CASE FOR THE UNION AND ITS TWO GOVERNMENT

STRUCTURE
(Omar R. Mapuri)

TALKING NOTES SUMMERISING THE PAPER:

HOJA YA MUUNGANO WA

TANZANIA NA MUUNDO WAKE WA SERIKALI MBILI

Introduction
Thanks for invitation to participate.
I have entitled my paper: Case for the Union and its Two
Governments Structure.
I have argued that:

Case for Union and its Two Government Structure rests on

the foundation of the CCM policy on the issue.

(Refer

section 47 of the 1995 CCM Election Manifesto and section

116 and 117 of the 2000 Manifesto)

CCM is for the Union because of:

(a)

Sentimental reasons emanating from the fact that the

Union was created by its pre-cursers ASP and
TANU

(b)

CCM itself was born out of labour (uchungu wa

uzazi) of strengthening the Union.

(c)

Belief that it is a Union of the people, by the people

and for the people themselves.

(d)

Enjoys popular support

CCM advocates Two Governments Structure because:-

(a)

It is the structure that was consciously and carefully

opted for by the Founding Fathers out of a myriad of
other options (including the 3 Governments Structure
that is advocated by some critics of the Union).

(b)

Most adequately accommodates fears and concerns of

the smaller partner, Zanzibar to retain its identity but
without compromising the strength of the bonds of the
Union.

(c)

Has proved to enjoy popular support.

CCM is proud of the Union because:-

(a)

It has stood the test of time. It lives on after 40 years,

weathering strong storms on the way.

(b)

To date, it remains the only shining example of the

possibility of realizing the dream of a United States of
Africa, given the political will. For that, it stands out as
an inspiration for the rest of Africa.

Paper has eight sections:-

First Section: Introduction (outlined)

Second Section: Pillars of the Union: that gives

the basis of its justification and legitimacy. Four identified:

(a)

Union of the people, by the people and for the people.

Gives it social and political justification.

(b)

Inspiration for African Unity: gives it international

political justification.

(c)

Legal status that gives the Union the legal legitimacy.

(d)

Sustainability that gives it internal political justification.

Third Section:

(a)

Causes for The Union: 3 identified:

Restoration of the unity of the people that was briefly

interrupted by colonialism.
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(b)

Implementation of the call for African Unity.

(c)

Protection of Independence and the Revolution.

Fourth Section:

Why Two Government Structure (indicated

earlier and will be elaborated later).

Fifth Section: Storms Weathered By The Union: Centered around:

(a)

Challenges against the Union itself

(b)

Challenges against the Two Government Structures

Sixth Section: Achievements of the Union

Seventh Section: Challenges

Eighth Section: Conclusion

PILLARS OF THE UNION

Union is built on the foundation of the geography and history that have for
centuries brought together the people of these areas through socio-cultural
integration and ultimately common political aspirations.

On this foundation, stand four pillars that hold together and support the
Union

1.

Peoples Unity and Common Interest

Has grown over times: Mainlanders first to inhabit the Islands (evidence from the
Periplus, remembered history and archeological findings).
Times of the Zanj Empire after the Persian Princes (7 Brothers
of El-Hassa) established rules in different spots along the East
African Coast in the 13th Century.
Times of the Zanzibar Commercial Empire (16th 19th Century)
that extended to the mainland hinterland which Prof Abdul
Sheriff refers as the Hinterland of Zanzibar. Slave/ivory/spices
trade brought islanders to the mainland and mainlanders to
Zanzibar

whose

respective

offspring

have

indigenized.

Tradition of cross migration and pollination continues freely to

date.

The colonial interventions Scramble for Africa in 1887

separated people of the Islands and the Mrima Coastal strip
(who remained with the Zanzibar Sultan) and those of the rest
of the Commercial Empire who were awarded to Germans.

After Heligoland (Treaty), Mrima (including Mafia Island) was

sold to Germans, and Sultan (on the Islands of Zanzibar)
brought under British protection. After World War II (1919)
the German dominion (minus Burundi and Rwanda) came
under British trusteeship in the name Tanganyika Territory.

Re-establishment of peoples contacts:

Formation of African Associations (Dar es Salaam,

Zanzibar, Dodoma) and holding joint annual meetings

Sports exchanges

Common struggle of TANU and ASP for independence

The Union as a logical outcome: Union was thus a logical outcome of

the peoples resolve after Independence and the Zanzibar Revolution.
Thabit Kombos testimony that it was ASP policy during struggle for
independence. Founding Fathers have always emphasized that people
themselves were the driving force behind the Union.

Hence its

justification.
Consolidation of the Union. Merger of TANU and ASP to form CCM
as a measure to strengthen the Union. Merger came after TANU and
ASP members poll through which they gave their no objection
verdict.
Results:
-

99.95% of TANU Branches voted Yes

100% of Zanzibar Branches voted Yes.

Formation of CCM was greeted with emotional joy of people,

testimony to their support of the Union.
This is a measure of the strength of this pillar of the Union that is, a
peoples Union, from their unity and common interest.

It is also significant to note that it was after this exercise that the
permanent Union Constitution was written to replace the Interim
Constitution.

2.

Dream of a United Africa

Both TANU and ASPs manifestos advocated African Unity. Both
were members of PAFMECA and PAFMECSA and were active in
Pan-Africanism activities. Union was a practical demonstration of
their resolve towards that end.

3.

Legal Pillar

It was at times claimed that the legal process in the formation of

the Union was incomplete in that the Articles of Union were not
ratified by the people of Zanzibar. The Nyalali Commission was
instrumental in clearing out this shadow of doubt after satisfying itself
that the Articles were in fact ratified by the Zanzibar Revolutionary
Council on behalf of the people of Zanzibar in its capacity as the
Legislature of the time. Thus Union has a legal legitimacy.
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4.

Sustainability
40 years of the Unions existence coupled with its ever growing
strength and entrenchment into the hearts and minds of the people is
its fourth pillar that strengthens with time.

CASE FOR THE UNION

All the above cited pillars of the Union form the basis of its legitimacy. Add
to them the need to protect the Independence of Tanganyika and the
Zanzibar Revolution. It is an open secret that the Revolution attracted
enemies who were inclined to bring back and reinstate the overthrown
Sultan. But if enemies of Zanzibar succeeded in destabilizing Zanzibar,
Tanganyika would not have been safe either. Hence the need for the quick
action that was in finalizing the Union.

The legitimacy of the Union having been established, debate has since the
1990s shifted to the structure of the Union.

REASONS FOR TWO GOVERNMENT STRUCTURE:

Founding Fathers consciously and deliberately wanted Union and not
federation or full merger.
But Union that retains identity of Zanzibar to alley fears of being
swallowed.
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 Fear that Union would have been at the mercy of Tanganyika

Government if a federation would have been opted for.
Minimizing the cost burden of running three governments

CHALLENGES FACED BY THE UNION

Union has been subjected to tests that at times threatened its survival.
Challenging the Unions Legitimacy Itself

Hot nation-wide constitutional debates during Polluted

Political Atmosphere period (1983 84) in Zanzibar.

Calls for referendum.

Has been resolved as earlier explained

Challenging the Structure:

During Polluted Political Atmosphere period in Zanzibar

during nation-wide constitutional debate (1983-1984)

(a)

Seif Sharif Hamad clique within CCM government

exposing Jumbes underground attempt to solicit
Three Government Federation.

(b)

Jumbes resignation (1984)

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(c)

Same clique engaging in underground activities to

disrupt

1985

Zanzibar

General

Elections.

Campaigned underground against Idris AbdulWakil.

(d)

Same clique expelled from CCM 1989 as traitors.

(e)

Same group again went all out in an underground

campaign to solicit voters to boycott the 1990
Zanzibar elections until referendum is held on the
Union. (NB: In 1984 they pretended to be ardent
defenders of the Union.

In 1990 they were

questioning it)

(f)

In 1992, they were the core of the CUF that first

advocated for the break up of the Union (in 1995
Manifest promised to restore the free Zanzibar that
was before the Revolution). Later shifted policy to
advocacy of Three Government Structure.

NB:

But CUF was formed under strong influence of

former ZNP leaders.

ZNP was totally against

Union; hence belief in CCM that even CUF is

against Union. The Three Government Policy is
only a strategy towards that end.

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Now the Challenges:1. Polluted Political Atmosphere Period (1983 1984): The
Political turmoil ended with the amendment of the 1977
Constitution with more issues listed on the list of Union
matters.

Zanzibar Constitution was re-written and further

consolidated democracy in Zanzibar.

2. 1990 Elections:

Voters widely ignored campaign for a

referendum and voted for Dr. Salmin and CCM whose

campaigns countered the call for referendum. Hence peoples
endorsement of Union.
3. Nyalali Commission (1991 1992):

Recommended Three

Governments Structure but against a popular will.

Only

0.13% of those who participated in the debate wanted the

Structure. CCM and Government rejected the recommendation.

4. Rise of the G 55 and Parliamentary Resolution on

Tanganyika Government Within Union (1993):

Before that

time, voices against the Union and its structure were mostly
heard only in Zanzibar. But after Zanzibar joined the OIC and
showed reluctance in accepting the Bomani Committees
running mate recommendation for the Union Vice President,
the debate heated up also on the Mainland.

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- That probably contributed to discontent on the Mainland that

created the G55.

But as is well known, after CCM Parliamentarians passed

the Resolution for

Tanganyika Government within the

Union (effectively a Three Government Structure), CCM

decided to satisfy itself if that

was the will of CCM

members. CCM conducted a members poll throughout the

country.

Results:-

62% confirmed CCMs Two Government Structure Policy.

Only 8% wanted Three Governments.

Thus Two Government Structure passed the test and from

then, has been expressly included in CCM Election
Manifestos.

5.

1995 Elections:

CCM was voted into office on among others a Two Government

Structure platform despite heavy and concerted campaigns for Three
Government Structure by the opposition.

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6.

Kisanga Commission (1999)

Also sought peoples opinion about the Structure of the Union.

Results:89% for Two Government Structure

4% only for Three Structure

ACHIEVEMENTS:
-

Sustainability

Stability

Stabilizing factor for Zanzibar

Helped restore democracy in Zanzibar

Living inspiration for AfricaN unity.

PROBLEMS:
Many but dont overweigh achievements and are being addressed.

Agreement after Shellukindo Commission is now the guideline

towards working out solutions

Presented at REDET Organized Panel Discussion on

The Status of The Union of Tanzania.
20th May, 2005

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