Aide-Mémoire: Current Issues of Concern and the Way Forward in the Implementation of the Pretoria Peace Agreement

To: The Esteemed Members of the Diplomatic Community

From: The Tigray People’s Liberation Front

Date: April, 16, 2025

Subject: State of the Peace Process and Urgent Priorities for the Implementation of the Pretoria Agreement

The Tigray People’s Liberation Front (TPLF) expresses its sincere appreciation for the international community’s continued engagement and support in promoting peace, justice, and stability in Ethiopia. As a principal signatory to the Pretoria Agreement, the TPLF remains firmly committed to its full and faithful implementation. This aide-mémoire highlights key concerns, recent developments, and pressing diplomatic priorities.

1. Reorganization of the Tigray Interim Administration

The recent reorganization of the Tigray Interim Administration and the appointment of General Tadesse Worede mark a welcome and long-overdue development. Although delayed for several months without clear justification, this move signals renewed momentum and the possibility of establishing stronger, more autonomous local governance.

TPLF remains committed to working collaboratively with the Interim Administration in service of the people of Tigray. The TPLF encourages all political actors who left Tigray following the departure of the former President of the Interim Administration to return to Tigray and participate freely and without fear in an inclusive political process.

2. Undermining of the Pretoria Agreement through Unilateral Legal Measures

The Federal Government’s continued reliance on legal and administrative actions that are neither grounded in nor recognized by the Pretoria Agreement undermines the spirit and intent of the accord. The introduction of such measures without consultation or consent of the TPLF erodes mutual trust and violates the agreed framework for achieving lasting peace.

Even though the supply of fuel and other essential supplies has slightly improved in recent weeks, key public services, emergency operations and economic activities are still being disrupted due to sabotage by the federal government. These patterns of unilateral decision-making and blockades of fuel have become a recurring practice, posing serious risks to the stability of the peace process.

3. Hostile Rhetoric and Media Campaigns

In recent months, hostile rhetoric, unfounded accusations, and inflammatory narratives disseminated by state media and senior federal officials have escalated. These actions stand in direct violation of the Pretoria Agreement, which explicitly prohibits such conduct.

The TPLF calls for an immediate end to these smear campaigns, as they jeopardize the fragile peace process and deepen societal divisions.

4. Return of Constitutionally Recognized Territories

The unconditional return of all constitutionally recognized territories to Tigray is not only a central provision of the Pretoria Agreement but also a non-negotiable legal imperative.

The Federal Government’s continued promotion of extra constitutional proposals represents a blatant violation of both the constitution and the peace accord.

In recent months, there has been a deliberate and large-scale effort to train and arm in Western Tigray Zone. The self-appointed and illegitimate Zonal and Deputy Zonal administrators have since intensified their campaign of hostile war propaganda against Tigray.

Such actions not only betray the agreement but also risk reigniting conflict, and permanently undermining prospects for durable peace. A just and lawful resolution to territorial questions must be prioritized without delay.

5. Safe and Immediate Return of IDPs

The continued displacement of Tigrayans constitutes a profound humanitarian crisis and a breach of both national and international obligations. As the fifth consecutive rainy season approaches, hundreds of thousands remain in dire conditions—lacking adequate shelter, protection, and access to essential services.

This situation is not only morally indefensible but also violates the principles enshrined in international humanitarian law and the Kampala Convention, to which Ethiopia is a signatory. The safe, voluntary, and dignified return of all internally displaced persons must be treated as an urgent obligation of the state. Any further delay exacerbates human suffering, deepens mistrust, and undermines the legitimacy of the peace process.

6. Recognition of the TPLF’s Legal and Political Status

The Federal Government’s ongoing refusal to formally recognize the TPLF’s legal and political status stands in clear violation of the Pretoria Agreement, which is predicated on mutual recognition between the negotiating parties. This obstructionist approach not only breaches the spirit and letter of the accord, but also fuels mistrust, delegitimizes the peace process, and heightens the risk of renewed conflict.

Efforts to impose unilateral and legally questionable conditions on recognition are unacceptable and must be unequivocally rejected. If this impasse is not urgently resolved, it threatens to trigger a dangerous unraveling of the fragile progress made thus far.

The international community must act swiftly and decisively to uphold the agreement, prevent further escalation, and help facilitate a lawful and equitable resolution before the situation spirals beyond control.

7. Commencement of Political Dialogue

The Pretoria Agreement unequivocally calls for the launch of a meaningful political dialogue between the Federal Government and the TPLF as a cornerstone of the peace process. Yet, despite the urgency and the passage of time, as well as repeated call by the TPLF, no substantive negotiations have begun. This prolonged delay threatens to stall progress and deepen existing divisions. A genuine, inclusive, and good-faith political dialogue must commence without further delay to address the root causes of the conflict, resolve outstanding political issues, and lay the foundation for a just and lasting peace. The absence of such engagement risks turning a fragile ceasefire into a missed opportunity for national reconciliation.

8. TPLF’s Continued Commitment to Peace

Amid sustained challenges and repeated provocations, the TPLF has steadfastly upheld its commitment to peace—not only for the people of Tigray but for the broader stability of Ethiopia and the Horn of Africa. This commitment is grounded in the belief that sustainable peace can only be achieved through inclusive dialogue, justice, and adherence to agreed frameworks.

We urge the international community to recognize and support these efforts, as continued engagement and principled diplomacy are essential to translating this commitment into lasting progress. The TPLF remains ready to work with all partners genuinely committed to a peaceful and democratic future for Ethiopia.

9. Call to Action

More than two years since the Pretoria Agreement was signed, its implementation has been marred by persistent delays and lack of meaningful progress. Yet, the recent reorganization of the Tigray Interim Administration—particularly the appointment of General Tadesse Worede—offers a hopeful and long-overdue step forward.

This development demonstrates that progress is possible and signals renewed momentum toward restoring effective, inclusive, and autonomous local governance. The TPLF welcomes this moment as an opportunity to re-engage as a responsible political actor committed to representing the aspirations of the Tigrayan people and to contributing meaningfully to a just and lasting peace.

In this spirit, we respectfully urge the international diplomatic community to:

• Reaffirm the binding nature of the Pretoria Agreement and the mutual obligations it entails.

• Support the immediate convening of the long overdue COHA review meeting of the Panel of leaders at the earliest opportunity.

• Apply sustained diplomatic pressure on the Federal Government to fulfill its commitments under the accord.

• Support the immediate, voluntary, and safe return of all internally displaced persons (IDPs) and the restoration of Tigray’s constitutionally recognized territories.

• Facilitate the launch of an inclusive and good-faith political dialogue to resolve outstanding issues.

• Publicly denounce violations of the Agreement, including unilateral legal actions and inflammatory rhetoric that undermine the peace process.

• Support the immediate restoration of the legal personality of the TPLF.

The people of Tigray deserve peace, justice, and dignity. The success—or failure—of the Pretoria Agreement will not only shape the future of Tigray, but will also have profound implications for the stability and unity of Ethiopia and the Horn of Africa.

The TPLF stands ready to work in good faith with all partners—domestic and international—to ensure the full and faithful implementation of the Pretoria Agreement and to build a future rooted in peace, accountability, and hope.