By Leenco Lata
Controversy has been dogging the policy of structuring Ethiopia as a multinational federation ever since it was publicly aired almost twenty-five years ago.
There are those who vociferously and persistently condemn the Ethiopian Peoples’ Revolutionary Democratic Front (EPRDF) leaders for introducing the politicization of ethnicity by embracing this policy. On the other hand, there are those who likewise consistently commend EPRDF leaders for the same reason. However, putting the adoption of this policy in an historical perspective would prove that both stands are wrong.
The erroneousness of the stand of both those who commend and those who condemn EPRDF leaders for structuring Ethiopia as a multinational federation becomes easily explicable by recalling the famous statement by Marx that “Men make their own history, but they do not make it as they please; they do not make it under self-selected circumstances, but under circumstances existing already, given and transmitted from the past.” It is the circumstance prevailing when EPRDF leaders came to power that rendered structuring Ethiopia as a multinational federation inescapable and not their alleged noble or ignoble intentions.
What was that circumstance? At the time, struggles for national self-determination by the Oromos, Tigreans, Ogadenis, Sidamas, etc. were gathering momentum while more and more communities (Gambellas, Benishanguls, etc,) were joining the fray with every passing year. Accommodating these quests for self-determination by structuring Ethiopia as a multinational federation was, hence, simply inescapable.
The critics of the present multinational federation blame the spokespersons of these struggles for self-determination for politicizing ethnicity/language for the first time in the country’s history. Nothing could be further from the truth. On the contrary, these struggles were simply a natural response to a prior state-driven policy of politicizing ethnicity/language. This state-driven politicization of ethnicity/language goes as far back as 1933 when the then Minister of Education, Sahlu Tsedalu, proposed the following policy:
“ያገር ጉልበት ኣንድነት ነው ኣንድነትንም የሚወልደዉ ቋንቋ ልማድና ሃይማኖት ነዉ …
በመላ ኢትዮዽያ ግዛት ለሥጋዊና ለመንፈገሳዊ ሥራ ያማሪኛና የግዕዝ ቋንቋ ብቻ በሕግ ጸንተዉ እንዲኖሩ ሌላዉ ማናቸውም የአረማዉያን ቋንቋ ሁሉ እንዲደመሰስ ማድረግ ያስፈልጋል The rough translation of which is: “Unity is the strength of a country, and the sources of unity are language, custom and religion …. [It is thus necessary] to legally preserve in the whole of Ethiopia only Amharic and Ge’ez [We can ignore Ge’ez for it was merely a liturgical language of the Ethiopian Orthodox Church largely incomprehensible to ordinary believers] for spiritual and earthly use [while] the language of every pagan must be erased.”
This policy to erase all languages, except Amharic, amounts to an ethnocidal intention of eradicating all communities, except the speakers of Amharic. The targets of this discriminatory policy had no choice, but to launch struggles for self-determination with a view to averting the state-driven intention to eradicate them. These struggles were, hence, the effect of a prior act of politicizing ethnicity/language and not its cause as commonly presumed by the critics of the present multinational federation in Ethiopia.
This language-based policy was ultimately codified in laws proscribing the use of all languages, except Amharic, at public events, including prayer meetings as if the Almighty could understand only one language. It is common for all builders of empires to simply impose their language as the only official medium for administrative purposes, but the builders of contemporary Ethiopia are perhaps unique in legally proscribing the use of other languages.
This discriminatory language-based policy ultimately influenced how the Ethiopian identity (ኢትዬጵያዊነት) was portrayed. It gave rise to the version of the Ethiopian identity (ኢትዬጵያዊነት) that was synonymous with being a speaker of Amharic and totally opposed to being an Oromo, Sidama, Tigrean, etc. By implication, this version of Ethiopianness (ኢትዬጵያዊነት) was expected to blossom on the graveyards of Oromonnet,Sidamannet, Tigraynnet, and the identities of all other peoples.
Equating being an Ethiopian with being a speaker of Amharic in due course drew the criticism of the Ethiopian student radicals of the 1960s. In particular, Walillign Mekonen’s article of 1969 cogently stated: “To be a ‘genuine Ethiopian’ one has to speak Amharic, to listen to Amharic music, to accept the Amhara-Tigre religion, Orthodox Christianity and to wear the Amhara-Tigre Shamma in international conferences. In some cases to be an ‘Ethiopian’, you will even have to change your name. In short, to be an Ethiopian, you will have to wear an Amhara mask (to use Fanon’s expression).”
This state-driven policy of politicizing identity ultimately fomented the natural response of celebrating one’s identity by those whose languages and other contents of their identity kit were targeted for erasure. Thereafter, the course was set for members of these societies to invoke and launch the struggles for the self-determination of their national communities.
Advocating the right to national self-determination was not restricted to the members of these subjugated nations or nationalities. It also figured prominently in the political programmes of the country-wide leftist ML parties that came on the Ethiopian political landscape in the early 1970s. The debate that raged between the Ethiopian People’s Revolutionary Party (EPRP) and the All-Ethiopia Socialist Movement (more widely known by its Amharic acronym MEISON) concerned not the legitimacy of invoking the right to self-determination per se, but it is a possible end point. The EPRP endorsed the right to national self-determination up to and including secession, and very vocally faulted MEISON for failing to go to the same extent.
Goaded by the EPRP and cajoled by MEISON, even the military regime (Derg) ended up embracing a watered down version of self-determination in the form of regional autonomy. After prevaricating on the question for some years, the Derg finally extended regional autonomy to a selected group of minorities in its so-called Constitution of 1987. No other evidence is needed to prove that Ethiopia was already on a slippery slope leading to multinational federation than this measure by the highly centrist military regime.
EPRDF leaders thus had no other choice, but to go one stage further in satisfying the ongoing quests for self-determination by structuring Ethiopia as a multinational federation when they unseated and replaced the Derg in 1991. Hence, it is the “circumstance existing already” that made adopting a multinational federation necessary instead of the alleged noble or ignoble intentions of the incoming ruling group. Political groups are merely wasting their time and energy by arguing to the contrary.
Multinational federalism is simply the latest natural step in Ethiopia’s political development that resulted from neither the generosity nor nefarious aspirations of any group. What should occupy all concerned is how to refine and polish this political order for the good of all Ethiopian peoples. When posed in this fashion, several cautions that need to be underscored come to mind.
First, those aspiring to undo the extant multinational federation need to carefully re-examine their project for its success does not look likely without horrendous bloodshed. Despite its undeniable practical shortcomings, no national community would willingly give up the right to self-government enshrined in the present Constitution.
Second, the intimate relationship between federalism and democracy cannot be overemphasized. While it is certainly possible to exercise democracy without federalism, instituting federalism without democracy is not only an oxymoron, but also a recipe for disaster as the recent experiences of the former Union of Soviet Socialist Republics (USSR) and Yugoslavia so tragically demonstrated.
All concerned should realize that federations are inherently fragile, and multinational ones are possibly even more so. The success of any federation hinges on the willingness to strike a proper balance between over-centralization and over-decentralization. Over-centralization is potentially dangerous for it would tend to negate the very rationale of federation, recognizing and respecting local communities’ right to self-government. The frustration bred by over-decentralization could lead to unexpected outbursts of the anger of concerned communities. Over-decentralization, on the other hand, could breed institutional incoherence potentially culminating in breakdown.
Let us face it: The cohesion supposedly underpinned by the linguistic and cultural homogeneity of the nation-state model has proven elusive even in its birth place, Western Europe and other parts of the globe settled by Western Europeans. This is evidenced by the invocation of sub-state identity in quintessential liberal democratic countries, such as Spain, Belgium, United Kingdom, Canada, etc. Developments in the same countries also obviate the presumption by some in Ethiopia that instituting a liberal democratic order would automatically satisfy demands for group rights.
We are living through an era when the foundation of democratic political order is contested in large parts of the world. Religion, history, culture, economy, etc. are competing to serve as the foundation of an acceptable political order. Studies show that the territorial extension of the state is pulled in different directions depending on its role as the container of power, wealth and culture. When the state is deployed as a container of power, preserving existing boundaries gets greater attention. When it is tapped as a wealth container, encompassing larger territory becomes prioritized. When it is conceived as a container of culture, however, it would tend towards smaller size. What can possibly simultaneously satisfy all three tendencies is forging fora for political participation at supra-state, state and sub-state levels.
Finally, what is the origin of “ethnic politics” in Ethiopia? Who is to blame for this supposedly divisive policy? The rulers of Ethiopia are responsible for uncorking the genie of “ethnic politics” in early twentieth century. In due course, reactive invocations of identity continued to spread to other communities. Instead of aspiring to re-bottle this genie, unlikely without significant bloodletting, all should consider how to deploy it for the good of all.