Indonesia and Portugal Sign Historic Deal on Timor, U.N. Endorses Plan

by Eva Titus

Indonesia and Portugal signed landmark accords at about 04:00 hours (Timor time) on May 6, 1999 to enable the people of Timor to choose wide-ranging autonomy under continued Indonesian rule or move towards independence. If they reject autonomy, Indonesia promised to reverse its annexation of the former Portuguese colony and allow the UN to put it on the path to independence. The signing, by Foreign Ministers Ali Alatas of Indonesia and Jaime Gama of Portugal at UN headquarters, climaxed more than 15 years of UN-sponsored negotiations.

Text of Timor Security Accord

Following is the text of an agreement signed on May 6, 1999 by the foreign ministers of Indonesia and Portugal and by U.N. Secretary-General Kofi Annan regarding security for an August 8 vote to enable the people of Timor to say whether they accept or reject wide-ranging autonomy within Indonesia:

Indonesia Approves Autonomy Package

Indonesia's cabinet May 3 formally approved an autonomy package to be presented to troubled Timor in an August 1999 ballot. Foreign Minister Ali Alatas took the package to New York for signing with Portugal on May 5 (New York time), Information Minister Yunus Yosfiah told reporters.Yunus also said U.N. civilian police advisers were expected to go to Timor around May 10.

"Today's cabinet meeting gave agreement for three concepts that will be taken by Foreign Minister Ali Alatas to New York for signing by Portugal's foreign minister on May 5," Yunus said after a cabinet meeting.

He said that there had been no change to the framework of the package, which was originally worked out between Alatas and his Portuguese counterpart Jaime Gama in New York in April. The approval of the Indonesian cabinet was needed on sections for the agreement covering security -- including the U.N. police advisers -- and how the vote would be held.

Portugal is the former colonial power in Timor, and is still recognized as the administering authority by the United Nations.

Timor Tense but Quiet, Newspaper Re-Opens

Timor's capital Dili was still in the grip of pro-Indonesia militias on May 2, 1999 but no fresh violence was reported despite a threat by one paramilitary group to "ethnically cleanse" the city of independence supporters.

Pro-independence students shout for rebel leader Xanana Gusmao in front of an Timorese flag at a protest in Dili.

The only newspaper in the troubled territory, Suara Timor Timur, said it would start publishing again on May 3, two weeks after pro-Jakarta loyalists trashed its office during a rampage through the city that left up to 30 people dead. But intimidation of journalists continued in Dili. Two Reuters journalists and another foreign reporter were threatened by knife-wielding militia members when they went to a house in Dili to try to interview a human rights activist. The militia members ordered them to leave, and kicked and punched the taxi of one of the journalists as it drove away. Attacks on foreign journalists had become increasingly frequent in Timor. Amnesty International said on April 29, 1999 a group calling itself Red Blood Commando had circulated a document in Dili, vowing to attack independence supporters from midnight on April 30/May 1. "After the passing of the deadline, we will conclude that everyone left in Dili, be they man or woman, old or young, child or adult, is an anti-integrationist who should and must be exterminated and wiped out," the document said. But there was no sign the group had tried to carry out its threat. It made a similar threat in the past and failed to act on it. "The militia threatened some foreign journalists this morning [May 2], but so far there is no sign of violence," one resident said.

Pro-Indonesian militias have been waging a bloody campaign ahead of an August 8 vote on special autonomy within Indonesia for Timor. If the Timorese reject autonomy, President B.J. Habibie has said the territory would be given independence. Hundreds of people died in pro-Indonesia militia attacks and many pro-independence activists have gone into hiding. Violence escalated since January 1999 when Jakarta reversed 23 years of policy and said it would consider granting independence.

Timorese welcome signing of U.N. ballot plan

Separatists in Timor on Thursday cheered the signing of a U.N. plan to decide the territory's political future in the voting booth. Anti-independence activists accepted it with reluctance. Indonesia and Portugal signed the agreement May 5 in New York allowing the Timorese to vote Aug. 8 on whether to remain part of Indonesia or become independent. Indonesia invaded the former Portuguese colony in 1975 and annexed it a year later.

U.N. Secretary-General Kofi Annan, who hosted the signing ceremony at U.N. headquarters, urged an end to the recent upsurge in violence in Timor. Pro-Indonesian militiamen have killed dozens of civilians in recent weeks, and separatist rebels staged several attacks on the military.

According to the agreement, the Timorese will be asked to vote for one of two propositions: "Do you accept the proposed special autonomy for Timor within the Unitary State of the Republic of Indonesia?" or "Do you reject the proposed special autonomy for Timor, leading to Timor's separation from Indonesia?"

"This is a historic moment," said UN Secretary-General Kofi Annan, who signed the main agreement as a witness. "I strongly urge all elements and political tendencies in Timor to refrain from any resort to force and to cooperate with the United Nations in fulfilling its vital tasks."

A major fear is that anti-independence militias, with the surreptitious backing of elements of the Indonesian army, will expand a campaign of violence that had already claimed scores of lives and disrupt plans for the UN-organised autonomy vote, or "popular consultation," set for August 8. Mr Alatas, Mr Gama and Mr Annan also signed two accords dealing with the organisation of the vote and security arrangements.

Mr Gama immediately announced Portugal would contribute US$10 million for the UN operation to prepare for the vote which will include a contingent of 600 civilians. In addition there will be an unspecified number of unarmed UN civilian police. There are no plans to deploy a large force of UN peacekeeping troops, as called for by pro-independence groups who do not trust Indonesia's military and police to ensure conditions for a free and fair vote.

The UN Security Council welcomed and endorsed the agreement. Mr Gama said the operation was estimated to cost between $30 million and $45 million.

Mr Alatas said all agreed on disarmament of rival groups "but we are realistic enough to know that special steps need to be taken". He said disarmament required the cooperation of all groups, including those favouring independence.

"I think we can move forward to a solution of a long-standing question, a question that has brought already a lot of sorrow and suffering to the Timorese people but which we hope by August 8 will lead towards a solution one way or another," Mr Alatas said.

Mr Gama stressed the need for a secure environment for the vote. Addressing Mr Alatas, he said: "All of us are now committed to have these agreements as our law and to abide by what is in the spirit and the letter of what we have agreed."

The agreement signed by the parties says that Indonesia is responsible for maintaining law and order and that the "absolute neutrality" of the Indonesian armed force and police is essential. But it said Mr Annan would ascertain "that the necessary security situation exists for the peaceful implementation the consultation process."

Eligible to vote will be everyone aged 17 or over who was born in Timor, had at least one parent born there or is married to a person with those qualifications. Exiles can register and vote in a variety of places, including specified cities in Indonesia, Australia, Portugal, Mozambique, Macao and the United States.

If Mr Annan determines, as a result of the vote, that "the proposed constitutional framework for special autonomy is acceptable to the Timorese people, the government of Indonesia shall initiate the constitutional measures necessary for the implementation of the constitutional framework." If Mr Annan determines that autonomy is not acceptable to the Timorese, Indonesia "shall take the constitutional steps necessary to terminate its links with Timor thus restoring under Indonesian law the status Timor held prior to July 17, 1976".

Indonesia, Portugal and the UN secretary-general would "agree on arrangements for a peaceful and orderly transfer of authority in Timor to the United Nations". The secretary-general would then "initiate the procedure enabling Timor to begin a process of transition towards independence." Leandro Isaak, a pro-independence leader in Dili, Timor's capital, said the U.N. plan recognized the right of his homeland's 800,000 people to choose between independence and a measure of autonomy.

"We welcome the signing in New York," he said. "But let's wait and see how things turn out after the people are informed about the plan."

Students demonstrate

Hundreds of pro-Indonesian students rallied in Dili on May 6

Outside the state University of Timor, about 100 students demonstrated for independence and raised a banner that read, "Reject autonomy in every form." Pro-Indonesian Timorese, including militia leaders, said they accepted the ballot because they had no choice. "We will accept any kind of outcome" in the vote, activist Basilio Araujo said in Jakarta, the Indonesian capital. "Now we are powerless to stop the process that has been going on." Araujo, who is affiliated with the militias, said the groups were willing to disarm but were concerned about giving up their weapons if separatist guerrillas in the hills remained armed. Florentino Sarmento, a former legislator who supports autonomy, said the ballot plan was positive because it would provide an outline of the autonomy proposal. The autonomy offer would give the Timorese control over local administration, education, and cultural affairs, while Indonesia would keep control over security and defense. "Our struggle is bearing fruit since we've been fighting for this for a long time," said Sarmento, head of a government-backed human rights commission in Dili.

Belo calls signing a step forward

Militia leaders had criticized the U.N. package and had threatened U.N. advisers who are expected to arrive in Timor starting next week to help guarantee security. Militia leader Eurico Guterres said he accepted the ballot plan but could not ensure the safety of U.N. staff. The hundreds of U.N. advisers will work with Indonesian troops, who have been accused of collaborating with militiamen during their attacks on suspected separatist sympathizers. The military has acknowledged providing training and weapons to some militia groups but says the armed civilians are supposed to be neutral peacekeepers.

Bishop Carlos Belo of Dili, a co-winner of the 1996 Nobel Peace Prize for his efforts to solve the conflict in his homeland, said the signing in New York was a step forward.

"I hope the U.N. police forces will cooperate with the Indonesian police to create a peaceful situation prior to the August ballot," Belo said.

U.N. Council Endorses Plan for Timor Vote

The U.N. Security Council unanimously endorsed on May 7 agreements that would enable the people of Timor, a former Portuguese colony that Indonesia annexed in 1976, to decide their own future in an August 8 vote. Some 200,000 Timorese died in fighting or as a result of hunger and disease following Indonesia's occupation of the territory that Portugal abandoned after its 1974 anti-fascist revolution.

The Security Council resolution, sponsored by Britain, stressed the responsibility of the Indonesian government "to maintain peace and security in Timor" to ensure the voting is carried out "in a fair and peaceful way and in an atmosphere free of intimidation, violence or interference from any side."

Scores of people have been killed, mainly by anti-independence militias, since Indonesian President B.J. Habibie announced in January his government's willingness to reverse the annexation if the Timorese reject autonomy. The resolution welcomed the accords and the intention of Secretary-General Kofi Annan to establish as soon as practicable "a United Nations presence" in Timor to assist in conducting a "popular consultation" of the wishes of the Timorese. It also welcomed his plan to make available "a number of civilian police officers to act as advisers to the Indonesian police" and to supervise the escort of ballot papers and boxes to and from the polling sites.

The United Nations is expected to send about 600 civilians and an unspecified number of police advisers to Timor but no numbers were spelled out in the accords. They also do not provide for the dispatch of U.N. peacekeeping troops, as had been called for by pro-independence groups distrustful of the Indonesian army and police. The issue of security was stressed by Annan in a report to the council on Thursday containing the texts of the accords. He said he had emphasised to the parties what would be needed "in order to enable me to determine that the necessary security conditions exist for the start of the operational phases of the consultation process."

These included "the bringing of armed civilian groups under strict control and the prompt arrest and prosecution of those who incite or threaten to use violence." The Security Council resolution asked Annan to keep the council closely informed of the situation in Timor and to provide a report by May 24 with details of the voting process and recommendations about the mandate, size and structure of the U.N. mission. Annan was also asked to provide reports every 14 days thereafter, suggesting the council intends keeping a close watch on the situation. He was requested to inform the council before the start of voter registration, due to begin June 13, whether "the necessary security situation exists for the peaceful implementation of the consultation process."

The resolution welcomed Annan's establishment of a trust fund to enable U.N. members to make voluntary contributions to support the U.N. mission in Timor and urged all members able to do so to contribute without delay. Portuguese Foreign Minister Gama said on May 5 the operation was expected to cost between $30 million and $45 million and handed over a $10 million check from his government. Australia has given $7 million and pledged the same amount in equipment and other items for the U.N. mission.