The Politics of Drought and Famine
The Derg's limited ability to lead development and to respond to crises was dramatically demonstrated by the government's reliance on foreign famine relief between 1984 and 1989. By 1983 armed conflict between the government and opposition movements in the north had combined with drought to contribute to mass starvation in Eritrea, Tigray, and Welo. Meanwhile, drought alone was having a devastating impact on an additional nine regions. This natural disaster far exceeded the drought of 1973-74, which had contributed to the demise of the Haile Selassie regime. By early 1985, some 7.7 million people were suffering from drought and food shortages. Of that number, 2.5 million were at immediate risk of starving. More than 300,000 died in 1984 alone, more than twice the number that died in the drought a decade before. Before the worst was over, 1 million Ethiopians had died from drought and famine in the 1980s.
As it had in the past, in the mid-1980s the international community responded generously to Ethiopia's tragedy once the dimensions of the crisis became understood. Bilateral, multilateral, and private donations of food and other relief supplies poured into the country by late 1984. Contributions ranged from food to transport trucks, antibiotics, welldrilling equipment, and technical assistance. Fund raising by spontaneously created volunteer organizations in the West, such as USA for Africa, BandAid, and numerous church and humanitarian groups, was instrumental to the provision of substantial nongovernment famine relief. Most of the money and supplies sent to Ethiopia, however, were provided by Western governments, in particular those of Britain, Canada, Italy, the Scandinavian countries, and the United States. Ethiopia's Relief and Rehabilitation Commission (RRC), at the time headed by an Ethiopian official named Dawit Wolde Giorgis, coordinated delivery of this assistance. Although Mengistu and other members of the Derg were nervous about the prospect of so many Westerners flooding into the country and having access to areas where the regime was not popular, Dawit apparently was able to develop enough trust in the international aid community to bring the catastrophe under control by late 1986 (Dawit later defected to the United States).
By 1987 the physical impact of this massive influx of aid over such a short time was noticeable not only in the abatement of famine but also in what seemed to be the permanent establishment of local offices by various donor agencies. Although many foreign relief workers had returned home by 1987, some relief agencies remained to attempt to begin the rehabilitation and development processes. These would have been difficult tasks under the best of circumstances, but in the context of a regime pursuing a specific political agenda in spite of the unprecedented humanitarian imperatives involved in the situation, those agencies that remained had difficulty engaging in effective rehabilitation and development. In the countryside, the WPE often closely regulated the activities of foreign and local nongovernment agencies. At one point in the spring of 1989, the WPE forbade the International Committee of the Red Cross to operate in areas most severely ravaged by war. Before the year was out, drought and war again threatened the lives of more than 7 million people.
Despite drought and famine of unprecedented proportions in modern Ethiopian history, the Derg persisted on its controversial political course. If the famine had a positive side for the government, it was that the flood of famine relief assistance during the period of party construction and constitution-making allowed the regime to devote more of its budget to suppression of the rebellions in Eritrea and Tigray. However, by late 1989 drought, famine, and war, combined with so-called "aid fatigue" among many donors, forced the regime to take desperate measures. The government reinstated national conscription, required workers to give one month's salary to aid in combating famine and war, and halved the development budget as funds were diverted to defense.
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