HORIZONTAL INTERGOVERNMENTAL RELATIONS

BETWEEN ETHIOPIAN FEDERATING UNITS: THE

CASE OF AMHARA AND BENSHANGUL GUMUZ
REGIONAL STATES

By: Dessalegn T.
April 2015
 BACKGROUND OF THE STUDY
Different countries around the world have their
own system of government.

Unitary and federal, to mention just two of such

forms of governments.

 Federalism is essentially the choice of governments

and it is a distribution of decision making power
across multi leveled governments/among various
competing power centers.
 BACKGROUND…
It signifies that power is not only concentrated at
the central government but transferred to
- regional and local governments
- enjoy substantial autonomies
Today – 28 countries with 40 % of World
population , are Federal or claim themselves as
federal
 BACKGROUND…
 Lijphart lists three:
i. Bicameral legislature with strong federal chamber representing the
constituent regions- Upper Chamber
ii. a written constitution - sets up the two spheres of government
- divide power between them that is
- difficult to amend, and
iii. a supreme court to decide jurisdictional dispute.
 An essential fourth feature, that Watts’s detail is system of
intergovernmental institutions and processes to facilitate
collaboration in areas of shared and overlapping jurisdictions
 BACKGROUND…
 In federal systems intergovernmental cooperation
is unavoidable
IGR is vital for federations to be effective and
ensure for common purposes
In modern world states are expected to be closer
one another, one thing to be aware of the global
condition, and the other for doing their
responsibilities utmost
The study of intergovernmental relations is typically
vertical, that is, the relationship of a government at
one level with governments at another level: the
national government with the states or the states
 BACKGROUND…
This research noticed contemporary interstate-
relations, focusing primarily on cooperation
between two neighboring Regional States of federal
state Ethiopia; Amhara and Benishangul Gumuz .
Currently these two adjacent regions make
discussions, entered into Agreements on various
issues, which had discoursed on the main part of the
research.
 STATEMENT OF THE PROBLEM

It is conferred that the Ethiopian Intergovernmental

relation field is not developed chiefly when looked
from horizontal IGR perspective

States must be heedful in setting guidelines and

establishing institutions to deal with HIGR.
 STATEMENT OF THE PROBLEM

 Ethiopia exposed to the challenges of intergovernmental relations

given the
- disorganized horizontal intergovernmental relation mechanisms,
- unclear guidelines for the relation,
- Some states consider it as the task of the Central government, Both
VIGR and HIGR
- Substantial dependence
- regional inequalities of resource endowments, man power
 The behavior of states cooperation and the law governing these are
not yet clearly explored.
RESEARCH QUESTIONS

• To feed on the problem statement that is put

previously, the research should answer at least the
questions which are listed here under illustratively.
1. How is horizontal intergovernmental Relations
(Inter-state Relations) conceptualized in Ethiopia?
What relevance do Horizontal Intergovernmental
relations has on Federations to function?
RESEARCH QUESTIONS

2. What are the institutions entrusted with

Horizontal intergovernmental relations in Ethiopia in
general, the relations between the two Regions in
particular? What are the implications? To what
extent are the actions of the institutions themselves
governed by explicit procedures and formal decision
rules? Or are the institutions fluid and ad hoc,
developing and changing according to the political
needs of the participating governments?
RESEARCH QUESTIONS

3. What are the experiences of Nigeria, South Africa

and Canada on intergovernmental relations? What
lesson could Ethiopia derive from those experiences?

4. Where do the two Regional states get the finance

to run intergovernmental Relations?
RESEARCH QUESTIONS

5. What are the areas of choices of the two regional

states horizontal Intergovernmental Relations?

6. What legal loop holes are prevalent in Ethiopia to

obstruct successful horizontal intergovernmental
relations, how this reflected between the two
Regional States?
 RESEARCH METHODOLOGY

With regard to data sources, both primary and secondary sources were considered
 1. The study was principally based on reviewing the relevant literatures on
intergovernmental relations ,
2. semi-structured interviews have made with the concerned parties and officials at
the federal level and states level- Qualitative
- 15 Interviewees - 6 from ANRS
- 6 from ANRS
- 2 from MoFA
- 1 From HoF
3. Agreements made by the two regions for cooperation on various matters have given
space
- Document Analysis
4. Above all, the FDRE Constitution and other relevant laws on horizontal
Intergovernmental relations had been analyzed and tested against the practice.
Findings
Research Question 1,

Concept on HIGRs by the two Regional States

One state, Amhara committed to give the support and
the other, Benishangul Gumuz to receive and facilitate
it, Support than Cooperation ( Ato Belay)
Findings , Cont’d
Purposes – Objective section 3 of the agreement
 Encourage flexibility and adoptability to changing political,
social, and economic realities that are less likely to be
addressed by formal constitutional amendment.
 To collaborate and exchange experience, skilled man power,
security issues.
 It also facilitates the spread of successful innovations and
serves as mechanism to warm those entities which are less
successful in executing functions and responsibilities.
 Enhance bargaining power of the states
Findings , Cont’d
 Peace and harmony among the tiers of government,
which are the Federal, State and Local Government.
 Minimize inter-jurisdictional conflicts among the
various levels of government.
 Enhance effective and efficient utilization of
available human and material resources among the
levels of government.
Findings , Cont’d
Research Question 2,
Institutional Mechanisms of IGRs in Ethiopia
 The major objectives of establishing intergovernmental institution in
federal systems are to promote cooperation to address the different
political, economic and social related questions of the people
 It may evolve through constitutional provisions like South Africa or
statutory provisions (ordinary legislations) like Germany or through
practice like Canada.
 However, many agree that effective IGR between orders of
government may necessitate legal frameworks, structures, and
processes.
 For effective IGR well established institutional mechanisms are crucial.
Findings , Cont’d
The Ministry of Federal Affairs (MoFA)
 Ministry of Federal Affairs (MoFA), formerly named Regional Affairs
office
 To prevent and resolve conflicts, to strength federal system, to uphold
Federal Regional relations in the country, and maintain good relations.
 Some consider the Ministry’s role as another avenue of the center's
dominance.
 IGR even conceptually is linked with a common forum of cooperation
and coordination.
 MoFA assures its lack of effective political leadership to coordinate
nationwide IGR activities. (Assefa)
 The powers and functions of MOFA have increased by proclamation
no.691/2010.
Findings , Cont’d
The House of Federation (HOF)
 HOF is the only constitutional institutional IGR
mechanism that helps to facilitate interaction
between units of the federation.
 And practically it played some roles like solving
border disputes between different regions
 But interims of facilitating IGRs some functions are
seen not yet exercised.
Findings , Cont’d
The Federal /Regional Executive - sectorial,
committee
Cooperation through Party Channels
The centralized party structure of the EPRDF
It promotes upward accountability to the party organs
above than to the people
Channels of IGR Between the two Regional States,
Instead tasks are given to sectors separately
BOFED- both as focal person
Findings , Cont’d
Research Question 3
 In Canada, even though IGR institutional
mechanisms have no constitution or statutory
foundations, they do have developed practice.

 IGR activities carried out simply by whelm of

political actors.
Findings , Cont’d

 As long as the Nigerian Federation continues to

survive, resources sharing adjustments continue to
feature as an important fiscal arrangement in the
Federation;

 Managing this issue through IGR can give a lesson to

Ethiopia,

 South Africa has established the basic principles of

IGR early during its constitutional designs.
Findings , Cont’d
Research Question 4, Method Questionnaire, literature
- Inter-governmental relation requires consultation in the budgeting and
planning process.
- Getwa said, the federal government allocates finance considering IGR
at times of federal grant.
- He added the office assists and facilitates the relationship as a gap
filling role.
- But the powers to determine the subject matter of cooperation,
implementation of the agreements are left to the respective regional
states.
- Two regions – Both covers
- One that needs assistance
Findings , Cont’d
5. Research Question 5, agreements Between Amhara and
BG
Main Areas of Cooperation
- The Agreement between Benishangul Gumuz and Amhara is
shares these general arrangements in determining issues of
cooperation, however, it is still very broad that contains 17
sectors tasks as points of cooperation.
- The joint development program is a bilateral development
- States choose areas that needed to be the subject of
cooperation
- IGR are more like diplomatic relations than contractual or
legal relations
Findings , Cont’d
Research Question 6

Limitations on the constitution of FRDE, Regional State’s

constitutions and other Legislations as regards to recognizing IGR
as a fundamental instrument to facilitate cooperation in their
provisions
FDRE Constitution- Preamble
Regional States Constitutions- Generally demands cooperation

- Ratifying Agreements – BGNRS- ratified 2005 Agreement

_ ANRS – not
Recommendations

No common body of an intergovernmental apparatus to do the

activities in a neutral fashion recognized as responsible for the
exercise of intergovernmental cooperation between regional
states of Ethiopia today, thus for effective implementation of
IGR, there has to be a move to establish regular independent
organ entrusted with power of governmental dealings. Regional
States themselves can create forum of horizontal cooperation
among them without even consulting the central government
for issues outlined exclusively under their jurisdiction. So they
could have responsible and accountable body of IGR.
Recommendations

No law that characterize IGR in Ethiopia, there is no clarity

among officials and the people as to the type and nature of
activities that can be under the realm of IGR. Due to this
there are a number of actors especially in horizontal IGR.
The increase in the number and range of actors involved in
IGR adds complexity and hence, potentially, inefficiency to
their operation. Thus, a guiding law of IGR must be enacted
by both the federal and Regional governments keeping
their constitutional power in to consideration to fill the
legal gaps
Recommendations

 The MoFA,under its current conditions, lacks all this

attributes to be a full-bodied institution of IGR-not only
in terms of its competence and unmanned character,
but also its very nature of being a federal executive wing
established to deal with issues of federalism and other
administrative duties from the perspective of the
federal government. Since it is a federal executive
institution, it considers establishing independent organ
of IGR as an act against its continued existence.
Recommendations

 The Relation between Amhara and Benishangul

Gumuz, as can be inferred from documents and
interviews, seems giving aid, than mutual
cooperation, Amhara regional state in all spheres of
agreements with Benishangul Gumuz assumes that
the region is committed to give assistance rather
than considering it mutually beneficial. In our case
Recommendations

 The horizontal relationship between Amhara and

Benishangul Gumuz Regions should be formally
strengthened. To replace some ad hoc and informal
interactions, it seems due time to look for formal
autonomous institutions of intergovernmental relations at
all levels of Government.
Thank You For Your
Attention!!!