Lessons from New Zealand's engagement with East Timor 1999-2003: Stephen Hoadley comments on New Zealand's most recent peacekeeping effort.

• Author: Hoadley, Stephen

New Zealand's engagement with East Timor broadened and deepened in 1999 to encompass multilateral diplomacy, peacekeeping, and aid. New Zealand leaders and officials worked with Australia and United Nations agencies and also consulted East Timor leaders. Parliament, media, the public and non-governmental organisations became involved. The engagement was generally successful despite costs and fatalities. The experience was profound and offered a number of lessons, some of which are summarised in this article. Further assessments are encouraged to guide future policy.

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In 1999 Indonesia withdrew from East Timor. After a period of United Nations tutelage East Timor became fully independent in 2002. During the transition period New Zealand played a substantial role as a diplomatic mediator, as a peacekeeper, and as a source of material and technical assistance in the emergence of East Timor. Whether 'national building' in East Timor will be a success in the long term is an important question but one not answered here. This article is a selective account of New Zealand's engagement with East Timor from 1999 to the present and a tentative summary of lessons arising from the experience. It draws on official and scholarly accounts and also on interviews and observations to offer some preliminary conclusions that others are invited to qualify, refine, and augment.

For twenty years New Zealand's policy consisted of de facto acceptance of Indonesia's governance of East Timor as 'irreversible', quiet diplomacy to urge Indonesia to behave better, occasional inspection visits by diplomats, and a small aid progranme. (1) New Zealand's involvement grew rapidly after Indonesia's President Suharto stepped down in 1998 and his successor B.J. Habibie decided in early 1999 to hold a referendum on the future of East Timor.

The United Nations in July 1999 set up a mission (UNAMET) to supervise the referendum. New Zealand sent five NZDF officers, ten police, and a legal specialist to assist UNAMET. United Nations agencies contracted individual New Zealanders to do specific electoral tasks and conduct relief programmes.

Meanwhile, warned by Australian intelligence to expect trouble, the New Zealand government set up an inter-departmental East Timor Watch Group. The Watch Group brought together officials from the NZDF, Ministry of Defence, Security Intelligence Service, Government Communications Security Bureau, Police, and Ministry of Foreign Affairs and Trade. The Department of Prime Minister and Cabinet co-ordinated them. The Watch Group's officials monitored developments as the East Timor referendum approached and public order deteriorated. They undertook a preliminary threat assessment, made recommendations to ministers, and commenced contingency planning.

Operational planning

Cabinet then approved funding for NZDF equipment enhancements, and the Chief of Defence Force was authorised to commence operational military planning. (2) These initiatives where conducted in close consultation with Australian counterparts, who were pessimistic and proactive regarding the future of East Timor.

Shortly before the referendum Parliament dispatched a five-member multi-party delegation to East Timor. Already in East Timor were New Zealand experts, academics, journalists, and non-governmental organisations. These observers were able to alert Parliament and to make other New Zealanders more aware of the fairness of the referendum, on the one hand, and the viciousness of the ensuing violence, on the other. They served to shape a supportive public opinion and legitimise the government's decision to contribute peacekeepers.

Despite militia propaganda, intimidation, and occasional attacks, the East Timor referendum was conducted successfully on 30 August 1999. To the surprise of no one but the Indonesians, nearly 80 per cent of East Timorese voted for independence. The pro-Indonesia militia soon retaliated, unleashing a frenzy of arson, assault, and murder. New Zealand, along with many other governments including Australia and the United States, cut off all military co-operation with Indonesia.

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