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Background and Context
In 2001, the Bougainville Peace Agreement (BPA) was signed between the National Government of Papua New Guinea (GoPNG) and leaders representing the people of Bougainville. The BPA marked the end of a decade-long civil conflict in which up to 20,000 people died and many more were left without family, access to basic services and infrastructure, traumatized and scarred for life. With an estimated population of over 300,000 people, speaking 28 languages, in 33 constituencies stretching from the atolls and islands to the mountains that dominate the Centre of the mainland, Bougainville is an incredibly diverse region. Bougainvilleans voted overwhelmingly for independence in the 2019 referendum and the two governments are now consulting on the ratification of the referendum outcomes and the next steps in Bougainville’s peace process.
The UN Peacebuilding Fund support in Papua New Guinea
The UN Peacebuilding Fund (UN PBF) Programme in Papua New Guinea started in 2014, following declaration of eligibility of PNG for PBF support in 2013 by the UN Secretary-General. The Peacebuilding Priority Plan, covering period of 2015-2018, supported implementation of the Bougainville Peace Agreement (BPA), reconciliation and weapons disposal, as well as preparations for Bougainville Referendum. The 11th of December 2019 marked a historical moment for PNG – Bougainville relations, and implementation of the Bougainville Peace Agreement (BPA), with the announcement of the Bougainville Referendum result of 97.7 per cent of voters choosing Independence from PNG. Following the referendum vote, the PBF renewed its peacebuilding support, hand in hand with that of the Department of Political Affairs, focusing on aspects of political dialogue in post-referendum process, engaging outlier factions in peace process and awareness-raising activities on BPA and post-referendum processes.
The PBF Sustaining Peace in Bougainville Project
The UN PBF funded Sustaining Peace in Bougainville project (https://mptf.undp.org/factsheet/project/00111260) commenced in June 2018 with an initial budget of $4 million, and has focused on supporting the peaceful and inclusive completion of the 2019 Bougainville Referendum. The is a joint project implemented by UNDP, UNFPA and UN Women with their governmental and non-governmental partners.
Following the successful completion of the referendum in Bougainville, and in order to accompany and support the inclusivity and legitimacy of the post referendum negotiations and processes in an environment where these complex risks had the potential to pose challenges to sustaining peace in Bougainville, the Project received a cost extension of $1 million until January 2022. In January 2022, the project was given a final no cost extension till end of July 2022 to enable it to complete activities delayed due to COVID-19 outbreak and effects.
The second phase was designed to assist the two governments and the people of Bougainville and Papua New Guinea to continue to sustain peace and address potential tensions points during the post-referendum period. The cost extension closely complements and collaborates with the UNDP’s ‘Post Referendum Support Project’.
Where the Post Referendum Support Project primarily targets its support to the joint consultations and the ratification process through the operationalisation of the joint secretariat and technical support to the working groups, the PBF-funded project complements by ensuring marginal groups are empowered to participate in the consultations and in the decisions, and that those remaining groups outside of the peace agreement are supported to join, in an environment where Human Rights are upheld. Given the complementarities of the two projects, UNDP has a joint Annual Workplan for two projects, specifying the activities funded through each project.
The PBF Project has the following three outcomes:
Outcome 1: Enhanced political dialogue between the two Governments and the two Parliaments, ensuring decisions around BPA implementation, the referendum and post referendum are progressed jointly
Under this outcome, the Project extended support to Post Referendum Joint Ministerial Consultations Preparation Team, as defined by the Joint Supervisory Body (JSB) meeting of March 2020. Logistical and administrative support was provided to ensure timely conduct of political dialogue consultation meetings and implementation of joint agreement on post- referendum processes, and resolutions by the two governments. This outcome is implemented in close partnership a the range of institutions, departments and other key actors working to advance the peace process in Bougainville. These include, among others, the Offices of both Chief Secretaries, NCOBA (National Coordination Office for Bougainville Affairs), DoIMI (Department of Independence Mission Implementation) as well as both parliaments.
Outcome 2: Increased dialogue and awareness on the BPA, referendum, and post referendum issues, ensuring that both the population in and outside of Bougainville is informed and feels included in the process
Under this Outcome, the project has been supporting granular awareness activities on the post referendum process and progress, and Peace Agreement by engaging key stakeholder groups: Women, Youth, Churches, Veterans and Communities to empower them to participate in the process. To achieve this, community facilitated dialogues have been conducted based on agreed joint key messages throughout Bougainville. The project also supports a national media-based awareness campaign to keep all Papua New Guineans updated on progress.
Outcome 3: Strengthened unification of outlier communities into the peace architecture and post-referendum dialogue
Under this Outcome, the project has been supporting initiatives and activities that support the two remaining outlier groups in Bougainville (i.e. those that did not formally sign up to the Bougainville Peace Agreement) to engage with the peace architecture. As part of this Outcome, the project has also supported reporting on and prevention of Human Rights abuses, and the identification of economic opportunities in the outlier factions’ geographic areas, as well as promoting community buy-in for peace.
The Post Referendum Process Support Project
The Post-Referendum Process Support Project (The Project) was designed to support the ongoing Bougainville peacebuilding process. The Project frames the support that the UN through UNDP can provide for the immediate post-referendum processes, including provision of technical and logistical support to the Secretariat, capacity building, support on the ratification process, continued awareness to the people of Bougainville and PNG on the progress and ensuring inclusive opportunities that supports meaningful participation. The latter being a key part of ensuring that the agreed outcome of the consultations is accepted by the people of Bougainville and of PNG alike.
The project builds on a continuation of support the UN, and in particular UNDP, has extended to the two governments since the signing of the BPA. In particular developing further the interventions initiated under the Sustaining Peace in Bougainville Project, that supported the Post Referendum Planning Taskforce in its preparations for the post referendum period, and the Bougainville Referendum Support Project, which supported the BRC to achieve a credible, inclusive and transparent referendum. The project provided independent, neutral support to the two governments to assist in the progression of the BPA with a particular focus on the post referendum process. In addition, the project also supported the two governments to design and implement solutions that had maximum impact on progressing the post referendum process in a peaceful, inclusive, and transparent manner in collaboration with other actors.
Building upon the result of the Referendum and the work of the Taskforce, the project continued to support inter-governmental dialogue between the GoPNG and the ABG, via the post-referendum process. Resources are used to ensure that people across Bougainville and PNG are made aware of the progress through use of participatory processes such as storytelling and traditional means of communication, community-level dialogue and additional media-based awareness tools. The project has the following outcome and outputs:
Outcome 1: By June 2022, the Bougainville Post-Referendum Process has successfully progressed with joint consultation developments understood by the people in Bougainville and the rest of Papua New Guinea.
Output 1 Key institutional and operational capacities at national and sub-national level are strengthened to support a successful post referendum process.
This output is implemented in close partnership with a range of institutions, departments and other key actors working to advance the peace process in Bougainville. This include, among others, the Post- Referendum Secretariat, Department of Prime Minister, Offices of both Chief Secretaries, the National Coordination Office for Bougainville Affairs, Department of Post-Referendum Consultation and Dialogue, as well as both parliaments, in close coordination with other development partners supporting the two governments.
Output 2: Increased awareness on the post referendum process and progress ensuring that both the population in and outside of Bougainville is informed
With the referendum result known, ensuring that the population is adequately prepared to support the post referendum consultation process and accept the joint outcome, an informed understanding of progress is vital.
Output 3: Increased opportunities for an inclusive, peaceful process for all stakeholders to participate in the Post Referendum Process and contribute to a future Bougainville
With the post-referendum process commencing, ensuring that the key stakeholder groups are adequately involved and included to discuss and input into the subjects being consulted upon and future arrangements to move forward, in a united manner with a shared concept of a future Bougainville.