Federalism and Interethnic Relations in Multiethnic Ethiopia (1995 – 2018) Doctoral Thesis Submitted by Girum Kinfemichael Gebremariam in fulfillment of the requirements for the academic degree of Doctor of Philosophy in Law and Politics at Karl-Franzens-Universität Graz First Reader: Univ.-Prof. Dr. Karl Stöger, MJur Institute for Constitutional and Administrative Law University of Vienna Second Reader: Univ.-Prof. Dr. Joseph Marko Institute of Public Law and Political Sciences University of Graz Graz, January 2020 Declaration on honor Unless otherwise indicated in the text or references, or acknowledged above, this thesis is entirely the product of my own scholarly work. Any inaccuracies of fact or faults in reasoning are my own and accordingly I take full responsibility. This thesis has not been submitted either in whole or part, for a degree at this or any other university or institution. This is to certify that the printed version is equivalent to the submitted electronic one. 08/01/2021 Date Signature Acknowledgements I praise and thank God, the almighty, for giving me the courage and vigor to start and finalise this long PhD journey. There are so many institutions and people who have in one way or another contributed to the completion of this doctoral studies. First and foremost, I acknowledge the academic support of my supervisors: Univ.-Prof. Dr. Karl Stöger and Univ.-Prof. Dr. Josef Marko at the Institute of Public Law and Political Science, whose stimulating suggestions, productive guidance and challenging comments helped me during the research and writing of this PhD thesis. I am immensely indebted to Univ.-Prof. Dr. Stöger, the supervisor with first responsibility, who made critical remarks beginning from the early inception of this research project all the way through the final draft of the research. The successful completion of this PhD dissertation would be difficult, if not impossible, had it not been for the unwavering assistance and intellectual guidance of my generous supervisor. His friendly and brotherly approach towards his students in general and his advisees in particular is most exemplary: words fail to express all my praise, profound gratitude, appreciation and reverence for this distinguished scholar. Let me also take this opportunity to express my sincere gratefulness to Univ.-Prof. Dr. Josef Marko whose financial support was critical and made possible my stay at Eurac Research in Bolzano (Italy) to have access to relevant scholarly literature. During the study period, the Institute of Public Law and Political Science also provided me an ample environment for my PhD research including office facilities. More broadly, my special thanks go to both the academic and administrative staff members of the Institute. iv Acknowledgements v On this occasion, I cannot forget to express my sincere thanks and deep gratitude to Univ.- Prof. Dr. Wolfgang Benedek for his resolute moral encouragement and intellectual support in every possible way during the last four years of my doctoral studies. I also acknowledge the support and encouragement of fellow PhD students and other colleagues at the Karl-Franzens-University of Graz. In particular, I would like to mention Dr. Stefan Salomon, Dr. Maximilian Lakitsch, Bernadette Knauder, Alma Stankovic, and Michael Kramer for their friendship, unfailing support, and words of encouragement during my doctoral studies. My deep gratitude also goes to my colleagues at the School of Law and Federalism (SLF), who accepted the burden of additional teaching loads and encouraged me throughout my study. I am especially thankful to Dr. Tesfaye Abate, Dr. Mohammed Abdo, Dr. Mohammud Abdulahi, and Dr. Solomon Barnabas. Gedion Mezmur from SLF needs to be mentioned for his assistance in the collection of data, and for his all-round support while I was studying in Austria. To this list of gratitude, I would like to add the Austrian Agency for International Cooperation in Education and Research (OeAD-GmbH) whose generous financial support was critical to the completion of my PhD studies. I am thankful to the Department of Higher Education and Research for International Development, especially Ms. Elke Stinnig, Programme Officer in Vienna, and Ms. Christina Düss, Regional Office Coordinator in Graz. I am greatly indebted to several people in Addis Ababa, Dire Dawa, and the study regions for the interviews they granted me and for allowing me to have access to important documents. Particularly, my special thanks go to Tedela Elias, Negat Belete, Girma Teklmariam, Colonel Yenus Mulu, and Sisay Tessema for their unreserved help in providing me all invaluable information and ample materials for my PhD research. vi Acknowledgements Thanks are also due to institutions which provided me all necessary information and ample materials for my research. These include Ethiopian Civil Service Commission, Economic and Finance Bureau of regional states, Addis Ababa University, Ethiopian Civil Service University, Ministry of Finance and Economic Development (MoFED), House of Federation, House of Peoples‟ Representatives, and National Educational Assessment and Examinations Agency (NEAEA). I am grateful to all of them. I am heavily indebted to Dr. Matebu Tadesse, Assist. Prof. in College of Development Studies, Addis Ababa University, and Dr. Christophe Van der Beken, Assoc. Prof. in College of Law and Governance Studies, Addis Ababa University, for their valuable comments on various parts of the first draft of my PhD Thesis. I am also grateful to my friends in Ethiopia for their wholehearted moral supports while writing my PhD thesis. Great thanks to Gedion Mezmur, Melake Mihiret, Robel Woldeyes, Yodit Zenebe, and Daniel Solomon. I am highly indebted to those Ethiopians and Austrians in the Graz city and its surroundings for their all-round support, good company, and warm hospitability. Particularly, I would like to mention Mesfin Ayele and his wife Martina Handler, Julia Galler, Birgit Roth and her family members, Semeone Mesfin, Anteneh Arayaselassie, Hanna Tesfaye, Abeba Belehu, Solomon Woldehawariat, and Biruk Tadesse. I do not even have the words to thank once again Birgit Roth who edited the final manuscript. Last, though certainly not least, my special heartfelt thank goes to my parents, Kinfemichael Gebremariam and the late Zerifenesh Woldetensaye, who instilled in me a strong discipline and moral uprightness in my childhood. My sincere gratitude also go to my sisters and brothers, Misrak Kinfemichael, Hirut Kinfemichael, Abay Kinfemichael, Samuel Kinfemichael, Abebe Kinfemichael, Mulugeta Kinfemichael, Dawit Kinfemichael, and Biruk Knifemichael for their unwavering support and assistance, without which, it would have been completely impossible for me to pass through years of school life. I feel honoured when I dedicate this work to them all. Acknowledgements vii I once again am highly obliged and thankful to all those whose mention may have been missed out, but who have not been forgotten. Finally, the findings, interpretations, conclusions and recommendations made in this PhD thesis are entirely mine and should not in any way be attributed to any of the above. Girum Kinfemichael Gebremariam, Graz, January 2020 Abstract 1 Ethiopia has experienced a key defining moment in the arena of national politics since the early 1990s. One of the most significant political changes in the mid-1990s has been the restructuring of the country into an ethnic federation in response to the legacy of unequal ethnic relations. Ethnicity thus functioned as the basic criterion of state organization, posing both opportunities and challenges in the management of interethnic relations. This study analyses the operation and effect of federalism in Ethiopia on ethnic relations by considering three key areas that are most contentious from an interethnic standpoint. These areas are territorial reorganisation, fiscal relations, and the use of preferential policies in regulating groups‟ access to public employment and representation in the federal cabinet and institutions such as the military. The study is based on qualitative data collection and qualitative methods of analysis. This study resulted in the following major findings. First, the analysis shows that ethnic-based territorial reorganization causes violent conflicts among various ethnic groups and lays the ground for lingering ethnic tensions and conflicts. Secondly, fiscal decisions on ethno-regional units demonstrate that both budgetary and extra- budgetary resource transfers contribute to and accelerate interregional disparities in the country. Thirdly, this study finds that a sustained disproportional representation of various ethnic groups exists not only in the civil services of the federal and regional governments, but also in the federal cabinet and national armed forces. Finally, drawing on these findings, the study concludes that the Ethiopian federalism has failed to make good its main promises: ending ethnic conflicts and pacifying interethnic relationships. viii Contents 1 Acknowledgements ......................................................................................................................... iv Abstract ........................................................................................................................................ viii Maps and Tables ............................................................................................................................ xi Acronyms and Glossary ..............................................................................................................