Police Deployment, Enga Province, Papua New Guinea (PNG)
The following are the facts as Barrick understands them, following inquiries made either directly or through the Porgera Joint Venture (PJV), with representatives of the PNG government, police officials, community and tribal leaders, local health care providers and international observers representing foreign governments.
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In April of 2009, the Government of Papua New Guinea deployed approximately 150 police officers to restore law and order in the central highlands of Enga province near the Porgera Joint Venture as part of “Operation Ipili.”
The purpose of the police deployment was to address the dramatic deterioration in law and order and the persistent threats to the safety and security of all lawful citizens throughout the region.
Living Conditions Prior to Police Deployment
Despite the concerted efforts of government and community leaders to address growing illegal activity, violent crime and lawlessness has been on the rise for several years in the central highlands region, due in part to the limited resources in the law and justice sector.
Prior to the police deployment, increased tribal fighting and crimes such as sexual assault and illegal mining were having a profoundly detrimental impact on these communities. The severe deterioration of law and order was exacerbated by a large influx of firearms, as well as drug and alcohol abuse. These problems were compounded by the declining capacity of law and justice institutions in Enga province, which have been unable to keep pace with rapid in-migration to the Porgera region from other parts of the province and beyond. The population in the vicinity of the Porgera Joint Venture has increased from several thousand when the mine was initially constructed in 1990 to approximately 50,000, largely as a result of in-migration of individuals not native to the immediate area, many of whom are transients seeking to benefit from the mining operation.
“The people of Porgera had fallen victim to illegal mining, roadblocks, stealing, rape, drug addicts and drunken criminals and tribal fighting. Gun-toting warlords have terrorized the innocent and continue their reign of terror in the presence of Enga police and mobile squads for the past eight years and the lives and welfare of the people are at stake.”
- Excerpt from a community statement read by local landowner leader Phillip Mugalo, as reported in the Papua New Guinea Post-Courier newspaper on April 20, 2009.
Along with elected officials, landowners, religious, youth and other community leaders, the Porgera District Women’s Association (PDWA) has been a vocal advocate of the police deployment. The PDWA, an organization representing more than 2,000 women from 20 wards in the Porgera region, highlighted the grave concerns of local women for their safety.
“Women, girls and children in the Porgera valley have been under threat and fear all their lives since the illegal mining activities began in the 1990s. The intervention of the police operation in the district was timely for the cry of all women and children in the area…”
- Maria Kensary, Chairwoman, Porgera District Women’s Association.
(Source: “Women want SOE extended”, Papua New Guinea Post-Courier, May 11, 2009).
Foreign development workers have also expressed support for increased law and order resources in the region, including an Australian Rotary Club which has been engaged in community development and literacy training in the Porgera valley since 2005.
“The need for the Police Deployment indicates the urgent need for more permanent local police for Porgera and the surrounding mountains. It also underscores the need for a permanent base where they can all be housed together to carry out their job without fear or threat… Since the police deployment started, children (can) travel to school without fear, women no longer walk around with knives in fear of rape, assault and discrimination. Business operators are far less fearful...There has been a marked reduction of crime and an improvement of lawlessness in the community. Warring clans have voluntarily surrendered their firearms and given up tribal warfare. These are only some of the benefits realised.”
- Christine McCormack, International Director and President Elect, Rotary Club of Dee Why Warringah.
During the deployment, adequately resourced police units were able to enforce existing PNG law to restore law and order to the region. A liquor ban was also imposed to deal with alcohol abuse evident in numerous communities.
A variety of sources have confirmed that illegal activities such as tribal fighting, gun violence, assaults on women, drug use and illegal mining were significantly reduced. Local clan leaders participated in peace and reconciliation ceremonies, following negotiations by police to end long-standing conflicts between warring clans, which have involved numerous fatalities. Local media reported on these events, which were attended by several thousand clan members and involved the surrender of firearms to law enforcement agencies. Numerous other weapons, including high-powered firearms, were seized by police.
The Porgera Hospital reported a significant reduction in the instances of hospitalization for trauma (accidents and injuries) during Operation Ipili.
The report concludes that “there has been a dramatic decrease in the number of trauma cases (bush knife wounds, gun wounds, drug and alcohol related injuries, domestic violence, women victims accused of sorcery, illegal-miners-injuries) presenting at the outpatient department and in-patients at Porgera hospital.” (Link: Report on Hospital Attendance & Admissions for the period since 17th of April, 2009 to 19th of May 2009, Porgera Hospital).
Police also arrested 50 people for allegedly committing a series of major crimes in Porgera and Enga province. As Acting Deputy Police Commissioner Raphael Huafolo stated, “Since the commencement of Operation Ipili, detectives began probing a series of unattended cases and the result so far has been shocking. Our findings indicate that people have mercilessly killed other human beings in Porgera, and drastic measures should be taken by police and other law enforcement agencies to deter such heinous crimes from reoccurring. Operation Ipili was aimed at reducing such crimes and other social problems such as prostitution, illegal mining, bootlegging, drug pedaling and illegal firearms.” (Source: “50 in for major crimes”, PNG Post-Courier, November 3, 2009)
On July 3rd, Operation Ipili and the deployment of some 150 police officers to the Porgera region was officially terminated by police authorities. At the urging of community leaders and residents, a smaller police deployment of approximately 70 officers was initiated in mid-July and is currently in place, under a new commander.
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Overwhelming Community Support for Police Mission
The local population has been and remains overwhelmingly supportive of the enhanced police presence in the region.
A wide range of community leaders, local landowners and national and provincial political leaders have publicly stated their strong support for the heightened police presence and the PNG government’s efforts to protect its citizens. There is widespread community consensus that the police deployment has been successful in decreasing crime and violence, restoring stability and the rule of law, and dramatically improving quality of life for local residents.
Prior to the conclusion of Operation Ipili in July 2009, numerous community leaders called on the PNG Government to extend the police deployment beyond its original timelines. This request was made in light of widespread concern that violence and lawlessness would resume immediately following the departure of the police deployment and that persons involved in illicit activities who had left the region prior to the police deployment’s arrival would return.
At a large community peace rally in June, more than 80 local Porgera leaders comprising women, youth, Church and landowner groups circulated a petition addressed to the Prime Minister of Papua New Guinea supporting the police deployment and calling for a long-term, enhanced police presence in the region. The petition garnered the signatures of 5,000 concerned residents.
The petition read: “The call-out has brought to our communities peace and good order. Women and children are now safe to walk around and no longer live in fear. Alcohol consumption and illicit drug use is now rarely seen.”... “Where previously, life was disrupted by tribal fighting, communities are now free of this disease. Lastly, our villages are free of the corrupting influence of illegal miners.”
Reiterating support for the police deployment, Maria Kensary, Chairwoman of the Porgera District Women’s Association, stated:
“When the police were sent in, we saw that the community was living in peace and mothers were going back to the market without fear and everyone is really happy. …since the establishment of the deployment, there have been huge changes. So when they wanted to end the deployment, we said that would not be good and we asked the government to consider bringing back the police or to let them stay longer…and we can continue to live as we are now…in peace.”
See below for further information:
“Porgera leaders surrender arms”The National, May 14, 2009“Operation Ipili the way to go”Editorial, PNG Post-Courier, April 20, 2009“Governor pleased with operation”PNG Post-Courier, May 15, 2009“Warring tribes make lasting peace”PNG Post-Courier, May 20, 2009
“Porgera folks fed-up with crime and violence: ACP”The National, May 21, 2009."Clans hand over firepower"The National, June 2, 2009"Porgera folk petition Govt to extend ops"The National, June 30, 2009
“Ipatas praises leadership”
PNG Post-Courier, July 2, 2009
“Leaders unhappy with SoE pullout”
The National, July 6, 2009
“50 in for major crimes”
PNG Post-Courier, November 3, 2009
Also: Public Notice of Defence Call-Out, National Gazette, March 4, 2009
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Barrick and the Porgera Joint Venture (PJV) on the Police Deployment
The Porgera Joint Venture is a joint venture between the Enga Provincial Government, local Ipili landowners who own the land contained in the Mining Lease, and two PNG subsidiaries of Barrick Gold Corporation.
Prior to the police deployment, government officials, community leaders, landowners, women and religious leaders, non-governmental organizations and businesses in the province, including Barrick and the PJV, had expressed ongoing concerns regarding the deteriorating law and order situation in the region. The majority of PJV’s 2,500 employees and 500 contractors and their families live in the Porgera region and had been adversely affected by the state of law and order.
However, it was the communities themselves that requested that the Government deploy the police units to the Porgera region. This decision to increase the police presence was made by the National Executive Council of the PNG Government, following a submission by the Internal Security Minister outlining the situation in the Porgera region and other parts of Enga province.
Barrick and the Porgera Joint Venture support appropriate actions by the government to improve law and order in a manner that adheres to PNG law, upholds human rights and is consistent with the Voluntary Principles on Security and Human Rights.
The operational elements of police deployments are strictly a matter for the PNG Government and the PJV has no involvement in managing police operations. Although illegal mining was one of a number of criminal activities affecting the region, the purpose of the increased police presence was not principally to protect the mine. PJV security is responsible for maintaining security on mine property, generally defined as within the mine fence.
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PJV Assistance to Police Deployment Conditional upon Human Rights
In early April 2009, prior to the commencement of “Operation Ipili”, the PJV was requested by the Government of PNG to provide limited, in-kind assistance to the police deployment principally in the form of accommodation, meals and fuel.
Alternative accommodations, facilities for meals and administrative support are severely limited in this remote region. PJV voluntarily made facilities available to the PNG government at no charge, recognizing that very limited financial resources are available to PNG law enforcement agencies and that local support existed for the company to provide this form of assistance.
Prior to agreeing to the Government’s request, PJV sought formal assurances that Operation Ipili would be conducted lawfully and in accordance with international norms and respect for human rights. This is consistent with the company’s security policy and practices which are aligned with the Voluntary Principles on Security and Human Rights.
On April 20, 2009, the PJV wrote to the Office of the Commissioner of Police in PNG outlining conditions for its passive support, recognizing that PNG police leadership had received training in human rights. Specifically, the PJV stipulated the following conditions:
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“The PJV understands that the police personnel assigned to the area shall, in discharging their responsibilities, comply with all applicable laws and regulations of Papua New Guinea and relevant international legal instruments regarding the use of force, including the Voluntary Principles on Security and Human Rights, the UN Code of Conduct for Law Enforcement Officials, and the UN Basic Principles on the Use of Force and Firearms by Law Enforcement Officials. The PJV also understands that to the extent there are any complaints levied against individual police personnel based on conduct occurring while assigned to the area, whether submitted by the PJV or any third party, those complaints will be fully investigated according to the established government or police procedures, and any individuals under investigation will be suspended from providing security in the area pending the outcome. The PJV may terminate its voluntary support at any time with a prior notice of three working days.”
The PJV also stipulated that "all support provided shall be open and trasnparent, and the PJV may disclose information regarding such support to third parties." |
Following the conclusion of “Operation Ipili” on July 3, 2009, the PNG government decided to deploy a second, smaller police contingent. On July 15, 2009, approximately 70 officers were deployed to the Porgera region, under a new commander. Prior to its arrival, on July 13, 2009, PJV received a second request to provide support to the PNG police, primarily in the form of lodging, meals and fuel.
As previously, this support was made conditional on the requirement that all police activities comply with PNG laws and international legal principles, including the Voluntary Principles on Security and Human Rights, the UN Code of Conduct for Law Enforcement Officials, and the UN Basic Principles on the Use of Force and Firearms by Law Enforcement Officials.
The PJV also received the support of the Commissioner of Police to appoint a prominent Papua New Guinean to act as an independent monitor to provide oversight of the police deployment in the Porgera valley.
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PJV and the Voluntary Principles
The PJV adheres to PNG law and is committed to upholding the Voluntary Principles on Security and Human Rights, the UN Basic Principles on the Use of Force and Firearms by Law Enforcement Officials and the UN Code of Conduct for Law Enforcement Officials. Consistent with Barrick’s security model, security personnel at Porgera receive training in and are required to operate based on the Voluntary Principles and to uphold PNG laws.
The PJV operates in a manner that is expected of a company under the Voluntary Principles. The Voluntary Principles:
- encourage companies to “communicate their policies regarding ethical conduct and human rights to public security providers” and receive adequate training.
- encourage companies to “promote observance of applicable international law enforcement principles” and to “support efforts by governments…to provide human rights training and education for public security…”
Over the years, PJV has actively promoted such training and provided assistance and resources to the PNG government to do so. In the past, the PJV facilitated human rights training for PNG mobile police squads, based on international human rights laws and the Voluntary Principles. This training initially involved the United Nations Development Program. In late 2007, PJV collaborated with the International Committee of the Red Cross (ICRC) on human rights training, engaging ICRC-accredited trainers and using an ICRC training module.
In 2008, the PNG police integrated formal human rights training as a part of its training programs for both the mobile squad and new recruits. As a result, the training program that had been previously facilitated by the PJV has become part of the curriculum at the PNG Bomana Police College and is used as a module for management courses. This training is delivered by ICRC-accredited instructors.
Click here for more information on the Voluntary Principles on Security and Human Rights.
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Long-Term Resolution of Law and Order Challenges
The law and order challenges in Enga province are very similar to those experienced in other parts of Papua New Guinea in the past and are not related to any one industry, but rather a combination of complex socio-economic, cultural and political factors.
While the continuing police presence today is successfully addressing the immediate law and order issues in the region, there is still much that can be done to address longer term issues through greater cooperation and coordination between the various stakeholders in the law and justice sector in the Province and community leaders.
PJV supports the Restoring Justice Initiative, which was launched by Porgeran and Engan leaders in late 2008, and which seeks to create stronger and more effective linkages between public and private stakeholders in the law and justice sector. (See: Restoring Justice in Papua New Guinea, Beyond Borders, December 2008)
PJV is also represented on the Porgera District Law and Order Committee, a community-based committee with up to 30 different representatives that meet to discuss law and order issues that affect the communities within the Porgera Area. PJV supports the community’s efforts to address these long-term challenges.
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A Chronology of events surrounding the police deployment:
February 2009
The Member of Parliament for the Porgera / Lagaip electorate, the Hon. Philip Kikala, presents a petition to the Papua New Guinea National Executive Council calling on the Government to take action against an increase in violent crime and lawlessness in the Porgera and Lagaip Districts of Enga Province.
February 26, 2009
The Government of Papua New Guinea (PNG) formally announces plans to deploy additional police to re-establish law and order in Enga province, including the Porgera region. The announcement of the call-out of additional police resources followed a special meeting of the National Executive Council held in Wabag, the capital of Enga Province, during which the Government discussed Mr. Kikala's petition.
March-April 2009
The Government and police engage in public awareness activities informing community members of the future deployment.
April 6, 2009
PNG newspapers report that the PNG police security operation in the Porgera Valley to be known as “Operation Ipili” is about to begin.
April 9, 2009
The PNG Commissioner of Police writes to PJV to inform it of the Government's intention to increase the police presence in the Porgera Valley to address the deterioration of law and order as a result of tribal fighting and general lawlessness. The Commissioner of Police seeks PJV's assistance to temporarily feed and lodge additional police for the duration of the operation.
April 17, 2009
The Government both publishes and posts public notices regarding the impending planned increased police presence, ban on alcohol, and intention to enforce existing law regarding various illegal activities (e.g., illegal drugs, firearms, occupancy, mining, tribal fighting, etc.).
April 18, 2009
Additional police resources are deployed to the province to restore law and order. A liquor ban is also imposed in the Porgera region, as police commence enforcement of the existing law regarding illegal weapons and illegal mining.
April 20, 2009
PJV and the Royal Papua New Guinea Constabulary execute a letter of agreement providing for ". . .limited passive [in kind] support" for police deployed to the Enga Province, in the form of food, lodging and fuel. PJV's support is expressly conditioned on compliance with ". . . all applicable laws and regulations of Papua New Guinea and relevant international legal instruments regarding the use of force, including the Voluntary Principles on Security and Human Rights, the U.N. Code of Conduct for Law Enforcement Officials, and the U.N. Basic Principles on the Use of Force and Firearms by Law Enforcement Officials."
April 27, 2009
A number of structures, estimated to be approximately 50, are apparently destroyed by police in an area known as Wangima in the Porgera Valley, located near the Porgera Joint Venture. Some of the structures destroyed include permanent dwellings or homes. Given its close proximity to mine property, the area had also been used by some individuals as a staging ground for incursions onto mine property, to engage in illegal mining or for other illicit activities.
April 28, 2009
An undetermined number of other structures are burned or dismantled in the Wangima area by unidentified individuals.
May 2, 2009
A peace ceremony and gun hand-over heralds the end of the Tipinnini tribal fight, which has been waged between two rival clans for almost five years, with over 70 fatalities from the fighting.
May 12, 2009
Anga and Peni clans hold a peace ceremony and gun-handover and announce the end of the Anga tribal fight, which has resulted in numerous fatalities over the past two years.
May 12, 2009
Enga Governor publicly applauds the increased presence of PNG police, as well as their coordination with local law enforcement authorities, including the Porgera district administration and local governments.
May 17-18, 2009
Visit to area by New Zealand diplomats, who reported satisfaction with the manner in which the police deployment was being conducted.
May 19, 2009
Porgera Hospital reports significant reductions in trauma cases (accidents and injuries) during the increased police presence. The hospital observes no patients with injuries as a result of policing activities.
May 29, 2009
Lorte and Kuala clans conduct a firearms handover in Porgera, surrendering approximately 50 illegally owned weapons which had been used in long standing tribal fights in the Porgera Valley, and declaring an end to the fighting.
May 1-30, 2009
PNG media report widespread community support for extension of increased police presence in Porgera Valley.
June 5, 2009
One of a number of peace rallies is held in support of the police operation, attracting a wide cross-section of participants from communities throughout the Porgera region. The grassroots rally, based on the theme "Securing a safer Porgera in partnership", involves approximately 80 community leaders, students and teachers from local schools, church and youth leaders, women's groups, political and community leaders, and police. At the large rally, students display signs that read "No to Violence - we want to live in peace and harmony", "No to drugs" and "No to killings." Numerous speakers call for social change to end tribal fighting, gun violence, assaults on women and illegal mining, while expressing hope for safety and lasting peace in their communities.
July 3, 2009
Official conclusion of Operation Ipili.
July 13, 2009
PJV receives a second request from the PNG Government to provide passive support to the PNG police, primarily in the form of lodging, meals and fuel. Support is provided conditional on human rights being protected and upheld, in accordance with PNG laws, the Voluntary Principles on Security and Human Rights and related international law enforcement principles.
July 15, 2009
The PNG Government deploys a second, smaller police contingent of approximately 70 officers, under a new commander.