Decade of Disunity

The Organization of African Unity was founded in lofty (altitude 8,000 ft.) Addis Ababa in 1963 in a mood of high post-independence euphoria. Ethiopia's Emperor Haile Selassie described the O.A.U. as "a single African organization through which Africa's single voice may be heard, within which Africa's problems may be studied and resolved."

Last week in Addis Ababa, representatives of O.A.U.'s 41 member states held their tenth anniversary summit meeting. Only 23 of the 41 heads of state appeared--a disappointing turnout in light of earlier predictions that at least 35 would show. The city itself was spruced up as never before: flags snapped from street lamps, portraits of heads of state were posted in public squares, intricate displays of colored lights sparkled nearly everywhere. Unfortunately, the bright welcoming facade presented by Ethiopia's imperial host did little to disguise O.A.U.'s persistent problems, which are remarkably similar to those of other international organizations.

Considering the continent's potentially divisive factors--thousands of tribes to which most Africans owe their first allegiance, lack of a common language or religion, the wild variety of governmental patterns that developed after liberation from colonial status --the mere fact that the O.A.U. has remained in existence for ten years is a tribute to African tenacity. Dedicated to unity, the organization has insisted on consensus. Given the size of its membership, this rule hurts its effectiveness.

As the summit got under way, agreement was easily reached on such nonsensitive issues as the annual denunciation of white racist regimes, the right of all members to extend their claim over territorial waters to twelve miles, and a unified approach to trade talks with the expanded Common Market.

On the really tough issues, however, unanimity rapidly dissolved. Potentially the most divisive was a demand by Libya's Muammar Gaddafi for an all-out condemnation of Israel, and a break in relations by every O.A.U. state. Ethiopia and 26 Black African countries maintain diplomatic ties with Israel; Libya, the O.A.U.'s five other Arab members and seven Black African nations are violently anti-Israeli. Gaddafi has been campaigning recently to have O.A.U. headquarters shifted to Cairo from Addis Ababa, which he maintains "is the capital of Zionism in Africa." The plan was referred to a study committee--a typical maneuver--and this year's protest against Israel's aggression was toughened only slightly. Uganda's General Idi Amin failed to win any quicker resolution of his complaints that Tanzania was encouraging his foe, ex-President Milton Obote to overthrow him.

Barren Area. Ethiopia was also directly involved in a second wrangle involving neighboring Somalia's claim to the border province of Ogaden--a barren, sandy area populated mainly by nomadic Somalis. The area's value has increased considerably since the discovery of natural gas there. There is evidence of oil deposits as well. Eventually, after hearing statements by both sides, the O.A.U. agreed to shunt the issue off to an eight-nation "good-offices" committee, for a report next year.

Thus, as usual, no important issues were resolved. Nigeria's Yakubu Gowon, the conference chairman, summed the situation up in his closing speech: "We have concluded our differences in a matter that baffles advocates of conventional diplomacy." Far from being "concluded," those differences remain perfectly real, papered over though they may be. That seems to be the O.A.U. way: consensus without clout.

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