Peacekeeping at its best in East Timor: in retrospect

By Snake  

 

Introduction

 

What I know  little of East Timor brings me back to my college years at the University of the Philippines.  It was in the early 80's that the idea started to badger my curiosity when it gained few articles in the Philippine Collegian trying to find any relationship between what was gaining as human rights debacle in the  Philippines and the reports of  in-country atrocities   and sufferings of the people of East Timor.  I've been hearing the name "Ramos-Horta" during those pristine years at the  University where there was too much of idealism and radicalism.  But little that I knew that East Timor would endure anything under the Indonesian rule just to break free from  the  cloak of the "red and white" even it were to take them  almost 25 years though the toll was heavy.

 

It wasn't long enough when I found myself involved  in the peacekeeping mission in East Timor.  Almost jumping to be successfully recommended and eventually selected  by the Armed Forces of the Philippines, my chosen profession five years after I graduated from the University,  I had mixed feelings  of  what was lying ahead especially in the  same place that had given me sharply   associated contradictions and  memories . It easily subsided by the mere thought of  receiving an ample allowance which others would then consider as a windfall. I didn’t passed on any scruple of leaving my  part-time teaching at the University of the Philippines in Clark. And even much that I care of my family of  three beautiful kids and one loving wife.  It has not been this way since we had each other that  daddy would  be among the 9,000 strong multi-national force of  24 nations in East Timor.

 

It takes awhile for me just as anybody else in this mission to adopt.  I came in with six other Filipino officers  also known as the "magic seven" to work at the peacekeeping headquarters.  The  name itself has gained an audible ring but  would be a playful wish to associate it to anything of sci-fi strategic force. They, too had one way or another specific reasons in joining this mission.  What is clear though is we are all here for a mission  and not just an ordinary mission because peacekeeping operations isn't   like going to the beach or any kind of party. At least for us…for everyone.

 

Point of Departure

 

It brings us therefore to  view  in retrospect the whole peacekeeping operations in terms of its operational sustainability and its impact in the immediate  environment  from  Interfet's transition in early February this year up to  year-end.

 

 

There had been many changes  happening throughout the year.  The sharp decline to nearly nil of militia activity towards the end of the year is a significant development that should interest an in-ward confession. The peacekeeping operations may just be near to its completion.  This kind of perception does not have an uncommon support. In one way, it might be shortsighted.  But has it really achieved its mandate is a point of departure towards a deeper analysis of things obtaining in the immediate environment. The need therefore of an objective understanding without any intention to intimidate the sensibilities of  national peculiarities or interests is in order.  The reader has all the right to disagree with the findings but must be reserved within  the scope of academic discipline.

 

East Timor: another United Nations  responsibility

 

There are other peacekeeping missions the United Nations is presently preoccupied with.  But this is just one of the missions the Philippines is involved at present.

 

After almost 25 years of Indonesian Rule, the  East Timorese opted to untangle the bondage that was keeping them  from  deciding things on their own. Of course, the sweeping independence vote was  almost engulfed by  an equally ferocious pro-integration  gang. This divisive consciousness had left this country in ruins that  prompted a multi-national force under the leadership of  Australia, an adjacent neighbor through INTERFET (International Forces in East Timor) and later metamorphosed into a UN led peacekeeping mission now called Peacekeeping Force-United Nations Transitional Administration in East Timor (PKF-UNTAET).

 

The year-end is approaching  and  it has been more than a year of peacekeeping operations since the multi-national forces " descended on the ruins of East Timor in a brave pioneering effort to rebuild a country from ground zero. By general agreement, the UN has achieved a lot, restoring the former Portuguese colony to life in the face of continuing violence and against a backdrop of years of neglect".(FEER: Nov  2000).

 

Particularly, the peacekeeping force of the United Nations  has its rightful claim in taking possession of some medals  of achievement.  As the year ends,   it is a worthy concern that might be of interest to policy and decision making of any peacekeeping assessments that could serve not only as a guidepost but  also as  a living proof  of  the multi-national action in this part of the world.

 

The border and its limits

 

It is highly in order then to consider the yearlong ebb and flow of peacekeeping operations from the point of view of a real player in the so-called AO's (areas of operations).  Caveat though, this relationship must not be viewed as highly distasteful of the trust and confidence but presumptively the most objective analysis should be expected in defense of   intellectual theorizing  or reasonably intelligent authentication.

 

There is much to be written about  East Timor in the first place.  Like any other nations who came under  a colonial past,  the historical development that led to the decision point is significant to serve as the  preliminary platform of discovery. 

  

The Transition

 

The transition from the Australian led Interfet (International Force in East Timor) who came  down to Dili (capital of East Timor) just after the  post-referendum troubles in September last year, to the United Nations led Peacekeeping Force in East Timor (PKF) in February this year, from its inception towards the end of 2000 makes peacekeeping operations  undoubtedly attesting  a year  full of significance and  inevitable  challenges.

 

The leadership of this 24-nation multinational PKF took a transition just at the start of the 3r^d Quarter.  It must be honestly  admitted that Lt. Gen. Boonsrang Niumpradit of Thailand had inherited from his predecessor Lieutenant General Jaime de Los Santos of the Philippines (now Deputy Chief of Staff, Armed Forces of the Philippines) a  knit and orderly organization and a seemingly tranquil security environment.  More so,  with all candidness that  during the rest  part of the year prior to leading the PKF, there was absolutely no visible violent clashes between the peacekeeping forces and the militia elements in the areas of operations even at the most volatile areas near the border with West Timor (NTT), but only perceived tension or hostilities and  a more or less predictable security threat  of few confirmed reports of militia sightings  inside East Timor (ET).

 

But just as we learn from the  force of nature that a  lull is a foreboding of an incoming storm,  it didn’t surprise us at all when militia elements had to test their first mission which claimed the death of  Pvt. Manning  a New Zealand peacekeeper while conducting a clearing patrol  few clicks west of Suai and near the border  in July 24.  This incident initiated a serious consideration of our  established game plan in peacekeeping operations.  Our Rules of Engagement (ROE) had to be revisited and retailored  to fit the new challenge of any present and clear danger,  short  of becoming offensive but  always maintaining  a flexible reconciliatory stance against any  militia blackmail.  Others believe that such could not have been avoided whatsoever.  But I strongly regretted that incident had to happen.  Thus,  our recommendation to UN New York to give more teeth to our ROE was very well considered and its  immediate application yielded uncompromising and positive results expressive of our  strong resolve to fulfill our mandate.

  

PKF Mandate

 

The mandate of the UN Peacekeeping Force  takes its form from the United Nations Security Council Resolution 1272 (UNSCR) which was devised in October 1999 to respond to the post-referendum disorder in East Timor.  Our mission is to help maintain a secure environment in ET in accordance with UNSCR 1272, to assist ETTA (East Timor Transitional Authority) as required in the conduct of safe and democratic elections, and to assist ETTA within its capabilities, in the development of sustainable ET organizations and infrastructure.

 

 

With changes taking place towards the end of the year  as a necessary consequences of the September  cruel killing of  three UN High Commission on Refugees (UNHCR) volunteers by militia instigated violence in Atambua,  the United Nations Security Council called to end the militia rampage by  giving PKF a more robust role in the maintenance of security and importantly calling on the government of Indonesia (GOID) to take necessary steps to disarm the militias and bring to justice those responsible in the same incident.  This was contained in the instructions of  UNSCR 1319.

 

The maintenance of security within ET continues therefore to be the highest priority and the most important task for the PKF.  However, its incidental assistance to  development and humanitarian undertakings is  a concomitant challenge in the  present whole government strategy in the  present environment.

 

PKF Response

 

Underlining the need of a robust security role towards the end of the year  is one primary task the PKF has to achieve.  Statistics show that  at the 2^nd half of the year  a number of violent clashes had occurred.  The implementation of various operation orders in the areas of operations (AO’s) had proved successful in decapitating the militias line of defense  inside ET and thus flashing them towards  NTT. The New Zealand peacekeepers at Suai maintained its momentum  that yielded four militia dead.  The Portuguese  peacekeepers in charge of  Sector Central close to the capital  killed one militia and caused the surrender of seven others in separate operations during Operation Cobra.  The Australians responded by fatally hitting one militia dead  in a recent clash Saturday December 2.

 

The lives, however, of two peacekeepers were wasted during operations in the second and third Quarters while an Australian peacekeeper  was lucky enough to escape death when he was ambushed by suspected militia remnants in Balibo where he was shot in the left leg  first day of December.  Meanwhile, a total of 11 accident related deaths have  afflicted  the whole peacekeeping effort which were mostly vehicular accidents due to the treacherous route that  spans the roadnet in ET.   The whole peacekeeping effort has a total number of committed troops numbering about 7,700.

 

Security Situation

 

By all indications, the level of security threat  caused by either infiltrating or ex-filtrating militia elements  has  gone down to a manageable level of   lesser  security concern but would require a sustained security presence in areas where civilian authority has not been yet established. The militias sometimes referred to as the pro-integrationist gangs have dwindled in number from a more or less 150 hardcore to the present extravagant assumption of about 50 or so.

 

The decrease of militia activity is worthy of note at the close of the year and is widely recognized  as an encouraging fact. This is definitely the result of our whole government approach with the center of gravity that of the local populace of East Timor per se.  In doing so,  the  possible breeding areas of militias in the  AO’s either identified as support  bases or  transit grounds have been neutralized by winning the hearts and minds of the populace through bringing primary government services and reinforced by  PKF security  thus  insulating them from the reach of the militias  protected by a formidable military  strategic advantage.

 

Thus,  the PKF over the last six months has made possible significant leaps that  provided a secure environment for  UNTAET  to further map out its reconstruction efforts  especially to remote areas in ET.  If this situation is to be maintained, then we must continue to deny the militia the opportunity to achieve their objectives and to be able to assist the Civilian Police (Civpol) when required in the maintenance of law and order. General Boonsrang has ordered all commanders to ensure that we continue to enhance our force protection measures, maximize our information gathering processes and other  areas that would gain us strategic advantage.

 

As we enter the political phase of our mission, the importance of understanding the ET populace and retaining their confidence is becoming more important.

 

Political Sociology

 

The fundamentals of a stable environment  have been established by the United Nations Transitional Administration in East Timor (UNTAET). The emergency relief phase has been replaced by efforts to rehabilitate and rebuilt East Timor and for the repatriation and reconciliation of refugees who are still in NTT. Sooner or later the electoral process will begin which will lead to democratic election and finally independence of the new ET. (CMA)

 

While remnants of militia groups continue to be a latent threat, there is also the ethnic diversity, complex social differences, the fragile economy and different political affiliations among the local population.  This can be exploited to ferment unrest to destabilize the country.  These differences are likely to be exacerbated through political posturing for the election in year 2001.

 

The local population of ET is the center of gravity of PKF operations notwithstanding the differences.  The PKF mission is to maintain a secure environment and it can only be achieve with the support and cooperation of the East Timor population.  Support from the local  populace provides better and timely information that enhances PKF operations.

 

Towards this end,  one of the vital components of our peacekeeping efforts is therefore through the  Civil Military Affairs that provides an effective coordination of  various humanitarian activities by the Non-Government Organizations (NGO’s), other Humanitarian Support Agencies, local support groups, ETTA  and the Humanitarian Office of the SRSG office (Special Representative of the Secretary General), to ensure a whole government  approach.

 

 Whole Government Approach

 

By and large,  the people of ET is the center of gravity  of our mission.  Through the sustained efforts of  the various commanders in their respective AO’s,  the nightmare that had become ingrained in the hearts and minds of the people is gradually  taking out of shape.  The returning   IDP’s (Internally Displaced Persons) and Refugees from NTT  have swelled    from  an almost deserted village at the  start of the year to about 2,200 spontaneous returns through the six major checkpoints  that line along the border  from north to south since September  to date, while more than 30,000 thousand in refugee camps in NTT are  still awaiting their final journey back to ET  optimistically at  the end of the year.

 

Meanwhile, a total of 410 demobilised East Timorese soldiers (Milsas) and their families returned home in late November in the first large repatriation of refugees by the UN since three of its staff were murdered by militia members on September 6 in Atambua, NTT.

 

These are positive indications  towards attaining a  fully stable living environment in ET. 

 

The apprehension of refugees to go back to ET due to  the possibility of being intimidated, mauled, harassed  or rejected  has been gradually dissipated by the assurance of security  and the achievement of PKF and UNTAET  through the so-called whole government approach.  This strategy has proven very effective in achieving the  desired results  with the populace as its center of gravity.  The PKF in one way or another has continuously supported the transitional authority,  NGO’s, other UN agencies and  other stakeholders in the performance of an organized and integrated reconstruction effort in ET environment.  Sometimes getting out of its traditional role of peacekeeping, the PKF has more than often provided skills, manpower and equipment in the repair of roads, buildings and other infrastructures.  The PKF has the capability to facilitate and assist the holistic strategy in its AO’s where security threat is predominantly near to zero.

 

Security Considerations

 

With the low level security risk obtaining in the present environment  presently characterized by an extravagant estimate of 50 militia who may still be unaware of the present  positive developments, there still is no reason for PKF to let loose its guard.  There are few considerations which  would lead us to believe that  PKF’s role on security is much more needed ahead and even after ET has completed traversing its political path at the tail end of 2001, due to these two major  considerations:1) Political Transition 2) Security Transition.

 

The timetable for the transition phase provides for ET’s  election  for a constitutional assembly to draft the constitution  in July and its subsequent ratification by the people in a referendum in August, next year.  The election of the executive leadership  will come towards  the end of next year which only then transition shall be completed to full independence.  During these major political periods of the new ET,  a secure environment is paramount which the PKF must ensure together with Civpol for the conduct of an orderly, peaceful, credible and clean elections.

 

“Security transition is another consideration that is presently being worked out by UNTAET/ETTA and the PKF for the formation of the Defence Force of ET.   Without internal and external security, all our efforts to develop ET will be in vain.  The creation of the  Defence Force is an essential part of ET’s transition.   A King’s College study recommended a light infantry force of 1,500 regulars with a phased approach to reach that number over 3 years, and for 1,500 reserves, with the FALINTIL as the core of the force, has been approved by CNRT (National Congress), the FALINTIL(armed unit of the struggle)  and ETTA. A number of countries have expressed interest in providing experts and capacity building for the Defence Force during a donors conference involving 12 countries  in the third week of  November.”(Press Statement, OCPI, November 23, 2000)

 

 

Rising Expectation Syndrome

 

Given ET’s artificial economy at present which is basically propped up by UN expatriates,  the  so-called “Rising Expectation Syndrome” among the populace may yet be a serious consideration after the timetable for self-governance is completed.  This economic bubble is artificial that it may explode right in the faces of people  who will assume the responsibilities later.

 

Getting all acts together after UN is a general apprehension.  One way may lead to another is a rational conclusion.  The people of East Timor through the perseverance of the Falintil  and the momentum of world opinion have somehow pushed this nation to a point that almost starts from the beginning. However, the point of no return that apparently is  ab initio can never be absolute.  Because of the so-called Rising Expectation Syndrome (RES) is becoming endemic in the present environment.  With the rate of things are going, there are few indications which may just be insignificant to have an overall impact on the present effort but likely would  create a dent on any UN  magnum opus in the long term.

 

The blue print of the United Nations in East Timor provides for the transition for self-governance.  With the  necessary  societal infrastructures being revved-up, some indications show that some people are becoming restless and even more impatient with results basically on labor and employment and even morality.  Of course the primary stakeholders  in the forthcoming are the people themselves

 

An inverse equation between RES over the actual delivery of  government translates into the amount of willingness of people to be governed.  This situation breeds power struggle so much so that  a group not necessarily growing from the residue of the past struggle may blow the wind of insurgency and gradually repeating the same cycle of struggle which may now be tainted not only by the  conviction of being independent but is  indispensably founded on ideological imperatives.

  

Dependency Avoidance

 

Classical as well as contemporary thoughts are ready tools that give us a paradigmatic understanding of the interplay of key components in nation-building.  Suffice is to say that  nothing can be tailored fit to assume the blueprint of any developmental scheme.  True enough, nations who rose from  limbo to primary dominant developmental trendsetters have one way or another, but more often than not, have different historical experiences either one of  becoming nostalgic or  just one of the frightening and detestable nightmare at Elm Street.

 

Colonial regimes, however, in between lucid periods in history almost share a common ground like East Timor (the whole Timor island for that matter), had been selfishly protective of their  colonial interest  by  playing gods or sorcerers  on people long drawn to complacency and subservience. As a result,  the colony had been denied and suppressed of  its natural essence  of any freedom of existence.  The Timorese people were taught to be the servants of their masters for 500 years. So much so that the dependency attitude has the propensity to drive people to mendicancy.

 

Donations and doleout are not uncommon in devastated nations. The United Nations’ scheme of things provide for a recurrence of  dependency.  The  feeling of being helpless after the angst and pain is perfect  for any short and comforting  assistance.  It is normal that there is a period of mourning.  The grief of the past  is psychologically healthy if the people takes it as a positive challenge to start rebuilding their wasted lives.

 

The way it looks,  we have a situation ripe of contrasting realities.   The UNTAET is attempting to remove any traces of dependency   but apparently leaving a satellite of varied interests . Generally, it  remains skeptical on the capability of  the new nation to row itself to navigable waters even after  establishing full independence. On the one hand, the  aspiring leaders of  the new nation are adamant to be involved in the decision-making structures in the transitional government  to which they personally feel being left out  and only guessing  in the dark.  There has also been few reports of graft and corruption  in the present basically being introduced by the bidding of contracts, which could  exacerbate  what is still considered as weak infrastructures of self-governance. (Lusa News, December 6, 2000)

    

Emerging Environmental Change

 

The UNSCR 1319  strong message in October was loudly heard  by and between the  concerned parties  responsible in the establishment and maintenance of  a secure ET environment. 

 

In fact, the PKF robustly responded with its instructions by  adopting an amplified ROE to counter and contain  what appeared to be recalcitrant stance from the militia elements. It has  given teeth to our operations  by giving the PKF the  right to fire at   any militia  on site  showing hostile intent.  This has proven to be a deterrence from their ambitious and hopeless bid to destabilize ET.

 

PKF has maintained constant  coordination with the Government of Indonesia through the  monthly Commanders Conference to determine areas of common concern with the overall priority of stopping once and for all  the militia threat.  It’s a positive sign and we too are  glad when the TNI (Indonesian Armed Forces)  obeyed the instructions of said resolution by conducting an unrelenting crackdown  on the militia which was next to ideal.  We cannot be   skeptical that  within their side in  NTT, they are doing their part.  We can only be sorry that the manslaughter  against unarmed UNHCR volunteers in September at Atambua had to happen before some people  begin to realize  where they have faulted.

 

There have  been noticeably encouraging results from established points of agreement with the TNI in  the maintenance of security especially along the border with NTT and the  safe conduct pass of refugees spontaneously returning or organized movements  to ET.

  

Better Things to Come- a personal note

 

Being the Force Commander of  this multi-national force in East Timor,  Lt. Gen. Boonsrang Niumpradit  like any  other optimist views  that East Timor has nowhere to go but to move forward towards full independence (as scheduled). With 24 nations committing their forces  on the  United Nations Peacekeeping  Force  under  his command,  we would like to inform the people of East Timor and the world as well that we cannot afford to be remiss  with our mandate to secure the road to independence of this one great nation.

More important  as life itself,  I for one and your sons, daughters and  parents   are proud members of this global concern. They are doing a great job  24-hours a day and enjoying the feeling that  they are serving well  alleviating the pain that has remained etched into the  eyes of East Timorese especially the children. We are helping in whatever we can to improve life through our pure resolve in the vast reconstruction of this once troubled nation.

As we keep on maintaining a secure environment, the Peacekeeping Force continues to live up with the ideals of the United Nations for peace and security, so that the children of today may benefit the future.  We don't see it as an added responsibility but purely of human conviction to lend a helping hand to those in need.

We are making it a moral responsibility to preserve life and humanity as we continue to display our courage and dedication towards that end. 

We fervently hope that for all our sincerest intentions, we are doing the right thing for the people of East Timor.  We wish everyone the best things to come now and in the future!

 

Merry  Christmas and Happy New Year!

 

Nota Bene: 

The Author is a professor in Political and Social Sciences at the University of the Philippines, Clark and presently serving as a peacekeeper whose personal view does not necessarily perceive any official stand..