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Phd Neven UN PK and State Building TL Ba Ne’bé: Where Are You Going? The Changing Nature of United Nations Peacekeeping in Timor Leste Doctoral Dissertation by Neven Knezevic Victoria University of Technology May 2007 Table of Contents Student Declaration ..………………………………………………………………. vi Acknowledgements ………………………………………………………………... vii List of Abbreviations .…….……………………………………………………….. xii List of Tables .……………….…………………………………………………….. xv List of Diagrams .…………………..………………………………………………. xv List of Illustrations .……………………......………………………………………. xv List of Boxes ………………………………….…………………………………… xv List of Maps.……………………………………………………………………….. xv Abstract .……………………………………………..…………………………….. xvi Chapter 1 – Introduction 1.1 Setting of the Study .……………………………………………………….. 1 1.2 State-Building Background ……..……….………………………………… 3 1.3 UN Operational Phases .…………………………………………………… 5 1.4 Research Aims …………………..………………………………………… 8 1.5 Chapter Structure .…………………………………………………………. 11 Chapter 2 – State-Failure and Post-Conflict Political Reconstruction ..………. 14 2.1 Intrastate Conflict and State-Failure of the 1990s ……….……………………. 14 2.1.1 Intrastate Conflict and State-Failure: Relevant to Timor Leste? ……………………………….................................... 26 2.2 Post-Conflict Institutional Peace-building ……………...…............................... 29 2.2.1 Post-Conflict Democratisation and Citizenship-Building ………………………………….………........... 40 2.2.2 The Need for Stability and Security ………………….……………... 42 2.2.3 Deliberative Democracy as Institutional Peace-Building .………………………………………..…………….. 44 2.2.4 Democratic Peace-Building and Citizenship-Building, Can They Be Linked Institutionally? ................................................... 49 Chapter 3 – UNTAET …………………………………………………………….. 53 3.1 State-Building in 30 Months (Dec 1999-May 2002) …………………….......... 53 3.1.1 Overwhelming Scope, Complexity – and Ambiguity ………….......... 53 3.1.2 Acute and Chronic Challenges ……………………………………… 55 3.1.3 UNAMET to UNTAET – “How Can the UN Govern a Country When It Can’t Govern Itself?” ………………………………………. 59 3.1.3.1 Centralise or Decentralise? ....................................... 62 3.1.4 Legal Authority vs. Moral Authority and Political Legitimacy ……... 65 3.1.5 Skewing the Emergence of Legitimate Political Authority? ............... 67 3.2 Peacekeeping or post-Liberation State-Building? ............................................... 70 3.2.1 UNTAET’s Governance Mandates ………………………………….. 70 3.2.2 Governance and Public Administration (GPA) ……………………... 70 3.2.3 State-Building and Capacity-Development, A Confused Mess? …… 71 3.2.4 The Governance and Public Sector Matrix (GPSM) ……………….. 72 3.2.5 ETTA, A Wasteful and Unsustainable Parallel Administration? ....... 76 3.3. Personnel and Recruitment ..………………………………………………….. 88 3.3.1 Recruitment Pressures of a Flawed System? ………………………... 88 3.3.2 Skills and Attitude …………………………………………………… 89 i 3.3.3 “Teach or Do?” – Conflicting Operational Duties .…………….......... 91 3.4 UNTAET’s Security Role .…………………………………………………….. 95 3.5 Summary Discussion ..…………………………………………………………. 98 Chapter 4 – Timorese Agency and State Craft …………………………………… 102 4.1 Social, Political, and Economic Transformations .…………………………….. 103 4.2. Economic Hardship and Civil Unrest .………………………………………... 111 4.2.1 Economic Hardship .…………………………………………………. 111 4.2.2 Civil Unrest .…………………………………………………………. 113 4.3 Interrupted Plans and Growing Political Competition ………………………… 115 4.3.1 CNRT Visions of State-Building, Interrupted Plans ………..……….. 115 4.3.2 CNRT as a Government of National Unity? …………………............ 119 4.4 Internal Divisions Shaping Perceptions Toward UNTAET ...…………………. 126 4.4.1 UN Recruitment of Timorese Diaspora .…………………………….. 126 4.4.2 FRETILIN Reactions ………..….…………………………………… 132 4.5 Power-Sharing, UN Responses to Leadership Dissatisfaction .……………….. 135 4.5.1 National Consultative Council and Social Grievance .……………… 135 4.5.2 Leadership “Negotiations” – A United Strategy? ................................ 137 4.5.3 The National Council (NC), First Transitional Cabinet, and the East Timor Transitional Administration (ETTA).……………..…..… 139 4.5.4 Civil Unrest and Advocacy NGOs .………………………………….. 143 4.6 Summary Discussion .………………………………………………………….. 146 Chapter 5 – UNTAET’s Missing Link: The Community Empowerment and Local Governance Project (CEP) ……….………………………………….... 150 5.1 Battlegrounds for Political Control .…………………………………………… 151 5.2 CEP – The “Missing Link” .…………..……………………………………….. 155 5.2.1 CEP Background .……….…………………………………………… 160 5.2.1.1 World Bank Strategy and Objectives .……………………... 162 5.2.2 East Timorese Leadership Concerns .………………………………... 164 5.2.3 Working through Gusmão/Oxfam/IDSS ..…………………………… 167 5.2.4 Level of East Timorese Participation .……………………………….. 168 5.2.5 Competing Frameworks or Ideological Battlegrounds? ...................... 172 5.3 CEP – An Institutional Mechanism for Political Leverage? .............................. 176 5.4 Local Government Development under UNTAET .…………………………… 177 5.4.1 Local Government Structures .………………………………………. 178 5.4.2 Administrative Weakness and Impact on Development …………….. 180 5.4.3 Traditional Structures .……………………………………………….. 184 5.4.3.1 Contested Political Authority .……………………………... 187 5.4.4 Impact of UNTAET’s Centralised Administration ..………………… 192 5.4.5 “Why don’t they come?” – The Role of Advocacy NGOs .…………. 193 5.4.6 Trading-Off Sound Governance for Political Stability? ……….......... 196 5.4.6.1 Project Management Unit (PMU) .………………………… 200 5.5 Summary Discussion .………………………………………………………….. 203 Chapter 6 – An Illegitimate One-party State? ……………………………………. 207 6.1 Constituent Assembly (CA) Election ...………………………………………... 208 6.1.1 Dissolution of CNRT and Pressure for Democratic Elections .……… 208 6.2 Political Party Outlooks and Campaigning .………………………………….... 208 ii 6.2.1 Revolutionary Front for Independence of Timor Leste/ Frente Revolucionária de Timor Leste Independente (FRETILIN) ..……….. 210 6.2.2 Democratic Party/ Partido Democratico (PD) .………………………. 217 6.2.3 Democratic Social Party/ Partido Social Democrata (PSD) .……….. 220 6.2.4 Social Democratic Association of Timorese/ Associação Social- Democrata Timorense (ASDT) .………….…...……………………... 222 6.2.5 Symbolism: Resistance, State, and Tradition .……………………….. 224 6.3 Election Outcomes …………………………………………………………….. 226 6.3.1 A FRETILIN Constitution? ................................................................. 227 6.3.2 Democracy, Culturally Relevant or a Trigger for Conflict? ............... 234 6.3.3 System of Government .……………………………………………… 240 6.3.4 FRETILIN – Engineering State Control? …........................................ 248 6.4 Cultures within the Second Transitional Government .………........................... 251 6.4.1 Political Patronage vs. Merit-Based Recruitment …..……………….. 253 6.4.2 The Mozambique Clique’s Dictatorial Tendencies …..……………... 256 6.5 Emergence of East Timorese Ownership and Independence .…………............. 257 6.6 Summary Discussion .………………………………………………………….. 260 Chapter 7 – Emerging Pacts: Sober State-Building or Seeds of State-Failure? ... 263 7.1 December 2002 Riots .…………………………………………………………. 264 7.1.1 UNPOL Operational Failures .………………….……………………. 268 7.1.2 Disaffected Local Groups .…………………………………………... 269 7.1.3 Undermining Government Authority .……………………………….. 274 7.2 Cross-Border threats to Internal Stability and Security .………………………. 287 7.2.1 “Hardcore” Militia .………………………………………………….. 290 7.2.2 The Fragile Indonesian Democratisation Process .…………………... 291 7.2.3 Border Control and Smuggling .……………………………………... 294 7.3 Emerging Political Pacts .……………………………………………………… 295 7.3.1 Timorese Elites .……………………………..………………………. 295 7.3.2 Governments of Timor Leste and Indonesia .……………………….. 296 7.4 Institutions of State and Nature of the Political System .…………………….. 298 7.4.1 Polícia Nacional Timor Leste (Timor Leste National Police) PNTL .………...................................... 298 7.4.2 Forças de Defesa de Timor Leste (Timor Leste Defence Force) F-FDTL, .…………………………....... 305 7.4.3 The Rule-of-Law, Courts and Judiciary .…………………………….. 311 7.4.4 Local Authority and Post-2002 Decentralisation ……………………. 323 7.4.5 Open Government and the Politics of Personality ……..………......... 328 7.5 Summary Discussion .………………………………………………………….. 333 Chapter 8 – Conclusion ……………...…………………………………………… 337 8.1 Some Tentative Findings………………………………………………………. 344 8.2 Revisiting Arguments and Final Thoughts .…………………………………… 367 Bibliography ……………………………………………………………………….. 377 Primary Source Materials …………………………………………………………. 444 Tape Recorded Interviews with East Timorese .………………..…………….…… 450 Tape Recorded/Written Interviews with UN Personnel and International Aid Workers .…………………………………………………………………………… 455 iii Confidential Informants .……………………………………………………...…… 459 Appendixes Appendix 1 – Methodological Design ..........................…………………………… 462 iv v Student Declaration I, Neven Knezevic, declare that the Ph.D. thesis Ba Ne’be: Where Are You Going? The Changing Nature of United Nations Peacekeeping in Timor Leste is 90,000 words in length excluding Appendix 1. This thesis contains no materials that have been submitted previously, in whole or in part, for the award of any other academic degree or diploma. Except where otherwise indicated, this thesis is my own original work. No other person’s work has been used without due acknowledgement in the main text of the thesis. Neven Knezevic, _______________________________________________________ May 2007 vi Acknowledgements This study was made possible by the assistance
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