Ratification of the union between Zanzibar and Tanganyika has long since been a major issue of debate between people from both sides of the union..especially the Zanzibaris....because most of them think that there was no ratification of the articles of union from their side.
My conclusive take on the matter:
- The principal instrument which forms the legal base for the union is the Articles of Union between the two independent states (i.e Tanganyika and Zanzibar).
- This legal instrument signed by two sovereign states is a treaty under the International law(under the Vienna convention, of which Tanzania is a signatory).
- Article 11 of the Vienna convention provides that:“The consent of a state to be bound by the treaty may be expressed by signature, exchange of instruments constituting a treaty, ratification, acceptance, approval or accession, or by any other means if so agreed.
- There is confirmation (legal) on ratification of the Articles of the union on the side of Tanganyika.
- There are no legal records to confirm ratification of union in Zanzibar.
- Finally, generally, the Articles of Union are presumed to have been ratified on a corresponding statute called the Union of Zanzibar and Tanganyika Law.
My conclusion is just based on reading an academic discussion by Ali.U.Mussa....in his thesis which involved significant discussions/quotes from academicians, politicians and lawyers....both discussing advantages/disadvantages of the union...I hereby put down some of the discussions on the union ratification matter for you to conclude too...
THE ARTICLES OF UNION
The principal instrument which forms the legal base for the union is the Articles of Union between these two independent states. This legal instrument signed by two sovereign states is a treaty under the International law.
1 The Vienna convention (of which Tanzania is a signatory) on law of treaties defines a treaty as an international agreement concluded by two or more states reduced into a written form. Such agreement may be embodied in one or more instruments.
2 Based on this definition; the Articles of union would fall within this definition. It is important that for a valid treaty must exhibit the consent of the parties to it.
Article 11 of the Vienna convention provides:
“The consent of a state to be bound by the treaty may be expressed by signature, exchange of instruments constituting a treaty, ratification, acceptance, approval or accession, or by any other means if so agreed.”3
These Articles form the constitution of the Union or what is commonly known as the Grund Norm. This Grund Norm is the supreme law of the United Republic and no other law, even the Constitutions of the United Republic of Tanzania or that of Zanzibar can be above it. It is on these grounds that one ventures to say that the Articles of Union are supreme, and no other body, even the Parliament can go outside its limits. In this respect, the Articles may be amended only through a consensus of the two contracting sovereign parties, and no other body may do so, not even the Parliament of United Republic.
It is true that the Articles were agreed and signed on 22 April 1964 by Presidents Nyerere of Tanganyika and Karume of Zanzibar on behalf of their respective countries. The Article provides that the Republic of Tanganyika and the People’s Republic of Zanzibar shall be united in one sovereign Republic (Tanzania).
4
It was also agreed that during the interim period, that is the period from the commencement of the union until the union constituent assembly adopts a Union Constitution, (Artil ll) the union shall be governed by the Constitution of Tanganyika (art lll) as the interim Constitution. The interim Constitution, which was to be modified to provide a separate executive and legislative in and for Zanzibar. The executive and legislative programs were to be constituted in accordance with the existing laws of Zanzibar (Art lll(a) ) .The legislature and executive for Zanzibar were vested with exclusive jurisdiction for all non-union matters.
Further, the interim constitution had also to provide for the representation of Zanzibar in the Union parliament (art iii (c) ) and establishment of the office of two vice- presidents, one of whom would be the Principal Assistance of the President in Tanganyika and the other would be the head of executive in and for Zanzibar and the Principal Assistant of the President of the United Republic in discharge of his executive function in relation to Zanzibar . (Art lll(b) )
The Articles were flexible to allow modification for other matters desirable to give effect to the United Republic or the treaty. (Art lll (d) ).
RATIFICATION OF ARTICLES OF UNION
Under the common law, state’s treaty obligation, the state parties are not bound by it unless it is incorporated into municipal law by an Act of Parliament. The Articles of Union specifically required ratification before they became binding on the parties.
The Articles of the union provided for a ratification procedure before they became valid and operational.
Article VIII of the Articles of Union provides:
“These Articles shall be subject to the enactment of laws by the Parliament of Tanganyika and by the Revolutionary Council of the Peoples Republic of Zanzibar in conjunction with the cabinet of ministers thereof, ratifying the same and providing for the Government of United Republic and of Zanzibar in accordance therewith.”
The above provision implies that there should have been an enactment by the Parliament of Tanganyika to ratify the Articles and on the same spirit the Revolutionary Government should also have enacted a Decree to ratify the Articles. The requirement of this provision was not adhered to the Revolutionary Government of Zanzibar.
However, it is argued by Prof. Shivji that the Articles of Union could be presumed to have been ratified since a corresponding law was passed by the Revolutionary Council of Zanzibar and translated into Municipal law. Hon. Abubakar, the leader of opposition in The House of Representatives of Zanzibar and the former Attorney General of Zanzibar, disagreed with Prof. Shivji on the on ground that the law was not passed by the Revolutionary Council which was at that time a legislature cum a cabinet.
In respect to non-existence of the law passed by the Revolutionary Council, Hon. Abubakar had this to say:
“I myself have been the Zanzibar Attorney General and Minster responsible for justice between 1984 and 1989. At that time I managed to peruse all the statute books of Zanzibar from 1964 and 1979 when the Revolutionary Council was acting as a legislative Assembly cum the Cabinet. No ratification law or any law to that effect is there. I was not myopic, but even if I was, the first Attorney General of Zanzibar after the Revolution had also testified the same that no law ratifying the Articles of union exists on the Statute Books of Zanzibar.”5
Apart from the above assertion, Hon Abubakar is of the view that, due to the doctrine of acquiescence, and that nobody has challenged the validity of the Articles of Union, and further that both governments have been discharging their functions as stipulated under their respective Constitutions, peoples of Tanganyika and Zanzibar are satisfied and have agreed the arrangement without protest. To this effect, we are of the view that Hon Abubakar is not disagreeing with Prof. Shivji on the legality of the Union.
Ali Saleh is of the opinion that:
“…as to make union legal, there must be ratification on it, a thing which never happened on the side of Zanzibar…”6
While there was confirmation on ratification of the Article of the union on the side of Tanganyika as the Tanganyika Parliament passed the union of Tanganyika and Zanzibar Act, 1964 situation in Zanzibar was in doubtful, because there was no record to substantiate its ratification in Zanzibar statutes.
The then Zanzibar Attorney General Mr. Wolfgang Dourado publicly claimed that:
“No law ratifying the Articles of the union of 1964 exists on the statute books of Zanzibar.”
He further added:
“………….. The Principal Legal adviser to the Zanzibar government was not consulted ……… Zanzibar therefore did not have legal or constitutional advice from its Principal Legal adviser.” 7
However, it is of common knowledge that Tanganyika had such legal advice from British expatriates, Attorney general, Mr. Ronald Brown and Chief Parliamentary Draftsman Mr. P.R.N Fifoot. On the part of Zanzibar, President Karume was advised by Professor Dan Wadada, a Ugandan lawyer and not by the Zanzibar Attorney General Mr. Justice Dourado.
Dourado’s claim was supported by Professor Shivji who conducted a research for any legal notice or statute and perused all copies of the Zanzibar Government Gazette, including the supplement of the two calendar years, 1964 and 1965 in order to unearth any evidence of ratification.
He said:
“There is no notice whatsoever as regards the enactment of a law ratifying the Articles of Union.”8
The formation of the Union of Tanzania and its ratification was a secret to many Tanzanians even those at the realm of the leadership. But Bagenda has different opinion on the ratification by Tanganyika Parliament. He says:
“…it is true that Zanzibar never ratified the Articles, but even Tanganyika Parliament was just a TANU’s rubber stamp…….”9
Mr Aboud Jumbe Mwinyi, the former President of Zanzibar and Vice-President of Tanzania, who at the time of the union was the Minister of State of Zanzibar, came to know of the Union four days before the official signing of the Treaty.
He said:
“It was morning of April 22, 1964, when Julius K. Nyerere arrived in Zanzibar. This President of Tanganyika came with copy of the treaty proposals prepared in Tanganyika ……. I was not at the State House Zanzibar at the signing…I was in Pemba (that morning) on official duty, and when I came back, for the first time I was informed and had known about that Union. President Karume, what he told me was, Tanganyika and Zanzibar were united that morning and President Nyerere shall be the President of the Union Government and he shall be the Vice-President and the Union shall be confirmed in Dar-es-Salaam on the April 26 , 1964.” 10
This proved that neither the people were informed no consulted on this major policy issue, which involved their lives and the future of their country. Further, it is submitted that the Union was between President Nyerere and President Karume to achieve their political ends.
The question remains unanswered as to whether the treaty was ratified or not, and if it was, how was it ratified?
FURTHER ARGUMENTS ABOUT PROOF OF RATIFICATION
Other academics have advanced further argument to prove the ratification of the Articles of the Union. Should Zanzibar have argued that such legislation does not exist on its statute books .The Tanganyika Hansard of 1964, which recorded that the Speaker welcomed president Nyerere and President Karume at 5.08 a.m. on April 27, 1964 when the ceremony of exchanging the instrument of ratification took place in Karimjee Building, the seat of the National Assembly is proof of ratification.
Another argument advanced is that of ratification of the Article by
acquiescence.
The normal procedure for enactment of the laws which includes the ratification of the Articles of the union, 1964 was not followed, and that is why the
only evidence of ratification is the legal Notice appearing in the Tanganyika Gazette.
Professor Haroub Othman, on the other hand, argues on a very flimsy preposition that he was told by Abdulrahman Babu and one Khamis Ameir ( babu and khamis were among the members of the first rev council 1964- 1972) that they (revolutionary Council members ) discussed the union in the cabinet and agreed upon the ratification . Prof Haroub further substantiates his argument in that one Ali Juma Shamhuna (Minister of state in chief Minister Office) , an immature young boy at that time also told him of the same while they were at the YASU club . Professor Haroub maintained the argument at a seminar held at Bwawani Hotel on 6
th –7
th April 2002 and further instated that for these reasons the Articles of Union have been ratified.
On this particular point, Abubakary Khamis Bakary (opposing) says that:
“I do not agree with him in Total. We cannot in law substantiate our arguments with hearsay or with what the Revolutionary Council Members had said during their deliberation. As Lord Denning had said (l. Denning – in the Discipline of law pg 10) that one cannot look at what the responsible Minister has said in the Parliament or what Hansard has reported. But we have to and must look at what legislation (Act) is talking about. There has to be a law enacted by the Parliament of Tanganyika separately and by the Revolutionary Council separately to ratify the Articles as required under Article viii of the Articles of the Union.” 11
Ismael Jussa asserted that:
“The ratification instrument purported to have been passed by the Zanzibar Revolutionary Council was only the certified by the then Acting Solicitor General of Tanganyika P.R.N Fit foot that the law for the ratification of the Article of the union was passed by the Revolutionary Council”12
He added that:
One must be refreshed here that all “laws” passed by the Revolutionary Council between 1964 and 1979 ere called “Decrees) and not laws. It is evident that this “law” had been formulated in Tanganyika Official Gazette for the purpose of silencing those who would attempt to show that no ratification was made by the Zanzibar Revolutionary Council, and no more.
There is notion that Karume and Nyerere agreed on the general format of the union and left a lawyer to draft the precise agreement.
However, it is submitted that, in law the article can be presumed to have been ratified and that they are valid articles of treaty within the meaning of Vienna Convention on the law of treaties.
This concludes that the Articles of Union presumed to have been ratified on a corresponding statute called the Union of Zanzibar and Tanganyika Law (herein after referred to as the union law) which was made by the Revolutionary Council in accordance with the provisions of the Articles .The union law is in pari material to the Union Act except for the preamble and section 7 and 8(1). These are known as Acts of the Union of Tanganyika and Zanzibar.
References:
1. Miskry Ibid pg 29
2. Vienna Convention Treaty.
3. Ibid
4. Article I of the Article of Union
5. The Union: in the union of and Zanzibar Constitutions
6. Ali Saleh Ibid
7. The consolidation of Zanzibar Union – A basic Re-Appraisal pg 3-4
8. I.G Shijvi – ibid pg
9. Bagenda Ibid
10. Jumbe Ibid
11. Abubakary Ibid.
12. Ismael Jussa Ibid
Follow Us Here