Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Multi-Stakeholder Review of Post-Conflict Programming in Aceh Identifying the Foundations for Sustainable Peace and Development in Aceh December 2009 The opinions expressed in the report are those of the authors and should not be attributed to the institutions they work with, or any of the bodies who have supported the MSR. ii Multi-Stakeholder Review of Post-Conflict Programming in Aceh: Identifying the Foundations for Sustainable Peace and Development in Aceh Foreword Over four years on from the signing of the Helsinki Memorandum of Understanding (MoU) Peace Agreement, Aceh is largely peaceful. That said, the foundations for long term sustainable peace and development are only now beginning to be laid. Recent successful national parliamentary and presidential elections, and local elections for parliament and head of regions in Aceh, steady decreases in poverty levels, and increased provincial and district revenues all bode well for the future. While there have been significant challenges to date, peace has held primarily due the commitment of the Acehnese people, together with support from the government, GAM leadership and the international community. This strong commitment to peace will be needed more than ever to consolidate the substantial gains to date as tsunami reconstruction and many conflict recovery programs wind down. The population at large will need to let go of conflict-era identities for deeper reintegration to occur. Struggles over access to resources and power will need to be managed. Governance at all levels will need to be improved. The peace process is now entering a new phase and despite this, to date there has been no comprehensive roadmap to guide stakeholders. The Multi-Stakeholder Review of Post-Conflict Programming in Aceh (MSR) together with strategic initiatives by the Aceh Peace-Reintegration Board (BRA) and National Development Planning Agency (BAPPENAS), and the legal framework of Presidential Instruction No. 15 of 2005, provide a solid base for the government, donors and implementing organizations for policy formulation, program implementation and partnership building. The MSR itself has been a model of partnership between the government and donor communities. Desk Aceh of the Coordinating Ministry of Politics, Legal and Security Affairs, BRA, BAPPENAS, AusAID, the World Bank, the Embassy of the Kingdom of the Netherlands, UNDP, UNORC, USAID-SERASI and DFID all worked together to financially support and guide the MSR. We support it as a comprehensive and practical contribution to the continuing successful peace process in Aceh. Moreover, as recommended in the MSR, we strongly encourage a broad range government institutions and agencies to become more proactive in the peace process in Aceh. Implementation of this and many of the other recommendations in the MSR towards government, communities, donors and implementers, is one of the challenges that we now face. However, we are confident that together with a broad range of stakeholders, and the commitment of the Acehnese people, the numerous challenges can be overcome and peace in Aceh consolidated. Drs. Budi Utomo Dr. Suprayoga Hadi Mr. M. Nur Djuli Head of Desk Aceh Director for Special Areas Chairman and Disadvantaged Regions Coordinating Ministry for Politics, National Development Aceh Peace-Reintegration Legal and Security Affairs Planning Agency Board. Multi-Stakeholder Review of Post-Conflict Programming in Aceh: Identifying the Foundations for Sustainable Peace and Development in Aceh iii iv Multi-Stakeholder Review of Post-Conflict Programming in Aceh: Identifying the Foundations for Sustainable Peace and Development in Aceh Table of Contents Acknowledgements xii Executive Summary xvi Glossary of Terms and Acronyms xxvii Definitions xxxii CHAPTER ONE: INTRODUCTION 2 1.1 War and Peace in Aceh 2 1.2 The Multi-Stakeholder Review of Post-Conflict Programming inAceh 6 1.3 Structure of the Report 7 CHAPTER TWO: ANALYSING POST-CONFLICT ACEH 10 2.1 The MSR Analytical Framework 10 • Individual Level 11 • Community Level 12 • Macro Level 13 2.2 Methodology and Data Sources 13 • Quantitative Data 13 • Qualitative Data 14 • Historical Data 14 CHAPTER THREE: THE CONFLICT-AFFECTED 18 3.1 Former Combatants 18 3.2 Other ConflictActors 20 • Surrendered GAM and PETA 20 • Political Prisoners 20 3.3 Conflict ictimsV 21 • Who are the Victims? 21 • Where are the Victims? 24 3.4 Women and Conflict 25 3.5 Displaced People 28 CHAPTER FOUR: THE COST OF CONFLICT 32 4.1 Determining the Cost of Conflict 33 • Calculating Conflict Damage 33 • Calculating Conflict Loss 34 • What is not Included? 34 4.2 Breaking Down the Costs of the Conflict 36 4.3 Sectoral Breakdown of Cost 37 • Productive Sector 37 • Governance and Administration 39 • Housing and Infrastructure 40 • Social 41 4.4 Damage and Loss by District 43 • Repair, Replace and Compensate? 46 4.5 Conclusions 47 CHAPTER FIVE: STOCK-TAKE OF POST-CONFLICT ASSISTANCE 50 5.1 The Who, What and Where of Assistance 51 Multi-Stakeholder Review of Post-Conflict Programming in Aceh: Identifying the Foundations for Sustainable Peace and Development in Aceh v • The Big Picture 51 • Forms of Assistance 56 5.2 The Reach of Assistance in the Field 65 5.3 The Impact of Tsunami, Development and Pre-MoU Assistance on Conflict Recovery 68 • Tsunami Assistance and Conflict Recovery 68 • The Contribution of Government Development Programs to Peace-Building 69 • Government Pre-MoU Conflict RecoveryAssistance 71 5.4 The Remaining Gap between Assistance and the Cost of Conflict 71 • Where is the Gap Greatest? 72 5.5 Peace Dividend Revenue 73 5.6 More to be Done 73 CHAPTER SIX: LIVELIHOODS, POVERTY AND THE ECONOMY 76 6.1 Livelihoods, Income and Assets 77 • Employment 77 • Forms of Livelihoods 80 • Income 81 • Assets 82 6.2 Who is Missing Out? 85 • At-Risk Former Combatants 85 • Other Vulnerable Groups 86 6.3 The Impacts of Reintegration Funds 87 6.4 Reintegration into What? Poverty and Growth in Aceh 87 • Poverty Since the Helsinki MoU 88 • Growth and the Structure of Aceh’s Economy 88 • Investment in Aceh 90 6.5 Where to Now? 92 CHAPTER SEVEN: POLITICS, SECURITY AND SOCIAL COHESION 96 7.1 Conflict and iolenceV 97 • New Types of Violent Conflict in Aceh 98 • Aid and Conflict 102 • A Fall in Crime 104 • Social Tensions 105 7.2 Social Reintegration and Cohesion 107 • Former Combatants 108 • Returnees and IDPs 110 • Conflict ictimsV 111 7.3 Political Reintegration and Participation 112 • Political Participation and Knowledge 113 7.4 Broader Social and Political Issues 118 • The Law on the Governing of Aceh: A Step Forward but Remaining Tensions 118 • KPA: Transitional Committee or Preservation Society? 121 • Dividing Aceh: ALA/ABAS, PETA and FORKAB 123 • Elections and Political Parties 127 7.5 Post-Conflict Realpolitik 128 CHAPTER EIGHT: MANAGING POST-CONFLICT ACEH: GOVERNANCE AND INSTITUTIONS 132 8.1 Institutional Responsibilities for Peace 133 • Presidential Instruction No. 15 of 2005: A Framework for Reintegration and Peaceful Development 133 • National Structures 135 • Provincial Structures 136 vi Multi-Stakeholder Review of Post-Conflict Programming in Aceh: Identifying the Foundations for Sustainable Peace and Development in Aceh • District Structures 139 • International Agencies 139 • Security Apparatus 141 • Civil Society and Local Leaders 143 8.2 Managing Reintegration 143 • BRA’s Mandate and Authority 144 • Constraints and Challenges 146 • Capacity Challenges 148 8.3 Mainstreaming Conflict-Sensitive Development 149 • An Isolated Post-Conflict Program 149 • Utilising Aceh’s Resources 150 • Mainstreaming Post-Conflict Support 152 8.4 Governance 152 • Capacity to Govern 153 • Patronage and Corruption 154 • Traditional Leaders and Institutions 155 8.5 Institutions for Sustainable Peace and Development 156 CHAPTER NINE: ToWARDS A FRAMEWORK FOR SUPPORTING PEACE AND DEVELOPMENT IN ACEH 160 9.1 Conclusions 160 • Livelihoods, Poverty and the Economy 162 • Politics, Security and Social Cohesion 165 • Governance and Institutions 167 9.2 Recommendations: Towards a Framework for Peace and Development in Aceh 171 • Livelihoods, Poverty and the Economy 171 • Politics, Security and Social Cohesion 174 • Governance and Institutions 176 References 181 Endnotes 187 Annexes 1. Barron, P., M. Humphreys, L. Paler, Y. Tajima, and J. Weinstein (2008) ‘Aceh Reintegration and Livelihoods Surveys’. 2. Abbas, W. (2009) ‘The Cost of Conflict in Aceh’. 3. Abbas, W. (2009) ‘The Aceh Peace Process Stock-Take’. 4. Reid, A. (2008) ‘The Aceh Conflict: A long-term view for long-term solutions’. 5. Grayman, J. (2008) ‘Community Perceptions of the Peace Process’. 6. Aceh Institute (2008) ‘Women and the Peace Process’. 7. Amiren, M. and S. Rahmah (2008) ‘Leader Perceptions of Peace’. 8. Schiller, R. (2008) ‘BRA Capacity-Building Materials and Reports’. 9. Noble, C. (2009) ‘Matrix of the Brief Assessment of the Government Agencies and Institutions in Presidential Instruction No. 15. 2005’. Multi-Stakeholder Review of Post-Conflict Programming in Aceh: Identifying the Foundations for Sustainable Peace and Development in Aceh vii List of Tables Table 3.1 : Characteristics of Ex-TNA Combatants 19 Table 3.2 : Trauma Events Experienced by Gender 23 Table 3.3 : Characteristics of Civilian Conflict ictimsV 24 Table 3.4 : Ethnicity of IDPs, Returnees and Resettlers 29 Table 4.1 : Total Cost of Conflict by Sector 37 Table 4.2 : Productive Sector Cost of Conflict