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Australian Federal Police - Platypus Journal/Magazine |
Rot I go long peace - The road to peace
An island in the Solomon Sea conjures up images of a tropical paradise for most people, but the reality is quite different in Bougainville which has been racked by internal conflict for the past nine years.
The AFP contributed to the Truce Monitoring Group on the island of Bougainville in November last year, and has continued to be involved since it was replaced by the Peace Monitoring Group in April this year, deploying two police monitors on an eight-week rotational basis. Other monitors include personnel from Australia's Defence Forces, the Department of Foreign Affairs and Trade, Ausaid, and military members from other contributing countries.
who was a member of the third rotation and who served also in Cyprus recently, writes that the AFP can be proud of its assistance on the island where the peace process is as complex as the terrain is rugged.
The first thing which hit me about Bougainville was the extreme humidity. While the temperatures average only 23-30C, the relative humidity can be more than 90 per cent. Soon after our arrival by C130 at Kieta airfield, one member of our group collapsed from the effects of the dramatic change in climate, and required hospitalisation for the next three days.
The truck ride from Kieta to the port of Loloho revealed the raw beauty of Bougainville. Steep mountain ranges form a ridged backbone running the length of the main island. This mountain range is dotted with volcanos, some of which remain active, and which are slashed by deep ravines and rocky waterfalls. Lush jungle is the dominant vegetation, and it is pockmarked by alluvial plains and plantations. The profuse rainforests constantly challenge the passage of the secondary roads and tracks and while travelling on these passageways the nostrils are treated to the scents of the jungle bouquet.
While the Peace Monitoring Group headquarters are located in Arawa, Loloho is the most noticeable point from which to view the PMG presence. Incoming and outgoing personnel and supplies are transported from here to the various teamsites located on the main island and on the island of Buka. Loloho is a tent city thriving with activity and gives a good indication of the vast support infrastructure required to establish and maintain the teamsites. A constant noise at Loloho is the drone of the bright orange Iroquois helicopters as they ferry personnel and equipment to and from the teamsites. The other mode of resupply is via the LCM8 landing craft which also scour the island from Loloho, delivering bulk supplies to the teamsites.
A medical team operating out of the tent city provides a vital service for treatment of injuries sustained by PMG members. Emergency medical support has been provided also on occasions to the local population. Numerous surgical procedures including caesarean births, traumatic amputations and skin grafts have been carried out successfully within the facilities.
Loloho provides the last semblance of ‘civilisation' before deployment to the teamsites. Helicopters shuttle the ‘peace monitors' to sites located at Buka, Buin, Tonu and Wakunai, while those attached to the Arawa teamsite are only a 15-minute drive from Loloho. The helicopter journey to the teamsites provides a breathtaking view of spectacular scenery, assisting to relegate to the back of the mind the knowledge that, on occasions, the PMG helicopters have been shot at.
Each of the teamsites is unique in terms of the challenges faced by its members.
The Buin and Tonu teamsites, for example, are located in extremely rugged terrain requiring hard footslogging to reach remote villages, while the primary overt threats to the safety of PMG members have been made in the Arawa area of operations, where PMG members are required to travel in groups.
The number of personnel attached to each of the teamsites varies according to the area of responsibility, but generally consists of 15–20 members, representing each of the contributing nations of New Zealand, Fiji, Vanuatu and Australia. While the majority of the PMG members are drawn from the military of the contributing nations, civilian monitors are also attached to each team site. Australian civilians are drawn from the Department of Foreign Affairs and Trade, the Department of Defence, Ausaid and the AFP. A key challenge for many of the civilian monitors is to successfully integrate with the military mindset while ensuring the essential civilian role and identity are not subsumed. Another challenge involves interpretation and acceptance of cultural differences impacting on ‘the way things are done' by personnel from each of the contributing nations.
The AFP's commitment to the interests of peace in Bougainville is demonstrated through its deployment of members as part of the initial Truce Monitoring Group (TMG) in December 1997 and through its continued rotation of staff to that group and its successor, the PMG.
Since the initial commitment, the role performed by our members in Bougainville has evolved to the extent that the PMG Commander, Brigadier Osborne, recently made special mention of the importance of the AFP's continued support. The role performed in Bougainville is vastly different to that of other peacekeeping efforts in which the AFP has been involved, and provides great insight into a people from whom we can learn a great deal.
Put simply, the mission of the PMG is to communicate with the people of Bougainville. The PMG does not own the Bougainville peace process, nor does Australia, New Zealand, Fiji or Vanuatu. The process is owned by the people of Bougainville and history has shown that a lasting peace cannot be imposed from outside, but must be seeded and nurtured from within. Communication with the Bougainvillean people involves instilling confidence in them to be able to work together to move forward.
The signing of the Burnham Declaration on July 18, 1997 set the framework whereby a meaningful process of negotiations between the Government of Papua New Guinea and the leaders of the Bougainville factions could take place. The Declaration recognised that the nine years of internal conflict had divided the Bougainvillean people and that the presence of a neutral peacekeeping force was essential to the peace process.
Representatives of the National Government of Papua New Guinea (PNG), the Bougainville Transitional Government (BTG), The Resistance, the Bougainville Interim Government (BIG) and the Bougainville Revolutionary Army (BRA) resolved, through signing the ‘Burnham Truce' on October 10, 1997, to invite a neutral regional group to monitor an agreed truce in Bougainville.
The terms of the truce involved an undertaking by all parties to:
• Respect and promote basic human rights and fundamental freedoms;
• Refrain from all acts of intimidation and armed confrontation.
• Promote peace and reconciliation in the community.
• Lift all restrictions, so as to restore freedom of movement and delivery of services to the people of Bougainville.
• Ensure regular meetings are held between the PNG security forces, the Resistance and BRA, and village chiefs, to monitor the commitment and resolve any incidents which threatened the peace process.
The confidence-building measures set by the Burnham Declaration and Burnham Truce were further built upon through the Cairns Commitment (November 1997) and the Lincoln Agreement (January 1998). Another significant step towards a lasting peace was made on April 30 this year, with the signing of a permanent ceasefire agreement by representatives of all parties involved in the crisis. The signing of the ceasefire was witnessed first hand by UN delegates and official representatives of a number of Pacific nations took part in the ceremonies which were beamed to a world-wide audience.
Following the signing of the ceasefire agreement, the TMG was renamed the PMG, however the essential role remains the same with key tasks being to:
• Observe and monitor the peace process.
• Investigate breaches of the ceasefire agreement.
• Liaise between all groups and organisations.
• Facilitate the peace process.
• Discourage potential breaches.
• Report any breaches of the ceasefire agreement.
Achieving the tasks set has required the PMG to be flexible and imaginative. Practical steps have involved the peace monitoring teams actively ‘selling' the peace process by travelling to the coastal and highland villages of Bougainville and speaking with the local villagers. Normally, initial contact is made with a village chief or elder and permission requested for team members to come at a suitable time and date and speak to the villagers. Great care is required in order that the standing of the village chiefs and elders is respected and those who tend towards impatience would find the ritual of arranging a meeting to be rather frustrating. There is a skill to putting aside western concepts of time pressure and directness of communication, and learning to engage in the mandatory pleasantries of ‘giving' and ‘small talk' which will open the doorway to more meaningful negotiation.
The village meetings are often held in the village schools or churches, or at a designated meeting point which may be a thatched-roof shelter with seating in the form of logs or rocks. Many of the villages are isolated in remote and arduous terrain and transport to a village may be via any combination of vehicle, foot, helicopter, or boat. In travelling via road, extreme care must be taken not to run over a chicken or pig belonging to a villager, as such creatures give clear indication of wealth and standing and such an accident may necessitate hefty financial compensation not only for the loss of the individual animal but for loss of potential offspring.
Attendance at meetings can vary from 20–500 people depending on the village population and the dedication of the village elders in ensuring attendance. Usually the men of the village will attend meetings in company with their ‘meris' and ‘piccaninnies', however, it is often advantageous from a PMG perspective for a female team member to speak separately with the village womenfolk. It is vitally important for the views of local women to be canvassed since the Bougainvillean society is matrilineal, with women being the principal owners and inheritors of land and often holding particular influence and power.
In most cases villagers will understand plain English or Melanesian Pidgin (Tok Pisin), however, the village language pattern will occasionally necessitate using an interpreter. A common error can involve interpreting a lack of command of eloquently spoken English as a lack of education or intelligence. In fact, the Bougainvillean people, particularly those whose formal education was completed before the crisis, often hold tertiary qualifications beyond those of the peace monitors.
Before the meeting itself, peace monitors engage in small talk with the villagers, identifying and introducing themselves to village chiefs and elders as well as to the families who live in and around the village. In some cases, an almost carnival type atmosphere prevails, with local children singing and dancing and villagers providing cultural demonstrations for our benefit. Fresh coconuts are quickly handed to thirsty monitors, and any cigarettes or lollies we have to share are gratefully received. The arrival of white-skinned people to the more remote villages, populated by people who proudly claim to be the darkest-skinned race on the planet, is a sight to behold for some of the younger children. On more than one occasion peace monitors have shared a laugh with the parents of children who question our white ‘paint'.
While in general Bougainvilleans tend to present as somewhat shy and reserved, once initial barriers are broken, their genuine good nature and delightful sense of humour quickly becomes apparent. Often, attendance at village meetings leads to invitations to share a meal or a favourite fishing spot, attend a village celebration such as a wedding, or to attend a church service.
As well as conducting meetings, the village visits provide an opportunity for monitors to gain an insight into the status of the village regarding general health, schooling, proximity to fresh water, road access, medical facilities and other information which may later assist aid agencies in coordinating aid requirements.
Generally, peace monitors will explain latest developments in the peace process, quell any damaging rumours which may be circulating, signal important forthcoming meetings or events and address questions raised by the villagers.
Recent concerns raised by villagers have included aspects such as:
• A desire to know how the Bougainville Reconciliation Government will be formed. The parties have agreed to the establishment of this government by December this year and villagers want to know how members will be elected or appointed.
• A request for a timetable on the withdrawal of the PNG Defence Forces (PNGDF) and a guarantee regarding their security when the PNGDF withdraws.
• Advice on the status of the Royal Papua New Guinea Constabulary Auxillary Police scheme — how and when will police be selected, trained and deployed to villages.
• Advice on disarmament of the Resistance and BRA — how will weapons be collected, stored and disposed of; who will guarantee collection?
• Advice on the peace ‘dividends' on such things as roads, aid posts, schools and water tanks, and advice on prioritisation of aid delivery.
• Advice on the commitment of all parties to the peace process - why did Francis Ona - leader of the central Bougainville BRA - not attend the ceasefire signing - why have threats been made by him against PMG personnel.
• Advice on the future of the PMG — will the PMG stay beyond the establishment of the Bougainville Reconciliation Government; will the UN establish a permanent presence in Bougainville; what will happen if the PMG leaves?
The concerns raised at the grass roots level of the villages are the very same concerns which are being grappled with by the leaders of the parties involved in the peace process. There are a plethora of complex issues to be addressed and dilemmas to be resolved before there can be lasting peace in Bougainville. Despite the substantial progress to date, peace on Bougainville remains a fragile and tenuous entity.
The PMG does not possess a blueprint for peace in Bougainville. To date, the task of facilitation of the peace process has been advanced through the manner in which it has been passionately embraced by the vast majority of Bougainvilleans. While knowing their future is uncertain, these people yearn for a restoration of peace and normality which many of us take for granted. To be involved to any extent in assisting progress towards that goal, is an achievement of which we can be proud.
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URL: http://www.austlii.edu.au/au/journals/AUFPPlatypus/1998/28.html