Aceh: GAM Reintegration Advances Despite Obstacles

UNCLAS SECTION 01 OF 09 JAKARTA 006497 SIPDIS SENSITIVE SIPDIS AIDAC DEPARTMENT PASS USTR KATZ DEPARTMENT FOR R, EAP/MTS, EB/IFD/ODF, DS/IP/EAP, DS/DSS, DSERCC, INR/EAP and INL DEPARTMENT PLEASE PASS AID Treasury for IA -- Anna Jewell USDA FOR FAS/EC/MCHAMBLISS Singapore for DEA NSC for Holly Morrow and Jed Meline USAID FOR ANE/EAA From American Consulate Medan # 23, 2006 E.O. 12958: N/A TAGS: PGOV PHUM PINR PREL ASEC SNAR SOCI ID SUBJECT: Aceh: GAM Reintegration Advances Despite Obstacles JAKARTA 00006497 001.2 OF 009 Reftels: (A) 05 Jakarta 016687 (B) 05 Jakarta 010056 ¶1. (SBU) Summary. Successful reintegration of Free Aceh Movement (GAM) ex-combatants and others, essential to ensuring long term peace in Aceh, has advanced but still faces obstacles. Reintegration payments promised by GOI have arrived only slowly. Aceh's economy remains flat or worse, with a high unemployment rate making it difficult for ex-combatants to pursue livelihoods. In some areas, armed violence has increased. TNI and GAM agree on the need for more police to guarantee public safety. GAM objects to anti- GAM militia members and returning IDPs receiving payments from the same fund as their ex-combatants. Militia members remain scared they will face GAM retribution if they return to their homes. We discussed reintegration with various Acehnese figures during a recent visit to Lhokseumawe, Bireuen, Sigli and Banda Aceh. End summary. ¶2. (SBU) A key requirement for long term peace in Aceh remains reintegration of Free Aceh Movement (GAM) ex- combatants and others into civil society. Despite considerable progress, reintegration still faces obstacles. Social Affairs Chief: About Half The Ex-Combatants Paid -------------- -------------- ¶3. (SBU) Hanif Asmara, the Head of Aceh's provincial Social Affairs Office, explained that the Aceh Reintegration Agency (BRA, for "Badan Reintegrasi Aceh") oversees the reintegration process. BRA's 80 members include representatives from GOI, GAM, academic and religious figures and various NGOs. The GOI pays Rp. 25 million (about USD 2,700) for each ex-combatant. To receive payment, ex-combatants usually form small groups of 10-50 each which submit funding proposals to BRA, although we understand individuals can submit proposals. A typical proposal might involve setting up a fish farm or buying boats, he said. Once approved, the Ministry of Social Affairs in Jakarta provides the funds through the Post Office, coordinating with Asmara's office. ¶4. (SBU) GAM formed the Commission for Change in Aceh (KPA, for "Komisi Peralihan Aceh") to provide advice and proposals on how to reabsorb the 3,000 GAM ex-combatants mentioned in the Helsinki peace MOU. KPA screens the names of ex- combatants and the bona fides of ex-combatant groups making proposals. Proposals from GAM members must have a KPA recommendation for approval after which Social Affairs follows a KPA-recommended procedure. It provides 50 percent JAKARTA 00006497 002.2 OF 009 of the request as a down payment, then monitors progress; if the venture does not fail, it pays out the remaining 50 percent. If the venture fails, it imposes no sanction; KPA discusses the matter with the group in question. GOI usually avoids direct contact with these ex-combatant groups, said Asmara. (A BRA spokesperson told us separately that the first 300 proposals, submitted just as the body formed, were rejected. All 29 subsequently submitted were accepted; of those, one has requested payment of the second 50 percent.) ¶5. (SBU) Asmara told us the Ministry of Social Affairs has approved payment to 2,000 of the GAM ex-combatants. Of these, 985 have received it; Social Affairs awaits proposals from the rest. He added Jakarta has approved payment for some of the other 1,000. TNI East Aceh District Commander: Violence On The Upswing -------------- -------------- ¶6. (SBU) We heard a commonly-expressed fear that some GAM ex- combatants will find the old days of living off extortion at gunpoint preferable to a quiet life as farmer or fisher; armed gangs ravaging the countryside would challenge law enforcement efforts and even threaten the peace process itself if not brought under control. The TNI's Commander for Aceh's eastern region, Colonel Chairawan K. Nusyirwan, told us violent crime seems on the rise in the regencies of East Aceh, North Aceh, Bireuen and Pidie, longtime GAM strongholds. He attributes two recent incidents to GAM members, although GAM has denied any role. In one, six men wielding AK-56s and pistols attempted to rob the regional health office in the southeast Aceh city of Langsa. They apparently knew that a load of cash had arrived earlier in the day. Police recovered two AKs and two pistols. ¶7. (SBU) In the second incident, four armed hoodlums on motorbikes followed the car of a man who had just withdrawn Rp. 55 million, or about USD 6,000, from a BRI branch in Pidie Regency, robbing him when he stopped for coffee at a roadside stall. In this case, police seized one AK-47 and two pistols, all in good working condition and not primitive "home made" rifles. He said only GAM possesses arms of that make and quality. Chairawan sees GAM ex-combatants as responsible for much of the rise in violence; "they just don't want to give up their arms," he opined. (Note: GAM surrendered all 840 of the arms called for in the MOU (reftel A); they say they have no other arms, but police, military, politicians and AMM members to whom we spoke all believe they have retained a few. End note.) JAKARTA 00006497 003.2 OF 009 ¶8. (SBU) Chairawan said GAM-related thugs continue to extort workers and businesses in the countryside. He said his men recently caught thugs extorting plantation workers transporting crude rubber at a rate of Rp. 1,250 (about one U.S. dollar) per kilo. He said simply not enough police maintain order in the countryside; they need three times the manpower they now have. Chairawan said thugs easily intimidate the police; they need TNI back up but TNI cannot make arrests. North Aceh AMM Chief: Unemployment The Greatest Obstacle -------------- -------------- ¶9. (SBU) AMM Lhokseumawe and North Aceh Team Leader Jorma Gardemeister told us the greatest obstacle to reintegration remains unemployment. He saw the GOI's recent reopening of the nearby Iskandar Muda Fertilizer (PIM) plant as a helpful step. He said GAM had established KPA offices in the area to offer training and guidelines for ex-combatants re- entering civil society, though the offices likely will form part of the GAM's planned political party. ¶10. (SBU) Gardemeister said GAM members in the area increasingly establish themselves as small traders, often taking advantage of the poor farmers they once extorted with arms. Farmers who sell their products to GAM traders lose money, he said; the traders pay Rp. 2,600 (about USD 0.28) for a kilo of crude rubber which would formerly have sold for Rp. 4,000 (about USD 0.43.) He said GAM gets 10 percent from what these affiliated traders make. Sometimes, GAM members just stop trucks and extort money directly, he added; at times police have caught them in the act. Gardemeister believes GAM secretly retains a certain number of weapons. GAM, he added, still collects "taxes" ("pajak nanggroe") from local officials, although less often than before. North Aceh Militias Change Name, Stay The Same -------------- - ¶11. (SBU) Before the MOU, GAM viewed existence of supposedly unarmed anti-GAM civilian militias as a provocation. They regularly murdered militia members (ref B.) Acting Governor Mustafa Abu Bakar appointed Sofyan Ali, the head of the major anti-GAM militia umbrella group Anti-GAM Front to the BRA in an April 14 decree to encourage reintegration of militia members into society; militia members will receive Rp 10 million (about USD 1,100) apiece from Social Affairs following a process similar to that used for GAM ex- JAKARTA 00006497 004.2 OF 009 combatants. GAM protested the move; they see one-time GAM official Ali as a turncoat. ¶12. (SBU) We asked Gardemeister whether anti-GAM militia members returned to their homes. He said that the old local militia group "Acehnese People Against Separatism" (BERANTAS) has reformed with a new name, "Fortress of the Acehnese People" (BEURATA.) The new organization operates in the same locations with the same personnel as the old one. (Note: The organization rejects the term "militia," and like other such groups denies having weapons, although we have heard reports of members carrying arms in the villages. End note.) He said local members number about 75, and have mostly "stayed in their holes" out of fear of GAM retribution. "They live in exile," he said, with the problem most acute in the North Aceh community of Nisam, long one of the most violence-prone hot spots in Aceh. ¶13. (SBU) Gardemeister said BEURATA ought to have a representative on the BRA since BRA seeks reintegration of all parties. He said GAM rejects this reasoning pointing out that the MOU did not mention BEURATA. Gardemeister said BEURATA plans to re-establish a field office, and has asked the Regent of North Aceh for representation in each subdistrict. Gardemeister could not say whether TNI had created the two groups, but noted BERANTAS had offices next to the local military base in Lhokseumawe and that BEURATA today "offers its services to TNI." TNI and the police have urged members to return home. ¶14. (SBU) Aceh's sizable population of Javanese transmigrants declined sharply during the conflict, as tens of thousands became IDPs in neighboring North Sumatra. GAM targeted the Javanese for expulsion or death, viewing their presence as a GOI attempt to dilute support for separatism. Today GOI encourages them to return; GAM opposes BRA helping reintegrate transmigrant IDPs. Gardemeister said IDPs of Javanese descent returning to the area still do not feel secure from GAM attacks and actively seek TNI protection. Many IDPs refuse to return. Bireuen Regent: Violence Down, Few Returning IDPs -------------- -------------- ¶15. (SBU) The Regency of Bireuen, along with the neighboring Regency of Pidie, the heart of Acehnese civilization, offers strong support for GAM; GAM leader Hasan de Tiro hails from Bireuen, as do a number of other major Aceh figures. The Regent of Bireuen, Mustafa Glanggang, told us that the biggest impediment to reintegration in Bireuen remains JAKARTA 00006497 005.2 OF 009 unemployment. He said GAM extortion had dropped, and that common thugs ("premans") rather than GAM ex-combatants commit most of the violence in his area. IDPs, most of them Javanese, have only slowly returned to Bireuen. Before the conflict, non-Acehnese comprised 10 percent of the population, he noted; today, they make up 2-3 percent and fear GAM reprisals. No anti-GAM militia exist in Bireuen now, although Bireuen continues as the home of Anti-GAM Front Chief Sofyan Ali. Bireuen GAM Ex-Combatants: Payments Not Fast Enough -------------- -------------- ¶16. (SBU) We spent part of an afternoon with 12 GAM ex- combatants led by Husaini, new GAM Field Commander ("Panglima") for the Bireuen region replacing Darwis Djeunieb, and Nasruddin, Senior GAM Representative to the Bireuen AMM office. Husaini expressed discontent with efforts to use GOI reintegration funds for militia, IDPs, or anyone other than GAM. "The MOU dealt with GAM alone, not with anyone else. We believe GOI should follow the MOU as written; just follow the MOU. Even public service radio advertisements about reintegration only mention GAM." (Comment: Following the MOU has become a sort of GAM shibboleth. We find they reject ideas they don't like as inconsistent with the MOU. In this case, Section 3.2.5 (c) of the MOU calls for compensation for "all civilians who have suffered a demonstrable loss due to the conflict", not just GAM. End comment.) ¶17. (SBU) Husaini guessed that thousands of militia members still live in Bireuen. He characterized the militias as "totally the creation of the GOI," not reflecting authentic Acehnese sentiment. He said he did not oppose payment to the militias and IDPs, but not through the same mechanism as payments to GAM ex-combatants. He said Bireuen's GAM has pushed for a big meeting of all elements of society including the militias to discuss the situation. He said the militias fear this idea. ¶18. (SBU) Nasruddin complained about the slow pace of reintegration payments. "GOI has long promised each of our 3,000 ex-combatants would receive Rp. 25 million, but where is it?" Only about half of the promised payments have yet been received, he said. He agreed with what others have told us, that a pokey bureaucracy rather than policy issues has kept money from getting delivered in timely fashion. Bireuen AMM Chief: Militia Also "Victims Of Violence" -------------- -------------- JAKARTA 00006497 006.2 OF 009 ¶19. (SBU) Bireuen AMM chief Denis Pacis told us militia members should take part in reintegration efforts as "victims of violence." He said inclusion of a militia representative on the BRA has not become a major issue in Bireuen. He saw growing confidence in the local police and their ability to control violence. He said police recently discovered a big marijuana field, which, they speculate, helps produce GAM needed revenue. (Note: GAM, TNI and police have all had links to marijuana cultivation in Aceh. End note.) He saw a continuing role for AMM in Aceh to assure success of reintegration. Despite the growing confidence in police and declining levels of violence, he said "no one knows what will happen when AMM leaves." He expressed doubt about Aceh's capacity to maintain security without AMM. Ex-Bireuen GAM Field Commander: Not Enough Police -------------- -------------- ¶20. (SBU) Former GAM Field Commander of the Bireuen region Darwis Djeunieb has moved to Banda Aceh where he sits on GAM's 30 member board while staying in close touch with events in Bireuen. He told us that at least 500 militia members live there. He said he does not oppose GOI paying militia members to reintegrate just as it pays GAM ex- combatants, but not out of the same funds as GAM. He noted that most ex-combatants in Bireuen become small farmers. ¶21. (SBU) Djeunieb said recently-arrested thugs in Pidie and Langsa do not belong to GAM, insisting police thoroughly identify the background and affiliation of criminals before venturing such an opinion. (Comment: Like many GAM ex- combatants, Djeunieb belonged to thug group Pemuda Pancasila before joining GAM; the two organizations have long since become mortal enemies. We suspect Djeunieb has a thorough insider's knowledge of crime in Bireuen. End comment.) ¶22. (SBU) Djeunieb, among the more charismatic GAM Field Commanders, told us he is happier now than when he lived in the forest during the years of the conflict and expressed distaste for efforts to tighten implementation of Islamic law in Aceh, a statement made that much more believable by the presence of an attractive young woman clinging to his side during our meeting. He steadfastly refuses to run for office. "The young should run for office" said the 45 year old Djeunieb, "then we can control them from above." Aceh TNI Commander: Aceh Is Safe, Militia Should Sit On BRA -------------- -------------- JAKARTA 00006497 007.2 OF 009 ¶23. (SBU) General Supiadin, TNI Commander in Aceh, told us that he sees a three-pronged approach to ensure success of reintegration: negative attitudes such as the GAM's must end; the economy must improve; and Aceh must have better law enforcement. His assistant told us of 402 violent incidents in Aceh since the MOU. ¶24. (SBU) Supiadin said the militias should sit on the BRA. He said GAM should not complain about GOI plans to pay Rp. 10 million to 6,500 militia members while providing Rp. 25 million payments to 3,000 GAM ex-combatants. After all, he said, "GAM itself came up with the 3,000 figure in Helsinki and put it into the MOU." The conflict also victimized militia members. ¶25. (SBU) Supiadin commented on how safe Aceh has become, noting the absence of roadblocks on any of the highways. On April 5, he and 20 friends rode their Harleys from Medan to Banda Aceh, a 15-hour journey. He said he found the main highway open, free and safe. (Comment: Based on our own drive from Medan to Banda Aceh, we agree. USAID colleagues report no roadblocks on roads in Central Aceh and Bener Meriah regencies. End comment.) GAM "Prime Minister": We'll Run Our Own Candidates -------------- -------------- ¶26. (SBU) GAM "Prime Minister" Malik Mahmoud and Spokesman Bachtiar Abdullah told us GAM would choose to run its own candidates for Governor and Vice Governor rather than endorse those of an established party. They said GAM plans to hold a major meeting late in May to choose candidates and take steps towards creating a party. Mahmoud said GAM's party would participate in Aceh's 2009 elections. He does not expect to move to Aceh permanently, but will commute regularly between Banda Aceh and Stockholm. ¶27. (SBU) Mahmoud has delegated Abdullah to handle reintegration matters. Abdullah said GAM does not oppose GOI funding reintegration of militia members, but GAM opposes Anti-GAM Front leader Sofyan Ali sitting on the BRA and will resign from the body if he continues. "Why the special treatment for the militias?", he asked rhetorically. Mahmoud said GAM's most pressing problem at the moment remains medical services for Acehnese wounded in the conflict. He said lines form around GAM headquarters every morning seeking health care as increasing numbers of wounded Acehnese come forward. JAKARTA 00006497 008.2 OF 009 Anti-GAM Front Leader: Watchful, Not Scared -------------- ¶28. (SBU) Sofyan Ali seemed nervous. The top militia figure in Aceh and now a member of BRA lives in semi-secrecy at a small Banda Aceh hotel with some of his men. He said the Acting Governor appointed him to BRA because the GOI requested it. He had just come from the body's first meeting, and said GAM had no reason to complain about the relative difference between its 3,000 ex-combatants receiving payments and 6,500 militia to receive payments because "3,000 is what they negotiated in Helsinki." ¶29. (SBU) Ali does not use "militia members;" he prefers "Front members." He said his men do not fear returning to their villages despite what our interlocutors told us; they exercise caution. Ali, nevertheless, looked scared when we met even though, as he points out, his men no longer get assassinated as had happened until the MOU signing. Police Intel Director: Reintegration "Not Yet Begun" -------------- -------------- ¶30. (SBU) Aceh Police Intelligence Director Nasikin told us that, in his opinion, the reintegration process has not yet begun. GAM has not provided the names of its 3,000 ex- combatants. He said security remains a problem in Aceh because of a lack of coordination between GAM leadership and members on the ground. He said some GAM members turn to crime because they have no other source of income. Recently, he said, police arrested GAM ex-combatants involved in illegal logging. ¶31. (SBU) Nasikin said he did not believe GAM members had given up all their guns, although he conceded they did give up the number specified in the MOU. He estimated GAM might still have as many as 200, and thinks GAM members carried out the Langsa and Pidie robberies. New BRA Chairman: Optimistic -------------- ¶32. (SBU) State Islamic Institute Ar-Raniry (IAIN) Rector Yusni Saby had just become BRA Chairman when we met. He concurred with the prevailing judgment that bureaucracy caused the slow pace of reintegration payment. He pointed out BRA itself does not control purse strings, providing only oversight to the reintegration process. He said he would recommend BRA meet on a regular basis. Saby said IDPs need compensation. He knew of the controversy over Sofyan JAKARTA 00006497 009.2 OF 009 Ali's position on BRA, but thought it could get worked out. Comment: Reason For Optimism -------------- ¶34. (SBU) Despite obstacles to reintegration, the process moves forward. All sides seek to address problems in good faith. We remain optimistic reintegration will continue to advance. Pascoe