Aceh: GAM Reintegration Advances Despite Obstacles

UNCLAS SECTION 01 OF 09 JAKARTA 006497

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TAGS: PGOV PHUM PINR PREL ASEC SNAR SOCI ID
SUBJECT: Aceh: GAM Reintegration Advances Despite Obstacles


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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
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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

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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
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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.)

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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
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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-

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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
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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

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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"
-------------- --------------

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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
-------------- --------------

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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
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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.


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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"
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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

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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