Democracy and the Social Question 1 05.12.2009 12:55:53 Uhr Ulrich Müller-Schöll (Editor) Democracy and the Social Question Some Contributions to a Dialogue in Ethiopia 2-3 05.12.2009 12:55:54 Uhr Table of Contents Opening Remarks 7 Preface 9 Introduction 11 Ulrich Müller-Schöll I. The Role of Society Sectors in Democracy Democratising and Developing Ethiopia 19 Tefera Walwa, Claas Dieter Knoop Democracy and Press Freedom 26 Amare Aregawi © 2009 Addis Ababa University/Friedrich-Ebert-Stiftung, Democratic Culture and Making Democracy Matter 35 Addis Ababa office/Goethe-Institut Addis Abeba Robert Scott Dewar Copyright in the volume as a whole is vested in the Addis Ababa University, Friedrich-Ebert-Stiftung and Goethe-Institut Addis Abeba. Each of these II. Democratic Development under entities may freely reproduce this book, including on the Internet. Specific Circumstances Any reproduction by other entities is only legal with express permission, Federalism and Democracy 43 in writing, of both the authors and the publishers. Claas Dieter Knoop Democracy in Multiethnic Societies 52 The opinions expressed do not necessarily reflect those of the Mikhail Y. Afanasiev Addis Ababa University, of the Friedrich-Ebert-Stiftung or the Goethe-Institut Addis Abeba. Some Pending Issues of Democracy in Ethiopia: Root Causes of Underdevelopment? 61 Negaso Gidada Müller-Schöll, Ulrich (ed.): Democracy and the Social Question. Some Contributions to a Dialogue in Ethiopia. Addis Ababa University, On Campus “Unrest”: Some Preliminary Observations 67 Friedrich-Ebert-Stiftung and Goethe-Institut Addis Abeba Assefa Fiseha Reflections on Students’ Ethnicity and Interethnic Communications: A Preliminary Study Design and Layout: Uta Herrmann, Berlin at the Addis Ababa University 74 Printing: Falcon Printing Enterprise Anteneh Tsegaye 5 Einführung_MüSchö_Democracy_09_5.indd 4-5 11.12.2009 15:23:41 Uhr III. Democracy—Socially Realised? Three Case Studies “Extended Democracy”: Democracy and Social Integration 83 Stéphane Gompertz Opening Remarks Perspectives on the Development of Democracy in Sweden 94 Kinfe Abraham Swedish Democracy: Conflicts, Consensus, Compromise 101 Beyond its standing mission of protecting and advancing the pursuit Staffan Tillander of objective knowledge through free inquiry, the academic community Austria: Democracy and Social Partnership 110 has the responsibility to encourage deliberation on public issues, Brigitte Öppinger-Walchshofer issues that concern everyone. In discharging this responsibility Addis Ababa University has been fortunate in enjoying the enthusiastic col- IV. The Role of International Organisations laboration of the Goethe-Institut Addis Abeba and the Friedrich-Ebert- Europe’s Role in Promoting Democracy 123 Stiftung, institutions committed to the cultivation of a democratic Timothy Clarke public culture. The World Bank’s Role in Good Governance 134 The necessity for public debate and discussion on pressing issues Ishac Diwan became a matter of urgency in the wake of the May 2005 elections. In one way the elections were an unprecedented success. Indeed, it may not be an exaggeration to say that both the ruling and the opposition V. Implementing Democracy in Ethiopia parties were taken by surprise by the election and its upshot. Indeed One Year of Experience with Democracy in the the wider public witnessed a great deal in the elections that surpassed Ethiopian Parliament 147 the highest expectations of many. Participation by voters was exceed- Temesgen Zewdie ingly high. The intensity of electoral debate and its reach was impressive. Electoral Politics and the Future of Ethiopian Democracy 154 The campaign, the voting and the results all seemed to indicate that Merera Gudina competitive party politics had finally come of age in Ethiopia. It is Sanctioned Violence against Girls and Women— against this backdrop of high expectations that the divisive disputes Experiences of Social Mobilisation in Kembatta, over the votes cast, the boycott and the public unrest seemed so dis- Tembaro Zone, Southern Ethiopia 162 quieting. Everyone’s high hopes were abruptly disappointed. Bogaletch Gebre The lecture series on “Democracy and the Social Question” was intended first of all to break the silence that sadly followed the 2005 Authors 171 elections and the disturbing subsequent events. To rekindle hope in the democratic process, it was essential to open public conversation. Without conversation, it would not be easy even to come to terms with the question of what exactly went wrong with the elections. For meaning- ful conversation at a difficult and tense time, it was critical to draw speakers from diverse political viewpoints and affiliations. Happily, a wide range of opinion came forward, among them: members of the 6 7 6-7 05.12.2009 12:55:55 Uhr Opening Remarks ruling party, opposition parties, the private press, parliament, the diplo- matic community, nongovernmental and intergovernmental institu- tions. Beyond students and academic staff of the university, members of the wider public were richly represented in the audience. The discus- Preface sions were open and argumentative, often reflecting the animated spirit of the electoral debates. Reference to what was called the social question in the title of the series enabled speakers to address economic and social preconditions for meaningful democratic engagement. In addition, cultural and insti- The present publication is not only a collection of lectures on the tutional—for instance, federalism—background values that encour- theme “Democracy and the Social Question” which were held and age and support democratic values and practices received attention. openly debated at the Addis Ababa University’s Ras Mekonnen Hall Above all, the forum demonstrated the importance of continual citizen and the Goethe-Institut Addis Abeba between 2005 and 2007. It is participation and debate to ensure accountability of government, social also the result of the good will and open political dialogue of many consensus and citizen competence required for genuinely free, politicians, academics, diplomats, journalists and other dedicated informed elections. individuals in Ethiopia during a time in which there seemed to be We hope these robust public conversations will continue to be hosted more room for dissent than for consensus. As the coordinator of the by AAU’s academic community. I trust, too, that our partners, the lecture series and the editor of this book, Dr. Ulrich Müller-Schöll, Goethe-Institut Addis Abeba and the Friedrich-Ebert-Stiftung will states in his introduction the idea for the lecture series was born within continue to sponsor similar fora toward the creation of a democratic the Addis Ababa University. The realisation of this idea, however, culture in Ethiopia. To keep this emergent tradition going AAU and was a true partnership between three institutions which share a com- its two partners are now agreed to start a new series on tradition and mon interest in education, research, dialogue, arts and international modernity in Ethiopia in order to address the conception and reception understanding: the Addis Ababa University, the German Cultural of modernity in various spheres of Ethiopian life, including public Institute “Goethe-Institut” and the German private educational institu- life, the arts, gender, education, urban life. We trust that many from tion “Friedrich-Ebert-Stiftung”. the university and wider community will join this ongoing quest for In spite of these joint efforts, the present publication is by no means distinctively Ethiopian perspectives on modernity. a complete monograph of all the challenges and topics within the wider framework of the theme “Democracy and the Social Question”. 30 November 2009 Prof. Andreas Esheté On the contrary, we would like to remain modest and admit that there President Addis Ababa University are many questions that remain to be discussed and that we have simp- ly collected some contributions to democratic dialogue in Ethiopia. Some of them take up issues of Ethiopia, while others look at experi- ences of other countries which might present valuable insights. This publication collects the contributions of the first two years of the series—we have not been able to document and publish all the lectures, nor to summarize the valuable discussions we had with so many university students, government officials, members of parlia- ment, academics, representatives of NGOs, international organisations 8 9 8-9 05.12.2009 12:55:55 Uhr Preface and diplomats. And although some years have gone by now, we think “Maybe we have another imperfection that we need to work on.” that this modest contribution in the form of a book contains points Prof. Kinfe Abraham on the Ethiopian Democracy which are still valid for the present as well as for the challenges that lie ahead. Our thanks go to all those who have contributed to the success of Introduction this series: to Muhammed Habib, who first raised the idea to the series; to the President of AAU, Prof. Andreas Esheté, who always supported Ulrich Müller-Schöll the series; to the former heads of the Goethe-Institut Addis Abeba, Dr. Werner-Dieter Klucke and Friedrich Wilhelm Engelhardt, and of the Friedrich-Ebert-Stiftung, Hartmut Hess, who vigorously supported The idea to this lecture series came up in summer 2005. At that time, the implementation of the idea; to our moderators who facilitated bril- in the aftermath of the May 15 elections, a number of problems had liantly the often very lively discussions; to Elisabeth Woldegiorgis been witnessed. It was clear that crucial elements of the Ethiopian who generously offered Ras Mekonnen Hall for the lectures; to the democracy were still under construction: central institutions of the technical staff of AAU, Goethe-Institut and Friedrich-Ebert-Stiftung: state had not been ready to support the democratic process adequately; Mesay Yohannes and his team, Mengesha Hailemelekot, Heran in the countryside people had had problems to inscribe in the electoral Getachew, Endale Tilahun and Abdustar Yusuf; to Ekram Mohammed register; within the ruling party opinions on democracy diverged; out and Yared Abraham, who transcribed the lectures; to Sam Coetzee, of more than 20 groups the opposition parties had formed two coali- who edited the texts; to our media partners Capital and Reporter tions but it spoils nothing to say that their problem solving contribu- (Amharic version). tions were vague. Officials or observers, nobody was so immodest to Last but not least special thanks to the programme manager of pretend that Ethiopia had more than just “embarked on democracy”. Goethe-Institut, Tenagne Tadesse: Without her experience, her network Nevertheless the conviction was widely shared that the country had and her high reputation within Ethiopian society the organisation of witnessed the hitherto most democratic elections in Ethiopia and “a this series would not have been possible. great leap forward” towards a multiparty system. In this situation it was one of the vice-presidents of the Addis Ababa Dr. Bekele Gutema Dr. Elke Kaschl-Mohni Dr. Sabine Fandrych University who highlighted the importance to discuss seriously and Associate Professor Director Goethe-Institut Resident Representative openly the necessary preconditions, elements and consequences of Department of Philosophy Addis Abeba Friedrich-Ebert-Stiftung, democracy. For a fairly long period it had seemed that by their western Addis Ababa University Addis Ababa Office promoters a close connection between democracy and economic liber- alism was accepted if not openly promoted despite social consequences like the growing gap between rich and poor, disappearing family li- aisons and deteriorating social networks. How to imagine democracy in combination with sustainably resolved social problems? For our Ethiopian partners this was the foremost question. The Germans, grown up in a Social Market Economy and considering social justice as one of the most relevant issues of democracy, needed a moment to understand this impact. The result was the idea of creating a platform for all issues of social implementation of democracy to be discussed, 10 11 10-11 05.12.2009 12:55:56 Uhr Introduction Introduction by Ethiopians as well as by representatives of the international com- to bad to worse” deplores Amare Aregawi, former Director of munity living and working in Addis Ababa. Ethiopian TV and today editor in chief of the weekly Reporter. In The planned beginning in November 2005 coincided unluckily his critical statement he raises six concrete requests, among them with those now notorious riots in connection with the election results. to transform the government controlled media into public media This was a critical moment. The organisers wondered if it was wise to and to free defamation from being handled as a crime. start up a series with political content. But the encouragement espe- cially from the Ethiopian side (from the university as well as the elite The second section takes into account that democracy and its elements at large, from representatives of the government as well as from mem- develop under specific Ethiopian circumstances—i.e. in a culturally, bers of the opposition) convinced them. They just decided to open up religiously and linguistically diverse developing country. the horizon of “social”—in the sense of concerning all issues of and The German Ambassador Claas Dieter Knoop invokes that federal- views on society. In the opening of the series the former French ism is “a powerful tool” and “a very appropriate way to produce a Ambassador to Ethiopia, Stéphane Gompertz, underlined this larger stable political and constitutional platform to resolve conflicts”. understanding by the choice of his topic. He speaks about the riots in Mikhail Y. Afanasiev, Ambassador of the Russian Federation to the suburbs of Paris which, like in Addis, were mainly conflicts Ethiopia, thus representative of a multi-national country, highlights between the authorities and young unemployed people—a case of the importance of regional and national symbols. He identifies nation- “social integration” in an extended understanding of democracy: how alism as a “powerful political force”, and “one of the most effective to reach people for the democratic discourse and responsible commit- integrating ideo logies” comparable to religious convictions, allowing ment, beyond the polling at the election day? to overcome resistance to radical reforms. It is “of no less importance The series shows an impressive variety of contributions. A broad to a state than properly secured borders or a constitution”. Only a number of questions related to Ethiopia’s current social and demo- solid basis of state institutions will lead the society to consent to “the cratic situation is raised which can be classified within five sections. necessity of democratic reforms”. In the first one sectors of the society that matter for democratic develop- In his search for the “root causes” of Ethiopia’s development prob- ment are addressed—economy, culture, media: lems the former President of the Republic, Negaso Gidada, is rather - Democracy cannot grow without a well established economy as its focussing on the opposite. In his opinion Ethiopia suffers from the basis. On behalf of his government and the EPRDF the Ethiopian Naftanyaa system, a longstanding political power relation in which the Minister of Capacity Building, Ato Tefera Walwa, underlines this, gun reigns and the victims are oppressed. “Readiness to submit to the however, without postponing the democratisation process: “Our will of the people”, i.e. decidedly free and fair democratic elections school of thought is to go for both at a time”. It is the balance would be the necessary ignition to the development of a cross-cultural between both which counts, he stresses. understanding. - Therefore a democratic culture caring for fair play and for account- Conflicts of identities within a multiethnic society came up when ancy towards the citizens is required, reckons Robert Scott Dewar, clashes bet ween students of different ethnic background took place at former Ambassador of the U.K. to Ethiopia. He recommends Addis Ababa University. The lecture series discussed the issue in a “mutual respect within law and constitution”, otherwise no confi- panel discussion. Having done his PhD on this matter Assefa Fiseha dence in the impartiality of the “state machinery managing the elec- indicates a number of causes: power relations, but also the lacking tions” will grow. efficiency of the university administration.—By studies on “Ethnicity - He also underlines the importance of press freedom: By the new and Inter-ethnic Communication” Anteneh Tsegaye has learned that Ethiopian press law, however, press freedom is going “from good 12 13 12-13 05.12.2009 12:55:56 Uhr Introduction Introduction “how to interact cross-culturally” is highly dependent on “political This is the reason why the World Bank puts the focus on Good stability ... at the national level”. Governance rather than on democracy. Ishac Diwan, former regional How did other countries bring together their social environment director of the Bank in Ethiopia and Sudan, presents a kind of decon- with democratic convictions? struction of state institutions which are at stake when countries look This question is addressed in the third section presenting several for stable conditions bringing advantages and justice for all: be it case studies from western democracies. democratic in a western understanding or not. Stéphane Gompertz underlines that “the re-emergence of a genuine In the fifth section the process of implementing democracy in Ethiopia demos” should be questioned and that democracy must be applied not is under observation. Temesgen Zewdie, whip of the parliamentary only to the political but (with obvious limitations) also to the eco- opposition group of the CUDP in the House of Peoples’ Representa- nomic sphere: In Sweden a good deal of this claim has already been tives, reflects on one year of parliamentary experience. He sees realized if we follow Prof. Kinfe Abraham who lived in Sweden for “encouraging signs”, but he also states a lack “of a sustained demo- nearly two decades. Sweden’s main step to democracy, he reckons, is cratic political culture, a dedicated civil service and of democratic having managed to create a welfare state between socialism and capi- institutions”, which results in a lack of “exemplary and tolerant life” talism, in which the will of the majority is anchored in a justly distrib- in the mutual relations between members of parliament of different uted industrial surplus. African governments don’t emphasise parties. development sufficiently: “They have the carrot but not the horse.” Merera Gudina, Associate Professor at AAU and Vice-Chairman Staffan Tillander is opposed to any “preconditions” for the func- of the opposition party UEDF, looks back to the May 15, 2005 elec- tioning of democratic institutions: on the contrary, he defends that tions. He sees five major problems for the democratisation process: democratic mechanisms allowed to “channel through” interests and manipulated elections, no envisioned role for opposition parties, no thus firstly created the “basis for growth and development”. Sweden, impartial civil administration, an Ethiopian federalism which has in the early 1900s still one of the poorest countries in Europe, is among failed his historical mission by now, and all together a lacking national the richest today because of a longstanding, reliable universal suffrage consensus. since the 1910s. It is this development that has been making consensus- Hopeful expectations are coming from Kembata Women’s Selfhelp building on economic development possible. Center, a project in Southern Ethiopia. Bogaletch Gebre reports that A mechanism which is also presented in detail by the former Aus- the struggle against “gender apartheid” leads to lively freedom and trian Ambassador Brigitte Öppinger-Walchshofer. The Austrian “Parity makes women “the principal agents of change”, inviting all people “to System”, organising Social Partnership between labour, business and examine the historical period they live in”, leading to a home-made government, often turns out as a prerequisite for political solutions, democratic understanding of a common living together. holding unbridled competition of market liberalism down. “What we All in all there is agreement that democracy must be extended—but did Ethiopians can do, too.” the question is how: by stressing national unity or federalist diversity, In the fourth section on the contribution by international organisa- creating symbols or fostering principles? What comes first—economic tions Timothy Clarke, former head of the representation of the European develop ment or democratic structures? What example can be adapted Union Commission in Addis Ababa, highlights the “fundamental values as a model? Donor countries may offer their own solutions, but for and principles” by which Europe promotes democracy, but concludes Ethiopia they can only have a limited value. Here, the successful that Europe has no “model” to offer and that building up stable struc- mediation between government and opposition, undertaken by an tures requires “home-grown” democratic institutions. elders’ group around Prof. Ephraim Isaac and Pastor Daniel was prob- ably one of the most promising events in the last years as it offered a 14 15 14-15 05.12.2009 12:55:57 Uhr Introduction genuinely African solution to an open sore in the democratic develop- ment. But the outcome shows: Even if, in 2010, Ethiopians will organ- ise the freest and fairest elections (which would be, however, a most encouraging and stabilising factor)—as long as there is no reliable I. ground consisting of confidence, prosperity and national democratic consensus Ethiopia’s democracy will remain shaky. All parts and The Role of Society Sectors parties should be aware of it—an outcome which underlines the in Democracy importance of an ongoing dialogue on democracy like the one which is documented in this publication. 16 Einführung_MüSchö_Democracy_09_5.indd 16-17 05.12.2009 13:05:48 Uhr Democratising and Developing Ethiopia A Dialogue Between Tefera Walwa, Minister of Capacity Building, and Claas Dieter Knoop, Ambassador of Germany Claas Dieter Knoop I feel very honoured that Ato Tefera Walwa, the Minister of Capacity Building, sits next to me at this table and is ready to join the discussion ... There can be no democracy and no social welfare without a secure basis of life in any country. That goes for many African countries and this is true for Ethiopia. To put our discussion in picture, I will give a brief introduction into the development and the extent of German development cooperation, and also give a little background of our development cooperation priorities. We recently celebrated 100 years of formal Ethio-German relation- ship. Informally there has been a much longer relationship—for hun- dreds of centuries actually. But we have had 100 years of diplomatic relations, and out of these 100 years we can look back on 40 years of development cooperation between our two countries. The core task of our engagement here in Ethiopia is poverty reduction. The fight against poverty is not just a dictate of solidarity, it is also crucial for the maintenance of peace, stability and the preservation of the environment for future generations. Germany’s development cooperation seeks to raise living standard by economic growth, social justice and environmental sustainability. German commitments are based on an analysis of key development criteria: good governance, a functioning market economy and the rule of law, respect for human rights and participation of all parts of society in the decision making process. Ethio-German development cooperation is re-negotiated every three years. Compared to other donors we have quite a long commit- ment to Ethiopia. Our total development cooperation with Ethiopia 19 18-19 05.12.2009 12:55:58 Uhr