Shia’a) | |
Issam Fares | |||||||
PM Najib Mikati
from 19/4/2005 until 19/7/2005 |
Khaled Qabbani (Sunni) | Elias El-Murr (Greek Orthodox) | Mahmoud Hammoud
(Shia’a) |
Hassan Sabeh (Sunni) | Ghassan Salameh
(Greek Catholic) |
Adel Hamiyeh (Druze) | |
Elias El-Murr | |||||||
PM Fouad Seniora
from 19/7/2005 until 11/7/2008 |
Charles Rizk (Maronite) | Elias El-Murr (Greek Orthodox) | Fawzi Salloukh
(Shia’a) |
Hassan Sabeh (Sunni) | Khaled Qabbani (Sunni) | Mohammad Safadi (Sunni) | |
Elias El-Murr | |||||||
PM Fouad Seniora
from 11/7/2008 until 9/11/2009 |
Michel Suleiman | Ibrahim Najjar (Greek Orthodox) | Elias El-Murr (Greek Orthodox) | Fawzi Salloukh
(Shia’a) |
Ziad Baroud (Maronite) | Bahiyah Hariri (Sunni) | Ghazi Aridi (Druze) |
Issam Abou Jamra | |||||||
PM Saad Hariri
from 9/11/2009 until 13/6/2011 |
Ibrahim Najjar (Greek Orthodox) | Elias El-Murr (Greek Orthodox) | Ali Hussein El-Chami
(Shia’a) |
Ziad Baroud (Maronite) | Hassan Mneimneh (Sunni) | Ghazi Aridi (Druze) | |
Elias El-Murr | |||||||
PM Najib Mikati
from 13/6/2011 until 15/2/2014 |
Chakib Qortbawi (Maronite) | Fayez Ghosn (Greek Orthodox) | Adnan Mansour
(Shia’a) |
Marwan Charbel (Maronite) | Hassan Diab (Sunni) | Ghazi Aridi (Druze) | |
Samir Moqbel | |||||||
Sectarian and political affiliations of the ministers who succeeded to the diverse portfolios | Sectarian Make-up:
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Portfolio Rotation | |||||||
Premier and government’s term of office | President of the Republic | Ministry of Electrical and Hydraulic Resources (Ministry of Energy and Water) |
Ministry of Telecommunications | Ministry of Finance | Ministry of Public Health | Ministry of Labor | Ministry of Tourism |
Deputy Premier | |||||||
PM Salim El-Hoss
from 25/11/1989 until 24/12/1990 |
Elias El-Hrawi | Nabih Berri (Shia’a) | George Saadeh (Maronite) | Ali El-Khalil (Shia’a) | Abdullah El-Rassi (Greek Orthodox) | Michel Sassine
(Greek Orthodox) |
Abdullah Al-Rasi
(Greek Orthodox) |
Michel Sassine | |||||||
PM Omar Karami
from 24/12/1990 until 16/5/1992 |
Mohammad Youssef Baydoun (Shia’a) | George Saadeh (Maronite) | Ali El-Khalil (Shia’a) | Jamil Kebbi (Sunni) | Michel Sassine
(Greek Orthodox) |
Talal Erslan (Druze) | |
Michel El-Murr | |||||||
PM Rashid Solh
from 16/5/1992 until 31/10/1992 |
Mohammad Abdul Hamid Baydoun (Shia’a) | George Saadeh (Maronite) | Asaad Diab (Shia’a) | Marwan Hamadeh (Druze) | Abdullah Al-Amine (Shia’a) | Ahmad Sami Minkara (Sunni) | |
Michel El-Murr | |||||||
PM Rafic Hariri
from 31/10/1992 until 25/5/1995 |
George Frem (Maronite).
He was dismissed from his post. |
Mohammad Ghraizi (Sunni) | Rafic Hariri (Sunni) | Marwan Hamadeh (Druze) | Abdullah Al-Amine (Shia’a) | Nicolas Fattoush
(Greek Catholic) |
|
Michel El-Murr | |||||||
PM Rafic Hariri
from 25/5/1995 until 7/11/1996 |
Elias Hobeika (Maronite) | Al-Fadl Chalak (Sunni) | Rafic Hariri (Sunni) | Marwan Hamadeh (Druze) | Asaad Hardan (Greek Orthodox) | Nicolas Fattoush
(Greek Catholic) |
|
Michel El-Murr | |||||||
PM Rafic Hariri
from 7/11/1996 until 4/12/1998 |
Elias Hobeika (Maronite) | Rafic Hariri (Sunni) | Rafic Hariri (Sunni) | Suleiman Frangieh (Maronite) | Asaad Hardan (Greek Orthodox) | Nicolas Fattoush
(Greek Catholic) |
|
Michel El-Murr | |||||||
PM Salim El-Hoss
from 4/12/1998 until 26/10/2000 |
Emile Lahoud | Suleiman Trabolsi (Greek Catholic) | Issam Naaman (Druze) | George Qorm (Maronite) | Karam Karam (Greek Orthodox) | Michel Moussa (Greek Catholic) | Arthur Nazarian
(Armenian Orthodox) |
Michel El-Murr | |||||||
PM Rafic Hariri
from 26/10/2000 until 17/4/2003 |
Mohammad Abdul Hamid Baydoun (Shia’a) | Jean Louis Cardahi (Maronite) | Fouad Seniora (Sunni) | Suleiman Frangieh (Maronite) | Ali Qanso (Shia’a) | Karam Karam (Greek Orthodox) | |
Issam Fares | |||||||
PM Rafic Hariri
from 17/4/2003 until 26/10/2004 |
Ayoub Hamid (Shia’a) | Jean Louis Cardahi (Maronite) | Fouad Seniora (Sunni) | Suleiman Frangieh (Maronite) | Asaad Hardan (Greek Orthodox) | Ali Hussein Abdallah (Shia’a) | |
Issam Fares | |||||||
PM Omar Karami
from 26/10/2004 until 19/4/2005 |
Maurice Sehnaoui (Greek Catholic) | Jean Louis Cardahi (Maronite) | Elias Saba (Greek Orthodox) | Mohammad Jawad Khalifeh (Shia’a) | Assem Qanso (Shia’a) | Fareed /Wadeeh El-Khazen (Maronite) | |
Issam Fares | |||||||
PM Najib Mikati
from 19/4/2005 until 19/7/2005 |
Bassam Yammine (Maronite) | Alain Tabourian
(Armenian Orthodox) |
Demianos Kattar (Maronite) | Mohammad Jawad Khalifeh (Shia’a) | Trad Kanj Hamadeh (Shia’a) | Charles Rizk (Maronite) | |
Elias El-Murr | |||||||
PM Fouad Seniora
from 19/7/2005 until 11/7/2008 |
Mohammad Fneish (Shia’a) | Marwan Hamadeh (Druze) | Jihad Azour (Maronite) | Mohammad Jawad Khalifeh (Shia’a) | Trad Kanj Hamadeh (Shia’a) | Joseph Sarkis (Maronite) | |
Elias El-Murr | |||||||
PM Fouad Seniora
from 11/7/2008 until 9/11/2009 |
Michel Suleiman | Alain Tabourian (Armenian Orthodox) | Gebran Bassil (Maronite) | Mohammad Chatah (Sunni) | Mohammad Jawad Khalifeh (Shia’a) | Mohammad Fneish (Shia’a) | Elie Marouny (Maronite) |
Issam Abou Jamra | |||||||
PM Saad Hariri
from 9/11/2009 until 13/6/2011 |
Gebran Bassil (Maronite) | Charbel Nahhas
(Greek Catholic) |
Rayya Haffar (Sunni) | Mohammad Jawad Khalifeh (Shia’a) | Boutros Harb (Maronite) | Fadi Abboud (Maronite) | |
Elias El-Murr | |||||||
PM Najib Mikati
from 13/6/2011 until 15/2/2014 |
Gebran Bassil (Maronite) | Nicolas Sehnaoui
(Greek Catholic) |
Mohammad Safadi (Sunni) | Ali Hassan Khalil (Shia’a) | Charbel Nahhas/ Salim Jraisati (Greek Catholic) | Fadi Abboud (Maronite) | |
Samir Moqbel | |||||||
Sectarian and political affiliations of the ministers who succeeded to the diverse portfolios | Sectarian Make-up:
Political Make-up:
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Political Make-up:
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Portfolio Rotation | |||||||
Premier and government’s term of office | President of the Republic | Ministry of Agriculture | Ministry of Industry and Oil | Ministry of Economy and Trade | Ministry of Information | Ministry of Housing and Cooperatives | Ministry of Environment |
Deputy Premier | |||||||
PM Salim El-Hoss
from 25/11/1989 until 24/12/1990 |
Elias El-Hrawi | Mohsen Dalloul (Shia’a) | Souren Khanamerian
(Armenian Orthodox) |
Nazih El-Bezri (Sunni) | Edmont Rizk (Maronite) | Nabih Berri (Shia’a) | - |
Michel Sassine | |||||||
PM Omar Karami
from 24/12/1990 until 16/5/1992 |
Mohsen Dalloul (Shia’a) | Mohammad Jaroudi (Sunni) | Marwan Hamadeh (Druze) | Albert Mansour
(Greek Catholic) |
Mohammad Abdul Hamid Baydoun (Shia’a) | Agop Jokhadrian
(Armenian Catholic) |
|
Michel El-Murr | |||||||
PM Rashid Solh
from 16/5/1992 until 31/10/1992 |
Mohsen Dalloul (Shia’a) | Shahe Barsoumian
(Armenian Orthodox) |
Samir Maqdissi (Evangelical) | Michel Samaha
(Greek Catholic) |
Suleiman Frangieh (Maronite) | - | |
Michel El-Murr | |||||||
PM Rafic Hariri
from 31/10/1992 until 25/5/1995 |
Adel Qortass (Greek Orthodox) | Asaad Rizk (Greek Catholic) | Hagop Demirjian
(Armenian Orthodox) |
Michel Samaha
(Greek Catholic) |
Mahmoud Abou Hamdan (Shia’a) | Samir Moqbel (Greek Orthodox) | |
Michel El-Murr | |||||||
PM Rafic Hariri
from 25/5/1995 until 7/11/1996 |
Chawki Fakhoury (Greek Orthodox) | Shahe Barsoumian
(Armenian Orthodox) |
Yassin Jaber (Shia’a) | Farid Makari (Greek Orthodox) | Mahmoud Abou Hamdan (Shia’a) | “Joseph Mghayzel (Greek Catholic). Pierre Feraoun was appointed upon Mghayzel’s death.” |
|
Michel El-Murr | |||||||
PM Rafic Hariri
from 7/11/1996 until 4/12/1998 |
Chawki Fakhoury (Greek Orthodox) | “Nadim Salem (Greek Catholic Minister of Industry) Shahe Barsoumian (Armenian Orthodox Minister of Oil following separation of the two portfolios.” |
Yassin Jaber (Shia’a) | Bassem Sabeh (Shia’a) | Mahmoud Abou Hamdan (Shia’a) | Akram Chehayyeb (Druze) | |
Michel El-Murr | |||||||
PM Salim El-Hoss
from 4/12/1998 until 26/10/2000 |
Emile Lahoud | Suleiman Frangieh (Maronite) | Nasser Saidi
(Shia’a Minister of Industry) |
Nasser Saidi (Shia’a) | Anwar El-Khalil (Druze) | Suleiman Frangieh (Maronite) | Arthur Nazarian
(Armenian Orthodox) |
Michel El-Murr | |||||||
PM Rafic Hariri
from 26/10/2000 until 17/4/2003 |
Ali Ajaj Abdullah (Shia’a) | George Frem (Maronite) | Bassel Fleihan (Evangelical) | Ghazi Aridi (Druze) | - | Michel Moussa (Greek Catholic) | |
Issam Fares | |||||||
PM Rafic Hariri
from 17/4/2003 until 26/10/2004 |
Ali Hassan Khalil (Shia’a) | Elias Skaff (Greek Catholic) | Marwan Hamadeh (Druze) | Michel Samaha
(Greek Catholic) |
- | Fares Boueiz (Maronite) | |
Issam Fares | |||||||
PM Omar |
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