Macro Study Minority Rights Development& Economic Development, Democracy and Ethnic Conflict in the Fiji Islands The study discusses a complex situation whereby a Executive summary numerically-dominant indigenous community asserts that it is vulnerable and therefore demands a dominant role in ebates about the protection and advancement of group governance. The reasons for such claims are explored, as is the and minority rights have shaped post-independence indigenous Fijians’ real and perceived sense of exclusion from Dpolitical development in the Fiji Islands. This study the mainstream commercial economy. examines how the debates about minority and majority Indo-Fijians, however, also perceive themselves to be communities or group rights have been affected by the vulnerable – and are arguably more so – because of their development processes, and how they have shaped the diluted political rights, their precarious access to lands leased contours of political development. It traces the origins of from indigenous landowners, the scars of two military coups, economic inequalities and social separateness between and ethnic violence associated with the overthrow of the indigenous Fijians, Indo-Fijians and smaller minority groups, democratically-elected government in 2000. under a colonial construction that emphasized ‘race’ as the Smaller minority groups, such as the Banabans and the basis for organizing politics and the economy. Melanesian community, also face economic exclusion. Their plight is often overshadowed by the overriding focus, both PANOS PICTURES inside and outside Fiji, on the rights and interests of the two larger groups. With dominant and minority communities experiencing deep anxieties, and real and perceived uncertainties, policy-makers need to understand the underlying causes, as well as the prevailing group psychology. This calls for a far clearer understanding of the nature of development processes, and of their social and economic consequences for relations between communities where conflict has often proved intractable. By assessing the provisions of Fiji’s 1997 Constitution in the light of key developments both prior to and since 1997, including the 2000 coup and subsequent political crisis, this study provides some pointers for Fiji’s future. The proper constitutional protection of group rights and interests, and a human and minority rights-based approach to development, can provide options for mitigating some of the adverse impacts of globalization and market-based economic development upon vulnerable groups and communities. Indigenous and Indo-Fijian schoolchildren by Satendra Prasad, Jone Dakuvula and Darryn Snell Citizens Minority Rights Constitutional Forum Group International Preface Introduction inority Rights Group International is very pleased to he negotiation and accommodation of group interests are publish its first Macro Study, on Fiji, under our often defining features of the development of multi-ethnic Mprogramme on Minority Rights & Development. This Tsocieties. The accommodation of competing claims to action-research programme, covering some 19 countries across political, economic and social rights by different ethnic groups – the world, examines how minorities and indigenous peoples are and the tensions they present for constitutionality and democracy excluded in – or indeed by – the development process. – has been one of the great challenges faced by societies This text has been a long time in the making. Our Fijian characterized by pervasive ethnic division and conflict. partner organization, Citizens Constitutional Forum (CCF), of The articulation and accommodation of competing ethnic Suva, began research and consultations over two years ago, group rights have shaped Fiji’s political and constitutional including a country-wide consultation meeting held in parameters. Throughout its colonial and post-independence December 1999, with MRG’s participation, when the concerns period, economic development processes have adversely affected of all Fiji’s ethnic groups were carefully heard. But the project ethnic relations. Groups and communities have experienced social experienced serious setbacks when the May 2000 coup led by and economic vulnerabilities and marginalization, as an intended George Speight – based on a distortion of the concept of or unintended consequence of economic development. The indigenous peoples’ rights as protected by international law – uneven impacts that ethnic groups experience, or perceive that plunged Fiji into political crisis. The following months brought they experience, from developmental processes have inflamed violence and intimidation to the Indo-Fijian community, threats ethnic conflict. against CCF staff for their championing of the principles of For the past two decades, Fiji’s developmental achievements constitutional law and human rights, and a slow movement back have been severely set back by ethnic conflict. The armed towards democracy. It remains to be seen whether a lasting and takeover of Parliament, the subsequent removal of the equitable political settlement will be achieved under the current government in 2000 and the military coups of 1987, not only arrangements. harmed political institutions, but also adversely affected Fiji’s Analysing minority rights and development in the context of developmental prospects. These crises have impacted on ethnic these upheavals, this authoritative study reveals the causes and groups and minority communities in terms of their political status, consequences of inter-ethnic tensions in Fiji. Backed by political inter-ethnic group relations, relations with a range of will, its challenging recommendations would go far towards developmental institutions and, more broadly, it has affected their assuring a just and peaceful future for all communities in Fiji. economic and social wellbeing. These recommendations embody key principles for the social, This study examines some of these impacts and evaluates their economic, cultural and political inclusion of minorities whose consequences for Fiji’s political and economic development. An application is so urgently needed around the world today. improved appreciation of how Fiji’s developmental processes Mark Lattimer impact upon communities may assist political and constitutional Director agencies to manage ethnic group competition and conflict, and reduce political outsiders’ ability to manipulate inequalities between groups as the basis for ethno-nationalistic political mobilization. The management of conflict in Fiji requires a greater coherence between developmental and constitutional interventions. But such a coherence requires an understanding of the links between ethnic group conflict and the developmental Cikobia processes; and an appreciation of how constitutional provisions Vetauua may open possibilities for better protection and advancement of group rights and interests, especially minority rights. The initial research and consultations for this Macro Study y Labasa a Rabi B a it were carried out in 1999 – a time of general optimism in Fiji. The Yaqaga VANUA w a e tr p LEVU t S u a N o Qamea Yalewa Kalou m aims were to examine how social justice and other provisions of o Gro s o Bua Savusavu m a Yadua o Bay Bay S the 1997 Constitution could be used to deal with the various w Taveuni a Bligh Water s Korovou V a a Nanuku Passage Exploring Isles forms of exclusion and marginality that were being experienced by Y tu - L i- a ra Koro u C the Indo-Fijian, indigenous Fijian and smaller communities. h G an n Mago Island r Mamanuka e o l Tuvuca Island u However, there was a rapid turn of events in 2000. These Lautoka Ovalau p Group Nairai ge Cicia Island sa developments included: Malolo Nadi VITI LEVU as P Island Koro Sea ba G Nausori ke The armed takeover of Fiji’s Parliament in May 2000 by the Gau Nayau La Sigatoka SUVA Island Lakeba Island Navua Fijian indigenous ethno-nationalist George Speight and his Beqa ge sa Moala Island supporters, with the hostage-taking of almost the entire as Vatulele P vu da Ka People’s Coalition government, and demands for the Vuaqava Island Totoya Island abrogation of the 1997 Constitution and the setting up of an Kabara Island Kadavu Island Ogea Levu indigenous Fijian government. Matuku Island Fulaga Island G The imposition of emergency rule first by President Ratu Mara and later by the Fiji Military Forces (FMF), and the PACIFIC OCEAN purported abrogation of the 1997 Constitution by the FMF as Vatoa Island they negotiated for the release of the government, which was N held hostage throughout May and June 2000. G The dismissal of President Mara and the appointment of Ono-I-Lau President Ratu Iloilo by the FMF on the advice of the indigenous Fijian Great Council of Chiefs. 0 50 100 miles G President Iloilo’s dismissal of Indo-Fijian Prime Minister Fiji 0 50 100 kilometres Mahendra Chaudry of the People’s Coalition government. 2 MRG MINORITY RIGHTS & DEVELOPMENT - MACRO STUDY G The appointment of an almost exclusively indigenous Fijian inhabitants. The second category was ‘Indian’. Between 1879 and Interim Administration led by Prime Minister Laisenia 1916, over 40,000 indentured labourers were recruited from Qarase, and the subsequent release of the People’s Coalition colonial India (including modern-day Bangladesh and Pakistan). government. Most remained in Fiji at the end of the indenture period in 1920. G A human rights challenge by an individual, Chandrika Prasad, The term ‘European’ was used to refer to all ‘white people’ who