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The Referendum The United Nations and the Independence of Eritrea The United Nations Blue Books Series, Volume XII The United Nations and the Independence of Eritrea With an introduction by Boutros Boutros-Ghali, Secretary-General of the United Nations Department of Public Information United Nations, New York Published by the United Nations Department of Public Information New York, NY 10017 Editor's note: Each of the United Nations documents and other materials reproduced in this book ("Texts of documents", pages 51-263) has been assigned a number (e.g. Document 1, Document 2, etc.). This number is used throughout the Introduc­ tion and other parts of this book to guide readers to the document texts. For other documents mentioned in the book but not reproduced, the United Nations document symbol (e.g., S/1994/933) is provided. With this symbol, such documents can be consulted at the Dag Hammarskjold Library at United Nations Headquarters in New York, at other libraries in the United Nations system or at libraries around the world which have been designated as depository libraries for United Nations documents. The information contained in this volume is correct as at August 1996. Copyright© 1996 United Nations The United Nations and the Independence of Eritrea The United Nations Blue Books Serit>s Volume XII ISBN 92-1-100605-8 United Nations Publication Sales No. E. 96.1.10 Printed by the United Nations Reproduction Section New York, NY Contents Section One: Introduction by Boutros Boutros-Ghali, Secretary-General of the United Nations I Overview. 3 II Background . 6 III The struggle for independence . 14 IV The referendum. 19 V Reconstruction and long-term development. 32 VI Conclusion . 36 Section Two: Chronology and Documents I Chronology of events . 41 II List of reproduced documents. 45 III Other documents. 49 IV Texts of documents...................................... 51 V Subject index to documents . 265 VI Index . 2 71 Maps Eritrea . 17 Voting outside Eritrea. 28 Section One Introduction I Overview 1 When Eritreans went to the polls in April 1993, their resound-. ing vote in favour of becoming a sovereign State brought a formal end to one of Africa's longest wars, which killed tens of thousands of combatants and civilians and created several hundred thousand refu­ gees. It severely damaged the economy and contributed significantly to regional instability. It was exacerbated at times by a devastating cycle of drought and famine. But the war finally came to an end, with Eritreans exercising their right to self-determination in a free and fair referendum on the issue for which they had long campaigned and fought: inde­ pendence. In so doing, the Eritrean people advanced the cause of democ­ racy, and contributed greatly to the post-conflict consolidation of peace in the Horn of Africa during a volatile period in the region's history. The successful referendum in Eritrea offered yet another illustra­ tion of the links between democratization, development and peace. 2 The United Nations played a crucial role in this transition. Its involvement reflected both the international dimension of the situ­ ation- the threat to the peace and security of several Member States­ and the increasing demands for the Organization's participation in electoral assistance and democratization. Accordingly, the United Nations Observer Mission to Verity the Referendum in Eritrea (UNOVER) carried out a programme that can be thought of as "referendum-plus", undertaking not only the technical task of assessing the conduct of the electoral process but also promoting the right to popular participation in govern­ ment and development and coordinating large-scale post-conflict peace­ building. Eritrean independence involved the redrawing of colonial borders, until then considered inviolable. Given fears expressed in Africa and elsewhere that Eritrea's secession from Ethiopia would encourage other separatist movements, the United Nations presence also proved effective in bringing legitimacy and orderliness to the transition process. The Organization of African Unity (OAU), for its part, participated in the early diplomacy over the holding of a referendum and, later, as an observer of the actual voting. 3 The referendum results revealed overwhelming backing for independence. The seemingly smooth process, however, masked the diverse obstacles faced by UNOVER in fulfilling its responsibilities. Logistically, the mission was deployed in a country where war had destroyed critical communications and other infrastructure and where most prospective voters were illiterate and unfamiliar with basic voting practices. Organizationally, UNOVER had to ensure that eligible voters 3 among the 750,000 Eritrean refugees - out of a total population of approximately 3.5 million people- spread over more than 40 countries, the majority of them in the Sudan, were given an opportunity to partici­ pate. And politically, UNOVER had to make polling arrangements for Eritreans in Saudi Arabia, a nation without regular voting experience, as well as in Ethiopia, where, despite the coming to power of a new Government that officially supported Eritrean independence, the issue remained controversial. 4 Underlying these various considerations was the legacy of the United Nations General Assembly's decision, taken in 1950, that Eritrea, a former Italian colony, should be federated with Ethiopia under the Ethiopian Crown following Italy's defeat in the Second World War. Although the Assembly decided that Italy's other colonies, Libya and Italian Somaliland, were to become sovereign States, a majority of Member States favoured a federal solution for Eritrea on the grounds that it provided the only solution for fostering stability in the region by meeting the legitimate interests of Ethiopia while assuring for the people of Eritrea the power to manage their own local affairs and safeguard their institutions and culture. Still, there was support from many Mem­ ber States for Eritrean independence, either immediately or following a trusteeship arrangement. Anything less, these States said, would be a denial of Eritreans' right to self-determination. In Eritrea itself, there was a range of views concerning federation with Ethiopia. However, when Ethiopia abrogated the federal agreement and annexed Eritrea in 1962, a movement of resistance to Ethiopian rule was ignited. 5 Because many Eritreans felt the United Nations had failed to adequately support their right to self-determination, UNOVER observers were received at first politely, but not enthusiastically, upon their arrival in Eritrea in early 1993. Following the collapse of the Ethiopian Govern­ ment in May 1991, the Provisional Government of Eritrea had scheduled a referendum on self-determination for 1993 and requested United Nations involvement in the referendum process. The new Government of Ethiopia, whose leaders had fought alongside the Eritreans, had formally recognized the right of the Eritrean people to determine their political future by an internationally supervised referendum. But these facts alone were not enough to overcome Eritrean concerns about the Organization's intentions. UNOVER's most formidable challenge, then, was to earn the public trust by establishing a credible, impartial and transparent presence. 6 Towards this end, UNOVER took an activist approach to its mandate, reaching out to all regions and individuals and meeting not just with government officials but with village elders, religious leaders, teach­ ers and women's groups. The core element of this effort was a multi­ media informational and educational campaign aimed at explaining the 4 THE UNITED NATIONS AND THE INDEPENDENCE OF ERITREA practice of voting as well as its place in a democratic society. By the time the days of voting arrived in April 1993, Eritreans turned out in great numbers to effect a peaceful end to a long and ruinous conflict. By this time as well, positive attitudes towards the United Nations had taken root throughout the country, ushering in a new era in relations between Eritrea and the United Nations. In a symbolic display of this new state of affairs, on the opening day of the polls, the Secretary-General of the Provisional Government of Eritrea - who had been the leader of the main movement of resistance to Ethiopian rule - cast his vote accom­ panied by my Special Representative. 7 This volume chronicles the entire referendum process of 1991-1993. Following this Overview, Part II of the Introduction dis­ cusses the debate over the status of Eritrea following the Second World War, and the General Assembly's decision to federate Eritrea with Ethiopia. Part III briefly recounts the Eritrean struggle for independence and the decision to hold an internationally supervised referendum. Part IV tells the full story of UNOVER, culminating in the voting in April 1993 and Eritrea's accession to United Nations membership one month later. Part V describes how United Nations humanitarian and development agencies, including the Bretton Woods institutions, have worked closely with the new Government and with each other to make an investment in peace - to help Eritrea move from a state of national emergency into an era of reconstruction and recovery, and to create conditions in which a return to war would be unthinkable. Finally, in Part VI, I offer some thoughts on the significance of the United Nations involvement in Eritrea's transition to independence. 8 The documents in Section Two, which make up the bulk of this volume, comprise essential United Nations
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