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Portuguese Timor: an Indonesian Dilemma Donald E University of South Carolina Scholar Commons Faculty Publications Political Science, Department of 12-1966 Portuguese Timor: An Indonesian Dilemma Donald E. Weatherbee University of South Carolina - Columbia, [email protected] Follow this and additional works at: https://scholarcommons.sc.edu/poli_facpub Part of the Political Science Commons Publication Info Published in Asian Survey, Volume 6, Issue 2, 1966, pages 683-695. http://www.ucpressjournals.com/journal.asp?j=as © 1966 by University of California Press This Article is brought to you by the Political Science, Department of at Scholar Commons. It has been accepted for inclusion in Faculty Publications by an authorized administrator of Scholar Commons. For more information, please contact [email protected]. PORTUGUESETIMOR: AN INDONESIANDILEMMA DONALD E. WEATHERBEE Out of theclamor and heat of Sukarno'sIndonesia's confronta- tionwith the "Old EstablishedForces" emergedan imageof a revolution- ary Indonesian foreignpolicy determinedlyrevisionist and implacably opposedto the maintenanceor extensionof Westernpower and influence in the Afro-Asiansphere. Sukarno's Indonesian Revolution was "actively opposedto, and hittinghard at, all formsof imperialismand colonialism whereverthey occur."' Indonesiadid not refrainfrom acts calculatedto upsetthe statusquo in SoutheastAsia, and indeedjustified them in terms of its anti-imperialistideology. Yet, at the same time that Indonesiawas claimingits place in the vanguardof the "New EmergingForces," it acceptedthe tangiblepresence of traditionalimperialism on its own door- step. Indonesia, the most aggressivelyanti-imperialist political unit in South Asia, is contiguouswith, surrounds, and peacefullycoexists with one of the two anachronisticvestiges of PortugueseAsian empire-Portu- gueseTimor (the other fragment being, of course,Macao). D. G. E. Hall, surveyingthe impermanenceof Portuguesedominance in Asia, wrote"Yet whenall has been said regardingthe moribundstate of thePortuguese empire at theend of thesixteenth century, the factremains that,like CharlesII, it took an unconscionabletime in dying."2 That it is in factnot dead withinthe territorialarea occupiedby Indonesiais a piquant anomolygiven the ideologicalbias of Indonesianforeign policy. An examinationof PortugueseTimor as a problemfor Indonesian foreign policy withinthe contextof the proclaimedpolicy goals providessome insightsinto the determinants of Indonesia'srevolutionary approach to the world,particularly the relationship between ideology and interest,as wellas illuminatesthe possible futureof Portugueseimperialism in the archi- pelago. PortugueseTimor Timoris theeasternmost of the stringof islandsarching eastwards from Java to the Banda Sea whichare knowncollectively as the Lesser Sundas (Indonesian:Nusa Tenggara). The entireisland is about 300 mileslong withan averagewidth of 60 miles.Portuguese Timor consists of the east- ern half of the island (approximately5,700 square miles), the coastal enclave of Occussi-Ambenuin westernTimor, and the two islands of Atauroand Jaco,for a totalarea of 7,383square miles (New Jersey-7,836 square miles). The capital and only urban centeris Dili (Dilli, Dilly) 1 Sukarno,Political Manifesto, Independence Day Address,Aug. 17, 1959. 2D. G. E. Hall, A Short History of South-East Asia (London: Macmillan, 1955), p. 206. 683 684 PORTUGUESE TIMOR located on the northcoast. The entireprovince is oftenreferred to as Timor-Dili. The populationof PortugueseTimor was recordedin the 1960 censusas 517,079,distributed unevenly, with an average densityof 23 per square kilometer.Dili has a populationof about 7,000.Although the 1960 census did not indicatethe racial compositionof the population,such data was includedin the 1950 census,and thereis no reasonto believethat the gen- eral proportionshave greatlychanged. The 1950 figuresare given in Table I. It shouldbe notedthat Timor has the lowestpercentage of Euro- pean inhabitantsof all of the OverseasProvinces of Portugal. TABLE I Compositionof PortugueseTimor's Population in 19503 European 568 Mestico (mixed blood) 2,022 Chinese 3,122 Other non-indigenous(Goan, etc.) 212 indigenous-civilizado 1,541 indigenous-ndo-civilizado 434,907 Total 442,378 The distinctionbetween civilizado and ndo-civilizadoin Portuguese "colonial"practice has been important.The termcivilizado denotes those individualswho may be countedas being culturallymodern as opposed to traditional.Theoretically, the goal of Portuguesepolicy is to assimilate theindigenous people to thePortuguese way of life.This is euphemistically called achievingdesired levels of economicand social progress.Of the 1950 populationonly 7,471 (1 .8<,) of the total-i.e., all but the ndo-civilizado categoryin Table I-were classifiedas civilizado.Thus, less than 4/10ths of one percentof the indigenouspopulation have been assimilatedafter morethan three centuries of ruleby Portugal.Of thetotal population more than98%- are consideredto be outsideof thelimits of westerncivilization. It was not untilthe firstyears of the 18thcentury that the Portuguese establisheda permanentadministration on Timor.4Portuguese interest in the island,however, dates back to the sixteenthcentury. Timor's sandal- wood was an importanttrade item and the Portuguesesent annual col- lectionmissions to the island. The Dominicanfriars also had established themselvesin the easternLesser Sundas by the middleof the sixteenth 3 These figuresare givenin United Nations Document A/AC.109/L.67,July 10, 1963, para. 51. 4 The materialon PortugueseTimor is drawn principallyfrom the followingsources: Timor-BackgroundPaper Prepared by the Secretariat,United Nations doc. A/AC.108/ L.13, Dec. 3, 1962; William Burton Sowash, "Colonial Rivalries in Timor," The Far Eastern Quarterly,VII:3 (May, 1948), pp. 227-235; C. R. Boxer, "PortugueseTimor- A Rough Island Story: 1515-1960," History Today, X:5 (May, 1960), pp. 349-355. Since the preparation of this manuscriptwas completed, an American Universities Field Staffreport has describedthe Portugueseefforts to modernizeTimor. See Willard A. Hanna, "Reanimated Timor," AUFS, Southeast Asia Series, Vol. XIV, Nos. 7, 8 and 9. DONALD E. WEATHERBEE 685 century.In 1962the Dutch East India Companyentered the area and began to displacethe Portuguese. Competition between the Dutch and the Portu- guesein Timorwas regulatedby a treatyof 1661 thatgave the Dutch the westernpart of the islandand the Portuguesethe eastern.Constant inter- necinewarfare marked the historyof the island. The Dutch mounteda numberof pacificationcampaigns, and by the middleof the eighteenth century,had firmlysecured themselvesin the west. The Portuguese, althoughpressed not only by theindigenous wars but by theDutch as well, did not stronglygarrison the island. Their position was tenuous,resting on theability to playone indigenous group off against another. During the NapoleonicWars the Britishoccupied Dutch Timor. The Dutch reoccupationafter the war opened a new periodin the historyof the joint occupanyof the island. Althoughboth countriesrecognized one another'srights, there was a constantirritant over undefinedboundaries. The Dutch wouldhave liked to purchasePortuguese Timor but Portugal was only willingto negotiateboundaries. The long historyof boundary discussionscentered on the questionof the enclavesheld by both powers withinthe other'sterritory. A mixed commissionworking in 1898-99 settledmost of the outstandingissues, and a conventionembodying the borderagreement was signedat the Hague in 1904. However,a further difficultyarose concerningthe easternboundary of the Occussi-Ambenu enclave.This questionwas referredto thePermanent Court of Arbitration, and in 1914 a decisionwas handeddown. From that pointon, the boun- dariesof Timor have not been called into question. The jointinterest of the twopowers in Timor,to the exclusionof third parties,received treaty status in a conventionsigned in Lisbon in 1893 in whichinter alia Portugaland theNetherlands promised preference to each otherin the eventof the disposal of theirrights in Timor. In the 1904 Hague conventionthe signatoriesagreed not to cede theirrights in Timor to anythird party. PortugueseTimor was firstadministered from Goa and latercame under the jurisdictionof Macao. In 1896, Timorwas separatedfrom Macao and became a separateadministrative unit. It was not until after the final militarypacification campaign in 1913 that civil governmentwas intro- duced. Withpacification came the introductionof commercialagriculture, particularlycoffee, making use of forcedlabor. The Europeanpopulation of PortugueseTimor has alwaysbeen small.For a timethe territory served as a penal colony.After 1930 an effortwas made to attractPortuguese set- tlersto the island forplantation development, but withoutmuch success. AlthoughPortugal was a neutralin WorldWar II, Timordid not escape the ravagesof the war in the Pacific.It was occupiedin turnby allied, Japaneseand again allied forces,and the modesteconomic progress in the colonywas set back. The Portuguesewere able to reasserttheir sovereignty afterthe war without difficulty. 686 PORTUGUESE TIMOR By Portugueselaw Timoris an integralpart of the PortugueseRepublic withthe administrative status of an OverseasProvince. Until 1951 Timor, as well as the otherdependencies of Portugal,was a colony.In that year theconstitutional framework of the Portuguese empire was changedto incor- poratethe extra-European territories into the state. Nevertheless, according to UnitedNations sources,"The relationshipof
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