The Honiara Declaration

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Country/entity: Papua New Guinea
Bougainville
Region: Asia and Pacific
Agreement name: The Honiara Declaration
Date: 23 Jan 1991
Agreement status: Multiparty signed/agreed
Interim arrangement: Yes
Agreement/conflict level: Intrastate/intrastate conflict
Bougainville Conflict (1987 - 1998)
The conflict on Bougainville, an island under the jurisdiction of Papua New Guinea (PNG), began in 1987 as a dispute over compensation for the use of land by Bougainville Copper Ltd, a an Australian subsidiary. The underlying issue of independence soon emerged and the conflict escalated between the government of PNG and the native islanders, in turn spearheaded by the Bougainville Revolutionary Army (BRA). Until fighting ended in 1998, an estimated 20,000 died in the conflict. Several pre-negotiation agreements culminated in an agreement to a ‘permanent and irrevocable’ ceasefire, and a framework for normalizing the PNG-Bourgainville relationship, which included elections.
Stage: Framework/substantive - partial
Conflict nature: Government/territory
Peace process: Bougainville: peace process
Parties: Sir Michael Somare GCMG CH MP, Leader of the PNG Delegation;
Joseph Kabui, Leader of the Bougainville Delegation;
Third parties: Witness:
Bernard Narokobi MP;
James Sinko;
Fr. John Momis, MP;
Bishop Zale;
Benais Sabumei, MBE MP;
Patrick Itta;
Description: Agreement to review and formulate common strategy and programmes for the implementation of restoration of services to enhance peace, reconciliation and rehabilitation on Bougainville. 'The programme' meaning the package of phased arrangements for the restoration of services on Bougainville.

Agreement document: PG_910123_HionaraDeclaration.pdf (opens in new tab) | Download PDF

Groups

Children/youth: No specific mention.
Disabled persons: No specific mention.
Elderly/age: No specific mention.
Migrant workers: No specific mention.
Racial/ethnic/national group: No specific mention.
Religious groups: No specific mention.
Indigenous people: No specific mention.
Other groups: No specific mention.
Refugees/displaced persons: No specific mention.
Social class: No specific mention.

Gender

Women, girls and gender: No specific mention.
Men and boys: No specific mention.
LGBTI: No specific mention.
Family: No specific mention.

State definition

Nature of state (general): Page 2, Principles
6. ... We agree to defer discussions on the future political status of Bougainville and have further agreed to embark upon a joint programme of peace, Reconciliation, and Rehabilitation, within the current constitutional framework of the Nation of Papua New Guinea.
State configuration: No specific mention.
Self determination: No specific mention.
Referendum: No specific mention.
State symbols: No specific mention.
Independence/secession: No specific mention.
Accession/unification: No specific mention.
Border delimitation: No specific mention.
Cross-border provision: No specific mention.

Governance

Political institutions (new or reformed): No specific mention.
Elections: No specific mention.
Electoral commission: No specific mention.
Political parties reform: No specific mention.
Civil society: Page 3, Obligations and Responsibilities
10. Parties agreed to make the following actions:
National Government
... v) Allow and facilitate non-governmental agencies, including Churches and Community groups, to contribute towards the successful implementation of this programme.
Traditional/religious leaders: No specific mention.
Public administration: No specific mention.
Constitution: No specific mention.

Power sharing

Political power sharing: No specific mention.
Territorial power sharing: No specific mention.
Economic power sharing: No specific mention.
Military power sharing: No specific mention.

Human rights and equality

Human rights/RoL general: No specific mention.
Bill of rights/similar: No specific mention.
Treaty incorporation: No specific mention.
Civil and political rights: No specific mention.
Socio-economic rights: No specific mention.

Rights related issues

Citizenship: No specific mention.
Democracy: No specific mention.
Detention procedures: No specific mention.
Media and communication: No specific mention.
Mobility/access: Page 2, Definition of 'Programme'
7. The 'Programme' in this Declaration means the Package of phased arrangements for the restoration of services on Bougainville including:-
Phase I
... (ii) Lifting of the Blockade,
Protection measures: No specific mention.
Other: No specific mention.

Rights institutions

NHRI: No specific mention.
Regional or international human rights institutions: No specific mention.

Justice sector reform

Criminal justice and emergency law: No specific mention.
State of emergency provisions: No specific mention.
Judiciary and courts: No specific mention.
Prisons and detention: No specific mention.
Traditional Laws: No specific mention.

Socio-economic reconstruction

Development or socio-economic reconstruction: No specific mention.
National economic plan: No specific mention.
Natural resources: No specific mention.
International funds: No specific mention.
Business: No specific mention.
Taxation: No specific mention.
Banks: No specific mention.

Land, property and environment

Land reform/rights: No specific mention.
Pastoralist/nomadism rights: No specific mention.
Cultural heritage: No specific mention.
Environment: No specific mention.
Water or riparian rights or access: No specific mention.

Security sector

Security Guarantees: Page 2, Principles
6. ... We take a joint responsibility to restrain from the use of weapons and arms to help us to create an environment of peace and harmony as well as a pre-condition to justice and peace.
... we reject violence and seek meaningful consultation as a means of solving the crisis, and deeply mourn the loss of lives and destruction of properties, and trust in the common fatherhood of God and resolve to find lasting justice, peace and security on the island of Bougainville.
... We commit ourselves to the welfare and security of all individuals and organisations who participate in this Programme.
Ceasefire: No specific mention.
Police: No specific mention.
Armed forces: Page 2, Principles
6. ... We recognise the constitutional role of the Papua New Guinea Defence Force.
DDR: Security sector→DDR→Demilitarisation provisions
Page 3, Obligations and Responsibilities
10. Parties agreed tot make the following actions:
Bougainville Side
i) Disarm the BRA, BLF and their associated militant activities, including the surrender and destruction of arms under the supervision of the Multinational Supervisory Team.
Intelligence services: No specific mention.
Parastatal/rebel and opposition group forces: Page 3, Obligations and Responsibilities
10. Parties agreed tot make the following actions:
Bougainville Side
i) Disarm the BRA, BLF and their associated militant activities, including the surrender and destruction of arms under the supervision of the Multinational Supervisory Team.
Withdrawal of foreign forces: No specific mention.
Corruption: No specific mention.
Crime/organised crime: No specific mention.
Drugs: No specific mention.
Terrorism: No specific mention.

Transitional justice

Transitional justice general: No specific mention.
Amnesty/pardon: Transitional justice→Amnesty/pardon→Amnesty/pardon proper
Page 3, 10. Obligations and Responsibilities
10. Parties agreed tot make the following actions:
National Government
i) Grant amnesty and immunity from prosecutions to the members of BRA and BLF in accordance with legal aid and constitutional requirements of Papua New Guinea.
Courts: No specific mention.
Mechanism: No specific mention.
Prisoner release: Page 3, 10. Obligations and Responsibilities
10. Parties agreed tot make the following actions:
Bougainville Side
... ii) release all detainees held as a consequence of the conflict,
Vetting: No specific mention.
Victims: No specific mention.
Missing persons: No specific mention.
Reparations: No specific mention.
Reconciliation: No specific mention.

Implementation

UN signatory: No specific mention.
Other international signatory: No specific mention.
Referendum for agreement: No specific mention.
International mission/force/similar: No specific mention.
Enforcement mechanism: Page 2, Principles:
6.
... We agree to accept external assistance including a Multinational Supervisory Team (MST) to contribute to the implementation of this Programme under the framework determined in this Declaration.

Page 2, Task Force Membership
8. In order to facilitate the execution of this Programme, we agree to hereby establish a Task Force which shall consist of representatives appointed by the National Minister for Provincial Affairs, in consultation with an Interim Legal Authority.

Page 2-3, Terms of Reference
9. We agree that the terms of reference for the Task Force shall include:
i) Planning, Co-ordination and implementation of this Programme;
ii) Monitoring and supervision of this Programme;
iii) Investigate and determine the scope and components of the project under this Programme;
iv) Investigate, mobilise and secure all financial avenues at its disposal to finance this Programme;
v) Develop a detailed timetable to implement this Programme, which must be submitted to the Minister for Provincial Affairs for final approval as soon as practicable following their appointments;
vi) The Task Force shall report to the Legal Authority in Bougainville
vii) Furnish monthly reports or otherwise as directed by the Legal Authority in Bougainville; and
viii) Undertake other responsibilities as directed by the Legal Authority in Bougainville to implement this Programme.

Page 3, Programme Schedule
11. We agree that the following Time Schedule shall be adopted to implement this Programme from the signing of this Declaration:
i) One (1) week to one (1) month - establishment of the Task Force and the assembling of the MSD
ii)Between one (1) month to six (6) months project identification and resource mobilisation
iii) Eighteen (18) to thirty-six (36) months completion of Programme, abolition of the Task Force, return to normalcy.

Page 4, Review and Consultations
12. We agree that this declaration shall be reviewed at least on a six (6) monthly interval until the conclusion of the Programme in accordance with the programme schedule.
13. Notwithstanding the foregoing paragraph, the National Minister for Provincial Affairs may request a review either independently or on advice of the legal authority or the Task Force.
14. The programme under this Declaration does not, for the time being, include the programme of restoration of services undertaken by the National Government on Buka and adjacent islands.
15. The National Minister for Provincial Affairs shall determine and reconcile the relationships between these two programs on advice from the legal authority in Bougainville.
Related cases: No specific mention.
Source: Originally accessed from Conciliation Resources Accord (http://www.c-r.org/accord/papua-new-guinea%E2%80%93bougainville – no longer available from original source).
Currently available from UN Peacemaker: https://peacemaker.un.org/png-hionara-declaration91

Honiara Declaration on Peace, Reconciliation and Rehabilitation on Bougainville

1. Further to the Endeavor Accord signed on 5 August, 1990 concerning dialogue and return of services to Bougainville, a meeting comprising representatives from the Papua New Guinea National Government led by the Right Honouable Sir Michael Somare and Mr. Joseph Babui from Bougainville was held in Honiara from 22-23 January, 1991 at the initiative and auspices of the Solomon Islands Government an the Solomon Islands Christian Association (SICA) to review and formulate a common strategy and programmes fo the implementation of restoration of services to enhance Peace, Reconciliation and Rehabilitation on Bougainville.

2. Other Minister included on the National Government side were Honourable Bernard Narokobi, Honourable Benais Sabumei, and Honourable Fr.

John Momis, on the Bougainville side were Mr. Ken Savia, Bishop John Zale, Pastor Jeffery Paul, Mr Patrick Itta, Mr James Sinko, Mr Phillip Takaung, Mr Raphael Bele, MP and Mr Peter Kungka, MP.

3. Observers from the Solomon Islands Government and the South Pacific Council of Churches (SPCC) and Solomon Islands Christian Association (SICA) were also present at the Talks.

4. The Two Delegations expressed their sincere appreciation to the Government and people of the Solomon Islands for their generous hospitality and excellent facilities for the meeting.

They also thanked the Chairman of SICA, Bishop Lesies Boseto for his role as Moderator for these talks.

5. The two delegations welcomed the opportunity for their continuing face-to-face dialogue;

and committed to searching for a lasting peaceful solution of the Bougainville crisis, Declared on the following principles and arrangements:-

PRINCIPLES

6. We desire peace and reconciliation with each other and with out Heavenly Father.

We take a joint responsibility to restrain from the use of weapons and arms to help us to create an environment of peace and harmony as well as a pre-condition to justice and peace.

We agree to defer discussion of the furture of political status of Bougainville and have further agreed to embark upon a joint programme of peace, reconciliation and rehabilitation, within the current constitutional frameowrk of the Nation of Papua New Guinea.

We reject violance and seek meaningful consultation as a means of solving the crisis, and deeply mourn the loss of lives and destruction of properties, and trust in the common fatherhood of God and resolve to find lasting justice, peace and security on the island of Bougainville.

We recognise the importance of establishing legal and representative authority in Bougainville to assist in returning the Island to mormalcy.

We recognise the constitutional role of the Papua New Guinea Defence Force.

We agree to accept external assistance including a Multinational Supervisory Team (MST) to contribute to the implementation of this programme under the frameowrk determined in this declaration.

We commit outselves to the welfare and security of all individual and organisations who participate in this programme.

We endorse maximum Bougainvillean involvement in the implementation of this programme.

Definition of 'Programme'

7. The 'Programme' in this Decalation means the Package phased arrangements for the restoration of services on Bougainville including:-

Phase I

(i) Peace and Reconciliation;

(ii) Lifting of the Bloackade.

(iii) Establishment of Task Force.

(iv) Establishment of Interim Legal Authority

Phase II

(i) Restoration of Services;

(ii) Rehabilitation programme including maintenance and reconstruction;

and other associated activities determined by the Legal Authority in Bougainville in accordance with this Declaration;

(iii) Future Negotiations.

Task Force and Membership

8. In order to facilitate the execution of this programme, we agree to hereby establish a Task Force which shall consist of representatives appointed by the National Minister for Provincial Affairs, in consultation with an interim Legal Authority.

Term of Reference

9. We agree that the terms of reference for the Task Force shall include:

(i) Planning, Co-ordination and implementation of this programme;

(ii) Monitoring and supervision of this Programme;

(iii) Investigation and determine the scope and components of the projects under this Programme;

(iv) Investigate, mobilise and secure all financial avenues at its disposal to finance this Programme;

(v) Develop a detailed timetable to implement this Programme which must be submitted to the Minister of Provincial Affairs for final approval as soon as practicable following their appointments.

(vi) The Task Force shall report to the Legal Authority in Bougainville;

(vii) Furnish monthly reports or otherwise as directed by the Legal Authority in Bougainville;

and

(viii) Undertake other responsibilties as directed by the Legal Authority in Bougainville to implement this programme.

Obligations and Responsibilities

10. Parties agreed to take the following actions;

National Government

i) ...

ii) Grant amnesty and immunity from prosecutions to the members of BRA, and BLF in accordance with legal and constitutional requirements of Papua New Guinea

iii) Organise a Multinational Supervisory Team to participate in this programme

iv) Commit and disburse funds to the Programme under its normal budgetary allocations

v) Allow and facilitate non-Governmental agencies, including Churches and Community Groups to contribute towards the successful implementation of this programme.

vi) Resume all Government services including public and statutory administration, law and order and justice.

Bougainville Side:

i) Disarms the BRA, BLF;

and its associated militant activities, including the surrender and destruction of arms under the supervision of the Multinational Supervisory Team.

ii) Release of all detainees held as a consequence of the conflict.

iii) Guarantee the safety and welfare of the members of the Multinational Supervisory Team

iv) Assist the Task Force and the Legal Authority in v to expand (sic) funds towards effective implementation of projects under this programme.

v) Recieve and facilitate non-Governmental agencies, including Churches and Community groups to contribute towards the successful implementation of this programme.

vi) Provide conditions and environment conducive for the restoration of services under this programme.

Programme Schedule

11. We agree that the following Time Schedule shall be adopted to implement this programme from the signing of this Declaration:-

(i) One (1) week to (1) one Month - establishment of the Task Force and the assembling of the MST.

(ii) Between one (1) month to 6 months project identification and resource mobilisation.

(iii) Eighteen (18) to thirty-six (36) months completion of Programme, abolition of the Task Froce, return to normalcy.

Review and Consultations

12. We agreed that this Declaration shall be reviewed at least on a (6) six month interval until the conclusion of the Programme in accordance with the Programme Schedule.

13. Notwithstanding the foregoing paragraph, the national minister for Provincial Affairs may request a review either independently or on advice of the Legal Authority of the Task Froce

14. The Programme under this Declarationd oes not for the time being include the programme of restoration of services under by the National Government on Buka and adjacent islands.

15. The National Minister for Provincial Affairs shall determine and reconcile the relationship between these two programmes on advice from the Legal Authority in Bougainville.

Dispute Settlement

16. We agree to resolve any dispute including conflict or misunderstanding arising from the programme under this declaration through consultation and dialogue.

17. Where resolution of disputes cannot be reached, each party may recomment arbitrators for approval by the other.

When appointed, the Arbitrators shall work towards resolving any such conflict and misunderstandings.

Termination

18. The Declaration shall be terminated upon completion of this programme or by one party when acts of sabotage or similar action inconsistent with the spirit and letter of this Declaration taken by the other.

Declared at Honiara this 23rd day of January 1991

Sir Michael Somare GCMG CH MP

Leader of the PNG Delegation

Joseph Kabui

Leader of the Bougainville Delegation

Witness Bernard Narokobi MP

Witness Fr.

John Momis, MP

Witness Benais Sabumei, MBE MP

Witness James Sinko

Witness Bishop Zale

Witness Patrick Itta