R 160736Z APR 09
FM AMEMBASSY PORT MORESBY
TO SECSTATE WASHDC 5485
HQ USPACOM HONOLULU HI
CDR USPACOM HONOLULU HI
SECDEF WASHDC
JOINT STAFF WASHINGTON DC
INFO ASEAN REGIONAL FORUM COLLECTIVE
AMEMBASSY CANBERRA 
AMEMBASSY SUVA 
AMEMBASSY WELLINGTON 
AMEMBASSY JAKARTA 
CIA WASHDC
NSC WASHINGTON DC
USMISSION USUN NEW YORK 
AMEMBASSY PORT MORESBY

UNCLAS PORT MORESBY 000062 
 
 
DEPT FOR EAP/ANP AND EAP/RSP 
DEPT FOR PM/WRA CHARLES STONECIPHER 
SUVA FOR MCGANN, PRUETT, AND DATT 
USPACOM/J53 FOR BILL SCHWAB 
 
E.O. 12958: N/A 
TAGS: PREL PINR PINS MASS MOPS MARR PP
SUBJECT: U.S. WWII WEAPONS DEBRIS THREATENS PEACE IN BOUGAINVILLE 
 
REF: PORT MORESBY 58 
 
 
¶1. Summary: Papua New Guinea (PNG) has formally requested U.S. 
assistance to clean up unexploded World War II ordnance, live 
weapons, and ammunition still littering areas of Bougainville 
Island near the former U.S. base at Torokina, reported reftel. 
Political leaders there believe the continuing availability of 
U.S. arms threatens the consensual settlement reached among 
factions to the island's long-running independence dispute.  An 
earlier UNDP cleanup program failed because it sought to 
"contain" rather than destroy certain weapons, which later found 
their way into the hands of warring factions.  PNG has also 
requested UN and Australian cleanup assistance.  The peace 
achieved in Bougainville will remain fragile at best until 
remaining WWII arms are permanently out of the picture.  Cleanup 
would also assist efforts to promote tourism and agriculture in 
the poverty-stricken region.  End summary. 
 
 
U.S. WWII Arms and Ammunition Still Widely Available in 
Bougainville 
--------------------------------------------- -------- 
 
¶2. Bougainville residents tell us that our old weapons and 
military equipment are available "everywhere" on the 
conflict-torn island of about 175,000 people, site of an 
important U.S. WWII base at Torokina.  An Australian academic 
expert recently showed us a video revealing WWII mortars, guns 
and bullets for sale or in active use throughout the area. 
Residents tend to view themselves as "owners" of the contents of 
arms caches, adding to the difficulty of cleanup efforts. 
Bougainville Region President James Tanis told us recently that 
residents would continue to buy and sell arms unabated even if 
he made the practice illegal. 
 
¶3. Indeed, war materiel has become an everyday buy-and-sell 
commodity for many on the poverty-stricken island, who use the 
profits to pay school fees and support their families.  Sellers 
reuse old gun parts to make new weapons.  They also sell old 
bombs to local fishers for dynamiting reefs which leads to a few 
fisherfolk dying or being maimed every year and causes 
irreversible environmental damage in this pristine area. 
Although airport security has been tightened recently it is 
insufficient to prevent shipping of WWII arms to Port Moresby 
for domestic and, potentially, for foreign sales.  Residents 
continue to search for hidden caches of weapons.   Local 
residents widely believe that departing American soldiers packed 
their old weapons in oil and buried them for possible future use. 
 
Availability of Arms Threatens Fragile Peace 
-------------------------------------------- 
 
¶4. Although the long-running struggle for Bougainville 
independence formally ended with a 2001 peace agreement 
providing for establishment of an Autonomous Bougainville 
Government (ABG), not all factions have gone through 
reconciliation; hostilities continue to simmer.  President 
Tanis, a former leader of the Bougainville Revolutionary Army, 
is leading efforts to strengthen peace and conduct 
reconciliation ceremonies, particularly with the Mekamui Defense 
Force, since he took office in January.  He told us that WWII 
arms were dug up, rebuilt and used throughout the conflict. 
(Note: UN officials on Bougainville agree that some WWII weapons 
were used in the conflict but assert that most were new, either 
brought in from Solomon Islands or taken from the bodies of 
fallen PNG Defence Force officials or rebel fighters.  End Note.) 
 
¶5. Arms cleanup efforts since signing of the Peace Agreement 
have failed because they did not lead to destruction or removal 
of all weapons.  Tanis told us ex-combatants and local police 
designated as "special constables" were armed during the period 
following the Peace Agreement, which did little to advance 
disarming of the population or commerce in arms. 
 
¶6. A subsequent UN-sponsored program also fell short.  UNDP 
representatives told the Ambassador during a March trip to 
Bougainville's capital Buka that the former UN program consisted 
of two stages, containment and destruction.  Weapons were 
destroyed in only one area; in all other areas, they were 
"contained."  Local warlords had access to the containment areas 
and, unfortunately, have not been above allowing local residents 
in.  After the ABG was formed following the signing of the 2001 
Peace Treaty, the UN turned the weapons disposal process over to 
the ABG.  When Tanis served as Minister for Peace and 
Reconciliation (2004-2005) he worked on the issue, but little 
progress has occurred over the last four years. 
 
Tanis Seeks a Permanent Peace, Disposal of All Arms 
--------------------------------------------- ------ 
 
¶7. Over the last few months, President Tanis has met with all 
ex-combatants to further the reconciliation process.  He has 
established a "gentleman's agreement" among the factions to work 
together.  He believes that total disarmament will only be 
possible when all sources of weapons have been shut off or 
destroyed.  He has had the courage to tell his cabinet that it 
is better to destroy weapons on the ground than to let them get 
into the hands of the people.  His next step is to bring the 
factions together in a neutral location outside of Bougainville 
to agree on a reconciliation agreement, to include weapons 
removal and disposal. 
 
¶8. President Tanis told the Ambassador that destruction of the 
old WWII weapons, (which could still fall into the hands of 
rebels), is a key to success of an agreement, with the buried 
arms in Torokina a major part of the program.   He noted that 
his government would like to encourage fishing, tourism and oil 
palm cultivation in the Torokina area, but that the existence of 
unexploded ordnance makes plowing and digging hazardous. 
Although the U.S. is not the only source of old WWII weapons in 
Bougainville, we are widely identified as the source of such 
weapons in the popular mind.  Prime Minister Somare sent us a 
formal request for assistance April 8, per reftel.  President 
Tanis has also contacted the Government of Australia and the UN 
for assistance. 
 
Action Request: U.S. Has an Important Role to Play 
--------------------------------------------- ----- 
 
¶9. While no one could have foreseen that U.S. weapons from World 
War II would someday play a role in Bougainville's political 
turbulence, that is precisely what has happened.  The same 
weapons that once helped us win a crucial victory have now 
become instruments of violence and unrest.  President Tanis, a 
former insurgent himself, represents the region's best hope for 
reconciliation and a lasting peace.  The U.S. is well liked and 
respected in this part of the world and should cooperate and 
support President Tanis' efforts to bring lasting peace to 
Bougainville by cleaning up our remaining war debris.  We 
recommend strongly that the Department and DOD send an 
inspection team to survey Torokina and consult with national and 
regional officials as soon as possible.  Australia and the UN 
have told us that they are prepared to do their part and want to 
cooperate closely with us on these efforts.  Embassy Port 
Moresby officials have travelled to Bougainville twice in the 
last year and stand prepared to support a U.S. survey team on 
the ground. 
 
 
ROWE