Ending the conflict in Tigray: Negotiations and key issues

On 14 June 2022, Ethiopian Prime Minister Abiy Ahmed announced the establishment of a committee to negotiate peace talks with the TPLF. However, on 24 August, fighting broke out between the two sides along the northern border of Tigray province.

After several months without large-scale clashes between their respective troops, the Ethiopian federal government and the Tigray regional authorities have both confirmed their desire to join efforts to end the war that began in November 2020. However, on 24 August, fighting broke out between the two sides along the northern border of Tigray province. Hopes for a negotiated settlement – which have been stalled for weeks – have been dwindling over the past weeks. Positions on both sides have hardened. The Tigray position to demand the return of Western Tigray, currently under control of Amhara groups who believe the area historically belongs to them, has emerged as one of the key issues.

Hopes for a negotiated settlement of the conflict in Tigray – which have been stalled for weeks – now have to be put on ice as new fighting erupts

The Tigray National Regional State is Ethiopia’s northernmost regional state. The region is bordered to the north by Eritrea, to the west by Sudan (currently claimed and occupied by the neighbouring Amhara Regional State), to the south by the Amhara Region, and to the east and southeast by the Afar Region.

The TPLF, a small band of insurgents who became a guerrilla army, was formed in 1975. By the end of the 1980s, the TPLF was by far the largest and most effective member of the coalition of Ethiopian armed rebel groups that had come together to fight the Marxist Derg regime under the name of the Ethiopian People’s Revolutionary Democratic Front (EPRDF). On 28 May 1991, TPLF troops, supported by their former allies, Eritrean forces, seized control of Addis Ababa, the country’s capital, and dominated Ethiopian politics for nearly three decades. 

In 2018, Ethiopia’s ruling coalition, the EPRDF, which includes the TPLF and four other parties, elected Abiy Ahmed of the Oromo Democratic Party (ODP) as its new chairman to succeed Hailemariam Desalegn of the Southern Ethiopian People’s Democratic Movement (SPDME). After Dr Abiy took office, he liberalised politics, ousted prominent Tigrayan government officials accused of corruption and other offences, and founded a new party which merged some of the EPRDF coalition’s member parties to form the new Prosperity Party. The TPLF saw this merger as illegitimate and did not engage in it. 

Dr Abiy successfully resolved a long-standing territorial issue with neighbouring Eritrea, which contributed to him being awarded the Nobel Peace Prize in 2019. However, TPLF’s leaders viewed Dr Abiy’s reforms as an attempt to centralise power and demolish Ethiopia’s federal structure, which guarantees significant autonomy to ethnically-defined states such as Tigray. In response, many of the TPLF’s leaders withdrew from federal politics and retreated to Tigray, their home region in northern Ethiopia.

Photo: Yan Boechat/VOA
Photo: Yan Boechat/VOA

The tension between the federal government and Tigray regional authorities grew when the TPLF openly defied a parliamentary vote to postpone the 2021 Ethiopian General Election, initially scheduled to take place in 2020 due to the coronavirus pandemic, and instead held regional parliamentary elections on 9 September 2020, in which TPLF candidates won a majority of seats in the election. Prime Minister Abiy Ahmed stated that the federal government would not recognise the election results, and lawmakers suspended funding to the Tigray regional government, resulting in a domino effect of escalation between the regional and the federal governments. In early November 2020, the federal government accused TPLF troops of attacking the Ethiopian National Defence Force (ENDF) Northern Command headquarters in Tigray. The TPLF claimed it was a pre-emptive strike against the government forces planning to attack them from a neighbouring region, marking the beginning of the civil war.

Despite months of shuttle diplomacy by President Obasanjo, the cease-fire has now broken down and the potential for a negotiated end to the war in Tigray in the next few months seems glim

As a result, on 4 November 2020, Prime Minister Abiy Ahmed ordered a military offensive against the TPLF forces in Tigray. The conflict further escalated when soldiers from Eritrea and militias from the neighbouring Amhara region also attacked the Tigray region. While Eritrean troops took control of border towns in northern Tigray, the Amhara militias took over parts of western Tigray, the areas known as Welkait, Tsegede (Tegede), Tselemti (Telemt), and Humera.  The Amhara militias claimed that these territories were part of the Begemder and Gonder provinces (parts of the current Amhara region) dating back to at least the era of Emperor Menelik II (1889-1913) before TPLF incorporated them into Tigray, under the federal structure in 1995. 

The Tigray regional administration declared its willingness to participate in negotiation from 10 November 2020. The Ethiopian government, however, has, in the past, rejected mediation efforts. These included calls from the then Chairperson of the African Union (AU), South African President Cyril Ramaphosa, a proposal from Sudan to mediate the conflict, and a cease-fire proposal recommended by United States (US) Senator Chris Coons on behalf of US President Joe Biden. On 8 November 2021, former President Olusegun Obasanjo of Nigeria and the AU’s High Representative for the Horn of Africa, met separately with Abiy Ahmed and Debretsion Gebremichael (the current president of the Tigray Region and the chairman of the TPLF), giving the potential for negotiations between the two governments reason for optimism. Obasanjo stated that both agreed that “the differences opposing them are political and require political solution through dialogue.”  

After seven months of shuttle diplomacy by President Obasanjo, Prime Minister Abiy Ahmed announced the establishment of an Ethiopian Federal Government’s peace committee to start peace negotiations with the TPLF. Although the committee’s plan was widely welcomed by the international community, the TPLF dismissed it as “obfuscation,” stating that Prime Minister Abiy Ahmed’s government had demonstrated no real willingness to negotiate. The federal government also accused the TPLF of not taking “measures toward peace.” Furthermore, although Prime Minister Abiy Ahmed initially announced peace talks in June, no date, location, or structure for future negotiations has been determined. 

A TPLF spokesperson, Getachew Reda, stated that the status of the contested Western Tigray zone was non-negotiable. During the civil war, Amhara troops annexed these districts, which are currently administered by the Amhara regional government. However, the forced annexation remains unconstitutional and the federal government has not legally recognised the change. 

The mediator has announced that both sides were willing to negotiate, but formal negotiations have not yet started. One can thus assume that President Obasanjo is continuing his shuttle diplomacy with both sides to explore the form and agenda of the negotiations. However, in the meantime the cease-fire has now broken down and the potential for a negotiated end to the war in the next few months seems glim.

Yonas Berhané, is Head, Communications and Profile Management Unit, and Research Expert, Institute for Peace and Security Studies.

Article by:

Yonas Berhané
Head of Communications and Profile Management Unit, Institute for Peace and Security Studies

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