HISTORY OF THE CRISIS
IN BOUGAINVILLE
According
to some estimates as many as 15,000 people died as a result of
the Bougainville conflict, which began in 1989, and dragged on
at various levels of intensity, until the early months of 1998.
Suffering on the island was widespread. At one point 70,000 of
a population of 180,000-200,000 were displaced in care centres
or camps.
There were several factors that drove some factions of the normally peace
loving people against each other. The CRA
owned Bougainville Copper Mine at Panguna and the associated
problems that it caused, bought about the formation of Panguna
Landowners' Association (PLA). The mine was financially significant
to the PNG government with 40% of its export revenue (17%
of its government revenue), the Land owners' Association disputed
that more compensation should be paid and that environmental
degradation should be addressed. The increased number of mainland
squatters attracted to Bougainville for work that was not available
also became another factor that exacerbated indigenous Bougainvillian
resent towards the mine. Following these disputes, a splinter
faction of the PLA escalated the situation by initiating a
series of attacks against the mine in 1988.
The civil powers unable to quell the unrest sought the
assistance of the Papua New Guinea Defence force (PNGDF). In
1989, Francis Ona,
a local folk hero and the leader of the separatist landowner
group, joined with local cargo cultists and attracted rascol
elements announced the independence of the "Republic of
Bougainville".
The mine was forced to close (although it re-opened briefly)
after the first security force casualties in 1989.
In 1989 and 1990 there
were several attempts to negotiate a peace deal, but division
between the Bougainvillians themselves and the "hawks" and "doves" within
the PNG government made the negotiations difficult. In May
1990, PNG's acting Prime Minister announced a 'blockade' of
Bougainville after a withdrawal of the security forces and
a ceasefire.The rebels announced the formation of the Bougainville
Interim Government (BIG), that was headed by Francis Ona. The
military wing, the Bougainville Revolutionary Army (BRA) was
unable to restore order and the island fell into a period of
economic and political collapse. The people of Bougainville
described this as a period of violent anarchy.
During the period between mid-1990 to early 1991, peace
initiatives were pursued by the "Prime Minister" of
the BIG Joseph Kabui leading
to the "Honiara Declaration" which seemed to pave
the way for peace. Meanwhile in Sept 1990,
the Buka Liberation Front (BLF) raised opposition to the BRA
and requested the return of the security forces. Peace
initiative continued, but in Mar 1991 an apparently unauthorised
decision by a PNGDF commander, undermined negotiations by
attacking a strategic bridge and BRA base near Kieta. (The
commander was removed after public revelations of the use of
two UH-1H gun-ships that were supplied by Australia on the understanding that
they were to be used for transport, surveillance ad medivac
purposes). Little more was achieved in peace talks over the
next 12 months except for the creation of a number of regionally-based
interim governing authorities to help restore government services.
In late 1991 leaders in south Bougainville started negotiations
for the restoration of government services, and in May 1992
received security forces who were supported by resistance forces
opposing the BRA. Around mid 1992, the Buka Interim Authority
formed a peace committee and initiated negotiations with the
BIG and traditional leaders of central Bougainville,they formulated
a plan to hold a Bougainville Peace Conference in Honiara (Solomon
Islands) in Sept 1992, but a border violation in Sept 1992
scuttled the meeting.
In 1993, national
MPs and about 50 traditional leaders considered a BIG peace
plan and carried on negotiations. A North Solomons Peace Negotiating
and Monitoring Committee was established which produced a "Peace and Ceasefire Agreement" in
Honiara in July 1993.
A visit by an Australian Parliamentary delegation in Apr 1994
prompted the PNG Prime Minister to issue a statement calling
on the BRA/BIG to work together and settle the crisis. A multinational
South Pacific peace keeping force was proposed by Deputy PM/Foreign
Minister Sir Julius Chan, who would assist in the peace process.
(The BIG had been requesting a multinational force since 1991).
June 1994 bought a series of talks between representatives
of the BIG and PNG Government in Honiara. There were now seven
interim authorities operating in Bougainville who all agreed
in a preparatory meeting to formulate arrangements to hold
a Pan-Bougainville Peace Conference. The meeting between BIG
and PNG Government again broke down, and in August the security
forces retook Panguna.
Another round of talks was held in Honiara after Chan replaced
Wingti as Prime Minister. A ceasefire was agreed to and a peace
conference was organised to be held in the provincial capital
of Arawa in October. A South Pacific Peace Keeping Force (SPPKF)
was established comprising of forces from Fiji, Tonga, Vanuatu,
New Zealand and Australia. Although several BIG leaders failed
to attend there were representations from Bougainvillian womens
groups and other Bougainvillians who agreed to a commitment
to peace and reconstruction. The following weeks saw peace
ceremonies through out Bougainville and a significant freeing
up of movement over the island.
A series of meetings of Bougainville leaders were held to follow
up the resolutions of the peace conference. Later, in mid November
the PNG Prime Minister announced a "New Deal for Bougainville" and
then the "Mirigini Charter for a New Bougainville",
this lead to the formation of a Bougainville Transitional Government
(BTG). By Jan 1995 they had produced a draft bill to amend
the North Solomons provincial constitution. The BLF meanwhile
traveled the island seeking reconciliation with the BRA commanders.
Between May and August 1995, the
Miriung lead BTG held a series of consultations with PNG. The "Waigani Communique" addressed
issues such as amnesty for BRA fighters, rehabilitation of
the Bougainville economy, administrative arrangements for restoration,
the future of the resistance and the structure of Bougainville.
The bounties on Kabui, Ona and Kauona were lifted.
In September and December 1995, the BIG and BTG met in Cairns
for formal consultations with representatives of the Secretariate
General of the UN and the Commonwealth facilitated by the Australian
Government. On their return to Bougainville via the Solomons
the leaders were fired upon by the security forces of PNG.
The recriminations lead Chang to announce that there would
be no more talks outside PNG. BRA activity increased and Chan
called off the ceasefire negotiated in 1994 after the killing
of 11 security members of the security forces in Buka.
In June 1996, a peace plan produced by the BTG was discussed
in Port Moresby. This lead to an understanding signed by Chan
and Miriung on the extension of the BTG beyond 1997 and the
possibility of some autonomy for Bougainville, however it seems
that there were plans being made for a major military assault
on BRA strongholds whilst these talks were taking place. 'Operation
High Speed II' was to include the use of two PNGDF infantry
Battalions (1400 troops) to execute a surgical strike against
the BRA leaders. The PNGDF gained little ground and withdrew
conceding victory to the BRA in July. In September, BRA fighters
followed up with an attack on a PNGDF outpost at Kangu Beach
killing 12 and capturing several others. Some sources claimed
that civilians assisted with the attack, angered by the behavior
of security forces towards them.
In July 1997 leaders of Bougainville factions, without the
presence of the PNG Government, met in New Zealand to discuss
issues of a possible peace keeping force on the island. This
meeting, instilling trust in each other, became known as the 'Burnham
I Agreement'. A further meeting, that lead to the 'Burnham
II Agreement',
was held in October 1997, this included all of the factions
including the PNG Government. This meeting further instilled
trust in each other and concentrated on the withdrawal of the
PNG troops, reconciliation, and the formation of a truce monitoring
group. The
NZ-led Truce Monitoring Group (TMG) was deployed in December
1997 and, at one point in time, included up to 250 truce monitors
from Australia, New Zealand, Fiji and Vanuatu. 
In April 1998, the 'Lincoln Agreement' was signed by all
of the major parties involved in the conflicts. It addressed concerns
such as the amnesty of BRA fighters, the change over from TMG to
the PMG, UN observers and the withdrawal of PNG troops.
The formal mandate of the Peace Monitoring Group (PMG) was
finally signed on the 30 April 1998 - Ceasefire
Agreement at Arawa.
References:
May,
R. (1997)
. Bougainville Conflict
Regan, A.J.(1999). The Peace Process and Beyond
Regan, A.J. (1999). Traditional Leaders and Conflict Resolution
in Bougainville
http://www.dfat.gov.au/geo/png/bougainville/
http://www.geocities.com/belisi_2000/
