The evolving narrative of denial: the Fraser government and the Timorese genocide, 1975–1980

ABSTRACT

As research by the Commission for Reception, Truth and Reconciliation in East Timor documents, the years 1975–1980 constituted the worst period of the Indonesian occupation of East Timor, during which grave human rights took place involving a high loss of life. In Australia, the government headed by Prime Minister Malcolm Fraser (1975–1983) sought to present itself as a supporter of human rights and the international rule of law. It also prioritized relations with the Suharto regime, which it saw as key to its policy position in Southeast Asia. These two positions came into conflict due to the Indonesian invasion of East Timor. The Fraser government therefore worked to propagate a narrative concerning East Timor which denied the seriousness of the situation, distorted the historical narrative, deflected blame from Indonesia, and depicted the Australian position as principled and realistic. This paper examines the development of this narrative as events progressed and information concerning the crisis in East Timor came to the attention of the outside world. It also examines how the Fraser government employed this narrative internationally in order to protect the Suharto regime from scrutiny.

KEYWORDS:

• Timor-Leste
• Australian foreign policy
• Fraser government
• genocide
• invasion of East Timor

Acknowledgements

Thanks to Professor Clinton Fernandes of the University of New South Wales in Canberra for his extensive assistance during my PhD research in this area. Thanks to John Waddingham, Dr. Susan Connelly, and my wife, Dr. April Weiss, for their proofreading and comments during the development of this paper.

Disclosure statement

No potential conflict of interest was reported by the author.

Notes on contributor

Peter Job is a PhD candidate in International and Political Studies at the University of New South Wales in Canberra, Australia. His thesis is on the policies of the Australian Fraser government towards the Indonesian occupation of East Timor.

ORCID

Peter Job http://orcid.org/0000-0002-4198-9607

Notes

1 The Timor-Leste CAVR was established in 2001 to inquire into human rights violations in East Timor between April 1974 and October 1999. It collected 7669 statements, undertook 1048 targeted research interviews, surveyed 1396 randomly selected households, and facilitated 1379 Community Reconciliation Procedure cases involving reintegrating perpetrators of more minor offences back into communities. It established an archive documenting 85,164 human rights violations. Its report, Chega, of more than 3000 pages, was first published electronically in 2005 and in hard copy in 2013. See CAVR 2013.

2 Originally established as the Timorese Social Democratic Association (ASDT) in May 1974, the organization changed its name to Revolutionary Front for the Independence of East Timor (FRETILN) in September that year. Although incorporating political views ranging from moderate social democratic to Marxist, it was strongly influenced by African anti-Portuguese colonialist movements, particularly FRELIMO of Mozambique. It advocated for independence, land, health, and education reforms, and the building of an East Timorese identity. See Hill 2002.

3 CAVR 2013, Chapters 3 and 6.

4 Staveteig 2007.

5 CAVR 2013, 499.

6 CAVR 2013, 499, 505.

7 Renouf 1986, 52, 189.

8 Parliament of Australia (POA), House of Representatives Hansard, June 1, 1976.

9 Friend 2003, 113.

10 Millott 2015.

11 Renouf 1986.

12 Record of meeting between Whitlam and Suharto, Yogyakarta, September 6, 1974 [NAA: A10463, 801/13/11/1, iii]; Record of conversation between Whitlam and Suharto, Townsville, April 4, 1975 [NAA: A10463, 801/13/11/1, x]. References containing the prefix [NAA] refer to documents available at the National Archives of Australia, in Canberra, Australian Capital Territory. See http://www.naa.gov.au/

13 Job 2016.

14 While the formal term for the armed wing of Fretilin was Falintil, this was not in widespread use during this period. Fretilin representatives, including the Fretilin radio link broadcasting from within East Timor from 1975 to 1978, used the terms “Fretilin forces,” and “Fretilin operations” in reference to the operations of Fretilin combatants. Indonesian and Australian officials as well as solidarity activists used it in the same way. This paper has accordingly followed this usage.

15 CAVR 2013, 189–90.

16 Horta 1987, 58.

17 Job 2016.

18 Statement by Willesee, Tokyo, June 17, 1975. Transcript of Question and Answer Session at the Australian Chamber of Commerce Luncheon [NAA: A1838, 3038/10/1, xxiv].

19 POA, House of Representatives Hansard, August 26, 1975.

20 Letter from Whitlam to Bob Bolger, Secretary, Waterside Workers Federation of Australia, September 18, 1975 [NAA: A10463, 801/13/11/1, xiv].

21 Cable from Lisbon to Canberra, October 17, 1975. Portuguese Timor [NAA: A1838, 3038/11/64, ANNEX].

22 POA, House of Representatives Hansard, February 25, 1975.

23 Submission to Peacock, Canberra, November 13, 1975. Relations with Indonesia: Portuguese Timor [NAA: A1838, 3938/10/1/2, ii].

24 Cable from Canberra to Jakarta, November 20, 1975. Australian relations with Indonesia [NAA: A11443, xiv].

25 Cable from Jakarta to Canberra, November 27, 1975. Woolcott. For Secretary and Minister [NAA: A10463, 801/13/11/1, xxvi].

26 Richardson 1975.

27 Canberra Times 1975a.

28 Timor Information Service 1975.

29 Statement by Andrew Peacock, caretaker Minister for Foreign Affairs, November 27, 1975 [NAA: A1838, 3038/10/1/3, iii].

30 Cable from Canberra to Jakarta, November 28, 1975. Portuguese Timor [NAA: A1838, 3038/10/1/3, iii].

31 Cable from Jakarta to Canberra, November 29, 1975. Portuguese Timor [NAA: A10463, 801/13/11/1, xvi].

32 Canberra Times 1975b.

33 Cable from New York to Canberra, December 2, 1975. Portuguese Timor: United Nations [NAA: 1838, 906/30/14/3, i].

34 Record of Conversation between Feakes, Joseph, Curtin, and Horta, Canberra, October 28, 1975. Portuguese Timor [NAA: A10463, 801/13/11/1, xv].

35 Cable from Jakarta to Canberra, December 1, 1975. Portuguese Timor [NAA: A10463, 801/13/11/1, xvi].

36 Canberra Times 1975c.

37 DFA News Release, December 7, 1975. Portuguese Timor – Statement by the Foreign Minister, Mr Andrew Peacock [NAA: A1838, 906/30/14/3, i].

38 DFA News Release, December 8, 1975. Portuguese Timor [NAA: A1838, 935/17/3, xii].

39 Cable from New York to Canberra, December 9, 1975. Portuguese Timor: United Nations [NAA: A1838, 906/30/14/3, ii].

40 Cable from New York to Canberra, December 10, 1975. Portuguese Timor: United Nations [NAA: A1838, 906/30/14/3, ii].

41 Statement by Campbell in Fourth Committee of UN General Assembly. New York, December 11, 1975 [NAA: A1838, 906/30/14/3,iii].

42 Cable from New York to Canberra, December 12, 1975. Portuguese Timor: United Nations [NAA: A1838, 906/30/14/3, ii].

43 Cable from New York to Canberra, December 16, 1975 Portuguese Timor: Security Council [NAA: A1838, 3038/13/9/1/1, i].

44 Statement by Harry to Security Council. New York, April 14, 1976 [NAA: A1838, 3038/9/1, ii].

45 Submission to Peacock, December 22, 1975. Portuguese Timor [NAA: A1838, 3038/10/1/2, iii].

46 Note on Timor, January 1976 [NAA: A1838, 3038/13/2/1, xii].

47 POA, House of Representatives Hansard, March 4, 1976.

48 Record of conversation between Peacock and Panggabean, April 14, 1976 [NAA: A1838, 3038/1/10/1, xiv].

49 Address at the special session of the House of the People’s Representatives of the Republic of Indonesia. Prime Minister, for press, Saturday, October 9, 1976 [A1838 3038/10/1/3, xi].

50 MacKellar, M.J.R. MacKellar, Minister for Immigration and Ethnic Affairs. Undated. Admission to Australia of Representatives of Fretilin [NAA: A1209 1976/2183].

51 DFA News Release, January 20, 1978. Relations with Indonesia [NAA: A1838, 3038/10/1, ANNEX B].

52 Cable from Canberra to Jakarta, October 23, 1978. Antara interview with Prime Minister [NAA: A10463, 801/13/11/1, xxx].

53 Memorandum from Canberra to Lisbon, January 31, 1979. Australia’s de jure recognition of Indonesia’s incorporation of East Timor [NAA: A10463, 801/13/11/1, xxxi].

54 Text of speech by Peacock to Indonesian Press Club, Jakarta, April 14, 1976. DFA News Release [NAA: A1838 3038/10/1/3, iv]

55 Press Release, October 13, 1976. Communiqué issued at the end of the state visit of Australian Prime Minister Malcolm Fraser to Indonesia from 7 to 11 October 1976 [NAA: A10463, 801/13/11/1, xxvii].

56 Cable from Jakarta to Canberra, March 26, 1976. East Timor: Defence Cooperation with Indonesia [NAA: A10463, 801/13/11/1, xxi].

57 Visit to East Timor. February 1979. Attachment to Memorandum by Geoffrey Allen, Counsellor, Jakarta Embassy, March 15, 1979. East Timor [NAA: A10463, 801/13/11/1, xxxi].

58 Freney 1991, 358.

59 Timor Information Service 1976b.

60 Canberra Times 1976a.

61 For further analysis of the Australian and international solidarity movements during this period, see Fernandes 2011, Chapter 3; Scott 2005; and Freney 1991.

62 See for example messages received, January 14–29, 1976. Timor Information Service 1976a.

63 The author of this paper was involved in this operation in 1978.

64 POA Senate Hansard, Thursday, March 31, 1977.

65 POA House of Representatives Hansard, November 16, 1978.

66 POA House of Representatives Hansard, October 7, 1976.

67 POA House of Representatives Hansard, December 7, 1976.

68 POA House of Representatives Hansard, November 2, 1977.

69 POA Senate Hansard, August 25, 1977.

70 POA House of Representatives Hansard, March 23, 1976. While efforts were made by the Indonesian government and its supporters to depict Fretilin as communist, this contention was largely not shared by DFA. For an analysis of the ideological nature of Fretilin during this period and how it was perceived by Australian officials, see Fernandes 2014.

71 Canberra Times 1976b.

72 Jakarta to Canberra, March 29, 1976. Entry of Fretilin Leaders to Australia [NAA: A1209, 1976/55, iii].

73 Letter from Peacock to Parkes. Undated, but probably March 1976 [A1838 3038/10/1/3, iv].

74 JFADC – Briefing on East Timor, April 27, 1976 [A1838 3038/10/1/3, iv].

75 The Hon. Andrew Peacock, M.P. Summary of address to the United Nations Association of Australia – The problem of East Timor. Friday, May 21, 1976 [A1838 3038/10/1/3, vi].

76 Cable from Woolcott to Canberra, October 25, 1976. Timor [NAA: A10463, 801/13/11/1, xxvii].

77 POA Senate Hansard, Tuesday, November 30, 1976.

78 POA House of Representatives Hansard, Friday, December 3, 1976.

79 POA Senate Hansard, Wednesday, February 23, 1977.

80 Dunn 1977.

81 POA House of Representatives Hansard, Wednesday, March 16, 1977.

82 Cable from Canberra to Jakarta, March 18, 1977. East Timor-Press Reports [NAA: A10463 801/13/11/10, i].

83 Interview of James Dunn by Peter Job, April 2, 2017.

84 Cable from Canberra to Stockholm, March 25, 1977. Visit to Sweden this of Mr James Dunn [NAA: A10463 801/13/11/10, i].

85 Cable from The Hague to Canberra, March 11, 1977. Indonesia: East Timor [NAA: A10463, 801/13/11/10, i].

86 Dunn 2003, 326.

87 Cable from The Hague to Canberra, March 17, 1977. East Timor [NAA: A10463, 801/13/11/10, i].

88 Cable from Canberra to The Hague, March 18, 1977. East Timor and other issues [NAA: A10463, 801/13/11/10, i].

89 Cable from The Hague to Canberra, March 21, 1977. Dutch Foreign Minister: East Timor [NAA: A10463, 801/13/11/10, i].

90 Cable from The Hague to Canberra, March 29, 1977. East Timor [NAA: A10463, 801/13/11/10, i].

91 Cable from Washington to Canberra, March 15, 1977. Timor [NAA: A10463, 801/13/11/10, i].

92 Cable from Jakarta to Canberra, March 16, 1977. Woolcott. East Timor-Dunn Mission [NAA: A10463, 801/13/11/10, i].

93 Cable from Canberra to Washington, March 16, 1977. East Timor [NAA: A10463, 801/13/11/10, i].

94 United States Congress House 1977, 9–13.

95 United States Congress House 1977, 26–47.

96 Joint Intelligence Organization (JIO) 1978, 62–64.

97 ibid. 81–2.

98 ibid., 88.

99 ibid., 103–4.

100 DFA. Report of International Commission of Jurists: Situation in East Timor, July 15, 1977. D.F. Stoop, Head, General Legal Section [NAA: A1838, 1506/34, i].

101 CAVR 2013, 1343.

102 CAVR 2013, 1747–9.

103 CAVR 2013, 492.

104 CAVR 2013, 1173–5, 1338.

105 CAVR 2013, 1347, finding 54.

106 Wilson, D.G. For the Minister: East Timor, March 23, 1978 [NAA: A1838, 3038/10/1, Lv].

107 Cable from Jakarta to Canberra, May 25, 1978. East Timor Family Reunions [NAA: A1838, 3038/10/1, Lv].

108 Conversation with General Dading, May 1978 [NAA: A10463, 801/13/11/1, xxx].

109 Cable from Jakarta to Canberra, August 9, 1978. East Timor [NAA: A1838, 3006/4/3, xxiv].

110 Conversation with Mr L. Watz, Counselor, Swedish Embassy, February 13, 1978. East Timor; Irian Jaya [NAA: A1838, 3038/10/1, Lv].

111 Dunn, James. “Notes on Present Situation in Timor.” The Parliamentary Library, Legislative Research Service, October 12, 1978 [NAA: A1838, 3038/10/1 lvi].

112 Australian Council for Overseas Aid 1979, 7.

113 Interview of Bill Armstrong by Peter Job, December 18, 2017.

114 Interview of John Waddingham by Peter Job, November 16, 2017.

115 Record of conversation with the Indonesian Foreign Minister, Doctor Mochtar, and Minister for Foreign Affairs, the Hon. Andrew Peacock, October 5, 1978 [NAA: A10463, 801/13/11/1, xxx].

116 East Timor: Visit by Australian Ambassador to Indonesia. Undated [NAA: A1838, 3038/10/11/2, v].

117 Foreign Service of the United States. Telegram from Jakarta to Washington, September 9, 1978. The Ambassador's Visit to East Timor, September 6–8, 1978 [NAA: A10463, 801/13/11/1, xxx].

118 AM, 11 September 1978. DFA transcript [NAA: A1838, 3038/10/11/2, v].

119 Cable from Jakarta to Canberra, September 11, 1978. Humanitarian Assistance to East Timor [NAA: A1838, 3038/10/11/2, v].

120 “East Timor: Aid.” Media Release by Andrew Peacock, Minister for Foreign Affairs, September 12, 1978 [NAA: A1838, 3038/10/1 lvi].

121 Senate Hansard, Tuesday, September 12, 1978.

122 Hastings 1978.

123 Gill 1978.

124 The Herald 1979.

125 Jenkins 1979.

126 For the Minister: Timor and Australia’s Future Role. DFA, November 7, 1978 [NAA: A1838, 3038/10/1 lvi].

127 POA House of Representatives Hansard, Tuesday, May 22, 1979.

128 Cable from Canberra to Geneva, September 5, 1978. ICRC: Timor [NAA: A10463, 801/13/11/1, xxx].

129 Cable from The Hague to Canberra, November 14, 1978. East Timor: Question in Dutch Parliament [NAA: A10463, 801/13/11/1, xxxi].

130 Cable from Canberra to The Hague, July 12, 1979. Timor: Political situation [NAA: A1838, 3038/10/1 lvii].

131 Cable from Stockholm to Canberra, July 4, 1979. East Timor and Irian Jaya: Visit of Mr Ken Fry MP [NAA: A1838, 3038/10/1 lvii].

132 Cable from Brasília to Canberra, November 14, 1979. Brazil-Attitude to the Timor Issue [NAA: A10463, 801/13/11/1, xxxi].

133 Cable from Jakarta to Canberra, August 17, 1977. East Timor: I.C.R.C [NAA: A1838, 935/17/3, xxiii].

134 Cable from Canberra to Seoul, November 2, 1979. East Timor: Press Guidance. For Seoul-for Minister [NAA: A1838, 3038/10/15, xiv].

135 POA House of Representatives Hansard, Thursday, September 18, 1980.

Additional information

Funding

This research was funded by a scholarship from the University of New South Wales in Canberra.