Discussions on decentralization have been a significant aspect of politics in Papua New Guinea (PNG) since before the country gained independence. The centralized governance during Australian colonial rule led to the establishment of PNG’s provinces, with leaders from Bougainville expressing concerns about their future as part of PNG even prior to the emergence of the Panguna mine.
Since the provinces were created in 1976, various laws governing their operations have been enacted, modified, or repealed, particularly notable is the 1995 Organic Law on Provincial Governments and Local Level Governments. Although the concept of “special autonomy” has gained traction, its implications remain largely unexplored, leaving many in PNG’s cities, towns, and villages uncertain about its significance. Nonetheless, provinces like East New Britain (ENB), Enga, and New Ireland continue to seek this status, while Bougainville has already been granted it as a result of a peace agreement in 2001.
Recently, fieldwork conducted in Bougainville and East New Britain examined what special autonomy signifies for local leaders and residents. The Bougainville Peace Agreement (BPA) focuses on three key areas: autonomy, weapons disposal, and a referendum. This autonomy facilitated the creation of a Bougainville Constitution and empowered the provincial parliament with rights expected to increase over time. Many view these pillars as steps towards eventual independence, which explains the overwhelming 2019 referendum result favoring independence at 98.31 percent, rejecting the option for greater autonomy.
While the arms disposal process has largely been completed, some individuals believe that certain weapons remain hidden. There is growing impatience regarding the national government’s delay in organizing a referendum, which is seen as non-negotiable by the Bougainville populace.
Despite widespread support for autonomy and potential independence in Bougainville, many residents express dissatisfaction with the current state under special autonomy. The Konnou Constituency in South Bougainville, often one of the last to receive government services, struggles with the slow dissemination of benefits. Local sentiments reflected in conversations indicate a feeling of unfulfilled promises associated with autonomy.
In East New Britain, a rich history of leadership advocating for local control over resources and governance pervades. Following dissatisfaction with the 1995 reforms that centralized power, efforts to attain special autonomy began, and a committee remains active in advocating for administrative and political independence for the province. While support for autonomy is strong in areas like Rabaul and Kokopo, it is met with skepticism in more remote regions where access to services is limited and diverse Indigenous groups find it challenging to unite.
Expressions of frustration about local governance highlight a perception that political leadership may favor specific groups, creating feelings of alienation among other community members. There are discussions around possibly forming a Central New Britain Province as residents seek greater autonomy over local resources.
In summary, special autonomy as a decentralized governance model garners mixed reactions in PNG. In Bougainville, it symbolizes a pathway to eventual independence following historical struggles, while in East New Britain, it raises contentious debates over resource control among various levels of government, suggesting that simple devolution may not resolve the underlying issues.