Civic Insecurity: Law, Order and HIV in Papua New Guinea

Civic Insecurity: Law, Order and HIV in Papua New GuineaPapua New Guinea
Papua New Guinea
Studies in State and Society in the Pacific, No. 6
THE AUSTRALIAN NATIONAL UNIVERSITY
E P R E S S
E P R E S S
Published by ANU E Press The Australian National University Canberra ACT 0200, Australia Email: [email protected] This title is also available online at: http://epress.anu.edu.au/civic_insecurity_citation.html
National Library of Australia Cataloguing-in-Publication entry
Title: Civic insecurity : law, order and HIV in Papua New Guinea / edited by Vicki Luker and Sinclair Dinnen.
ISBN: 9781921666605 (pbk.) 9781921666612 (eBook)
Notes: Includes bibliographical references.
Other Authors/Contributors: Luker, Vicki. Dinnen, Sinclair.
Dewey Number: 362.196979209953
All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photocopying or otherwise, without the prior permission of the publisher.
Cover design and layout by ANU E Press
Cover image: Young boy at celebrations in Goroka for the 30th anniversary of Independence, 2005. Courtesy of photographer Kahunapule Michael Johnson, http://Kahunapule.org and http://worldoutreach.org
Printed by Griffin Press
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Contents
Cover and Section illustrations . . . . . . . . . . . . . . . . . . . . . . . . .vii Figures, Maps and Tables . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ix Glossary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xi Contributors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xiii Acknowledgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xv Joan’s Story . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xvii
Introduction Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Vicki Luker
1 . Entwined Endemics: HIV and ‘Law and Order’ . . . . . . . . . . . 15 Vicki Luker and Sinclair Dinnen
Masculinity, Violence and HIV 2 . Masculinity Matters: Men, Gender-Based Violence and the AIDS Epidemic in Papua New Guinea . . . . . . . . . . . . . . . . . 47
Richard Eves
3 . Teasing out the Tangle: Raskols, Young Men, Crime and HIV . . 81 Vicki Luker with Michael Monsell-Davis
Networking, Sex Working and the Law 4 . From Gift to Commodity . . . and Back Again: Form and Fluidity of Sexual Networking in Papua New Guinea . . . . . . 119
Lawrence Hammar
5 . Decriminalisation of Prostitution in Papua New Guinea . . . . 141 Karen Fletcher and Bomal Gonapa
6 . Sex Workers and Police in Port Moresby (1994–1998): Research and Intervention . . . . . . . . . . . . . . . . . . . . . . . . 153
Carol Jenkins
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Police, Prisons, Army and Mainstreaming HIV 7 . The Royal Papua New Guinea Constabulary . . . . . . . . . . . 167
Abby McLeod and Martha Macintyre
8 . Prisons and HIV in Papua New Guinea . . . . . . . . . . . . . . . 179 Greg Law and Sinclair Dinnen
9 . HIV and the Papua New Guinea Defence Force: Risk Behaviours and Perceptions . . . . . . . . . . . . . . . . . . . 191
Joachim Pantumari, Peter Bamne and Vicki Luker
10 . Mainstreaming HIV and AIDS in the Law and Justice Sector . . . . .203 Ian Patrick
Governance, Rights and Security 11 . Witchcraft, Torture and HIV . . . . . . . . . . . . . . . . . . . . . . 219
Nicole Haley
12 . Community-building and Security: Case Studies . . . . . . . . 237 Sinclair Dinnen, John Cartwright, Madeleine Jenneker, Clifford Shearing, Isaac Wai, Paul Maia
13 . Re-thinking Human Rights and the HIV Epidemic: A Reflection on Power and Goodness . . . . . . . . . . . . . . . . 265
Elizabeth Reid
14 . Enabling Environments: the Role of the Law . . . . . . . . . . . 275 Christine Stewart
15 . HIV and Security in Papua New Guinea: National and Human Insecurity . . . . . . . . . . . . . . . . . . . . 287
Michael O’Keefe
Epilogue: Ela’s Question . . . . . . . . . . . . . . . . . . . . . . . . . . . . 317 Elizabeth Reid
Index . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 323
Cover: Young boy at celebrations in Goroka for the 30th anniversary of Independence, 2005. Courtesy of photographer Kahunapule Michael Johnson, http://Kahunapule.org and http://worldoutreach.org
Introduction: ‘Lukautim yu yet long AIDS’: Mendi shopfront, Southern Highlands Province. Courtesy of photographer Richard Eves
Masculinity, Violence and HIV: pen drawing, Chris Kauage. From the collection of Sinclair Dinnen
Networking, Sex Working and the Law: ‘Haiwe’. From the collection of Richard Eves
Police, Prisons, Army and Mainstreaming HIV: Prison inmates. Benjmain Lowy/ VII Network
Governance, Rights and Security: Tari road scene, Southern Highlands Province. Courtesy of photographer, Murray Lord
Conclusion and Epilogue: Child looks back. From Tari road scene, Southern Highlands Province. Courtesy of photographer, Murray Lord
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Figures
Figure 1: Poster featuring Brad Fittler. PNG National AIDS Council. From the collection of Richard Eves
Figure 2: Poster featuring Mal Meninga, PNG National AIDS Council. From the collection of Richard Eves
Figure 3: Portrait of Gaitzman, from Kips Kaboni (‘Red Devils’), Port Moresby, 2004. Courtesy of Stephen Dupont, www.stephendupont.com
Figure 4: Portrait of Shookman, from Kips Kaboni (‘Red Devils’), Port Moresby, 2004. Courtesy of Stephen Dupont, www.stephendupont.com
Figure 5: Portrait of Mania, from Kips Kaboni (‘Red Devils’), Port Moresy, 2004. Courtesy of Stephen Dupont, www.stephendupont.com
Figure 6: Haphap Meri bilong PNG. By Maik Yomba Kagi, 2000. www.Pazifik- Infostelle.org
Maps
Map 1: Papua New Guinea. By Karina Pelling, Coombs Cartography, College of Asia and the Pacific, Australian National University, Canberra, Australia
Map 2: Papua New Guinea and the Region. By Karina Pelling, Coombs Cartography, College of Asia and the Pacific, Australian National University, Canberra, Australia
Map 3: Southern Highlands Province. By Karina Pelling, Coombs Cartography, College of Asia and the Pacific, Australian National University, Canberra, Australia
Graphs
Graph 1: Proportion of all HIV and AIDS cases in different Pacific island countries and territories, 1984–2007. Source: UNAIDS, AIDS Epidemic Update, December 2009. Geneva: UNAIDS, 77
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Glossary
AIDS Acquired immunodeficiency syndrome BAHA Papua New Guinea Business Coalition against HIV
and AIDS Bilum string bag Buai betel nut Buriburi magic by sorcery CBO Community-based organisation CS Correctional Services DoH Department of Health EU European Union HAMP Act The HIV/AIDS Management and Prevention Act of
2003 HIV Human immunodeficiency virus HR Human resources IMR Institute of Medical Research Kastom custom Kina unit of PNG currency: 1 kina = 100 toea Lain line Lainap Pack rape, group sex LRC Law Reform Commission Lukautim yu yet AIDS Protect yourself against AIDS Maket market NAC PNG National AIDS Council NACS PNG National AIDS Council Secretariat NGO Non-government organisation NHASP National HIV/AIDS Support Program Pamuk ‘Prostitute’ Pasindia meri ‘passenger women’ who exchange sex for money plet kaikai plate of take-away food PLHIV People living with HIV PLWHA People Living with HIV/AIDS PNGDF Papua New Guinea Defence Force PSP Poro Sapot Project (Save the Children)
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RPNGC Royal Papua New Guinea Constabulary Raskol ‘rascal’, lawless young man Rot meri woman of the streets rabisman ‘rubbish man’, worthless man sagapari ‘small mangrove garden’, around Daru also term
with meaning similar to ‘tu kina bus’ STD Sexually transmitted disease STI Sexually transmitted infection SW sex worker Toea unit of PNG currency: 100 toea = 1 kina Tu kina bus Outdoor setting where sex can be purchased cheaply VCT Voluntary Counselling and Testing Wantoks Kinsmen; people who speak the same language
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Contributors
Peter Bamne—Director of Medical Services, Mt Hagen General Hospital, PO Box 36, Mt Hagen, WHP, Papua New Guinea
John Cartwright—Consultant, Centre of Criminology, Law Faculty, University of Cape Town, Private Bag X3, Rondebosch 7701, Republic of South Africa
Sinclair Dinnen—Senior Fellow, State Society and Governance in Melanesia Program, College of Asia and the Pacific, Australian National University, ACT 0200, Australia
Richard Eves—Research Fellow, State Society and Governance in Melanesia Program, College of Asia and the Pacific, Australian National University, ACT 0200, Australia
Karen Fletcher—Health Protection and Prevention and Population Health, Department of Health, Melbourne VIC 3001, Australia
Bomal Gonapa—Legal and Policy Adviser, Papua New Guinea National AIDS Council Secretariat, PO Box 1345, Boroko, NCD, Papua New Guinea
Nicole Haley—Convenor, State Society and Governance in Melanesia Program, College of Asia and the Pacific, Australian National University, ACT 0200, Australia
Lawrence Hammar—Anthropologist and Social Researcher, engaged on ‘Positive Research for Positive People: strengthening HIV social research capacity in Fiji’, in tandem with Pacific Islands AIDS Foundation and the Fijian Positive Network
Carol Jenkins—The late Carol Jenkins was an Anthropologist and Social Researcher, Director of Alternate Visions, Bangkok, Thailand
Madeleine Jenneker—Faculty of Law, University of the Western Cape, Private Bag X17 Bellville, Cape Town 7535, Republic of South Africa
Greg Law—Sexual Health and HIV/AIDS Prevention and Care Project, PO Box 1875, Port Moresby, NCD 121, Papua New Guinea
Vicki Luker—Visiting Fellow, State Society and Governance in Melanesia Project, College of Asia and Pacific, Australian National University, ACT 0200, Australia
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Martha Macintyre—Associate Professor and Honorary Senior Fellow, School of Philosophy, Anthropology and Social Inquiry, University of Melbourne, VIC 3010, Australia
Paul Maia—Chairman, Saraga Peace, Good Order and Community Development Association, Six-Mile, NCD, Papua New Guinea
Abby McLeod—Coordinator, Policy and Governance, Australian Federal Police, Canberra, ACT, Australia
Michael Monsell-Davis—Anthropologist, PO Box 280, Galston, NSW 2159, Australia
Michael O’Keefe—Senior Lecturer, Politics and International Relations Program, School of Humanities and Social Sciences, La Trobe University, Melbourne, VIC 3086
Joachim Pantumari—Senior Medical Advisor, Papua New Guinea National AIDS Council, PO Box 1345, Boroko, NCD, Papua New Guinea
Ian Patrick—Director, Ian Patrick & Associates Pty Ltd, 16 Roemer Cres, Alphington, Melbourne,VIC 3078, Australia
Elizabeth Reid—Development Practitioner and Visiting Fellow, State, Society and Governance in Melanesia Project, College of Asia and Pacific, Australian National University, ACT 0200, Australia
Clifford Shearing—Professor of Criminology and Director of the Centre of Criminology, Law Faculty, University of Cape Town, Private Box X3, Rondebosch 7701, South Africa
Christine Stewart—Research Scholar, School of Culture, History and Language, College of Asia and Pacific, Australian National University, ACT 0200, Australia
Isaac Wai—Deputy Chairman, Saraga Peace, Good Order and Community Development Association, Six-Mile, NCD, Papua New Guinea
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Acknowledgements
This collection is indebted, directly and indirectly, to many people. We would like to thank those whose conversation, assistance, comments and contributions in other ways have helped and inspired. Special thanks to Julie Airi, Bryant Allen, Dennis Altman, Isu Aluvula, John Ballard, Sister Rose Bernard, Kila Bulina, Marina Carman, Chris Chevalier, Elisabeth Cox, Anne Dickson-Waiko, Miriam Dogimab, Anna Dorney, Phillip Gibbs, Mike Bourke, Jack Caldwell, Mary Crewe, Berit Gustaffson, Christopher Hershey, Fiona Hukula, Terry Hull, Sister Tarcisia Hunhoff, Kal Indistange, Margaret Jolly, Mili Kaitani, Lesley Kaivalon, Evelyn King, Susan Kippax, Betty Koka, Litiana Kuridrani, Miriam and Steve Layton, Andrew Lepani, Kathy Lepani, Jenny Litau, Martha Macintyre, Clement Malau, Ros Morauta, Sister Mary McArthy, Sister Gaudentia Meier, John Millan, Ninkama Moiya, Florence Momo, Mark Mondia, Ili Movono, John Muke, Eileen Natera, Annmaree O’Keefe, Susan Paxton, Nii’ke Plange, John Reeder, Edward Reis, Father Jude Ronayne-Ford, Jimmie Rodgers, Peter Sapak, Ute Schumann, Orovou Sepoe, Jerry Singirok, Barbara Sivusia-Joyce, Barbara Smith, Tesse Soi, Rick Steele, Sharon Walker, Neva Wendt, Alan Whiteside, Heather Worth, Cammi Webb and Naomi Yupae.
Two organisations have materially supported this book: the State, Society and Governance in Melanesia Program (SSGM) in the College of Asia and the Pacific at the Australian National University; and the Australian Agency for International Development, AusAID. SSGM has been home or a home-away-from-home for many contributors to this volume. With AusAID’s generous support, SSGM has organised several seminars, publications and other activities on HIV in the Pacific, including a workshop ‘HIV/AIDS in PNG’ held at the ANU in 2004, which first brought the movers behind this collection together. Our gratitude is owed to former SSGM convenor David Hegarty, current convenor Nicole Haley, administrative supremo Sue Rider, her adjutant Jean Hardy, editing wizards Helen Marshall and Maxine McArthur, and last but not least, Peter Elder. At AusAID, very deep thanks go to Peter Lindenmayer and his committed and tireless colleagues.
As editors we would like to express our gratitude to Alan Patience for editorial acumen, imagination and input; to Richard Eves for his famous generosity with his archive of texts and images; and to Lawrence Hammar for hospitality and memorable times in Goroka. Michael and Lori Johnson, Murray Lord and Stephen Dupont kindly permitted us to use their fine photographs.
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Our thanks also go to Stewart Firth and members of the Pacific Editorial Board of the ANU E Press. In particular, we acknowledge the valuable insights and suggestions of our anonymous reviewers. At ANU E Press, we thank Duncan Beard and his team for their technical support.
Finally, we would like to pay tribute to the activism and research of the late Carol Jenkins, the unsung work of so many people working with their communities for health, safety and the future of PNG’s children, and to those whose lives have been changed by HIV.
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Beaten and shunned because she had AIDS
A 27-year-old mother of three was beaten up, burned and left to die by her village people near Goroka town because she had AIDS.
Joan (not her real name), from Ketarobo village, was picked up by staff from the Papua New Guinea Institute of Medical Research two weeks ago after they were alerted by a friend of the women.
The woman was taken to Goroka hospital where she died a week later.
Phili Manove, a research officer with the IMR, was among four people who picked up Joan, including the IMR’s HIV/AIDS sero-surveillance project coordinator Dr Lawrence Hammar and his wife. She said when Joan was found, she had fungus already growing in her mouth because she had not eaten for some time. Parts of her body were burnt and she had ulcers, obviously from beatings she had received from village men.
She was left under a shelter the people had put up near a stream away from the village.
‘It was obvious that she had not eaten for days. She was extremely skinny and she was deteriorating because she had fungal growth in her mouth. Her house was burnt but she escaped being burnt,’ she said.
She said the people refused to give a bucket to Dr Hammar and his team when they asked for one to wash Joan before taking her to the hospital. After Joan was brought to the hospital, her father came and told them that Joan must not be brought back to her village.
‘When we took her to the hospital, the health workers were not helpful. Maybe because they thought that IMR was responsible. I don’t know why but her sores were not treated although they gave her an injection. Maybe because she was deteriorating,’ she said.
The villagers, through Joan’s sister, asked later to compensate the IMR staff for caring for Joan, but Dr Hammar’s team refused and asked only that Joan be buried in her village. The request was granted and her body will be buried in the village today.
Post-Courier Wednesday, 7 July 2004
Introduction
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Introduction
VICkI LukER
This book explores the interaction between PNG’s HIV and ‘law and order’ problems. We hope readers will take from it a richer appreciation of the potentially vicious spirals and virtuous circles that this interaction can create. Ultimately, we advance the cause of ‘deep prevention’ for these interlinked challenges, and the concept and goal of ‘civic security’ to embrace them both.
Joan’s story, reprinted here from Papua New Guinea’s largest daily newspaper, begins this collection. She represents one face of PNG’s now endemic HIV that is so often described as undergoing ‘feminisation’. She died with AIDS and she died in violence and abuse. She thus conjoins aspects of HIV and ‘law and order’ that this collection treats together. Joan had been a member of her community, a citizen of PNG and metaphorically a citizen of the world. But, if the term ‘citizenship’ can be used in both its strict and looser senses, Joan’s belonging to these collectivities gave her no security of person. She lacked what we call here civic security. Of course, there are many stories like Joan’s, reported and unreported, that could illustrate these features. But among the people touched by Joan’s story was contributor Lawrence Hammar, who played a part in her ‘rescue’ and subsequent return to her village for burial. He has written about her elsewhere, in details never broadcast by media accounts (Hammar 2008, 71–76). One of the editors was also Lawrence’s houseguest at the time. So it was Joan’s story, more so than any of the others, that happened to be the seed for this book.1
We have tried to make this collection accessible to any curious reader. International discourse on AIDS, despite its conventions, comprises many dialects, and our authors speak from their different areas of expertise—in law, community work, medicine, consultancy, anthropology, development practice, international relations and so on—but we have edited to minimise dialectal differences. We also hope the book can communicate to those unfamiliar with PNG and the Pacific, but note that it was written within the context of Papua New Guinea’s relationship with Australia and speaks to certain parochial
1 Several stories that, like Joan’s, conjoin HIV and civic insecurity are referred to in chapter one and figure in chapters throughout the book, including Luker this volume, conclusion.
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concerns. For a long time, PNG’s largest source of aid has been its former colonial administrator, Australia, and PNG’s HIV and ‘law and order’ predicaments have loomed large in Australia’s perceptions of and policies towards PNG. This collection contributes to reflection on these interests.
The literature on conflict, violence, crime and regulation in PNG encompasses ethnographies of traditional rural and to a lesser extent urban societies; historical and legal studies of colonial law; and research undertaken to inform policy for the young nation of PNG in the areas of law and justice, development and economics.2 As discussed…