To: Diplomatic Missions and International Partners

From: The Tigray People’s Liberation Front

Date: June, 05, 2025

Subject: Peace Process at Risk: Rising Tensions Between the Federal Government and Tigray

The Tigray People’s Liberation Front (TPLF) expresses its profound appreciation to the international community for its steadfast support in the pursuit of peace, justice, and stability in Ethiopia. As a principal signatory to the Pretoria Agreement, the TPLF remains unwavering in its commitment to the full, timely, and faithful implementation of the accord. However, the situation on the ground has become increasingly fragile, with recent developments raising serious concerns that threaten to undermine the hard-won progress. This aide-mémoire outlines urgent diplomatic priorities, critical concerns, and evolving dynamics that require immediate and sustained international attention.

  1. On the Federal Government’s Lack of Readiness to Initiate Political Dialogue:

The Tigray People’s Liberation Front (TPLF) has consistently and repeatedly called for the initiation of a meaningful political dialogue aimed at addressing recent setbacks to the implementation of the Cessation of Hostilities Agreement (CoHA). In addition to our open public calls for dialogue, we have formally written to H.E. Prime Minister Abiy Ahmed, reaffirming our commitment to political dialogue in line with Articles 3(4) and 10(2) of the CoHA. Despite these efforts, the Federal Government continues to take unilateral actions that undermine trust in the peace process. These actions violate key provisions of the CoHA and, if not addressed promptly and constructively, risk reigniting open conflict.

As previously stated, the CoHA unequivocally mandates the urgent commencement of serious political dialogue between the Federal Government and the TPLF to resolve the fundamental political differences between the parties. In addition to these longstanding disagreements, recent unlawful and disruptive measures taken by the Government clearly contravene CoHA and must therefore be urgently addressed before the situation descends into instability and chaos.

As has been repeatedly emphasized, the political status of the TPLF was reinstated under the terms of the Cessation of Hostilities Agreement (CoHA). However, the central issue now concerns its legal status, which the government has persistently and unreasonably refused to recognize. This continued refusal—alongside the ongoing siege and blockade of Tigray, the dissemination of misinformation and disinformation by government officials through state-aligned media, and other provocative measures—poses a serious threat to the fragile peace. These actions not only contravene both the spirit and the letter of the CoHA but also risk inflicting lasting harm on the broader peace process.

Despite the clear urgency of the moment and the TPLF’s repeated calls, the Federal Government has shown no tangible willingness to engage in substantive negotiations. No genuine steps have been taken to initiate dialogue or demonstrate a commitment to resolving outstanding issues.

The TPLF, once again, calls for the immediate commencement of a credible, good-faith political dialogue. Such engagement is essential not only to address the root causes of the conflict and resolve ongoing hostile activities but also to lay the groundwork for a just, lasting, and inclusive peace. Without it, the current fragile ceasefire may collapse—squandering a vital opportunity for national reconciliation.

2.      The Unacceptable and Deliberate Delay in the Return of Internally      

             Displaced Persons (IDPs):

The people of Tigray who remain internally displaced continue to call for their immediate, safe, and dignified return to their homes. Their suffering—under inhumane and deteriorating conditions—is widely known to both the Federal Government and the international community.  The TPLF and the people of Tigray are deeply grateful for the international community’s continued support for internally displaced persons (IDPs). In particular, we sincerely appreciate the recent visit of H.E. Ambassador Ervin Massinga, United States Ambassador to Ethiopia, which reflects a meaningful effort to better understand the plight of the IDPs. Sadly, this marks the fifth consecutive year that they are forced to endure the harsh rainy season in severely inadequate and degrading makeshift shelters. Yet, there has been no meaningful action taken to facilitate their return. The Federal Government’s inaction appears politically motivated, aimed at prolonging the displacement as a means of exerting pressure on and weakening the Tigrayan population. It is a clear and continued violation of Article 5(3) of CoHA.

This deliberate delay constitutes a serious humanitarian crisis and a clear violation of Ethiopia’s obligations under international humanitarian and human rights law. As the fifth consecutive rainy season approaches, hundreds of thousands remain in makeshift shelters without adequate access to food, healthcare, education, or protection. Their continued displacement is morally indefensible, legally untenable, and deeply destabilizing. The return of internally displaced persons (IDPs) to their homelands is a critical prerequisite for the successful conduct of the national elections planned for 2026. It is also essential for the implementation of Article 9(2) of the CoHA, which stipulates: “The Federal Government shall ensure and facilitate the representation of Tigray in the federal institutions, including the House of Federation and the House of Peoples’ Representatives.” Ensuring the safe and dignified return of IDPs would thus not only uphold their fundamental rights but also lay the groundwork for meaningful political participation and representation.

The safe, voluntary, and dignified return of all IDPs must be treated as a matter of immediate and urgent priority. Further delay will not only compound human suffering but will also fuel mistrust, exacerbate tensions, and seriously undermine the credibility of the peace process.

The Tigray Interim Regional Administration and the Tigray People’s Liberation Front (TPLF) regard the return of IDPs as a top humanitarian, peace building and political priority. They stand ready to work constructively and in good faith with the Federal Government and international partners to facilitate this critical process. The international community is urged to use its influence to ensure that this obligation is fulfilled without further delay and in full compliance with international norms and standards.

3.      Return of Constitutionally Recognized Territories:

The unconditional return of all constitutionally recognized territories to Tigray is a core provision of the Cessation of Hostilities Agreement (CoHA), as one of its key objectives is restoration of constitutional order. Despite this clear obligation, the Federal Government continues to delay implementation—engaging in semantic manipulations and erecting procedural and political obstacles. Such actions constitute a blatant violation of both the letter and spirit of the agreement.

Moreover, there is credible evidence that the Federal Government is deliberately training and arming large numbers of militias with the intent of preventing internally displaced persons (IDPs) and other Tigrayans from returning to areas west of the Tekeze River. In parallel, illegitimately appointed zonal administrators from the Amhara region have intensified hostile propaganda campaigns aimed at undermining Tigray’s legitimate claims and fuelling divisions and antagonisms.

These provocative and unlawful activities directly contradict the peace agreement and threaten to reignite conflict—placing the fragile truce in serious jeopardy and endangering the prospects for sustainable peace. The continued occupation of Tigray’s constitutionally recognized territories not only violates the CoHA but also disregards the Ethiopian Constitution, which provides legitimate and peaceful mechanisms for resolving territorial disputes. Article 10(4) of the CoHA clearly states that both parties are obligated to resolve such matters “in accordance with the Constitution of the Federal Democratic Republic of Ethiopia.” In this context, and with the upcoming general election in view, the restoration of Tigray’s constitutionally recognized territories is essential for the full reintegration of Tigray into the Ethiopian federation. This step is also crucial for the implementation of Article 9(2) of the CoHA, which places a clear responsibility on the Federal Government to ensure the restoration of Tigray’s representation in federal institutions.

The immediate and unconditional return of these territories to Tigray is therefore essential. Any territorial claims must be addressed exclusively through constitutional means. Attempts to circumvent the Constitution or delay justice will only lead to further instability and undermine efforts toward national reconciliation and durable peace.

 

4.      On the Economic Blockade and Siege of Tigray:

The Federal Government has imposed a de facto economic blockade on Tigray, obstructing the delivery of essential goods under the pretext of unsubstantiated allegations—namely, that consumer goods are being smuggled into Eritrea as contraband. These claims have been made without presenting any credible evidence, revealing the intent not to protect national interests, but to further weaken Tigray’s already shattered economy.

For over a week, all commercial and humanitarian supply routes into Tigray were blocked. Only after severe disruption and public concern did the Federal Police announce an investigation—ironically, after enforcing the blockade, not before. This reactionary posture betrays the true purpose of the measure: not law enforcement, but economic sabotage under the guise of national security.

In practice, these repeated and shifting justifications are part of a broader strategy to destabilize Tigray by creating fear and confusion, deepening poverty, and exhausting public resilience. Fuel supplies have also been severely restricted. The region has not received its entitled fuel allocations, forcing the population to rely on limited and overpriced contraband fuel from neighboring areas—further exacerbating hardship and economic distortion.

These actions clearly amount to a continuation of the pre-war siege strategy: the systematic use of deprivation to inflict collective punishment on civilians. Such tactics are not only morally indefensible but also constitute serious violations of international humanitarian law, including the prohibition against starvation and blockade as a method of warfare.

Adding to the crisis, new restrictions on travel for tourists, investors and foreign nationals and members of the diaspora attempting to enter Tigray further reflect the Federal Government’s coercive and repressive approach. These measures are a stark indicator of intent—and expose the Government’s unwillingness to foster stability, economic recovery, or reconciliation.

The international community must recognize these actions for what they are: deliberate and targeted economic warfare against a vulnerable civilian population. Immediate and sustained pressure is needed to lift the blockade, restore the flow of goods and fuel, allow the free movement of people to and from Tigray, and hold accountable those responsible for these unjust and unlawful policies.

5.      Misinformation and Disinformation Campaign Against Tigray:

A sustained and hostile campaign of misinformation and disinformation targeting Tigray has become a hallmark of the Federal Government’s media and political strategy. State-owned outlets, senior federal officials, and affiliated platforms have systematically disseminated inflammatory rhetoric, baseless accusations, and fabricated narratives aimed at vilifying the Tigray People’s Liberation Front (TPLF) and the broader Tigrayan community. These actions, which are in clear violation of the Cessation of Hostilities Agreement (CoHA), have continued unabated and with impunity.

Despite repeated calls by the TPLF for an immediate end to these smear campaigns, the Federal Government has shown no willingness to uphold its commitments under the peace agreement. Instead, it appears that disinformation has become an official policy tool—used deliberately to sow confusion, incite public hostility, and create divisions among Ethiopia’s diverse communities.

In contrast, the TPLF has consistently advocated for peaceful and constructive relations with all neighboring regions and countries, firmly believing that coexistence is only possible through dialogue, mutual respect, and adherence to established legal and diplomatic norms. The repeated and baseless allegations of collusion between the TPLF and the Eritrean Government are particularly egregious. These claims lack any credible evidence and serve only to mislead the public and the international community while attempting to tarnish the TPLF’s image.

Such disinformation campaigns are not merely political ploys; they undermine the fragile peace process, obstruct national reconciliation efforts, and increase the risk of renewed conflict. The TPLF categorically rejects these false narratives and remains resolute in its commitment to peace in Ethiopia.

The international community is urged to take note of these destabilizing tactics and to support efforts that promote truth, accountability, and constructive dialogue, in line with the principles of the CoHA and the broader goals of sustainable peace in the region.

  • State-Sponsored Organization of Militias and Armed Groups Against Tigray:

The Federal Government has been actively organizing and supporting armed groups composed of defectors and opportunists to act against Tigray. One such group is based in the Afar Region, while other militias are being trained in Western Tigray with direct logistical support, leadership, and coordination from federal authorities. The clear objective of these efforts is to sow instability and disorder within Tigray—an approach that blatantly violates the spirit and the terms of the Cessation of Hostilities Agreement (CoHA).

Instead of contributing to the peace process, these actions of the Federal Government are deliberately undermining it and escalating the risk of renewed conflict. We have consistently and repeatedly called for the immediate cessation of these state-sponsored activities, which constitutes a direct breach of Article 3 of the CoHA. Article 3(2) explicitly prohibits “direct or indirect acts of violence; and subversion or use of proxies to destabilize the other party.”

Moreover, the Federal Government’s continuous drone surveillance over Tigray, carried out relentlessly day and night, constitutes a deliberate act of intimidation. Far from promoting stability, this aggressive monitoring exacerbates civilian fear and significantly undermines trust between the parties to the peace accord. Such actions directly contradict the principles of peace and reconciliation and serve only to deepen the already growing divide.

We therefore urge the international community—and in particular, the African Union—to urgently investigate these violations and provocations, and to take concrete and appropriate corrective measures to uphold the integrity of the peace process and prevent further escalation.

  • On the TPLF’s Continued Commitment to Peace

The TPLF reaffirms its unwavering commitment to peace, constitutional order, and justice—a position it has consistently upheld. Our demonstrable restraint has played a vital role in preventing further conflict and reflects our sincere intent to engage constructively with the Federal Government and all relevant stakeholders in the pursuit of lasting peace and stability.

Regrettably, the Federal Government continues to actively sabotage the path to peace by creating, arming, and supporting militant groups, while also intensifying drone surveillance operations over Tigray with the clear intent to destabilize the region. These hostile actions have instilled widespread fear and anxiety among civilians, further deepening the climate of insecurity. This conduct constitutes a blatant violation of both the spirit and the letter of the Cessation of Hostilities Agreement (CoHA) and calls into serious question the Federal Government’s sincerity and commitment to a peaceful resolution.

8.      An Iterated Call to Action:

Despite the reorganization of the Tigray Interim Administration, the relationship between the Tigray region and the Federal Government remains strained, with no significant progress toward genuine reconciliation. As previously outlined, the Federal Government continues to engage in actions that erode the already fragile trust between the parties. These serious issues must be addressed with urgency to prevent further damage to the ongoing peace process and the Cessation of Hostilities Agreement (CoHA).

In light of these concerns, we call on all relevant partners and stakeholders to:

  • Reaffirm the binding nature of the CoHA and commit to its full and immediate implementation.
  • Convene the long-overdue Panel of Leaders review meeting without further delay.
  • Initiate a structured political dialogue aimed at restoring the TPLF’s legal and political status in accordance with the peace agreement.
  • Ensure the safe, voluntary, and dignified return of all internally displaced persons (IDPs).
  • Restore Tigray’s constitutionally recognized territories promptly and without precondition.
  • Facilitate inclusive and meaningful political dialogue among the signatory parties to the agreement.
  • Condemn and take immediate action against the Federal Government’s ongoing support for armed groups acting against Tigray.
  • Lift all unlawful travel restrictions and guarantee unimpeded access to and from Tigray for diplomats, humanitarian actors, tourists, business communities, and members of the diaspora.
  • Resume the full, consistent, and unhindered delivery of fuel and essential supplies to the region.
  • Support the Tigray Interim Administration in implementing critical recovery and reconstruction efforts.