The evolving narrative of denial: the Fraser government and the Timorese genocide, 1975–1980

As research by the Commission for Reception, Truth and Reconciliation in East Timor documents, the years 1975–1980 constituted the worst period of the Indonesian occupation of East Timor, during which grave human rights took place involving a high loss of life. In Australia, the government headed by Prime Minister Malcolm Fraser (1975–1983) sought to present itself as a supporter of human rights and the international rule of law. It also prioritized relations with the Suharto regime, which it saw as key to its policy position in Southeast Asia. These two positions came into conflict due to the Indonesian invasion of East Timor. The Fraser government therefore worked to propagate a narrative concerning East Timor which denied the seriousness of the situation, distorted the historical narrative, deflected blame from Indonesia, and depicted the Australian position as principled and realistic. This paper examines the development of this narrative as events progressed and information concerning the crisis in East Timor came to the attention of the outside world. It also examines how the Fraser government employed this narrative internationally in order to protect the Suharto regime from scrutiny.     

Review essay: Recent books on Indonesia's occupation of East Timor and the East Timorese struggle for self-determination

Abstract

East Timor is the site of one of the great genocides since World War II. Out of a population of about 700,000 at the time of East Timor's brief independence, about 200,000 people have died as a result of the Indonesian invasion and the ensuing war, politically created famine, and the ongoing occupation. From the time of the Indonesian invasion on 7 December 1975 until January 1989 Jakarta kept East Timor closed. Apart from official foreign delegations, some international aid workers, and a limited number of journalists, few were able to enter the territory. On 27 December 1988 the Indonesian authorities accorded East Timor open-territory status following a one-day visit in November to the territory by Indonesian president Suharto. Jakarta was keen on encouraging foreign and “domestic” (Indonesian) investment in its “twenty-seventh province” as well as presenting an image to the outside world of normalcy in East Timor. On both accounts, Jakarta has largely failed in its objectives. The ongoing resistance by the East Timorese people to Indonesian hegemony and the concomitant political instability in East Timor as well as the relative poverty and isolation of the territory have prevented the influx of private capital. In terms of international opinion, the “opening up” of East Timor has not helped to suppress the image of the brutal nature of Indonesia's illegal occupation of the territory.     

Hostages to History: The Use of Portuguese Prisoners of War in the Annexation of East Timor

On 26 August 1975 the colonial administration in Portuguese Timor abruptly removed itself from Dili to the island of Atauru, amidst escalating armed conflict among Timorese political parties. A puzzle that has remained is why did the Portuguese administration leave so precipitately, and why did it not return a few days later when the conflict was over? We have been left with the impression that Portugal simply deserted its responsibilities, abandoning the territory to Indonesian annexation. This paper pieces together a rivetting but little-known story, from contemporary Portuguese, Indonesian, US, Australian, Timorese and eyewitness accounts, about the humiliating capture and detention by Timorese and Indonesians of Portuguese military as prisoners of war, which helps to explain a previously unrecognized constraint on Portuguese policy in East Timor in 1975-1976. This paper also shows that Indonesia had taken some important lessons from history on how to manage Portugal, from India's annexation of Portuguese Goa in 1961.     

Balancing justice and reconciliation in East Timor

Abstract

As East Timor emerges from a long Indonesian nightmare, it is seeking to balance the agendas of justice and reconciliation. The verdict on justice for East Timor is one of disappointment. The main obstacle to accountability is Indonesia, abetted by an international community that seeks its assistance in the “war on terror.” East Timor's leaders have emphasized reconciliation while promoting a healing process and good governance. Recent violence reveals just how difficult this task remains. The hybrid tribunal established in East Timor by the UN was once heralded as an important innovation in transitional justice, avoiding the high cost and lengthy proceedings of other international tribunals. However, the tribunal has been unable to hold accountable those who bear the greatest responsibility for outrages committed against Timorese and defendants did not get fair trials or competent defense. A truth commission report released in December 2005, Chega! (Enough), emphasizes justice and reparations. The political leadership soft peddles justice because they believe this makes more sense and will better serve the people. Indonesians are now being given a chance to testify in front of the Commission of Truth and Friendship (CTF), but concern is widespread concern that the CTF emphasizes reaching closure, has no judicial mandate, and only ensures impunity for ranking perpetrators. Indonesia and East Timorese can regain dignity and move beyond their shared tragedy through a process of reconciliation that is based on justice and atonement. Germany shows this is possible; Japan, that it is difficult and problematic if neglected.     

The state of East Timor studies after 1999

Taking stock of the state of knowledge on East Timor since the UN intervention of 1999, this article traces the rise of a hegemonic discourse especially around development issues notably as promoted by the World Bank. In turn, the World Bank discourse of lean government, market-oriented economic policies, and export-oriented agriculture is reflected in a number of publications. As a formidable patronage machine in East Timor, it would not be surprising if arriving international staff along with East Timorese returnees would emerge as Bank collaborators or even employees. The thriving NGO community which emerged in East Timor as the underbelly of the UN mission also found common cause with human rights discourse and, especially, sustainable development discourse from within the UN mission. Meanwhile, a number of foreign anthropologists embedded themselves within and without the UN mission producing a major corpus of writings. Amidst this “clash of paradigms” East Timor muddled along, dependent on donor support, but prey to vagaries of seasons, international markets, and predatory outsiders. To a large extent, the international agency, NGO, and academic literature tracked these vagaries but, outside of linguistic studies, we await a critical mass of autonomous writings by East Timorese about East Timor.     

East Timor's Emerging National Security Agenda: Establishing “Real” Independence

Abstract

This article focuses on the steps East Timor has taken to bolster its defense sector following its attainment of independence in 2002. In International Relations, scholars have often argued that the ability to defend territory and population from external threat is an essential component of sovereign statehood. Literature on post-colonial sovereignty, however, suggests that the external sovereignty of “weak” post-colonial states is more likely to be protected through international legal recognition. In recent years, East Timor has sought to develop their defense capacities in line with conventional thinking about security and “real” independence. This influences the foreign relations of East Timor and also has broader implications for understanding security and independence in post-colonial states.     

Resources on East Timor

Abstract

Until recently information in the United States on East Timor and the Indonesian occupation was scarce and usually outdated; more English-language material has been available in Australia and Britain. The wide international distribution of the videotape of the Indonesian Army's massacre of more than 270 innocent Timorese civilians in the Santa Cruz Cemetery (12 November 1991) contributed greatly to increasing international awareness of East Timor's plight. More importantly, the publicity surrounding the massacre revitalized solidarity groups around the world. As the groups expanded, so did the literature on East Timor. It is noteworthy that, aside from a few scholarly works, almost all of the available literature on East Timor has been written by activists of one sort or another.     

Australian Reporting of the Indonesian Killings of 1965–66: The Media as the “First Rough Draft of History”

This article examines Australian press coverage of the Indonesian killings of 1965–66, and considers its legacy for the historical consciousness of events in Indonesia. The Indonesian killings of 1965–66 occurred on Australia's doorstep, at a time when the Cold War dominated the front pages of Australian newspapers. By examining articles from one of Australia's leading newspapers, The Sydney Morning Herald, we show that press coverage of the killings was both limited and distorted. Comments made by correspondents reporting from Indonesia at the time suggest reasons why this was the case. In the rush to write a “first rough draft of history”, the killings in Indonesia were treated as background to the story of leadership change in Jakarta and the defeat of Communism.     

Initiative-Resistance and the Australian Party System

In the first half of the twentieth century, writing about Australian political parties was strongly influenced by the novelty of government — and the policy agenda — being led by the political arm of organised labour. This was reflected in the tendency for commentators to treat Labor as the driving force in Australian politics and policy, and to see non-Labor as playing a predominantly reactive and oppositional role. Following strong criticism, the “initiative-resistance thesis”, as this perspective was termed, lapsed. Here we revisit the concept, tracking its origins, use, and ultimate demise in the 1960s, and reconsider its validity and relevance, particularly in light of its affinity with the international literature on the “impact of parties”. While initiative-resistance was never a “thesis” as such, and critics have overstated the hold it enjoyed in early accounts, we argue that there is merit to a version reformulated in clear propositional terms. Critics may also have overstated its weaknesses. We illustrate this by focusing on one of the main original criticisms: the need to do justice to the separate identity of the National Party in understanding an essentially two-party system.     

Australian Reporting from East Timor 1975–1999: Journalists as Agents of Change

This article examines Australian reporting in East Timor from 1975 to 1999, and the changing professional practice of Australian journalists who reported from the region during this time. Research conducted for this article includes testimony from the journalists, and a collating of 3,456 newspaper articles published in the mainstream Australian press on the East Timor situation between 1998 and 1999. It will show that in addition to new regulations over access to the region, new mobile media technologies pushed journalism in new directions, adding to the ability of the journalist to facilitate instantaneous delivery of news to Australia. These reports filed by Australian journalists from East Timor were crucial in fostering the Australian government's decision to send troops to the region.     

Indonesian West Timor: The political-economy of emerging ethno-nationalism

Encouraged by the post-Soeharto atmosphere of reform and regional autonomy legislation proposed under Habibie, the aspirations of Indonesia's regional elites have been stirred. Yet prosperity has remained elusive for many amidst continuing economic decline and as an unreformed military continues to threaten the business ambitions of regional elites. In West Timor, one of the poorest parts of Indonesia, local elites have had to contend with the added burden of the fallout from the 1999 pro-integrationist military operation in East Tindonesian military-trained tormentors, the West Timorese have paid highly for independence in the East and sufmor. Beginning with the need to host the quarter-million East Timorese refugees who fled West accompanied by their Ifered enduring economic malaise. This is reflected in the devastation of tourism and foreign investment, the suspension of major aid projects, the severing of the air-link to Northern Australia and a United Nations high-security alert in force since 2000. This crisis in which the aspirations of regional elites have been thwarted by the neglect and incapacity of central government and by the nature and political agenda of the Indonesian military elites, has provoked several reactions. As some West Timorese elites have lobbied for a share of the East Timorese petroleum revenues, the discovery of an essential Timorese-ness by others has been manifested in the ethno-nationalist Negara Timor Raya (Nation of the Land of Timor) movement.     

“This country is rotten”: Australian Nurses in India during the First World War and Their Encounters with Race and Nationhood

This article examines the writings of the nurses of the Australian Army Nursing Services, who served in hospitals in India between 1916 and 1919. Their writings show that they practised differences along three lines: colour, culture, and space. The article reveals the plurality of female engagements with empire, highlighting the inherent irony in the imperialist machinations of white women from the dominion nation of Australia. It also demonstrates how these nurses make a “grave” and basic mistake — as expounded by Ernest Renan in his 1882 Sorbonne lecture — by confusing race with nation. It ultimately argues that the Australian nurses in India during the First World War had been set as pawns by their own government in the greater game of colonial power, by analysing one instance of sexual control, a “scandal” which was censored by the Australian government, but which demonstrated how the latter used gender inequalities as an essential instrument for the perpetration of colonial racism and imperial authority.     

An introduction to the articles on Indonesia

Abstract

In May 1987, general elections will be held in Indonesia. These will be the fifth such elections since the country's independence in 1945, and the contesting parties will be the government electoral organization, GOLKAR, which convincingly won the last elections, the largely Muslim PPP (Unity Development party), and the small Christian and nationalist PDI (Indonesian Democratic party). After the previous elections in 1982, the Indonesian government made the claim that the proceedings had been “direct, general, free and secret,” and indeed it was difficult to find more than incidental evidence of fraud or manipulation in the conduct of the poll itself. However, this attempt by “Pancasila Democracy” to claim kinship with the Western democratic tradition studiously ignored the context of political restriction which has operated in Indonesia for the last three decades. Since such claims are likely to be revised after the coming elections to suggest that the power of the New Order government of President Suharto rests on the active consent of the people, the editors of the Bulletin have thought it appropriate to devote this issue to a closer examination of the recent political history of Indonesia.     

Positioning the product: Indonesian migrant women workers in Taiwan

There are two important phenomena at work relating to migrant labourers, and in particular to “caregivers” or “carers,” in the labour market of contemporary Taiwan. First, the formulation and promotion by brokers of nationality-based stereotypes that tend to channel migrant workers of different nationalities into different segments of the labour market. In terms of gender, women are predominantly channelled into sectors that are vulnerable to exploitation and abuse. In the category of care giving, we see a trend toward a hierarchical structuring between Filipinas and Indonesians, with Indonesian women often doing the dirtier and more demanding jobs of caring for the sick and elderly. Second, despite the fact that the majority of Indonesian women workers are contracted to work as carers, a significant number actually work in various capacities in family businesses as well as working as maids in the family home. This reality does not reflect the picture projected by government statistics on migrant workers in Taiwan. Nor indeed is it given sufficient recognition in the research on Filipina domestic workers in Taiwan, which, for the most part, focuses on domestic workers working in that capacity. What appears to be a tightly controlled arena for migrant workers is, in fact, open to manipulation often resulting in a “double-exploitation” of the Indonesian woman worker.     

The Electoral Poetics of James Scullin's Campaign against Alfred Deakin, 1906: Anticipating “Fusion”

In the 1906 federal election James Scullin, then an unknown grocer, challenged the sitting Prime Minister, Alfred Deakin, for his seat of Ballaarat. This article examines this important event in Scullin's under‐researched life story to consider the “electoral poetics” of electioneering in the early federation. Scullin's challenge to Deakin prefigured the defining realignment of Australian politics to come, the “Fusion” of 1909, and is indicative of Labor's new self‐conceptualisation as a potential government with a mission to fundamentally restructure Australian democracy. This article explores Scullin's work as an expositor of this mission, and its significance for his political life.     

“Perfidy Afoot!” Connor,the IEA and the Loans Affair

When the International Energy Agency (IEA) was established out of the Organisation for Economic Co-operation and Development (OECD) in 1974, Australia was not among its founding members. Indeed, it was opposed to its formation and even contemplated voting in the OECD to block its establishment. A single negative vote under the “mutual agreement” rule would have done so. This paper, based on archival research, explores the reasons for this course of action and shows that the decision was linked to the resource nationalism at the time of Minister Rex Connor and his fear that supporting it might jeopardise his attempts to raise non-equity finance in the Middle East. This article shows that this previously unanalysed decision was connected to what became known as the “Loans Affair” that brought about Connor's demise and contributed to the downfall of the Whitlam Government.     

“Dished like a dinner” by the Victorians? The 1899 Seat of Government Compact and its Repercussions in the early Australian Commonwealth

At a “secret” conference in January‐February 1899, the premiers of the Australian colonies agreed on an amendment to the draft Commonwealth Constitution Bill to grant New South Wales the permanent seat of government in the Australian federation. One of the conditions placed on that concession, however, was that Melbourne would initially host the Commonwealth parliament. Spanning the decade from that agreement to the Commonwealth parliament's selection in 1908 of Canberra as the site for the permanent federal capital, this paper shows that the compact on the seat of government provoked powerful resentments in New South Wales and especially Sydney because of the political and material advantages it was seen to have conferred on Melbourne. While the paper argues that resentment was actuated by residual anti‐federal sentiment and regional chauvinism, it also suggests that hosting the legislature did promote Victoria's pre‐eminence in the early Commonwealth and had enduring effects on the nation. In doing so, it speaks to the shaping influence of place and distance in Australian history.     

Strategic Othering: Framing Lebanese Migration and Fraser's “Mistake”

Australian Minister for Immigration and Border Protection, Peter Dutton, has framed the mid‐1970s immigration of Lebanese affected by civil war as Prime Minister Malcolm Fraser's “mistake”. His remarks sparked controversy in the parliament and the media. The issue became a contest of frames between the Murdoch media, which supported the Minister's “mistake” frame and argued his right to “tell the truth”, and the Fairfax media, which viewed the Minister as being “racist” for “scapegoating” the Lebanese community. Along with archival documents, this article examines the context and coverage of the Minister's remarks, noting that the frames presented in the media “indexed” those adopted amongst political elites, while failing to re‐examine the historical record. This case study demonstrates the power of framing and the media's tendency to accept rather than challenge frames used by those in the political contest, with the result that errors in the representation of history were never corrected. This article draws on framing theory and indexing theory and concludes that the “mistake” frame for the Lebanese feeds into narratives that serve to “other” Muslim and Arab groups, fanning fears and mobilising a discourse of Islamophobia around the exclusion of “undesirable” immigrants on the basis of “cultural fit”.     

Post‐War Reconstruction and the New World Order: The Origins Of Gough Whitlam's Democratic Citizen*

Gough Whitlam's father was one of Australia's most significant public servants. Deputy Crown Solicitor and Crown Solicitor at a time of great constitutional and international change, Frederick Whitlam maintained an unusually advanced perspective on the use of international instruments to protect rights and to expand powers of nationhood. Gough Whitlam's war‐time experiences in the Air Force, in particular during the referendum campaign to expand Commonwealth Powers to aid post‐war reconstruction, cemented these aspects as central to his developing notions of democratic citizenship. In his 1973 Sir Robert Garran Memorial lecture, fourteen years after his father had delivered the inaugural oration, Gough Whitlam acknowledged the influence of his father as a “great public servant” committed to public service and the developing institutions of internationalism: “I am Australia's first Prime Minister with that particular background”. This paper explores “that particular background”. I have never wavered from my fundamental belief that until the national government became involved in great matters like schools and cities, this nation would never fulfil its real capabilities. ¹ 1 E.G. Whitlam, Sir Robert Garran Memorial Oration, “Australian Public Administration under a Labor Government”, Royal Australian Institute of Public Administration, 12 November 1973, < http://www.whitlam.org/collection/1973/ > accessed 31 October 2006.
     

Poland and Hungary, 1956: A Comparative Essay Based on New Archival Findings

Why did the Soviet Union intervene in Hungary in 1956 but not in Poland? This article reviews the “historical thesis”, “personality thesis”, and “neutrality thesis”. It concludes that, while the new archival sources do not radically alter these three older theses, they do yield some insights. Wladyslaw Gomulka was perhaps less successful in deterring the Soviet leaders during the latter’s 19 October visit to Poland and less secure politically in his own country than originally thought. In addition, Imre Nagy may not have been as progressive, given his initial opposition to the very decisions for which he has gone down in history as having made.