Assessment for Papuans in Indonesia

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Risk Assessment | Analytic Summary | References

Risk Assessment

There have been massive protests and sporadic rebellion among West Papuans since 1999. Several factors suggest the likelihood of the continuation of rebellion: territorial concentration; high degree of group cohesion and organization; Indonesian’s unstable regime; and Jakarta’s ongoing repression. A number of West Papuans remain committed to independence and are likely to continue rebellion, although at relatively low levels.

Jakarta began implementation of a Special Autonomy Law in 2001. While the law addressed many of Papuans grievances, the Indonesian military has resisted full implementation and continues to perpetrate human rights abuses in the province. As a consequence, Papuans claimed that a Special Autonomy Law was a total failure, demanding the government to review. In 2005, at least 10,000 Papuans protested against the 2001 Special Autonomy Law.

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Analytic Summary

The Papuans reside in the area of western New Guinea, or West Papua, formerly known as the Indonesian province of Irian Jaya. West Papua, the nation's geographically largest province some 2,500 miles (4,020 kilometers) east from Jakarta, became the 26th province of Indonesia in 1969 and was renamed Irian Jaya in 1973. It was renamed West Papua in 2001 as part of the implementation of a Special Autonomy Law.

Papuans are distributed in small communities largely isolated from on another due to the rugged terrain in the area (GROUPCON = 3). The indigenous group arrived in Papua New Guinea from southeast Asia between 8,000 to 30,000 years ago. Of West Papua’s population, around 50 percent (1.2 million) are indigenous Papuans, and 50 percent are Indonesians from other islands. Papuans are Melanesians, while most of Indonesia is Malay (RACE = 3) and speak a variety of languages distinct from the majority (LANG = 1). Christianity is the dominant religion in Papua in contrast to most Indonesians who follow Islam (BELIEF = 2).

After its discovery by the Europeans in the 16th century, West Papua experienced Dutch rule from 1828, colonial competition between the Dutch and the British in the 19th century, Japanese invasion in 1942, and a Dutch mandate after World War II. West Papua came under Indonesian control in 1963, without much consultation with the West Papuans, via the United Nations from the Dutch through the New York Agreement in 1962. Although Indonesian authorities consulted the group through the so-called "Act of Free Choice" in 1969, the hand-picked community representatives were often brought to the assembly at gun-point and forced to vote for the integration of West Papua into the Indonesian state. Conflicts between West Papuans and the Indonesian government have resulted in the death of an estimated 10,000 to 30,000 Papuans since incorporation.

Papuans have faced severe human right violations and political repression. In 2000, Indonesian President Abdurrahman Wahid displayed greater tolerance for free expression and offered to expand the area’s autonomy; however, he also expressed that any attempts to create a Papuan state within Indonesia would not be tolerated. A Special Autonomy Law was passed in 2001, which gave Papuans greater control over the natural resources on West Papua, mandated greater funding for health services, education and infrastructure, and mandated the creation of a Papuan People’s Council to be dominated by ethnic Papuans (ECDIS04 = 4; ECDIS05-06 = 1; POLDIS 04-06 = 1). The government in January 2003 moved to implement a 1999 law subdividing the provinces into three areas, with only one retaining the name West Papua. Strongly opposed by pro-autonomy and pro-independence Papuans, protests were immediately lodged, and riots broke out in one town, resulting in five deaths. In 2005, Indonesia’s Constitutional Court found the 1999 law – and two of the three provinces – to be unconstitutional, but affirmed the legality of the third province, West Papua. In addition, after a wait of more than two years, the secretary of the coordinating ministry for security and political affairs finally invited Papuan community leaders to discuss the establishment of the Papuan People's Assembly (MRP) in 2004. The MRP is viewed as crucial to the bringing of justice to the resource-rich but impoverished province. According to Government Regulation No. 54/2004, MRP represents indigenous Papuan culture and wields special powers covering the protection of traditional rights, the empowerment of women and the promotion of religious harmony.

The West Papuans’ greatest grievance, other than political and economic rights, regards West Papua’s independence (POLGR04-06 = 4). However, many Papuan intellectuals have come to accept widespread autonomy as an acceptable alternative to independence. Other grievances include a desire for more control over West Papua’s natural wealth, increased funding for social services, attention and assistance from international organizations (particularly the UN), and an end to Javanese migration to the province (ECGR04-06 = 2; CULGR04-06 = 1).

The leading force of the independence movement is the Organisasi Papua Merdeka (Free Papua Organization), or OPM, a political and armed guerrilla group. The OPM movement diminished in the 1970s; however the insurgency continues to the present (REB06 = 1). Protests also occur each year on Papuan Independence Day in December, and besides independence, each year had other major issues to intensify the protests. Papuan protests were against a Special Autonomy Law in 2005; and against the Freeport mine operator in 2006 (PROT05 = 4; PROT06 = 3).

Insurgency is curbed by the difficulties of communication due to geographic constraints of the area, chronic shortages of supplies and equipment, and disagreement among diverse groups of the movement. OPM remains as a major problem between Jakarta and Papua New Guinea (PNG), as the island interior's border has become the locus of OPM activity and the significant influx of West Papuan refugees continues each year (EMIG06 = 1)

OPM’s attacks on largely Javanese immigrants who come to West Papua under "Transmigrasi," Jakarta’s policy to reduce the overcrowding population in Java and to populate remote islands, also reflects West Papua’s economic problems. West Papua is home to one of the world's biggest gold mines and also contains deposits of oil, gas and minerals. Like Aceh, West Papua possesses significant economic resources for Jakarta. However "Transmigrasi" has brewed tensions and deadly clashes between many indigenous populations, including the West Papuans, and the immigrants (CCGROUPSEV104 = 3; CCGROUPSEV105 = 2) The West Papuans have long resented the presence of the immigrants, whom they consider as main beneficiaries of the economic development of the island, and dominating force of commerce and industry, as well as land appropriation, and the security forces of the area. The indigenous Papuans believe that if they receive the same opportunities and equal treatment, they can also be as successful as the immigrants. In addition, the influx of immigrants, who are primarily Muslims, has nearly rendered Christian indigenous West Papuans a minority. This fact exacerbates West Papuan resentment towards the immigrants.

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References

Elmslie, Jim. 2002. Irian Jaya under the Gun: Indonesian Economic Development versus West Papuan Nationalism. Honolulu: University of Hawaii Press.

Human Rights Watch. 3/17/2006. “Indonesia: Investigate Escalating Violence in Papua.”

International Crisis Group. 9/20/2001. "Indonesia: Ending Repression in Irian Jaya." www.crisisweb.org

International Crisis Group. 9/13/2002. "Indonesia: Resources and Conflict in Papua.” www.crisisweb.org

International Crisis Group. 4/9/2003. Indonesia Briefing: "Dividing Papua: How Not to Do It". www.crisisweb.org

King, Peter. 2004. West Papua and Indonesia since Suharto: Independence, Autonomy, or Chaos? Sydney: University of New South Wales Press.

LexisNexis. Various news reports. 1990-2006.

PapuaWeb. “Chronology.” www.papuaweb.org/chrono/files/c2000-.htm

AlertNet. 1/27/2009. “Papua Tensions.” Reuters Foundation. http://www.alertnet.org/db/crisisprofiles/ID_PAP.htm.

U.S. Department of State. Country Reports on Human Rights Practices: Indonesia. 2001-2006

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