Leadership in the Pacific Islands : Tradition and the Future
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tdership in the ific islands: tradition and the future Edited by Don Shuster, Peter Larmour and Karin von Strokirch Leadership in the Pacific islands Leadership in the Pacific islands: tradition and the future Edited by Donald R. Shuster, Peter Larmour and Karin von Strokirch National Centre for Development Studies Research School of Pacific and Asian Studies The Australian National University Canberra (Pacific Policy Paper 30) Micronesian Area Research Center University of Guam Manilao © National Centre for Development Studies 1998 This work is copyright. Apart from those uses which may be permitted under the Copyright Act 1968 as amended, no part may be reproduced by any process without written permission from the publisher. This book is a publication of the National Centre for Development Studies. The contribution of the Australian Agency for International Development (AusAID) towards the publication of this series is gratefully acknowledged. The opinions contained in this book are those of the authors, and not necessarily of the National Centre for Development Studies. ISSN 0817-0444 ISBN 0 7315 2372 5 National Library of Australia Cataloguing-in-Publication entry Leadership in the Pacific islands : tradition and the future. ISBN 0 7315 2372 5. 1 . Political leadership - Pacific Area. 2. Pacific Area - Politics and govern ment. I. Shuster, Donald R. II. Larmour, Peter. III. Strokirch, Karin von. IV. Australian National University. National Centre for Development Studies. V. University of Guam. Micronesian Area Research Center. (Series : Pacific policy papers ; 30). 320.996 Series editor: Maree Tait Editor: Tikka Wilson Pagemaker: Tikka Wilson Design: LujanSheen Design Cover design: Annie Di Nallo Cover photos: Donald R. Shuster Printed in Australia by Paragon Printers Contents Contributors vii Acknowledgment PIPSA xx Abbreviations ix Introduction 1 Donald R. Shuster 1. The bai and the chief in Palau 7 Roman Tmetuchl 2. Palauan women: their involvement in politics 17 Juliana M. Anastacio 3. Political leadership in Palau: the Roman 27 Tmetuchl period Donald R. Shuster 4. William V. Vitarelli: a colonial hero in Micronesia 58 Dirk Anthony Ballendorf 5. Gaston Flosse: a recipe for longevity in Tahitian 65 politics Karin von Strokirch 6. Far Pacific policy under the second Clinton 75 administration: opportunities and obstacles Larry N. Gerston 7. Requiem for a quest: the failure of Guam's leaders 89 to secure fundamental political change Robert F. Rogers 8. 'Kremlinology ' and the Cooks: analysing leadership 1 02 change and continuity from a distance Michael Goldsmith Leadership in the Pacific islands I v 9. Political culture and political process: Fiji, American 115 Samoa and Palau Robert Churney 10. A time for heroes: leadership and political change 126 in the Pacific Tim Bruce Appendix 132 Report on and extracts from the 17th Island Conference on Public Administration: the Guam commonwealth Richard H.J. Wyttenbach-Santos Micronesian Area Research Center, University of Guam 150 National Centre for Development Studies 150 vi I Leadership in the Pacific islands Acknowledgment The Pacific Islands Political Studies Association (PIPSA) held its fifth conference in the Republic of Palau in December 1996 and many of the papers presented there are included in this volume. The Association's host was Mr Roman Tmetuchl who holds the title Ngiraked (high chief of Airai). Chief Tmetuchl invited the conferees to his home on the opening evening. At the close of the conference, he invited participants to tour the traditional Airai bai (chief's meeting house), and to the modern bai for lunch and an impressive speech about the role of the chief and the bai in Palauan culture. Chief Tmetuchl's speech is included in this book. The publication of this volume has been made possible through a subsidy from Chief Tmetuchl. The National Centre for Development Studies at the Australian National University, the Richard F. Taitano Micronesian Area Research Centre of the University of Guam and the Pacific Islands Political Studies Association are especially thankful to Chief Tmetuchl for his generous and timely support. Roman Tmetuchl has been a leader all his life and is probably Palau's most successful businessman, owning the Pacifica Development Group which comprises some fourteen business operations. Chief Tmetuchl has also distinguished himself in Palau's political and community affairs. In the 1960s he persuaded the Trust Territory of the Pacific Islands government to give up large sections of land to local owners in the states of Angaur and Peleliu and on the island of Ngerkebesang. He was a key leader in gaining war claims payments for the people of Palau and assisted government workers in 1950 and 1981 to bring strikes to successful resolution. Tmetuchl was a member of the Congress of Micronesia, the Palau Congress and Legislature, served as governor of Airai State for eight years and was a candidate for the presidency of the Republic of Palau in three elections. Perhaps Chief Tmetuchl's greatest achievement in the political arena was his single-handed and successful movement to separate Palau from the other ethnic areas of Micronesia. For nearly Leadership In the Pacific islands I vii four years, Tmetuchl served as Palau's chief compact negotiator with President Carter's ambassador for Micronesian status issues, Peter Rosenblatt. Chief Tmetuchl is an active member of Palau's Seventh Day Adventist Church, travels often, and resides with his wife Perpetua, ten children and eighteen grandchildren. viii I Leadership in the Pacific islands Contributors Juliana Anastacio is a faculty member of Palau Community College. Dirk Anthony Ballendorf is Professor of History and Micronesian Studies in the Micronesian Area Research Center at the University of Guam. Tim Bruce is an attorney for the Mayor of Rota Island, Commonwealth of the Northern Mariana Islands. Robert Churney is a faculty member of the College of Micronesia, FSM. Larry Gerston teaches in the Department of Political Science at San Jose State University. Michael Goldsmith is a Senior Lecturer in the Department of Political Science and Public Policy at the University of Waikato, New Zealand. Peter Larmour is Director of the Development Administration Program, National Centre for Development Studies, Research School of Pacific and Asian Studies, The Australian National University. Roman Tmetuchl is the Paramount Chief of the state of Airai, Republic of Palau. Don Shuster is Professor of Education and Micronesian Studies in the Micronesian Area Research Centre at the University of Guam. Karin von Strokirch is a lecturer in International Relations at the University of New England, Australia. Richard H.J. Wyttenbach-Santos is Vice President for Student Affairs at the University of Guam. Leadership in the Pacific islands I ix PIPSA The Pacific Islands Political Studies Association (PIPSA), a non-profit group, was founded in 1987 with financial support from the Institute for Polynesian Studies, Brigham Young University (BYU), Hawaii. At that time Professors Jerry Loveland and Dale Robertson of BYU brought together a group of academics and practicing politicians to brainstorm how academics might engage themselves more productively in the contemporary political histories of the independent and emerging Pacific islands states. The participants were Ahmed Ali, Nao Badu, Pofitu Fesili, Peter Larmour, Steven Levine, Ron May, Norman Meller, Guy Powles, Donald Shuster, Moses Uludong and Edward Wolfers. Their concluding vision was to establish an association which would draw together political practitioners, teachers, university students and researchers to examine Pacific island political affairs from a multidisciplinary perspective. Conferences have been held since 1988 in Western Samoa, Guam, Australia, the Cook Islands and the Republic of Palau. This volume contains a selection of the papers and speeches delivered at PIPSA's 1996 meeting in Palau. The association's sixth conference is scheduled for 7-10 December 1998, at the Macmillan Brown Centre for Pacific Island Studies, University of Canterbury, New Zealand. Currently, the association's president is Dr Ueantabo Neemia-Mackenzie at Canterbury and its vice president is Dr Sandra Tarte of the University of the South Pacific, Fiji. x I Leadership in the Pacific islands Abbreviations ADB Asian Development Bank aka also known as APEC Asia Pacific Economic Cooperation BATFOG Bush Administration Task Force on Guam BEM big emerging market CIP Cook Islands Party CNMI Commonwealth of the Northern Mariana Islands FSM Federated States of Micronesia GATT General Agreement on Tariffs and Trade ICPA Island Conference on Public Administration NZ New Zealand OEK Olbiil era Kehdau (Palau National Congress) OTIA Office of Territorial and International Affairs (US) PIPSA Pacific Islands Political Studies Association PPSC Palau Political Status Commission RPR Rassemblement pour la Republique (French conservative party) TTPI Trust Territory of the Pacific Islands (also TT) UN United Nations US United States USN United States Navy Leadership In the Pacific islands I xi Introduction Donald R. Shuster Leadership is an elusive property difficult to pin down. Pursuing its meaning enlarges our understanding of the dynamics of social change and the nature of culture. The contributors to this volume examine what leaders do from various perspectives and in a diversity of island areas and the United States. According to Feinberg and Watson-Gegeo (1996:16) leadership is one component