Policy Studies 73 Papua’s Insecurity State Failure in the Indonesian Periphery Bobby Anderson Papua’s Insecurity State Failure in the Indonesian Periphery About the East-West Center The East-West Center promotes better relations and understanding among the people and nations of the United States, Asia, and the Pacific through cooperative study, research, and dialogue. Established by the US Congress in 1960, the Center serves as a resource for infor- mation and analysis on critical issues of common concern, bringing people together to exchange views, build expertise, and develop policy options. The Center’s 21-acre Honolulu campus, adjacent to the University of Hawai‘i at Mānoa, is located midway between Asia and the US main- land and features research, residential, and international conference facilities. The Center’s Washington, DC, office focuses on preparing the United States for an era of growing Asia Pacific prominence. The Center is an independent, public, nonprofit organization with funding from the US government, and additional support provided by private agencies, individuals, foundations, corporations, and govern- ments in the region. Policy Studies an East-West Center series Series Editors Dieter Ernst and Marcus Mietzner Description Policy Studies presents original research on pressing economic and political policy challenges for governments and industry across Asia, About the East-West Center and for the region's relations with the United States. Written for the The East-West Center promotes better relations and understanding policy and business communities, academics, journalists, and the in- among the people and nations of the United States, Asia, and the formed public, the peer-reviewed publications in this series provide Pacific through cooperative study, research, and dialogue. Established new policy insights and perspectives based on extensive fieldwork and by the US Congress in 1960, the Center serves as a resource for infor- rigorous scholarship. mation and analysis on critical issues of common concern, bringing people together to exchange views, build expertise, and develop policy Policy Studies is indexed in the Web of Science Book options. Citation Index. The Web of Science is the largest and most comprehensive citation index available. The Center’s 21-acre Honolulu campus, adjacent to the University of Hawai‘i at Mānoa, is located midway between Asia and the US main- land and features research, residential, and international conference facilities. The Center’s Washington, DC, office focuses on preparing Notes to Contributors the United States for an era of growing Asia Pacific prominence. Submissions may take the form of a proposal or complete manuscript. For more information on the Policy Studies series, please contact the The Center is an independent, public, nonprofit organization with Series Editors. funding from the US government, and additional support provided by private agencies, individuals, foundations, corporations, and govern- Editors, Policy Studies ments in the region. East-West Center 1601 East-West Road Honolulu, Hawai‘i 96848-1601 Tel: 808.944.7197 [email protected] EastWestCenter.org/PolicyStudies Policy Studies 73 Papua’s Insecurity State Failure in the Indonesian Periphery Bobby Anderson Copyright © 2015 by the East-West Center Papua’s Insecurity: State Failure in the Indonesian Periphery Bobby Anderson ISSN 1547-1349 (print) and 1547-1330 (electronic) ISBN 978-0-86638-264-9 (print) and 978-0-86638-265-6 (electronic) The views expressed are those of the author(s) and not necessarily those of the East-West Center. Print copies are available from Amazon.com. Free electronic cop- ies of most titles are available on the East-West Center website, at EastWestCenter.org/PolicyStudies, where submission guidelines can also be found. Questions about the series should be directed to: Publications Office East-West Center 1601 East-West Road Honolulu, Hawai‘i 96848-1601 Tel: 808.944.7145 Fax: 808.944.7376 [email protected] EastWestCenter.org/PolicyStudies In Asia, print copies of all titles, and electronic copies of select South- east Asia titles, co-published in Singapore, are available from: Institute of Southeast Asian Studies 30 Heng Mui Keng Terrace Pasir Panjang Road, Singapore 119614 [email protected] bookshop.iseas.edu.sg Contents Executive Summary xiii Introduction 1 Papua and Its Highlands: Colonization and Annexation 4 A Brief History of Papua in Indonesia 5 Contemporary Papua 13 Insecurity in Contemporary Papua 16 The Violent Conflict in Indonesia Study and National Violence Monitoring System 18 The State as a Source of Insecurity 24 The State Security Apparatus as a Source of Insecurity 26 The Clan as a Source of Insecurity 32 Separatist Groups as a Source of Insecurity 35 Migration as a Source of Insecurity 37 Other Sources of Everyday Insecurity 40 Distorted Images of Papua 41 Conclusion and Recommendations 46 The Papua Road Map, Dialogue, and Reconciliation 48 Security Sector Reform 49 Ending Impunity 51 Developing Papua for Papuans 52 A Probable Future 54 Endnotes 57 Bibliography 61 Acknowledgments 73 List of Acronyms ABC Australian Broadcasting Corporation AHRC Asian Human Rights Commission AI Amnesty International AusAID Australian Agency for International Development BAIS Badan Intelijen Strategis, or military intelligence BAPPENAS Badan Perencanaan Pembangunan Nasional, or Indonesian State Development Planning Board BIN Badan Intelijen Negara, or domestic intelligence agency BPS Badan Pusat Statistik BRR Badan Rehabilitasi dan Rekonstruksi Wilayah dan Kehidupan Masyarakat Provinsi Nanggroe Aceh Darussalam Dan Kepulauan Nias Provinsi Sumatera Utara, or Agency of the Rehabilitation and Recon- struction for the Region and Community of Aceh and Nias CPB Communist Party of Burma GAM Gerakan Aceh Merdeka, or Free Aceh Movement GDRP gross domestic regional product GIDI Gereja Injili di Indonesia Papua, or Evangelical Church of Indonesia HRW Human Rights Watch ICG International Crisis Group IPAC Institute for Policy Analysis of Conflict KINGMI Kingmi Gospel Tabernacle Church of Papua KIO Kachin Independence Organization KNPB Komisi Nasional Papua Barat, or West Papua National Committee KOMINDA Komunitas Intelijen Daerah, or Regional Intelligence Communities Kopassus Komando Pasukan Khusus, or Special Forces Command LIPI Indonesian Institute of Sciences OPM Organisasi Papua Merdeka, or Free Papua Organization OTK Orang Tak Kenal, or unknown persons PBI Peace Brigades International PEPERA Penentuan Pendapat Rakyat, or Act of Free Choice PNG Papua New Guinea PNPM Program Nasional Pemberdayaan Masyarakat, or National Community Empowerment Program PROSPEK Program Strategis Pembangunan Kampung RESPEK Rencana Strategis Pembangunan Kampung SATPOL PP Satuan Polisi Pamong Praja, or Civil Service Police Unit SNPK Sistem Nasional Pemantauan Kekerasan, or National Violence Monitoring System SSB Single-SideBand modulation SSR security sector reform TNI Tentara Nasional Indonesia, or Indonesian armed forces TPN Tentara Pembebasan Nasional, or armed wing of the OPM UN United Nations UP4B Unit for Accelerated Development of Papua and West Papua UWSP United Wa State Party ViCIS Violent Conflict in Indonesia Study VOC Vereenigde Oost-Indische Compagnie, or Dutch East India Company Executive Summary Indonesia’s easternmost provinces of Papua and Papua Barat, which are generally referred to as Papua, are the most violent and resource- rich areas of the country. Papua’s absorption into Indonesia in an en- gineered “referendum” in 1969 remains openly contested by many Papuans and the international supporters of their cause. In Papua, Indonesian security actors battle the country’s last active separatist insurgency. The vast majority of Indonesia’s political prisoners are Papuans, while ordinary Papuans have the lowest incomes and the highest mortality in Indonesia. As a result, support for independence continues to be widespread. But while military repression and indigenous resistance are major sources of violence in Papua, they are only one part of a complex topography of insecurity. As this study demonstrates, vigilantism, clan conflict, and other forms of Military repression and horizontal violence produce more indigenous resistance are only casualties than the vertical conflict that is often the exclusive focus of part of a complex topography international accounts of the Papua of insecurity in Papua problem. Similarly, Papua’s coerced incorporation into Indonesia is not as unique as it is frequently made out to be; it mirrors a pattern of long-term annexation that also exists in other remote and highland areas of China, India, Indonesia, Myanmar, and Thailand. There, highland populations have found themselves on the receiving end of xiv Bobby Anderson the violence of expanding lowland states. These annexed areas share similar histories of colonial settlement, land seizure, abuses by petty authorities, the rise of resistance, and violent state oppression. Despite these similarities, however, this study highlights one major difference between Papua and other Asian remote and highland areas: no other area of highland South and Southeast Asia has experienced such an absence of the state and its services—except for territories in which debilitating insurgencies caused state services to collapse or No other area of highland Asia never develop in the first place. In has experienced such an absence many indigenous areas of Papua, of the state and its services by contrast,