USIP Publication Ethiopia’s Problems Will Not End with a Military Victory

As violence continues over control of the northern Ethiopian region of Tigray, Ethiopia’s future remains unsettled, even if the conflict ends soon. Achieving the federal government’s security objectives in Tigray is unlikely to resolve both new and entrenched political challenges, and already delayed national elections, now expected in 2021, may prove a severe test of Ethiopia’s political order, and consequently affect broader regional stability. Reconciling the electoral process with efforts for reconciliation and national dialogue is now even more imperative.

The Conflict in Tigray

War sometimes starts like clockwork but predicting the date on which a conflict will end often leads to disappointment. Yet from the start of armed hostilities with the Tigrayan People’s Liberation Front (TPLF), Ethiopian Prime Minister Abiy Ahmed promised the conflict would be swift and decisive. On November 6, Abiy wrote that “operations by federal defense forces underway in Northern Ethiopia have clear, limited and achievable objectives.” On November 9, the prime minister said the military operation “will wrap up soon,” and the next day, that “our law enforcement operations in Tigray are proceeding as planned: operations will cease as soon as the criminal junta is disarmed, legitimate administration in the region restored, and fugitives apprehended and brought to justice—all of them rapidly coming within reach.” Claims that the conflict will be short-lived have also been echoed by senior American officials: U.S. Ambassador to Ethiopia Michael Raynor told journalists on November 19 that “another aspect of this is the Ethiopian government continues to articulate a vision of the military conflict coming to an end fairly soon, a week or two from now.”

Despite limitations on independent reporting and the severing of most communications, the federal government has announced significant military advances, capturing a number of important towns and cities in Tigray, including Shire on November 17, Axum and Adwa on November 20, and Adigrat on November 21. The TPLF has made counterclaims: that it inflicted significant casualties on federal forces in Raya and to have repulsed federal forces in Mehoni and Zalambessa. For the federal government, taking control of the state capital of Tigray, and its largest city, Mekelle, is now the principal remaining tactical military objective.

However, even if Abiy’s military objectives are quickly achieved, experiences of warfare in northern Ethiopia dating back a century suggest that it is much easier to capture territory than it is to hold it. It is unclear what a successful strategy for the federal government will be if it is able to capture Tigray’s urban centers but cannot command the widespread acceptance of Tigray’s people. While the fighting of the last few weeks may have significantly degraded the TPLF’s military capacity, it is unlikely that the federal government can entirely subdue the TPLF as a political entity, which retains the support of a substantial number of Tigrayans. Further, the TPLF’s historic capacity to wage guerrilla warfare from the rural mountains of Tigray may not be definitively eroded by its losses in conventional warfare.

While some in the federal government have indicated that they would accept a refashioned TPLF led by moderates, external efforts to re-engineer the party may well be counterproductive and only risk further alienating some Tigrayan constituencies. Therefore, as focused on their immediate objectives and consequently as reluctant to seek dialogue and compromise as they may be, the parties in conflict may find that a negotiated settlement may ultimately be the only realistic choice, if not imminently, then in the months ahead. Moreover, the federal government must soon confront an even bigger problem in 2021: how to conduct peaceful and credible elections.