Reaching for stability: strengthening civil society-donor partnerships in East Timor: too often in East Timor the need to spend donor funding dictates methodological choices, and the recipient of development funding becomes of secondary priority to donor reporting.

• Author: Engel, Rebecca E.
• Position: Strong and weak states: cases of governance

The days of unity around a central and common enemy are over in East Timor. The one-year anniversary of independence has passed and challenges have emerged in every sector and across the country. While the vast majority of issues are not new, they are no longer secondary to the collective goal of independence. Following the United Nations (UN)-led transitional period and a year of self-government, there is a lack of perceived progress in areas including the economy, health, education and political transparency. While patience is still the norm, frustration is beginning to increase and violence is emerging in some areas.

The new government is working to strengthen the economy, health, education and political transparency through its various ministries and departments, and has articulated its work plan and presented its priorities to its development partners. Meanwhile, the new government inherited a land of destroyed infrastructure; extreme poverty; high inflation, relative to neighboring countries; a bureaucracy with no established ethic; a population divided by strong political and historical affiliations; all against the traumatic backdrop of Portuguese Colonial rule and Indonesian occupation.

The needs throughout East Timor are so vast and limitations of government so real that communities, international non-governmental organizations (INGOs) and donor agencies must coordinate efforts and act based on their respective strengths to support and complement government priorities. This is important both as a means for development, as well as for social stability. Steps need to be taken to deflect discontented elements in the population from again resorting to violence. A comprehensive strategy for violence prevention requires an engaged and respected civil society that is future oriented and given a voice by means that are supported and strengthened by international and local actors.

THE CONTEXT

The population of East Timor, estimated at between 700,000 and 800,000, is spread throughout 13 districts and over 14,600 square kilometers, including the island of Atauro and the enclave of Oecussi. (1) Poor road conditions contribute to a relatively immobile population and sparsely populated villages in extremely remote areas, hindering the ability of the government to identify and respond to the needs of the population. Each ministry has been faced with tough choices because of limited budgets and had to choose priority areas of focus despite many relevant needs. In the near- to medium-term, the government cannot address the needs of the people alone, and it should not need to.

Lack of food security, both in terms of quality and diversity of crops produced and quantity of foods available, creates uncertainties in many areas of the country. There are cyclical and systemic food shortages in many areas of East Timor between the end of the dry season and the beginning of the rainy season. In many areas there is no singular cause of the food shortages. Food production, transport and storage systems must be designed on a national level. Water supply systems are critical both for agricultural productivity as well as health and hygiene. An improvement in the supply of food and water is also necessary as a means of increasing nutrition levels, particularly for children.

Improved economic security, including access to economic activities and markets, is among the most widely sought after tangible need in the country Sensitive issues related to levels of taxation and creation of a sound policy with regard to providing incentives for local and international investment in East Timor will also play a role in long-term economic security for the country. (2) Agriculture-related economies, including issues of self-sufficiency in production versus importation of cheaper commodities from other parts of the region, are of particular importance in this regard and are clearly related to questions of food production and water supply.

Economic security includes a need to resolve border issues in Oecussi, Bobonaro and Cova Lima, where traditional markets have been blocked by the new international border demarcations between East and West Timor. These borders continue to divide families who never migrated to live securely within Dutch or Portuguese zones. At the same time, traders in Oecussi are being prohibited from trading large quantities of essential goods such as soap, oil and rice by the Indonesian military. This and the high prices in stores have contributed to an already vibrant black market.

At the community level, however, there is a need for small income-generating service initiatives to be established and for these to gradually expand without undue financial burdens on the beneficiaries of services provided. Individuals are only now starting to focus on strengths and interests, by specializing in areas according to skill, for example, rather than choosing work options out of fear or obligation as in the past. This kind of flexibility remains a luxury for many; however, given that unemployment is hovering around 80 percent and subsistence farming is still the norm. Education and training opportunities are required to strengthen community group ability to initiate economic generating initiatives. Affordable prices for basic goods are required at the production phase. In Vemasse, Baucau, for example, a young group of skilled boat builders are attempting to respond to the needs of fishermen in their community. The baseline cost of building a single fiberglass boat--most of the supplies of which must be imported from Indonesia--is $5,000, before profit, and this is simply out of reach of local fishermen.

A system of commerce within villages or between districts charging reasonable prices that match individuals' actual purchasing power is essential. Increased communication about economic activity can lead not only to income generation but also to a renewed sense of nationhood, as distance would be decreased through consistent human interaction and an expansion of networks based on mutual support. The government could also contribute to the process of expanding economic opportunities by thinking further about the environment it creates in the country with regard to taxation policies and land use rights.

The importance of having confidence in the government cannot be underestimated. People in all districts are seeking increased access to information. Additional channels through which government activities may be understood must be created, and avenues for dialogue between communities and government are necessary. Integral to this desire for information is the sense that citizens must be aware of and able to access opportunities in the newly independent country.

Following the 4 December 2002 riots in Dili, the prime minister commenced a process of open governance in response to criticisms that policy decisions were made without consultation and not in response to the concerns and needs of East Timorese citizens. Across the country, people regard decision-making processes as highly centralized, and it is the sentiment of many that political and policy decisions do not take the diverse needs of different areas into account. In apparent recognition of the tyrannies of the struggle for survival, poor communications, and innate suspicion of authority, the prime minister is touring the country with members of his Council of Ministers both to bring information from the government to the people and to listen to concerns as reported directly by the people. This is a much-needed first step toward people learning about government policy and priorities.

More importantly, it helps build trust among the population and the government, many of whom have returned to East Timor from exile abroad. In a context and culture where family; history and the roles played during the resistance are so important, these ministers need to begin a process of "knowing" the people. This is a slow process and success to date is mixed. In some areas, trust is so low that not many people actually listen. While the process is laudable, the sincerity and ability to connect with individuals is still lacking. The perception of many throughout East Timor is that the government comes to listen and...