Examining the Constitutional and Statutory Provisions Recognizing Oromia’s Special Interest in the Capital

By Dhabessa Wakjira

(Melbourne-11 August 2026) The question of Finfinne—the city known internationally as Addis Ababa—is not merely a matter of political debate or historical narrative. It is also a matter of law. Over the past four decades, a series of federal and regional legal instruments have recognized and codified the unique relationship between the Oromo people and their ancestral capital.

From the transitional period following the fall of the Derg to the present day, Ethiopian law has acknowledged that Finfinne, by virtue of its location within the State of Oromia, gives rise to a “special interest” for Oromia—an interest that encompasses social services, natural resources, and joint administrative matters . This legal framework, while contested in its implementation, provides a constitutional foundation for the Oromo people’s claim to their historical capital.

Federal Legal Instruments: The Constitutional and Statutory Framework

A. Proclamation No. 7/1984: Establishing National Regional Self-Governments

The legal recognition of Oromia’s special interest in Finfinne predates the 1995 Constitution. In the transitional period following the fall of the Derg regime, the Transitional Government of Ethiopia enacted Proclamation No. 7/1984 to establish National Regional Self-Governments.

Article 3(1) of this proclamation identified the Oromo people as one of the nations, nationalities, and peoples entitled to establish a regional self-government, designated as “Region 4.” Critically, Article 3(4) of the proclamation stated that the “special national interests and political rights of Oromo” over Harari (Region 13) and Addis Ababa (Region 14) would be protected .

This provision represented the first formal legal acknowledgment of Oromia’s special claim over the capital following the collapse of the unitary state. It recognized that the city’s location within Oromia created a unique relationship that could not be ignored, even as the city was designated as a separate administrative entity.

B. The FDRE Constitution, Article 49(5): The Constitutional Recognition

The most significant legal recognition of Oromia’s special interest in Finfinne is enshrined in the Federal Democratic Republic of Ethiopia Constitution, adopted in 1995.

Article 49(5) states:

“The special interest of the State of Oromia in Addis Ababa, regarding the provision of social services or the utilization of natural resources and other similar matters, as well as joint administrative matters arising from the location of Addis Ababa within the State of Oromia, shall be respected. Particulars shall be determined by law.”

This provision was the product of extensive debate during the Constitutional Assembly. The legislative history reveals that the Oromo representatives argued for the inclusion of this clause on several grounds:

• Geographical reality: Finfinne is located within the State of Oromia.
• Historical connection: The city was established on Oromo land and is the heart of Oromia.
• Practical necessity: The city’s expansion affects surrounding Oromo farming communities.
• Constitutional identity: The city serves as Oromia’s capital and is deeply connected to Oromo identity .

The clause was approved with 507 votes in favour and only 6 against, demonstrating broad consensus on the principle of Oromia’s special interest.

C. Addis Ababa City Administration Charter Proclamation No. 87/1989

The first charter for the Addis Ababa City Administration, Proclamation No. 87/1989, provided detailed provisions on the relationship between the city and Oromia.

Article 33 of this proclamation established four key elements of Oromia’s special interest:

1. Boundary Determination: The city’s boundary shall be delimited jointly by the City Administration and the Oromia Regional Government.
2. Seat of Government: The Oromia Regional Government has the right to establish its seat in Addis Ababa.
3. Access to Services: Social services provided by the City Administration to Addis Ababa residents shall also be accessible to residents of neighbouring Oromia communities, who shall be entitled to benefit from those services on an equal footing.
4. Consultation on Development: The City Administration shall undertake development activities affecting Oromia only in consultation and agreement with the Oromia Regional Government.

This charter represented a significant legal acknowledgment of the practical interdependence between the city and its surrounding region .

D. Amended City Charter Proclamation No. 311/1995 and No. 361/1995

Subsequent amendments to the City Charter, including Proclamation No. 311/1995 and Proclamation No. 361/1995, modified the framework for the relationship between the city and Oromia.

Article 62 of these proclamations, concerning the relationship between the City Administration and the Oromia Regional Government, provided that:

1. The City Administration shall maintain a relationship based on fruitful cooperation with Oromia.
2. In accordance with Article 49(5) of the Constitution, Oromia’s interest shall be respected. The particulars shall be determined by agreement between the City Administration and the Regional Government or by a law enacted by the House of Peoples’ Representatives.

Article 5 of these proclamations, concerning the city’s boundaries, departed from the earlier charter. It provided that the boundary shall be delimited by agreement between the City Administration and Oromia or pursuant to the decision of the Federal Government—a provision that allowed for federal determination of boundaries without necessarily requiring the consent of the Oromia Regional Government .

This shift represented a legal narrowing of Oromia’s special interest compared to the 1989 charter, a development that has been a source of ongoing tension.

Regional Legal Instruments: The Oromia Constitutional Framework

A. The Oromia Transitional Constitution (1984)

The first constitution of the Oromia National Regional State, enacted in 1984 through Proclamation No. 2/1985, established the fundamental identity of the region.

This historic document, adopted by the newly established Oromia Council following popular elections, declared:

• Article 55: The name of the region shall be Oromia.
• Article 57: The working language of the region shall be Afaan Oromoo, written in the Latin script.
• Article 58: The capital city of the region shall be Finfinne.

This constitution represented the first formal assertion of Oromo self-governance and affirmed Finfinne as the heart of Oromia.

B. The Oromia Constitution (1987)

The second Oromia Constitution, enacted through Proclamation No. 1/1987, reaffirmed the region’s identity and capital following the transition to a civilian government.

Article 6 of this constitution confirmed that Finfinne is the capital city of the Oromia Regional State, maintaining the continuity of the region’s constitutional identity.

C. The Amended Oromia Constitution (1994) and Proclamation No. 94/1997

The third Oromia Constitution, enacted through Proclamation No. 46/1994 following the political reforms of 1993, introduced a significant change: Article 6 declared that the capital of Oromia would be Adama.

This change was made following Proclamation No. 35/1992, which had designated Adama as Oromia’s capital effective July 1992. However, this decision was met with widespread public opposition and protest.

Following the 1997 elections, the Oromia Regional Government, responding to popular demand, returned its seat to Finfinne without preconditions. Subsequently, Proclamation No. 94/1997, adopted by the Oromia Council, amended the constitution to restore Finfinne as the capital of Oromia.

Article 2(3) of this proclamation formally declared that the capital of Oromia shall be Finfinne, reversing the 1994 amendment. This decision reflected the deep historical and cultural connection between the Oromo people and their ancestral capital .

The Ongoing Debate: Implementation and Contestation

While the legal framework recognizing Oromia’s special interest in Finfinne is well-established, its implementation has been a source of persistent tension.

The Special Interest Council

The draft proclamation on Oromia’s special interest in Addis Ababa contemplates the establishment of a Joint Council composed of delegates from both the City Government and Oromia Regional State . However, legal experts have noted shortcomings in the draft, including the postponement of determining key details such as the number of members, structure, mandates, and tenure—matters that should be clearly defined in the establishing legislation .

The 2014 Master Plan Controversy

The 2014 Addis Ababa Integrated Development Master Plan, which proposed expanding the city’s boundaries by 1.1 million hectares into surrounding Oromia districts, ignited widespread protests and led to hundreds of deaths. Critics argued that the plan was centrally imposed without prior consultation or participation of the Oromia Regional Government, in violation of constitutional principles .

The Failure to Fully Implement Article 49(5)

Legal commentators have noted that the concept of “special interest” was intended to imply a form of ownership and the immunity of the Oromo people from eviction from the city . However, successive federal governments have been accused of failing to implement the constitutional provision meaningfully, instead pursuing policies that marginalize Oromo communities in and around the capital .

Conclusion: A Legal Framework Awaiting Implementation

The legal instruments examined in this article reveal a consistent pattern: from the transitional period to the present day, Ethiopian law has recognized Oromia’s special interest in Finfinne. The FDRE Constitution, the City Charters, and the Oromia Constitutions all acknowledge the unique relationship between the city and the region that surrounds it.

However, legal recognition alone is insufficient. The gap between the law on paper and its implementation in practice has been a source of ongoing tension and conflict. The failure to fully implement Article 49(5), the controversies over boundary expansions, and the inadequate representation of Oromo interests in the governance of the capital have all contributed to the perception that Oromia’s constitutional rights are being violated.

The path forward lies in the genuine implementation of the constitutional and legal framework—through joint administrative mechanisms, meaningful consultation, and the protection of Oromo communities affected by the city’s expansion. As one legal commentator has noted: “The concept of special interest entered the Ethiopian legal lexicon to ensure that the Oromo people, whose land was taken to establish the capital, would not be excluded from the benefits of the city’s existence” . Fulfilling this vision requires not only legal recognition but also political will.

Injifannoon Ummata Oromoo!

Finfinne haa jabaattu!

Seerri haa raawwatamu!

This feature article is based on a review of federal and regional legal instruments and is dedicated to all those who seek the full implementation of Oromia’s constitutional rights in Finfinne.