Pitfalls of Papua UNDERSTANDING the CONFLICT and ITS PLACE in AUSTRALIA–INDONESIA RELATIONS

Lowy Institute Paper 13 Pitfalls of Papua UNDERSTANDING THE CONFLICT AND ITS PLACE IN AUSTRALIA–INDONESIA RELATIONS Rodd McGibbon Lowy Institute Paper 13 Pitfalls of Papua UNDERSTANDING THE CONFLICT AND ITS PLACE IN AUSTRALIA–INDONESIA RELATIONS Rodd McGibbon First published for Lowy Institute for International Policy 2006 PO Box 102 Double Bay New South Wales 2028 Australia www.longmedia.com.au info@longmedia.com.au Tel. (+61 2) 9362 8441 Lowy Institute for International Policy © 2006 All rights reserved. Without limiting the rights under copyright reserved above, no part Dr Rodd McGibbon is a Visiting Fellow at the Strategic of this publication may be reproduced, stored in or introduced into a retrieval system, or transmitted in any form or by any means (including but not limited to electronic, and Defence Studies Centre in the Research School of mechanical, photocopying, or recording), without the prior written permission of the Pacific and Asian Studies at the Australian National copyright owner. University. He has recently returned to Australia after working for six years in Indonesia for the United Nations, Cover design by Holy Cow! Design & Advertising USAID and the United States Institute of Peace. He has Printed and bound in Australia Typeset by Longueville Media in Esprit Book 10/13 also worked as a Southeast Asia analyst for the Office of National Assessments. Rodd has published widely National Library of Australia on the Papua conflict and Australia–Indonesia relations Cataloguing-in-Publication data including writing for the International Crisis Group and for the East–West Center in Washington, DC. McGibbon, Rodd. Pitfalls of Papua : understanding the conflict and its place in Australia–Indonesia relations. Bibliography. Includes index. ISBN 9781921004230 (hbk). ISBN 1 921004 23 1 (hbk). 1. International cooperation - Australia. 2. International cooperation - Papua. 3. Papua (Indonesia) - Relations - Australia. 4. Australia - Relations - Papua (Indonesia). 5. Papua (Indonesia) - History - 20th century. I. Title. (Series : Lowy Institute papers ; no. 13). 327.9540994 Executive summary Australia’s granting of temporary protection visas to 42 Papuan asylum seekers in April 2006 sparked diplomatic tensions culminating in the recall of the Indonesian ambassador.1 The diplomatic imbroglio triggered by these events repeated a long history in which the bilateral relationship had been subject to fluctuating fortunes. The crisis also catapulted the Papua issue into the forefront of the Australian political debate and boosted support for the cause of West Papuan self-determination. This study examines the utopian thinking, dangerous demands and misguided analysis that have emerged in recent public debates regarding Papua and sets the recent tensions over Papua in their proper historical setting. A constituency in Australia advocating West Papuan claims to self-determination has joined longtime opponents of the bilateral relationship to challenge Canberra’s policy stance on Papua. These critics have repeatedly accused Australia of an unprincipled foreign policy stance that puts close relations with Jakarta ahead of human rights. But contesting Indonesian sovereignty over Papua in ways promoted by supporters of the West Papuan cause promises to create more problems than it solves. This constituency’s policy prescriptions are giving rise to pressures that make resolving the Papua issue more difficult, not less. Their activities have generated unrealistic expectations among Papuans regarding international support that has complicated the conflict, reinforced suspicions in Jakarta that Australia cannot be trusted to vii PITFALLS OF PAPUA EXECUTIVE SUMMARY maintain its support for Indonesian sovereignty, and severely limited been especially crucial in shaping perceptions that Australia has an the scope for Australia to contribute to any potential settlement. Their interest in supporting the Papuan separatist cause. Indonesia also has flawed understandings derive from three basic errors: an exaggerated concrete economic and political interests in defending its sovereignty sense of Australia’s foreign policy influence; the lack of a serious in the province. appreciation of the forces driving contemporary Indonesian politics; and the promotion of a one-sided account of the Papua conflict that • The volatile security situation in the province is likely to persist takes for granted Papuan ethnic claims. and may deteriorate In seeking a corrective to these flaws, this study injects a strategic perspective into the debate over Papua. It argues that if a serious The risk that Papua will pose a flashpoint in bilateral relations is disruption to the Australia–Indonesia relationship is to be averted, heightened by the prospect of continuing trouble in the province. political leaders on both sides will need to take decisive steps. Unlike the decades-long conflict in Aceh, Jakarta has yet to address the Australian officials must do more to win the foreign policy debate by Papua conflict in a comprehensive way. In the absence of government addressing public misgivings and misconceptions regarding relations action, resentment continues to simmer in Papua and a significant with Indonesia. The key factor, however, will be Jakarta’s ability to segment of the population remains dangerously alienated from the implement reform. Indonesian leaders will need to capitalise on present state. While Indonesia has clamped down on pro-independence opportunities to resolve the conflict. If they can demonstrate their organisations, many Papuans continue to demand independence. An seriousness in addressing Papuan grievances, Indonesian leaders would array of interests defending the status quo has become entrenched, strengthen the Australian Government’s ability to counter domestic particularly in the security and resources sector, militating against pressures over Papua. On the other hand, reports of gross human rights a straight-forward resolution to the conflict. The outlook is for abuses reinforce community concerns in Australia regarding Papua and continuing low-level conflict with the potential for a serious human complicate the efforts to promote the bilateral relationship. rights incident that could spark international uproar and further refugee flows. Given its proximity, Papua New Guinea is a more likely The Risks destination for refugees than Australia, but this too cannot be ruled out. The border between Papua and Papua New Guinea will remain a • Papua is a sensitive issue in Indonesia with widespread potential flashpoint. perceptions that Australia supports Papuan separatism • Populist pressures could result in continuing tensions in the The Papua problem has the potential to disrupt bilateral relations bilateral relationship beyond the usual turbulence experienced in the relationship. It touches a deep chord among Indonesia’s political leaders who have expressed The asylum seeker case has shown how quickly turmoil in Papua can growing anxiety about the potential for foreign promoted separatist trigger tensions, sparking simultaneous nationalist anger in Jakarta and pressures emerging in Papua – more than 20% of Indonesia’s territory popular concerns over human rights in Australia. In both cases, policy- – and presaging a break up of the state. These fears play on post- makers were forced to reflect popular anger in the posture they adopted colonial anxieties about the Indonesian state’s fragile sovereignty, and in the dispute. Continuing troubles in Papua could force leaders on both have been reinforced by the separation of East Timor. The latter has sides down a dangerous path of responding to domestic pressures. viii ix PITFALLS OF PAPUA EXECUTIVE SUMMARY • Foreign pressure will trigger a nationalist backlash reducing the community’s long-standing acceptance of Indonesia’s sovereignty prospect for a long term resolution to the conflict over Papua, the weakness of pro-independence forces in Papua and Indonesia’s resolve and commitment to retain the territory. These The factor more likely than any other to deflate pressures for Indonesian political realities have been reinforced with the further recent decline policy reform over Papua is the perception that Australia is interfering in in Papua’s pro-independence movement and the consolidation of Indonesia’s domestic affairs. Such perceptions allow nationalists to take Indonesia’s rule over Papua. the political initiative and justify a repressive approach in countering foreign elements accused of wanting to see the break up of Indonesia. • Indonesian democracy offers new opportunities Efforts by the West Papua constituency to contest Indonesian sovereignty, including calls for a UN review of Papua’s political status, Indonesia’s fledgling democracy has created potential openings for or the introduction of foreign forces to enforce a peace deal are folly. new initiatives on Papua. The successful negotiation and enactment of They lack realism and make the situation worse. the Law on Governing Aceh indicates the potential for reform, even if Indonesia’s post-Suharto reformasi movement has lost energy in recent The Opportunities years. In Papua, democratic dynamics are being translated into the policy struggles over special autonomy. The critics’ failure to appreciate • A complex long-term challenge that the political system that has developed in post-Suharto Indonesia is more than a façade blinds them to future openings for reform. No quick fix is in prospect. Historical grievances over Papua’s incorporation into the Indonesian

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