PNG Parliament Schedules Debate on Bougainville Referendum

The Parliament of Papua New Guinea is scheduled to debate the results of the 2019 Bougainville independence referendum on October 20-21. The planned debate follows continued delays in a parliamentary vote required to ratify the non-binding referendum, in which 97.7% of voters in the Autonomous Region of Bougainville supported independence.

The referendum was a key component of the 2001 Bougainville Peace Agreement, which ended a decade-long civil war. The agreement stipulated that a referendum on Bougainville’s future political status would be held and that the final decision would be made by the National Parliament of Papua New Guinea. The agreement did not, however, establish a specific deadline for the parliamentary vote following the referendum.

In August, the referendum result was formally presented to parliament, but the session concluded without a vote on ratification. The upcoming two-day debate was announced by Peter Tsiamalili Jr., Bougainville’s regional Member of Parliament.

Ishmael Toroama, President of the Autonomous Bougainville Government, has publicly commented on the process. In a June statement, Toroama said, “Trust is the foundation of every agreement. Where agreed processes have been departed from, concerns have naturally arisen.” He urged the people of Bougainville to “remain patient” while also noting that “recent events violating these existing understandings cannot be ignored or downplayed.”

Constituencies within Bougainville have recently held ceremonies declaring themselves “independence ready,” according to the Autonomous Bougainville Government.

Further agreements have been made since the 2019 referendum to guide the process. The 2022 Era Kone Covenant, signed by Prime Minister James Marape and President Toroama, established 2027 as the target year for a political settlement on Bougainville’s status. The covenant also included a provision to table the referendum results in parliament by the end of 2023, a deadline that was not met.

The process for a parliamentary vote has also been a subject of discussion. In June, the PNG parliament established that ratifying the referendum would require a three-quarters majority. Leaders from the Autonomous Bougainville Government have disputed the establishment of this threshold.

PNG opposition leader James Nomane addressed the delays in parliament in August, stating the government should “not kick the can down the road” and requesting a specific date for a vote.

Australia, which was a witness to the 2001 peace agreement, has maintained a position of supporting the established process. In 2022, Australian Deputy Prime Minister Richard Marles stated Canberra’s role was to “support Papua New Guinea.” Following a response from Bougainville’s leadership, the Australian government clarified it would support the outcome agreed upon by both Papua New Guinea and the Autonomous Bougainville Government. Australia and Papua New Guinea are also signatories to a security agreement, known as the Pukpuk Treaty, which includes an obligation to consult on matters affecting either country’s sovereignty or stability.