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Rebuilding The Education Sector in East Timor During UNTAET International Collaboration and Timorese Agency 1st Edition Trina Supit
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Rebuilding the Education Sector
in East Timor during UNTAET
Trina Supit
First published 2021
by Routledge
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informa business
© 2021 Trina Supit
The right of Trina Supit to be identified as author of this work
has been asserted by her in accordance with sections 77 and 78 of
the Copyright, Designs and Patents Act 1988.
All rights reserved. No part of this book may be reprinted
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To Jan
Contents
List of Figuresviii
List of Tablesix
List of Abbreviations and Acronymsx
Terminologyxiii
Acknowledgementsxiv
Prefacexviii
Introduction 1
Appendices220
References225
Index252
Figures
I have maintained the name, “East Timor” (or, when this would be repe-
titious, “Timor”) to refer to the country as it was generally known during
both the Indonesian occupation and UNTAET. Until 1976 the coun-
try was known as Portuguese Timor. The Indonesians called it “Timor
Timur”, invariably shortened to “Tim-Tim” (Timtim). Only from 20
May 2002 did the country became the Democratic Republic of Timor-
Leste (RDTL), often shortened to Timor-Leste. I usually refer to the peo-
ple as “East Timorese”, or when this would be repetitious, “Timorese”.
The western part of the island is Indonesia or Indonesian West Timor.
For the lingua franca and co-official language of East Timor, I use the
term “Tetum” in preference to “Tetun” and note that Dr Danielle Boon
in her doctoral dissertation (2014, p. 13), claimed the approval of the
National Linguistics Institute to do so. I have found that this is the usual
spelling in official documents such as the journal of parliamentary pro-
ceedings, Jornal da Repúblika (e.g. 29 October 2008) and ministerial state-
ments such as in Timor Agora (2018).
The national language of Indonesia is “Indonesian”. I do not use the
term, “Bahasa Indonesia” which simply means “Indonesian language”
(cf. la langue française versus “French”). “World Bank” and “Bank” are
both used interchangeably to refer to the World Bank. The East Timor-
ese Ministry of Education, Culture, Youth and Sport, I have usually short-
ened to “Ministry of Education”.
Translations from Indonesian, French, Portuguese and Tetum pas-
sages into English were made by the author.
Acknowledgements
Writing this book and the thesis which preceded it has left me indebted
to many individuals. I would like to thank Cecilia Maria Belo de Assis,
Director of Culture in 2012. Cecilia Assis facilitated interviews with mem-
bers of the East Timorese Ministry of Education who had been members
of the East Timor Transitional Administration. I am indebted to my col-
leagues from the East Timor Transitional Administration, with whom the
UNTAET Education Division strove to meet a succession of deadlines and
with many of whom I worked on my return to East Timor in 2003. In no
particular order and regardless of whether interviewed or not these are:
Fr Filomeno Jacob, Armindo Maia, Maria Manuela Gusmão, Antoninho
Pires, Delfina Borges, Raimondo Jose Neto, Rui da Costa Belo, Samuel
da Costa Alves, Luis Francisco Viana de Carno, Adelina Dos Reis Cal-
deira Noronha, Alberto da Costa, Rodolfo Henrique Aparicio, Armando
dos Reis, Augusto Manuel de Oliviera Carvalho, Alexandre de Araujo,
Manuel Gomes de Araujo, Antonio Moniz Mali (now deceased), Mar-
cos da Costa Dos Santos, Horacio da Costa, Francisco Martins da Costa
Pereira, Abilio Martins de Jesus Babo, Domingos Savio (now deceased),
Venancio Lafu and Bernardo Quintão.
I am particularly indebted to the enthusiastic cooperation I continue
to receive from my former colleagues and friends in the UNTAET Divi-
sion of Education: Rezene Hagos, Rumiana Decheva, Vacy Vlazna, Victo-
ria Markwick-Smith, Ana Noronha, and Zoraida Jacobs, all of whom have
shown interest in this project, allowed me to interview them and then
corrected dates and names. I would also like to remember our former
colleague, Benedita Fernandes, who left us all too soon.
A special thank you to the family of Filomeno Jacques Fernandes in
Bairro Pite, Dili, where I lived for more than three years and with whom
my family have maintained an on-going relationship, returning for wed-
dings and other family occasions. I fondly remember our evening meals
with the occasional glass of tinto where Bapak, Ibu, Dina, Nina, Donella,
Meta and members of their extended family shared insights into East
Timorese culture as well as life in Portuguese Timor and during the
Indonesian occupation.
Acknowledgements xv
The generous hospitality and continuing support of my dear colleague
in Portugal, Lúcia Serralheiro, former principal of the Portuguese school
in Dili, has been truly appreciated. I recall with affection the many times
we met for coffee and cake at the Tropical in Dili.
Gratitude is owed to my former PhD supervisors at the University of
Sydney, Professor Timothy Allender and Associate Professor Rachel Wil-
son for their generous support and encouragement. I am also apprecia-
tive of the constructive advice and criticism I received from Dr Helen
Hill, Professor Michael Leach and Professor Damien Kingsbury who
examined my thesis. Despite the support and advice from numerous
people in the writing of this book the usual provisos apply: any short-
comings are the responsibility of the author.
Finally, I wish to thank my sister, Marguerita Brodal-Rutherford for
accommodation, sustenance and encouragement while I was examining
Timorese newspapers at the Australian National Library, and last but not
least my husband, Jan, for always being there.
In October 2000 we will turn a new page in our history: for the first
time East Timorese children, teachers and parents, the entire education
community will start a new school year in a context of joy and hope. . . .
With love and dedication, we will raise our country from its ashes and
build a better future of peace, freedom, democracy and quality.
Dili, 30 Aug 2000
Xanana Gusmão
CNRT President
Source: World Bank. (2000, October 6). Trust Fund for East Timor Update No. 3.
Preface
I arrived in East Timor towards the end of January 2000. I had replied
to an AusAID email on the Department of Education website in early
November 1999 and sent off an application. Receiving no reply,
I promptly forgot about it. A few days before Christmas I was called from
New York and during an interview I explained how I had previously lived
as an Indonesian (not an expatriate) in a kampung while teaching in
Jakarta and outlined my current work with schools and their communi-
ties in Moree district in the northwest of New South Wales. I was subse-
quently told to go to Darwin as soon as possible and get myself on a UN
flight to Dili.
Work in the UNTAET education division was like being on a roller
coaster. Initially I worked at a desk in the UNICEF office together with
Bodil Knudsen, the first United Nations Volunteer (UNV) allocated to
the Division of Education, ordering school supplies and equipment for
sport and music before the budget was suddenly closed. I then partici-
pated in the development of questions for the primary teacher recruit-
ment test and helped with textbook selection, purchase and delivery.
I was also collaborating with East Timorese colleagues on teacher recruit-
ment and the development of position criteria for district and national
staff. For several months, I was professional assistant to Cabinet Member
Fr Jacob SJ.
As the first containers of textbooks landed in Dili, I organised with
Timorese colleagues to collect them from ships, find a safe place to park
the containers and have the textbooks transported to the 13 districts.
Interviews of prospective district and national education staff, the estab-
lishment of the media unit and initial preparations for school mapping
then occupied my time, until I eventually returned to Moree District
Office in the second half of 2001.
In early 2003, at the request of the Timorese Ministry, my state Depart-
ment of Education posted me back to East Timor to work in the Insti-
tute for Continuing Teacher Education where I collaborated with Maria
Manuela Gusmão and UNICEF in teacher training and supported pro-
jects in curriculum, English teaching and school twinning.
Preface xix
In the following years I read many articles, dissertations and books
which mentioned UNTAET, but what was written rarely accorded with
my experience. I determined to discover the background to the poli-
cies being implemented and the politics being played out in the field,
of which I was mostly unaware, being so preoccupied with my work in
the education division. I have now given conference papers on various
aspects of my findings and have appreciated being part of the commit-
ted and generous community of Timor-Leste scholars, attending con-
ferences and book launches as well as catching up when monitoring
elections in Maliana.
I am overwhelmed by the unexpected amount of help I have received
from individual scholars as well as librarians and archivists based in a
wide range of locations such as UN headquarters in New York; UNESCO,
Paris; the Portuguese army; the International Work Group for Indig-
enous Affairs (IWGIA); Timor Archives; the International Institute of
Social History (IISG); Portuguese Colonial Archives in Lisbon and the
Australian National Library.
This book is the result of the long but fascinating journey I have trav-
elled over a period of more than two decades since I first set foot in Dili.
Introduction
While there have been a plethora of articles and books on aspects of the
United Nations Transitional Administration in East Timor (UNTAET),
little research has been carried out on the operations of individual
departments or divisions as they relate to the collaboration between East
Timorese and international staff. This book examines that collaboration
in the rebuilding of the education sector during UNTAET 1999–2002,
after the deliberate destruction of infrastructure and records by East
Timorese militias in the wake of the August 1999 referendum. Almost
80 percent of the population had defiantly chosen independence rather
than special autonomy within Indonesia. Subsequently, over 250,000
people fled or were forced across the border to Indonesia and a similar
number sought refuge in the hills surrounding their towns and villages.
Over half the population was displaced. The International Force for
East Timor (INTERFET) arrived on 20 September and quickly restored
peace and security albeit the occasional skirmish with militia infiltrators.
On 25 October 1999 the UN Security Council established the United
Nations Transitional Administration in East Timor. Security Council res-
olution 1272 gave UNTAET the mandate: to provide security and main-
tain law and order throughout the territory of East Timor; to establish an
effective administration; to assist in the development of civil and social
services; to ensure the coordination and delivery of humanitarian assis-
tance, rehabilitation of humanitarian assistance, rehabilitation and devel-
opment assistance; to support capacity-building for self-government;
and to assist in the establishment of conditions for sustainable develop-
ment (SC 1272 [1999]).
The first internationals arriving in Dili in 1999 described the coun-
try as terra nullius, the result of the mass violence, intimidation and
destruction which had begun even before the referendum results were
announced. The East Timorese were thus confronted by significant
challenges as they endeavoured to rebuild the education system in the
wake of the departure of Indonesian teachers and administrators along
with corporate memory, the destruction of all records and most infra-
structure. To keep their children off the streets East Timorese educators
2 Introduction
rapidly embarked on a recruitment of teachers during the “Emergency”
and then a second recruitment for the new school year 2000/2001.
Many interrelated issues emerged during the restoration of the sector:
the unique relationship between the East Timorese and the Portuguese;
the impact of education under both the Portuguese and Indonesians;
collaboration with the internationals; the clash over control between the
East Timorese and the World Bank and the contested issue of classroom
language which continues to bedevil education. The East Timorese
determined policy direction, developing a wealth of skills and experi-
ence in areas of the education sector where they had no previous experi-
ence and consequently displayed a high degree of ownership.
The book concludes with an overview and a brief comparison between
education achievements during UNTAET and those of today. This com-
parison highlights the increase in student numbers at all levels of educa-
tion, but also the ongoing challenges in providing a quality education
for East Timorese children.
1 The East Timor Context
From the dim recesses of his house the chief brought to us a small and
carefully wrapped bundle which he reverently unwrapped before us.
Enclosed within the wrapping was a stained and battered cloth, which, as
it was unfolded to the light, proved to be a flag. The linen, discoloured
with age, bore at its centre a large red cross of coarsely woven cloth, such
as sailors might use, and it was sewn to the finer white linen with large
masculine stitches. Printed beneath the cross, in ink now faded to red-
dish brown were the Portuguese words [which in English mean] Given
by Valenty Correa, gentleman, Lieutenant Belos to Phoupicão de Luz, ruler of
Same – given at Luro on 20 July 1693.
(King, 1963, pp. 156–157)
Overview
The Portuguese have had a profound influence on East Timor. They did
not set sail from Lisbon intending to buy sandalwood or to colonise East
Timor. It took about 80 years from when they first sailed south along the
coast of Africa until they arrived in Timor to trade. It was the Domini-
cans who first settled on Solor, a small island to the north of Timor from
where the Portuguese launched annual trading visits to Timor. From
Solor sprang the topasses known as the “black Portuguese”, the offspring
of Portuguese and local women. By strategic alliances with local king-
doms thereby acting as conduits of both political and economic power,
the topasses kept the Dutch and Portuguese at bay for 200 years eventually
confining the Portuguese to Dili and the Dutch to Kupang.
For centuries, the Portuguese commanded loyalty with the judicious
gifts of army titles and other insignia, such as the flag and liturgy men-
tioned earlier. These they gave to rulers of petty kingdoms and other
nobles. Over time such gifts became sacred objects or lulik, a reminder
4 The East Timor Context
of Timorese links with the Portuguese crown and the Portuguese. Priests,
too, were a kind of lulik and the Catholic Church was central to the trans-
mission of Catholic and Portuguese cultural values. Even though Portu-
guese administration was absent from the interior of Timor, the church
was there. Yet, “five hundred years of Portugal’s ‘civilising mission’ had
little if any impact on Timorese animist religion and culture” (Ramos-
Horta, 1996, p. 14) and conversion was slow until the Indonesian occu-
pation in 1975 when all Timorese had to choose a religious affiliation.
Most then became Catholics at a time when only the Church could speak
out and protect them.
Indigenous Religion
Timor has a long history. The majority of the population has Malay-
Polynesian and Papuan origins and there are minorities of Chinese,
Arabs and Europeans (Government of Timor-Leste, n.d.). Recent finds
in caves indicate that East Timor was inhabited by humans from 42,000
BC (Marwick, Clarkson, O’Connor, & Collins, 2016; O’Connor, 2007).
Excavated pottery reveals that “techniques, forms and even clay sources”
from 4,000 years ago, can still be matched to the distinct pottery styles
found in different areas in East Timor today (Glover, 1986, p. 14).
By the time the Portuguese arrived, Timor consisted of two roughly
equal sized areas in the east and west of the island. The hereditary kings/
chiefs of the petty kingdoms within them were known as liurai of which
there were 46 in the eastern half and 16 in the western half of the island
(Durand, 2006, p. 52; Cribb, 2000, p. 99). The eastern petty kingdoms
still relate to the postos [sub-districts] in East Timor today. A posto consists
of a number of hamlets with each hamlet made up of a number of vil-
lages. Society was hierarchical and everyday life was organised around
kinship and place. The liurai were sacred and ruled with almost absolute
power (Niner, 2005, p. 39). They sat on the highest level in a hierarchi-
cal social system, followed by dato [nobles]. When a noble died, human
sacrifice was still prevalent in the 1750s (Episcopal Pastoral, 1752, cited
in Boxer, 1948, p. 197). The next level consisted of the ordinary people:
ema, also referred to as ema rai (people of the land) or ema foho (people
of the interior). At the bottom of the social hierarchy were atan (slaves).
A person’s rank was derived from that of their parents, although educa-
tion, marriage, occupation and fluency in Portuguese were among the
attributes which could enhance a person’s status (Hicks, 2015, p. 19).
Animism was widely practised. Even though over 95 percent of the pop-
ulation are now at least nominally Christian, the concept of lulik, or its
ethnolinguistic equivalent, is still found in every ethnic group on Timor.
In lulik belief systems ancestor spirits and the living co-exist (Niner, 2005,
p. 39). According to Trindade, an East Timorese researcher, “lulik refers
to a spiritual cosmos that contains the divine creator, the spirits of the
The East Timor Context 5
ancestors and the spiritual root of life including sacred rules and regula-
tions that dictate relationships between people and people and nature”
(2012, p. 1).
The aim of lulik is to achieve harmony between the real world and the
cosmic world drawing on the teachings of the ancestors. Trindade admits
that many Timorese today have only a superficial understanding of lulik,
although just hearing the word is enough to make most people stop and
“pay full attention, they pay full respect, they are afraid, and it makes
them obey without hesitation” (Trindade, 2012, p. 1). Xanana Gusmão
contended that only the Bible and colonialism were able to break “the
bonds that tied the Timorese to their pair of goats, their vegetable plot
and their beliefs in sacred sites” (Gusmão, 2000b, p. 4).
Luliks can also be objects. This chapter opens with a quotation from
King recounting being shown a venerated 270-year-old Portuguese flag
which wrapped an even older Catholic liturgy. The chief of the clan told
King that the flag and the liturgy were his strongest family lulik, never
before seen by anyone apart from senior male members of the family
(King, 1963).
Chinese sources from 1225 call Timor, Tiwu, “rich in sandalwood and
owing allegiance to the Hindu-Javanese kingdom of Kediri” (Ormeling,
1957, p. 95). Canto 14.5 in the Old-Javanese poem, Nagarakertagama,
written by Prapanca in 1365 A.D., lists Timor as one of the islands which
tunduk kepala (bows its head) i.e. accepts the overlordship of the Hindu-
Javanese kingdom of Majapahit (successor to Kediri) although this usu-
ally invoked a trade connection, not direct administration.
His wife, Anna, noted in her diary on 2 January 1883: “It is strange
to hear no Malay in Timor. This language is heard otherwise all over
the civilised archipelago, but natives here must learn the language of
the possessors [i.e. Portuguese] if they will have any contact with them”
(A. Forbes, 1887, p. 241).
Boxer, agreed with Henry Forbes. One of the factors to which Boxer
attributed the “greater permanence of Portuguese influence” (Boxer,
1961, p. 55) (compared to that of the Dutch) was the acceptance of
the Portuguese language as common trade language along the coasts
of Africa and Asia by the time the Dutch arrived. The Muslim regents
in Makassar spoke fluent Portuguese and, according to Boxer (1961), a
form of Portuguese was still in use in the spice-islands such as Ambon in
1961. Even in Jakarta (previously Batavia), which had only been used by
the Portuguese as a trading port, a creole form of Portuguese was spoken
by slaves and servants who came from the Bay of Bengal. The Dutch used
it as well (Boxer, 1961). Sixty years after the visit of Anna Forbes, Calli-
nan, too, found that hardly anyone knew Malay in Portuguese Timor as
the Portuguese administration “discouraged” its use. However, in 1942
as he and his men moved around the interior, he found that “The offi-
cial native language was Tetum, which was taught in the schools and used
in all dealings with the natives” (Callinan, 1953, pp. 19–20).
The East Timor Context 15
Another factor in the persistence of Portuguese influence was Catholi-
cism. Wherever the Portuguese were successful in planting their religion,
“it usually took deep root” (Boxer, 1961, p. 62). Hence whilst few Dutch
Calvinist communities exist in the archipelago today, Catholic communi-
ties, established by the Portuguese, still remain strong, such as those in
Flores and surrounding islands in eastern Indonesia.
Figure 1.1 Portuguese 2 Euro Coin Commemorating 500 Years Since First Con-
tact With Timor
Source: Copyright permission from Imprensa Nacional-Casa de Moeda (National Mint of
Portugal)
(Figure 1.1), celebrating 500 years since first contact with Timor (Val-
ory, 2015). They arrived in Malacca in 1511, but there is no evidence to
put them on Timor in 1515 despite a plaque with that date in Oecusse
and a possible visit in 1516. The first “explicit description” of Timor in
Portuguese is that of Pigafetta in 1522. A related myth is four hundred
and fifty years of Portuguese colonial rule. This view is promoted by the
Portuguese and the Timorese elite alike as it provides strong historical
legitimacy for the Portuguese-Timorese relationship and the use of Por-
tuguese as official language. In reality it was only in the early twentieth
century that indirect rule ended and the Portuguese could really claim
to control East Timor.
In the Portuguese time for hundreds of years, all people fought from
generation to generation, and it was a tradition in our history that
from those wars people could not accept, people still remind, “Oh,
your grandparent killed my grandparent”, and something like this.
But suddenly in ’74, after the invasion, all this vanished, because
we all fought together, we were united by another perception and
another ideal.
(Bullock, 2000)
For the first generation of East Timorese leaders all of whom were
Portuguese-educated and proud to be civilados (Wigglesworth, 2016,
p. 96), Catholicism was a social distinction. However, for the second
generation of Indonesian-educated leaders, it was the Catholic Church
which inspired a sense of Timorese nationalism (Carey, 1999). The role
of the Church was acknowledged by Xanana Gusmão in his 1990 inter-
view in the mountains of Timor:
I went outside a few minutes before the set time expecting noth-
ing to happen. But my scepticism (and maybe even cynicism) were
countered: at exactly three o’clock, in a neighbourhood that was not
The East Timor Context 21
central and in which one would not expect a public performance of
any significance, the traffic stopped and people got out of their cars.
The stores around closed and people came out onto the sidewalk.
Everyone was still. Someone shouted “Fascist!” to a car that did not
stop. Above the skyline of buildings, I noticed that traffic crossing
the 25 de Abril bridge had also halted.
Xanana Gusmão said thank you for the way the Portuguese
government – and in particular Antonio Guterres – had taken up the
cause of the freedom of the people of East Timor and the d
edication
and determination with which it transmitted the Timorese voice and
cry for their right to self-determination.
(BBC, 1999)
An Enduring Relationship
East Timor has been linked to Portugal for almost 500 years; a tenu-
ous link at first, but one which gradually strengthened. The Timor-
ese incorporated the Portuguese into myth and ritual. The Catholic
Church was central to the transmission of Catholic and Portuguese
cultural values. Even though the Portuguese administration was absent
in the interior of Timor, the church was there, the priests becoming
a kind of lulik venerated and respected just like Portuguese flags and
other colonial regalia. Under Indonesia, a far harsher colonial mas-
ter, the Timorese were nostalgic for earlier times. Their affection for
Portugal increased as it became apparent from the late 1980s that they
could rely on Portugal to provide political and physical support to their
resistance struggles.
Many of the Timorese leaders in 2002 had been the young turks of
1975, the elite, the assimilados educated in Jesuit seminaries and fluent in
Portuguese. This had given them a window on the outside world which
Tetum and the other indigenous languages could not. In 1974 they had
accused the colonial education system of trying to make the Timorese
“black, fascist Portuguese” with a curriculum which taught nothing
about the history of East Timor nor its place in Southeast Asia, but was so
focussed on Portugal that “even the songs and dances taught were Portu-
guese” (Campaign for Independent East Timor [CIET], 1974b, p. 11).
Most had spent the Indonesian occupation overseas in Portugal, Mozam-
bique or other Portuguese-speaking countries and were regarded as
“more Portuguese than the Portuguese” (lebih Portugis “daripada” orang
Portugis sendiri) by their fellow countrymen (letter to the editor in Suara
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Madelaine Rudenschöld.(65)
Niin, hän tulisi heittäymään hallitsijan jalkoihin eikä hän tulisi tästä
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