How Can Federalism Work in Somalia?
My home country of Somalia is emerging from decades of conflict and is slowly being shaped into a federal republic. Five member states, the Benadir region around the capital city of Mogadishu, and people from the contested Somaliland territory have for almost 20 years been trying to turn the idea of a federation into reality. Despite progress, many Somalis see federalism as an alien imposition that is not suited to our way of life.
I have held a number of decision-making positions in Somalia during those years, including as Secretary General of the Benadir Region and Mogadishu municipality. My hands-on experience working to implement a federal system has led me to believe that if the country takes the proposal of federalism seriously, it can offer us a way to avoid the pitfalls that make governance so conflictual in Somalia. The peace and stability federalism can bring to Somalia is worth the work.
“Federalism is a system of government in which the same territory is controlled by two levels of government… Both the national government and the smaller political subdivisions have the power to make laws and both have a certain level of autonomy from each other.” [Cornell]
HISTORY OF FEDERALISM IN SOMALIA
I have spent the last year traveling all over Somalia, leading consultations on federalism for Conflict Dynamics International (CDI) in partnership with Forum of Federations. Through the consultations, I have heard Somali people say that they don’t understand how federalism works, that the concept was imposed by foreign actors, and that federalism ultimately divides us as Somali people. These are not new sentiments and I have been hearing them for many years.
But that narrative does not reflect reality. In 2004, the federal system was agreed upon by Somali leaders as the best option to keep a country together which is so strongly divided along clan lines. By sharing out power, federalism would widen political opportunities for the Somali people. Shared responsibility between the central government and the Federal Member States would ensure no one clan could dominate the country.
It took nearly a decade for federalism to manifest itself on the ground. It was not until 2012–2016 that federal member states were formed from scratch in Southwest, Galmudug, Jubaland, and Hirshabelle, joining Puntland which had been in existence since 1998. In 2016 an Upper House, or Senate, was formed for the first time with 54 members representing the Federal Member States in Mogadishu.
CHALLENGES TO FEDERALISM
Federalism has taken time because it is costly. The member states are diverse and have quite varied capabilities for generating income. Some have ports, airports, and secure cities for revenue collection while others depend on fiscal transfers from the Federal Government. For the federal system to work, each member state must have assemblies, cabinets, and civil servants both for administration and to accommodate the varied clans in each state. None of this is cheap and the cost leaves little for public service delivery.
Nevertheless, for all its flaws and imperfections, it is important to remember that federalism was chosen by Somali leaders as the law of the land, and there is no legitimate alternative that would bring the same impact. Federalism deserves an opportunity to prove its worth. The Somali people deserve it.
BENEFITS OF FEDERALISM
From the consultations with different groups throughout the country, we are learning that Somalis like the opportunities that the Federal Member States bring. The creation of the states brings new employment and educational opportunities directly to the Somali people. Young people from the member states are saying they no longer have to go to Mogadishu to look for work. With federal systems in place, people have found more options for employment, education, and better health which contribute to stronger communities.
We are also learning that people want to see both a strong government at the federal level and the state level. No one wants to be the weaker authority, so the governments will need to find a balance. Debate on federalism exists at every level. There is debate over simple aspects like the official title of state leaders be it president or governor, as well as complex issues such as the status of contested areas including Mogadishu, Galmudug, Sool, and Sanaag. CDI and Forum of Federations’ dialogue sessions are helping sort through the areas of contention and prioritize the issues to be resolved.
These consultations are bridging the views of the people — about what they envision federalism in Somalia to be — with the vision of the elites in power. We are developing the research to help the government find ways to take those insights from Somali people and build policy from them. The success of federalism in Somalia requires everyone to play a part.
STEPS FOR SUCCESS
To see federalism work in Somalia, brave steps will need to be taken.
Let’s ratify the provisional constitution as it is because we should not let the search for perfection prevent us from moving forward. Then, we must continue to review and amend it as experience shows what is and is not appropriate. As we amend, it must be through a process that includes authentic participation of all Somali people and not just performative consultation.
We should federalize the judicial system, build the constitutional court, and advance democratization processes at the local level. All Somali leaders must commit to a process of true reconciliation to heal the mistrust and trauma that exists across society. All of this will need genuine political will from federal and state leaders to work together in the interest of the Somali people and nation.
We need to define roles and responsibilities between the federal government and member states and have this clarity added to the constitution. The pillars exist in the constitution but need to be developed to a point of successful implementation, for example with the development of intergovernmental agencies.
THE FUTURE OF FEDERALISM
The ongoing challenge of elections in Somalia and the hope of a new administration brings momentum, energy, and potential for new leaders to hold federalism at a high value so that the people of Somalia can benefit from it. If federalism is to be accepted and understood by Somalis, the conversations about how federalism should work must involve all of us — including women, youth, and elders. The opportunities (as well as the challenges) of everyday Somalis must be gleaned from these conversations and incorporated into the formal federalism process to ensure that Somalia represents the voices of all. Federalism can only work in Somalia if it is built by and designed for all Somalis.
The views presented in this blog piece are the author’s and do not necessarily reflect the position of Conflict Dynamics International.
Editor’s Note: This story has been updated with a different map which corresponds more closely with the content of the blog piece.
Subeida Mukhtar is a consultant for Conflict Dynamics Somali Program’s work on Political Accommodation and Federal Issues. She has over nine years of experience in democracy and governance in Somalia and Kenya. Prior to joining CDI, she served as the Secretary General of the Benadir Region and Mogadishu municipality and various others roles before that with the USAID Strengthening Somali Governance Project, Ministry of Planning, Federal Government of Somalia, and the International Organization for Migration.
