EU Delegation Expresses Concern Over TPLF's Military Conscription in Tigray Region

The European Union Delegation to Ethiopia has voiced significant concern over reports of military conscription by the Tigray People's Liberation Front (TPLF) in the Tigray region, highlighting a potential breach of the 2022 Pretoria Agreement. This development, which includes allegations of forced recruitment and the conscription of minors, raises serious questions about adherence to both Ethiopian constitutional law and international humanitarian and human rights law. The TPLF's actions, including a proposed regional proclamation for mandatory military service, are seen as undermining the fragile peace process and the federal government's authority, particularly given the TPLF's contested legal status. Legal professionals should note the interplay between domestic constitutional provisions, the Cessation of Hostilities Agreement, and international obligations concerning recruitment and the protection of civilians in post-conflict settings.

The European Union (EU) Delegation to Ethiopia has recently expressed profound concern regarding reports of military conscription being undertaken by the Tigray People's Liberation Front (TPLF) in the Tigray region. This development signals a potential escalation of tensions in northern Ethiopia, threatening to unravel the delicate peace established by the November 2022 Agreement for Lasting Peace through a Permanent Cessation of Hostilities, commonly known as the Pretoria Agreement. The EU's statement underscores the international community's apprehension over actions that could reignite conflict and destabilize the region, urging all parties to uphold their commitments under the peace accord.

These reports are particularly alarming as they include allegations of forced recruitment, even involving children as young as 15, which constitutes a grave violation of both domestic and international law. The TPLF's purported move to unilaterally implement mandatory military service through a regional proclamation challenges the constitutional order of Ethiopia and directly contravenes the spirit and explicit provisions of the Pretoria Agreement. This article will examine the legal implications of these reported actions, analyzing them against the backdrop of Ethiopian constitutional law, the Pretoria Agreement, and relevant international legal frameworks, offering insights for legal practitioners navigating the complex political and security landscape in Ethiopia.

Ethiopian law does not provide for compulsory military service, and the minimum age for recruitment into the armed forces is 18 years. The Federal Democratic Republic of Ethiopia's Constitution defines the powers of the Federal Government and the States, with Articles 51 and 52 outlining these respective mandates. While states are permitted to operate regional police forces, some have developed their own armies outside these constitutional constraints, a practice the federal government has sought to dismantle. Furthermore, Article 36(1) of the Constitution specifically protects children from exploitative practices, including hazardous or harmful work.

The TPLF, once a dominant force in Ethiopian politics, had its legal status as a political party revoked by the National Electoral Board of Ethiopia (NEBE) in May 2025, citing non-compliance with Proclamation No. 1332/2016. The TPLF disputes this decision, contending that the Pretoria Agreement guarantees the reinstatement of its pre-war legal status. The Pretoria Agreement, signed on November 2, 2022, between the Government of the Federal Democratic Republic of Ethiopia and the TPLF, explicitly committed both parties to a permanent cessation of hostilities. Crucially, it condemned the recruitment and conscription of child soldiers and prohibited any party from conscription, training, deployment, mobilization, or preparation for conflict and hostilities. The agreement also stipulated the disarmament, demobilization, and reintegration (DDR) of former combatants and the restoration of constitutional order in Tigray.

Recent reports from Human Rights Watch and the Ethiopian Human Rights Commission (EHRC) indicate that Tigrayan authorities have been engaged in forced conscription of civilians, including children as young as 15, since at least April 2026. This practice directly contravenes Ethiopian law, which sets the minimum age for military recruitment at 18 and does not mandate compulsory service. More critically, these actions violate the Pretoria Agreement's explicit prohibition on conscription and the recruitment of child soldiers. The EHRC has highlighted that most conscripts in Tigray were under 18, a finding that underscores the severity of the human rights violations.

The proposed regional proclamation by the Tigray regional council, which would make military mobilization and recruitment compulsory for all adults in the region, further exacerbates these concerns. Such a proclamation, if enacted by a regional entity whose legal status is contested and whose council was dissolved following the Pretoria Agreement, would lack constitutional grounding and directly challenge the federal government's authority over national defense. The Ethiopian Constitution defines federal and state powers, and the establishment of a parallel, mandatory military service by a regional administration would likely be deemed an overreach of regional powers.

From an international law perspective, forced conscription by non-state armed groups is a violation of international humanitarian law (IHL), akin to involuntary servitude. The recruitment and use of children under the age of 15 in hostilities is explicitly defined as a war crime under international humanitarian law and the Rome Statute of the International Criminal Court. Ethiopia ratified the Optional Protocol to the Convention on the Rights of the Child on the involvement of children in armed conflict in 2014, which prohibits states from conscripting soldiers below 18 and requires them to take all feasible measures to prevent recruitment and use in hostilities. The reported actions by the TPLF, particularly the conscription of minors, therefore constitute grave breaches of Ethiopia's international obligations.

The EU Delegation's expression of concern is consistent with its mandate to promote human rights, democracy, and the rule of law in Ethiopia, as outlined in the Cotonou Agreement and the EU-Ethiopia Strategic Engagement framework. The EU has been a key partner in supporting democratic processes, peacebuilding, and the implementation of the Pretoria Agreement, including DDR efforts. The reported TPLF actions, including the ousting of the Interim Regional Administration, are viewed by the EU as inconsistent with the Pretoria Agreement and a risk to renewed instability.

The reported military conscription efforts by the TPLF in the Tigray region, including the forced recruitment of children, represent a serious challenge to the fragile peace in northern Ethiopia and a clear violation of both domestic and international legal norms. For legal practitioners, this situation highlights the critical importance of upholding constitutional frameworks, adhering to peace agreements, and respecting international humanitarian and human rights law, particularly concerning the protection of children in armed conflict. The TPLF's contested legal status and its unilateral actions further complicate the landscape, creating legal uncertainty and undermining the authority of the federal government.

Practitioners should closely monitor developments regarding the implementation of the Pretoria Agreement, particularly its provisions on disarmament, demobilization, and the cessation of hostilities. The international community, led by entities like the EU Delegation, will likely continue to exert pressure for adherence to these commitments and for accountability for human rights abuses. The ongoing dialogue between the federal government and regional actors, as well as the role of the National Electoral Board of Ethiopia in clarifying the TPLF's political standing, will be crucial in determining the path forward for stability and the rule of law in Ethiopia. Legal professionals involved in human rights, international law, or constitutional matters in Ethiopia must remain vigilant to these evolving dynamics and their potential impact on peace and justice in the region.