The Igaal Government
The new president nominated as prime minister Mahammad Ibrahim Igaal, who raised cabinet membership from thirteen to fifteen members and included representatives of every major clanfamily , as well as some members of the rival SNC. In August 1967, the National Assembly confirmed his appointment without serious opposition. Although the new prime minister had supported Shermaarke in the presidential election, he was a northerner and had led a 1962 defection of the northern SNL assembly members from the government. He had also been closely involved in the founding of the SNC but, with many other northern members of that group, had rejoined the SYL after the 1964 elections.
A more important difference between Shermaarke and Igaal, other than their past affiliations, was the new prime minister's moderate position on pan-Somali issues and his desire for improved relations with other African countries. In these areas, he was allied with the "modernists" in the government, parliament, and administration who favored redirecting the nation's energies from confrontation with its neighbors to combating social and economic ills. Although many of his domestic policies seemed more in line with those of the previous administration, Igaal continued to hold the confidence of both Shermaarke and the National Assembly during the eighteen months preceding the March 1969 national elections.
Igaal's policy of regional détente resulted in improved relations with Ethiopia and Kenya. The prime minister did not relinquish Somalia's territorial claims, but he hoped to create an atmosphere in which the issue could be peacefully negotiated. In September 1968, Somalia and Ethiopia agreed to establish commercial air and telecommunication links. The termination of the state of emergency in the border regions, which had been declared by Ethiopia in February 1964, permitted the resumption of free access by Somali pastoralists to their traditional grazing lands and the reopening of the road across Ethiopian territory between Mogadishu and Hargeysa. With foreign affairs a less consuming issue, the government's energy and the country's meager resources could now be applied more effectively to the challenges of internal development. However, the relaxation of tensions had an unanticipated effect. The conflict with its neighbors had promoted Somalia's internal political cohesion and solidified public opinion at all levels on at least one issue. As tension from that source subsided, old cleavages based on clan rivalries became more prominent.
The March 1969 elections were the first to combine voting for municipal and National Assembly posts. Sixty-four parties contested the elections. Only the SYL, however, presented candidates in every election district, in many cases without opposition. Eight other parties presented lists of candidates for national offices in most districts. Of the remaining fifty-five parties, only twenty-four gained representation in the assembly, but all of these were disbanded almost immediately when their fifty members joined the SYL.
Both the plethora of parties and the defection to the majority party were typical of Somali parliamentary elections. To register for elective office, a candidate merely needed either the support of 500 voters or the sponsorship of his clan, expressed through a vote of its traditional assembly. After registering, the office seeker then attempted to become the official candidate of a political party. Failing this, he would remain on the ballot as an individual contestant. Voting was by party list, which could make a candidate a one-person party. (This practice explained not only the proliferation of small parties but also the transient nature of party support.) Many candidates affiliated with a major party only long enough to use its symbol in the election campaign and, if elected, abandoned it for the winning side as soon as the National Assembly met. Thus, by the end of May 1969 the SYL parliamentary cohort had swelled from 73 to 109.
In addition, the eleven SNC members had formed a coalition with the SYL, which held 120 of the 123 seats in the National Assembly. A few of these 120 left the SYL after the composition of Igaal's cabinet became clear and after the announcement of his program, both of which were bound to displease some who had joined only to be on the winning side. Offered a huge list of candidates, the almost 900,000 voters in 1969 took delight in defeating incumbents. Of the incumbent deputies, 77 out of 123 were not returned (including 8 out of 18 members of the previous cabinet), but these figures did not unequivocally demonstrate dissatisfaction with the government. Statistically, they were nearly identical with the results of the 1964 election, and, given the profusion of parties and the system of proportional representation, a clear sense of public opinion could not be obtained solely on the basis of the election results. The fact that a single party--the SYL--dominated the field implied neither stability nor solidarity. Anthropologist I.M. Lewis has noted that the SYL government was a very heterogeneous group with diverging personal and lineage interests.
Candidates who had lost seats in the assembly and those who had supported them were frustrated and angry. A number of charges were made of government election fraud, at least some firmly founded. Discontent was exacerbated when the Supreme Court, under its newly appointed president, declined to accept jurisdiction over election petitions, although it had accepted such jurisdiction on an earlier occasion.
Neither the president nor the prime minister seemed particularly concerned about official corruption and nepotism. Although these practices were conceivably normal in a society based on kinship, some were bitter over their prevalence in the National Assembly, where it seemed that deputies ignored their constituents in trading votes for personal gain.
Among those most dissatisfied with the government were intellectuals and members of the armed forces and police. (General Mahammad Abshir, the chief of police, had resigned just before the elections after refusing to permit police vehicles to transport SYL voters to the polls.) Of these dissatisfied groups, the most significant element was the military, which since 1961 had remained outside politics. It had done so partly because the government had not called upon it for support and partly because, unlike most other African armed forces, the Somali National Army had a genuine external mission in which it was supported by all Somalis--that of protecting the borders with Ethiopia and Kenya.
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