The Law Making Process In Ethiopia by Professor Kenneth Redden (1966) by jahrastafari89

THE LAW IvlA!{ING PROCES� IN ETI-I!OFI�am PROFESSOR KENNETH REDDEN .f\.to r'\berra Je111!Jere A to t·Ja 1Jiyellll I-Cif le

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OI-fIO STATE UNIVERSITY LAW LIBRARY

PUBLICATIONS OF TI-IE FACULTY OF LA"\tV HAILE SELLASSIE I UNIVERSITY PERIODICALS

. ,.fHE JOUR'NAL OF ETl-IIOPif\N LAW Published twice annually at the Faculty of Law, Haile Sellassie I University in co- operation \Vitl1 tl1e Ministry of Justice. Imperial Etl1iopia11 Governme11t.

BOOKS

MATERIALS FOR THE STUDY OF THE PENAL LAW OF ETHIOPIA (1965) Steven Lowentein, Faculty of La1vv. I-Ic!ile Sellassie I Universjt)'· THE CONFLICT OF LAWS IN ETI-IIOPIA (l 965) Rol::ert Allen Sedler. Faculty of law. Haile Scllassie I Universil)i. Al"\J' INTRODUCTION TO ETHIO.PIAN PENAL LAW (1965) Philippe Graven, Ministry of Justice. Imperial Ethiopian Govcr11n1c11t. ETHIOPIAN LEGAL FORTvtBOOIC (1966): VOLUME ONE (FORiv1S Of-' LAW AND LEGAL DOCUMENTS) Kennetl1 Robert Redden. I:-tllbright Professor of L::i\v. I-Iaile Scllas::il' l University.

ivIONOGR API-IS

AN INTRODUCTION TO ·THE SOURCES OF ETHIOPlt\N L;\ W ( 1966), Dr. Jacques Va11derli11den. J=acully' of Lav.,, Haile Sellassie I University. THE LAW MAKING PROCESS l N ETI-llOP.lA ( 1966) Kenneth Robert Redden. Ft1ll:right Professor of Law, I-Jailc Scllassic I University.

JOINT PUBLICA1,IONS OF TI-IE .FACULTY OF LAW AND Tl-IE INSTITUTE OF ET.I-IIOPIAN STUDIES THE LAND TENURE SERIES

PILOT FIELD STUDY OF CI-IORE (SI-IOA) (l965) I-I.S. Mann, Rural Institutions Officer. F.A.O., United Nations. LAND CHARTERS OF NORTI-IERN ETHIOPIA (1966) G. W.D. Huntingford, D. Lit.. Scl1ool of Oriental and African Studies, University of London. STATE AND LAN.D IN ETHIOPIAN I-JISTORY (1966) Richard Pankhurst, Director, I11stitute of Ethiopian Studies. Haile Sellassie I University.

- - - .. All of tbe above works may be purchased in Ethiopia from tl1e Faculty of Law. Box 1176, Addis Ababa, Ethiopia, or internalionally, from Oxford University Press. Box 12532, Nairobi, Kenya and Box 1024, Addis Ababa, Ethiopia.

THE LAW MAKING PROCESS IN ETHIOPIA I

I I

BY KENNETH REDDEN F11lbright Professo1Â· of Law

Witli tlie Assistarice of Ato Aberra Jembere

and Ato Nabiyelul Kifle

all of the FACULTY OF LAW HAILE SELLASSIE I UNIVERSITY ADDIS ABABA, ETI-IIOPIA

PUBLISHED BY TI-IE F1\CULTY OF LAW HAILE SELLASSIE I UNIVERSITY ADDIS ABABA, ETHIOPIA

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in assoclatio11 with

OXFORD UNIVERSITY PRESS ADDIS ABABA - NAIROBI

1966

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Copyrigl1t b)' tl1e l�aculty of Law Haile Sellassie I University 1966

All rigl1 ts reservecl, inclt1ding the rig]1t to reproduce tl1is 1nonograpl1 or portions thereof in any form

PRINTED AT PRTISTIC PRINTERS LTD. ADDIS O..BABA, ETHIOPIA

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TABLE OF CONTENTS I. II. III.

IV.

Page INTRODUCTION • • • • • • 1 . . . . . . . .. . .. • •• CONSTITUTIONAL BACKGROUND . . . . . . . . . 2 A. History . . . · ... • • • • • • • • • ... . .. 2 B. Formation of Parliame11t . . . . . . 3 FORM OF LAW ... ... • • • . . . . . . 5 .. . . . . A. Prima1·y a11d Subo1·dinate Domestic Legislation .. . . . . . . . .. . . . . . .. 5 .. . B. Checks a11d Balances . . . . . . 6 C. Powers of Local Government ... 7 D. Inte1·national Law . . . . . . ... 8 THE PARLIAMENT ... . . . ... 9 A. Orga11ization .. . ... .. . ... ... 9 ( 1) Ti1ne a11d Natt11·e of Meetings ... g (2) P1·ocedt11·e and Record Keeping 10 (3) Joint Sessio11s ... ... .. . . .. . .. 10 . . . . .. 10 (4) Orde1· of Busi11ess . . . . . . ( a) Ad1ni1iistrative Personnel . . . . .. 10 (b) Election ct1id Apoirit1nent of Presid. .. . .. 11 ing Officers . . . . . . . . . 12 . .. (c) Co11iniittee Selection . . . 12 (i) Sta11di11g Com1nittees ... (ii) Joi11t Co1111nittees . . . ... . . . ... 13 (b) Electiori arid aJJpointnierit of P1·esid14 (5) Natt11·e of Bl1si11ess ... . . . 14 ... (a) In Ge11e1·al 14 (b) Resolt1tions 15 B. D1·aft Legislation . .. . . . ... ( 1) Source of Po\:ver . . . .. . . .. .. . ... 15 15 (2) Steering· of P1·oposed Legislation . .. 15 (a) Comn1ittee I-Iea1·i11g ... .. . . . . . . . .. . . .. 16 (b) Repo1·ting· Ol1t (c) Conside1·ation by Otl1e1· Cha1nbe1· ... 17 . .. 18 (ct) Joi11t Session ... C. Action by the E1npe1·01· . . . . . . . .. . . . .. . 19 THE COUNCIL OF MINISTERS .. . . . . . .. 20 ... . . . 20 A. Formation ... . . . . . . . . . 20 .. . ( 1) In Gene1·al . . .

(2) Private Cabinet Distinguished

. .. . . . B. Draft P1·oclamations . .. ... . .. . . . ... . .. C. Decrees . . . . . . ... .. . ... . . . . . . . .. .. . ( 1) Source of Power .. . . . . .. . . . . . .. .. . ( 2) P1·ocess . .. . . . ... . . . . . . ... .. . .. . (3) Effect of Approval or Disapproval of a Decree by the Parliament . .. . . . .. . (a) Iss1.Lance of Notice of Approval . .. (b) Approval witli Arriendments . . . . . . (c) Iss1.Lance of Notice of Disapproval ... (d) Divided or No Action by Parliament D. Orde1·s ... ... ... ... ... ... ... ... ... . . . . .. ( 1) Source of Power .. . ... . . . (2) Process . . . .. . . . . .. . .. . .. . . .. ... .. . .. . .. . . . . .. . ( 3) Mi11isterial Orde1·s . . . . . . . . . .. . . . . . . . . . . E. Legal Notices ( 1) Sou1·ce of Power . . . .. . . . . . . . .. . . .. (2) Process ... . . . . . . ... .. . . .. ... . . . F. Internatio11al Law . . . . . . ... ... ... ... ( 1) Sot1rce of Powe1· . . . . . . . . . . . . . . . . . . ( 2) P1·ocess . . . . . . .. . .. . . . . ... .. . ... \' i:. PUBLICATICiN OF ETHIOPIAN LAW .. . ... . .. l-i. The Neg·arit Gazeta . . . ... .. . . .. .. . . .. �2-. Tl1e Former Role of the ''Const1ltative Co1n1r1i ttee For Legislation'' .. . .. . .. . .. . . .. C. The Present Role of the Minister of Pen . .. D. The Present Role of the Legal Department in the Prime Minister's Office . . . .. . .. . E. Tl1e Present Practice of Co1nparing the Pu blishecl Law \vith tl1e Approved Official Text ( 1) The Secreta1·iat of tl1e Cot1ncil of Ministe1·s . . . • • • • • • • • • • • • • • • • • • • • • ( 2) The Secretariat of the Two Chambers of Parliament • • • . . . . . . • • • . . . • • • F. Cor·rigenda • • • . . . • • • • • • • • . . . • • • • • • G. Comparative Analysis Table . . . . . . . . . • • • H. Co11solidated Laws of Ethiopia . . . • • • • • • VII. CONCLUSION . . . . .. . .. . . . • • • . . . • • • • • • •

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THE LAW MARKING PROCESS IN ETHIOPIA I.

INTRODUCTION

Tl1e JJ111·pose of this Mo11ograph is to IJresent a step by-step desc1·iptio11 of the Law Mal(ing· P1·ocess in Etl1ioi)iD. i11 simple, concise and acc11rate fo1·111. Jt1dg.. 111e11ts of tl1e Co11rt.s and Decisions of tl1e Adrni11istrc1.ti..ve l\ge11cies l1a"'.r- ing been disc11ssed else\vl1e1·e, \Ve sl1all be co11cer11E:d herr�t11 only with tl1e different forn1s of La\1l I)ro111tllg·;;ttecl lJ�i tJ-:ie Legislative ancl Exec11tive 1J1·ar1cl1es c;f the Etl1:tc•1). - i::1,11 Gt-:ivernment. In a:l:litio11 to tl1e legal 1·eq11jre1rJ.er1ts, t.l1e VElrio11s practical steps ar1d 111eastlres l1ave a,l.so JJeer1 prese11t ed so that the reade1· n1ay obtaiI1 tl1e c�o1111)l1?1;e J).ict11re ot how moder11 Law is c1·eated i11 Etl1io1Jia. Fi11ally, tl1ere is a comparative a11alysis table i11dic.ati11g· tl1e 111l1nbe1· of the various for1ns of Etl1iopia11 La \V \Vhicl1 l1a ve bee11 prom11l gated to date. A t1·eatment of tl1e exte11t to ,vl1icl1 tl1ere are separate bodies of Ecclesiastical, Milita1·y a11d Islan1ic Law i11 Etl1io pia may be fou111 in 1ny text, ' 1Etl1iopia11 Legal Fo1·1nbook'' ( 1966). Those \Vho are inte1·ested i11 tl1e histo1·ical back ground of Ethiopia11 Law, i11cluding an exhaustive Biblio graphy, should co11sult the scl1ola1·ly article by Professor Jacqties Vande1·Ii11den e11titled ''An Introdt1ctio11 to the Sources of Etl1iopian Law'', wl1icl1 \vas IJUblished in Volti me III, No. 1, of the Joti1·nal of Ethiopia11 Law ( 1966). A complete ctisctissio11 of the J11dicial System of Ethiopia may be obtained ii1 tl1e excelle11t text by P1·ofesso1· Robert Sedler entitled ''Civil Pr·ocedure i11 Ethiopia'' ( 1966). -1-

II. CONSTITUTIONAL DACI(GROUND A.

HISTORY

011 July 16, 1931, a fe\,, 1nontl1s after I-Iis Cor·onation, i11ct1111be11t E111peror I-Iaile Sellassie I gra11ted to the IJeo ple of Etl1io1)ia the first ,,,..v1·itte11 Co11stit11tio11 i11 tl1e history 01' tl1e 3,000 year old E1npire. A q11arte1· of a centu1·y later, 011 No,,e111lJer 4, 1955, tl1e silve1· jt1bilee a11niversary of tl1e Coro11ation, IIis I1111Jerial Majesty I)ro111t1lgated, \Vith tl1e cllJl)rova1 of the Parlia111e11t ,vl1icl1 l1ad bee11 fi1·st establish c�1 by t-l1e Co11sti tt1tio11 of 1931, tl1e Revised Co11stitution <J 2 J.955 \vl1icl1 is i11 effect today. S1)ecific provisio11 is 1nade L11c:rei11 for tl1e l)rospective co11ti11t1atio11 of tl1e establish (:·cl t-:-;011s ti tll tio11al Mor1arcl1y tl1rotlgl1 tl1e inc11mlJent male ciy11::i.stic li11e t11at (.races its a11cest1·y to tl1e l1isto1·ical lt11io11 of tl1e Et11io1)ia11 Q11ee11 of Sheba a11d Biblical King }3010111011 of J ert1sale111. The first Etl1iopia11 Constitutio11 of 1931 resembled i11 part tl1at of the Japa11ese E1111Jire of 1889, Vlhicl1 in tt1r11 was si1nilar to tl1e Co11stitutio11 of 1871 of the Ge1·111an E1n1Ji1·e. Tl1e Etl1iopia11 Revised Co11stitutio11 of 1955 is a liberal n10:l.ificatio11 of tl1e 1931 Co11stitt1tio11 with the ad ditio11 of 111any 111ojer11 co11cepts st1cl1 as the theo1·y of cl1ecks and bala11ces, a11d a bill or rig·l1ts guara11teei11g such ft1ncla111e11tal freedo111s as the rigl1t to cou11sel in c1·imi11al cases, clt1e process of la,v, eqt1al l)rotectio11 of tl1e laws, 1J1·otection agai11st dot1ble jeo1Jardy, civil 1·ights and f1·ee do1n of speecl1, press, religio11 and asse111.bly. A11 indepe11d ent jt1diciary is establisl1ed. A1·ticle 122 specifically states tl1at all ft1tt1re Law i11co11siste11t witl1 tl1e Co11stitution shall be 11t1ll a11d void bt1t there is 110 exp1·ess p1·ovision for judi-2-

cial review. A1nendements to tl1e Constitutio11 1·eql1ire the cons�nt of the E1nperor after they I1ave bee11 a1Jp1·oved by a three-fol11·ths vote of tl1e fl1ll me111be1·sl1ip of each Chamber of Pa1·lia1ne11t i11 two sepa1·at-e sessio11s.

FORMATION OF PARLIAMENT

The 1931 Co11stitl1tio11 created a bi-can1e1·al Pa1·lian1.e11t which was ca1·1·ied fo1·wa1·d into tl1e 1955 Constit11tio11. Member·s of tl1e t1pper cl1a1nber, or Se11ate, prese11tly 11t1n1be1·ing 11p to 125, are appointed fo1· 6 year ter1ns by tl1e Em peror at irregt1la1· intervals and are chose11 fro1n a1no11g the nobility, dig·11.ita1·ies, l1ie1·a1·cl1y of the Etl1iopia11 Ortl1.o-· dox Churcl1. a11d otl1.e1· !)1·0111ine11t perso11ag·es. Tl1e e1n1)1'1a;3js in selection is on me11 wl10 have l1ad ex1)e1·ie11ce i11 goverr:-· ment a11d state affair·s. Tl1ey 11111st be native l)oI·11 Etl'1.ic1pians at least 35 yea,rs old a11cl are eligible for re-r�1)1)oir1 t-· ment by the E1n1)ero1· at tl1e ex1)i1·atio11 of tt1eir 6 yea1· term. Eacl1. Senato1· l1as 011(?. vote i11 l:)arli,1111e11tz1rv delil)e-· ., rations. The number· of Sc�11ato1·s 1118,y never e;rc;cecl Oi1chalf of tl1e total nt1n1be1· of Depll ties.

Unde1· the 1955 Co11stitt1t.io11, 111e111be1·s of tl1e lo,ve1· house, or Chan1ber of De}Jllties, prese11tly 11t1111-beri11g 250, are elected fo1· 4 yea1· te1·1ns a11d 111t1st be 11ative bor11 Ethio pians at least 25 yea1·s of age. Dept1ties a1·e elig·ible fo1· re election to a11 indefi11ite 11t1n1be1· of te1·111s of office. Unive1· sal suffrag·e ap1Jlies to all native born Etl1iopia11s ,vho are at least 21 years of age. The last st1cl1 electio11 of Depl1ties was held in Jtlly of 1965. Each De1Jt1ty has 011e vote in Par liamentar·y clelibe1·ations. Tl1e Cl1ambe1· of De1Jt1ties is the sole jt1dge of the qtlalifications a11cl electio11 of its n1e111bers.

There are 110 political parties i11 Ethiop'ia. The Central Electoral Board establishes 011e electo1·al dist1·ict tl1rol1gh out the Empire for evei·y 200,000 people containing a1Jproxi- 3 -

------------------------------- ----..... THE LAW MAKING PROCESS IN ETHIOPIA

mately 50,000 1·egistered voters. Two Deputies are elected from each st1ch electoral district. In additio11 to this national geographical concept of representatio11, each city with a population of 30,000 peo ple is a special electoral dist1·ict, entitled to elect one De pt1ty and an additional Deputy for every additional 50,000 inhabita11ts. Tl1e only cities ,vhich prese11tly enjoy this privilege are tl1e capital of tl1e Empire, Addis Ababa, which elects te11 Depl1ties, and Asmara, whicl1 has five. These city electoral dist1·icts are separate f1·on1 the other electoral districts throug·l1ol1t the Em1Jire. Si11ce eacl1 candidate for election to tl1e Chamber of De1)t1ties 111ust l1ave lived at least one year precedi11g the electio11 i11 tl1e electo1·al district in Vi7hich he stands for electior1 and also 0\\1n substantial 1)1·ope1·ty therein, it may })e s2,id tl1at tl1e Dept1ties reflect tl1e will of the people -i-l1roug:l1ol1t tl1e entire Empire. The me1nbers of the Senate ;:\_ re. J!' :)l; so cl1osen on a11y s11ch geographical basis. ·/i'1tle men1bers of the Senate may be 1·e-appointed in ·�:.c-fir�,.it(::Jy and me1nbe1·s of the Chambe1· of Depl1ties may 11.t.r::\'i:ise be re-elected indefi11itely, no one may sit in botl1 Cl18.rr1bers si1nl1ltaneot1sly. Won1en a1·e eligible to sit in E.d t11e1· Chamber; 11one has eve1· bee11 appointed to the Se11ate bt1t several have bee11 elected by the }Jeople to serve i11 the Cha1nber of Dept1ties. ·,__7

Neither a Senator 11or a Deputy 1nay l1old any othe1· Gover11me11t positio11 dt1ring his tenure as a Member of Parliament ,vithot1t the express approval of the Emperor. Me1nbers of the Col111cil of Mi11iste1·s may not be Membe1·s of eitl1e1· Chambe1· of Parliament.

-4-

III. FORl\1S OF LAW A. PRIMARY AND SUBORDINATE DOMESTIC LEGISLATION

The fou1· major types of Ethiopian la\v (Orde1·s, Pro clamations, Decrees and Legal Notices) wl1ich a1·e the sub jects of this Monograph, altl1ol1g·h never so officially !Jre scribed, are i11 accord witl1 the divisions of legislative a11thority set out i11 the Co11stitt1tjo11 of 1931 and the Re·vi.s ed Constitl1tion of 1955. The fi1·st three ( 01·ders, P1·ocla111a tions and Dec1·ees) a1·e best l(no\vn as Pri1nary l1 egislr.:1tio11. Thus, 11nde1· the title of ''01·de1·'', tl1e En1pe1·or c:;cc�_rci.ses I;liJ prerogative 11nde1· A1·ticle 27 of the Co11stitt1tior1 of 1955 to determine ''tl1e organizatio11, IJ0\\1ers and d 11ties of all 111.i11i- stries, exec11tive depa1·tme11ts a11cl tl1e acl1r1.i11ist1·ati1)r1 c,f t1�t·: Government." Expressed another \Vay, a11 01·der· is t.l1e r 01·1:r1 for legislation within the exec11ti ve lJO\ve1·. S11l,sta1) t: lve legislation passed by Pa1·lia111e11t ancl ap1J1·0,1ed by the Emperor· is entitled a ''P1·ocla1nation''. Tl1e E1npe1·01· acti11g alo11e may p1·om11lgate st1bsta11tive legislatior1 011ly ''i11 cases of emerge11cy that arise whe11 the Cl1ambers a1·e not sitting''. This law is called a ''Decree''. The fourth ter1n, ''Leg·al Notice'', is 11sed 1nai11ly for the public ation of R11les 01· Reg11lations, a11d M11nici1Jal Law, authority for which 11as bee11 delegated to va1·iol1s govern ment officials. rt can best be labelled s11bo1·dinate legisla tion. The two ininor foi·ms of Law wl1icl1 are not discussed herein are ''General Notice', which is mainly used to an . nounce Govei·nment appointments and awards of ho11011r by the Emperor, ai1d ''Notice'' which is the vehicle for the -5-

THE LAW MAKING PROCESS IN ETHIOPIA

anno11ncement of ce1·tain n1atters of public interest, such as Notice No. 10 of 1950, desli11g with the encouragement of foreign investme11t in Ethiopia. Notice has more or less dropped i11to disuse except for the publication of the peri odic financial state1nents o� the Development Bank and si1nilar organizations. The1·e was some i11consistency or overlapping in the use of all of these ter·ms ir. tl1e ea1·ly years of the Negarit Gazeta, but the above general description is now the esta blished patte1·n of cur1·ent law making i11 Ethiopia. 011 tl1e in11)01·tant q11estion of what to do when one law co11flicts witl1 a11otl1er, see the excellent article by P1·of essor George Krzecz11:iowicz e11titled ''Hierarchy of Law i11 Ethiopia," p11blisl1ecl in Vol111ne I of tl1e Journal of Etl1io1Jia11 Law at page 111 (1964). '�-

{;IIECKS AND BALANCES

·.rJ·2.c l1evisecl Constitut:on of 1955 ex1)ressly lncorpor �,tes cl ''built-i11" concept of Cl1ecks and Balances wl1erein t1.10 ,1 arioiJS bra11ches of tl1e Etl1iopia11 Government co11tajn a ce1·tai11 amol1nt of control over each other in the law rr1aki11g process. For example: ( 1)

A Proclamation pissed by both Cl1a1nbers of the Parliament can never beco1ne promulgated as Law u11less it 1·eceives the express approval of the Emperor;

(2)

A valid Dec1·ee issL1ed by tl1e En1peror may be re JJealed unilate1·al:y by a n1ajo1·ity vote of both Cha1nbers of the Parliame11t;

(3)

A Joint Session cf Parlia1nent may not be held if one of the Ciambers boycotts the meeting througl1 failur·e of a 1najority of its members to attend; -6-

POWERS OF LOCAL GOVERNMENT

( 4)

Most T1·eaties a11d Internatio11al Agreen1ents with otl1er cot1ntries 111t1st 1·eceive the express approval of botl1 Chambers of the Parlian1ent and the Emperor;

(5)

No brancl1 of tl1e Gove1·nment may 11ndertake a loan 01· pledg·e the credit of Etl1iopia without the express app1·oval of l)otl1 Cl1ambers of the Parliament;

(6)

Wl1ile the Empe1·01· alone by the iss11ance of an 01·der may cr·eate a 11ew Agency of Governn1e11t, all fiscal appropriations for its per1na11ent ope1·a tion mt1st be expr·essly ap1Jrove::i by Parlia111en t;

(7)

Any fut11re Legislatio11 wl1ich co11flict.s \Vith th l� Co11stit11tio11 is n11ll a11cl void, l)rest1rr1ably trJ t> e SC) decla1·ed by the Jt1diciary, all of whose rc;_e11.1bc1·E·. are appointed by tl1.e Ern1)e1·or al 1J 1J·i:- r;.:1ci ri-�·0 <::0,,1-.:ri,· s U bJ. e Ct t O re-ass1·_g.·x-.! 111e11'· � l, 01· ,_, . J . • ...· •. ,_, •• , ., --11·s111i"'s:-, .. ,'::lu..· 1. .1 :·· discretion. 1

Keeping in 1nind the a bo,re chec�l�s a11cl b:1iar1c.'.0s <) ,:1 t.110 various Fo1·ms of Ethio1Jia11 I ,_ ft\V, if 011e \�.1e1·e t1J clJ..s:-:;if�; them broadly u11der tl1e l1eadi.11gs c1f legisl�ltive ) e}r0r:·11ti\re and admi11istrative, it v-JOlllcl be as follo\v·s: Legislative Executive Administrative

P1·ocla111atio11s; 01·de1·s a11d Dec1·ees; Legal Notices.

POWERS OF LOCAL GOVERNMENT

of 1n st sy on 11p d se ba is t 1 e1 m n � er � ov G The Ethiopian of y it l C ta pi c e th in ·o fi g n gi n ri sp � central administratio11 e d th s an ce n vi 1·o p al ic l1 p 1·a og ge Addis Ababa T h e f ot1rteen e av h h ic h w e ir p m E e th t ou h g u 1·o 173 cities a�d towns th e th er d n u 11 re a es ti li a ip ic 11 11 M � been granted th e status o f re a ey h T r. o ri te In f o y tr iS in M direct admi11istration of the -7-

THE LAW MAKING PROCESS IN ETHIOPIA

used to execute a11d administer the Laws which are enact eel by the national gove1·111nent in Addis Ababa and have little, if any, a11tonomous law making po,ver of their ow11. The 011e exception to tl1e above IJrinciple is Addis Ababa, which is the only 1n1111icipality in tl1e country fo1·med pur st1a11t to a Charte1·. Addis Ababa does l1ave a lin1ited power to p1·01nt1lgate laws applicable witl1in its territ-orial limits 011 dive1·se 111atters st1ch as the issuance of licenses 01· traffic offe11ses. These M1111icipal Laws are enacted by a majo1·ity of tl1e Addis Ababa City Council with the approval of the Mayor a11d the11 fo1·"varded to the Mi11ister of !11terio1· for l1is asse11t befo1·e bei11g pt1blished i11 tl1e Negarit Gazeta, at v.;l1icl1 ti1ne they beco1ne effective.

J).

INTERl\f.i\.TIONAL LAW

For a discttssio11 of International Law i11 Ethiopia, see }·_J:... rt �l I•'.

-8•

IV. THE PARLIAMEN T A. ORGANISATION ( 1)

Time and Natu1·e of Meetings.

The regt1lar sessio11s of the Parliame11t conver1.e 011 November 2nd of each year (t1nless there is a l)Ost1Jo11en1ent up to a maximum of 30 days by the E1111)eror) and co11tinl1e until June 8th of the following· year (u11Iess tl1e E111pe:-cor and the Chambers elect t o conti11u.e tl1ei1· clelil)eratio11s be yond that date). The Pa1·Iia1nent is officially 01}enecl orJ tl1e first day of each 11e\v a11n11al session by the E!111Jeror. vvr10 delivers a speech f1·om I-Iis tl11·011e to a Joi11 t Sessio1;. o:r t.11 ,� Parliament composed of at least tv.;o--thircls of tJ:12 l\lJ(�r:c1bers of each Cl1ambe1· i11 \Vl1icl1 I-Ie 1�t::\1ieYvs tJ-:ic: acco1r11JJi3l1-· men ts of the precedi11g yea1· a11d lJ.rese11ts l�i.i,s 1Jrog:ra1r. 1. s f o:r the forthcomi11g yea1·. On eacll c .la:v of �1 se,ssio11 tl1e1:e�1,fl:r:;1· 11either Chambe1· 1nay co11 ve11e 01· tal{e a ·votf: i11 the a. b-· sence of a 1najority of its Me1nt1e1:.s. Affi1·111ative vote,s a.re taken in each Cl1a1nbe1· by a 111aj <.,ri ty of the lVfe111JJers pr·e sent. A Presiding Office1· votes 0111.), to b1·eak a tie. Both Chambe1·s 11sually sit se1Ja1·ately f1·01n 10: 00 a.m. to 1: DO p.m. Monday tl11·ougl1 F1·iday and eacl1 daily sessio11 is begun with a praye1·. All ineetings a1·e open to the pt1blic, subject to secret sessio11s in the 11atio11al i11terest at the reques t of the Prime Ministe1· 01· upon a n1ajority vote of either Chamber. Unless the Presiding Officer g1·ants per mission for a matter to be submitted orally, eve1·ything sub mitted for the deliberation of a Chamber 1nust be in writ ing. Althotigh the Emperoi· 11as tl1e powe1· to dissolve the Parliament, convoke an exti·aordinary session, or st1spe11d a session for not more than 30 days, He has never done so. -9-

�-----· THE LAW MAKING PROCESS IN ETHIOPIA

To e11cou1·age complete freedom of debate in their de liberations, Me111bers of botl1 Chambers a1·e given full civil and crimi11al i1n1nt111ity fo1· all 01·al and written state1nents tl1ey make 1·elating to official Parliamentary Affairs. (2)

Procedure and Reco1·d Keeping

Each Chamber, pt11·sua11t to A1·ticle 82 of the Co11stitu tion, has 1)1·0111t1lg·ated and published in Aml1a1·ic its 0,v11 separate set of Rules a11d Reg·ulations governing Parlia1ne11tary P1·actice a11d P1·ocedt11·es. All of the business of tl1e Parlia111e11t is co11dt1ctecl i11 A1nha1·ic. A complete re cord of everytl1i11g· \Vl1ich t1·ans1Ji1·es 011 the floo1· of each Cl1an1lJer is l{eJJt in the Mi11ute Book of the respective Cl1a1nber. 1,11e l\1inutes of eacl1 Cl1amber for the preceding day are read at tl1e begi11ni11g of tl1e sessio11 011 the follow j 11g day. Co1111)lete files on all Draft Legislatio11, Decrees nr1d Resolt1tio11s are l{el)t in tl1e Jour11al of each Chamber. (3)

Joi11t Ses.sior1s.

'T,l1e

t\\ro Cl1an1be1·s meet togethe1· 011 the first and last

( 4)

Order of Bt1si11ess

ciay of eacl1 session, t11Jo11 tl1e call of the E111pero1· and t1po11 0Ll1e1· occa.sions as 1nay be dete1·1ni11ed by both Cha1nbers. rI'he Presid.e11t of tl1e Se11ate presides at all such Joint Ses sio11s, \Vr1icl1 111ay 11ot be held in the abse11ce of a quo1·u1n vvh.icl1 co11sists of a 1naj ority of the men1be1·ship of each Cha1nbe1·. Decisions of Joint Sessions are take11 by a ma jority vote of the 1ne1nbers present. The P1·esiding officer votes 011ly to break a tie.

(a.)

Administrative Personnel

Each Chan1ber l1as a Cle1·k appointed by tl1e Emperor on � pern1a11e11t ca1·ee1· basis. Tl1e Clerks are experts in Parl1a1nentary affai1·s a11d tl1ey serve as exect1tive and ad ministrative assista11ts to tl1.e p1·esiding officers of their - 10 -

(b)

ELECTION OF PRESID ING OFFICERS

respective Chamber�. I n effect, they are re sponsible foi· _ the smootl1 a11d eff1c1ent operatio11 of the Pai·l ia in e nt on all m a tt e T in rs . he Cler·k of tl1e Chamber rout e of Dei)uties and the Clerk o f the Senate are 1ne111be1·s of all Join t Coinmit tees. In the abse11ce o f the Cle1·k of eitl1e1· Ch an1ber, he is replaced by th e Assistant Cle1·k. Tl1e Clerl{s of each Cham ber employ all th e otl1er ad1ninist1·ative a11d cler ical staff of the respective Chambe1· subject to Rt1les and R egula tions of the Civil Service. The Clerk of tl1e Se11ate 111,ay be selected by the E mpe ror from th e 1ne1nbe1·ship of the Se11ate. If so, he n1ay riot participate in tl1e delibe1·ations of the Senate 01· vote 1.1n less he temporar·ily 1·elinquishes his ad1ninist1·ative positio11 an d takes his place on the floo1· of the Se11at.e. Tl1e Clerlc and Assista11t Clerk of the Chamber· of Depl1ties 111ftY 1iot be selected by tl1.e E1npero1· f1·on1 tl1e 1nen1bi;;1·sl1i T) •. of tl1E: Deputies. (b)

A7·J'7-J'lLn,;1z Electio1i a7.,a' (., ! 'J.-r {, L'·'.,·I (,1 o11 t· r, Officers l ,_.., #

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·i�·.'J ,.,. ;:;,,J ;?"'.: _., ..\ . • [ . 1�·.; & I :

,;-,

The President and tv\1 0 Vice-Presiclc�11t;3 c1r tl:'10 Sf�l-L D,tc� are appointed by the E1npe.1·01· f1·01r1 tl1e 1nE:111J;e1·si1j1J of tl'JG Senate tinder Article 107 of tl1e Co11sti t:11 tton. '1'"'111?. fi1·st or der of business for the Cha1nbe1· of DeIJllties ::tt tl1e begin11ing of each an11 ual Se.ssion is the e.lectio11, f1·0111 its 1nen1bership by secre t ballot and by 111ajo1·ity vote, of the three presiding office1·s co1nposed of a President a11d two Vice Presidents. In oi·dei· to coi1duct st1ch an electio11, tl1e Clerk of the Chamber of Deputies nan1es the person wh� �as seniority in the Chamber to serve as tempo1·a1·y _presiding Officer. If there is 110 such JJerson, the Cler·k appoints some · . one else for this pu1·pose. The pr.es1·ct ent and Vice Presidents of the Chambe r of Dep11ties a1·e elected anew at tl1e begi�n ing of each an nual Sessio11 and a1·e eligible for �e-election I·n · · fut ure years. The same 1s th e appo1ntment of to s a t . 1·11e .· Aftei· r. the Presiding r pe Em e th by te na ? Se O ff ice 1·s of the . 1es Pr . each elec tion r ei th of s ie llt ep D of · by tl1e Chan1be1 - 11 -

THE LAW MAKING PROCESS IN ETHIOPIA

dent and two Vice-Presidents, the President and the two Vice-Preside11ts are preser1ted by the President of the Se nate to the Empero1· fo1· His assent. TI1e P1·esidents of botl1 Cha1nbers vote only when it is necessary to break a tie vote. The P1·esident and Vice-Pre side11ts of botl1 Cl1ambers do 11ot participate in the deli be1·atio11s 011 t-he floor of the Chamber. If they wish to do so, tl1ey 111ust 1·eli11qt1isl1 tl1eir respective presiding posi tio11s. In eacl1 Cl1a111be1· tl1e first Vice-P1·esident presides in tl1e abse11ce of the P1·esident and the seco11d Vice-President presides in tl1e abse11ce of tl1e first Vice-President. ( c)

Co'lnTriittee Selection (i)

Sta11ding Committees

The 11ext orde1· of bt1si11ess of the two Cl1a1nbers after tl1e selectio11 of t11e P1·esiding Officers is to select the mem i::ic:1·s C)f tl1e sevej_1 ,Standing Com1nittees of each respective �_;1."}o,111t�er, ,,;rhose ft111ctio11s are best described by their re ;:;1.-:ecti\1e con11ni ttee nan1es as follows: (a) Selection; (b) Budget; (c) Comml1nity Development; ( d) Econo111ics a11d Fina11ce; (e) Defe11se; (f) Fo1·eign Affairs; (g) Leg·al. Each Standi11g Co1nmittee elects its own Chairman, and Men1bers of either Chamber n1ay be named to serve on 011e 01· more Committees of his respective Chamber. Eacl1 Comn1ittee makes its own Rt1les of Procedure con sistent with the General Rt1les and Reo-ulations of its re s!Jective Chamber. Each Cl1a1nber 1nay 1::,also appoi11t addi t1 �11a1 ad hoc special Com1nittees as the need arises. Co1n mittee decisions are taken by majority vote with the Chair man voting· 011ly when 11ecessa1·y to break a tie. All Com- 12 -

(ii) '

JOINT COMMITTEES

mittees are selected anew at the beginning of eacl1 a11nl1al session for both Chambe1·s. The membe1·s of ·the Chan1ber of Depltties first elect by majority vote the 1nembers of the Selection Co1nmittee. This Committee the11 selects the 1nembe1·sl1ip of tl1e other Committees and reco1n1nends tl1eir ap1Jointment tl11·ough election by a 1najority vote of the Chambe1·. The non1ina tions of the Con1mittee are llSltally accepted by the re spective Cl1an1ber. Eact1 of the seven Sta11ding Committees of the Chainbe1· of Dept1ties co11tains foltrteen me1nbers. In the Se11ate, the Selection Com1nittee consists of thirteen members composed of the President, both Vice Preside11ts, the Clerk and 11ine other me1nbe1·s cl1osen by the Senate frorn a list of twenty ca,11didates selected. t,y the President. The Selectio11 Com1nittee then a1Jpoi11.ts the members of tl1e othe1· six Standi11g Co1nn1ittees. Tl1c: 1r1err1bership of tl1e seven Se11ate Sta11ding Con1111itt2e.s ,,arl2s from seven to tl1i1·tee11. (ii) Joint Con1mittees Joint Co1nmittees n1ay also be createcl to cxpec1ite t11e consideration of urge11t 1natte1·s by eitl1er: (a)

A Committee of 011e Cl1a111be1· 1neeti11g witl1 a Comn1ittee of tl1e othe1· Cha.111be1· or;

(b)

A new si11gle Joi11t Comr11ittee bei11g formed by drawi11g fro1n tl1e me111be1·sl1ip of both Chan1bers.

Joint Committees have eqt1al re1Jrese11tation fron1 each Chamber and are used mainly to 1·eco1n1ne11d a collrse of action to both Chan1be1·s whe11 tl1ey sit in Joi11t Session. ( d)

Daily Agenda

The daily Agenda of eacl1 Chambe1· is based upon the following order of pi·iority after a 1·eadi11g of tl1e Minutes of the Session of the previo11s day: - 13 -

THE LAW 1v!AKING PROCESS IN ETHIOPIA

( 1)

(2) (3)

( 4) (5) ( 6)

(7)

Messages from tl1e Emperor; Decrees pending Pa1·Iiamentary Approval; Legislative pro1Josals (also known as Bills, Draft Legislatio11 or D1·aft Proclamations) presented through tl1e Prime Minister; if several p1·oposals are submitted simultaneou sly, tl1e Pri1ne Minister stip11lates the order of priority for separate consideration; Committee Repo1·ts; Notices 1ss11ed by tl1e President; Pending b11siness; Legislative proposals presented by the Mem bers ' know11 as P1·ivate Membe1·s' Bills. If seve1·al s11ch Bills are p1·esented simulta11e011stly, tl1e Presiclent of the Chamber co11ce1·ned clecides 011 an orde1· of priority. Tl1ese Bills l1ave a priority on F1·idays ove1· any Le gislative Proposals s11b1nitted by the Prime Ivli.11is ter.

Ii. th.e Prime I\tlinister states ·tl1at the Draft Legisla t,;c111. \�l'l1ich he s11b1ni ts is of an e1ne1·ge11cy 11ature and both C:hD..1111'.'Jers by 1naj ority vote so agree, the proposal 1nay be co11side1·ed i1111nediately by the Cha1nbe1·s in separate or j oit1t .sessio11 1.vithout going throug·h the committee pro cess. (5)

Nature of B11siness (a)

I11 Gene1·al

Parliament is prima1·ily co11cerned with: (i) (ii)

The app1·oval of P1·oclamatio11s a11d; The ap1J1·oval 01· disapproval of Decrees.

(b) Resolt1tions Occasio11ally it may issue a Resol11tion which reflects its st1·ong opi11io11 011 a matter without necessarily having the impact of Law. Fo1· exa1nple, in 1966, tl1e Cl1amber of - 14 -

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•.

DR.1-\FT LECISLATION

Deputies gave its t1nani1not1s approval to the selection of H. E. Tsahafe Taezaz Aklilu Habte Wolde as P1·i111e Mini ster under Order No. 44 of 1966. This Order authorized the Prime Minister to select the Members of his cabi11et for the first time in the l1istory of the E1npire.

B. DRAFT LEGISLATION ( 1)

Sot1rce of Power

Legislative IJ1·oposals in tl1e for111 of Draft Legislatio11 may be sub1nitted to eitl1e1· Chamber of the Pa1·lia1ne11t for its consideratio11 by eithe1·: (a) The Emperor· acti11g tt1·ough the Prime l\!1i11ister or, (b) Ten or 111ore 111embe1·s of either Cl1a1nb0r '\VJ.�io spo11sor a Private 1VIeribe1·s' Bill. The pr·ocedt1re for· co11siderstion by tl1.e Parlia1ne11.t of Draft Legislation is ide11tical v.;hetl1er it 01·igi11atecl as ct request from the Empe1·or i11 sty-le B(l)(a) above or f1·orn the Members tl1en1selves i11 styl3 B( 1) (b) above. All fiscal measures, howeve1·, niust 01·igi11ste i11 the Cl1a1nber of De

puties. (2)

Steering of Pro1Josecl Leg·islatio11 ( a)

Co11iniittee Heciririg

Draft Legislation, accon1panied by a covering letter or memora11dum, is read aloud to the. Men1bers of the 1·e spective Chamber to whom it has been st1bmitted. Tl1e Members by majo1·ity vote the11 decide either: ( i) to conside1· it i1nmediately on the floor of tl1e Chamber· 01·, (ii) To refer it to the appropriate Co1nmittee, which is the more usual procedure. If referred to committee, the men1bers thereof dis cuss in detail each pi·ovision of tie D1·aft Legislation. They '

-15.. .

�-

THE LAW MAKING PROCESS IN ETHIOPIA

1nay question tl1e Mi11iste1· or Governme11t Official co11cer ned for· a11y enlightenmen-t or g·uidance he may be able to give. Liltewise, if it is a Private Members' Bill, tl1ey may ask tl1e sponso1· of tl1e P1·01Josal to confer �rith them. An1e11dn1e11ts, deletions 01· additions may be made by the Con1mittee to the Draft Legislatio11. Tl1e Legal Committee is also co11st1lted to 1nake ce1·tain that the final ve1·sion of the Draft Legislation under· co11sideratio11 by the Comittee is i11 a1J1J1·opriate fo1·n1 a11d i11 acco1·da11ce with tl1e Lav;r. Tl1e 011ly D1·aft Legislatio11 \1/hich is not so sub1nitted to tl1e Leg·al Co1n111ittee is the one dealing with the Budget. ( b)

Re7Jo1·tirig Out

Tl1e Co1nmittee whicl1 conside1·ed tl1e D1·aft Proclan1a tio11 l)rese11ts to tl1e ft1ll Cl1amber its recom1nendation �1.lo11g· ,vitl1 a11 acco1n1Ja11yi11g 1·epo1·t - includi11g a mino rlt)1 re1Jort if there is one. The alternative recom111endations of tl1e con1mittee report to tl1e ft1ll Cl1a111lJe1· are: ( 1) (2)

(3)

to re1Jo1·t the Bill favorably, eitl1er in its original or a1nended for1n; to ''kill" the Bill or 1·eco1n1nend its rejectio11 01·, to reco1nn1e11d a postponen1ent in tl1e co11sidera tion of the Bill.

vVl1e11 a Bill is tht1s 1·e1Jorted ot1t by a Committee, it co1nes before the ft1ll Cha1nbe1· for delibe1·ation. Orcli11arily, t1nder Article 73 of tl1e Constitution, an official from the office of the Pri1ne Mi11ister is cha1·ged witl1 tl1e 1·es1Jonsibility for Pa1·liamenta1·y affai1·s and he regularly atte11ds sessio11s of both Chambe1·s to answer any qt1estio11s conce1·11ing· a11y Draft Leg·islatio11. But, eitl1er Cl1amber 111ay also request tl1e }J1·esence of the P1·ime Minister, a 1nember of l1is Cabi11et or a11y other· governme11t official to ex1Jlain tl1e Proposed Legislatio11. Tl1e full Cl1ambe1· tl1en debates the Bill item by ite1n, at the e11d of \1/l1icl1 ft1ll disct1ssio11 it votes 011 the Bill as a - 16 -

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( C)

CONSIDERATION BY OTl-lER CHAMBER

whole. The various courses of action available at this stage are: ( 1) ( 2) (3)

( 4)

to send the Bill back to the sa1ne 01· a11otl1er Committee for ft1rtl1er co11sideration · To reject the Bill·, to approve the Bill i11 the for1n in wl1icl1. it was submitted; to approve the Bill in amended for1n.

If alter11ative (3) or ( 4) is taken, the Preside11t of tl1e Chamber sends the Bill, with the cot111te1·-signatt11·e of tb.e Clerk of the Chambe1·, to the Preside11t of tl1e otl1er Chamber. ( c)

Consideratio1i by otlier C'lia111.be1·

When Draft Legislatio11 is so aJJIJroved b:'>' 011e Chart1�J(:;l.' and sent to the othe1·, the 1·eceivi11g Cl1a1ntJer 111a:)i refer it to Committee for re1Jo1·ting bacl� vvl1ich is tl1e llst1al 1J1·0cedure or consider it i1n1nediately. 111 eitl1e1· e,,e11t, it tl1e11 has the following al,ter11ative col1rses of actio11: ( 1) Approve the Draft Legislatio11 by majority vote within two 1nonths i11 tl1e exact fo1·111 i11 wl1icl1 it was received from tl1e otl1e1· Chan1be1·. I11 this eve11t, it is promptly forwarded by the P1·eside11ts a11d Clerks of both Chambers th1·ougl1 the P1·i111e Mi11ister to tl1e Emperor· for His co11sideration. See Part IV C for a a discussion of tl1e alternative cot1rses of action which may be taken by the En1pero1·. Approve it by majo1·ity vo,te withi11 two 1nonths with an1endments. In this event, the matter is refe1· red back to the other Chamber for fu1·the1· considera tion along th e lin es al1·eady disct1ssed in IV B (2). If the other Chamber accepts a11d approves the P1·0posal in th e identical amended fo1·m in whicl1 it was received ' the D1·aft Legislation is forwarded to the E1nperor througl1 the usual channels fo1· His conside1·a(2)

- 17 -

:, ,;.; ,

!IJI

HIOPIA T E IN S S E C O R P G IN K TI-IE LAW I\1A

tioi1. see Pai·t IV c. 11 the other Chamber does not approve tl1e an1e11cted '1e1·sion in the identical form ii1 wl1ich it was receivEd within thirty days, or if it itself n1akes otl1er a1nenjments, a Join·t Session is held as described i11 ( d) below. Tal{e no action withi11 two mo11ths. In this eve11t, a Joint Sessio11 is l1eld as desc1·ibed i11 ( d) below. ( 4) Reject the D1·aft Ieg·islation. I11 tl1is event, full repo1·ts 011 tl1e 1natte1· are sl1b1nitted by tl1e Preside11ts of both Chan1be1·s tl1ot1g·l1 tl1e Pri1ne Ministe1· to the En1peror for a11y a.ction He may wish to take. (3)

(d)

Joi11.,t Sessio11

If 110 actio11 js take11 by a Cl1a111be1· 011 D1·aft Legisla tio11 st1b111jttecl to it by tl1E other· Cl1a1nber within two 1}1or1tl1s tl1e 1:11atter is cliscl1ss2cl i11 Joi11t Sessio11 as p1·ovid2d. t11 1\rLjrle 89 o-r tt1e Constitt1tio11. PJ. Joi11t Sessio11 may al ;:;o l)e l1eld . if rt Cl1�t1nber 1·ecei 11ing a1ne11ded Draft Legisla t1011 clcic,s 11ot appro,,e it within tl1irty days. 011e o-r t,vo co11rses of actio11 n1ay be taken in a Joi11t Sessio11.: ( a) If tl1e D1·aft Leg·islaiion is app1·oved within thirty cla.ys, \Vith or t\ritho·1t f11rtl1er a111endme11ts, by a 111ajority vote of the Joint Session, the n1atter is 1'orv1a1·ded in11nedia:ely to the En1pe1·01· for His action as disct1ssed l11 Part IV C. (b) If tl1e Cl1a111ber ca1111ot ag·1·ee, tl1e 1·espective Presidents of botl1 Cl1a111be1·s n1ake a repo1·t of tl1e deadlocl{, tl11·ol16h tl1e P1·in1e Ministe1·, to the E1n1)e1·or. Pl11·suant to A1·ticles 88 and 91 of the Constitl1tio11, tl1e E111pe1·01· n1ay tl1en transn1it to \ tl1e Parlian1ent: ( 1) I-Iis obse1·vatio11S in 1·ega1·d to the repo1·t or, (2) A P1·oposal of Leg·islatio11 on the same st1bject. - 18 -

ACTION BY TI-IE El\lIPEROR

In either of the above two eve11ts, (b)(l) or (b)(2) above, the Pa1·lia111ent the11 co11side1·s the matte1· again alo11g the same lines al1·eady discussed in Part IV B (2). If a negative vote is eventually fortl1co1ni11g, tl1e Presidents of botl1 Cha111be1·s rencle1· tl1eir separate 1·eports to the Pri1ne Ministe1· fo1· for\va1·ding to the Empe1·or. The Pri1ne Minister, in this instance, 111ay also sin1t1ltaneot1sly st1bn1it to the E1npero1· his ow11 repo1·t 011 tl1e 1natter wl1ich 1nay include the opi11io11s of the Mi11iste1·s co11cer11ed. If, after due deliberatio11, an affi1·111ative vote of Parlia1ne11t is forthcoming, tl1e n1atte1· is 1·efer1·ed tl1rot1gl1 the Pri111e Ministe1· to the Er11pe1·01· for I-Iis action as clescrilJed i11 Part IV C below.

ACTION BY TI-IE EMPEROR

1ie Pro1Josal l1rts beer1 ;:1,fJl)i.'Oved. by ti sla gi Le a Wl1enever or e t . 1 1 ·.tE:tl1e1· ir1 tra f :> :;l: �)( \, 1t, e1 111. ia 1·l Pa a 1najority of tl1e 3: : g· i11 tl1 e '. rc t:t1 or 1e 01 clo ay 111 r ro )e n1 Joint Sessio11, the E1 e tl1 , 1l er ev is Ll1 i. Ir 1. o1 ti la is eg l, 'ft ( 1) Appi·ove the D1·a e ar 1· ro 1Je 111 E 1e tl of 1l ec S at 1·e Sianatu1·e a11d C+ s 1e sl li 1b l)1 1 e1 P of cr st 1i i1 l\1 1e tl af�ixecl t1"1ereto a11cl t a , ta ze a G t 1·i g;a e N 1e tl 1 i1 the Law i1n1ne:liately ss a le 11 ' 11 \\ a L s a e v ti c e ff e s 1e 11 o c e b wliich ti111e it late1· date is specifiecl. 11t 1e 11 a li 1· a P 1e tl o t 11 o ti la is g e L _ (2) Retlli·n the Di·aft 1 s 11 e g 11 a r l1 e c h it e 1· fo s 11 o ti a with His recom1nencl t 11 e v e is h 1 I1 l. a s o p o r P � ., . ,i 8 the Pi·oposal o r a 11 e h t in 1 11 a g a 1· e t t a 111 e l1 t . Parlia1ne11 t co11siders t 1· a P e 1n v o b a d e ib 1· c s e t c c dy same f ash1. on alrea IV B (2); e r h o t y f d e 1n e r ly 11 0 e h T ly e it n i' f e d J · . 11 t 1 t r ·c e 1 s 11 (3) Co . . t h is event is to 1·eqt1e.st an expla11aParl1a1nent 1 n 1e tl 1· 0 r e st . 11 11 M e n i1 r P . e th r e 1 tl . 1 e . . ecl m o r t1on f 1 e n c 11 o y c tl c e ir d t s 1o n t e in b a C . 1s h f o r e b m e M with the matter.

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1111

V. THE COUNC.IL OF MINISTERS A.

FORMATION ( 1)

In Gene1·al

The Ei11per·or· selects the P1·i1ne Minister, wl10 in tur11 11omii1ates for· appointn1ent by the E1npe1·or the heads of the vai·ious exect1tive depart1nents of the Government, ptlrst1 a11t to o1·cte1· No. 44 of 1966, :1hose f�nctio11s ar� self exrJla11a.tory f1·om their· 11a111es which are listed below. Office of Pri111e IVIi11iste1·; central Perso1111el and Pe11sion Admi11-ist1·ation i. \.ge11cy; l\1IJ11ist1·y of l:)en; l\!Ii1iist1·:sr o r. Im1Je1·ial Cot11·t; l\ff..inistr·:sr of !11terio1·; t '.3) 1,11i11is .ry cf Fi11ance; ,.I..,..,. l\'1ir1ist1-,/ of National Defe11se; nf 0 J.VlllllS � E1 'dt1catio11 a11d Fi11e Arts,· ") "�· Gl'y • 9) l\!ii11istry of Co1nme1·ce a11d Indt1st1·y; 10) J\1i11istry of Jtistice; 11) 1\/finistry of Ag1·ic11l ture; 12) l\!Ii11istry of Pt1blic Healtl1; 13) l\!Ii11istry of Communicatio11s; 14) l\1inistry of Planni11g and Developme11t; 15) Minist1·y of Natio11al Comn1u11ity Development a11d Social Affair·s; 16) Minist1·y of Mines; 17) Mi11istry of Fo1·eign Affai1·s; 18) Minist1·y of La11d Refo1·m a11d Adn1inistration; 19) Minist1·y of Pt1blic Wo1·ks; 20) Mi11istry of I11formatio11 a11d Tot1rism · ' 21) Mi11istry of Post, Teleg1·a1Jl1 a11d Telephone. Some of tl1e Membe1·s of tl1e Cou11cil of Mi11iste1·s are not at the head of one of tl1e above departments such as tl1e Mi11ister of State in the office of the Prime Minister. 1) 2)

- 20 -

(2)

PRIVATE CABINET DISTINGUISl-IED

The a�ove Ministries are list ed arbiti·ai·ily and not ii1 order of 1rr:1P�1·tance . The prese11t P1·i1ne Mi11ister also serves as M1n1ster of I11t erio1· an cl Ministei· of Pen. Ntlm beri11g 23 in all, in diffe1·e11t depa1·tments, the Ministei·s _ are collectively k110\vn as the Col111cil of Mii1isters 01. Cab inet, und e1· th e l eade1·ship of the P1·i1ne Minister who serves as Chairn1a11 and to whon1 tl1ey are responsible. To avoid confusion wit h th e P 1·ivate Cabi11et, discussed i11 Part v (A) (2) b elow, th ey will be 1·ef e1·1·ed to herei11after as the cou11cil of Ministe1·s and n ot the Cabinet . Originally establish ed by E111pero1� Me11elilz II i11 1908, the Cot1ncil of Mi11ist e1·s acts as a clearing 1101.1se for the initiation of s1.1bstantive l egislatio11 by the Empe1·01·, as is evidenced by the statem e11t 0n the aclvice of 011r Co1.1ncil of Ministers'' which normally a1)J.Jears i11 tl1e Pr0ar.n.bJ.e of Orders. Neitl1e1· t he Pri1ne l\1i11ister r101· ar:i.:y 111e11}1Je:;· of tl1.i:�: Cou11cil of Mi11ist e1·s 111.ay be a rn0111.ber of cit,l1er Cha11�1.}Jsl· of Parliament . Not only 1111.lst ec1,e,l1 011<� be a 11a·ti1.r 1� i)')r11 Ethiopian citize 11 b1.1 t i11 aclcli t:io11 b0Ll1 1)f 1'1is r18.rcr1 ls ::_-n_i lf:;t have bee 11 Ethiopian citize11s ,1t. tl1e tirne o:f: 11.is 'birt.11. 1'-TC) woman has as yet servecl i11 tl1e Col111cil of lVIi11istci·s although Woize 1·it Yodit Ir111·1.1 beca111e tl1e first Etl1io1Ji8JJ lady to achiev e ministe1·ial statllS vvl1e11 sl1e \vas a1)poir1tecl Vice-Ministe1· i11 ti-1 e Min istry of Fo1·eig11 Affairs. Princes eligible for st1ccessio11 to the Cro\vn 111ay 11ot be ap1)ointed to the Cot1ncil of Ministe1·s. 11

(2)

Private Cabi11e t Distinguished

The council of Ministe1·s or Cabi11et as described above must be distii1.g ttished fro111 I-Iis Impe1·ial Majesty's Private Cabinet wl1ich was established i11 1959. No 01·der or other official stat em en t has eve 1· bee11 isst1ed on the _ . powers, organization or l egal stat.t1s of tl1 e Private Cab1�et , although its budget is classifie d u11de1· tl1e s� me hea�1ng as the Ministry of t he Pe11. Essentially, the Private Cab1�e� acts as an expert advisory s taff to the Empe1·01·, keeping - 21 -

THE LAW MAKING PROCESS IN ETHIOPIA

I-Ii1n inf01·med 011 va1·ious specialized and tec�11ical matters. _ It incorporated a nu1nber of lJreviously existing depart. 1nents of the I1npe1·ial Sec1·eta1·iat and presently includes the following divisio11s: 1) 2) 3) 4) 5)

Chronicles; Political ; Press; Judicial; and Relig·iollS Affai1·s.

The P1·ivate Cabi11et also has attached to it several otl1er i11stitl1tio11s st1cl1 as a special Chief of Staff on Milit ary l\i'.latters. Division nl1111be1· 4 above offe1·s tl1e Empe1·or j lldicial aclvice \Vi th 1·es1)ect to tl1e ''Sup1·e1ne Court'' known as Cl1ilot. 1,l1is bra11ch of the Judicia1·y is 11nique to Ethiopia, fo1· a thorol1g·h disc11ssio11 of wl1ich one should co11sult tl1e excelle11t article by P1·ofesso1· Robert Sedle1· e11ti tlecl "TJ1e Cl1i.lot Jl11·isclicition of the E1nperor of l�tl1io1)ia') \vl1icl1 1n::t-y be fol111d i11 Vol11me 8 of the Journal of f�Jrica11 :La\v at })ag·e 59 (1964). :B.

DR1-\.l"T PROCLAMATIONS

The Cot111cil of Mi11isters p1·epa1·es its o,v11 Rules and Regt1latio11s for tl1e conduct of its bl1siness Sllbject to the ap1Jro,1al of tl1e E1npero1·. Whe11 the e11act111ent of a Pro cla1nation is dee111ed necessa1·y by a Mi11iste1· 01· the Chair111a11 of any Gove1·11n1ent Ag·ency, he submits a Draft Proclan1ation to the Council of Mi11iste1·s fo1· its conside1·a tion, accon11)a11ied by a coveri11g· lette1· explaining· the need for a11d p11r1)ose of tl1e proposed leg·islation. The Draft Proclamatio11 is 11s11ally p1·epa1·ed 01· 1·eviewed either by tl1e Leg·al Department of the Pri111e Ministe1·'s office or by tl1e Leg·al Depart1nent of the a11tho1·ity wl1ich sub1nits it. The pl11·1)ose of this cleara11ce by expe1·t counsel is to stand ardize the fo1·1n of all leg·islation and ensure that the new Law, if e11acted, will 11ot d11plicate or conflict with existing Law. - 22 -

DRAFT PROCLAMAT ION

On rec eip t of tl1e Draft Pro cla 1na t·1 0n i11 A n1ha 1c an d . .· 1 .sh along wi th th e covei·ing 1 tt e. . ' e:1er tl11� Engli , y g is in orde1· tl1e Secretary -Gene1·a1 of t�e 6o�:ncil of M1111. sters inserts it as th e las t ite m on the Ag·enda for tl1 e next rneet. . ot 1ng of the C 1nc1l. Copies of these doct11nents are then .1 prepare d for d stribl1tion to each C011nc.11 Member. The secretary -Ger1e1.al also ha s on ha c rld f01. refere11ce at the . future me eting of the Cou11cil which cons1· ders tl1e Draft . Proclamation all th e data which the members ma Y need 111 their delibe1·atio11s.

After the J?raf� P1·oclan1atio11 11as bee11 dllly co11siderecl by th� Co11�c�l, w1 th or witl1011t a stllcly by a11 8Jct hoc committee, 1 t 1s voted lllJOn. If a 111ajori.ty of the Cot1 r1 cil approve, the p1·oposed legislatio11, i11cll1rJir1g �1,11y 8, n1 111e11 cl ments whicl1 may 11.ave bee11 111�),cle by tt1e !�011J.1(�j.l.. i:�; submitte d to th e E1npe1·01· by tt1e Fri rrJ.t: I\1i11istr:�r :).lr,;·l:J· -,-..,.; i :· 1 1· .. . the Minl1tes of the Cot111cil. If tr1c-: J_)rO,_)c:�;�tl Jf; '.:l�:t::tc)\··:�-i:-� t:·y · · ·1 ,_ _•__ . .,·r . r· · : � , : : � , '=' t,, :,;, .. ·,, · ,,,, : ,.· ;,· c1 p J " 1 /).· f · t..l:. •..1·..,• _;•....... ,, ... .. .,.... .. ···----· ,,...,, the Emperor a Note o -�-iaddresse d to th e Prime Ivii11iste1· t-11r· ::11g;1.-1 -: �:·1 1� c:ft�,:·c: r-·f �-:.··!c Sec1·etaria t of the Co t111 cil of l\�(i i.1 is tE:t s. ··�1 3'�:,, ·_; �1 ;: i�: (�<:· I1) ... �; <j r this Note, the S ecret ary-Get1f::r8.l o [ tl1 c: Ccl1__;_1c;; t SC'i; cL-:; copies of the D1·aft Procla111c1.tic)tl togetl1c: 1: ,;vi.tJ). tl1i::: e:(t:rac:t of the Cot1ncil Mi11t1t es a11d tl1e 01·igir1al r.Jt)te of A1-)r">ro,1al, - retai11s a copy of to the Office of the P ri111e Mi11ister. IIe the Note fo1· th e Reco1·ds of tl1e Cot111cil. d ve 1·o Jp a en be as 1 l 1 h 1ic wl il 1c t11 Co .e tl1 of The d ecision by the Empero1· is tl1en commt111icated by tl1e Prin1e s gi r le fo l sa Jo o1 pr a of n 1·1 fo e th i11. t en m r lia ist to Pa Min er n l na 1a Fi 11t An se 1o l t 1· fo Jt e1 xc E 1·. ro pe m lation fron1 the E tt1tio11, all ti 1s o1 C e tl1 of 0 12 e cl ti r A cial Reports 1·e ql1i1·e d by n io at n a1 cl 1·o ft P ra D 1e tl g n di t1 cl in Draft Proclamatio11s, t d 1·s te fi it 1n 1b y s1 ll 1a ·n o1 n r e a t, e for the approval of tl1.e bt1dg t l or a ep ci 11 R 1a i1 F l a l1 n 11 A e l1. T . es ti u to the Cha1nber of Dep i tted 1n .b su 1·e a 1·, ve e w o l1 , w la r fo and some llrge11t pi·oposals th the . i y W sl t1 eo n a lt u 1n si t 1 e1 m to both Chambei· s o f Pa1·lia er, the Ch a1n b cti ve 1·e sp e th e of approval of the p1·esident e Ag enda by th e th on de d in clu Draft Legislation is th en -·,:_-;,

J '

I\.}

- 23 -

)

,,/ I

,_ _ _ ,,...

I, ..-•

--....... TI-IE LAW

MAKING

PROCESS

IN ETHIOPIA

Clei·k, foi· co11sidei·ation by the Cha1nber. It is th�reafter . processed t111·ough Pa1·lia1nent i11 the iden�1cal fashion as a Pi·ivate Men1bers' Bill, al1·eady discussed 111 Part IV B. C.

DECREES ( 1)

Source of Power

By virtl1e of Article 92 of tl1e Revised Constitution of 1955 ' i11 case of ( 1) a11 e111erg·e11cy tl1at ma y occur and (2) ,vl1e11 Pa1·lia111e11t is 11ot in sessio11, tl1e Emperor may enact a Decree wl1icl1 has the fo1·ce of la,v upon publication i11 tl1e Negarit Gazet�i llnless a late1· date is specified. .

(2)

Process

JJra'ft leg;isl - ::1tJ011 to !Je e11acted as a Decree 1nay be -::r�)::i·:11itt.ecl by a.1iy l\J.Ii11ister to the Col111cil of Ministers, 1 :; :·-1.ere- :l t g·oes tl1ro ug'l1 tl1e sa1ne process described above �:�1 F'r1rt \7 B ii1 tl1e case of a D1·aft P1·ocla1natio11. If the r.·rci1Josrtl for Decree leg·islatio11 ag·1·eed u1Jon by tl1e Co11ncil 0:r l\.'.f.111isters ar1d s11b111itted to tl1e E1111Jero1· p11rsuant to .r:;__rt.icle 72 of tl1e Co11stit11tio11, is a1Jp1·oved by His Impe1·ial I'.1Iaj est:; 1 , it is e11actecl ·under A1·ticle 92 of tl1e Co11stitl1tio11 :::LrlLi beco111es effective i111111ediately upon 11ublication by the lVIi11ister of Pe11 i11 tl1e Nega1·it Gazeta (unless somr later date is s1Jecified) l)e11ding st1bseque11t app1·oval or disapproval by Parlian1ent, at its first meeting following tl1e e11act111e11t. To meet tl1is 1·equi1·e111ent, the text of the Decree is t1·ansn1itted tl1roug·h tl1e ust1al channels for consideratio11 by botl1 Cha111be1·s of Parlia1nent, usually vvithin tl1e mo11th of No,,en1ber each yea1·. Pa1·liament gives first JJriority i11 each Sessio11 to co11side1·atio11 of Laws e11actecl as Decrees. The Law wl1ich l1ad been enacted as a Decree g·oes th1·oug·l1 tl1e sa111e stee1·i11g p1·ocess as a pro posal fo1· a Procla1natio11, all as l)rovided i11 A1·ticles 88, 89 90 of tl1e Co11stitt1tion, a11d desc1·ibed i11 Pa1·t IV B above. The final clecisio11 of both Chambe1·s of Parlia1nent is - 24 -

._-

( 3)

DECREE ACTION B Y P AR LIAMENT

like wise communicated to tl1e E n1pe1·01· th1·ough the usu a l . . If no action is taken b P rl ament cha 1111els. the first t a : � � e e r c e is D s n e a r s h w o on n e si es s _ p te ' he inatter_ 1nay be considered agai11 at a11y ftltllre 8 essi. o11 of Pa1·Iia1nent. (3)

Effect of Approval o1· Disapr)roval of a Dec1·ee by the Parlia1nent (a)

Issuarice of Notice of Ap7Jroval

I11 the event that both Cha111be1·s of the Parlia111ent exp�essly approve a Dec1·ee by 111aj o1·ity vote l)lli·sua11t, to Articles 88, 89, 01· 90 of the Co11stitut·1· 011 , tl1e D ec1·ee co11t1. n11es, 1n force a11d tl1e app1·oval is pl1blis11ect ii1 t11 e 1,r egari t Gazeta (See, fo1· exa111ple, Notice of AJ)I)roval r-To. 8 of 1963 : approving tl1e Civil Aviatio11 Decree of 1962). OrlC'.1:: 2L l\Tc ,Licf: of Approval has bee11 isst1ed, Parli,1111er).t 111�1y 11c1 t. t).,.,�:�·· ·'._:o r ['.Sr repeal that Dec1·ee tl1ro11gl1 tl1e i.sstlo.11ce o:f ·; l_ 7:·-:'-�t:: 1�c c)f Disapproval. If Pa1·lian1e11t \Visl1e.s to r0.1JenJ. ;:l·L·: .�� :)�'.-): i : c � ; lar Decree, it mt1st do so tl1rol1gl1. ct F'rocl8,l')J.O,Li.:)11, ,.-:. i;:.1�,:!",. :-:, t course reql1ires the aJ)proval of tt,e Errl'[)8t()-:t: \·;r:;):,)rf: _if becomes effective. i

(b)

•

. . ." . ;. . ,•

' '

.. .. '

Approval 1.vitli 1-l'11z. e1?.cl,1ie1its

In the event that Pa1·lia1ne11t ap1Jroves a Decree Sllt'J ject to certain ame11dments, tl1e text of tl1e Dec1·ee as ·, ·01 e1 11p e E1 th by al ov pr ap on t1p t, en n1 ia 1·l de amen d by Pa i ee 11. (S io at m la oc Pr a as a et az G ·it a1 eg is published in the N g in ov pr ap , 63 19 of 0 21 o. N 11 io for example, P1·oclamat e th If .) ed 1d e1 11 a1 as , 62 19 of 49 Labor Relations Dec1·ee No. h ic h e, w re ec D ed d 11 1e n A e th in e g n Emperor 1nakes any cha ed 11 1r tl 1·e is it t, 11 1e 11 ia rl a P y b 11 has been s11bmitted to Hi1 to t n se is it e, v 1·o p 1J a ·s e1 1b n a h to Parliament. When both C a s n a o ti a lg u 1n 1·0 P d n a the Emperor for His ap1Jroval 1e tl f o e v 1·o p p a t o n s e o d Proclamation . If Pai·liament · i1 e th to d e s o p 1·o p s a l1 1· 0 1· e amendmen ts '\vhich the En1p 1e tl t, n e v e s 1i tl 1 I1 . te a, m amended Decree thei·e is a stale 1e 11 ti l1 c l1 l s ti n u w a L s a original Decree ;·einains in effect - 25 -

--.... HIOPIA T E IN S S E C O R P G IN K A THE LAW M

as a 1najority of both Chambers of Parliament issue a Notice of Disa1Jproval as disct1ssed in V C (3) (c) below. ( c)

Iss1larice of Notice of Disapproval

011 the othe1· 11a11d, i11 the eve11t that the Parlia1nent disap1J1·oves a Decree by 1najority vote of both Cl1ambers, st1ch Decree cea,ses to l1ave the fo1·ce of law upon publica tio11 of the clisappro,,al in tl1e Neg·a1·it Gazeta. (See, for exan11Jle, Notice of Disappro,,al, No. 1 of 1963, co11cerning the Bt1ilding 1\/Jaterial Excise Tax Dec1·ee of 1960). ot1gl1 the • Tl1e Pa1·lia1nent notifies the E1npe1·01·, tl1r Pri1ne l\1inister, of its actio11. Tl1is is do11e p11rely as co11rtesy to tl1e E1111Jeror, ,v110 does 11ot l1ave a11y veto powe1· over tl1is actio11. Tl1e Notice of Disapp1·oval is then im1nediately JJl1blis!10cl i11 tl1e l\J eg8.. rit G:1zeta by tl1e Mi11ister of Pe11. ( cl)

Diviclecl

01·

1Vo 1lct'iori of Pa1·lia11ient

r,10,st c.i.;1 ses, Parlia111e11t 11eitl1e1· expressely 1·atifies :.J.t:)r e1�f)r-r;:;sly 1·ej <:'cts a, )�ec1·ee, i11 whicl1 e,1e11t tl1e Decree r. c:'t:1i11s it;:; s'i:.t1tt1s as L�1vv. An exa1n1Jle of tl1is p1·actice would t,e }Jec:r8t: I<fo. 45 of 1961 \Vl1icl1 IJresc1·ibes flogging for pe11Ei.l o.lf (::11s0s c:oi1cerr1i11g· the ''clist111·ba11ce of pt1blic opinion.'' 1.1lt1101.i.f;·11 tl1e Cl1an1ber of De1Jl1ties voted to reject it, no flC tj 011 \Vas tal{e11 by tl1e Se11ate. So tl1e Decree is still in e:ffect to:lay si11ce it was 11ot 1·epealed by a n1ajoi·ity vote of botl1 Cl1an1bers of Parlia111e11t i11 the fo1·1n of a Notice of Disap1)roval. 111

ORDERS· ( 1)

Sot1rce of Po\ver

A11 �rder is a for1n of La\v issl1ed by the Einper·or alone t111de1· I �1s o,v11 sovereig·11 1Jowe1·s and pi·ei·ogatives, set out _ cl11 �fly 111 �hapte1· II (A1·ticles 26, 27, 28, 29, 33, 34 and 36) of the Re �1sed Co11stit11tio11 of 1955. These provisions ex . _ pressly or 1m1Jl1edly vest the st1pren1e autl101·ity in various - 26 -

( a)

ORDER PROCESS

matters of Civil and Milita1·y Gove1·11111ental Ad minist1·a tion in th e Em1)eror to issl1e O�clers clirectly withot1t con1mt1nicating the same to Pa1·lia111e11t. Sucl1 matte1·s includ e the creatio11 an d 01·ganization of Mi11ist.1·ies and Agencies, the powe1·s, cll1ties, pro111otionE a11cl tra11sfer of all Mi11i ste1·s a11d Govern n1ent officials a11d 111a11:/ other si1nilar affairs of the Gove1·nment of Etl1iopia. A11 exa1n1Jle of an importa11t sucl1 01·der \Vhicl1 officially apJJeared i11 tl1e Ne garit Gazeta is Orde1· No. 7 of 1952 "Desig11atio11, Exte11sJon and Defi11itio11 of tl1e Po\ve1·s of Mi11isters," JJ11rsl1ar1t to Article 11 of the 1931 Constit_ltio11., ,:vl1ic1:1 ,,,as th.e basis of execl1tive power of tl1e E1111Jeror, before L11e R,e i1i:3eci l.�Ojl stitution of 1955. Sl1cl1 Orders \�/her). 1J1or11l1lg�ttecl as �iJVJ n1ay also e1npowe1· tl1e G·over11:11e11. t i\1Iir:.j .s Lr}·, LJ,: l)C:t�:t1.n t::-I�'- t, .l\ge11cy 01· At1tl1ority so created, to is ,sL1.e rtl.lcs r1.11ct r<::,6 tlJ.:). tions in the fo1·111 of a Leg8.l Nctice f<Jr tl1e j1rl{).!.e11-i0r1t8.i,tl)�·1. of its functio11s 01· to l)llt i11lc effcc.t tl)·::: <)r'"'ter (Sc�<:;) to:: example, Article 5 of tl1e Civil 1\viatio11 C)r:ler l\To. 2i) ot 1962).

Most 01·clers are 1Jresei1tly issl1ecl l111cler 1\rtic:le 2,7 of tl1e Revised Con stitutio11 of 195!:>, rela.ti11g to tl1e org·a11izatio11 of the Gove1·111ne11t. See, for exa11ple, Orcler No. 4L1 of 1966. An exa1nple of othe1· types of 01·clers \VOlllcl be Tl1e State of Emergency 011 tl1e Somalia Border, 01·cler No. 32 of 1964, t1nder A1·ticle 36 of the Co11stit-1tio11. (2)

Process

io n or Decree, at 1n la oc Pr ft 1a D a of se ca e th Just as ill see Parts v B a11ct v c, a11 Orcer is p1·epa1·ed i11 a M inist1·y (oi· occasionally by so n1e otl1er Govern ment Age�1cy), �nd co ns1 derat1011. 1· fo rs te is in Jv.I of l ci lin Co itt Sllbm ed to the n a11d_ vote, the o ti r·a li b de .e ctu g, ii1 ss � ce Aftei· proper pi·o _ ts e to n1 th b1 su r, te 1s 1n M e 1n 1·i P · g e COllUCI1 , thrOll h th . . der Leg1slat1on, 1· 0 r fo l sa r,o ·o IJ1 · e 1:Emperor an aff 11·mati·v • • n. o ti tl it St n o C e th f o 1 pt1rsua11t to Article 7 1·0 A f p te p a l, N s o p ro e � _ _ � � _ If the Empe1·or approves th � n 1ste1 tl1rot1gl1 the 1 M e m 1·1 P 1e tl to t i1 se l va to that effect is - 27.

THE LAW MAI{ING PROCESS IN ETHIOPIA

Secreta1·iat of the Cou11cil of Ministers. The Secretariat tl1en dispatches to the Office of tl1e P1·ime Minister the Note of App1·oval Virith certified copies of the text of the proposed 01·der. The Prime Minister, as Minister of Pe11, signs the 01·de1·, and sends a COlJY to the printi11g press for immediate pl1blication i11 the Negarit Gazeta, at which time it becomes effective as Law llnless some late1· date is specifed in the Order. (3)

Mi11iste1·ial 01·ders

Article 44 of the Revised Co11stitution of 1955 and Article 1463 of the Civil Code of 1960, amo11g otl1er provi sio11s, botl1 1ne11tion ''Mi11iste1·ial Orclers'' wl1ich are to be api)roved by tl1e Council of Ministers a11d shottld be pub lisl1ecl i11 tl1e Negari t Gazeta. Used inf1·eq11e11tly, 1·ecent e:1 :a.1111)les vvo11ld be the Ministerial 01·de1· of tl1e Mi11ist1·y of ::�c1t1c8tio11 a11d Fine Arts co11cerni11g· ''exami11ation stand .l.-ccts·· a11d the Mi11isterial 01·de1· of the P1·i1ne Minister ·:,;··:>\.f' r11!:c!.g· f11tu1·e governme11t se1·vice for government em1)LC1):f.:es [-:t11d stt1cle11ts \Vho 1·eceive hig·her ed11catio11 at gov1; 1·11 rr1 e11 r ex 1Je11se. E.

LEGAT_, NOTICES ( 1)

S0111·ce of Power

The JJrovisions of a Procla1nation, a Decree or an Orde1· 1nay at1thorize Ministers 01· otl1er gove1·n111e11t authorities to iss11e s11bo1·dinate laws i11 the forn1 of a Legal Notice. The Legal Notices 1nust be Sllb1nitted fo1· tl1e consideration of tl1e Coul1cil of Mi11isters if tl1ey 1·elate to taxation 01· other wise di1·ectly affect the rig·l1ts and liabilities of tl1e people. Other· types of Legal Notice a11d Mu11icipal Law however, do 1iot manclatorily l1ave to be so st1b1nitted to the Council. Deleg·ated Legislation in the form of a Leg·al Notice 1nay eve11 a111end or 1·e1Jeal Prima1·y Legislation (Proclamation, Decree or Orde1·) if the P1·i1na1·y Legislation whicl1 autho- 28 -

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LEGAL NCTICE PROCE SS

rized the L eg a l Notice so empo\ve1·ed it. see Lega l Notice No. 302 of 1964, as a11 example. (2) Process The Ministers deliberate 011 an appropriate Draft Legal Notice in the Cou11cil of Mi11iste1·s, due to their collective responsibility, in the same fash.io11 al1·eady disct1ssed for Procla1nations, Orde1·s and Decrees with the exce1)tio11 that Legal Notices a1·e 12ot clea1·ed tl11·ot1gh the Emperor. Whereas a Legal Notice n1ay be 1·e1Jealed 01· cJ,1ne11dect by anothe1· Legal Notice, P1·oclamation, 01·de1· or Decree, by an autho1·ity e1npo,ve1·ed to legislate in the area, \Vhe11 repealed or amended by a Legal Notice it shol1ld o.nly be by the same autho1·ity \Vl1icl1 1Jro111t1lgatecl. tl1e orii5i11�tl Legal Notice. For exa111ple, Leg·al .f.\Tottce No. 15'.� ct 10fiJ, issued by the Minister· of C'. 01111r1erce a11d Ir1c111stry, ,_: EL:- : l�\i, r�1 · amended by the Minister of Cc1!l1t11erc.e 8.r1�l :z:i· i:�··_L:;c·:·y 1,·, Legal Notice No. 159 of 1952. F.

INTERNATIONAL LAW ( 1)

Sou1·ce of Powe1·

Under· Article 30 of tl1e Re·vised Co11stitt1tic>11 of 1955, i1 of the Emper·or aloi1e exercizes tl1e st11)re1:1e di1·ectio _ 1cl a1 1es at re 11 a1 rt ce 1t bt i1·e 1p En e th of irs � foreign affa e, ac pe g to 1n la re e os th as r1 t1c (s ts � en m Internationa l Agr·ee _ st e) 11 11c te 1s ex 111 n io at sl gi le · 11g yi � if oct n1 i : or lv s, vo an in ng lo r l1aPa r of be 1n l1a C 1 tl b of te vo y it or aj m be approved by a � ment before becomi11g· Ieg·ally effective. (2)

Process o r· 1·e p ts a n e 1n e . e r g A l a n o ti a n r te n Treat1es an d other. I . . . . ancl Par·liament for· st cessed th ro u gh the Cot1nc1l of M1n ; � ns io at m la oc Pr as � e in approval b y Emperor in the sa t an rt _ po im e on is �: h: � Previously discussed 1n Pa rt V B.

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TifE LAW MAKING PROCESS IN ETHIOPIA

differe11ce, howeve1·, between a Proclamation and a Treaty. The fl1ll text of a P1·oclan1ation is always published in the Negarit Gazeta. See Part VI. Thi s is not so for a Treaty. Tl1e cl1stomary cl11·1·e11t p1·actice is for the Negarit Gazeta jl1st to a11not111ce the 1·atification of tl1e Treaty by the E111peror, which is do11e i11 the for1n of a Proclamatio11. For exam1Jle, Procla111atio11 No. 163 of 1960 is tl1e ratification lJy the E1nperor of tl1e Ethio-Fra11co Railway Treaty of 1960. The only exceptio11 to this rule to date l1as bee11 the Organ izatio11 of Africa11 U11ity Treaty (0.A.U.), the full text of whicl1 \Vas lJl1blished i11 the Nega1·it Gazeta. Thus, for the researcl1er i11te1·ested i11 Etl1iopia11 International Law, he \:1.1ol1ld ei tl1er l1ave to cheel{ so1ne standa1·d refe1·ence work \Vl1icl1 co11tai11s tl1e ft1ll text of the T1·eaties and other Jo1·111s 01' I11ter11atio11cil Lav-1 of tl1e vlo1·ld generally, such as tl11?. Ur1itecl :i\Tatio11s rrreaty Se1·ies, 01· obtai11 tl1e full text of l,l1c: JJ,1.rtic:,)l�tr I11.ter11ational Law in whicl1 he is i11ter '.�SL!_;rl J1·oi1·1 tl12 l\1.i..1.11stry of Foreig11 Affairs of the Imperial ,Tt f ·,; , · •. 'I · 1· 1, r.'r o-\,,:,.·,·y1·r·r, ,-::.11t,

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VI. .PUBLICATION OF ETI-llOPIAN Lf\"V A.

THE NEGARIT GAZETA

Negarit is Amharic for dru:11. Gazeta is Italia11 by origi11 and Amharic by adoption for 11evvspaper. Yea1·s ago, public annot111cements and the promt1lgation of law were proclaimed in Ethiopia by the beati11g· of a d1·t11n. The combination of the t1·aditional wo1·d Nega1·it witl1 the imported word Gazeta the1·efo1·e co11stitutes tl1e designation of the govern1nental 1nedit1m of co1n1nunicatio11 of legal information to the public. The Negarit Gazeta is the ofjicial legislative, execl1tive and administrative Law Reporte:· of Ethiopia. ¥T1·itten i11 Amharic and English, the first lssl1e appearecl on Marcl1 30, 1942, and it has bee11 pllbl:sl1ed regl1larly since that date. Of col1rse, if the1·e are a11y language co11flicts, Amharic is the 011ly official la11?;uage of the E111pi1·e and that version gove1·11s under Artic:e 125 of tl1e Co11stitl1tion. The pages of the Nega1·it Ga�eta have cont::tinecl tl1e authorized text of tl1e Revised Co11stitl1 tio11 of 1955 a11cl the modern Codes, Procla111atio11s, Dec1·ees 1 01·ders, Lega,l Notices, Notices and Gener·al Notices cliscussed herei11, all of which did not become effecti�e as Lav1 l111til they vt1erc' so pt1blished in the Neg·a1·it Ga�eta. Occasionally, a La\v p11blished i11 the Negarit Gazetc, co11t;:1i11s a specific 1Jro visio11 naming a later date at vvl:1.icl1 ti111e tl1e La\v will become effective. Proclamations, Decrees, Orders a11d Legal Notices usually appear in the Nega1·it Gazeta l111der their g·e11e1·ic name, nt1mber and year· and tl1ey are so cited, (Fo1· exa1nple, Decree No. 42 of 1962; Legal Notice No. 257 of 1962.) Lavvs ··- :31 -

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TI-IE LAW MAKING PROCESS IN ETHIOPIA

are pt1blished i11 the Negarit Gazeta in st1·ict chronological order. (A sn1all fractio11 of Ap1)ellate Court Opinio11s, which are called J11dg1nents, ar·e currently printed in the Journal of Etl1iopian La\v, wl1ich is published by tl1e Faculty of Law of Haile Sellassie I Unive1·sity in co-operation with the Mi11ist1·y of J11stice. Decisions or Awa1·ds of Administrative Boards, Agencies, Comn1issio11s, and Tribunals, and some otl1er For1ns of Lavv are 11ot 1·eg11larly pt1blished anywhere at present.) B.

TI-IE FORMER ROLE OF TI-IE ''CONSULTATIVE COT'/IJ\tIITTEE FOR LEGISLATION''

Prior to tl1e p1·on1t1lgatio11 of tl1e p1·ese11t Revised Co11stit11tio11 i11 1955, tl1e for1n as \vell as the constitu t,j_c1r1ali ty of 11ev1 legislatio11 was checked befo1·e it was �-:-ro111l1lgated or lJUblished i11 tl1e Nega1·it Gazeta by the "C�'t-:-:11st1l tative Comn1ittee for Legislation'' ( c1·eated by Arti c:1 :� 21 of the Acln1inist1·ation of Justice, Proclamation No. 2 r:Jf 1949). This Com111ittee was cl1arged with the fu11ction of c1rafti11g· Lavvs or reviewi11g the d1·aft of any p1·oposed Law iJe.fo1·e its enactn1e11t, and it ce1·tified tl1at a11y Law to which sL1cl1 certificatio11 related vvas 11ot 1·ept1g11a11t to natt1ral j11stice a11d ht1n1a11ity a11d was a fit and p1·oper Law to be ap1Jlied witl1ot1t disc1·i1ninatio11 to Ethiopia11s and fo1·eigners alike. The Com1nittee is no lo11ge1· i11 ope1·ation. C.

TI-IE PRESENT ROLE OF TI-IE MINISTER OF PEN

A Proclan1atio11 dt1ly ap1J1·oved by both Cl1a1nbers of Parlia1ne11t and tl1e E1npero1· is p1·ese11tly pt1blished by the Minister· of Pe11 i11 tl1e Neg·arit Gazeta, as p1·ovided in Article 88 of tl1e Co11stitution a11d supplemented by Article 3 of Procla1natio11 No. 1 of 1942 a11d A1·ticle 22 of Proclama tio11 No. 2 of 1942. Similarly, a p1·oposal for legislation s11bn1itted to the En1pe1·01· by tl1e Cou11cil of Minister·s, in - 32 -

ROLE OF PRIME MINISTER

the form _of a Decree 01· 01·der, is 11po11 His approval, _ published 111 the Negarit Gazeta by tl1e Minister of Pen. Subordinate legislation in the forn1 of a Legal Notice is also published in the Nega1·it Gazeta 11nde1· the signature of the conce1·ned Minister· or other autl1orized Governme11t official, as the case 1nay be. 011 some occasions, the Pri1na1·y Legislation (Proclamation, Order· 01· Decree) may al1thorize the issuance of a Legal Notice ,vhicl1 does 11ot requi1·e pl1bli cation in the Nega1·it Gazeta. D. THE PRESENT ROLE OF TI-IE LEGAL DEPARTi\1ENT IN THE PRIME MINISTER'S OFFICE Under present practice, befo1·e a la\v is se11t to the Berhanena Sela111 P11inti11g Press, for publicatio11 i11 tl1e Negarit Gazeta, tl1e Legal De1Jart1nent in tl1e Pri111e l\!Jinis ter's Office reviews the fi11al text, cl1eclts the tr�1,11slatio11, and suggest app1·op1·iate cor1·ectio11s as to tl1e f orrD_ to tt1e Prime Ministe1·, who as Minister of Pe11 is 1�es1Jo11sible for the publicatio11 of the Negarit G·azeta. This practic:e l1as been followed since tl1e p1·ese11t Pri111.e Ministrjr as;·:.:L1111ecl the portfolio of the Mi11ister of Pe11. Hov;ieve1·, tl1e l\ IirLjstrsr of Pen a11d the Mi11iste1· i11itiati11g· the leg'islatio11 are 1'Jotl1 responsible for ancl co11ce1·11ed witl1 tl1e avoidi11g of defects in the published Negarit Gazeta ve1·sio11. 1

E. THE PRESENT PRACTICE OF COMPARING THE PUBLISHED LAW WITH THE APPROVED OFFICIAL TEXT. •

The Secretariat of the Co1111cil of Mi11isters In ct1rrent practice, the Sec1·eta1·iat of the Cot1ncil of Ministers compares published Dec1·ees, 01·ders and Legal e th tl1 ta wi ze Ga rit ga Ne e tl1 i11 · a1 pe e ap tic No s as th ey st y 1b i11 st nc pa 1·e sc di of s se ca In . xt o te appr ved original ance th e secretary-Gene1·al of tl1e Co1111cil of Ministers brin�s the matter to the attention of the Prime Minister for corrective action. ( 1)

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THE L11 W I\1AKING PROCESS IN ETHIOPIA

(2)

Tl1e Sec1·etariat of the two Chambers of Par lia111ent.

I11 the case of Procla1nations, the Sec1·eta1·iats of the t\\,o Cha1nbe1·s of Parlia1ne11t ve1·ify the published Law in tl1e Nega1·it Gazeta with the a1Jp1·oved original text and if �hey fi11d a11y disc1·e1Ja11cy in sttbstance, tl1ey re1Jo1·t to tl1eir respective P1·eside11ts wl10 1nay then i11qui1·e fo1· an expla11ation fro111 tl1e Pri111e l\iiiniste1·. F.

COR.RIGENDA

Co1·1·ige11da a1·e occasionally pttblished by the Minister of Pe11 i11 tl1e Nega1·it Gazeta to 1·e1nedy 1nistra11slatio11s or co1·rect 111is1J1·i11ts of a11 official leg·aI text. Tl1ese co1·1·igenda are JJt1blisl1ed Vi/itl1out s11b1nissio11 to Pa1·Iiament. G.

(;()l\1P ARATIVE ANALYSIS TABLE

Tl1e l\Jeg·arit Gazeta was fo1·n1ed in 1942. To date (May l�:6G), 24 1·eg·t1la1· or orclinary volu1nes l1ave been published ;)_L �·.11e 1�f1,te of 011e a. yea1·. The 1111n1be1· of pages pe1· year has ·;;2ried f1·0111 a 1ni11in1u111 of 33 to a maxi1num of 203, depend C;;D.t 111Jon the volume of Law p1·omt1lgated each year. The tota.l 1111111be1· of 1Jag·es fo1· all 24 volu1nes is 1,035. vVi.tl1 reg·a rd to the nt1n1be1· of fo1·1ns of Etl1iopian Law e11actecl to elate, the statistics a1·e as follows: P1·ocla111atio11s: 230 Dec1·ees: 52 Orders: 44. Legal Notices: 312 General Notices: 350 Notices: 13 In adclition to tl1e above, 6 basic Codes l1ave been p1·01n11lgatecl ,vl1ich constit11te tl1e 1·eal body of Law i11 Ethio pia. They are as follows and we1·e d1·afted by Commissions t111de1· the leadersl1ip of the 1Jerso11s nan1ed: - 34 -

CONSOLIDATED LAWS OF ET}IIOPIA

Penal Code of 1957, Professor· Jean G1·aven of Switze1·Iand; Civil Code of 1960, P1·of essor R. David of France; Ma1·iti1ne Code of 1960, Professo1· J. Escar1·a of F1·a11ce; Comn1e1·cial Code of 1960, Professors J. Escarra a11cl A. Jal1ff1·et of France·' C1·in1i11al Procedt11·e Code of 1961, Sir Cl1arles Matthe\vs of E11gla11d; Civil P1·ocecl111·e Code of 1965, Ato Nirayo Esayas, Assista11t Ministe1· of Coclificatio11, of the Mi11istry of Jt1stice of the I111peria1 Etl1ioJ)ia11 Gover111nen t. All of the above Co jes \.Vere e11acted throl1g·11 Proc 1�1- mations, with tl1e exce1Jtio11 of tl1e Civil ProC8('. Llre (;c,cle which was isst1ed i11 the for111 of a Decree. Eacl1 011e o,pJ)C'8_ 1· e:::l i11 a sepa1·ate voll1111e as a11 ext1·ao1·cti11�1ry or .Sfi!:'c.lrll iss11e of tl1e Negarit Gazeta as clistingt1isl1ecl 1'ro1n. tl�c' �1:1 regt1lar 01· 01·di11a1·y ai111t1�1.l \1olt1111es 1Jrevio11sly clisct1sse:l in Pa1·t VI G. H.

Corisolidclted Lclws of Etliio7Jia

Fo1· a co1nplete prese11tation of tl1e exte11t to wl1icl1 subseqt1ent Laws l1ave 1·epealecl, 111odified, SlllJIJle1ne11 ted or amended 1J1·eviot1s Lavvs i11 Etl1iopia, one sl1ol1ld co11st1lt the mo1111mental mimeog·1·aphed five volt1111e project of tl1e Imperial Institt1te of Pt1blic Ad1ninist1·atio11 \\1hicl1 is e11titled the Consolidated Laius of Etliiopia. This l1as bee11 done in both textt1al and tabl1la1· f01·n1 so that it greatly simplifies tl1e task of anyo11e who \vishes to do researcl1 in the Law of Ethiopia. It mltst be stressed, ho\veve1·, that this most valuable co111pilatio11, in its present forn1, does not constitute either an official ve1·sio11 of Etl1iopia11 Law or a Revised Cocle of Ethiopia. - 35 -

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I. CONCLUSION S01ne cotlnt1·ies of n1ode1·n Af1·ica a1·e tinfortunately characte1·ized by freqt1e11t change 01· overth1·ow of gove1·n111en ts a11d 1·et1·e11ch111e11t of l1.t1man 1·ights which all too ofte11 are tragically acco111pa11ied by violence and blood sl1.ed. Tl1at this is not t1·t1e i11 Ethiopia is due to the dy11amic leaclershil) of i11ct1111be11t Empe1·01· Haile Sellassie I. After a11 i11l1eritance of 3,000 years of one 1na11 1·ule, He volu11tari ly g·a.ve I-Iis l)eo1)le tl1ei1· first Co11stitt1tion a11d Parliament. Tl1e tra11sition fron1 a11 absolt1te to a constitutio11al 111011arcl1y i11 Etl1io1Jta has been smootl1 and enlightened. T\,11 t,11. tl1e decrease of illiteracy a11d i11c1·ease of political ::1(·1-1111e1-1 011 tl1e part of tl1e electo1·ate, n101·e powers of go ·,_,cr11111e11t are co11.sta11tly bei11g tra11sfered by His I111pe1·ial l\lI;1j esty to tl1e people. Tl1e latest ste1J in tl1is directio11 oc(;llrrecl i11 1966 \Vher1 the Pri1ne Mi11ister· was give11 the ::ltl tl1ority to select l1is o\:vn Cabi11et. I11 ter1ns of political stalJility a11::l g·rowth of de1nocratic i11stitt1tions, Ethiopia col1ld tht1s Vi'ell be l1eld ot1t as a 1nodel for all Afr·ica if not tl1e en tire \VOrld. Altl1ol1gl1 tl1e Etl1iopia11 Parlia111e11t is 011.ly a genera tio11 old, it is 110 111.ere figurel1.ead 01· rt1bbe1· stamp. All 1neasl1res J)roperly before it are st1bject to fr·ank delibera tio11 and objective criticis1n. For· exan1ple, i11 1964 the Par lia1ne11t defeated tl1e dr·aft leg·islatio11 pr·oposed by the ex ecutive for an Italian loan, i11 1966 it 1·ejected the executive 1·eqt1est for a hig·her l1ealtl1 tax 011 la11d a11d in 1963 it re pealed the executive decr·ee which p1·ovided fo1· a building 1nate1·ials excise tax. It is t1·ue that most of the st1bstantive pri111ary legislation enacted to date in Ethiopia has been initiated by the exect1tive, tl1e 011.ly exception being the law - 36 -

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fixing the sala1·ies of men1be1·s of Pa1·lia1nent. Bllt every indicatio11 is that Ethiopia's successflll app1·oach of a gra dual shift from the absolute po\ve1· of tl1e 1no11arch to a rule of responsibility by the people has been based upon wisdom and 111atu1·ity. Indeed, His Imperial Majesty will certainly be 1·eco1·ded by history as one of the g·1·eat figL1res of the twentieth centl1ry along witl1 Ch11rchill and Ke11nedy.

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Date Due

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