The Importance of Peacebuilding to Peaceful Elections in Timor-Leste

Photo: MPI alumna Leonesia Tecla da Silva (2nd from left) with Police Commander of Police Training Center, Superintendent Arquimino Ramos, President of APTA, and a representative from the NGO Belun at the roundtable discussion on August 18, 2021.

This year, Timor-Leste celebrated the 20th year since its independence on May 20, 2002. Just two months before the anniversary of its independence, Timor-Leste held its fifth presidential election, with the first round on March 19 and the second round on April 19, 2022. It has been due to the efforts of many peacebuilders that Timor-Leste was able to hold peaceful elections and has grown to be a relatively safe and stable country. In this joint piece, two Timorese peacebuilders and MPI alumni, Jose Caetano Guterres and Elsa “Uka” Pinto share how Timor-Leste arrived at where it is today and the role of peacebuilders in fostering a just society and peaceful elections.

For more than 450 years, Timor-Leste was colonized by the Portuguese until the Revolutionary Front for an Independent East Timor (Frente Revolucionária de Timor-Leste Independente or FRETILIN) unilaterally proclaimed independence on November 28, 1975. A week after the proclamation of independence, Timor-Leste was then invaded by the Suharto regime in neighboring Indonesia. After years of struggle utilizing three forms of resistance—guerrilla warfare, the underground, and diplomacy—Timor-Leste attracted the attention of the international community. On August 30, 1999, a referendum supported by the United Nations was conducted where the majority of the Timorese voted for independence.  

Since the 1999 referendum, the Democratic Republic of Timor-Leste has successfully held 12 elections: five presidential, five parliamentary, and two village or suku elections (see the table Main Legal Frameworks on Election Process in Timor-Leste below). In 2022, 16 candidates vied for the highest position in the government in the first round. The two with the most votes competed in the final runoff during the second round with Jose Ramos-Horta defeating incumbent President Francisco “Lu-Olo” Guterres (see Timor-Leste 2022 Presidential Candidates and Election Outcomes below). Civic organizations, peacebuilders, and ordinary citizens all played important roles in the conduct of a peaceful election.

Jose Caetano Guterres

Although Timor-Leste's democratic process is still very young and has faced political challenges along with the COVID-19 pandemic, natural disasters, and various other problems over the last five years, according to national and international observers, the presidential election went smoothly, peacefully, and orderly.¹ International observers such as the Asian Network for Free Elections (ANFREL)² congratulated Timor-Leste for a peaceful, genuine, and transparent first round of the 2022 Timor presidential election.³

This presidential election was very unique in Timor-Leste's political history. This can be seen from political perceptions of the role of incumbent President Guterres during his mandate. President Guterres was elected in 2017 with support from Xanana Gusmão and his party.  However, many of his decisions during 2017-2022 were considered controversial or even unconstitutional by the opposition (see Decisions of President Guterres deemed controversial by Xanana Gusmão and his party below). 

These controversial decisions created political instability in the 2017-2020 period. One outcome of this was the lack of a state budget, resulting in a lack of development programs being implemented and increased social inequality and poverty. In addition, as elsewhere, Timor-Leste was facing the COVID-19 pandemic. Heavy rains across Timor-Leste from March 29 to April 4, 2021, brought by Tropical Cyclone Seroja, resulted in flash floods and landslides across all 13 municipalities in the country. Both situations undermined the government’s efforts to serve the people.

In addition to the political and social instability, the outcome of elections in Timor-Leste can be determined by the kinds of voters. There are primarily two categories: “rational voters” and “traditional voters.” “Rational voters” are those whose choice depends on government policies and programs—policy-problem-solving oriented voters.  The “traditional voters” are those who make their choices based on a tradition and history tied to the FRETILIN party that led the struggle for independence. There are also voters who vote based on group and personal interests. They vote for their family members, friends, or close group interests. This group aims to access government projects and money. To achieve this, they use various means, including “money politics.”⁴ This situation often triggers political discontent and unfair competition. 

In addition to the concrete challenges were the “virtual” challenges. The most active discussions around the elections took place on social media, especially Facebook. Social media was an important instrument for media campaigns in Timor-Leste. However, disinformation was a major challenge and often used by one political group to attack another.

Thus, the 2022 presidential election was carried out under very difficult circumstances, including the dissatisfaction with and instability of the government, the social and environmental issues, the COVID-19 pandemic, the diversity of voters, and the misinformation and disinformation campaigns. Many people assumed that the 2022 presidential election would not go smoothly. They predicted that there would be conflicts between political leaders and their followers due to the very tight competition between the noteworthy leaders of the Timor-Leste independence struggle and the tight competition between candidates from among the new generation.

However, the presidential election went smoothly, safely, and peacefully. Most voters and communities participated in the election. People now are starting to realize the importance of elections as a means to participate in determining the makeup and direction of the state leadership. They recognize that elections have the main function of producing a leadership that is truly close to the will of the people and a means of legitimizing power. Elections can be said to be aspirational and democratic when they are competitive, the participation in the elections is free, and all community groups have equal opportunities to participate. Voters must be given the freedom to consider and discuss their alternatives in a free atmosphere, not under pressure, and with access to broad information and impartial and independent election organizers.

Much of the credit of the elections occurring within a safe and stable Timor-Leste goes to the political leaders, such as Xanana Gusmão, Mari Alkatiri, Ramos-Horta, Taur Matan Ruak, Francisco Guterres, and Lere Anan Timur, who, despite their political differences, still play a very important role in maintaining peace and stability in the country along with their parties. For example, despite Xanana Gusmão’s opposition to the ruling government and support to a particular presidential candidate, he still showed his leadership to promote peace. He was able to appeal to the Timorese people to stay calm in all situations.  He said, “I appeal to all people, all groups not to provoke each other's situation. We have been independent for 20 years. We have to show that we have political maturity in various situations, difficult situations, safe situations, but in such situations do not show immaturity to threaten each other.”⁵

Community leaders, traditional leaders, activists, academics, civil society organizations, veterans, religious institutions, especially the Catholic Church, and ordinary citizens also play a very important role in promoting peacebuilding efforts in Timor-Leste. Individuals and organizations were involved in numerous formal and informal ways to promote discussions—whether it was on a campus, in the office, in microlets (minibuses), buses, and taxis—you could see groups of people discussing the current issues in the country.

Universities like the Universidade da Paz (UNPAZ), University of Dili (UNDIL), Universidade Oriental Timor Lorosa’e (UNITAL), and civil society organizations such as the Timorese Research Association (Asosiasaun Peskizador Timor Anan - APTA) were actively involved in organizing roundtable discussions on current political and security issues in the country. On August 18, 2021, Jose Caetano Guterres and Leonesia da Silva, both Mindanao Peacebuilding Institute (MPI) alumni, in cooperation with APTA and UNPAZ, conducted a roundtable discussion on security issues.⁶ This was their final project for a peacebuilding training facilitated by MPI. The central theme discussed in this forum was: Peacebuilding Intervention: A Peace Education Approach to National Police Institution in Timor-Leste. APTA and UNPAZ have regularly conducted roundtable discussions since 2020 to promote exchanges on national issues among the public. The central theme in these fora often is about the role of political parties in ensuring the implementation of a democratic and lawful state. Through these discussions, participants have the platform to express their opinions and submit them to the government, especially to relevant ministries for review and follow-up.

With regard to social media and disinformation, the government, through civil society organizations and the Secretary of State of Social Communication, made an effort to fight hoaxes and false information. This campaign attempted to provide information to the public so that they would not be deceived by or involved in the perpetuation of false information.

Timor-Leste has now experienced a series of peaceful elections. The implementation of the 2022 elections has been considered successful by many institutions, including the international community and observers. As peacebuilders, we have seen that civil society organizations, academics, and media made a significant contribution to the peaceful election in Timor-Leste. Public debate is considered a fundamental exercise in building people’s understanding in participating in all democratic processes. Likewise, the role of the leader is very important in educating their followers and people in general to realizing peaceful elections and improving the quality of democracy in the country. 

From October 2011 to 2017, Jose Caetano Guterres worked with the United Nations Development Programme (UNDP) Support Project to the Department of Peacebuilding and Social Cohesion at the Ministry of Social Solidarity Timor-Leste. He is an alumnus of MPI’s 2021 Virtual Peacebuilding Training. Jose is currently studying for a MA in Peace and Conflict Studies at the National University of Timor Lorosa’e (Universidade Nasional Timor-Lorosa’e or UNTL).

1. The Asia Democracy Network (ADN), 2022, Statement: Timor-Leste’s 2022 Polls: Upholding Commitment to Democracy, a model for Asian countries to follow. Accessed at  https://adnasia.org/statement-timor-lestes-2022-polls-upholding-commitment-to-democracy-a-model-for-asian-countries-to-follow/
2. https://anfrel.org/anfrel-interim-statement-on-the-first-round-of-the-2022-timorense-presidential-election/
3. https://reliefweb.int/report/timor-leste/eu-eom-timor-leste-2022-preliminary-statement
4. Fundasaun Mahein 2012, The Practice of Money Politics in the 2012 Presidential Election. Access at https://www.fundasaunmahein.org/2012/03/28/the-practice-of-money-politics-in-the-2012-presidential-election/
5. Timor News, 2022. Access at https://www.timornews.tl/notisia/elprez-2022-xanana-ho-taur-matan-ruak-apela-ba-povu-simu-rezultadu-ho-hakmatek/
6. APTA’s Facebook Page: https://web.facebook.com/photo?fbid=648482272797525&set=pcb.648482866130799  or GMNTV Live Stream, Jornal Nasional Kalan, 18 Agostu 2022: 5;44-53:47). Access at https://www.youtube.com/watch?v=pWUuH3b362k

Elsa “Uka” Pinto

Essential to just and peaceful elections is that these rights are established in a country’s constitution. The Democratic Republic of Timor-Leste’s 2002 Constitution incorporates the rights contained under the Universal Declaration of Human Rights. It guarantees and protects fundamental rights, such as the rights of expression, assembly, association, and movement, and provides for the promotion of equality in the exercise of civil and political rights and non-discrimination based on gender for the access to and participation in political life.

Timorese perceive an election as a significant event. People from the national, municipal, and village levels will discuss it for weeks or even months before an election and continue to do so for weeks after the election result is announced. People are very keen to participate in the campaign process during the campaign period, follow the news and national debate on the television channels, and go out to vote on election day. The Timorese know an election is an important event as it is where the people will decide which parties and candidates they prefer to represent them in the next term. They know the president, members of the National Parliament, and municipal councils have five-year terms in office, while members of the Village Council serve for seven years according to the current Village Law. 

Over the years, people have shown a high interest in elections, as reflected in the turnout in the Presidential Election of 2022. Voter turnout for the first round on March 19, 2022, was 77%, composed of 49% female and 51% male.¹ The Presidential Election proceeded to the second round, as, among 16 candidates for President, no candidates reached the absolute majority vote. Therefore, the two candidates who received the highest number of votes had to go into the second round of the election on April 19, 2022. Turnout for the second round was only slightly less at 75%.²

Initially, there were concerns that the COVID-19 pandemic would impact the election and prevent people's participation and result in the lowest turnout ever. Because the previous elections took place during the pandemic, this pushed the governmental, non-governmental, and donor organizations to explore ways to hold a free, fair, and COVID-safe election and ensure that low voter turnout would not happen. As noted above, voter turnout was still as high as before, demonstrating how significant Timorese perceive the elections in the country.

As a country that emerged from a history of colonialism, conflict, and political violence, peacebuilding work and peacekeeping is an ongoing effort. Peace is fundamental to many aspects of life; therefore, the role and often lifetime commitment of peacebuilders and their work is vital, including their essential role during elections.

Like in many other countries, minor incidents are likely to occur during the election period (registration, campaigns, during the election day, announcement of the result). Moreover, an election comes with tension and anxiety throughout the process. Hence, it is crucial to work to provide an early response to minor incidents to avoid significant events, including violence and conflict, from happening. 

Peacebuilders in Timor-Leste are involved in various programs and activities at the national and local levels to ensure a peaceful election in the country. They contribute at the personal and organizational levels.

As a peacebuilder at an organizational level, I supported capacity-building programs through training activities targeting women, people living with disabilities, and young people. In addition, I also did a desk review analysis on the previous elections that occurred in Timor-Leste to identify opportunities to have more women and other marginalized groups participate in elections. This analysis was used to inform decision-makers in my organization about the best way possible to have more women and young people participate in elections. Among other findings was a recommendation to hold capacity building through training and information sharing on elections and promoting through various media forms (including video) why men, women, people with disabilities, and other marginalized groups should participate in the election. 

As a peacebuilder on a personal level, I try to have access to the most accurate and updated information about election events, including the candidates and their programs and compromises once they are elected to office. Before sharing any information or news with my peers, family, or colleagues, I will always try to check and recheck whether the information is correct or not. Propaganda during the election period happens all the time, and it is everyone's responsibility to fight against propaganda and misleading news or information. Utilizing my network of peacebuilders to check and recheck information has been beneficial. Through this network, I received information and stayed on top of the news related to election events. Aside from this, at the personal level during the election, I always reach out to my family members and my networks, particularly young people, to share information and ensure that they are well informed and can participate in a free, fair, and COVID-safe election. I believe that education through training and information sharing is crucial in contributing to peaceful elections in my country, Timor-Leste.

Elsa ‘Uka’ Pinto works as a consultant for gender equality and ending violence against women and girls in Timor-Leste, training facilitator, and social researcher with peacebuilding organizations. She is in her final year in the Peace Studies Master’s Program at the National University of Timor Lorosa’e (UNTL). She attended MPI’s Annual Peacebuilding Training in 2015 and the Facilitation Skills Training of Trainers in 2019.

1. https://www1.undp.org/content/dam/timorleste/docs/Factsheet/Facsheet%20Presidential%202017-2022.%20Revised.pdf
2. https://www.electionguide.org/elections/id/3884/

Timor-Leste 2022 Presidential Candidates and Election Outcomes 

The 16 candidates included former president and Nobel Peace Prize laureate Jose Ramos-Horta, incumbent President Francisco “Lu-Olo” Guterres, four female candidates, and two former resistance fighters. Ramos-Horta was backed by the current opposition leader and charismatic independence hero Xanana Gusmão, who leads the Congresso Nacional de Reconstrução de Timor (CNRT or National Congress for Timorese Reconstruction), while Guterres was backed by his party FRETILIN. This electoral competition reflected how Timor-Leste politics is still dominated by the 1975 era of political leaders.

The candidates had a two-week period for campaigning where they were able to convey their motivation for their candidacy, their vision and mission, and their programs for government. The campaign season went peacefully, despite minor incidents in several places, but no fatal incidents disrupted the election.

The 2022 presidential campaigns were very competitive, especially between Ramos-Horta and Guterres. Ramos-Horta’s platform was to solve the country’s chronic political deadlock that has plagued Guterres’s coalition government since 2017. He promised to either dissolve  the current parliament and realign the current parliamentary coalition, which includes FRETILIN, Kmanek Haburas Unidade Nasional Timor Oan (KHUNTO), and the Partidu Libertasaun Popular (People’s Liberation Party or PLP) or call for a new parliamentary election. Guterres continued to promise pro-people’s programs, namely providing subsidies for each family in December and providing housing subsidies to underprivileged families and others. In the first round of the elections, people panicked and feared that there would be conflict between political leaders.

On March 19, 2022, about 664,106 (77.26%) voters out of 859,613 registered voters flocked to 1,200 polling centers and 1,500 polling stations, including nine from overseas. The result of the first round of elections showed that Ramos-Horta and Guterres were the two highest vote recipients. Ramos-Horta gained 303,477 votes (46.56%), while Guterres received 144,282 votes (22.13%). Based on the result from the Secretariado Técnico de Administração Eleitoral (STAE) and Comissão Nacional de Eleições (CNE), the Supreme Court authorized the conduct of the second round of elections between Ramos-Horta and Guterres. 

The second round of elections, which was held on April 19, 2022, was also very tense, with both Ramos-Horta and Guterres receiving strong support from opposition leaders like Gusmão and Mari Alkatiri (General Secretary of FRETILIN) and other political parties and politicians.

The second round was conducted peacefully and the results showed about 646,389 (75.17%) voters took part. Ramos-Horta gained 398,028 votes (62.1%) against Guterres’s 242,939 votes (37.9%). Based on the result from the STAE and the CNE, the Supreme Court certified Jose Ramos-Horta’s election victory and he was declared the President of Timor-Leste for 2022-2027. He was inaugurated by the President of the National Parliament on May 20, 2022 during Timor-Leste’s commemoration of its 20th year of independence.

Decisions of President Guterres deemed controversial by Xanana Gusmão and his party

1. The formation of a Minority Parliamentarian Government on May 12, 2017. This decision was considered very controversial because it involved the FRETILIN party, which was President Guterres's own party, Therefore, all decisions taken were not considered neutral, thus creating a conflict of interest. The FRETILIN minority government only lasted for seven months and ended after its proposed program was rejected by the majority of the National Parliament in 2018. The government, which was led by Prime Minister Mari Alkatiri, General Secretary of FRETILIN, was forced to disband. 
2. At the same time as the controversy above, the Parliamentary Majority Alliance, which included CNRT, PLP and KHUNTO, was waiting for the opportunity to form a new government. President Guterres made another controversial decision by dissolving the National Parliament and holding an early election in 2018. The general election was again won by the Parliamentary Majority Alliance. The eighth government was immediately formed at that time. However, the President again did not swear in the nine ministers from the CNRT party and KHUNTO proposed by Prime Minister Taur Matan Ruak. The situation ended when CNRT voted against government programs proposed to the National Parliament. General Taur Matan Ruak's government and the Parliamentary Majority Alliance collapsed once again in December 2020.
3. A new effort was made by CNRT President Xanana Gusmão to oppose President Guterres by forming a New Alliance with KHUNTO and the Democratic Party along with several other small parties. However, President Guterres did not support the alliance until FRETILIN was able to form a new platform between FRETILIN, PLP, and KHUNTO, supporting the eighth Constitutional government. 

Table 1. Main Legal Frameworks on Election Process in Timor-Leste¹

It is important to note that most of the legislation is written in Portuguese; however, most of the Timorese do not speak and understand written Portuguese. This legislation needs to be translated into Tetun to ensure all Timorese have access to election information. Some non-governmental organizations and government entities are working to translate these pieces of legislation into Tetun. This is vital as it minimizes and avoids misinformation shared on election procedures, rules, and regulations.

1. National Gazetter (Jornal da República Timor-Leste). See: http://www.mj.gov.tl/jornal/?q=node/12
2. National Gazette on Electoral Law for the President of Republic. See: http://www.mj.gov.tl/jornal/public/docs/2021/serie_1/SERIE_I_NO_29.pdf
3. National Gazette on Electoral Law for the National Parliament. See: http://www.mj.gov.tl/jornal/public/docs/2017/serie_1/SERIE_I_NO_17_A.pdf
4. National Gazette on Suku Law. See http://www.mj.gov.tl/jornal/public/docs/2016/serie_1/SERIE_I_NO_26A.pdf and for the English version, see: https://www.ifes.org/sites/default/files/suco_law.2016.english.final_.pdf
5. National Gazette on Municipal Electoral law. See: http://www.mj.gov.tl/jornal/public/docs/2021/serie_1/SERIE_I_NO_44.pdf