Bougainville: James Marape's biggest issue
14 August 2022
Bougainville’s dire need for foreign aid could render it vulnerable to China’s influence as it struggles to become the world’s newest democracy — and it could also become the target of Beijing’s strategic aims
BRIAN HARDING & CAMILLA POHLE-ANDERSON
| United States Institute of Peace | Edited extracts
WASHINGTON DC - Now that Papua New Guinea prime minister James Marape has been re-elected, the stage is set for him to settle what he has called the biggest issue facing the country.
This is the future political status of Bougainville, an autonomous region seeking independence by 2027.
Even with a nearly unanimous referendum, independence is far from guaranteed. As the two sides negotiate, the risk of stalled negotiations and mismatched expectations is high.
First, to take effect the referendum result must be ratified by the national parliament of PNG.
However, parliament is unlikely to ratify the vote, fearing that Bougainville’s secession could lead to other provinces breaking away — including outlying islands and resource-rich highland regions that are already difficult to govern from the capital.
Marape, who will continue to lead PNG’s side of the consultations, has not committed to independence for Bougainville, instead encouraging economic independence.
“My responsibility is to preserve the union of the country,” he said last year.
Bougainville president Ishmael Toroama, a lifelong champion of independence, leads the other side of the consultations.
Toroama joined the Bougainville Revolutionary Army at 19, became a commander during the civil war and was later an advocate in the disarmament and peace process that led to the 2001 peace agreement.
His election two years ago — in an unusually crowded race of 25 candidates, following on the heels of the decisive referendum — was a clear indication that Bougainvilleans want a leader who will deliver them self-determination.
After winning the presidency, Toroama proposed a timeline of two to three years for Bougainville to achieve independence, but last year, he and Marape agreed to a political settlement no later than 2027.
Toroama’s willingness to compromise is encouraging, but neither he nor the people of Bougainville are willing to delay independence indefinitely.
Meanwhile, there is a concerning disconnect between the two leaders’ understandings of existing agreements.
Toroama has reiterated in recent months that the two governments have established a timeline for Bougainville’s independence no later than 2027 — but Marape believes the 2027 deadline is for a settlement, not necessarily independence.
He has stated multiple times that independence is only one of several possible options and must still be ratified by the Papua New Guinea parliament.
A return to civil war does not seem likely or imminent. But if PNG is uncompromising and Bougainvilleans become increasingly frustrated with the slow pace of consultations, it may raise the risk of instability in Bougainville.
If consultations break down entirely, Bougainville may unilaterally declare independence for a third time.
Toroama’s patience, and the patience of Bougainvilleans, has already been tested.
In late 2021, Toroama said that independence was being impeded by red tape and pleaded with Marape to let Bougainville go, saying that negotiations had gone as far as they could.
Toroama is certainly aware of the roadblocks, but his words and actions indicate strong confidence that Bougainville will achieve independence.
He has already begun the process of drafting a new constitution, and in April he announced his intention to ask PNG’s parliament to ratify the referendum result as soon as next year.
In July, he stated that the recent national election would be the last that Bougainville will participate in.
Whether a compromise is possible remains to be seen — and independence may be years away. But Toroama is most likely already considering how to sustain the statehood of an independent Bougainville.
His government will need to double or triple its current budget — an impossible task without international aid.
Panguna mine, which has been closed since 1989, is regarded as Bougainville’s best economic prospect, but reopening it could take a decade and would be fraught with complications stemming from its history.
Bougainville will also need international recognition — and Beijing and Taipei may ask Bougainville to reciprocate that recognition.
In 2019, China offered to construct airports, highways, bridges and other facilities in Bougainville, and the Chinese private sector showed interest in developing the islands’ natural resources.
In 2020, Taiwan sent Toroama a letter of support after his election, offering training, scholarships, medical assistance and development funds.
Bougainville’s dire need for foreign aid could render it vulnerable to China’s influence as it struggles to become the world’s newest democracy — and Bougainville could also become the target of Beijing’s strategic aims.
To date, Australia, New Zealand, Japan and the United States have been cautious about taking a stance on Bougainville’s political future, which they view as an internal matter for PNG.
However, given the precarious nature of an independent Bougainville and the potential strategic stakes, the four countries should pay close attention to Bougainville in the coming years and think through the implications of various potential outcomes.
As I understand it the PNG Constitution was designed to be based on a Westminster model with Melanesian characteristics, all later defined by Bernard Narakobi.
PNG might work a lot better if its politicians abided by their Constitution.
Posted by: Philip Fitzpatrick | 15 August 2022 at 02:45 PM
Let’s get to the pith of the problem. Intrinsically, the human species is tribally based and to be viable, a tribe can only be a certain size or it outgrows its raison d'etre. The problem then exists as to how the cohesiveness of the extended tribal connections can be promoted and encouraged to allow a shared identity for all who want to belong.
‘Shared Identity’ is the key to being able to encompass ethnicity, culture and control. A shared language is also usually a given.
That’s the first factor that PNG has to face. An estimated 850 different languages doesn’t auger well for tribal unity. Unless Tok Pisin is a possibility.
Secondly, while PNG is a colonial collection of disparate elements, it does have some shared ethnicities that could be promoted to help form larger national groupings. Yet that aspect also raises problems when the historical and geographic boundaries with PNG are not always clearly defined. Attempts at carving the country up into four logical regions, Papua, Islands, Mamose or New Guinea mainland and Highlands then has to cope with who gets what in the shape of resources and benefits deriving from resources. Bougainville was always ethnically part of the Solomons.
But then we look at the exceptions of ethnicity. For example, Manus is reputedly Micronesian within a huge number of what is referred to as Melanesian people or Austronesian. Tolai people came reportedly from the Duke of York’s and pushed the Bainings people out of the Rabaul area. Where do you start and where do you stop?
A short while ago, I referred to the Anglo Saxon King Alfred who 1,000 years was the driving force behind forcing the nation of England from many different tribes, clans and ethnicities. This didn’t happen overnight nor without many years of bloodshed and hard work.
In a somewhat similar way, PNG was a construct of an external force that achieved a certain conformity and uniformity over a relative very short time. That time scale was so short that many people remembered what it may have been like before PNG was crunched together and wanted to return to those dream times without throwing out the benefits of modern life. Surprise! It can’t be done.
So where does that leave the over 50% of PNG young people under 25 who are ready to take over but are not being given any clear directions of where to go, who to emulate and what a better result might be?
Currently, the examples being presented of who to emulate are not very appealing to the many who don’t have any idea of what to do and how to do it?
Posted by: Paul Oates | 15 August 2022 at 02:06 PM
Stephen, separate states was one of several options which was offered to the people of PNG prior to independence.
As the concept of independence approached, we were instructed when on patrol to seek the views of the people on the future constitutional arrangements for TPNG.
The offers we were to make were (1) a unitary single state as PNG is now or (2) divisions of Papua, New Guinea mainland, and New Guinea Islands as three separate states in a Commonwealth like Australia, or (3) the same divisions but as three separate independent states in a confederation like the European Union, to be known as "The United States of Melanesia."
Of course in those days democratic government of a sort was only known to those Papua new Guineans who lived in Local Government Council areas, but for the majority of the population who had only ever known government under the kiap system, democracy was completely unknown, and the concepts of statehood, independence, commonwealth or confederation were completely meaningless.
Therefore, choosing the devil they knew over the other kinds of devils they didn't know, the majority asked for the kiap system to continue.
Of course this was anathema to the Whitlam Government which decided on the current constitutional arrangements which have not worked as intended, for the reasons you have mentioned.
So a system of "united states" either as a commonwealth or as a confederation, might still be a viable option for PNG, and given the turmoil in PNG during this year's elections, probably the sooner it happens the better.
Posted by: Chips Mackellar | 15 August 2022 at 09:35 AM
The desire of Bougainvilleans for independence is not going to dissipate based on some deal concocted by Moresby to give the island autonomous status within PNG.
Surely this message has been delivered in clear and unequivocal terms?
I see a great opportunity for China to both further its own interests and cause a great deal of discomfort for the US and its various Pacific allies.
It could, for example, agree to underwrite an independent Bougainville in return for, say, being able to build 'commercial' infrastructure like ports and airports or, maybe, getting first option rights on the re-opening of Panguna.
Micro-states are desperately vulnerable to such wheeling and dealing and a new born Republic of Bougainville will be no different.
All in all, the next few years should be a very testing time for both Bougainville and PNG more broadly.
PNG as a country is entirely a colonial construct and, as the recent elections have demonstrated, tribalism still trumps democracy in many places and in many ways.
The Wan Tok system has retained much of its traditional potency, as has the tendency to defer to Big Men, especially those bearing gifts.
Thus the PNG Parliament operates like more like a collection of loosely affiliated Mafia Mob Bosses than a genuine democratic institution.
Not that we Australians have much to crow about given how our political parties operate, with Branch stacking, threats, bribery and 'jobs for the boys' all being deployed to win and retain office.
Posted by: Chris Overland | 14 August 2022 at 08:20 PM
The desire of Bougainvilleans for independence is not going to dissipate based on some deal concocted by Moresby to give the island autonomous status within PNG.
Surely this message has been delivered in clear and unequivocal terms?
I see a great opportunity for China to both further its own interests and cause a great deal of discomfort for the US and its various Pacific allies.
It could, for example, agree to underwrite an independent Bougainville in return for, say, being able to build 'commercial' infrastructure like ports and airports or, maybe, getting first option rights on the re-opening of Panguna.
Micro-states are desperately vulnerable to such wheeling and dealing and a new born Republic of Bougainville will be no different.
All in all, the next few years should be a very testing time for both Bougainville and PNG more broadly.
PNG as a country is entirely a colonial construct and, as the recent elections have demonstrated, tribalism still trumps democracy in many places and in many ways.
The Wan Tok system has retained much of its traditional potency, as has the tendency to defer to Big Men, especially those bearing gifts.
Thus the PNG Parliament operates like more like a collection of loosely affiliated Mafia Mob Bosses than a genuine democratic institution.
Not that we Australians have much to crow about given how our political parties operate, with Branch stacking, threats, bribery and 'jobs for the boys' all being deployed to win and retain office.
Posted by: Chris Overland | 14 August 2022 at 08:19 PM
If only…..
If you look at history through a Bougainville lens, independence is both obvious and non-negotiable.
But the same sentiment applies to practically every other island group in the region. Prior to European colonisation every island was an independent entity unto itself.
And today. I would venture very few would opt for their current status if offered a choice to return to their pre-colonial lives and it seems to me that such a return is not entirely in the realm of fantasy.
Rather than the artificially cobbled together post-colonial nation states that bear little or no relationship to traditional genealogical, language or geographic fealty, what about a loose federation of self-governed mini states under an umbrella organisation not unlike the European parliament and the European central bank.
All this under a charter of strict non-alignment with the broader world and a iron clad resolve to control access and preserve their land, waters culture, language and way of life.
For those who seek the brighter lights, the rest of the world is open for them to pursue whatever dreams they may have.
Under current arrangements, what I fear most for the region is the slow and inexorable erosion of culture, the environment and the stripping away of resources we are witnessing now. This was never in the interest of Pacific peoples and it never will be.
The regional failure to provide basic services to burgeoning populations coupled with the gross inequity that is the result of the neo capitalist model is poison for Pacific communities and Pacific nations.
In my view they could all do much worse than take back their traditional independence and exclude much of what is toxic from the outside world in perpetuity.
Posted by: Stephen Charteris | 14 August 2022 at 03:33 PM