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7/11/1971 - Self-Government in Papua Guinea: New Coming, Ready or Not by Edward P. Wolfers

NOT FOR PUBLICATION INSTITUTE OF CURRENT WORLD AFFAIRS E P O Box Self Government Papua New Guinea Port Moresby Coming Ready Or Not Papua Papua New Guinea July Mr Richard H Nolte Executive Director Institute Current Vorld Affairs Fifth Avenue New York New York United States America Dear Mr Nolte Both Australian government members Papua New Guinea House Assembly subsequent blessing United Nations Trusteeship Council recently agreed proposal development Papua New Guinea geared preparing country internal government during House Assembly between As process preparation unconscious appropriate irony country which still heavily external economic assistance continued development Territory Paua New Guinea renamed Papua New Guin first financial The Territory deleted country official remove outward symbols dependence dropped promote national unity A erblem which reproduced Newsletter brought official national second Monday September decle July Ist therefore marked Administrator IIa significant development Papua New Guinea nation message printed G o_wenent Gazette Et raordina_ry translations Pidgin Police Motu replete paraphrases language explain nation After brief outline historical circumstances which these changes taken place Newsletter consider nature implications other preparations required From_ _Depe_nden Conservatism Looking across watershed Australia policies political development Papua New Guinea during previous decade broad whipped foreign winds change which people Serritory found neither footing successful stroke At crest surge Australian government proudly accurately proclaimed House Assembly local government councils emerging parliamentary executive reformed ahead demand while simultaneously assured Papua New Guineans future international status timing EPW The Papua New Guinea National Emblem officially described partially stylized representation widespread Bird Paradise Gerrus paradisa display turned seated urned horizontal Kundu right which horizontal ceremonial spear projects To right diagonal col0ured black The Bird Paradise coloured yellow SOuthern Cross EPW their governrent theirs determine However beneath surge general policy there undertow practice which official members seemed observers Concerned managing passage government business encouraging beration house Assebly Administration field officers appeared United Nations Visiting Mission exercise influence local government councils despite renaming council supervisors advisers seven Ministerial Members appointed expected represent Administration relation those functions assigned example regarding questions motions House rather policies Administration implement In short institutions through which Papua New Guinea political development fostered established their formal powers composition altered sufficiently ahead popular demand widespread understanding initiative further change Australia hands where effective power within these institutions still remained The effect particular combination policy practice foster dependence Australian leadership skills among Papua New Guinea aspiring politicians rather encouragement power exclusive sense p_ersonal responsibility decisions which Max Weber politician There course Papua New Guineans pulled their colonial moorings At local level their attempts organisation frequently offhandedly dismissed actively suppressed officialdom manifestations seemingly irrational cargo activity regarded perhaps conceived informed responses frustration which could channelled constructive activities When relatively educated townsmen tried constitutional changes their accused officials being unrepresentative people whole ungrateful impertinent indigenous public servants became involved politics their superiors often regarded unnecessarily restrictive their political rights public duties country which public service tended absorb educational elite But Minister External Territories Honourable C E Barnes Papua New Guinea often Highlands people spoke about roads bridges government seemed political implications their requests He wished people Papua New Guinea develop their country economically He simply failed temperamentally disinclined perceive allocation money manpower building roads bridges between districts against hospitals schools channelled direct their allocation therefore policy making process Thus benevolent paternalism rendered transition acceptance concrete meaning government difficult If there conflict between official paternalism aspirations Papua New Guineans latter rarely emerged private grumbling ambition public action still noticeable called radicals appeared leadership government general p01icy matters Instead hitherto received seemingly ended commitment continued paternalistic which masqueraded flexibility level coupled quite control political activity within attempted restriction discouragement activity outside political institutions foster Papua New Guinea political development As progenitors PGU Pati pointed mingled suspicion anxiety There reason Federal Government announced plans Or because often easier nothing mistakes other But think policy It people Federal Goverznent wants stage The Select Committee Constitutional Development John Guise noted V pressed Federal Government their silence force intend introduce responsible government None preceding movements couplainants pierced superficial fabric unity democracy acquiescence institutions voting order which Administration iuposed Papua New Guinea The Australian government continued believe cooperation development decolonization which effect meant ledership Australia Papua New Guinea putative interest possible countries vested interest protracted Australian whatever members United Nations might think Throughout sporadic local difficulties Hahalis Welfare Society Buka Johnson New Hanover Australian government political problems contend accepting responsibility government Papua New Guinea It indeed until seeming harmony prevailed openly dramatically challenged throug massed confrontation between village people police Kieta Bougainville scale demonstrations violence Gazelle Peninsula New Britain Australian government given cause ponder implications paternalistic gradualism Until politics beyond village largely matter pressing central government through local member House Assembly particular Benefits Very Papua New Guinean oliticians forced government entailed allocation priorities between different areas country various aspects development certainly sought control allocation process Most indigenous members House Assembly example tended themselves patient spokesmen their people against government cheerleaders Administration encouraging local EPW schemes cropping Thus Mr E G Whitlam Leader Federal Parliamentary Opposition Australiatoured Papua New Guinea December January advocacy inevitability independ imminence internal gOvernment Papua Ne Guinea politicians tactic wilful disrupter status members PA GU Pati Mataungan Association support their causes against government adherents In Mr Whitlam implying great either admirers detractors He saying Australian parliament responsibilities beyond Papua New Guinea primary responsibility people Australia In Australia interest Papua New Guineans should saddled increasing responsibility their gover nment As quite explicitly another rritory January fabric government imposed Papua New Guinea Australia danger being broken which Australia could avoid embarrassment herself provide maimt emance orderly national government Papua New Guinea reverse notion unity prerequisite government Perhaps immediate saddling Papua New Guineans greater rsp0nsibility their government would Urgency commitment which hitherto apparent Australia obligation United Nations Papua New Guinea single entity possible Papua New Guinea chance remaining united government comes quickly Self goverment itself unifying force country Te delay government promote separatism Self goernment given quickly people whole otherwise section after section seize anger bitterness towards should grant wholly wholeheartedly In short Mr hitlam tended dismissed Papua New Guinean politicians disturbing intervention internal politics Papua New Guinea Select Committee Constitutional Development found April May majority people still unwilling consider imrnal government should about However after Right Honourable J G Gorton visit July Australian Prime Minister himself spelt urgent Papua New Guineans undertake increased responsibility their government dependence forced become mother increasingly autonomous conservatism Those politicians feared change their relations government difficulties would follow without change their hands forced They protested against introducti constitutional reforms without prior consultation House Assembly reluctantly cepted inevitable By early majority people oapua New Guinea government ineluctably dgawing though recognised somewhat negative reportedly saying should about sooner during House Assembly Thus Select Committee Constitutional Development recegnising inevitability government generally fearing victory Labor Party Australia seeing prevalence willingness consider timing government could political momentum recommendation cited opening sentence Newslettert T_h _Develo_m Parliamentary Executive In respects Papua New Guinea appears almost better prepared g0vernment Select Cormmittee implies Since House Assembly empowered legislate peace order government Territory subject Administrator assent Governor General approval elective indigenouscomponents executive branch gradually increased By there seven elected parliamentarians selected become Ministerial Members share respons ibility running their departments their departmental heads A further members appointed Assistant Ministerial Members their departmental heads instructed consult wherever possible Together three official embers additional elected member House Assembly seven nister Members Administrator Executive Council under chairmanship Administrator Formally business preparing Papua New Guinea under What lacking start legal authority power system really It course difficult arrive conclusions about operation institution Ministerial Member system The relations pertained among Ministerial Members themselves between their departmental heads confidential varied However guesses based partly negative evidence The Ministerial Member Education Matthias Toliman C B E example himself former schoolteacher always seemed active informed interest department appeared receive encouragement By contrast problems beset functionally illiterate English speaking 4inisterial Member immense challenge assiduity those cases which department concerned matters N little direct impact village level In parliament principal public arena which their performances judged Ministerial Members answer questions still fewer manage score politically through answers speeches prepared their departmemts Mr Matthias Tliman Sme trouble reading PidGin English texts which their departmental briefs Juging obvious reluctance which several Ministerial Members leave their constituencies capital pnblic complaint Ministerial Members Labour Toua Kapena CoB E lives Port Moresby called often quort Administrator Executive Council Ministerial Members highly motivated towards participating affairs eIbryonic cabinet It Ministerial Members given little formal authority until Administratio sometimes Seemed endorse rather encouraged deliberate rtain policies Indeed until appear aacess essential resources regular document despatch service their electorates assured secretarial assistance funds political agents attend their interests while their constituencies Only during department entitled employ officer level Clerk Class brief ministerial department prepare translate submissions orders actually execute However Administration failure provide ezerging parliamentary executive essential resources reluctance authority problems inhibited development fullblown ministerial system At heart system shortcomings Ministerial Members continued acceptance their dependence Administration Only ahanful triedt above carve their within broad framework government policy authority facilities lacked would surely given exerted enough pressure Administration Some Ministerial Members retrospect accepted office prestige ensure representation their region Territory political system perhaps radical potentilly active Against background perhaps little surprising might first appear following promises nister ternal Territories March should regarded enhancing authority Administrator Eecutive Council Firstly consulted significant policy issues secondly advise significant departmental questions referred Ministerial Member thirdly greater voice procedures framing TerritOry budget negoti Canberra Il change speculate naturefthe preparation cabinet government undertaken althoug aspirations possibilities perceived I nisterial Members appear great As Tore Lokoloko Ministerial Member Public Health educated among number observed May after Ministerial Members given final authority administration their departments EPW throuEh spending month A E C meetings Ministerial Members become truly involved government Papua New Guinea Our collective views being constantly sought important matters making decisions Increasingly making political decisions matters before consider reasons something should politically abeep policy would This result alterations proposal deferment until political climate better A highly motivated autonoous group individuals would seems arguable either demanded power themselves existin system unworkable until Tore Lokoloko Only July cases reluctance Papua New Guinea Ministerial Members saddled substantial amount authority Their formal dependence Australian leadership abruptly terminated simply informed would henceforth responsible certain policy fields Above politics member pushing against Administration money constituency tendency which Assism Ministerial Members extended relation their departments annual budget debate recast Papua New Guineans first numbered among active participants negotiations Australian government annual grant allocating money between within departments The change course dramatically presented foregoing might imply Australian Prime Minister adamant stressing continuity between proposed before His message nonetheless clear despite reassurances months Ministerial Members hitherto dependent government began urgency organise parliamentary extraparliamentary political themselves But again probably power first appeared actually handed In Australian grant still accounts Administration total expenditures including allowances overseas public servants And grant itself divided parts which appropriations Australia shown brackets Grant Recurrent Expenses Minor Works million Development Grant million Development Loan million Allowances other benefits expatriate officers Papua New Guinea Public Service million In addition million development Arawa township Bougainville further million available cover costs Administration euity Bougainville Copper Pry EPW Ltd Further Comonwealth expenditures Papua New Guinea include cover costs pensions retired officers administrations million which provided economic through Commonwealth departments agencies operating directly Papua New Guinea exclusive Commonwealth defence expenditures within P New Guinea The annual Pacific Islands Regiment estimated million Of elements single grant money overseas alloances indigenous public servants Australian budget Prime Minister announced everyone comes Australian taxpayer PrOvided inside Australia provided Territory longer appears Papua New Guinea budget Beth development grant provision money special development loans remain responsibility Australian government although subject negotiations between Canberra Eonedobu The element budget technically Papua New Guinea hands grant supplement locally raised revenues paying recurrent expenditure minor works Although grant spent discretion Adm inistrator Executive Council total amount negotiated Australian government money required latter provide Prime Minister It provided House Assembly prepared impose taxes required Indeed speaking Australian government expected there would effort local people raise revenues inside Territory years purpose recurrent expenditure these minor workS Although Prime Minister cautious avoid suggestion Australian Papua New Guinea cease short levels which economic development predicated seeming toughness responsibility economic affairs transferred power handed struck responsive chord Australian circles As Papua New Guinea politically quiescent mounting Australian grant passed virtually unnoticed there except occasional source pride remimder gratitude Fuzzy Wuzzy Angels However demonstrations disturbances increasing number Australians begun speculate public whether million could profitably spent elsewhere speculation became quite criticism condemnation ingratitude Papua New Guineans newspaper editorials state premiers senior official Returned Servicemen League after confrontations between police Tolais Gazelle Peninsul July Papua New Guinea leaders therefore increasingly responsible politically their behalf given nature development loans grants manoeuvre spending grant which restricted continuanc existing services derided belief inister External Territories given perhaps bitter EPW Political autonomy compatible extreme economic dependence At departmental level Assistant Ministerial Members given responsibility running their depart ments July relation administration individual departments Administrator Executive Council Ministerial Members given final responsibility appears every field Administration activity except tertiary education judiciary enforcement order internal security external affairs trade large scale development projects connected economic development programme For being however certain Commonwealth departments continue operate directly Territory though their indigenous staffs being absorbed Papua New Guinea Public Service Not costs these departments especially Department Civil Aviation Army remain partly hidden within overall nistrative expenses their Canberra headquarters political implications their activities From Canberra perspective upgrading particular airstrips Highlands ordering weapons Pacific Islands Regiment fairly level administrative problems In context Papua New Guinea would stuff national politics Finally sheet message Ministerial Members Papua New Guinea parliament increasingly responsible their decisions within constricted realities territory economic situation Australian government instructed official members Administrator Executive Council Administrator Council advice promised disallow withhold assent legislation those fields which final authority handed Since official members House Assembly tended abstain voting especially Constitutional issues But still Variety issues almost arguable times provided gratuitous votes Ministerial Members And nisterial Members Mr T J Leahy their voting alone albeit official encouragement electe expatriate farmer grazier T J Leay Spokesman Administrator Executive Council House Assembly The deputy proto Prime Minister often called Papuan Tore Lokoloko 0rganisin Opini Less months after Mr Gorton Papua New Guinea Select Committee Constitutional Development issued EPW interim report which captured quite nicely rather curious political situation parliamentarians found themselves The Administration Connittee recommended should requested employ radio stations press facilities political education programme greatest possible coverage changes recently background these changes people Territory aware changes discussions Committees House Aust ralian Government merely towards government rather imposed change direction Territory future The ordinary village people Papua New Guinea prepared government might understand easily accept recent changes mobilised their leaders press resist their introduction their parliamentary representatives unable without assistance Adm inistration claim retrospective credit transpired The majority members House Assembly dependent government political education programme inform their constituents about Ministerial Members responsibilities despite Select Connittee elaborate consultative ritual members themselves largely failed involve their people politics change Until quite recently there remarkable absence substantial bodies organised indigenous opinion Papua New Gminea emerging national politics phenomenon which cause effect Australian government tendency introduce constitutional changes territory ahead popular demand political power there Recently however accelerating picture begun change Between majority elected members House Assembly adherents particular party independently elected members individually small groups inclined towards without finally adhering other nodes official members Voted slightly cohesive PA Pati parliamentary membership which fluctuated between eight twelve which declared itself loyal opposition announcing boycott ministerial offices Around government clustered eight elected members Administrator Executive Council Assistant Ministerial Members numbered either eight different times individually responsible esenting Administration House Although generally supported government issues HoUse Assembly simply absented themselves beforehand occasion walked ostentatiously chamber divisions calle issues which differed seriously official members The ministerial office holders unlike their counterparts Westminster Canberra responsible House Assembly Administration though nominated office committee elected members Their bargaining position vlsTa official EP I The House Assembly session members Administrator Executive Council weakened among other factors party organisation themm outside Council together inside In HoUse Assembly there again formal majority House assure support Nonetheless majority elected members supported principles which embryonic ministry established broad nature membership From first meeting second House June elected members members P GU Pati including ministerial office holders began together outside formal sitting hours discuss forthcoming business House The leadership became known Independent Members Group alternated among group people though generally least Papua New Guinean In group founded expatriates largest affairs But politics beyond ordinances outlawing sorcery playing cards their always predominantly expatriate affair House Assembly which increasing number flareups years which Papua New Guinean politicians blazed expatriates dominating debates fomenting dissension especially dissension regional lines amongst themselves Twenty eighty elected members second House expatriates among concentrated overwhelming proportion elected collective financial educational resources EPW overseas perience familiarity parliamentary practice social linguistic access predominantly English speaking expatriate upper echelons Public Service Port Moresby The important anised extra parliamentary interest groups access House Assembly these which Public Service Local Government Associations represent mainly indigenes headed expatriates Highland Farmers Settlers Association various chambers commerce planters graziers associations anised principally further expatriate economic interests Their secretaries Other officials politick speak language themselves every sense expression The expatriate members House especially ReHional members therefore brokers behalf those indigenoUs members their Districts openly resent their dominance members PANGU Pati They increasingly important politics their Districts across party lines issues erests national politics When especially controversial issues debate detailed amendments measure proposed official members tended beyond ministerial office holders expatriate members while District Commissioners among their number dealt their local members Within Independent Members Group wholE issues tended raised explained expatriates occasional outbursts indignation frustration Papua New Guineans resented their seeming dominance Only Of Ministerial Members handful obstinate individualists Leader Parliamentary Wing PANGU Pati Mr chael Somare played major private discussions Compromises preceded debates The conviviality close residence expatriate members several stayed single hotel tended increase concentration times intensity politicking place among while indigenous mmbers dispersed before after formal sitting hours Port Moresby What politicking place among seldom surfaced Ministerial Members houses domestic uarters compounds hostel where stayed legislature The ideas interests indigenous members generally articulated expatriates tended otherwise overlooked officialdom press Few Papua New Guinean members capable passion trivialities constant assertion individual point which Harold Nicolson leads power parliamentary system They watched within House suppressed their mirth these expatriates spoke behalf Papuans entered debates generally expatriates Those members dissatisfied status turned their energies extra parliamentary politics which weight expatriate official presence burdensome could successfully opposed EPW Now constituencies Papua New Guinea local member subjected pressures could dealt through question notice paper querying administrative sight abuse request appropriate department bridge hospital school In electorates including almost those Highlands Districts which embrace twenty Open electorates member elected precisely because raport seems enjoy officialdom because obvious access governmen offic In these areas inligenous people often still closely involved pursuit traditional forms prestige within between their clans villages hamlets sustained interest central politics sufficiently frustrated fruits development oppose government The central government seems remote benevolent where pacification recently enforced there often great faith permanence Even longer contacted developed areas there remarkably little pressure local member other explain government doing inform government peoplets meeds wants These elected members establish their political machine persuade their constituents their interests pressing overnment particular projects their rather seeking power reallocate resources mobilise people themselves actively issues which As Mr Michael Somare Member contacted economically backward East Sepik District arliamentary Leader PANGU Pati Mr Michael Somare We political power attain another question Unless people politically sophisticated common there never sense oneness community At present confronted powerful organisation which makes difficult people organise themselves This element established force Administration which giver things people receiving Our people accustomed getting things nothing demand which course always given their request Therefore should oranise political groups express demands there reason And organisation harder extremely difficult wouldbe mobiliser politicise local organisations exist local government councils operatives workers associations unable affiliate directly political party mission bodies resist suggestion There alternative beginning organisation grassroots To party operated intermittently inside outside parliament PANGU Pati At writing consists members House Assembly regions Papua New Guinea other Highlands fulltime secretary Port Moresby perhaps members scattered throughout territory Formally organised branches party regularly Lae Madang Wewak rural villages Morobe Gulf Central Districts In Port Moresby laders recruit members PANGU members trade unions while twenty members Town Council party members In Lae party openly contested Town Council elections large endorsed candidates narrowly control council Otherwise educated Papua New Guinean townsmen identify themselves party leaders whether formally joined while Morobe District Maprik East Sepik there several thousand people joined PANGU another continue identify themselves through Mr Toni Voutas Mr Pita Lus respectively party though their initial subscriptions rarely renewed Although PANGU carefully worked policies detailed constitution branches national convention central executive council parliamentary provided upporters identify themselves party leaders fairly loosely being support constitutional changes ahead Australian government generally The PANGU Pati political party Papua New Guinea which functioned intermittently Crawford Young phrase buckle binding populace polity However November second serious attempt perfbrm function formally comnenced greater financial communications facilities disposal COMPASS which since renamed United Partywas formed meeting several hundred Highlands councillors members House Assembly Minj Western Highland It became parliamentary successor Independent Members Group Throughout Group existence various factions within competing leadership Group jockeying osition should formally become party However major stumbling block Group formal organisation party Highlands members especially parties associated rapid political change tended promote division They preferred loose cohesion dependent conservatism Group solidarity forward independent policies which associated parties At Group expatriate members tended block other ambitions party barring outright victory contest party interest seemed served through statu However constitutional changes announced July brought about fundamental chane political situation Messrs Tel Abal Sinake Giregire Ministerial Members Agriculture Stock Fish eries Posts Telegraphs respectively began dependent conservative power press their point against Australian Labor Party other avocates Of rapid chane Australian government Tus Mini meeting called party I twill favour change quick change Stressing stability maintenance continued economic developzent party opposed further transfers power territory without agreement House Assezbly Originally COMPASS Mr Tel Abal acronym derived Combined Political Associations party which planned organisa branches which members Independent Group expected within constituency However several members Administrator Executive C ouncil reached Independent Members Group individual parliamentarians their constituents party After great wrangling riminations especially among expatriate members Group exception Spokesman Administrator Executive Council F T J Leahy bypassed Mini meeting COMPASS began formally November meeting House Assembly At writing party consts about fifty members House Assembly together tight According party chairman Mr Tel Abal Too discipline party It flexibility Inded members averse party might being Independent Members Group although party organisational resources fulltime indigenous secretary services oraniser hitherto employed New South Wales branch Australian Country Party party which Mr Barnes belongs finances organise systematically Territory basis To however inaugural meetings branches disrupted arguments whether party expatriate dominated Goroka branch seems The party still lacks precise platform constitution The other parliamentary party account Peoples Progress Party breakaway Independent Members Group embracing quite markedly conservative disposition whose differences PANGU stylistic PANGU strident aggressive House As Peoples Progress Party lacks extra parlisentary members claim practising voting together House EPW A handful members House Assembly proclaim themselves members other parties legislative extra legislative importance remain quite conscientious independents They articulately radica ambitious elderly gentleman backward New Britain recently opened speech following naive sincerity I support views colleagues I tries influence We discussing Government We Port Moresby train We cannot hasten development Since June meeting House Assembly first timethad appearance being divided parties United Peoples Progress PANGU parties The Ministerial Assistant Ministerial Members official members would government benches Westminster The Peoples Progress Party PANGU Pati loyal opposition cross benches independents And United Party takes would Opposition seats Although these seating arrangements arrived reasons convenience Space location United Party seems light recent government policies especially government still opposition change should Ethnity_ Opin Despite appearance three major party groupings smaller parties floor House Assembly comprehensive coverage elected members still premature write Papua New Guinea national politics party politics None parliamentary parties partial exception PANGU Pati organisational roots territory while public opinion national issues remains fragmented largely reactive summoned sporadically presence United Nations Visiting Mission Select Committee Constitutional Development itinerant diplomat overseas Only occasionally demands complaints parochial interest thrust village level towns influence House Assembly Most members organised political machine party branches maintain interest support channel opinion their constituencies between elections However indigenous electorate mobilised interest sense vicarious participation national politics Papua New Guineans contented staus__quo mobilisation necessarily thedevelopment interest national politics Indeed almost exactly thereverse propositions In towns those Papua New Guineans become involved politics unskilled short itinerants frustrated their status territory social economic political systems They become involved politics their attempt remedy multiple psychological wounds inflicted these differences status overt racial discrimination which presently decline Oly later serious contemplation national future At Village level people connection between their needs wants those neighb0uring areas From perspective Canberra Konedobu Australian grant seems large village level often seems parsimonious ineffectual Village people generally desire benefits modernity development presses heavily scarcely visible centre They example little carrying patrol officers equipment between villages labour voluntary Schemes building roads bridges schools medical posts supplemamt official grants government approaches taxes their local government councils their children schools medical assistance obtain services which At village level wouldbe mobiliser malcontent locally visible issues against which frustration vented excessive alienation rising taxes other multifarious disruptions familiar round influx large numbers outsiders seeking physical dislocation caused mining which price development In regard differences contact history revolution rising expectations In early development content smallolders block large estate At first annual income almost nothing quite sizeable amount potential block exhausted frustration Sets At centre reasonable concentrate development expenditures baclard areas those greatest economic potential inhabitant other areas reasonable appear quite different Thus often appears parochial demands Papua New Guinea politicians potentially quite general frustration things focussed given expression through localised issues On other quite expatriate involvement wider issues government attempt preserve security investments against local rather national difficulties It against background young leave villages plantations schools towns where themselves others particular village Buka Chimbu Tolai These identities their areas where pacification improved internal communications facilities local government councils spread business activity fostering greater degree involvement another affairs among people erstwhile enemies strangers In resentmemt began expressed among Tolai East New Government Council Zritain conversion Gazelle euinsula multiracial their urban wantoks Pidgin speakers language notice happening began betweens central overnment negotiations issue Simultaneously educated dwellers originally Bougainville tried articulat their people frustrations demands consequent disruptions caused cop0er mining activities southern Bouganville terms coupreheusible places accessible press central government And acountry which national unity orthodoxy shared Azinistration parliamentary supporters obvious symbol ection existing authority there advocacy secession In speech favour Highlaner officis seems deepen beteen uuity irposed government yearnings iscontented The Mataungan Association ffice Rabaul The Mataungan Association formed oppose conversion Tolai local government council Gszelle Peninsula multi racial The Napidakoe Nsvitu emerged Kieta Bougainville oppose compulsory resumption developing coper there adjacent facilities Neither these bodies single issue movement They products quite sirsering rnging discontents social order which seems ignore against their supporters Both economic social political objectives interpenetrated growing sense Tolai primarily language based Bougainville identity based olour geographical contiguity respectively They emergence movement politics Papua New Guinea successful imitators already East Sepik Milne Bay Districts They total uplift areas concerned Mataungan Association Napidakoe Iavitu recently begun undertake business activities their members behalf accompanied first public rhetoric concerning EV expropriate Tolais rivals especially return redistribute alienated among Tolai second central government protect people Bogainville against other Papua New Guineans The future these ethnically based movements Papua Iew Guinea still unclear That ethers persist spread through parts Papua New Guinea seems likely What uncertain their precise future whether their oppositional blocks nationalism ethnic stumbl blocks unity They proucts breakin traditional barriers between contact political comunities their areas their reinteration larger bodies At riting Mataunan Association still copeting control Tolai while Napidakoe Navitu seems strongly committed Bouanville secession Papua Ne Guinea But ambivalence remains Mataunganism nationalism state Mr John Kaoutin spokesman Mataungan Association wears PANGU Papua New Guinea Union Pati shirt npublic Mr Leo Hannett writer univerity student supporter PANGU being first public advocates Bougainville secession because believes Bougainville national problem Mr Paul Lapun Deputy Leader Parliamentary PGU Pati Chairman Napidsoe Navitu And Papuan mebers House Assembly objected recommendation Select Conittee Constitutional Development territory renamed Niugini foster sense nationalism PANGU reconciled tension between oppesitional nationalistic commitments voting Papua New Guinea opposition externally imposed unity Contrary several current myths Tolai united nation before contact Bougainvileans ether tribal fights redskinned Papua Guineans sometimes still However these myths helping legitimate future which Whether leaders these movements eventually articulate their followers demands nationalistic opposition Australian foster their sense linguistic geographical racial separateness territory pursuit immediate lecalised objectives unclear At resent leaders PANGU Pati content sympathise With another beneath against imposed natiohal framework ittle serious apprehension independence future In circumstances tempted conclude independence exremely likely precede development widespread sense Papua New Guinea nationalism although national unity painfully sought sequel EPW It seems infer foregoing survey there Territory bodies political Papua New Guinea other Administration And despite repeated official protestations contrary Administration intensely political government development Papua New Guinea From Canberra perspective entire Papua New Guinea public service until recently least seemed regarded administrative Australian government assisting formulatio execution policy field service government department leaving important general decisions Minister External TerritorieS However Papua New Guineans Administration government It largest flung powerful organisation territory quite overtly political Up official members House Assembly three Administrator Administrator Executive Council All appropriation bills certain amendments require message Administrator ordinances passed House Assembly require approval Administrator Governor General acting advice Minister External Territories Certain areas government activityare still reserved Australian government final deciion making publicly dealt Administration officers Indeed given Papua New Guinea present status dependent territory Administration structure presence political issues those those advocate early government To wouldbe mobiliser Administration presence resources stumbling block Mr Michael Somare implied quotation above while conservative represents frontier between contact development In action instigator develoPment upholder order while structure changes political development proceeds As midwives local projects cropping advisers local government councils cooperatives businessmen policemen warders labour inspectors gatherers teachers doctors Administration officers perform overtly political change inducing roles The Division District Administration ultimately provides ordered communication control across territory linking various administrative outposts together Subdistrict District level through centre The various departments field officers especially readily visible symbols political status embodiments developmental village level They objects respect liking hatred according local circumstance feelings dependence frequently projected through hractions terminaedo So ervasive powerful Administration wouldbe nationalist tends opposition overriding means assertion expression Indeed E among educated quite unschooled people freedom independence almost unbridled emancipation fustralian taxes pressures rnment itself imposes The localisation public service operates environment outlined above therefore likely raise subtle complex problems train Papua New Guineans replace expatriates promotedtt retire Positions Administration hierarchy obvious sources money prestige consequently objects ambition Educated Papua New Guineans measure Australian government sincerity purpose racial attitudes Australians manner speed which personnel public service localised However localisation process whereby colour public service changes It wider process political chanes simultaneously taking place As power trnsferre8 Cnberra Ionedobu Canberra based staff Oepartment External Trritories recently begun decline uestions hitherto submerged within bureaucracy become politicisedo The Australian grant example become increasingly issue rather muffled uestion handled through official memos The siting bridges schools which largely decided iscretion senior public servants matter competition debate The ruling cemen should certain height certain level education opened enior officers relaxed rules allow Highlanders recruit certain number there In short qmestions settled discussion instruction telephone between Canberra Konedobu coming settle latter place simultaneously hitherto administrative questions where hanle cargo being opened Papua New Guinean politicians press alike The social political economic enviro nment Papua Ne Guinean politicians Operate independence complex which xatrate policeman indigenous underlings finds himself there widespread trouble outstatim Clearly Australian public servants their assiduous indigenous subordinates would agree aspeets foregoing interpretation Their entire training fester quite rigid insistence politics administration should quite separate Like first Chairman Public Service Beard Mr G Unkles mainly concerned maintenance improvement standards technieal questions efficiency Their principal Chairman bureaucratic manipulation Parliamentary process probable accompaniment political interference purely managerial matters appointments promotions effective disenfranchisement people By contrast present Administrator Mr L W Johnson aware problems public servants Coming terms emergence professional politicians Papua New Guinea uncertainty latter group parameters their roles Both public Servants politicians Administrator goingt themselves times future because intrude E The Administra College Papua New Guinea other responsibility As establishment Warmamm Group showed indigenous public servants might quite intensely political roles areas Gazelle Peninsula peace Despite repeaed assurances Mr Paulias Matane member Warmaram Group former member Public Service Board permanent overseas officers continue receive promotion according established rules merit accordance provisions Public Service Ordinance negotiations those attempted Warmaram Group between Multi Racial Council factions among Tolai simply cannot successfully undertaken Australian public servants EPW In sense Papua Ne Guinea Public Service better prepared legally substantively localised No permanent expat riate public servants appointed since since November renewed contracts overseas officers provide right appeal against promotions announced Public Service Board although contract officers still eligible considered promotion there legal provision which never invoked certain positions classes positions classified efficient local officer given preference appointment overseas officer there employment security scheme which never compensate permanent overseas officers displaced denied promotional opportunities localisation government there number government institutions scholarships abroad departmental training officers train Papua New Guineans specific departments general administrative skills At February broad up0sition Public Service excluding police under Public Service Ordinance fellows Table I Composition Papua New Ginea Public Service February First Second Third Total DivisionDivision Division Overseas Officers Permanent Temporary Contract Local Officers Permanent Temporary Departmental Heads positions similar status Administrative professional clerical officers The Head Department Business Development Mr Paulias Mata Formally outside Public Service proper nonetheless Papua New Guinean holders office Chairman One members Public Service Board Chairman Teaching The gentlemen Paulias Matane Service Commission Tolais Sfe total strength Royal Papua New Guinea Constabulary contained about local policemen June ceased recruiting However overseas officers other specialist positions early there indigenous commissioned officers including EPW second first class inspectors The preponderance Papua New Guineans third division Publ Service cause forcongratulation continued preence epatrlates criticism But given failure develop schools indienes until university until personnel situation difficult intractable unless requirements positions drastically chaned On current projections exauole epatriate grade clerks still recruited within Papua Iew Guinea although brought Australia least until Thus bottom lader recently annouzced gration controls unlikelj effect except perhaps Public Service years In professional fields where Public Service compete aainst large copuies which bound government salary scales promotion plans situation difficult By estimated I0 Papua Ne Guinea architects inigenes country civil electrical mechanical engineers respect professional lawyers accountants grauate teachers perhaps administrators And coplicate picture Education Oepa rtment presently seeking raise nuber yesrs spent school Years while shortening University reliminary thereby losing stents their working lives during final government However return Public Service alone detailed Secon Division displays disturbing characteristics present timetable government Table II Local Officers Substantively Above Clerk Class Salary Level March Technical Professional Positions Department Number Lcal Officers Administrator Agriculture Stock Fisheries Education information Extension Services Labour Law Public Health House Assembly Social Development Home Affairs Public Works Public Service Board E Oepart_ent Nnber Local Officers Trade Industry Posts Telegraphs Clerical Administrative Positions All Departments Indigenous university gradua recruited about Clerk Class salary level P9__ annu_m salary range local officer The range Second Division Clerk Class local officer Includes indigenous graduate Senior Pro jects Officer _ssistant District Officers presently Acting eputy Oistrict Couissioners Includes Local Court Magistrates Crown Prosecutor Includes highest ranking local officer Second Division Chief Electoral Officer holds class position Up point figures above table misleading relatively large number local officers spend periods acting positions above their substantive positions experience withstand appeals longer serving permanent expatriate officers still standards efficienc Papua New Guineans judged They mislea icate which officers positions carrying heavy mmnistrative responsibilities Re ional Medical Officer distinct those which narrowly professional medical specialist But careful records acting7 positions varyin responsibilities exercised similar substantive Local Government Council Adviser Assistant 0istrict Comrissioner systematically coordinated would expect localisation urgent priority dminist ration Indeed fields develooment seems recognised being memtathan localise recruitment local officers cannot replacement throufh death retirement additional requirements being orderly development administration without localisation Localisation olves displacenent eatriates indigenes problem where should placed Expatriate loctors example liely resente subject political pressures expatriate patrol officers Howw above table shows thoroughly localised departments Papua EI New Guinea Public Service Health Education expatriates likely acceptable often presently preferred Highlanders especially after removed sensitive policy formulating areas other departments It unlikely these epartments Be cannibalised localise supervisory coordinating policy posts elsewhere already begun happen Education which department highest ranking Papua New Guinean officers recruited This phenomenon tensions among specialist skills other departments ahead blocked Thus relatively senior indigenous cooperatives officers quite epenly unhappy Mr Paulias Matane elevation Education Department Public Service Bord Directorship Department Business Development while other outsiders reluctant departments thegn interpersonal tensions professional difficulties which would their become District Commissioners within Division Oistrict dministration Administrator Oepartment And given comparative youth formal education among available rapid promotion forty years handful University derees likely follow first cohort rapidly promoted local officers themselves blocked indeed formally acguired capacity themselves seniority however given scholarships university catch educationally their juniors There increasing number young educated Phpua New Guineans would prefer local sation process become urent until themselves ready From foreoing seems likely expatriates least contract technical professional positions years after independence However present public srvice structure designed iplement policies elsewhere rather internal ministerial government The Ministerial Assistant Ministerial Members perch precariously their variousiSt departments advised predominantly expatriate public service In similar situations British colonies ministers positions often strenthened regrouping departments ministries concerned subject rural development rather departmental specialism agriculture forestry The ministry staffed whose formulate submissions their minister supervise implementation policies through blockages caused inefficiency recalcitrance vithin individual departments In Papua New Guinea various departmental headssem better equipped specialist administratien policy oriented generalist approach ministry However possibility reconstructing present system upper echelons policy oriented reserve these areas possible exclus comuitted Papua New Guinea gevernment seems eficially considered EPJ The Future It almost impossible predictions about znependence future depenrent territory responsib ilities overnment handed rulers strains organisational fabric strength emergin politics state appear Very rarely gloomy predictions departing expatriates visitin experts euphoric hopes freedom seekers fulfilled Once noise prophecy expectation cleared polity infrequently settles familiar pitch until older deeper problems predating final decolonizing phase reappear It indeed unlikely independence rapidly Papua Guinea probably betJeen lohgterm profoundly disturbing problems deferred until after urgency preparation It aruable postponement would useful would leave decisions quite squarely hands country Jn rulers perhaps transition little hectic However leave later inadequate preparation Thus needs weigh carefully advantages reforming entire local court tenure System presently proposed against additional short administrative problems retraining requirements thereby created experienced local officersho likely inherit Administration present planners Perhaps trust necessity decolonization inevitability offered despite Frantz Fanon hopes close alysis decolonization those those strain After elections somewhat enlared House Assembly _bers including officials Will select ministers preside politically transition government The louse whole probably include lower proportion epatriate elected members present larger avening younger better educated experience estern Even educational elite graduates Universality Papua Guinea Institute Technology difficult entify their national leaders especially Hihlands reresented surely Independence therefore likel exciting educated presently foresee present exciting opportunities promotion through ranks bureaucracy which nominal servant politicians whose ideas those sehior bureaucrats heavily moulded their previous experiences Australian Thus Papua Eev Guinea future stable It unlikely candidates subsecluently pledge adherence United Phrty PA IGU Pati If remarkably themwill helped their party associations qather being meber either party likely additional attribute individual icate something Ips votes language kinship geographical proximity enough EP Those candi smccessfully votes beyond ballot parochial issues their ambitions rather people irectly forward nationalism It seems lithely governing inepen Papua Tew Guinea short integrative forces At centre there public ervants especially longer contacted areas where localised iscontent separatist sentiment likely strongest between Eionally based dissidence national government For however politically neutral public service Australian lines entirely wrong model In listricts obvious centre thoutsh again paternalist diion strong localisation radical Papua New Guineans roved opposition present structure policies ivision District Administration advocacy total oition while dependent perceive change Again politicised service presently foreseen needed while boundaries oppositiou being defined national identity still being formed Thus preservation unity heavy problems overnment ultimately pressin police Over years police increasinTly resemble political brigade rushing squads reinforcements usual detaclments Bougainville Gazelle Peninsula internal difficulties enforce government policies quell large scale tribal hting Highlands Gazelle The alternative perhaps sequel train events considerable enlar Tement police Pacific Islands Reinent conterujlated Rabaul July Althou there anxious discussion likelihood 9_oup Papua I Guinea there rather analysis despite eents July quite inexorably performing unity order maintaining function To Pacific Islands Regiment indigenous other ranks tithes shown loyalty another pressin their claims their officers previous history notwithstanding difficult small paratroops vithout suowort relatively unshilled civilian crowd control could veryn maintaining unity But could Australian government openly prepare PapUa Guinea political still before electorate Unitea Nttions Over years internal security Papua Guinea Australian Papua New Guinean problem The Australian government likely sonde connuituent Australian lives property Papua Ne Guinea pressure protect It invidious position having assist Papua Tew Guinea overnment imternal order supplying aerial transport facilities police least officers althouh localising rapidly A ministration thirteen EPW conuuissioned officers commissioned officers Papua New Guineans It presently uncertain whether Austrs public would tempted Papua New Guinean central governnent maintain throug territory whether would prefer leave confused Th alone The Indonesian government however anxious possibility administrative political collapse country which ensure citizens interfere IIest Irian border Indeed Pa Guinea relative affluence creates problenls In onesisn administration Irian insofar induces inhabitants province Independence therefore beEinnng interdependence Papua New Guineans begin manage their relations other countries externalise those Australia The which Papua New Guinea shake Australia eercises economy deree which Australia disentangle herself Papua New Guinea internal affairs howeve uncertain scarce thought about either country hithin Papua New Guinea large companies Bougainville Copper Kennecott Western Papua require least local security respectively continue commence their operations large enough quite economic perhaps political future country In field trade Papua New Guinea natural rising partners Japan South Korea Taiwan Co_unist China which manufacture clothing export cheaply Australia potential markets Papua Ne Guinea materials writing thirds Papua New Guinea truck imports example Japanese territory copper timber Japantoo Australia share benefits continued close association width Papua Rew Guinea likely decline although financial defence responsibilities least rapidly An independent Papua New Guinea increasingl expected therefore lJest Irian north Guam Micronesia rather South Pacific south where lustralia hitherto Papua New Guinean firmly focussed And there final difficulty Australian diplomacy Unite Nstions recently successful fostering international acceptance Australia sincerity purpose developing Papua Guinea determination United Nations seems increasing number Papuaeuineans urgently insistent about Australia decolonize Australian Lcbor Party Thus Hi hlands members IIouse Asembly recently sought unsuccessfully UniteJ Iations requested transfer trusteeship agreement Ne Guinea couutrT should A L P elections Australia Ir I S Djermakoye United Nations Under Secretary Trusteeship Affairs warned neith Au tralia United I s_tions power unilaterally declare uinea portion country independent T1e people Trust Territory consulted House Assembly agreed amended version foregoing resolution direct House petition United Nations direct Australian Governuent accordance freely expressed othepeople ofPapuaanewGuineaasguaranteedsi_cbythe lhite I tions eclaration granting independence colonial countr peoples policy present ustralian Government EPW The determination never seems smooth decolonization single rated process transacted parties It seems reasonable assume however neither independence unity negotiable although objects bitter politicking leaders bodies Napidakoe Navitu dependent holders almost worthless Australian citizenship indigenous people Papua Even timing Of government independence Select Committee Constitutional Development cautiously advised proceed faster presently expected desired In sense Professor Lucy Mair independence Papua New Guinea development resources personnel needed solve problems twentieth century state paternal attained without creating resentment suspicion among subjects However large village people escape short consequences whatever happens their daily lives vitally affected directly transpires capital But those readers desire symbol future there Port Moresby golfing trophy captures alternatives quite nicely wooden prototype Speaker symbol parliamentary power final version which given Australian Parliament House Assembly competed teams officers Pacific Islands Regnent Division District Administration What portentously happen teams localised Yours sincerely The I thank officers Localisation ection Public Service Board Manpower Planning Unit Labour Department supplying section Newsletter dealing localisation They responsible interpretations Received New York July