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Conference Proceedings
Living on the Margins:
Minorities and Borderlines in
Cambodia and Southeast Asia
Siem Reap, Cambodia
March 14-15, 2008
Conference Coordinator: Chean Rithy Men
Photo: Fence at a border crossing between Burma and Thailand (Peter J. Hammer, 2007)
The articles that appear in this publication are edited versions of selected papers delivered
during the International Conference Mainland Southeast Asia at its Margins: Minority
Groups and Borders, March 14-15, 2008, at the Center for Khmer Studies, Siem Reap,
Cambodia. The Conference was supported by the Rockefeller Foundation as part of the
Capacity Building in Cambodian Higher Education Program. The contents of this book
and additional papers presented at the conference are available in PDF form from the
Center for Khmer Studies website, www.khmerstudies.org.
ISBN: 978-99950-51-05-1
The Important Forgotten – Men Living in Rural Indonesia Who Have Sex With Men: 265
The Implications for HIV Education
Ed Green
Conference Agenda 297
The problems of ethnic groups are one central concern. Transnational and cross-
border influences are creating new challenges and opportunities for ethnic
minorities. The Cham and other Muslim communities are reconnecting to
international Islam. Labor markets cross national boundaries. Vietnamese migrant
workers travel to Cambodia, as Cambodian workers travel to Thailand.
International loans, agencies and programs targeting “development,” itself an often
disruptive cross-border force, are transforming many Cambodian institutions and
redefining traditional social margins in the process. This clash of forces is most
profoundly felt by the indigenous peoples of the northeast. The conference invites
examination of other minorities and vulnerable groups “on the margins” who have
been systematically denied access to important social resources. Theories of social
exclusion teach that the landlessness, street children, victims of domestic violence
and gay and lesbian persons are on the margins of different Cambodian institutions
and that borders and boundaries need not be of a strictly geographic nature.
Developing from the fifth semester session of the Center for Khmer Studies’
Rockefeller Foundation-funded Building Capacity in Higher Education program
covering vulnerable peoples and ethnic minorities in Mainland Southeast Asia, this
two-day conference provides a forum in which early career Cambodian academics
present their research alongside international scholars with related interests. With
an emphasis on developing comparisons between Cambodia and other countries
in Southeast Asia, individual presentations and panel discussions provide
opportunities for the presentation of research, trends and analyses covering
minority groups in Southeast Asia.
Important insights into Cambodian society can be gained by looking at the lives of
those living on the margins. So I have learned by wrestling with the topic
“Cambodia at the Margins: Minority Groups and Borders,” while serving as the
Visiting Professor for the Fifth Session of the Center for Khmer Studies’ Capacity
Building in Cambodian Higher Education Program supported by the Rockefeller
Foundation. As the papers in this volume demonstrate, an appreciation of margins,
minorities and borderlines teaches a number of object lessons, but it also suggests
some enlightening methods of analysis. Margins identify fault lines, demarcating
borders where powerful tectonic plates rub against each other, whether these plates
represent conflicting social institutions or the forces of transcendent, but ill-defined
processes like nation-building, economic development or globalization. Engaging
the lives of real people caught on these margins can lead to new understandings of
the often invisible forces shaping and reshaping Cambodia and the region.
This is not an easy journey. Notions of “margins,” “minorities” and “borders”
are multilayered and enigmatic. But even concepts that appear more concrete upon
first impression, such as a physical border or the idea of the nation-state itself
seldom withstand closer scrutiny. For example, what is Cambodia? A country? A
colored space depicted on a map? A people? An idea? Equally difficult problems
arise from asking what it means to be Cambodian. How is it different, if at all, from
what it means to be Khmer? The physical borders of Cambodia have shifted over
time. In the first chapter of this volume, Ian Baird examines the Lao-Cambodian
border, showing how arbitrary such line drawing exercises could be under French
colonial administration. He then examines how changing physical boundaries
affected the Brao People living on each side of the new border. This is not the only
physical border of Cambodia that has shifted. With the redrawing of the line on the
map between Cambodia and Vietnam in the Mekong delta, the Khmer of Khmer
Kampuchea Krom went from being members of the dominant ethnic group in
Cambodia, to being ethnic minorities in Vietnam, demonstrating how facile
designations of majority/minority status can be.
Broader lessons can be drawn from these simple examples. Lines, line-drawing,
colored shapes on a map take on meaning primarily in a political context. The
international community too often takes the building block of the nation-state for
granted, but it is important to remember that Cambodia did not exist as a modern
8
nation-state until 1953. Yet the Kingdom of Cambodia, with its echoes in the
Angkorian Empire, substantially pre-dates the 1648 signing of the Treaty of
Westphalia, which ostensibly marked the beginning of the modern international
age of nations. It is telling, however, nearly four centuries later, that we still
confront the reality of failed states and the perceived need to engage in nation-
building. Post-World War II theories of economic development have introduced the
parallel notion of market-building to accompany the objective of nation-building.
But how does one build an effective system of governance? How does one build an
effective market? What are the effects of nation-building and market-building on
the lives of people living on the margins?
While we might be rightfully skeptical of the notion of market- and state-
building, there is no doubt that markets and states exist and exert powerful
fields of influence. Moreover, something undeniably significant happens at the
boundaries of states and markets. Official documents and passports are needed to
legally cross national borders. With goods, tariffs are charged and customs must be
cleared. Yet legal frames provide, at best, only partial understandings. People and
goods cross borders illegally, as well. Political boundaries seldom correspond
to the boundaries of increasingly global economic markets. Moreover, the
multiple mismatches between political and economic borders invite predictable
opportunities for strategic behavior. Black markets are formed, goods are smuggled
and people migrate for higher wages. Poor people in Vietnam travel to Cambodia
for opportunities, while poor people in Cambodia migrate to Thailand in
search of better jobs. The potential for human agency is a constant in the face of any
externally imposed boundary. But human agency also has a darker side, as
problems of human trafficking and child sex tourism illustrate. These issues
constitute other problems for peoples living on the margins.
While physical borders are important, not all borders are physical. Distinctions
in class can establish differences more profound than any wall or fence. It is also
important to realize that every social institution is marked by its own borders and
boundaries. These borders define who is in and who is out; who belongs and who
does not; who is visible in the eyes of society and who is invisible. In traditional
Khmer society, for example, the divorced woman and the unwed mother are both
outside the construct of the traditional family and potentially outside the construct
of feminine virtue. Fear of transgressing the demands of family (and the absence of
alternative social institutions to provide surrogate functions for the support of the
traditional family) leaves many victims of domestic violence alone and isolated. The
borders defining family can leave people trapped outside, as well as in. Family
values, traditional gender roles and notions of sexual identity create their own
borders, rendering many gay men and lesbian women invisible and simply
Introduction 9
important social constructs and institutions in Cambodia: the market, the state
(political structures), the Party (CPP), the community or village, the education
system, patronage networks, the traditional family, the construct of ethnicity, and
the construction of gender roles and notions of sexual identity. We have already
noted how social institutions have their own boundaries and margins. Framing
problems in terms of social exclusion requires first defining the institution or
construct at issue and then identifying its borders (margins). These borderlines are
conceptual, not physical locations, and serve as demarcations of differences – who
belongs and who does not belong? Who is on the inside and who is on the outside?
Who is a member of the majority and who is a member of the minority? Most of
these borders are fluid and contestable, calling for an understanding of the social,
political, cultural and economic forces that cause these boundaries to shift and be
altered over time. The exclusion can have both passive and active dimensions.
Passive elements might simply be the withholding or denial of access to the
resources that are necessary for survival and advancement. Active elements might
reflect more direct forms of exploitation of vulnerable groups through trafficking,
prostitution, child labor, eviction, land grabbing or political disenfranchisement.
Social exclusion was a dominant theme in the CKS Capacity Building Lectures
for the Fifth Session. What is striking about Cambodia (and most of the so-called
Third World) is how far removed every day Cambodian life and Cambodian
institutions are from the hypothesized models of the western state and the western
market. Cambodia is a rural, agricultural economy. In these rural communities,
there is still only a limited role for markets and most social relations have not been
substantially monetized. Here, the family remains the most important social
institution. Patronage systems, not decentralized markets or competition, mediate
access to most important economic resources. Similarly, traditional patronage
systems, not neutral civil service norms or the rule of law, define access to political
resources. In this world, personal relations matter. When relations matter, so does
ethnicity, religion, family status, reputation and, above all, connections. In the CKS
lectures, we examined the role that the ethnic Chinese historically played in the
Cambodian economy and the role ethnicity plays today in determining access to
economic resources. We explored the role of patronage, particularly how patronage
systems historically serve important allocative functions that well-functioning state
bureaucracies and markets aspire to displace. Land and land ownership are critical
institutions in what is still predominantly a rural, peasant economy. The problem of
increasing landlessness and limited forms of credit, therefore, can also be framed
and understood in terms of economic and social exclusion. As people lose their
land, or land is increasingly unavailable to the next generation, there is greater
in-country migration from rural to urban areas. When jobs are unavailable in the
Introduction 11
larger Cambodian cities and when wages are higher for comparable work in
Thailand, a cascading effect of cross-border migration is triggered by people
seeking access to gainful employment. The local, national and international
quickly become connected by the inter-linkages of increasingly global markets.
The family always plays an important role in traditional societies, a role that
becomes narrower and less important with the development of markets and state
institutions. Cambodia has an unusual history. A combination of relatively low
levels of population, relatively easy access to individual land ownership and very
limited interference at the local level from a distant and anemic state, have all
contributed to making the nuclear family the primary building block of Cambodian
society. The family serves a broad range of personal, social and economic functions.
In the lectures, we examined this traditional role, as well as the lives of those living
on the margins of the family, margins that are becoming increasingly difficult
in light of the stresses of a changing economy. Notions of marginalization and
understanding the family as a complex social institution provide critical insights
into contemporary social problems such as domestic violence, street children and
the challenges facing gay, lesbian and transgendered persons (concepts themselves
that take on important localized meanings in the Cambodian context).
Theories of social exclusion facilitate better understandings of the nature of
institutions and the dynamic processes of marginalization. Better understandings,
in turn, create new mental maps that can help actors envision more creative paths
forward. People living on the margins are not helpless victims. Even the most
vulnerable group has the ability to respond to the processes of marginalization in
some fashion. One possibility is affirmatively to engage the political process to try
and redefine the borders and barriers causing the exclusion. While possible, such
action is never easy. Certain obstacles are endemic to political action on the
margins. Action assumes a social identity that can engage in political discourse
(sufficient visibility). Action assumes some awareness of the larger economic and
political forces under way driving the processes of marginalization, such as the
workings of global economic markets or the agendas of international aid agencies
(awareness). Action also assumes sufficient cooperation within the group to permit
effective collective action (cohesion). These elements may be lacking because the
victims of marginalization are often isolated and disempowered, lacking any
tradition or means of coordination. Some stories in Cambodia, however, are
positive. Darren Zook examines how action is taking place amongst certain
communities of disabled persons, and how their work can serve as a model for
others. But Ed Green illustrates how other vulnerable groups remain invisible, like
the men who have sex with men (MSM) in rural Indonesia. Self and group
awareness in this setting is more difficult to establish. It is also worth remembering
12
that civic engagement and political activism are artifacts of the modern democratic
state – often modern remedies for modern ills. Engaging the political process and
seeking greater access to social resources may not be the answer to all problems of
marginalization. Indigenous communities, for example, have historically been
defined by their isolation from the polity, not their engagement with it. Autonomy
may be a value as well as inclusion. Some groups do not seek greater assimilation,
even on terms that preserve their culture. Many barriers stand in the way of the hill
tribes using the same tactics as disabled persons, even assuming they want to do so.
Social exclusion and access to social resources are not the only frames through
which to approach “Cambodia at the margins: Minority groups and borders.” As
the International Conference held on March 14-15, 2007 in Siem Reap and the
papers in this volume suggest, there are many creative and effective ways to
approach this topic. A more complete collection of conference papers and
PowerPoint presentations can be found by following links at the main CKS website
(www.khmerstudies.org). The smaller number of papers selected for publication in
this volume take approaches and address themes that are complementary to but in
many ways quite different from those addressed in the CKS Lectures. The papers
here are organized around three dominant themes: 1) Borderlines and Border
Crossings; 2) Development and Indigenous Peoples: Targeting the Marginalized;
and 3) Constructing Self and Others: Understandings Beyond Borders. These
themes will be briefly outlined here, with slightly longer expositions at the
beginning of each section.
The challenges facing indigenous communities constitute a central focus of this
volume. The hill tribes in Cambodia account for only 1% of the total Cambodian
population, but have always constituted the majority of those living in the
remote northeastern provinces of Ratanakiri and Mondulkiri. The reader will be
introduced to important aspects of the language, culture and beliefs of these
peoples in the essays themselves. Suffice it to say here that these vernacular
communities provide an enlightening foil not only to the ethnic Khmer that
comprise the dominant ethnicity in Cambodia, but also to the external forces of
western modernity that are reworking Cambodia and are now making their way
into most remote reaches of the globe. But the lives of other people living on the
margin are also examined in this volume. In addition to indigenous peoples in
Cambodia and Southeast Asia, the reader is exposed to Muslim minorities living
in Colonial Burma, the Cham of Cambodia, the struggles of people living with
disabilities in Cambodia and the lives of men who have sex with men (MSM) in
rural Indonesia. The following outlines the structure and themes of the volume:
Introduction 13
the uncertainty and insecurity facing these people. Margherita Maffii, Changes in
Gender Roles and Women’s Status among Indigenous Communities in Cambodia’s
Northeast, continues the theme of assessing economic development but focuses on
the lives of women and changing gender roles. Relying on first person narratives,
Maffii provides real insight into these women’s lives and challenges, giving voice to
those living on the margins. Peter J. Hammer, Development as Tragedy: The Asian
Development Bank and Indigenous Peoples in Cambodia, frames the issue of economic
development as a conflict between competing worldviews. The paper dissects two
Asian Development Bank reports about indigenous peoples to reveal what
Hammer argues are the mistaken beliefs driving the tragedy of modern economic
development. Frédéric Bourdier, When the Margins Turn Toward an Object of Desire:
Segregation and Inclusion of Indigenous Peoples in Northeast Cambodia, concludes the
section with a thoughtful meditation on the impact of development on the belief
systems of indigenous communities. He highlights the dangerous and subtle ways
that external interventions can undermine traditional belief systems, but cautions
against the naiveté of simply embracing isolation and segregation as appropriate
responses.
well as with defining their understanding of Islam within the international Islamic
community. Zook and Green examine the lives of other groups living on the
margins – people with disabilities and men who have sex with men (MSM).
Darren C. Zook, Disability, Democracy, and the Politics of Civic Engagement in
Cambodia, details how people on the margins can engage social processes in a
manner that can redefine the location and meaning of the boundaries that define
them. Using narratives similar to Maffii’s approach to indigenous women, Ed
Green, The Important Forgotten – Men Living in Rural Indonesia Who Have Sex With
Men: The Implications for HIV Education, provides important insights into the MSM
community. The paper explores how these men navigate the borders created by
understandings of family, religion and sexual identity in rural Indonesia.
All the papers in this collection were written as stand-alone responses to the
Conference topic, “Minority Groups and Borders: Cambodia and Southeast Asia at
the Margins.” They can be read alone or in different combinations according to
the reader’s interests and inclinations. Collectively and serially, however, the
papers provide a sustained meditation on the themes of margins, minorities and
borderlines. This volume also illustrates how an appreciation of the lives of those
living on the margin can sometimes hold the key to understanding the profound
yet often invisible forces shaping our world. Creative destruction may be the
mediating force of economic markets, but it leaves new margins and new problems
in its wake.
This volume provides other insights as well. This volume is a window into the
Conference, which itself is a window to the Capacity Building in Cambodian
Higher Education Program, which is a window into the broader work of the Center
for Khmer Studies (CKS). CKS’s mission is to promote research, teaching and
public service in the social sciences, arts and humanities as they relate to Cambodia.
This volume and the work of the Capacity Building in Higher Education Program
would not be possible without the generous support of the Rockefeller Foundation.
It would also not be possible without the hard work and leadership of Chean Men,
Director of the Capacity Building Program, and Philippe Peycam, director of CKS.
Speaking on behalf of the other contributors to this project, we are grateful for their
efforts and support.
Part One: Borderlines and Border Crossings
Borders give rise to notions of division, but what unites us can be just as powerful
as what divides us. The human being, whether it is an indigenous person or a
resident of Phnom Penh or New York City, stands prior to any concept of ethnicity
or minority status. Psychologist Otto Rank stressed the universal significance of the
child being at one with the mother in the womb (unity) and the corresponding
implications of the birth trauma (separation). Cambodians describe the act of
giving birth as its own form of border crossing, chlang tonle, roughly translated as
crossing the river. From the moment of birth, life becomes a series of events
imposing greater degrees of individual differentiation within cultures that mark
their own senses of collective difference. The fascination that any empathetic
engagement with indigenous communities, like the hill tribes in Northeast
Cambodia, holds, therefore, is a simultaneous feeling of oneness with the universal
human condition and a profound sense of what separates modern man from his
origins. The realities of borders and borderlines are undeniable. But what are
these boundaries and how are they formed? Who draws the lines on the map and
what do they mean? Can borders be redefined and redrawn? How can borders be
crossed and what do these crossing reveal? Each paper in this section approaches
these questions in a different way. Ian Baird starts with the physical border
between Cambodia and Laos, drawn by French colonial administrators in 1904.
Through the story of the Broa People, who live on both sides of the border, he
takes the reader on a journey highlighting the importance of human agency,
geographic imaginaries and spaces of resistance. Robert Winzeler examines the
role of religion and religious conversions in indigenous communities on what he
terms the “ethnic margins of Southeast Asia.” Religious beliefs demarcate their
own sets of boundaries and differences. The paper explores an interesting pattern
where members of indigenous communities convert not to the dominant religion of
their lowland compatriots (Buddhism and Islam), but rather to various forms of
Christianity. Finally, Brigitte Nikles provides an ethnography of traditional
midwives among the Bunong People. This window into Bunong society provides
important insights into their religious and spiritual beliefs. But traditional
midwives stand not only at the universal crossing of giving birth; they also stand at
the boundary between traditional and modern understandings of health and
wellbeing. The extension of the bureaucratic reach of the modern Cambodian state
is creating new conflicts between competing worldviews and raising new questions
about the role of modern medicine in indigenous societies.
Spaces of Resistance: The Ethnic Brao People and the
International Border Between Laos and Cambodia
Ian G. Baird
Introduction
On December 6, 1904, the governor general of French Indochina, Monsieur Paul
Beau, signed a decree that transferred Stung Treng Province (including Siem Pang)
from Laos to Cambodia, thus creating the international boundary inherited by
present-day Laos and Cambodia,1 even if it remains contested by the two countries.2
This paper does not address the present political relations between Laos and
Cambodia as they relate to this boundary, and more generally departs from
examining the boundary from a simply national perspective. Instead, it focuses
on the impacts of the boundary at the local level, in relation to a particular ethnic
group, and over different periods of history. It considers the imaginative geogra-
phies of international boundary creation and the creation of hybrid geographies by
those affected by it.
In making the decision to detach Stung Treng from Laos and add it to
Cambodia, the ethnic Brao people who lived on both sides of the eastern part of the
boundary were hardly considered. No efforts were even made to pretend that such
consultative efforts were being attempted. The opinions of the Brao were hardly
mentioned in French administrative correspondence on the matter; their views
were apparently not deemed important, and it is unclear if the Brao even knew that
the boundary was being established. In addition, the French did not have a clear
understanding of the population along the boundary, at least until Henri Maître
traveled overland from Veun Say to Attapeu in 1910 (Maître, 1912). Chanda (1986)
and Prescott (1975) reported that the French boundary between Laos and Cambodia
was based on geographic features, with streams running north being in Laos, and
those running south being in Cambodia. Thus, the boundary continued along the
peak of the mountain range, running east-west, and often reaching over 1,000 m
above sea level. Chanda (1986) mentioned that there was little consideration of
historic, linguistic or ethnic factors on the part of the French when they established
the boundary. Since then the situation has hardly improved, as there has been very
little consideration by either the Lao or Cambodian governments regarding the
implications of the boundary for the Brao. There have been no attempts to reduce
the hardships associated with villages and families that have ended up on different
sides of the border due to various circumstances. For example, a system to allow
relatives and friends to visit each other has not been developed, and there is not a
20 Baird
border post where Brao people can legally cross from one side of the boundary to
the other in areas populated by the Brao.3 Instead, the nation-states of Laos and
Cambodia have created separate government administrations and separate nation-
alist discourses and practices that have, over time, given meaning to each country
and the international boundaries that are crucial for national identity politics.
Similar to what was reported by Baird (2007) in relation to the history of the
Ay Sa Rebellion in southern Laos in the early nineteenth century, memories of
important aspects of the process to establish the boundary between Laos and
Cambodia differ, often along ethnic lines. Many Khmer see the event as righting an
injustice from centuries ago (see Chhak, 1966); many Lao see it as unjust, since there
were so few Khmer living in Stung Treng at the time (Norindr, 1994); and the Brao
often see the event as separating relatives and friends.
While the international boundary has sometimes acted as a formidable barrier
to the movement of the Brao, the Brao have also often utilised the boundary – seen
here as a powerful and performative state administrative geographical imaginary –
in order to create new hybrid spaces of resistance against state powers. When
conditions in Cambodia have been deemed unfavourable, the Brao have often
crossed into Laos, and similarly, when conditions have been less advantageous in
Laos they have moved into Cambodia.
International boundaries and other kinds of boundaries are ubiquitous in all
societies (Migdal, 2004; Donnan & Wilson, 2001; Wilson & Donnan, 1998; Pellow,
1996; Sahlins, 1989). Although national boundaries as we know them today have a
shorter history than many other types of boundaries, they have certainly been
of great importance to organising and scaling global spaces in recent times.
Thongchai Winachakul (1994) significantly contributed to the study of international
boundaries by illustrating how national boundaries gained prominence in
mainland Southeast Asia during the nineteenth century as a result of contact
with English and French colonial powers, and quickly became a crucial tool for
producing and reproducing the “geobodies” of nation-states, including Siam, even
though it was not formally colonised.
Apart from national boundaries, Frederic Barth (1969) and his colleagues were
amongst the first to clearly illustrate the types of cultural boundaries that exist
between ethnic groups. Lawrence (1996) has helped to illustrate the multidimen-
sional nature of different kinds of boundaries, and Newman & Paasi (1998) have
shown us how boundaries are critical for the construction of socio-spatial identities,
and ideas about the “Us” and the “Other.”
Boundaries are varied. Some are physical; others are social barriers; some
are both. Boundaries occur in many forms, and all boundaries have different
characteristics, serve varying purposes, mean different things to people, and have
Spaces of Resistance 21
multiple effects. Some are open to some and impermeable to others. In some cases
tall fences may act as formidable physical boundaries, but without the ability
to restrict entry due to a lack of social legitimacy, or the inability to enforce it,
people may climb over the fences frequently without being sanctioned, thus
greatly reducing their real-life effects. In other cases, however, physical barriers
and markers to indicate that a boundary exists or to keep people from freely
crossing it may not exist, but the social conditions may make entry difficult or
even close to impossible for particular individuals and groups of people. While
boundaries are being increasingly viewed as inherently partial, flexible and fluid
(Migdal, 2004; Newman & Paasi, 1998; Pellow, 1996), they nevertheless remain
very important for determining how people organise spatially. While their allure of
grandeur may have eroded amongst geographers and other social scientists, who
are less likely to see them as being firm or fixed as in the past, boundaries remain a
fundamental part of everyone’s lives, and even if we now have better tools for
unpacking their meanings, they exist at so many different scales, and have been
created as a result of so many processes, that they are inevitably complex parts of
our social and spatial organisation.
Here, I am concerned with boundaries at two levels. The explicit topic of this
paper is the international boundary between Laos and Cambodia that was created
at the end of 1904, and made effective January 1, 1905 (Preston, 1975). However, I
am equally concerned with the types of boundaries that Pellow (1996), Lawrence
(1996), Migdal (2004) and others are concerned with: boundaries that regulate social
relations but are rarely if ever represented by cartographers on maps. I am
interested in how the international boundary between Laos and Cambodia has
been socially transformed by the Brao, who have interacted with the state-created
international boundary in ways that have transformed its meaning and created new
opportunities to produce spaces of resistance, albeit in various forms. While the
power of state-controlled institutions that Foucault made clear can never be denied
(Foucault, 1991[1978]), neither can the agency of people affected by institutions
(Bevir, 1999).
This paper briefly traces the history of ethnic Brao resistance as it relates
specifically to the international boundary. The boundary has sometimes separated
Brao populations in ways that are upsetting to them, by dividing families and
friends, but it has also made it possible for the Brao to position themselves at the
margins of different nation-states, in peripheral places where states are relatively
less powerful. Thus, the border has sometimes made it possible for the Brao to at
least temporarily exert their control over their own affairs, change their alliances, or
simply try to avoid state control.
22 Baird
Figure 1. Map of the eastern boundary between Laos and Cambodia, 2007
Spaces of Resistance 23
The Brao
The Brao are a diverse Mon-Khmer language-speaking ethnic group found mainly
in present-day Ratanakiri and Stung Treng provinces of northeastern Cambodia,
and Attapeu and Champasak provinces in southern Laos (see Figure 1).
Comprising a number of different sub-groups – the most prominent being the
Kreung, Brao Tanap, Umba, Kavet, Lun, Hamong, Ka-nying, and Jree (see Figure
2)—about half of the approximately 60,000 Brao people worldwide live in Laos
while the other half reside in Cambodia. There is just one Brao village in Vietnam,
itself only moving there in 1970 from Cambodia, during a time when the tri-border
area in Cambodia (known as the Dragon’s Tail) was being heavily carpet-bombed
by US B-52s and other bombers (Baird, 2008a; Shawcross, 1979).
of kilometres to the north of Khong, making Stung Treng that much more
marginal in relation to the national administration of Laos.
After the millenarian movement led by Ong Keo and Ong Kommadam ignited
conflict in the Bolaven Plateau west of the Sekong River in 1901, the Plateau
became a major headache for the French (Gunn, 2003 [1990]; Norindr, 1994). This
contributed to the opinion of some French officials that Stung Treng was too far
away from Vientiane for the French government of Laos to effectively administer.
The French hoped that they would gain more control over this remote and difficult
to govern region by transferring it to Cambodia (Breazeale, 2002).
Second, the French saw the region as very poorly serviced by roads and bridges,
and felt that the government in Phnom Penh had more financial resources than did
Vientiane to put into improving the infrastructure in the underdeveloped region
(Baird, 2008a).
Third, trade networks linked to Siam were of particular concern to French
authorities, who were eager to sever these links between Siam and the ethnic Lao
royalty in Champasak, which was on the west bank of the Mekong, and was
therefore still part of Siam until February 1904 (Grabowsky, 2004; Breazeale, 2002).
The French wanted to replace these trade links east of the Mekong River—
including in Stung Treng, Siem Pang and Veun Say—with new trade networks that
the French could control and tax more easily (Rathie, 2006). Extracting Stung Treng
from Laos was expected to help reduce the influence of Siam on the region by
adding a new layer of boundary as an obstacle between Siam and Stung Treng.
Fourth, Pierre Guesde and many other French officials viewed Bassac
(Champasak) and Khong as a malaise. Guesde lobbied strongly that Siem Pang
should be included in Cambodia, not Laos. Indicative of the general attitude of
many French to the Lao, in July 1904 French officials accused the Lao of being
parasites by feeding on the ignorance of the tribals and the “peaceful natural
harmony” of the Khmer (Martin Rathie, pers. comm. 2006). Clearly, the French were
friendlier with the Khmer than the Lao.
Fifth, Khmer kings in the French colonial “protectorate” had long claimed that
since the time of Angkor, Stung Treng had been part of Cambodia, and that it
should again be part of Cambodia rather than part of Laos (Guérin 2003; Chhak,
1966). As Paul Beau wrote, “The Cambodians will welcome this [extraction of Stung
Treng from Laos]. They have past national feelings and desires to regain past
power.”6 However, many Lao look to the past couple of centuries and believe that
the region should be part of Laos, and this view continues to exist amongst some,
even today.
Although Breazeale (2002) suggests that French administrators did not appreciate
the importance of ethnic Lao influence in the region since the mid-seventeenth
26 Baird
and eighteenth centuries, my archival research indicates that the French were
well aware of the Lao dominance of Stung Treng. Indicative of this, the French
continued to rely on ethnic Lao leaders long after Stung Treng was transferred
to Cambodia (Baird, 2008a; Guérin, 2003).7 For the Khmer kings, ancient history
was the most important justification, even if it was anachronistic. The real
demographic situation on the ground was of much less importance to them.
Moreover, the Khmer were upset with the French for not securing the return of the
territories of Siem Reap and Battambang from Siam (The Geographer, 1964; Tully,
1996). They argued that they should at least be compensated through having Stung
Treng attached to French Cambodia (Guérin, 2003). They got their wish, but when
they finally got Siem Reap and Battambang back from Siam just a few years later,
in 1907 (Grabowsky, 1997), there was no mention of returning Stung Treng to Laos.
The Khmer royals apparently had the ear of the French colonial government,8 at
least more so than the royals of Laos, especially in the south where relations
between the French and the Lao royals were not good, since many in Champasak
were closely aligned with the Siamese.9 Furthermore, the Lao royals from the south
remained in Siamese territory until just months before Stung Treng was detached
from Laos. The most senior Lao elites in the south were in no position to make any
vigorous arguments for keeping Stung Treng in Laos, thus creating a power
vacuum at the local level.10
To make matters worse, the decision was taken during a period when the French
administration in Laos was administratively weak, and unable to effectively argue
in favour of keeping Stung Treng in Laos (Breazeale, 2002). At least part of the
problem related to a personal conflict between Paul Beau, who replaced Paul
Doumer as the governor-general of Indochina in 1902, and Colonel Armand
Tournier, the Resident Superior of Laos between 1899 and 1903. Tournier had been
the commandant of Lower Laos, based on Khong Island, between 1895 and 1899,
and was a passionate opponent of the idea to dismember southern Laos. However,
a serious conflict between Tournier and Beau arose soon after Beau’s arrival in 1902.
Thus, Beau became opposed to Tournier’s position, largely due to their personal
conflict. In fact, the conflict became so serious that Tournier came to feel that his
position was untenable, and so he returned to France in 1903. However, for various
reasons he was not replaced until after he retired in 1906. Therefore, there was no
fully appointed and functioning Resident Superior of Laos during this period, only
an interim Resident Superior with limited powers. This situation made it relatively
easy for Beau and those who were less committed to Laos, to remove Stung Treng
(Breazeale, 2002).
Nevertheless, it is hard to know what the key justifications were, as Auguste
Pavie of the Pavie Mission had already proposed the idea to detach Stung Treng
Spaces of Resistance 27
from Laos a decade earlier, although his ideas at the time were not heeded (Chhak,
1966). It is likely that all of the above factors played a role in the final decision. Paul
Beau clearly failed to listen to objections from his subordinates, including Tournier
and others, who argued that most of the population of the area was either ethnic
Lao or highlanders, and had also not followed the correct French legal process for
making the change.11
Compare Figures 3 and 4, which illustrate how the spatial administration of the
region in question changed from 1899 to 1907.
Whatever the reasons for attaching Stung Treng to Cambodia, it was never a
priority of the French administration to strictly demarcate the new 547-kilometre
boundary between Laos and Cambodia, as both countries were part of French
Indochina (Breazeale, 2002; Prescott, 1975; Chhak, 1966). In fact, serious efforts were
not made to do so until the 1930s (Norindr, 1994), and it is unclear if the job was
ever fully completed. Bitard (1952) reported that there was still not a good map of
the border region in the late 1940s when he was posted in Veun Say. Nor was there
a good map showing the various villages in the region.12 However, despite a lack of
formal demarcation, in 1905 the boundary quickly took on real meaning for the
people living near it, as the French Lao and French Cambodian governments had
different policies and practices, thus making the side of the boundary that people
lived on significant in terms of their lives. As Ferguson & Gupta (2002) have
pointed out, international boundaries are not just created and enacted by the
centre and through big performative rituals and displays, although those are
undoubtedly crucial as well. States are also formed, and spatialised, through
everyday and sometimes mundane bureaucratic practices.
In 1905, taxes in Cambodian Stung Treng were considerably higher than those
across the border in Attapeu province. In Attapeu, men between 18 and 60 years of
age were supposed to pay one piastre a year in tax, but once in Cambodia it cost 2.5
piastre for men between 21 and 50 years, and 0.8 piastre for men between 50 and 59.
It also cost three piastre in Cambodia to buy one male adult out of having to
submit to corvée labour, whereas the cost was just two piastre in Attapeu. There
were also new land and rice taxes in Cambodia that did not exist in Laos, as well as
taxes for cutting trees to make boats, and for trading elephants. Of particular
importance, the tax for wielding firearms in Cambodia was 25 piastre, compared to
just one piastre in Laos. This generally upset the highlanders, including many Brao,
who needed guns to protect themselves from tigers and thieves (Tully, 1996; Guérin,
2003). Taxes were lower in Attapeu because the highland uprising in the Bolaven
Plateau resulted in the government not wanting to incite the local population by
charging high taxes. This situation quickly led to highland unrest on the Cambodia
side of the boundary, causing a number of Brao Kavet villages in Siem Pang to
cross over the boundary from Cambodia to Laos in 1906, 1909 and 1912 (Guérin,
2003). Khmer officials installed in government also had a difficult time gaining the
respect of highlanders or their former ethnic Lao overlords, thus creating much
dissatisfaction with Cambodian French administration (Guérin, 2003; Baird,
30 Baird
2008a).13
However, in 1913 unrest increased significantly in Brao areas of northeastern
Cambodia, partially due to particularly poor upland and lowland agricultural
harvests in 1912 (see Guérin, 2001), which accentuated resistance to taxation. This
unrest also coincided with violent revolt amongst non-Brao highlanders in Kratie
province to the south (Guérin, 2003). The French could ill-afford more military
conflict in the region, and in any case, they were spread thin in terms of their
military power, especially considering increased tensions in Europe that were to
lead to World War I. Therefore, on June 23 the French administration in Cambodia,
based on the recommendation of local officials, decided to appease the highlanders
in Stung Treng and Moulapoumok provinces by greatly relaxing tax and corvée
requirements. In fact, the changes were dramatic, and most taxes were eliminated.
The highlanders were only required to provide 15 days of corvée labour a year.
Moreover, in the past Brao villagers were often forced to travel many days to places
where they had to contribute their labour, thus increasing the actual time required
from 15 days to up to a month, when travel to and from the work was included. But
in June 1913 it was agreed that the people could serve their corvée near their
homes, thus significantly decreasing their burden. These changes made the tax
requirements of the highlanders much less than Lowland Khmer peasants at the
time. Furthermore, villages located in remote areas were often exempted from
providing anything to the French authorities (Guérin, 2003). Keeping the peace was
clearly seen as the top priority.
In many ways the situation in northeastern Cambodia was much like it had been
a decade earlier in southern Laos during the height of the Ong Keo- and Ong
Kommadam-led rebellion. In 1913, the French wanted to prevent the Brao, Jarai and
Tampuon peoples from rebelling as the Phnong and Stieng already had in Kratie
Province to the south, just as the French had kept taxes low in Attapeu during
the rebellion in neighbouring parts of the Bolaven Plateau at the beginning of the
twentieth century. This transformed the meaning of the boundary for many Brao,
and led to an influx of thousands of Brao from many villages in Attapeu from 1913
until the 1930s (Lebar et al. 1964; Baird, 2008a).
In addition, many Brao people, including some whole villages, moved back and
forth multiple times during the French colonial period, finding ways to confound
French administrators and the Lao and Khmer officials who were collaborating
with them, so that villages remained unknown to officials, thus preventing
attempts to collect any taxes during some years. Both sides of the boundary were
considered difficult to travel in, and were little known to the French (Maître, 1912;
Baird, 2008a). Importantly, the French government was weak in peripheral places
like southern Laos and northeastern Cambodia. They only maintained a skeletal
Spaces of Resistance 31
administration, including just a few French officials who had very little armed
support. The Brao also frequently tried to hide their villages by moving them to
remote locations and hiding the paths to them, so as to confuse colonial officials
(Baird, 2008a).
Many Brao were able to transform the geographical imaginative that constituted
the state-made boundary—which was of course designed by the French colonial
government to restrict and thus control the population—to their benefit, and to use
it in ways that paradoxically made it more difficult for the French to control the
movements of the Brao and force them to pay taxes and contribute corvée. Just as
the French had transformed the geographical imaginative of the landscapes long
inhabited by the Brao by establishing the boundary, so did the Brao create still
another hybrid geographical imaginative, one that did not ignore the French vision,
but instead incorporated new visions of space, ones constituted by resistance.
The French were, in fact, well aware of Brao attempts to manipulate the French
border to their benefit, and one French official suggested that the only way to
address the problem would be to again reorganise the administrative structure of
the region by combining the upland regions of southern Laos, northeastern
Cambodia and adjacent parts of Annam and Cochinchina under a single
administrative structure that could cross borders as easily as the Brao and
other highlanders, such as the Jarai.14 In addition, in the 1920s the Prince of
Luang Phrabang in Laos, Chao Phetxarat, who was generally sympathetic to
the highlanders, recommended to the French administration that he worked for
that an autonomous highland region be established for the highlands in southern
Laos, much as had been established in Tonkin, in order to appease rebellious
highlanders.15 However, neither of these ideas was ever implemented during the
French colonial period, and certainly neither was ever suggested during the age
of nationalism that followed.
Laos officially neutral, and especially after 1962 the US was very concerned not be
seen as violating Laos’ neutrality by basing US military personnel in Laos.
Therefore, they empowered the Central Intelligence Agency (CIA) to do the job
using small groups of American plain-clothed covert military advisors working
with mainly ethnic minorities recruited to work with them (Dommen, 2001;
Robbins, 2000[1988]; Eckhardt, 1999; Conboy, 1995; Blum, 1986).
In southeastern Attapeu Province, the CIA helped ethnic Brao allies secure a
particular area from communist infiltration, and by 1967 they had assigned two
American CIA officers to work in Attapeu and support Kong Mi, their stronghold
in southeastern Attapeu (Conboy, 1995), and named after a former Brao chief in the
area (Baird, 2008a).
The CIA started off by gathering Brao people in Attapeu into their stronghold at
Kong Mi, either by appealing to them, or by manipulating or coercing them. They
upgraded the airstrip at Kong Mi, and also supported planting a ring of land mines
around the perimeter of the approximately 5 x 5-km area (Baird, 2008a), thus
creating a formidable boundary between Kong Mi and the communist-controlled
areas surrounding it. Many Brao people started to work for the CIA as ‘road-
watchers’, assigned to monitor movements along the Sihanouk Trail in Laos. They
were airlifted to near the Trails by US aircraft and were left to collect data about
vehicle and troop movements along the road (Conboy, 1995; Baird, 2008a).
Apart from working to get Brao people in Laos to move into the Kong Mi area,
the CIA and Brao paramilitary soldiers started to look south to Cambodia as well,
into an area where by this time the Khmer Rouge were gaining increasing influence.
Using Kong Mi as a base, the CIA began to illegally send Brao paramilitary troops
across the border into Cambodia to convince or manipulate Brao populations across
the boundary to flee north and live at Kong Mi. Thus, many Brao Kavet and Brao
Umba people, including whole villages, crossed from Cambodia to Laos in the
latter part of the 1960s to escape from the increasingly dominant Khmer Rouge.
Most young men went to work with the CIA.
One of the things that attracted them to Kong Mi was that it was in the
mountains, and people were able to do swidden agriculture there. Soon half of
those at Kong Mi were Brao from Cambodia. Many believed that they would have
a better chance of being able to continue their lives in the mountains there than
if they stayed in Cambodia (Baird, 2008a). Once again, when the situation was
difficult in the south, the Brao willingly moved across the border to the north. The
boundary provided them with political options that would have not been available
had the international boundary not existed.
Spaces of Resistance 33
long-time Brao communists who had worked with Pol Pot in the mid-1960s, and
highly admired him at that time (Baird, 2008a; Colm, 1996). One village of Brao
Umba fled to Vietnam in 1973, but it was not until 1975 that a series of events
transpired that involved the Brao Umba communist leader Bun Mi, and eventually
led to over 3,000 Brao Umba, Lun and Kreung people, including almost the entire
population of present-day Taveng district, Ratanakiri province, fleeing on foot
through the forests to Vietnam and Laos. They first walked to the Vietnamese
boundary, where the Vietnamese, who were by this time well aware of the Khmer
Rouge’s harsh anti-Vietnamese rhetoric, welcomed them. Soon after, half of the
group separated and walked to Laos. Led by Khun and Khamteuang—the former
Brao Umba administrative commune chiefs under the Khmer Rouge in Taveng
Kroam and Taveng Leu communes—they were allowed to enter Laos as refugees.
Later in 1975 more Brao from Ratanakiri fled directly from Ratanakiri to Attapeu.
They were also accepted as refugees. According to the UNHCR, 10,400 Cambodians
fled to Laos as refugees in 1975 (Kiljunen 1984). A large portion of those were
ethnic Brao (Baird, 2008a).
they would be allowed to live freely and do swidden agriculture in the mountains
as they had always done since the time of their ancestors.
However, soon after those Brao stepped onto Cambodia soil, they learned that
they had been tricked, and were all escorted at gunpoint down to the lowlands and
into lowland cooperatives where they were forced to grow wet rice. Most were not
allowed to sleep even one night in the former territories in the mountains along
the boundary with Laos. Those who tried to hide along the border were similarly
forced to the lowlands. Conditions were very poor in the “cooperatives” in the
lowlands near the Sesan River, and those who complained were taken to the
forests and killed. Many more died of disease and hunger-related ailments. In
one particularly grisly incident, almost the whole population of the Brao Umba
village of Savanbao tried to escape from a cooperative along the Sesan River. They
were travelling north, on their way to the Laos border once again, when Khmer
Rouge soldiers caught up with them. Everyone was executed, including the
women, elders, and children (Baird, 2008a). Most of the Brao forced to live in the
cooperatives were not able to leave the cooperatives until the Vietnamese invaded
Cambodia and liberated them from Khmer Rouge.
early January 1979, many of those in FUNSK became political and military leaders
in the new Vietnamese-dominated government that replaced the Khmer Rouge, as
they were trusted more by the Vietnamese than other Cambodians who had lived
under the Khmer Rouge. Furthermore, by the early 1980s most of the Brao civilian
refugee population in Laos and Vietnam also returned to Cambodia (Baird, 2008a).
However, the invasion of Cambodia by the Vietnamese not only marked the
beginning of the return of Brao refugees from Laos to Cambodia, but it resulted in
many Brao people (especially those from the Kavet sub-group) who had lived in
Cambodia throughout the Khmer Rouge period, to flee to the Thai and Laos
borders with the Khmer Rouge to try to escape the Vietnamese. For example, some
Brao Kavet tried to reach Thailand by crossing through southern Laos and crossing
the Mekong River. Others crossed into Laos and became refugees. Thus, just as
some pro-Vietnamese Brao refugees were returning to Cambodia, others who were
aligned with the Khmer Rouge arrived in Laos (Baird, 2008a).
Some Brao did not actually cross into Laos, but stayed in remote areas along the
Laos-Cambodia boundary, where they continued to live as Khmer Rouge, running
from and occasionally fighting against Vietnamese forces and their Cambodian
government allies. The conditions were terrible. Some were killed in battle; many
more died of illnesses associated with poor conditions, including malnutrition.
They were living in the forest, always fearing Vietnamese attacks, and unable to
regularly practice swidden agriculture. They often felt like animals being hunted.
But the remoteness of the border region helped protect them. It was not until the
late 1980s that most of the Kavet living near the border surrendered to the
Cambodian government and moved to the lowlands (Baird, 2008a).
The last group of 34 ethnic Brao Kreung and Tampuon people who had been
hiding from Vietnamese soldiers in the forests along the Laos-Cambodia boundary
did not emerge in southern Laos until 2004, after which time they were deported
back to Ratanakiri. They did not know that the Vietnamese soldiers had already left
Cambodia 15 years earlier. They acknowledged that they had fled to the border
region to escape the Vietnamese (Phann & Purtill, 2004).
Discussion
Since the Laos–Cambodia boundary was established at the end of 1904, the Brao
have frequently fled to and across the border to try to escape from powers that
wanted to control them. These Brao have frequently transformed the geographical
imaginary, making unintended use of spaces established by the state to control
their movements. While they were not always successful in their efforts, they were
sometimes able to make use of the remoteness of the region, the “peripheralness”
of the border in relation to the capitals of both nation-states, and the difficult
Spaces of Resistance 37
terrain, to produce spaces of resistance for those who did not want outsiders to
interfere in their lives, or thought they would be better off on the other side of the
border.
While James Scott might call these spaces of resistance ‘non-state’ spaces (see
Scott 1998), since they have been created to stifle state control, I prefer to think of
them as fundamentally constituted by the state, even if they have been distorted
and appropriated by the Brao for their own purposes, and against the wishes of
nation states. My position is similar to the one argued by Tania Li (2001). It seems
that even in remote areas like those included in the Laos-Cambodia boundary
region, there are no spaces that are not somehow influenced by state power. In fact,
efforts to resist states through making use of the international boundary indicate
the power of states and the reasons why the Brao have often opposed them.
National boundaries are particular geographical imaginaries of the state that
are designed to extend state power within a particular territory. They are an
essential part of what Sack (1986) calls “territorialisation,” a process that inevitably
involves processes of “deterritorialisation” and “reterritorialisation.” The Brao
have, however, inserted their own geographical imaginaries, creating spaces of
resistance, but their imaginaries are not produced in a vacuum. Not only are
they affected by state power, but they are constituted by it, and therefore these
geographical imaginaries have not erased the international boundary, but have
instead recognised it while also performatively resisting the powers that created it
and transforming it into hybrid spaces constituted initially by state power, but
refigured through human agency.
As much as Michel Foucault’s ideas about disciplinary power and governmen-
tality are crucial for understanding how spaces are produced and reproduced
through the proliferation of power (Foucault 1991[1978]; 1979[1975]), Bevir (1999) is
right in pointing out that despite the importance of Foucault’s work, and its
continued usefulness, one of its weaknesses is that it did not sufficiently appreciate
the role that individuals and groups can play in bringing about change, even when
faced with overwhelming power. Human agency is important, even though this
does not refute Foucault’s ideas. It simply indicates the need for balance between
power and agency.
Conclusions
As Baud & Van Schendel (1997) have usefully pointed out, the creation of
international borders often has unexpected results, and the results of the
creation of the Laos-Cambodia border certainly illustrate this point. While
national governments can certainly have important effects on borders and those
affected by them, it is equally crucial to recognise the importance of local
38 Baird
circumstances, including the roles local bureaucracies and their various practices,
in affecting international boundaries.
Hopefully this paper has helped clarify the nature of the little-known eastern
part of the Laos-Cambodia boundary in relation to the ethnic Brao people who lived
near it and the ways that they have transformed imaginative geographies and
creatively reconfigured them to create new spaces of resistance. These spaces are
constituted by the state power vested in the creation of an international boundary,
but many Brao have been able to manipulate these spaces of state power for their
own purposes, to escape from those they did not like, and sometimes to gain a
certain level of autonomy through their appropriation. For most, the main
justification for crossing the border has been to gain more independence from state
power compared to what they were facing if they did not cross.
This paper demonstrates that boundaries or borders created by state geograph-
ical imaginaries are indeed constituted with state power, but that this power is
never monolithic or complete, thus allowing Brao people to transform state spaces
that both recognise boundaries established by state power, but have also been
defined by Brao geographical imaginaries, thus created complex and layered spaces
that bring both resistance and state power together.
Acknowledgements
Thanks to Keith Barney, Kennon Breazeale, Volker Grabowsky and Martin Rathie
for their useful comments on an earlier draft of this paper. However, the author
takes full responsibility for any errors that remain.
Spaces of Resistance 39
Notes
1. Beau, Paul and Broni 1904. New territory to Cambodia from Laos, Stung Treng.
Hanoi, December 4, 1904, Centre des Archives d’Outre-Mer (CAOM), Indochine
15104.
2. Despite both countries establishing a joint commission to clarify the border in
early 2000, with the goal of demarcating the boundary to the satisfaction of both
sides by the end of 2001 (Voice of America, 2000), at least three locations along
the border remain disputed. In addition, this paper also does not deal with the
circumstances surrounding recent efforts to establish protected areas along the
border, including Virachey National Park (see, instead, Baird, 2008a & c).
3. The only legal border-crossing between Laos and Cambodia is in the lowlands
near the Mekong River between Stung Treng province in Cambodia and
Champasak province in Laos, far to the west of where Brao people live.
4. Siam agreed to renounce claims to territories east of the Mekong River in October,
1893, following the “Pak Nam” incident (Breazeale, 2002).
5. Kennon Breazeale has pointed out (pers. comm., 2008) that there is little evidence
to suggest that French authorities in Paris had anything to do with the decision to
give Stung Treng to Cambodia. Instead, it was an initiative of the French Indochina
government that made the decision, without much involvement from “Paris.”
6. Beau, Paul. 1904. Rattachment au Cambodge de la province de Stung Treng de
fintant du Laos - arrete de 6 Decembre 1904 (1904-1905), June 24, 1904, CAOM
Indochine 15104.
7. For example, Ya Chao Tham (Chao Tham Phoui), an ethnic Lao nephew of the
King of Champasak (he was born in Champasak), continued to play a major role in
the governance of the region even after it became part of Cambodia. He was, for
example, appointed governor of Moulapoumok Province (presently much of
Ratanakiri Province) more than once after 1905, and his children and grandchildren
also held important political positions for decades afterwards (Guérin, 2003; Baird,
2008a).
8. With the exception of Prince Si Votha, who led a major revolt against the French
(Tully, 1996).
9. In fact, Auguste Pavie did not get on well with Chao Khamsouk, the king of
Champasak, the first time they met. He was much more favourable to the Luang
Phrabang royals (Pavie, 1999).
10. In February 1904, Champasak was ceded by the Siamese to French Laos
(Breazeale, 2002), but this change was apparently too late to allow the royals of
Champasak any real opportunity to influence the plans to transfer Stung Treng to
Cambodia. The Lao elite in Stung Treng, all of whom had close ties with the royal
family of Champasak, did not want Stung Treng to be transferred to Cambodia, but
40 Baird
their opinions apparently had little impact on the French (Martin Rathie, pers.
comm., 2008).
11. In fact, in 1915 a colonial inspection mission found that the processes of
territorial redistribution within French Indochina that largely took place during the
Paul Beau era, including the above changes and others not particularly relevant to
this paper, were largely incorrect, and they determined that the result was a
legal mess, in which documentation was incomplete and contradictory. The
mission also determined that decisions had been made arbitrarily and without
proper authority. However, the changes had been made, and by then it did not seem
realistic to reverse them. Thus, in September 1915 France ratified the earlier
territorial changes, but restricted the governor general of Indochina from making
any further changes without full authorisation from Paris (Breazeale, 2002).
12. Bitard (1952) was the first to attempt to create an ethno-linguistic map of the
Cambodian side of the border in Moulapoumok Province.
13. Pierre-Bernard Lafont reported that 3,000 Lave (Brao) crossed from Laos into
Cambodia in the 1920s and 1930s (Lebar et al. 1964).
14. Le Résident Superiéur au Cambodge, 1917. Situation politique de la haute
région des tribus Khas de Stung-Treng, le 29 juin, 1917, Phnom Penh, CAOM
Indochine 19175.
15. Chao Phetxarat, 1926. Correspondence No. 22 from Phetxarat at Thongvay Phou
Luong (in French), February 22, 1926, Résident Superiéur Laos, CAOM.
Spaces of Resistance 41
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44 Baird
This paper is about religious developments on the ethnic margins of Southeast Asia.
As elsewhere in much the developing world, the conversion to one of the world or
universal religions is a fundamental part of the changes now taking place among
many of the indigenous minority groups of Southeast Asia [SEA]. While scholars
and researchers have often described and sought to explain specific, countrywide
or regional developments in conversion among such peoples, no one to my
knowledge has attempted to deal with the entire region. This is where I aim to
make some contribution. I shall first discuss the changes, suggest why they are
taking place and then note their consequences.
Although information is uneven, the pattern of religious change seems fairly
clear. Before their conversion most of the interior and highland minority peoples
adhered to their own indigenous religious traditions. In contrast, the dominant
lowland and coastal peoples generally followed one of several universal or world
religions; that is, mainly Buddhism throughout most of mainland Southeast Asia
above Malaysia (or the far south of Thailand), Islam in Malaysia and Indonesia and
Christianity in the Philippines. Some of the indigenous minorities throughout
much of mainland Southeast Asia have converted to the religion that prevails
among the dominant lowland or coastal population of the country in question. For
example, some Karen and members of other highland minorities in Thailand have
become Buddhists. However, the general direction of change among the indigenous
minorities has been conversion to Christianity. In contrast, the loyalties of the
lowland peoples to the religious traditions to which they have long adhered have
changed relatively little. The same is true of much of insular SEA where the
dominant religion is Islam. In both Malaysian and Indonesian Borneo for example,
some Dayaks and members of other indigenous groups of the interior have
converted to Islam. Most, however, have become Christians of one sort or another.
Although again few specific numbers are available, the same appears to be true of
much of the rest of Indonesia outside of Java and Bali. In Indonesia, the government
requires that all inhabitants of the country adhere to a “monotheistic” religion,
which includes Islam, Christianity (Protestant or Roman Catholic), Hinduism,
Buddhism or Confucianism. While members of several indigenous minority
peoples in Indonesia have succeeded in having their religious practices officially
recognized as a version of “Hinduism,” most have accepted either Christianity or
46 Winzeler
Islam, and for the most part it has been the former.
One way of summarizing the general pattern of conversion in much of
Southeast Asia is to say that the indigenous minority peoples are mainly converting
to a religion other than that followed by the dominant people in the countries
concerned. From this perspective what is occurring seems somewhat paradoxical.
The separation between the indigenous minority groups and the dominant
lowland/coastal national populations has been declining through acculturation and
political and economic integration. Roads are being pushed into the forests and
mountains of the interior, national schools are being built all over, and the highland
and interior peoples are learning national languages. Many are living, working, or
trading in lowland and coastal regions, while lowlanders and coastal peoples are
moving into the interior and highlands in search of land or for other, mainly
economic, reasons. To varying extents and at different rates in different countries,
these changes are occurring in most regions. More specifically, the Philippines
appears to be the only major country in Southeast Asia that forms an exception to
the pattern. Because of early Spanish colonization, most of the peoples of the
Philippines north of Mindanao and other far southern islands have long been
Christian. In the Philippines, therefore indigenous-minority converts to
Christianity have entered the world religion that prevails among the national
majority, though differences between conversion to Protestant denominations as
opposed to the prevailing Roman Catholicism may be of some significance.
Leaving aside the (perhaps only partial) exception of the Philippines, it would
appear that ethnic considerations have influenced the pattern of conversion
that is taking place; that is, the minority peoples have tended to avoid embracing
the religion of the dominant majority because of negative associations and/or
because doing so would seem to them to lead to assimilation. Such considerations
are undoubtedly part of the explanation, but probably only part, and I shall discuss
other factors as well. Finally, ethnic considerations also loom large for an
understanding of the consequences of the processes of conversion. Put simply, are
the indigenous ethnic minorities helped or hindered in terms of their political
status and economic development by adopting a world religion that sets them
further apart from that of the dominant majority of the state in question? This is not
a question that is easily answered, and any answer may also vary from one region
or country to another and from one period in time to another. Observers who are
deeply sympathetic with the position of various minorities appear to be ambivalent.
But one highly knowledgeable authority takes the position that one major group in
one area at least have been hurt in the sense that their poverty and marginality have
been made worse as a consequence of becoming Christian, and his argument could
probably be extended to other groups as well.
Religious Conversion on the Ethnic Margins of Southeast Asia 47
but those that exist illustrate these points. A recent estimate regarding Laos, where
the spread of Christianity from the 1960’s to the present has been very restricted in
the ways noted above, suggests the number of Christians among the Hmong
amounts to between twelve to fifteen percent of the Hmong population (Ovesen
2004: 460). In contrast, for Thailand, where Christian proselytization in recent
decades has probably been less impeded than in any other country in mainland
Southeast Asia, an estimate published in 1995 (Keyes 1995), places the number of
Christians at between one-third and one-half of the population of all of the hill
tribes, and this portion has probably increased since then. In the case of the Karen
of Burma and Thailand, a recent estimate suggests that the majority of Karen in
Burma are Buddhists and that twenty percent are Christians, while in Thailand,
where Christianity and Buddhism are both widely received, Christians form
approximately ten percent of the population (Hayami and Darlington 2000: 141).
Whatever the number of Buddhists in Burma (about which accurate information
does not seem to exist), this estimate seems too low in the case of Christian Karen
in Thailand.
however, the conversion had already occurred, and it would be difficult to know if
the anticipation of material support was a factor or, if so, how important it was.
In the past, Christian missionaries throughout Southeast Asia often established
schools and hospitals to which people were attracted and for which they were
grateful. In the case of mission schools there is the opportunity of influencing
students.
The role of missions in providing medical services and education may have
been greater in the past than it has been in the recent period. Previously, Christian
mission schools and hospitals were all that existed in some regions. This is no
longer the case in most places but it probably continues to be so in some. In Borneo,
Dayaks who had been politically or economically successful often told me their
success was due to mission schools. And in West Kalimantan, Baptists run the
reputedly best hospital in the province. There is a strong mission presence in
some areas such as northern Thailand, but here and throughout many regions
government hospitals, clinics, and especially schools are now also widespread.
While I have never heard the phrase “Rice Buddhists” or “Rice Muslims,” the
notion that people may be attracted to material benefits that organized religions can
provide is not limited to mission Christianity. I have been told by individuals in
both Borneo and mainland SEA that they were drawn to Christian missions in order
to learn English or to gain an education. However, I also heard the same thing about
entering Buddhist monasteries by both Buddhist and non-Buddhist men in Laos. In
Laos, I was told of even more elementary practical motives for entering a
monastery. In southern Laos one man from an indigenous non-Buddhist ethnic
minority group told me that he and a friend were able to survive the civil war (and
get an education) only because they were taken into a monastery and put under its
protection.
As might be expected, conversion is often viewed critically or cynically by
others. In the interior of Borneo the occasional individual or village conversion to
Islam is sometimes seen by non-Muslims in this way; that is, becoming a
Muslim in Malaysian or Borneo or Brunei is interpreted as a strategy for obtaining
development assistance for a village, or for improving an individual’s prospects of
getting a desirable government job or improving the prospect for advancement in
one. The latter has also said to be the case in Kalimantan or Indonesian Borneo.
Scholars who have written about conversion among Hmong of northern
Thailand have stressed the importance of economic motives, though not to the
exclusion of others. Nicholas Tapp (1989: 100) notes the primary motivation for
Hmong to become Christian was to achieve some form of social or economic
advantage. This was shown by the many cases in which impoverished families or
individuals adopted Christianity in order to be sponsored educationally by
Religious Conversion on the Ethnic Margins of Southeast Asia 51
via a religious movement known as Bungan (named after Bungan Malam who was
a lesser goddess among the Kenyah until she was elevated to the main deity of the
movement). The movement was almost certainly provoked by Christian missionary
activity and formed an alternative to it. It was a reform movement rather than a
messianic or millennial one, for it mainly got rid of most of the taboos and much of
the ritual of the old religion without requiring conversion to Christianity. While
Bungan practices lasted a number of decades (and still survive in a few places), it
has generally been replaced as well by Christianity.
Mystical Appeals
In addition to such diverse materialistic attractions, the appeal of Christianity
among some groups has also been linked to indigenous mythical themes. In
northern mainland Southeast Asia the Hmong, the Karen and evidently other
highland indigenous minorities have similar myths that explain their status
regarding their more powerful lowland neighbors in terms of literacy, scripts or
books—the idea being that these were the key to wealth and power. In some sense
such notions are undoubtedly true, but in any case the myths tell how the scripts
and books were lost and how one day a mystical hero or heroes will return. In the
Karen version the creator deity Y’wa gives books to his children, each of whom is
the ancestor of a different ethnic group. The Karen foolishly let their books be eaten
by animals or destroyed by fire from their practice of shifting cultivation, hence
their inferiority to the Thai, Shan or Burmans who had kept their books. But
someday foreign brothers will come and bring back their magical books. When the
early Christian missionaries to the Karen learned all this they bought into it
themselves. They supposed that Y’wa was none other than Yahweh of the Old
Testament and the Karen were one of the lost tribes of Israel, and they associated
themselves with the mystical brothers who would return the Golden Book (Tapp
1989b: 76; Keys 1977). Tapp similarly attributes the messianic fervor that followed
the arrival of first Christian missionary among the Hmong in southern China to the
rumor that the missionary had a book meant for them and that he was in the
process of translating it into Hmong.
Although myths about the return of lost scripts and books were not involved,
Jennifer Connolly (2003: 205-211) argues in her study of conversion to Christianity
in East Kalimantan, Indonesdia, that many Dayaks attracted to Christianity were
seeking new forms of supernatural power. For them, at least, the great theological
claims were of less interest than practical applications. While the missionaries
stressed salvation as the ultimate and central purpose of conversion they also
offered prayer as a means of gaining divine help for their earthly concerns. Dayaks
were thus especially interested in stories about miracles and the possibilities of faith
Religious Conversion on the Ethnic Margins of Southeast Asia 53
healing—one of the few specific forms of material help modern Christians were
prepared to offer. Such observations fit with what was said at the outset—that for
people in Southeast Asia and many other places, religion has a strong practical side.
This is in accord with my own experience. Sometimes Bidayuh in Sarawak
(Malaysian Borneo) erect small wooden crosses in their swidden fields before
planting rice in them to help insure a successful crop. And a Dayak villager in West
Kalimantan, Indonesia once told me that he had made the right decision in
becoming a Baptist rather than a Catholic because the Baptist parts of the village
were getting better rice harvests than the Catholic one.
case of the Orang Asli (or Original People) in the interior of the Malaysian
Peninsula, according to Robert Dentan and Kirk Endicott (2004: 44-45), Muslim
Malays were permitted to proselytize among them, but were not encouraged to do
so. By 1968 only about three percent of the Orang Asli had converted to Islam.
After this time, the government began an effort to convert the Orang Asli, but after
thirty years of heavy proselytization only about 16% had become Muslim.
In the case of Thailand, several researchers have commented on efforts of the
government to promote conversion to Buddhism among the hill tribes (Gillogly
2004: 122; Keyes 1995: 261; Tapp 1989a: 5). Such efforts began in the 1960s, in part
as a result of a shift in policy towards integrating the highland minorities into the
national state. Encouraging the indigenous minorities to become Buddhist was seen
as a way of strengthening ties with them and increasing their loyalty to the nation.
By this time the Thai sangha had also become interested in spreading Buddhism to
the hill tribes and began to attempt to do so under the Thammacarik program
sponsored by the government. Although no figures are given, these accounts
suggest the effort had only limited success overall—though it did have some effect
among the Karen (Hayami 1996: 345-346). The possible reasons suggested for the
limited success of efforts to convert hill-tribe peoples are that it was “culturally
inappropriate,” or that the tribal peoples were too poor to build temples or support
monks. Tapp (1989a: 88) writes that “It is because the type of Buddhism presented
to the Hmong and other ethnic minorities is so closely associated with the
fundamental values and orientations of Thai Society that it has largely failed to be
adopted by them in any widespread or meaningful sense.”
The same sort of government effort to promote Buddhism among non-Buddhist
minorities is reported to have been made in Burma, although in a much more
heavy-handed manner. Here, according to a recent account, the government has
been attempting to disrupt the practice of Christianity among some groups, and of
Islam among others, by closing religious schools operated by the adherents of
these religions, and by preventing people from attending religious services or from
proselytizing, while promoting the construction of Buddhist monastic schools in
minority areas. Also, reports of forced conversion to Buddhism by the army
have been noted (Lambrecht 2004: 163). Of course, these governmental efforts to
promote Buddhism among non-Buddhist minorities took place before Burmese
Buddhist monks began to openly oppose and confront the government on a
massive scale in 2007.
Throughout Southeast Asia, the indigenous peoples of the mountains and
forests of the borderlands of the mainland countries and of the interior of the
islands of the insular countries have become “national minorities” in a way that
they previously were not (Duncan 2004). Though never completely isolated, they
Religious Conversion on the Ethnic Margins of Southeast Asia 55
have also become much more involved with and knowledgeable of the countries in
which they live and of the wider world. Traditionally looked down upon by the
dominant society as backward and primitive, if also sometimes fierce, as reflected
in the widespread use of terms like “savage” and “slave” to refer to them, their
status in the national societies is still often not high. For various reasons the
indigenous minorities do not want to give up their identity or their “culture.” But
they do want to raise the respect they get and to improve their economic fortunes
and gain the other benefits of development. Conversion to Christianity is therefore
attractive in several ways apart from the material benefits and support discussed
earlier. First, it gives them a real, named religion, since their traditional religion of
“animism” is often not regarded as a religion (in Indonesia this is officially so).
Second, it gives them a religion that does not lead to assimilation, as the adoption
of Buddhism is assumed to do in Thailand or as Islam is assumed to do in Malaysia.
And third, Christianity gives them a prestigious religion, one on at least the same
level as Buddhism or Islam, in the sense that Christianity is the religion of the rich,
powerful and developed western world.
The fact that Christianity is linked to colonialism is probably not a matter of
much negative concern to the indigenous minorities in Southeast Asia to the extent
that they are even aware of such a thing. According to Tapp (1989b: 77) Hmong
Christians now believe they have always been Christian, their old myth of the loss
of their books having been forgotten or disregarded. But even if they are aware, it
probably does not matter. Many Westerners and Southeast Asians view colonialism
as a form of oppression from which liberation was a great national achievement. It
does not seem to be widely known that the indigenous minorities do not always
view things this way. A friend of mine who was a Christian Dayak schoolteacher in
Sarawak once told me that he had said to some Malay schoolteachers when they
were critical of British colonial rule that Sarawak was now a colony of west
Malaysia. Some Dayaks have a cultural view of the colonial period in Sarawak
as a sort of golden age, despite the fact that some of them had fought against the
colonial takeover and had remained rebels throughout much of the colonial period.
The Orang Asli of peninsular Malaysia appear to regard the colonial period as one
in which the British were their friends and protectors, who reduced or ended
Malay slave raiding among them; in contrast, they see the postcolonial period of
independence and development as one in which they are treated badly in regard to
land rights and pressured by the government to become Muslims and assimilate
into Malay society (Dentan, et. al, 1997). Farther to the north, in mainland Southeast
Asia, some indigenous minorities formed close relations with colonial rulers—the
Karen in Burma being a well-known example.
56 Winzeler
well as the use of alcohol, which the Protestants did not. As a consequence of these
differences, conversion to Protestantism has been more stressful. And this in turn,
Tapp argues, is linked to a greater likelihood of messianic religious movements
among the Hmong who have been proselytized by Protestants rather than by
Catholics.
Such differences in the nature and consequences of Protestant versus Catholic
mission efforts among the Hmong seem similar to what has taken place in Borneo,
according to my knowledge. Here also Roman Catholicism is widely associated
with a greater tolerance of traditional religious beliefs and practices, and beyond
this with a positive encouragement for Dayaks to continue or perpetuate or
revive much of their rituals and culture. This can be seen in various places in the
interior, especially in the elaborate artwork to be found in some Kenyah and
Kayan longhouses, mortuary structures, and churches in Sarawak and Kalimantan,
which I have described elsewhere (Winzeler 2004). The interior of the old Catholic
church at Long San on the upper Baram River in central Sarawak was covered with
spectacular Kenyah painted spirals and whorls and the main crucifix showed Christ
in a Dayak loincloth and ceremonial helmet. You can (or could) also find upriver
Kenyah and Kayan longhouse murals showing Christ on the Cross flanked by
dragons making offerings of flowers. And on the middle Mahakam River in East
Kalimantan (Indonesian Borneo) I also once witnessed a traditional funeral for a
Dayak Catholic teacher which culminated in a water buffalo sacrifice and the dab-
bing of blood on a post carved as an idol. Afterward I talked to the French priest
who was present and asked him what he thought of the funeral; he said that he did
not approve of all the drinking and gambling that was going on but that otherwise
the ceremony was interesting and that he planned to write about it. On another
occasion I talked to a Catholic priest in Kuching, Sarawak, who had recently
transferred downriver after many years on the upper Baram, where he had been
much loved by his Dayak parishioners. He told me that all that was really
important was to be a Christian, and that what the Dayaks continued to believe and
practice from their old religion was secondary.
However, there are also differences from one area to another that seem to be
associated with when people converted. The Catholic Bidayuh in far western
Sarawak retained much less of their old religion and culture than had some Dayak
groups in central Borneo. This may have been in part a result of the length of time
these Bidayuh had been Catholic and the extent to which they had been influenced
by other modernizing influences. However, my Bidayuh Catholic friends also said
that when they had been converted the missionaries had been too strict about
getting rid of their old practices. They now regarded themselves as devout
Catholics, but expressed some bitterness about having to give up things like
Religious Conversion on the Ethnic Margins of Southeast Asia 59
playing drums and gongs that were not necessarily wrong from the perspective of
religion. Now they were free to play drums and gongs and were making an
effort to use these and other traditional things in religious ceremonies, but the
young people were not much interested and much of the old culture was gone and
beyond recovery.
The question of why some Karen have chosen Buddhism and others Christianity
(and she does not offer even rough estimates of how many have done each) is a
matter of local history and circumstances: close geographical links and good
relations with local Thais, or the influence of charismatic Thai Buddhist monks in
some places but not others, and so forth.
Nicholas Tapp (1989b) is more positive about the effects of conversion to
Catholicism than to Protestantism among the Hmong, but he is ambivalent about
the eventual consequences of either. He notes that early in the twentieth century in
southeastern China, conversion to Christianity helped raise the status of the Hmong
and end the abuse of the Hmong by the more powerful Yee and Han Chinese
landlords, but eventually this led to a backlash and repression by the Chinese
government, which presumably left them even worse off and led to millenarian
movements. More generally, he argues that conversion has led to the further
marginalization of the Hmong in Southeast Asia.
In China, Tapp (1989b: 78) points out, the minorities are among the poorest
peoples in a poor country, and the Hmong are among the poorest of the minorities.
Thus enhancing ethnic identity and marginalization from the dominant majority
may not necessarily be a good thing for a people living close to the economic
margins and lacking food security. This interpretation, however, seems more
questionable when applied to the Hmong in the Southeast Asian countries. For one
thing, it seems difficult to separate the effect of conversion from other changes that
have affected the Hmong. In Thailand these include the reduction in their isolation,
the end of opium growing, and the efforts of governments to reduce or end slash
and burn cultivation, all of which appear to have affected the status of the Hmong
in the view of the lowland Thais. Or in Laos there is the fact that many Hmong
fought with the Americans against the communists who won and now control the
government. Further, in Thailand the issue of conversion involves the question of
whether to convert at all and, if so, to Christianity or Buddhism, whereas in China
and in Vietnam, Buddhism does not appear to be part of the equation.
The question of the extent to which conversion to Christianity is a positive
development has also been raised in regard to the Dayaks of Indonesian Borneo,
specifically those of East Kalimantan, by Jennifer Connolly (2003). This question is
also applicable to other regions of Borneo and, for that matter, to other indigenous
minorities of Indonesia and Malaysia as well. Throughout these regions the
indigenous minorities of the interior face or have faced the same range of choices
as have those of Thailand and other predominantly Buddhist countries of the
mainland; that is, whether to convert at all, and if so to which religion. And again
the pressure to convert (or in Indonesia to have their own religion officially
declared a form of Hinduism) is such that remaining outside of a world religion will
Religious Conversion on the Ethnic Margins of Southeast Asia 61
generally not remain an option for much longer. However, the question of whether
to convert to Islam or to some version of Christianity remains and is important.
After reviewing the choices facing the Dayaks, Connolly (2003: 304) concludes that
while Christianity is risky, given their circumstances, it may be the only real option.
In Malaysian the situation is different both from the national perspective as well
as from that of local regions. Here, there are no official national requirements
that all citizens must adhere to a recognized monotheistic religion. The national
government is controlled by Malays, has Islam as the official religion, and would
like to further Islamize the country. Yet the government is also committed to
economic development and political stability, especially ethnic and religious
stability, and has never had the degree or severity of religious strife that has taken
place in Indonesia in recent decades. And, while the Malays form one half of the
population, the Chinese, Indians and various indigenous and other minorities—
most of whom are non-Muslim—form the other half. The Malays continue to be
officially favored but it is because they are bumiputera (native sons) not simply
because they are Muslims, which means that their favored status is based on birth
and cannot be gained by conversion to Islam. Further, the indigenous minorities
are also supposed to have the same special rights as the Malays whether or not
they are Muslim, all of which lessens pressures to convert, at least official
governmental ones. While as noted above, the government has brought pressure
on the indigenous Orang Asli groups in Peninsular Malaysia to convert, it has not
been very successful (Dentan, et al.). In Malaysian Borneo the national government
has far less leverage over the indigenous minority populations than it has over the
Orang Asli or than the Indonesian government has over the Dayak populations. In
Sarawak, Dayaks considerably outnumber Malays and if their numbers are added
to those of the Chinese, who are also numerically very large (not to mention very
economically powerful) in relative terms, Muslims are greatly outnumbered by
non-Muslims. The national Malaysian government is run by Malays who would
like to promote the further spread of Islam in Sarawak and make efforts to do
so. But since migration from peninsular Malaysia to Sarawak is restricted by the
original terms of federation, and since the ruling national party’s political control of
the state depends upon the inclusion of both Dayak and Chinese parties, there is not
a great deal they can do. Here also, however, the main choice for those Dayaks
wishing to be modern or to receive the benefits of development will not be whether
or not to convert, but whether to become Muslim or Christian. Most of them, as
noted, choose Christianity.
62 Winzeler
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Religious Conversion on the Ethnic Margins of Southeast Asia 63
Introduction
In Cambodia, many women deliver their babies at home with the assistance of a
traditional midwife, or contact her at least once before, during or after giving birth.
This is particularly the case for indigenous people. For the Bunong, one of the
indigenous minorities in the north east of Cambodia, traditional midwives, or
kru njut ndüll – the traditional healer who holds the belly1 – have offered their
services to pregnant women and mothers as far back as people can remember.
Accordingly, there is no doubt that the traditional midwives play an integral part
during pregnancy, delivery and the time of early motherhood. In general, their role
is to take care of mothers as soon as labour starts, to massage their abdomen, to cut
the umbilical cord, to wait for the placenta to be expelled, to advise the women to
drink traditional medicine and to eat the right food. She will prepare weng oing,
the fire that warms the woman’s body, and will visit her regularly during the first
few days after she gives birth. Prenatal visits are only carried out in case of
problems and pain. The traditional midwife is usually a relative or a close friend of
the family, and needs to be informed a few weeks before the couple would like to
call on her skills for the upcoming event.
The high level of activity of traditional midwives is reflected in official statistics.
According to the most recent Cambodian Demographic and Health Survey (CDHS,
2006: 144-145) conducted in 2005, 83.2% of the deliveries in Mondulkiri are assisted
by traditional midwives and 90.6% of newborns are delivered at home.2 These
numbers might be even higher if they focused solely on the Bunong. A study by the
international NGO, Health Unlimited (HU), in Ratanakiri Province showed
that 99% of the interviewed village women gave birth with the assistance of a
traditional midwife or a family member (HU, 2006: 13). Unfortunately, similar
studies are lacking in Mondulkiri. The end of the midwife’s services that she
offers during pregnancy, delivery and early motherhood is usually marked
with a ceremony. This paper looks more closely at this ceremony and at the
status of traditional midwives within Bunong communities in Mondulkiri
Province, Cambodia.
The Ministry of Health’s position is in line “with the most recent trend at WHO
and UNICEF toward diminished support for traditional midwives coupled with
increased support for professional midwives” (Davis-Floyd 2003: 6). “[S]afe
motherhood initiatives worldwide are based on the premise that pregnancy,
childbirth and postpartum care are safer when provided by skilled birth attendants
Women, pregnancy and health 67
components, the economic, material, and political factors must be joined for a
full-scale understanding of behavioural patterns, in the present case the under-
standing of treatment-seeking behaviour and decision-making processes (ibid:161).
The term “traditional birth attendant” – as it is introduced by the WHO and
taken over by development workers – implies that these women form a
homogeneous category. However, variations exist even within one country, not
only in what these women actually do, but in the nature of their relationship to
the women they assist (Pigg 1998:10). The only real unity among them is their
international classification as “traditional birth attendants” (Davis-Floyd 2003:4).
Although such variations are sometimes recognized by researchers and health
planners, and attempts are made to understand the full medical and social
significance of the ideas and practices, national programs such as TBA trainings are
always designed to contain a certain amount of generalizations and are structured
so as to systematically remake the trainees in the image of the midwife.
and their decision-making processes, and to identify the resources mobilized and
the social networks engaged when dealing with a delivery. To get a broader idea of
the present practices, beliefs and perceptions, semi-structured interviews are
conducted among the villagers in the respective villages. These surveys include
more general questions about health and illness, with the specific focus being
on pregnancy, delivery and motherhood. Besides this research in the selected
villages, key informant and expert interviews were carried out, for example,
with “professional” midwives in the health posts and health centres, with people
from the referral hospital in Sen Monorom, and with representatives from
governmental institutions and NGOs that are working on maternal and child
health issues.
The villages where the research was carried out were chosen according to
different locations and access conditions to public health services and facilities.
Lauka is the closest village to the provincial capital6 and can be reached within ten
minutes by motorbike. The road condition is good all year around and there exists
no public health facility in the village. Roveak, on the other hand, is the most remote
of the places selected. In dry season, it can be reached by motorbike within five
hours (approximately one hour to the next health centre/ health post). In the rainy
season, it takes at least eight hours to get from the provincial capital to Roveak. In
all of the sites chosen, indigenous people are in the majority.
Bunong communities
The research was carried out in Mondulkiri province, which is located in the
eastern highland region of Cambodia, bordered by Vietnam to the east and to the
south. It has a population of around 49,000 inhabitants and covers 14,682 km² of
land, which largely consists of forest landscape.7 The roads are often very poor.
Most of the villages are remote and isolated and therefore difficult to access,
especially during the wet season. According to the latest numbers from the
Department of Planning for 2006, approximately 60% of people in Mondulkiri
province belong to an indigenous group. Most of them are Bunong (54%). Stieng,
Kreung, Kraowl and Tampuan make up 1% or less, ethnic Khmers 34%, Cham 4%
and Lao 2% of the population. Sen Monorom is the provincial capital, inhabited by
approximately 7,000 people.
The Bunong are mainly subsistence farmers. Like other indigenous groups, they
traditionally practice swidden agriculture, gather forest products for food and sale,
raise livestock, and practice fishing and hunting. Today, they still carry out these
activities, but some people pursue them more intensively, due to technological,
economic or environmental developments and changes. Nevertheless, the Bunong
are largely dependent on access to natural resources. Guérin (2003) states the
Women, pregnancy and health 71
following:
The primary resource of the Mnong is the forest, from which they draw almost every-
thing of what they need. The ethnologists speak of “society of vegetation” to mark the
overlap of human social life in the framework of the forest, more or less cultivated, and
perceived by some groups as controlled by supernatural powers (p.19).8
Research shows that resin tapping is the main income source of the Bunong
(Evans et. al., 2003). Most Bunong families farm hill rice as their main form of
agriculture, often inter-cropped with a wide variety of vegetables, though in areas
where paddy rice cultivation is possible it is often adopted.
The traditional belief system of the Bunong is animism. They believe in
spiritual forces which are present in the natural environment – like the forest, sky,
earth, hills, stones, water and rice, as well in the houses and household items
like jars. These spirits have the power to influence the health, well-being and
prosperity of the villagers (White, 1996; Bequette, 2004) and play an important role
during pregnancy, delivery and early motherhood, as these periods are considered
very dangerous in terms of spiritual activity (White, 1995: 60). The spirits of the
ancestors are highly respected as well, and have the power to protect or to harm
people. Therefore, a wide variety of ceremonies are carried out to appease these
various spirits.
Typically, villages are autonomous, self-governing entities where village elders
exert traditional jurisdiction. A settlement has two to five elders, who are known
for their skills in conflict resolution, are asked for their advice, implement
customary law, and can be distinguished from other villagers by their
understanding and comprehension of Bunong culture. People respect and trust
the elders and they influence village life, but their authority is not absolute (Leclère,
1908; Guérin 2003). Customary law governs different aspects of life, such as social
and economic behaviour, and is coupled with obligations to the spirits and to the
ancestors (White, 1996: 353). This is key to upholding community harmony and
traditions. Harmony must be maintained with the world of the spirits. For this
reason, the traditional legal system still works, because people believe that the
spirits will know if a person is not telling the truth or lying in front of the elders,
who are linked with the spirits and can bring great misfortune to a dishonest
person. But traditional leadership and arbitration of conflicts has been and remains
largely in the hands of men (Ironside, 2007). Even though the Bunong, like other
indigenous communities in north-eastern Cambodia, are highly egalitarian in many
ways, there exists a strong gender division regarding certain areas, tasks and
activities in daily life (Berg, 1999: 3). Women and girls are much more involved in
reproductive activities9 than men, but at the same time are taking care of many
72 Nikles
agricultural tasks that leads to a heavier workload and less free time for women.
The general level of education among the Bunong is low and is even lower among
women. Wealth is traditionally controlled by the wife’s family. However, nowadays,
men individually have more control over their money. They engage more often in
wage labour, market transactions (selling resin, wild animals or land) and therefore
have assumed greater control over many high value resources (Bequette, 2004).
The relationship between men and women here is based on the desire for
solidarity, especially as they face a harsh and challenging environment. “Solidarity
is aimed first at the survival of their family, kinship and group, leaving little room
for more mundane considerations” (Maffi, 2006: 72). Despite the gender division of
labour, men and women interact as equal, behave as full members of the same
community and share the same space without any sign of one gender being
submissive to the other. “The indigenous society as a whole does not seem to share
the same misogynistic trends that characterise Khmer culture” (ibid: 75).
To summarise, women do have influential roles in the community, such as
spirit women and healers, traditional midwives and as the head of the family.10
Spirit women are usually selected by the spirits through dreams; they are able to
cure sickness caused by spirits and black magic or any other kind of inexplicable
illness. As head of the family, the woman is responsible for looking after children,
collecting firewood, cooking, fetching water, managing the family’s property,
leading the family level ceremonies, and controlling the family members (Ironside,
2007).
Nevertheless, the fast-changing environment is strongly affecting indigenous
women. “Indigenous women have been forced to find new sources of livelihood
and have multiplied their activities and intensified their work and skills. The
system of belief, their identity and their social status within the communities have
been strongly shaken by these changes” (Maffi, 2006: 7). At the same time, a
generalized trend toward the disruption of solidarity links between men and
women has been noted. The status of indigenous women is transforming, even
though the consequences of this remain to be fully understood. As mentioned
before, the kru njut ndüll, the traditional midwife, takes over a central role for
women and their families in Bunong communities before, during and after
childbirth. In order to understand her roles and responsibilities better, the
ethnography of the ceremony in honour of her is briefly recounted below.
manner. The wife Peng, mother of four children, is sitting on her bed, separated by a
few wooden boards from the rest of the room, holding her three-day old son in her
arms. Today, the ceremony for the kru njut ndüll, the traditional midwife, is taking place.
It is also time to stop weng oing,11 the roasting. kru njut ndüll means lighting a fire under
or next to the mother’s bed after delivery for around three or four days, or, depending
on her health status, even longer. Around her, the preparations are going full steam
ahead. Her sister is chopping vegetables, her husband is plucking the chickens, and a
few children are looking after the fire in front of the house where a big pot full of water
is boiling to cook the chickens. People arrive; three wine jars are placed next to the wall
and filled up with water. Chuch Den, the kru njut ndüll, is laughing; she assisted the
delivery together with another midwife. Because labour lasted for many hours, Cam,
the husband, called the second one after a while. However, Chuch Den was also
the one who looked after the mother during weng oing. During these three days of
weng oing, the mother and her baby are especially vulnerable to any kind of spirit
intervention. In particular ndreng ong, the fire spirit, is feared, as this spirit can cause
the mother and her baby to die if he enters their bodies. To prevent any kind of spirit
interference, a ceremony is usually done before the delivery, during the mother’s eighth
month of pregnancy. Despite this protection ceremony, it is absolutely necessary that
the midwife and the husband always be around the mother and her child after she gives
birth, to take care of them. So today is the time to repay the midwives’ services by
arranging the ceremony. Besides the kru njut ndüll, relatives and friends are invited to
join the celebration. As visitors arrive, they are offered sra sor, glasses of alcohol which
are empty quickly. The smell of food spreads throughout the room, plates are filled up
with rice, and more alcohol is served, this time from the wine jars. But before opening
the jars, it is necessary to pray to the spirits, to thank them for their help and support.
Cam prays loudly together with a few relatives, offers a small part of the chicken to the
spirits and spreads some drops of blood on the pot. Next, the visitors are invited to drink
rice wine with a straw out of the jars and as soon as everybody has arrived, people start
to eat. After the feast, bowls of uncooked rice with money on top are prepared and
handed over by Cam to the midwives, their husbands and to the relatives who were
present during the delivery. The mother joins the group and sits down with her son in
her arms. It is the first time since her delivery that she leaves her bed. The visitors start
to bless the baby by tying a string with some money around his wrist which was dipped
in blood and wine, and wish the baby good health, a lucky and wealthy life. Peng starts
to recall her experiences and memories from the delivery, telling those present how she
felt, what she did and who came to help her. The atmosphere is very cheerful and
happy. The party goes on for hours, but even though the ceremony will be completed
soon, Peng is still not able to leave the house for another five days. Her body is not
dried yet, an expression that refers to her bleeding, which means that she could attract
74 Nikles
the spirits’ attention to her, putting everybody in the village in great danger of death.
As soon as the midwife arrives at the woman’s house or birthing hut, she will
start to check her abdomen, massage it and give her traditional medicine to drink.
She will ask the husband to boil water; she will put a string from wall to wall where
the mother can pull herself up during her pains; and she will wash her and clean
the bed. After the baby is born, the umbilical cord is cut with a blade and tied with
cotton and strings. The placenta is buried next to the house to prevent animals from
eating it. Some people use a special hut for the delivery that is built a few weeks
before, and where the woman will stay until she is allowed to go outside again and
return to her house. Losing blood after the delivery can still attract the spirits and
put the woman in danger. The use of a birthing hut is not practised by everybody
in the same way. Some people move to this hut, which is usually situated next to
their house, only for the birth itself, and as soon as the baby is delivered they return
to their home. Others stay in the hut for several days, together with their husband
and children. The reasons for using a birthing hut are various: Depending on the
family size, a couple sometimes prefers to have a quiet place. It is very common
to have up to ten people living in the same house and, often, they do not have
separate bedrooms, but all sleep in the same room, only using curtains to have
some privacy. Other people reported that giving birth in the house could cause
problems with the house spirits, as they do not like to be disturbed; therefore, they
would use a birthing hut. Occasionally villagers do not dare to go inside and visit
the mother and baby if she stays in the main house for fear of the spirits. Therefore,
the birthing hut is seen by some people as a place where there is less potential for
76 Nikles
facility for the husband or other relatives. However, if this is compared with the
costs of a ceremony for the traditional midwife, which includes 20’000 – 30’000 Riel
(5 - 7.5 US$) for the midwives, small amounts of money for relatives present during
the delivery, a pig and/ or a few chickens, the jars of rice wine, the local distilled
wine and the food provided for the visitors, it can be estimated that a delivery
carried out in the village is more expensive than one in the hospital. One can argue
that this preference relates to the problem of accessibility, as roads are often poor
and it is difficult for a woman in labour to travel long distances. But in fact, if
women do give birth at the health facility, they will still perform a ceremony after
returning home. Therefore, the choice of the place has no impact on whether a
family carries out a ceremony or not; they will do it in any case. As a result, the
expenses are higher if visiting the health facility because costs are almost doubled
when including the ceremony once returning home. This situation certainly affects
decision-making regarding delivery choices; however the beliefs and practices
surrounding the spirit world are even more significant factors.
prevent spirits from entering her body, making her physically and mentally sick or
leading to death. One protection ceremony is carried out in the eighth month of
pregnancy, where the kru boran (traditional healer) or the traditional midwife
ties strings around the woman’s wrists, ankles, waist and neck. At the time of
the delivery, a few branches of thorn bushes are put under the bed, under the house
or next to it to avoid the appearance of spirits, as they like to eat the blood that
might have dropped down during delivery. The protection from the strings is often
renewed a few days after the child is born, by tying new strings around the
mother’s body.
One of the spirits that is feared the most is ndreng oing, the fire spirit. It is the
one that is primarily present during the delivery and the phase of weng oing, as the
fire is constantly burning. If this spirit enters the mother’s body, people reported
that she will fall unconscious, talk in a strange way as being another person, walk
around in the birthing hut or the house and she will be in great risk of death. One
woman interviewed in Sen Monorom recounted a time when a woman tried to pour
petrol onto the fire at that state. It was also reported that if the fire spirit appears,
the mother will see a rainbow or a flame. The ndreng oing can only be seen by the
women giving birth and is not visible to any other person. Yet having the fire is
obligatory, as the mother depends on it to recover from the strain of labour. The
fire-wood needs to be selected carefully, as certain kinds of wood are more likely to
draw the attention of the fire spirits. For this reason the fire is not only beneficial
but, at the same time, precarious if not watched carefully. Therefore the husband
and the traditional midwife, who are not at risk from these spirits, are around the
mother all the time and should never leave her alone. Besides the protection
through the strings, there is another way to keep the fire spirit away during
delivery. The kru hom17 chews on a piece of kun18 (a kind of ginger) and spits it on
the mother’s forehead which will keep the fire spirit away. Various types of kuns
exist that are used in different ways and for numerous reasons. Some of them are
used for ‘simple’ diseases such as fever, headache, stomach pains etc. and some of
them only if spirits or black magic are involved (Schmitt, 2004: 59; Crochet 2005).
The mother is not allowed to leave the house for about ten days after the
delivery, especially not to wash herself or her clothes next to a well, pond or river.
Her blood would contaminate the water sources, anger the spirits and attract their
attention. “The mother can only leave her house and wash herself at the well when
her body is dried and not weak anymore,” as one villager stated. But she is allowed
to receive visitors in her home and contact with her is not considered dangerous for
them. To wash, hot water is used together with sour leaves that are believed to have
a revitalizing effect on her body. These spiritual beliefs play a strong role in the
decision-making processes of villagers when they decide where to give birth, who
Women, pregnancy and health 79
Discussion
The ceremony for the traditional midwife is an important event. First, it is necessary
to repay the midwife for all her time and skills used during pregnancy, delivery and
early motherhood. During that time, she is a central person for the family and the
woman. She contributes to the woman’s and baby’s wellbeing, makes them feel
comfortable, creates a space of intimacy for them and advises on medicine, food
and drink. Even though the traditional midwives interviewed share some general
characteristics in how they assist a delivery, they do have different levels of
expertise, functions and roles. This heterogeneity in the roles of people who
provide birth assistance has already been demonstrated in previous
80 Nikles
low trust in these “modern” systems, as well as in the “professional” staff members
themselves, and other economic and financial constraints, such as the necessary
expenses to stay in the hospital or health centre coupled with the additional
ceremony back at home.
It is well known that the majority of women in Mondulkiri prefer to deliver at
home. Different agents in this area have tried to deal with ‘traditional birth
attendants’ by developing training programs and giving education in safe delivery
practices, prenatal and postnatal care.20 However, little information exists about the
Bunong’s customs, beliefs and perceptions regarding pregnancy, delivery and early
motherhood. Attempting to estimate the impact that TBA training has had on the
traditional midwifes’ practices and behaviours is difficult. Many of the interviewed
trained midwives stated that, from their point of view, they did not change
anything. Den from Lauka village explained it as follows:
I didn’t change the way I assist a delivery. They [the people who trained her] provide
me with a kit (soap, knife etc.). I think these things are very useful. And at the training
they explain everything about hygiene. Now, I have to note the date of the delivery and
the weight of the baby. After, I will give this information to the hospital. If I report back
to them, they will provide me with more material. But I don’t know the difference
between me and the midwife in the hospital; she only has more modern material.
However, Den, for example, is now much more respected in her village because
she received various trainings. When pregnant women and mothers in this village
are asked which traditional midwife they would choose to assist their delivery, the
answer is usually Den. She is considered more competent and able to deal with
difficult situations than other midwives from the same village. Even though
traditional midwives do not always believe that their practices changed
demonstrably as a result of trainings and courses, there was an effect on how some
villagers perceived, respected and valued the midwives’ status, skills and role.
Conclusion
This paper presents some findings from a broader, ongoing research project
about childbirth practices, perceptions, attitudes, decision-making processes and
transformations related to pregnancy, delivery and early motherhood within
Bunong communities in Mondulkiri province, Cambodia. The main findings for
this paper include the following: Many factors are influencing the decision-making
process of villagers when deciding who to contact and where to give birth. The
most important point concerns the feeling of comfort, safety and security in a
well-known environment – women want to deliver in their village, surrounded by
family and relatives at home, or near to it. Due to the potential danger of spiritual
82 Nikles
interference, pregnant women and new mothers like to have the traditional
midwife nearby. She is the one who can be trusted and asked advice; she is
experienced, knows how to react and what kind of measures to take. Even though
the kru njut ndüll gives instructions to the prospective woman and the relatives
present, she does not put herself in a superior position. The woman can set her own
pace and can have a say in the process. For example, she and her family have to
determine the moment to call the midwife, they decide who to choose, where to
give birth, if they want to have a spirit protection ceremony or not, and who else to
involve in the procedure. This reinforces the traditional midwives’ status within her
community. This paper has reflected on the high levels of respect that traditional
midwives are treated with. On the other hand, economic, infrastructural and social
factors are also significant as the individual weighs up difficulties with lack of
transportation, inaccessible roads to travel, the disinclination towards public health
facilities and their respective staff, additional costs, and poor knowledge about
basic health problems and issues. In this sense, the villager’s decisions depend on
various internal and external factors and in each case they have to judge the
specific circumstances.
Women, pregnancy and health 83
Notes
1. kru njut ndüll is the Bunong expression for traditional midwife. In Khmer the
term is chmoab boran.
2. This number includes the percentage of Mondulkiri and Ratanakiri province.
3. Maternal deaths are defined as any death that occurred during pregnancy,
childbirth, or within two months after the birth or termination of pregnancy.
4. The WHO (1996) uses the following definition for midwife: “A midwife is a
person who, having been regularly admitted to a midwifery educational program
duly recognized in the country in which it is located, has successfully completed
the prescribed course of studies in midwifery and has acquired the requisite
qualifications to be registered and/or legally licensed to practice midwifery.”
5. Nomad RSI is a France-based NGO, established in 1997, which specialises in
research and action relating to health and health practices among remote and
ethnic minority communities in developing countries. The organisation has been
working in Mondulkiri province since 2000, focusing on appropriate health
education and the improvement of village level health care for ethnic minority
groups. The research is supported by the French Embassy. See as well
www.nomadrsi.org. The information presented in this chapter is part of an ongoing
research project. Its findings do not claim to be completed yet as the author is still
carrying on with the research. Therefore, this paper only highlights some of the
results.
6. Sen Monorom is the provincial capital of Mondulkiri where the only hospital in
the province is located. Sen Monorom itself is 380 km or a one day journey by car
away from Phnom Penh, the capital of Cambodia.
7. These numbers are derived from the Department of Planning in Mondulkiri from
2006.
8. “La resource première des Mnong est la forêt, don’t ils tirent presque tout ce dont
ils ont besoin. Les ethnologues parlent de ‘civilisation du végétal’ pour marquer
l’imbrication de la vie humaine et social dans le cadre du végétal, plus ou moins
domestiqué, et perçu come gouverné par des puissances surnaturelles.” (Free
English translation from the original text). Mnong is another way of writing
“Bunong.”
9. Reproductive activities include running the household, like cooking, collecting
firewood, fetching water, cleaning etc. Productive activities on the other hand
consist of planting rice and vegetables, weeding, collecting wild vegetables and
fruits, looking after pigs and chicken, fishing etc. (Berg, 1999 : 3).
10. Recent research showed that the roles of women leaders in indigenous commu-
nities are diverse and differ from village to village, as well within the families in
each village (Ironside, 2007).
84 Nikles
11. weng oing is Bunong and can be translated as “lying next to the fire.” The Khmer
term is ang pleung.
12. In case of pain or problems for the mother, the traditional midwife will still
come and treat her even if the ceremony already took place.
13. For further reading Hoban quotes Manderson, 1981; Laderman, 1983 for
Malaysia; Tran, 1999 for Vietnam; Cabigon, 1996 for the Philippines.
14. More explanation about the use and purpose of kun will fallow in the next section.
15. The bigger the sacrificed animal, the more important the ceremony. This applies
to every kind of ceremony among the Bunong.
16. In present day Cambodia, Khmer beliefs are rooted in an animist folk religion;
therefore Theravada Buddhism co-exists with animism (Hoban, 2002 : 129).
17. The kru hom is different from the kru boran. Both are traditional healers, but
while the kru boran gained his skills and knowledge through studying and
accompanying another kru boran, the kru hom was selected and taught by the
spirits in the dream. The kru hom is usually called if the sickness is believed to be
caused by spirits or black magic.
18. In Khmer the term protiel is used.
19. Almost every woman interviewed reported having lost at least one child, either
during pregnancy or within a few months after the delivery.
20. The first TBA trainings in Mondulkiri were done by Médecins du Monde in
1998. After they stopped in 2002, the Provincial Health Department and the
Operational District, supported by the NGO Health Net International, continued to
work with TBAs and still provides some support.
Women, pregnancy and health 85
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des aborigènes des hautes terres du Sud-Indochinois, 1859-1940, Thèse présentée pour
l’obtention du grade de doctor en histoire, Université Paris 7-Denis Diderot, France.
HOBAN, Elisabeth. 2002 We’re safe and happy already. Traditional birth attendants and
safe motherhood in a Cambodian rural commune, PhD Thesis, Department of Public
Health, University of Melbourne.
HEALTH UNLIMITED. 2006 Indigenous Women Working Towards Improved Maternal
Health. Ratanakiri Province, Cambodia, Phnom Penh, Action Research to Advocacy
Initiative (ARAI).
IRONSIDE, Jeremy. 2007 The Role of Women in Traditional Systems of Conflict
Resolution and Leadership in Indigenous Communities in Ratanakiri Province, Cambodia
(Draft), Phnom Penh, Action Aid.
JORDAN, Brigitte. 1993 Birth in four cultures, Prospect Heights, Waveland Press
[first ed. : 1978].
LECLÈRE, Adhémard. 1908 Les Pnongs. Peuple sauvage de l’Indo-Chine, Paris,
Leroux.
MAFFI, Margherita. 2006 Women’s Voices: Women in Indigenous Groups and Ethnic
Minorities in Cambodia, Phnom Penh, Women Media Center of Cambodia.
MINISTRY OF HEALTH. 2001 A TBA case study in three provinces in Cambodia: Svay
Rieng, Ratanakiri and Kampong Chhnang Provinces, Phnom Penh, National
Reproductive Health Programme.
MINISTRY OF HEALTH. 2006 Report of Comprehensive Midwifery Review, Phnom
Penh, Ministry of Health.
MINISTRY OF HEALTH. 2006 Cambodia Demographic and Health Survey 2005.
Phnom Penh, Cambodia and Calverton, Maryland, USA, National Institute of
Public Health, National Institute of Statistics and ORC Macro.
NATIONAL INSTITUTE OF PUBLIC HEALTH, NATIONAL INSTITUTE OF
STATISTICS [CAMBODIA] AND ORC MACRO
NGO FORUM ON CAMBODIA. 2005 Rethinking Poverty Reduction. To protect and
promote the rights of indigenous minorities in Cambodia. A human rights approach to land
and natural resource management, Phnom Penh.
OBERMEYER, Carla Makhlouf. 2000 “Pluralism and Pragmatism: Knowledge and
Practice of Birth in Morocco,” Medical Anthropology Quarterly, 14(2): 180-201.
PELTO, Pertti J. & Gretel H. PELTO. 1997 “Studying Knowledge, Culture, and
Behavior in Applied Medical Anthropology,” Medical Anthropology Quarterly,
New Series, 11(2): 147-163.
Women, pregnancy and health 87
Indigenous communities in Cambodia are facing a crisis where their very survival
is at stake. From a range of interdisciplinary perspectives, this section provides a
thorough assessment of the problems that “economic development” is raising for
Indigenous Peoples. A common theme in these papers is a sense of urgency.
Ironically, this same sense of crisis is not to be found in the official documents of the
Royal Cambodia Government or the international development banks. The official
documents strike celebratory and optimistic tones, detailing the numerous alleged
benefits of the modern enterprise of nation-building and market-building.
According to the development banks, the threat to indigenous communities, if there
is one, is that they will be excluded from the benefits of economic development.
To prevent this from happening, indigenous people have been expressly “targeted”
for development. Moreover, international aid agencies and the development
banks are inviting indigenous communities to “participate” in the process of
their own development. The papers in this section provide a sustained critique of
contemporary development practices and illustrate the emptiness of promises of
participation. The papers also detail the problems associated with the darker side
of economic development – public corruption, illegal land grabbing and the
destruction of the natural environment. Indigenous communities are on the margins
of Cambodian society and are increasingly on the margins of economically fueled
processes of globalization. Their continued existence, as autonomous, cohesive and
functioning communities is in serious question.
Jeremy Ironside provides the reader with background and context on contemporary
development strategies in Cambodia and how these strategies are playing out in
practice in two particular indigenous communities. Gender differences often
provide special insights into the lives of those living on the margins. Margherita
Maffii examines how “development” is affecting the lives of women in indigenous
communities, giving effective voice to their experience. Peter Hammer goes inside
the development paradigm, deconstructing Asian Development Bank documents
concerning Indigenous Peoples and demonstrating the biases and limits of their
underlying economic theories. Turning from economics to anthropology, Frederic
Bourdier stresses the complexity and inevitability of conflicts between indigenous
communities and the economic and political forces of modernity. Today, no matter
where we live, we are parts of the whole. How can indigenous communities define
themselves and engage their own future in a world where isolation is not a viable
option?
Development – in Whose Name?
Cambodia’s Economic Development and its Indigenous
Communities – From Self Reliance to Uncertainty
Jeremy Ironside
Introduction
There is much discussion and significant resources being allocated to reducing the
poverty of marginal and vulnerable groups throughout the world. Despite this,
experience has shown that even in countries which have successfully reduced
poverty, indigenous minorities often represent deep pockets of the most vulnerable,
marginalized and impoverished segments of society who are being left behind
(UNDP, 2003). These groups “continue to endure below average living standards,
unequal access to justice and loss of traditional territories…” (UN News Centre,
2004). In several countries, widening socio-economic gaps have had a negative
impact on overall development. Managing cultural diversity has become one of the
central challenges of our time.
This paper describes the socio-economic situation in two indigenous
communities in a province in the very northeast of Cambodia, to understand why
they are not likely to reach the Cambodian MDGs by 2015.1 The first part of the
paper presents a general introduction to Cambodia’s indigenous people, and some
of the problems they are facing. The economic development of Cambodia and the
development dynamics presently found in Ratanakiri Province are also briefly
described. The second part presents villagers’ perspectives on the Government’s
poverty reduction strategies and the relevance of these to their situation.
The government hopes to reduce poverty of these groups and bring them into
the ‘mainstream’ of the country’s development process. It has set an ambitious
agenda in line with the internationally agreed MDGs of halving poverty, ensuring
free education for all up to grade 9, etc. by 2015. However, these standard and cen-
trally developed poverty reduction strategies and targets do not take into consider-
ation the special needs of marginal indigenous groups to maintain their identity
and self determination in the face of relentless change.
In Cambodia, 10-15 years of economic growth and international assistance has
not resulted in any significant poverty reduction for the majority of the population
living in remote provinces, where the majority of Cambodia’s indigenous peoples
are found. Indications are that for these indigenous groups their poverty is deepen-
ing and is likely to continue to do so.
92 Ironside
Also, a dependency on open markets and free trade risks leaving Cambodia more open to
external shocks such as recession. Export transactions are carried out in $US and Cambodia,
therefore, cannot regulate its own currency to retain international price competitiveness. Its
narrow export base leaves Cambodia vulnerable to competition (Beresford et. al. 2004). All
these factors have the potential to exacerbate poverty, rather than reduce it.
Beresford et al. (2004) argue that “[a]ddressing the immediate constraints in the
country of governance, infrastructure, and poor human capital will go further in
addressing pro-poor trade growth, since it will expand the number of products that
can be exported and widen the proportion of the population that can benefit from
trade liberalisation, and … re-distribution of growth” (Beresford et al. 2004: 171).
The many obstacles preventing rural people from participating in trade-oriented
activities mean that “[g]rowth with increasing inequality …could actually increase
the incidence of poverty.” (Beresford et al. 2004: 38). In other words, while there are
possibilities of strong market growth, this could, at the same time, result in the
“underdevelopment” of the more marginal members of society, mainly small
farmers, women, children and indigenous peoples.
Where trade competitiveness is considered satisfactory and Cambodia is
earning revenue, such as the garment and tourism sectors, these revenues also
remain in urban enclaves (around Phnom Penh, Siem Reap and Battambang). The
garment industry is characterised by high import content of raw materials and
machinery, as well as significant amounts of repatriated profits.6 Tourism is similar,
with low value-added content and a large percentage of profits repatriated by
foreign-owned airlines, hotels, casinos, package tour companies, and even
“Cambodian” souvenir shops (Beresford et al. 2004). Also, despite the large
increases in tourism in Siem Reap Province (to visit Angkor Wat), it continues to be
one of the poorest provinces in the country (Beresford et. al. 2004).
There is, therefore, “limited impact on the majority of the (rural) population and
by implication on poverty reduction” (Beresford et al. 2004: 171) from the present
economic growth models. From the above examples, trade liberalization is likely to
remain concentrated in the enclaves and unlikely to contribute significantly to
pro-poor growth.7 Diversification is unlikely to occur in the short term.
Vietnam.8 These plans have not been made public, but they apparently emphasize
infrastructure development and large scale commercial agriculture (cashew, rubber,
etc). Donor representatives, who have seen these plans, expressed concern about
the impacts on local cultures and livelihoods, and on further encroachment into
forest areas for these plantation crops. Vietnam is also proposing a free trade zone
at the border with Ratanakiri and is loaning Cambodia $26m for sealing Road 78
(between the provincial capital – Ban Lung and the Vietnam border). These policies
and plans have been prepared without the participation of the affected indigenous
and non-indigenous communities.
As seen with the experiences in the garment and tourism industries, large scale
industrial agriculture development, not structurally linked to the wider economy,
will not result in the poverty reduction of the rural poor. There is also the risk
of foreign-owned plantation companies repatriating much of their profits overseas.
Small farmers have to compete with larger scale commercial farmers and compa-
nies, often literally for the same piece of land. They are also at a disadvantage
accessing credit, markets, technologies, etc. The only benefit that large scale
industrial agriculture may bring to small farmers is low paid employment.
Unproductive forest and land concessions, illegal land clearing, logging of
community forest areas, large scale (often forced and illegal) land buying/grabbing
at ridiculously cheap prices in Ratanakiri and other provinces are typical examples
of the reality of the much talked about private sector economic development
models. Many forest and land concessions have hardly returned a single riel of
revenue to the Government.9 There is no public scrutiny of these contracts and
concessionaires take advantage of the weak regulatory framework, poor
enforcement of property rights and corruption, and conduct widespread land
grabbing (Beresford et. al. 2004). The irony is that many of these investments are
promoted in the name of poverty reduction. Many of these “private sector”
activities are what is causing the impoverishment of small local farmers, the
widening gap between urban and rural areas, and between the traditional and the
new “market oriented” sectors within rural areas.
The natural resources on which people depend “are under threat from
government schemes, larger commercial interests and powerful people…”
(Danida/DFID 2006: ix). Logging blitzes by the military soon after the fighting
in Phnom Penh in 1997 and the recent (2004) plundering of the forests in
Virachey National Park near the Laos and Vietnamese borders are examples of
unaccountable officials and private interests, devouring the country’s resources and
terrorizing people who get in their way. The fact that rural/indigenous populations
have lost faith in the country’s security and law enforcement services means the cost
is many times more than the loss of revenue to the national treasury.
Development -in whose name? 97
The biggest tragedy is the waste and destruction of the very resources required
for long term sustainable development. In one of the study villages for this paper
(Leu Khun), villagers reported that logging started in the early 1990s with
Vietnamese loggers, but in the late 1990s many trees (high quality hardwood
species) were simply felled and left in log depots to burn in the dry season, because
deadlines passed, the border was closed and the loggers could no longer export
their logs. Leu Khun villagers said that after the companies cut all the best quality
wood, villagers cut their remaining resin trees (which were being tapped for
income) to build their houses and soon they said it will not be possible to find trees
to build their houses.
With the forests and wildlife largely exploited, attention has now turned to a
rush to buy the communal land of the area’s indigenous communities. People are
frustrated to see powerful people buying big areas of land, and the double standard
of officials telling people not to sell land when they are making money from
approving these land sales. There are stories of land brokers actually working for
high District officials.
For indigenous communities, the contrast between traditional and the new
market oriented system couldn’t be more stark. Where traditional communal
land and forest management systems offer/offered livelihood security for all
community members, market oriented systems are leading to the dispossession of
several villages from their land and large scale deforestation. The transfer of the
productive land from the poor small indigenous farming communities to the few
outside rich large investors means the poor have to move aside for the industrial
agriculture steamroller. Local people are powerless to prevent the destruction of
their livelihoods and the alienation of their land.
The fact that the new big landowners have bought their land at considerably
less than its real value from indigenous peoples, who do not have a tradition and
hardly understand the concept of private land ownership, adds to the injustice. This
situation is no better illustrated than by the case of local officials working for a
Ratanakiri businessman in 1999 asking Tuy villagers if they would like to give their
land for “development.”10 The Tuy villagers naively assumed that they would be
giving their land for their own development. Now, this land has been expropriated,
developed and fenced into a 100ha rubber plantation by private interests.
Eco-tourism is also touted as a key part of Ratanakiri’s development future.
Potentially, villages along tourist routes could host visitors and sell handicrafts and
other products. However, experience of community-based tourism in Ratanakiri
has shown that, without a secure land base and community solidarity, communities
will not be able to manage the income or the rising land prices that tourism will
inevitably bring. Outside tourist operators and hotel owners have been the real
98 Ironside
and Mondulkiri (Beresford et al. 2004) are fueling these trends. Migrants are
largely youths and young adults and Cambodia has one of the youngest popula-
tions in the world. Ban Lung, the Ratanakiri provincial capital, is one of the fastest
growing towns in the country (Ehrentraut, 2004). High population growth rates are
leading to increasing land pressure, both within communities and from the outside.
Weak governance, widespread corruption and the ease with which indigenous
peoples can be duped, coerced and intimidated has resulted in what could be
termed an “open season” on the traditional lands and forests of the people in these
areas. A Ratanakiri official commented that levels of corruption have increased with
the establishment of elected Commune Councils, with corruption now affecting up
to 80% of Commune and District officials, he said.12
Several senior Provincial Government officials also commented on the
difficulty of getting the national level to understand the unique livelihood and
cultural circumstances of IPs in Ratanakiri and their needs. There is confusion and
competing interests and visions between different levels of government and
different agencies over the development of the country’s indigenous peoples and
the areas where they live. Each of the different layers and agencies follow their own
agendas, visions and policies, variously promoting cash cropping, plantations,
mineral exploitation, etc. This is exacerbated by the fact that many of these remote
areas are border areas involving sensitive security issues.
Despite present efforts to decentralise, planning is centralised and consultation
and participation of IPs in national development agendas is at best superficial.
Ironically, the government’s policy of decentralisation, instead of increasing local
peoples’ voice in government, has actually resulted in indigenous communities
being much more strongly linked with the national government. Coordination is
also made more difficult because of a lack of overall policy to guide development
activities in these areas and with indigenous peoples.13 Responsibility for delivering
local development is transferred to local institutions without the corresponding
financial resources, capacity or authority. Indigenous people working in these local
institutions have low levels of literacy and capacity to implement development
programmes. Often they become the pawns of higher level government and
business people intent on building their own empires.
The result of the fast changing demographics in these areas means the
indigenous voice, which has never been strong, will likely to continue to receive
limited attention, unless more effective strategies are developed. There is also a lack
of reliable statistics, disaggregated by ethnic group, making the specific problems
these people face invisible. New data are also required about landlessness, land
buying and selling, indigenous social structures, etc.
A typical central government view is that indigenous groups themselves are
100 Ironside
destroying their culture and future through land selling, etc. While this is not an
entirely fair assessment, it does highlight the difficulty these cultures are having
in getting decisionmakers to understand their situation. Due to the absence of
participation in government plans and the limited implementation of these plans,
indigenous communities are forced to develop their own strategies to improve their
lives. Several obstacles need to be addressed to avoid local indigenous communities
being pushed to the margins of the new society.
Part 2: The perspective from the village about the Government’s poverty
reduction strategies.
In order to get a more detailed picture of the socio-economic situation, two villages
with slightly differing profiles were chosen for comparison. Important differences
between the two villages are their contrasting records in controlling the sale of their
land, the effectiveness of their traditional leadership, the amount of outside
development assistance received, the schooling opportunities for the village
children, etc.
The author and an indigenous research assistant spent approximately four days
in each of the villages conducting semi structured interviews, group discussions,
village meetings, as well as carrying out participatory research activities.14 The
languages used during the research were Tampuen and Khmer.
Both villages (Tuy and Leu Khun) are situated in Bokeo District in the middle of
Ratanakiri Province, which has experienced a rapid conversion to cash cropping
over the past 10 years. The fertile, cheap land has attracted large numbers of
migrants from other parts of Cambodia. The expansion of cash cropping,
predominantly of cashew nuts and soy beans, has resulted in the deforestation of
large areas of the District.
Tuy Village and Tuy Tet (Tampuen – Small) Village, Ting Chak Commune
Tuy village comprises 451 people (237 women) – 101 families (four Khmer, one
Lao and the rest Tampuen). Out of these, 23 families have formed another Tet
(Tampuen – small) village. There are also 22 new migrant Khmer families living
1km along road 78 from the main village in Tmey (Khmer – new) village. Tuy
village is situated on the central basalt plateau, which indigenous farmers have
long used for swidden agriculture due to its fertile soil, good yields and rapid
fallow regrowth. The immediate impression of Tuy village is one of abundant land
and forest resources. There is significant potential paddy land, red upland soil,
good water supply near the village and forest with high quality timber trees and
other products.
Development -in whose name? 101
education and support. We want to be a model village and want to develop this village.
As for gender, we need to select the person with the best capacity for the job and not
just their gender.
With regard to infant mortality, parents look after their children as best they can
and then people come and blame them for letting their child die. When we go to the
Health Centre they give us medicine that is out of date, so what can we do for our sick
children16. The 3 MDGs that deal with health (CMDG 4, 5, & 6.) can all be rolled into
one priority for this village and that is a Commune Health post. Our three priorities are;
• Repair, and upgrade the school. Also build a junior high school to 9th grade.
• A health post
• A rice bank.
We also have other priorities but there is no point thinking about these until we
see something being done about these 3 things. We have sent requests to the higher
levels and organisations but these are usually not answered.
Villagers look after their forest and land resources as best they can but it is very
difficult to stop powerful people coming and logging and buying land. People accuse
villagers of selling the land but this is like the monkey eating the rice and then wiping
the mouth of the goat. It is not the land broker that is buying the land, it is all the big
people who are coming to buy land but small villagers get the blame for not standing
up to these powerful people. The person buying all the land in a neighbouring village is
a high ranking Government official. Other high ranking officials have come here and
taken a lot of logs. The Government also has the stamp that is required to recognize
these land sales, so they are closely involved. People are very angry about this and
there could be fighting and violence in the near future. As for the forest, why is the
forest gone? The land has been cleared of all trees so tractors can plough the land for
cash crops. People come and cut and transport trees in the night. Villagers are
powerless to stop them.
As for agriculture, people would like to find things to grow for the market. We
need help in developing processing and finding the right crops. As for preserving our
culture we need land and forest for our culture. If we want to make our traditional
baskets, tools and implement, we need bamboo to make a basket.
Tuy villagers also felt many people are getting rich, but the indigenous people
are getting poorer. People are angry about powerful people taking their land. Some
said the indigenous people are also afraid of the authorities because of the
significant power they have always held over them. Fear makes them take money
and not speak up about injustice.
Villagers in Tuy said in the past, they had everything. There was plenty of land,
forest, animals, other resources in the forest, water and everything they needed.
Development -in whose name? 103
Even people around 45 years old remembered clearly these times. The Government
came and didn’t allow us to wear our clothes and practice our culture, they said.
Some also questioned this new period of democracy, where everyone gets the
vote but then nothing happens. People said it would be better to go back to earlier
(Sihanouk) times when there was less democracy, but the government was active
and people saw some benefits. People questioned whether the government was
interested in indigenous people or not. Some said without development
organisations here the indigenous people would be in trouble.
The Tuy and Leu Khun villagers, therefore, see the government’s CMDGs
targets as just words on paper. They had little expectation that these words would
actually be translated into any concrete benefits for them on the ground, even if
they felt many of the problems the MDGs are trying to address were relevant for
their situation (food shortages, problems with getting an education, accessing
health services, etc.).
Villagers are angry about a lot of things, but they accept a status quo where the
Government has limited presence in their lives and they expect little from it. People
solve their own problems because it is their tradition, and because they know if they
go outside the village it will cost them money they don’t have.
The impact of the Government on peoples’ lives might change, of course, with
the arrival of some big donors in the near future.17 However Tuy village has had a
large amount of recent development input from the Royal Government of
Cambodia’s Seila decentralisation programme (supported by the UNDP). Since
1998, this programme has assisted Tuy village with a school, a rice bank, non-
formal education teacher training and materials, traditional birth attendant training
and equipment, agricultural training and equipment; cow, buffalo and pig
banks, chickens and ducks, and a village land use plan. Despite this, there is little
reduction in food and income insecurity, or real improvements in education to
show for it.
Some of the reasons for this include; programme changes within Seila, very
limited Provincial government capacity to implement development activities in
indigenous villages, a yawning cultural divide between the Khmer-dominated
government and local villagers, and the conflicts of interest of several government
staff when addressing land issues in these villages. The reason indigenous peoples
have lost trust and faith in government staff to address their concerns is because
these have been the people who have been involved in taking their land and
logging their forests. One lesson from these experiences in Tuy village is that there
has to be land tenure security before other development can happen.
While disputes within and between villages are intensifying, people said that, in
some ways, things were also easier for them. People in Leu Khun said, compared to
104 Ironside
10 years ago, livelihoods are now 40% better because of income from cashew nuts,
and to a lesser extent from soybeans, etc.18 Many families (though not all) can now
earn $600 - $700 per hectare from cashew nuts. This allows an income at a time of
the year when rice and other foods can be in short supply.19 This also allows people
access to health services when absolutely necessary. Table 4 below gives and
estimate of the income from cashew nuts for indigenous farmers in the province.
21,000 ha -
2005 half> 5yrs 7,500 tonnes 3000+riels (US 75c) $8,943,750 $6,250,000
old
For those without other means of income or who have sold their land,
agricultural labouring for outsider cash cropping farmers, despite the relatively
low wages, has become an important part of the livelihood strategy. For some
villages/villagers who have sold a lot of their land, this has become their survival
strategy.
these people will go and work for one basket (15kg) of rice for 2-3 days work
(approximate value $2.50 - $3.00). However, Leu Khun villagers said when outside
cash cropping farmers come to their village looking for seasonal labourers, villagers
can choose whether they want to go and work or not, as they still have their land
and have other options. They said they bargain and are able to charge 10,000 riels
($US 2.50) or even up to 12,000 riels ($US 3) per day. People say it is not worth their
while to go and work cheaply. The shape of the future in this area could be large
numbers of indigenous, landless labourers earning only enough to subsist on.
With Cambodia’s entry into the WTO, farmers will be exposed to increased
international price competition for a range of crops. Ratanakiri’s indigenous
farmers’ position as price takers does not bode well for the longer term, if lessons
from coffee production in Vietnam are any indication.23 Competition with
Vietnamese merchants and factories will be an ongoing problem in border areas,
such as Ratanakiri.24 Whether a poor indigenous farmer should emphasize food or
income first is an important question, and “food first” approaches are losing out to
market production.
Education
The Cambodian government hopes to achieve universal nine-year basic
education by 2015 (CMDG 2). People in both villages recognise the importance of
education – to get work, to learn other skills, to know how to read and count to
avoid getting cheated in the market, to learn their own language, etc. In Tuy Village,
however, there are only eight people who are literate. This puts people at an
enormous handicap when dealing with Khmer systems.
Compared to 10 years ago, things have definitely improved, as neither village
had a school. However, in villages where only a handful could write at all, and
where in Tuy village the school was barely functioning, the idea of all children ten
years from now attending school even to the 6th grade seems incredible. Only one
person in Tuy village had reached 6th grade and only a handful in Leu Khun. While
the school in Leu Khun village is well attended with 132 students from four
villages, only 20+ students come to Tuy village school. Many of the regular
attendees in Tuy school are from the neighbouring Khmer community. Children in
Tuy Tet village do not (due to distance) go to school at all. Low attendance is also a
problem in villages neighbouring Leu Khun, where villagers have recently been
selling their land and have some (short term) income.
Comparing the two villages, community support and ownership is a major
factor in improving village education. In Leu Khun, the village school committee is
working with the teachers to have the school repaired, extra classrooms and a
junior high school (7th – 9th grade) built on land the village has set aside. In Tuy
Development -in whose name? 107
village, however, the village school committee hardly functions and relations are
poor between it and the young teachers.
This lack of support is due in part to a contract teacher elected by the villagers
(with a 6th grade education) being removed and replaced by more qualified outside
teachers. Villagers said when the village teacher was teaching there were 80 students
and he worked full time. With the present teachers, teaching hours have been
intermittent and Tuy students felt that preference is given to the Khmer students.
Another problem mentioned was the lack of recognition of local languages and
cultures in the classroom. Some students do not understand Khmer language very
well. Leu Khun villagers have requested an education NGO to extend bilingual
education they are supporting in a neighbouring village to their village.
However, one of the major reasons for students in both villages not being able
to advance to higher grades is the lack of money to pay the extra costs. Students are
required to pay considerable extra informal expenses for tutoring to progress
through the education system, and bribes to pass exams. Leu Khun youth said only
richer families can afford to pay for tutoring for their children. No one from the
village is currently studying in Bokeo (where the nearest secondary and high school
is located). Achieving an education above 6th grade is economically beyond the reach
of ordinary villagers, and indigenous people are at a considerable disadvantage.
In Tuy village, also, students over 12 will begin labouring for cash cropping
farmers, and this is seen as more necessary than sitting in a classroom learning
irrelevant information. The Khmer teacher in Tuy village commented that the
villagers are hard-working and there are many demands on children, with many of
them requesting classes at night when they are more free. The teacher said the
children tell her that if they go to school they will not have anything to eat, and that
if she wants them to learn she should give them money. With other employment
options, poor prospects of progressing through school and the costs involved, many
students and parents believe that schooling will do them little good.
Government administrative capacity to deliver education and infrastructure in
remote areas remains a challenge. Several communities are still without a school. Of
the 126 state schools in the Province, only 24 have classes through the 6th grade. Leu
Khun school has no room to begin 4th grade classes, and there are also no toilets or
water. The nearest well is over 200m away. Leu Khun villagers also suspect
corruption is the cause of the poor quality wood that was used for their school
building, which is now getting eaten by termites.
Finding sufficient teachers who can speak the local languages is also a problem.
In 2006, there were only about five Ratanakiri indigenous students in Teacher
Training College in Stung Treng town.25 In Ratanakiri, in 2006, there were only 175
indigenous students in lower secondary school (7-8th grade), or around 1% of the
108 Ironside
Gender Equality
The Cambodian government also plans to promote gender equity and to
empower women (CMDG 3). Women in these two villages considered it important
that girls have the opportunity to attend school, to learn how to read and write, to
receive appropriate training and information in their own language, to have the
opportunity to find employment, to have strong social support networks, and to not
have to get married too young, or suffer domestic violence.26 Many girls do not
receive even a basic education because parents often do not have the money to send
them to school. Older village women in both villages said domestic violence does
occur, but it is dealt with in the village and there have been no cases of the woman
being badly injured. An older woman in Leu Khun said her priorities are rice to eat,
and money and land to plant, which perhaps summarises the situation for many.
In Tuy village, there was one female assistant Commune Chief, and in Leu Khun
one young woman from Leu Khun was working for a health organisation in the
Provincial town. Despite high participation rates of women in meetings in Tuy
village, male elders said that it was not appropriate for women to share their
traditional management role with them. A comment from a Leu Khun leader was
that gender issues are something that urban people talk about, as in the countryside
everyone, women and men, has to work hard.
Some women said that some things are easier for them than before. Motorbikes
reduce the amount of time and effort needed for carrying heavy loads and going to
the market, rice mills ease the work of hand-pounding rice, there are some new
water points in the village and some women said that their husbands help them in
Development -in whose name? 109
when the new “owner” started to delineate the rubber plantation with concrete
posts. Unconfirmed reports are that the rubber trees on the village land have now
been sold for thousands of dollars.
The TBA also recently lost three ha of her land when the village split in 2005
over internal disputes related to land selling and illegal logging. She said she has
two other pieces of land left.
Health Issues
As part of its health programme, the Government aims to reduce child
mortality (CMDG 4), improve maternal health (CMDG 5) and combat HIV/AIDS,
malaria and other diseases (CMDG 6). As well as land issues, the cost of accessing
health services was a key concern in the two villages. Villagers felt there had been
some improvement in infant mortality and in their health in general compared to
10 years ago. One reason, they said, was that there were some motorbikes in the
villages to take sick people to a health centre and people had some money when
medical assistance was really needed.
Infant mortality rates in Ratanakiri and Mondulkiri, however, are twice as high
as in the rest of Cambodia, which are triple those of Vietnam and the worst figures
in Asia (FAO 2003). Figures for child stunting (70%) are worse than for Cambodia
as a whole (HU 2002a). Malaria, tuberculosis and diarrheal diseases are endemic.
Vitamin A deficiency (2% of children and 6.8% of pregnant women have night
blindness) is also high (HU 2002b). Awareness of HIV/AIDS in the two villages
was also limited and the potential for it to become endemic in these and other
indigenous communities is high (NGO Forum 2006).
tribe people) have no rights to be along the road because it is state land and this
land is for development.31 He also said that Junjiet people do not know how to live
along the road and plant orchards. He said that far away from the road is better for
them. A District Police official said that he has the human right to manage the land,
not the villagers, and the land was to be for development. Villagers were also told
that it was useless for them to resist and complain to higher levels, as the
officials/land brokers had “knong miek” (Khmer - strong backs) meaning that the
buyers had high connections and support.
Villagers were asked to agree to this deal by thumb printing and accepting
money. Villagers thought they were thumb printing to give their land for their
development. The actual price paid was $6,000 for 100 ha. Out of this the village
received only 1,500,000 riels ($US 375). Some 20 families received 30,000 riels ($7.50)
if they had an old field on this land. Those families who had not been using this
land received 6,000 riels ($1.50) each. In some cases, those that spoke up got more
money, while those that were quiet did not receive the full 30,000 riels for an old
field. Seventy dollars was kept for the village.
On the same day, the officials drank two litres of rice wine with five village
elders and gave each elder 10,000 riels ($2.50). They told the elders that it was
forbidden to talk to the younger people about the selling of village land. They were
told to say that the land had been given for development. The elders were
frightened. It is tradition that agreements are sealed with the drinking of rice wine.
The elders had drunk these officials’ rice wine and were afraid to disobey their
order.
Tuy villagers were using this land for subsistence rice farming and cashew nuts.
Six hundred cashew trees planted by one villager were cleared by tractors.32 Because
this villager spoke out, he received 80,000 riels ($20), but received nothing for the
cashew nuts trees, or the annual harvest of nuts he would have received. Other
villagers’ fields which had been prepared for planting rice were obliterated by the
tractors. The affected villagers could not plant any rice that year. Several other
established jackfruit and mango trees were also cut down. A rubber plantation has
since been planted.33
Several villages along the main road 78 and throughout the Province have had
similar experiences. A neighbouring village to Leu Khun has sold many hundreds
of hectares to a government official, where forest is now being cleared for planting
rubber. Leu Khun villagers said in this neighbouring village there are now many
new motor bikes bought from three large land sales in 2005 and 2006. Villagers said
that the time will soon come when people are out of rice and there will be many
cheap motor bikes for sale in this village. Leu Khun people say that they have been
able to buy motorbikes also but they have done it with their brains and ideas,
114 Ironside
Secret land sales have led to several cases in the Province where two people
have bought the same piece of land from two different buyers. In Tuy, villagers
explained that buyers from Ban Lung do not dare buy land unless the land sale
document is signed by the authorities. However, Khmer people from the new
village one kilometer down the road buy land to plant soybeans with or without a
signature from the Village Chief.
Government Actions
A major part of the problem is that there is, at best, only limited effort being
made to sort out the anarchic state of land management and registration of owner-
ship in the province. All layers of local authorities, as well as private interests, are
benefiting from ongoing land sales. Disputes over ill-defined village boundaries are
common. Land brokers also exploit a general lack of understanding about land
ownership laws. They tell villagers incorrectly that the government will soon come
and take the land and they are stupid not to sell their land. They also come and
show people money and ask people if they want money or a motorbike, a car, a
bicycle. The result in another neighbouring village to Leu Khun is that people now
only have their village houses and a little bit of land around the village left.
Along with a lack of official land ownership documentation and prosecution of
illegal activities, developing the procedure for indigenous communities to register
their land communally (as outlined in the 2001 Land Law) has been slow. Pilot
activities have been underway in two Ratanakiri villages since 2002. These villages
are now legally recognised by the Ministry of Interior, which will allow them to
eventually hold a communal land title.
Part of the reason for the slow pace of indigenous land titling is an antagonism
by some decision makers to the expressed wish of indigenous communities in
Ratanakiri for communal land titles. Both villages said they want communal titles
because with individual titles all their land would be lost (sold).34 Communal
titling is seen by some provincial and national leaders as crucial for indigenous
communities to participate in their own and national development and to maintain
their cultural identity.
The slow pace of indigenous land titling and a widespread disregard of the
Land Law have now led to a situation which could be described as a land
management systems failure in Ratanakiri. It will be some years before this
situation will be brought under control. Some villagers have predicted that there
would soon be fighting and violence over land, if the anarchic land situation in the
province is not brought under control and if there are no other options to deal with
increasing numbers of land conflicts.
116 Ironside
Forest Issues
Control over the community’s forest areas is also important to local indigenous
communities’ sustainable future to allow them to adapt to new circumstances and
improve their lives. However, the opposite is happening. Compared to 10 years ago,
Leu Khun has lost all its forest areas. Forests are being cleared in Tuy and many
other villages by communities retreating from land-buying pressure to new areas,
and by outside farmers and investors clearing land for cash cropping, plantations
and speculation.35
Tuy still does have areas of good forest and valuable trees and regularly reports
cases of illegal logging and land clearing to the Commune and District authorities.
Elders want to fine the loggers and confiscate the wood, but they say they have no
power. Their authority will depend on what rights they are given to manage their
forests. Tuy villagers have defended their forests from outside encroachment using
their village map to report forest clearing infringements. Now, however, the people
that were clearing the forest have since been buying village land.
A Leu Khun villager said there is a lot of talk a letting the community protect
and manage the forest, but in reality the community has no authority to manage
anything. The Tuy Village Chief said that recently the District Governor came to the
village with the Commune Chief and the District Police to say that people can no
longer just cut trees as they wish and need to get permission beforehand to build
a house. Villagers are now afraid to cut trees but outsiders continue to do so,
meaning stricter controls may be selectively applied mainly to villagers.
Provincial Government officials explained that the Forest Administration (FA)
and the Department of Land Management are now taking some cases of illegal
logging and land clearing to court.36 However another official said that despite this,
forest clearing is increasing. “We have the knife (laws) but we haven’t been able to
use it, or the knife is blunt,” he said.
Discussion
Discussions with community members in these two villages have shown that many
of the priorities expressed in the MDGs do resonate with them, but these
communities have not been consulted when developing priorities or strategies for
poverty reduction. This highlights a bias in the MDGs towards a top-down model
of technocratic development. As governments strive to meet their MDG targets,
standardized models of development may lead to poorly thought through and
inappropriate programmes that will not be able to accommodate the special needs
of groups who do not fit the model.37
Villagers’ own priorities could largely be summarised as dealing with their own
powerlessness. Commentators have pointed out that the MDGs fail to address these
Development -in whose name? 117
structural imbalances that are at the root of rural poverty, and do not question the
underlying development paradigm, or the “social, political and economic context in
which they are to be implemented…” (Corino 2005, p. 29). As a result, inequalities
are widening and conventional anti-poverty policies currently being implemented
in Cambodia fail to tackle the social and economic exclusion facing these peoples.
Policies and actions are required to both understand and deal with these
marginalisation processes.
While there are some improvements, none of the Government services now
being provided in Ratanakiri could be called satisfactory for dealing with all the
complex issues outlined in the MDGs. Apart from possibly achieving universal
education for primary school (Grades 1-6, in one of the villages only), achieving the
other MDGs will require more resources than are available at present. It will also
require land and forest tenure security, if communities are to have any chance of
maintaining their livelihood base. Instead, local indigenous groups are faced with
the destruction of their resources, increasingly insecure livelihoods, as well as
insufficient funds coming from the central government to allow for any concrete
local actions.
Achieving the MDGs requires one step at a time, but also long-term coherent
strategies that coordinate and mobilize all resources. At present the approach is
fragmented. An important lesson from this study is that, what has to come before
delivery of the development hardware (or achievement of poverty reduction goals),
is the solid social base onto which poverty reduction strategies can be laid. The
basis of indigenous peoples’ poverty reduction strategies is their culture, land and
natural resources. Instead of looking at development targets, it is necessary to first
focus on the social organisation and governance required to make the delivery of
the development assistance feasible and achievable in the first place.
This paper has shown that this village social fabric is already starting to fray and
rip. In remote areas with indigenous peoples, a range of community-based options
may be more effective in empowering local communities to deal with their
development priorities in their own way. Local indigenous communities have
long-established processes to manage their affairs. These options are being
neglected or missed, because they cannot be easily measured. Leu Khun residents
realise the need to maintain their culture and social organisations in their refusal to
sell their land.
Nearly all indigenous communities are currently having to deal with a
conflicting dynamic in their communities between personal and collective interest.
Internal division in many communities is increasing. Indigenous social structures
are dealing with the disputes and dispossession as best they can, as long as they
remain intact. The case of Tuy village is typical of many communities, where a part
118 Ironside
of the village disagrees with activities such as land selling and logging, and cannot
get the entire village to agree. Internal division in Tuy village eventually led to the
splitting of the village in 2005. With the splintering of traditional structures,
important leaders are marginalised and others are able to increase their influence
through the easy money they can make by selling the community’s social capital –
their land and forests.
The more traditional institutions and communities splinter, the harder it will be
for them to defend their interests and resources, and the more the government will
need to take over the work that is now being done by them. This work includes
control of petty and even serious crime, internal dispute resolution, counselling,
moral and life skills education, ensuring welfare to the needy, elderly, hungry and
infirm, etc. These hidden functions of traditional governance make a significant
contribution to overall community welfare, with women playing a leading role.
A further key lesson from this study is that poverty prevention is much easier
and more effective than poverty reduction. It is important to understand the
consequences of increasing landlessness and the potential impacts of trade
liberalisation in indigenous areas, while there is still time and there are still intact
communities to develop alternatives and mitigating measures. Lessons from other
countries could usefully be drawn, in particular the future social costs that have
been incurred from bad policy and governance.
One Provincial government official commented that it is easy to go to a village
and find something villagers need, because they are short of everything. He and
some other provincial officials argued that the basis of any poverty reduction
strategy in these communities must be the central government providing
communal land titles and clear rights to use forest and natural resources. The
official said that with land and forest tenure security, everything else can be solved
easily, one step at a time. Without this, he said, there will be no sustainability of
development activities in the province.
For the moment, the social disintegration from an absence of land security is
able to be downplayed. However, some in the provincial government recognise the
looming social problems that will have to be dealt with (including the difficulty in
implementing poverty reduction programmes) if local cultures and communities
are not kept intact.
On top of this, local communities are expected to either pay for or contribute to
the poor health and education services they receive and to school buildings that
soon fall down. Corruption exacerbates the already poor quality of services at the
provincial level and below (Beresford et. al. 2004), leading inevitably to a growing
sense of powerlessness. Exploitation in trade and markets which are little
understood adds to the latent anger.
Development -in whose name? 119
Pimbert (2005) argues that local livelihood systems are being ignored, neglected
or actively undermined by the international development community, and
alternatives often offered to poor farmers are migration to urban areas or finding
new and better jobs.38 The current emphasis on market-based approaches also
ignores the huge potential of non-monetary forms of economic activity – gifts,
reciprocity, etc. – in meeting human needs and achieving the MDGs (Pimbert 2005).
People in Leu Khun said that, in the 1980s, people were organized into groups and
the chief of the group got people to do a communal rice field and a communal rice
bank. Now, people said there are no solidarity groups, only a village chief. Leu
Khun suggested establishing a community credit scheme as part of the rice bank
they requested. Group marketing also needs to be looked at.
Policies that encourage local organizations to manage their food systems and
their environment would perhaps be one of the few viable alternatives to the crisis
of governance currently being experienced in Bokeo District, and in most other
indigenous areas in the country. These strategies could be summarised as:
- Build on local institutions and social organization.
- Build on local systems of knowledge and management.
- Build on locally available resources and technologies to meet fundamental
human needs.
- Use process-oriented, flexible projects.
- Support local participation in planning, management and evaluation.
(Pimbert 2005). “Linear views of development and narrow assumptions about
‘progress’ and ‘economic growth’ must be replaced with a commitment to more
plural definitions of human wellbeing, and diverse ways of relating with the
environment.” (Pimbert 2005, p.155).
The approach, therefore, implies a refocusing on community-based options and
self-reliance, which is largely the opposite of what is being proposed and
implemented at present. In education, villagers have proposed bilingual, non-
formal and vocational training to assist people to learn new practical skills. As has
been seen, a key factor in ensuring good attendance and community support to the
village school is an active community management board, which has a say in the
selection of the teacher, etc.
Indigenous women also need to be assisted to have a voice and a place in
decisions which are being made about them, within and outside the village. A key
issue is the desegregation of indigenous women’s issues in national statistics, so
that the problems they face can be identified and addressed.
Culturally appropriate, community-based health options should be considered
to overcome problems of distance, access and cultural barriers. Indigenous
communities need to be given a stronger role in the design of the health service,
120 Ironside
rather than simply being a recipient and a paying client. People need health
information in their own language, and the indigenous perspective needs to be
much better understood if health messages are to have any impact. The discussion
about health also needs to be integrated with self-help prevention, such as good
nutrition. Villagers requested that the truly poor should be exempted from paying
user fees.
Community-based options would also mean giving traditional authorities more
authority to control the large scale alienation of the community’s productive assets.
A Tuy elder said that people do not think about the negative consequences when
they sell to outsiders, nor do they care when outsiders come and cut trees in the
forest; everyone is just thinking about getting money. Funds need to be allocated to
provide technical and financial assistance to support securing land rights,
delineating land, developing land management plans, etc.
Ultimately, not much can be done without the government’s active engagement
and encouragement of culturally appropriate village-based development options.
The ratifying of Cambodia’s Indigenous Peoples Development Policy would
establish a clear statement of the Government’s desire to promote a multi-cultural
society. This could also lead to provincial and national consultation platforms
for discussion between government and indigenous communities’ own representa-
tives. Affirmative action policies enacted in indigenous areas to improve their
participation in local government would be another sign of support for indigenous
peoples’ own strategies to improve their lives.
Also, not much can be done without the rule of law. Existing legal provisions in
Land and Forest Law need to be implemented to ensure that land conflicts and
illegal activities are dealt with and resolved. This includes the principle that
nobody should be above the law.
Poverty reduction and pro-poor trade strategies require an assessment of the
causes of marginalisation and vulnerability faced by small farmers in remote
provinces. At present, economic development is accelerating the depletion of
natural resources, resulting in fewer livelihood options and increased poverty
among those already vulnerable. Cambodia’s indigenous peoples need fair, not,
free, trade.
To ensure marginalization issues are dealt with and indigenous peoples have a
say in this process, strategies need to be developed to bridge a general clash of
worldviews. Differences/contrasts to be dealt with include:
- Culture and language differences,
- Finding the correct mix of monetized and non-monetized development
options, as well as supporting villagers to actually deal with the money economy.
- The concept of land as a resource and livelihood base for the development of
Development -in whose name? 121
the whole community verses the individual right to own/sell (the communities)
land,
- The clash between urban concepts of progress and rural needs to ensure a
secure and viable livelihood base.
- The rights of the indigenous insider verses the rights of the outsider.
Conclusion
It is an understatement to say that the task of achieving the MDGs in Leu Khun and
Tuy villages is daunting. This is not so much because of the villagers themselves,
but has more to do with the lawless environment they live in. The story of both
these villages is the story of powerful people dominating their lives. These two
villages are typical of the situation of many remote indigenous groups throughout
the country, where people live in close association with local natural resources.
Indigenous areas are rich in nature and resources, but these resources are more
often than not being plundered and wasted by local and national elites for their
own gain. Any revenue earned almost never returns to the Cambodian state. In
Bokeo District, the flagrant abuse of national land and forest laws, and the
dispossession that indigenous peoples are confronting could be described more
accurately as a process of systemic non-governance, more akin to an uncontrolled
abuse rather than wise use of power.
The centrepiece of the RGCs policy for the next five years (known as the
Rectangular Strategy) is good governance. In many ways, however, these two
communities, like many others, are trying to defend their rights, manage their
affairs and make some progress toward their goals, often in a governance vacuum.
Perhaps what the villagers are saying is they are waiting for this promised good,
honest governance.
There are a myriad of reasons why indigenous communities are losing their
land. However the loss of a livelihood base, ongoing insecurity and anger is not a
good basis on which to build a programme for indigenous community development.
For many small farmers, keeping their land offers them options for both
subsistence and production for income, without needing to hope for help from the
outside. Ensuring livelihood security allows people to experiment with other
livelihoods, which up to now they have never known. Perhaps one of the few
comparative advantages these villages have, apart from their labour and their land,
is their ability to work together.
A key message from this research, when comparing these two villages, is
“united we stand divided we fall.” It is too early yet to see the real consequences of
landlessness, ongoing and unresolved land disputes and the fragmentation of
communities. In Ratanakiri, the introduction of the market will likely mean
122 Ironside
widening inequality, both within and between villages, and increased vulnera-
bility of the weaker sections of society. This inequality seems to have been what
market oriented reforms have produced in Cambodia as a whole, and what the
National Strategic Development Plan 2006-2010 is so adamantly trying to correct.
One consistent message about poverty reduction in Cambodia is that while
returns may be easier and higher in other sectors of the economy, the only real way
to reduce poverty on a large scale is by targeting support to thousands of small
farmers to develop labour-intensive agriculture and rural non-farm employment.
This would reduce the country’s present over-dependence on the garment industry,
reduce poverty in areas where 90% of the poor are concentrated and allow small
farmers to be the private sector engine of their own village’s and the nation’s devel-
opment.
So while cross-border/international trade is potentially very important for the
economic development of Ratanakiri and other border provinces, the experiences to
date do not bode well for this trade benefiting indigenous communities. For trade
to be truly pro-poor, small farmers need to have safeguards against uncontrolled
and unfair competition and somewhere they can take their complaints where they
will be acted on.
This research has shown that these villages are not currently able to deal with
rapidly increasing competition from the outside. Unless these communities are
given the support to compete effectively with better off, more educated, more
influential members of society, then creating opportunities for growth will be
of little benefit to them. These opportunities will be quickly appropriated by the
better off. Perhaps the real test of any development strategy in the two villages
studied, as well as several others throughout the country, is in what ways will
development activities allow these communities to gain advantage over their
competitors. At present, it is not certain whether villagers are making progress
(however slowly) toward the achievement of the MDGs targets, or whether these
targets, like shifting goal posts, are actually regressing away from them.
Development -in whose name? 123
Notes
1. See Ironside, J. Poverty Reduction or Poverty Creation? - A Study on Achieving the
Millennium Development Goals In Two Indigenous Communities in Cambodia.
International Labour Organisation, Phnom Penh, May 2006.
2. The study estimated the Kuy population in 2002 at 19,496 (or 14.67% of the
Provincial population), which was more than four times as large as that shown in
the 1998 census (4,536).
3. Estimates put Cambodia’s growth rate at 9.8% for 2005 (Wasson and Kimsong,
Cambodia Daily 31/3/06).
4. Ironically, these reforms are known as the Poverty Reduction Growth Facility
(PRGF)
5. These other policies include institutions to regulate the market, judicial and pub-
lic sector reform, investment in social services and rural development, and land
titling.
6. For every $100 of exported garments, $63 is spent on imported materials and $4
on utilities. Value added is thus only 1/3 of the total value, with labour costs esti-
mated at $13 and “bureaucracy costs” at $7, with total gross profits at 13%. Three-
quarters of these profits are repatriated. Therefore only 25% of the sale price of the
garment is the net value added which stays in the Cambodian economy (Beresford
et al. 2004, pp 159-160).
7. The Cambodia Socio-Economic Survey (CSES) 1999 reported an annual per capi-
ta income of $250 for Cambodia, $197 for rural people, and $691 for people in
Phnom Penh. IMM, 2005.
8. The provinces are; Cambodia - Ratanakiri, Stung Treng; Laos - Attapeu, Sekong;
Vietnam - Gai Lai, Kon Tom, Dac Lac.
9. Malaysians and Chinese are the two most prominent concession holders. A
Chinese/ Cambodian tree plantation covers 315,000 ha in Kompong Chnang and
Pursat Provinces. A Chinese pine tree concession covers 200,000 ha in Mondulkiri.
A 60,000 ha Chinese concession for rubber in Preah Vihear has recently been
announced (Cambodia Daily April 4 2006).
10. Tuy village is the other village discussed in this paper; see “Land and Forest
Issues” section
11. A World Bank survey found the level of unofficial payments in Cambodia was
more than double that found in parallel surveys in Bangladesh, Pakistan or China
(In IMM et. al. 2005, p. 48).
12. The first nationwide election for Commune Councilors was held in 2003 and the
second in 2007.
13. A general Policy for Indigenous Peoples Development was first developed in
1996 and submitted to the Council of Ministers in 1997 and again in 2006. Both
124 Ironside
times this policy has been rejected and is currently being revised.
14. The author lived and worked in Ratanakiri from 1996-2007.
15. In this and other areas of the province, the Tampuen and Jarai groups could be
described as having culturally intermarried.
16. Development health staff said this may have been the case in the past, but now
there are penalties and regular monitoring.
17. International Fund for Agriculture Development (IFAD), Japanese International
Cooperation Agency, Dept. for International Development (DFID)/Danida, etc.
18. In the province, 20,000ha of cashew nuts has been planted over the past decade.
Yields average from 1.2 tonnes/ha (Leu Khun) to 1.4 – 1.5 tonnes/ha (Tuy),
however there is no technical assistance for villagers to deal with low yields, tree
diseases, etc.
19. The cashew nut harvest lasts from March-May, soybeans are harvested in
September and rice from September-December.
20. Thirty percent of the total area of cashew nuts is taken up by farms of 10 ha or
more. Seventy percent of the above income in 2005 therefore went to small
farmers, the majority of whom would be indigenous.
21. Assuming a 50% milling rate for upland varieties (upland rice has more husk),
this means an interest rate of 250% over 4 - 6 months. Other figures given were
borrowing 10kg of milled rice required the repayment of 1 sack of unmilled rice at
harvest. People said they didn’t know how heavy a sack of unmilled rice was.
22. Ten families in Tuy village have stopped planting a swidden field altogether.
They work as labourers for daily (5,000 – 10,000 riels/day - $US1.25-$2.50) or piece
rates, collect non-timber forest products, etc. Tuy leaders said, in some cases,
people have sold land just to buy food.
23. From 1990 – 2000 Vietnam increased its coffee production from 1.5 million
to 15 million bags. Massive deforestation, environmental devastation and the
displacement of indigenous peoples from their lands by lowland migrants result-
ed. Due to the oversupply, coffee prices dropped from $1,500/ton in 1998 to less
than $700/ton in 2000 (Tauli-Corpuz 2005).
24. Recently Cambodia’s only cashew nut processing factory in Kampong Cham
closed. It lacked capital and government support, and could not compete with
Vietnamese paying higher prices.
25. To attend Teacher’s Training College, a student has to have completed 9th grade.
26. Girls generally get married from 15-18 years of age, which some older women
felt was too young. There was one case of a girl getting married at 11 in a
neighbouring village.
27. Sixty-eight percent of the user fees go to the hospital staff as an incentive, 1%
goes to the National Treasury, 1% to the Provincial Health Dept and 38% are
Development -in whose name? 125
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Introduction
At least 20 different indigenous ethnic groups live within Cambodia. Some of
them are represented by very small populations, while others, the Kreung with
the subgroups Kaveth and Brao, the Tampuan, the Jarai and the Bunong, are
numerically significant and constitute the majority of the population of two
provinces in the Northeast, Ratanakiri and Mondulkiri. Their agricultural practices,
culture, social organisation and system of beliefs (described by Baird I. 2000, White
J. 1996, Bourdier F. 2006, Ironside J. & Baird I. 2003) are a homogeneous ensemble,
despite their ethnic and language diversity.
Since the mid-nineties, the progress of peace and the rehabilitation of the main
roads linking northeast indigenous provinces to lowland Cambodia, have broken
the indigenous enclaves and opened up their territories to exchange with the
mainland. Unfortunately, the concomitant expansion of land speculation all over
the country has triggered a craving for indigenous land, and has brought into
the region companies, land speculators, middlemen, cash crops planters and
adventurers. Intense in-migration into indigenous areas has occurred, on a scale
overwhelming for indigenous people.
Many villages have already fallen into a spiral of land alienation and social
disintegration, while many others are menaced by massive land seizures, land sales
and the occupation of land by new immigrants (NGO Forum of Cambodia, 2006).
Changes in the social order and threats to the cultural identity of indigenous
people are having an impact on indigenous societies, which are pushed to adapt to
modernity and assimilate to the mainstream Cambodian society. This occurrence is
not without shocks and, under this pressure, some communities have entered a
process of disintegration, where the loss of resources, land and forests, accompanies
the loss of community solidarity, links and shared values.
This is triggering very significant changes in gender roles and status. It is,
unfortunately, a statement of fact that women pay an exaggerate toll when their
ethnic group’s material and cultural existence is under threat. The experience of
many Native People in the world shows that the collapse of indigenous societies
130 Maffii
Methodology
A gender and ethnic prejudice shapes the image of indigenous women in
Cambodia, stressing their shyness and reluctance to speak, thereby reducing their
role to that of simple spectators in a male-dominated social life, diligent executers
of agriculture techniques and silent listeners. This view, reiterated by different
informants, solicits a further query: is this the consequence of a gender/ethnic
prejudice or, instead, a true characteristic of indigenous women in Cambodia.
The research was conducted during three different missions from May to
September 2006, in Ratanakiri, Mondulkiri and Kratie Provinces. The indigenous
communities involved were ethnically diverse, reflecting the various composition
of the indigenous population in Cambodia. Most of the discussions needed
translation into indigenous languages. Discussions occurred either in private
houses, or in the village’s community house, and often lasted the whole day long.
We addressed indigenous women directly, asking their consent to our method,
explaining to them the purpose of the research: to bring their voices, testimonies
and problems to a broader audience. We collected their testimonies and oral
histories, gathering their perceptions according to their own hierarchical ordering
of relevance, without imposing on them an external agenda.
Results
The women communicated in a lively and eclectic fashion and discussions were
punctuated with instances of intense emotion. Their great sense of humour helped
to play down some uneasy issues. As a researcher, it was a great privilege to come
in touch with these women and I will be forever grateful to them. The following
testimonies are part of the women’s perspectives collected during the research.
Land
“...My land has been seized to plant rubber trees. It is our ancestor’s land, but now this
land belongs to some government officials. They came and started to measure it. We
are worried because we have heard that government officials will come and take all the
Changes in gender roles and women’s status among Indigenous communities 131
land, even the land where we plant vegetables. First they take and then they discuss.”
A Tampuan woman in Lumphat District, Ratanakiri
“...They sold nearly 6000 hectares of community land. They didn’t discuss it with us.
We don’t know the new owner; we only know that it is a company. Apparently the
district chief and the commune authorities have signed the sale, asserting that the land
belongs to a Khmer man living in the district, allowing him to resell it to the company. “
A Kachak woman in Andong Meas District, Ratanakiri
The majority of the villages we visited were facing a new situation: land is
becoming an object of grabbing, illegal sales, or occupation by in-migrants. Despite
the existence of a Land Law that recognises indigenous rights to a communitarian
land title, land sales and land grabbing are escalating in the region. The areas
closest to the provincial towns and the ones along the main communication axes
are where the highest pressure has been exerted to force land sales, where land
grabbing and reselling mostly occurs, and where most of the new migrants from
lowland Cambodia have settled.
This is what women wanted to talk about, what was happening to them
recently, their main worry and concern.
“...My husband and my uncle were jailed. Somebody came and put a fence around our
land. When we protested the district authority says: ‘Don’t you understand? This land
belongs to other people now!’ My husband and other men pulled out the fence, but
these powerful people forced them to put it back in place. Can you understand how
hard it was for the men being forced to rebuild a fence around their own land? “
A Bunong woman in Sem Monorom District, Mondulkiri.
“...The newcomers come, cut the trees and clear the forests. In the future in this village
we will be only labourers. Some of our youth help them cutting the forest and making
construction wood. When we tried to protect the forest, a policeman and other two
persons warned us. They said: ‘What a strong village is this!’ They looked down on us,
laughing because our village is not strong enough to stop them.”
A Bunong woman in Snuol District, Kratie
Natural Resources
“...The water is not clean; sometimes it has a bad smell, sometimes it goes up very
quickly. When they open the dam the stream is very strong, we cannot fish or go out
with the boat, it is too dangerous. Before we use to dig holes near the banks to get
water but now the stream is too strong and we cannot. Our well is only for drinking
water, we use the river for washing, but now we don’t want to wash the children in the
river. It’s a very big problem.”
Jarai women in Sesan District, O’Yadao
Village disintegration
“...We come here in the plantation after having lost our land. Now we stopped working
because we are tired, thin and sick, men and women. Here there is no forest, food is
not enough, water is very far, it is hard to find wood for cooking. There are no animals
to hunt and fishes have disappeared. Sometimes we go back to our village, but our land
has been sold and there is nothing we can do. Our spirits are in the old village, they do
not protect us anymore, so one of my children died and the other is very sick!. Without
spirits there is no health and the people become sick and die.“
A Tampuan woman in Ban Lung District, Ratanakiri
In many villages, especially the ones nearest to the provincial towns, land
speculation has exerted a harsh pressure on indigenous people. Lured by offers of
money, many people have, in part or completely, sold their land. Often the offer was
ludicrously low, but indigenous people were not aware of the real value of their
land. Moreover, such land selling within the communities has created deep
divisions and distrust. In some cases, under this pressure, indigenous communities
have literally disinteg rated.
Changes in gender roles and women’s status among Indigenous communities 133
In-migration
“...We built the water reservoir, we asked Khmer people living nearby to participate in
the work and expenditure but they didn’t want to. Water is only enough for cocking and
washing ourselves, not to make the laundry. But Khmer people come and wash the
clothes and when we tell them that this is not possible they get angry and blame us.
We did give them the water, but they don’t follow the rules! With some Khmer, howev-
er, we have good relationships. “
A Tampuan woman in O’chum District, Ratanakiri
The internal migration of Khmer ethnic citizens into the indigenous areas
increases the pressure over land and natural resources. Competition for the
resources and a vision of the environment that is diametrically opposed to the one
of the indigenous communities, tend to make newcomers unwelcome.
Due to the circumstances of their arrival and their attitudes, it appears difficult
for indigenous people to build a vision of coexistence and shared values with the
newcomers. A cultural trench divides the communitarian values that lead
indigenous communities, from the hierarchies and the patronage that animates
Khmer society.
Under the pressure of the market economy and land grabbing, people
have tried to secure their land by establishing clear signs of ownership and
by cultivating all the available soil. Cashew nut trees have been planted in the old
plots, either to secure the property and to get cash from nuts sales. The indigenous
system of plot rotation, known as swidden agriculture, has been abandoned
partially or completely for more intensive field exploitation.
place to work.”
A Jarai woman in O’Yadao District, Ratanakiri
This has resulted in an increase of workload, fatigue, and risks that women have
to take in order to guarantee their group survival. Their work has changed too,
becoming more repetitive and less qualified.
Socio-economical changes
“In this village the rich are getting richer and the poor, poorer. Rich have everything,
new houses, motorbikes, buffalos, and poor don’t have the pot to cook. Rich have
things to sell, poor sell their work! I do not see a good future for this village. We have
made some progress, from the house made by leaves we have now houses in wood,
we do not carry the babies with our basket anymore, but for poor families life is as hard
as before”.
A Tampuan woman in Andong Meas District, Ratanakiri
The introduction of cash crops has changed the life of many indigenous people
that, for the first time, have access to a significant income source. However, the
introduction of cashew nut plantation has subverted indigenous land tenure,
shifting towards individual land property and dismissing communitarian land
management. Such change is not without consequences. Within the communities,
inequality is increasing and labour, that before was carried out in a group during
the hardest agricultural works, is now monetized.
“...Even before there were rich families, but they had gongs, jars, buffalos and cows.
Now is changed, they have wood houses, motorbikes, cars... The rich do parties as the
Khmer, with cassette recorders, loudspeakers and Khmer music. Now only the poor do
everything like before: kill the pigs, drink from jars, and make music with gongs.”
A Kreung woman in O’chum District, Ratanakiri
Access to prosperity is inducing the adoption of new values, mainly the ones of
the lowland Khmer, who are seen as a richer and cleverer group. Some traditional
practices are now considered signs of poverty, while the adoption of new ones is
perceived as a sign of wealth.
“...In some families men help the women, but in others life is harder than before.
Traditionally men have only one job, while women have many. We work more than in
the past because men are more in charge of other things; they take the motorbike and
go to sell, while women stick to the hard daily work. It is easy because the husband can
go to sell and buy useful things, but it is harder because women take care of the fields
alone.”
Bunong woman in Puchiri District, Mondulkiri
Confined to the very demanding tasks of assuring everyday family life, many
women see modernity through the eyes of their husbands. The division of tasks
between men and women seems to be widening and changing. If before men’s work
brought them into the forest, hunting, fishing, or carrying out the heaviest and most
dangerous tasks, now it bring them in deep contact with the new social context,
with Khmer people, and with modernity. This is opening the door to new problems.
“...Men drink more than before, now they drink beer and white wine in the district town.
They drink because they are angry, but once they are drunk they are not happier and
they still want to create problems. Sometimes, they are afraid that women will blame
them so they start to blame first. Men now have more free time, so they don’t know
what to do, they play cards and drink. They don’t hunt anymore, so they have less work.
Men want to be higher than women, but now sometime they stay at home, drinking all
136 Maffii
the time and are afraid of women’s disapproval, so they create problems.”
A Tampuan woman in Andong Meas District, Ratanakiri
These aspects are directly related to the level of disruption felt by the commu-
nities. The above-mentioned examples refer to communities nearer to the provincial
towns, facing intense land alienation and in-migration of newcomers.
“...Now we have development and in the future we will have houses made with cement.
However, if our children will study, they will forget their traditions and become like
Khmer, if they don’t study, they will remain ignorant and will be cut off from everything.
So I think it is not good anyway.”
Changes in gender roles and women’s status among Indigenous communities 137
“...Work today is harder than the older generation, at that time no women were labour-
ers! Before we used to weave, but now we cannot, and we exchange products for
clothes. When I was young, there was more to eat, we had more farms and enough
rain.”
An Elder Bunong woman in O’reang District, Mondulkiri
Women’s vision of the future reflects the contradictions and the controversial
value of modernity.
“...This is a village with many ancient traditions. During Pol Pot many things were
destroyed, we lost all our gongs and jars, but afterwards we have managed to buy them
again. We are very proud of it. We keep alive our traditions; we teach the young how
to sing and how to play. They should not lose their culture and we work to keep it alive.”
An Elder Kreung woman in Veunsay District, Ratanakiri
“...We are very worried in our heart; we think that in the future there will be no more
Indigenous people! We want to fight because we want to maintain the forest for our chil-
dren and we want some forest left for their future. Our lives rely on the forest, we are
indigenous and we live in the forest, wherever else should we live? We try to resist,
writing letters to the Commune, if it is not effective, we write to the District, and also to
the Province.”
A Stieng woman in Snuol District, Kratie
Conclusions
Indigenous women appeared vocal, assertive, and willing to discuss and interact;
essentially they do not correspond to the prevailing stereotype. Some authors have
already mentioned how the dominant patriarchal and ethnocentric vision of
138 Maffii
indigenous women can completely obscure the real dimension of gender status
within indigenous societies (Tuhiway Smith L. 1999, Smith Andrea, 2005). This has
often triggered a series of measures and interventions, managed by the dominant
society or driven by the “development” sector, that instead of re-establishing
indigenous women’s status, simply assume the prevailing bias as their main
conceptual frame. The current proliferation of gender education programs
managed by development agencies in the indigenous areas in the North East
provinces of Cambodia, tend to take for granted that indigenous women’s status
reflects the general perception concerning indigenous people: one of underdevelop-
ment, poverty and lack of skills and knowledge. Being unacknowledged,
indigenous women’s status is not protected, and measures to improve their
situation tend to assimilate them into the mainstream society. By not recognizing
ethnic and gender prejudice in the mainstream society, problems faced by
indigenous women who are under threat of being assimilated, get unrecognised
too.
The destruction of the link between indigenous communities and their ancestral
land triggers devastating effects on social ties, beliefs, identities and cultures. By the
assault of this modern frontier, women are left with less power, status, tools and
protection. Violence against women appears in the discourse of women that face
severe land losses, community disintegration and massive in-migration into their
territories.
Indigenous women are facing a series of changes that are endangering their
livelihood, their identity, their culture and their status as women. Their time for
leisure and creativity has declined. Their workload has changed and in many cases
increased. Indigenous women, whose roles as expert agriculturalists in charge of
land management, plant amelioration and seed selection has assured community
survival and livelihood, are now relegated to the role of labourers, their knowledge
and experience unrecognised. The increase in responsibilities for ensuring family
survival has, in turn, isolated them and decreased their exposure to positive
changes.
The exposure of indigenous traditional society to the dominant Khmer culture
is having an impact on the vision of gender and the role of women within
indigenous communities. In lowland Cambodia, a patriarchal culture has shaped
women’s roles and status, imposing strict codes of conduct regulating women’s
behaviour and imposing sex segregation. Male dominance is unchallenged,
domestic violence and violence against women is a prevalent social phenomenon,
involving all generations (Violence against Women Baseline Survey, 2005). The
massive spread of commercial sex by the male population contributes to a
devaluation of women’s status and to an increase in their submission.
Changes in gender roles and women’s status among Indigenous communities 139
References
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Anthropology, 2006, Center for Khmer Studies.
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land and resources tenure in and adjacent to Virachey National Park, Northeastern
Cambodia, BPAMP, 2003, Ministry of Environment Department, Ratanakiri
Cambodia.
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right of Indigenous Minorities in Cambodia: A Human Rights Approach to Land and
Natural Resources Management, Phnom Penh, April 2006.
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Development as Tragedy: The Asian Development Bank and
Indigenous Peoples in Cambodia
Peter J. Hammer
Introduction
History is rife with conflicts between indigenous peoples and outsider groups.
These confrontations have a timeless and often tragic quality. They are revealing
because they juxtapose sometimes radically different manifestations of the human
condition, and highlight tensions between divergent and often contradictory
worldviews. While past conflicts played out under the rubric of colonialism or
Manifest Destiny, today’s confrontations are undertaken in the name of economic
development. One such drama is underway in the Northeast Provinces of
Cambodia, with substantial funding from the Asian Development Bank (ADB). But
contemporary development stories are different from older stories of colonization.
Development agencies are exporting aid and technical assistance, with the dual
objectives of market building and state building. Increasingly, these initiatives have
social as well as economic components. Modern development comes complete with
roads, schools and health clinics, along with pledges to reduce poverty. This is not
all. Indigenous communities are now invited to participate in the process of their
own development. Where such participation is not possible, development agencies
will expend additional resources to build the indigenous capacity to do so.
This paper focuses on “development” as embodied in the policies and practices
of international agencies like the World Bank and the Asian Development Bank. It
examines economic development as its own distinct set of beliefs and attempts to
frame and justify a narrative of “development as tragedy.” Indigenous Peoples in
Cambodia face other obvious threats, such as land grabbing, deforestation and
environmental degradation. These threats reflect the more naked avarice of
economic markets and a predatory state. As such, these threats are more consistent
with a narrative of “development as exploitation.” The narratives of exploitation
and tragedy are complementary and not competitive. Each teaches different
lessons. A tragedy in the Aristotelian sense is a drama that invokes deep feelings of
fear and pity in the audience. The sense of tragedy is driven by the protagonist’s
adherence to a mistaken set of briefs that inevitably condemns his conduct to have
disastrous consequences, foreseeable to the audience but often not the actor.
To reveal the tragedy of modern development, it is necessary to make transpar-
ent the mistaken set of beliefs (the tragic flaw) underlying these initiatives. This is
not an easy task, because our views about development, as well as our perceptions
142 Hammer
of the “other,” are constructed within the context of our own society. To us, the need
for development appears self-evident and beyond question. We are developed.
Indigenous Peoples are undeveloped. The appropriate policy is to make them
more like us. There is a strong internal logic to this analysis. It is this internal
logic, however, that begins to elucidate the mistaken beliefs driving the
tragedy. The German concept of weltanschauung, or worldview, provides a
framework to understand the tragic nature of these programs. ADB policies toward
indigenous peoples in Cambodia trigger an unavoidable conflict between
disparate worldviews. That the indigenous tribes have different languages,
traditions and belief systems (worldviews) is taken as obvious. We see their
differences. But like fish unaware of water, members of the dominant society are
largely unaware of the significance of their own worldview and its impact on
their policies and perceptions.
This article critically evaluates certain ADB Reports on indigenous peoples to
learn not so much what the Reports teach about native tribes, but what they reveal
about the worldview and mistaken beliefs of the ADB and modern industrial
societies. The first report is Indigenous Peoples/Ethnic Minorities and Poverty
Reduction: Cambodia (June 2002) (hereinafter Poverty Report). The second report is
Health and Education Needs of Ethnic Minorities in the Greater Mekong Subregion (2001)
(hereinafter Health & Education Report). These documents are used as artifacts.
Theories about economic development act like mirrors, revealing important
insights into the belief systems of modern societies. A careful analysis of the Reports
illustrates how the problems of indigenous peoples, are often mere projections of
the ADB’s own beliefs, beliefs that are themselves largely driven by the Bank’s
underlying economic models. Framing the problem as a conflict between disparate
worldviews further reveals the limitations of participation as a policy tool.
Meaningful participation in this setting is probably not possible. If participation is
possible, it would have to be approached in a very different manner than it is
currently being practiced.
Section II introduces the concept of worldviews and examines their social
functions. Worldviews provide a framework for comparing and contrasting
different belief systems. Section III deconstructs the ADB Reports to see what they
reveal about the beliefs of the authors. The article argues that the ADB’s own
worldview so constrains its perceptions that it is unable to meaningfully consider
and address the distinct needs of indigenous peoples. Instead of trying empatheti-
cally to engage these people on their terms, the ADB projects its own beliefs upon
these communities. While the unique cultures and traditions of these communities
are acknowledged, these attributes are modeled as “constraints” to development
that must be confronted and overcome. The ADB’s cultural sensitivity is for
Development as Tragedy 143
instrumental purposes only, affecting how policies might be implemented, but not
what policies should be pursued. Section IV looks at the implications of the
foregoing on the prospects of engaging indigenous peoples in the process of their
own development. Understanding development as a conflict between worldviews
reveals the fundamental limitations of participation as a policy tool.
disrepair are no longer able to provide order or meaning for members of the
community.
By their very nature, worldviews are complex and multilayered. Given the
range of individual needs and experience, worldviews operate on multiple,
overlapping domains. Balcomb (2005) contends that worldviews must create
functional understandings with regard to time, space, epistemology, ontology and
kinetology. Understandings of these concepts vary widely between societies. For
example, there are different ways to understand time. In western societies, time is
viewed in a linear manner. The past is behind. The present is now. The future is
ahead. In the west, this linear notion of time is combined with optimistic notions of
progress. Time and history have positive gradients. According to this view, things
are continuously getting better as society becomes more and more developed. This
is not the only possible view of time. Particularly in agrarian societies, time is often
perceived in a cyclical, not a linear manner. Seasons and individuals are in a
constant process of coming into being and going out of being. Among other things,
as will be argued later, cyclical views of time affect one’s concept of order and
progress. Views of space and causation are also contestable. Western views of space
are entirely physical and material. Other societies, particularly pre-modern
societies, view space as a domain where the physical and the spiritual interact
within the same sphere. Different notions of space anticipate different notions of
causation – what makes things happen and how one can influence events.
Correspondingly, worldviews also construct their own internal understandings of
epistemology (reflecting theories of how we know things), ontology (reflecting
theories of being) and kinetology (reflecting theories of power and agency). Every
society weaves together its own stories, traditions and practices conveying mutual
understandings of how and why things are. This combined network of beliefs
constitutes that society’s worldview.
Differences in the content of particular worldviews can be profound. Even so,
all worldviews serve similar functional roles within each given society. Joseph
Campbell (2002) stresses four main social functions of belief systems: 1) a mystical
or existential function; 2) a cosmological function; 3) a sociological function; and 4)
a psychological function. The objective of the existential function is to reconcile the
mystery of life with itself. The cosmological function seeks to explain the causal
working of the universe. The sociological function establishes sets of social norms
and rules governing human conduct and interaction in a society. Finally, the
psychological function guides individuals through significant common life
events – birth, adolescence, marriage, aging and death. While a simple listing of
these functions makes them appear separate and discrete, in practice, the
beliefs, institutions and traditions underlying these functions are intertwined in
Development as Tragedy 145
complicated ways.
Bourdier (2006) illustrates the multiple overlapping roles of beliefs among
certain indigenous peoples of Cambodia.
The function of the myth is multiple. Some, reserved for children, have an educational
and practical value; others offer a view that makes it possible to understand the world
and the place occupied by man in the cosmos. Some explain the behavioral norm
particular to a specific group (food prohibition, interdiction of hunting, or a cultural
practice for a clan among the Jorai and Tampaun); yet others evoke prominent events
that were decisive in the evolution of a group and justify a current situation through an
act committed by the ancestors. (Bourdier at 209).
[Third] the conviction that man is not alone in the universe, for there is a spiritual world
of powers or beings more powerful and ultimate than himself. . . .
[Fourth] the belief that man can enter into a relationship with the benevolent spirt-world
and so share in its powers and blessings. . . .
[Fifth] the acute sense of the reality of the afterlife, a conviction which explains the
important place of ancestors or the living dead . . .
The sixth feature is that man lives in a sacramental universe where there is no sharp
dichotomy between the physical and the spiritual. Accordingly, the physical acts as a
vehicle for spiritual power whilst the physical realm is held to be patterned on the model
of the spiritual world beyond . . . (Bediako1995; 93-95, quoting Turner 1977).
While brief, these descriptions begin to suggest many ways that modern and
pre-modern worldviews differ in their conceptions of self, time, causation, being
and knowledge, as well as the possible complex mixing of physical and spiritual
spaces.
Beliefs in the pre-modern worldview tend to be more holistic and integrated,
acknowledging higher degrees of interdependence between constituent parts. In
contrast, compartmentalization, independence and separability are defining
characteristics of the modern worldview. These differences in beliefs correspond to
differences in social organization. In modern western society, there is substantially
greater specialization and differentiation in social organization. In traditional
societies, there is much less social and economic specialization. These differences
affect how one thinks and how one perceives the world. The greater the differenti-
ation and compartmentalization, the more independent parts become from each
other. One implication is that change in beliefs and practices in one domain can be
made in the modern realm without necessarily triggering cascading changes
throughout the rest of the system. Indeed, extreme differentiation itself encourages
a mind-set that becomes increasingly comfortable with interchangeable matrices of
beliefs made of discrete parts. For example, there can be substantial changes in
modern theories regarding elementary education, or corporal punishment, or the
causes of particular diseases or even the existence of dark matter in the universe
without substantial implications for other sets of beliefs and practices.
Extreme interchangeability of discrete beliefs is not likely to be a characteristic
of more traditional societies. Traditional societies have less social specialization and
more tightly integrated sets of belief systems. In this setting, one can imagine that
it is less possible to isolate and change one particular aspect of social practice or
belief, without triggering potentially far-reaching and unanticipated consequences
in other domains. This difference is worth noting because the contemporary
development expert is trained in the modern mind-set. The economist is trained in
Development as Tragedy 147
control the machinations of men, in particular respective of nature. Accordingly, the land
traditionally belongs to no one; rather, it is temporarily “loaned” to those whom the
spirits, under certain conditions, give their consent. (Bourdier at 118).
In sharp contrast with the modern worldview, man is not separate from the
gods and spirits, and the spirits are not separate from nature. Furthermore, man is
a part of, not apart from nature. “Their way of life is founded on a recognition of
the interdependence between themselves, their environment and their relation to
the spirits and the supernatural forces they believe to inhabit the surroundings.”
(Bourdier at 233). These beliefs are not compartmentalized under the heading of
religion (differentiation according to belief) and exercised only on one day of the
week (differentiation according to time) in a special building called a church
(differentiation according to space). The indigenous beliefs are more holistic and
influence all important decisions. Take, for example, choosing a new site for
planting.
The choice of a site takes two factors into account: a terrain that is suitable in terms of
agronomy and a place where the spirits of the forest accept human intrusion. These two
considerations may appear to be independent of each other, but in reality they are one.
The logic of the Tampaun Weltanschauung does not discern nature as an autonomous
sphere in which the presence of man is only perceivable through his knowledge of it.
(Bourdier at 119).
Like all worldviews, these beliefs afford not only a sense of order, but they also
provide the essential source of meaning for the individual and the community.
Material and immaterial considerations are an integral part of the daily and cyclic life of
the Tampaun. But, rather than being evidence of the fear arising in a human society
unable to understand its world in a “rational” manner, their considerations, quite on the
contrary lend meaning to life. The rituals signify to man that the place he occupies in
his natural environment is not simply that of a predator or of someone whose mission
is to master and conquer at any price the savage condition. (Bourdier at 124).
Within this setting, the governing ethos is one of maintaining equilibrium with
the environment. It is not an ethos of growth and expansion. This has implications
for the selection of agricultural techniques and the choice of appropriate tools and
Development as Tragedy 151
technology.
Moreover, it appears to be clear that the use of a technology reduced to its minimum,
by way of choice and not a constraint of civilization, curbs excessive reliance on the
products of nature and also contributes to the maintenance of equilibrium between
social and natural ecosystems. (Bourdier at 7).
incomparable items might now be viewed as equivalents, at least to the extent that
they are all worth two gold coins. But indulging the assumption that precious
metals have some intrinsic value, the exchange is still relatively concrete. The
notion of paper money, backed by the promise of the state, or credit cards, or new
forms of securitized debt are modern ideas that move further and further away
from concrete forms and into realms of increasingly abstract notions of value,
implicating multiple levels of exchange.
While money, trade and markets have been around for thousands of years, the
more complex markets of modern capitalism are relatively recent phenomena.
Living with and participating in these markets has a profound effect on how we
think and how we perceive the world. This premise serves as the organizing theme
of Jerry Muller’s book, The Mind and the Market: Capitalism in Modern European
Thought (2002). This phenomenon also serves as the focus of Georg Simmel’s 1900
book, The Philosophy of Money. Industrialization came late to Germany and Simmel
witnessed its dizzying transformation. The Philosophy of Money is a meditation on
the many ways that markets and money change both the individual and the
society. “Simmel drew attention to the psychological effects of living in an
economy in which more and more areas of life could be measured in money. Such
an economy created a mind-set that was more abstract,” because the means of
exchange were themselves becoming ever more abstract. (Muller at 244). Labor
becomes both commodified and more specialized. Unlike the indigenous
Taumpaun villager, modern industrialized man cannot do everything for himself.
We specialize in a trade, earn money from that trade and then proceed to buy the
necessities and luxuries of life with that money. This is not an intuitive or natural
framework for constructing the world and operating within it. Simmel’s claim is
that “[t]hrough constant exposure to an abstract means of exchange, individuals
under capitalism are habituated to thinking about the world in an abstract manner.”
(Muller at 244). By necessity, we become more calculating and we become skilled at
thinking in terms of tradeoffs between otherwise unrelated goals and products.
There is an increasing separation between means and ends. “Planning” necessarily
involves complicated and increasingly indirect strategies to fulfill our desires.
In a modern capitalist economy we fulfill our desires more indirectly. To eat, we must
buy food. But to buy it we need money, and that money is earned by working in an
occupation. Becoming established in an occupation requires many steps, beginning
with an education that itself requires years of planning and calculation to acquire.
(Muller at 245).
Simmel further argues that these changes are not limited to markets, but
increasingly spill over and influence how we think about a wide range of
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non-economic concerns.
The clash between markets and the mind is even more disruptive for the
indigenous peoples in Cambodia than for the Germans of nineteenth century
Europe. One can glean snippets of this phenomenon from the ADB Reports that we
will examine in more detail shortly. Take, for example, the commodification of
wildlife. “Before, we did not know about the value of wildlife. Since outsiders have
captured wildlife and taken them in vehicles for sale, many people including
provincial official staff, companies and some villagers see wildlife as equaling
money.” (Poverty Report at 28). The introduction of money, trade and markets
entails a cascading reordering of one’s understanding of the world. In the
indigenous worldview wildlife is wildlife, sharing a relationship with nature, the
spirit-world and man as defined by their religious and cultural traditions. A
completely different understanding is derived from seeing “wildlife as equaling
money.”
The disparity between value as traditionally understood and the values of the
marketplace can be illustrated elsewhere.
Traditionally, highlander wealth has been stored in the form of prestige goods such as
elephants, livestock, antique gongs, and rice wine jars. These are still highly prized by
most highlanders and play a vital role in religious life (jars of rice wine and gongs are
used during religious ceremonies, and livestock are still the most important sacrificial
offerings). (Poverty Report at 22, quoting White (1996)).2
“Yet market forces place a very different value on some of these surplus
possessions; livestock, for example, are often seen as valuable in monetary terms.
Still, even today this placing of a monetary value of livestock has not yet penetrat-
ed the village to a great extent.” (Poverty Report at 22 quoting White (1996)). To
some observers these differences are viewed as curiosities: “The difference in
outlook is often striking. Many Khmer are baffled that highlanders do not exploit
evident economic opportunities such as selling their cattle or cultivating cash crops
on a large scale to ensure a greater income.” (Poverty Report at 22, quoting White
(1996)). For some this might be a curious example of cultural relativism: “Such
differences reveal how culturally subjective perceptions of wealth, poverty, and
what constitutes the ‘good life’ are.” (Poverty Report at 22, quoting White (1996)). It
is clear, however, that much more is at stake. The transition from a non-market to a
market-based economy is not just about economics. The introduction of markets
inevitably triggers a complete and radical transformation of how people think,
what they value and how they understand themselves and their world.
Development as Tragedy 155
individually rational decision making. This worldview dictates its own under-
standings of “how we know things” (epistemology), and “the nature of being”
(ontology). The standards and norms of the community dictate which questions are
acceptable to ask and investigate, and which are not. The relevance of culture and
worldviews to development is not an acceptable question.
So how do economists define development for their own purposes? The
primary objective of contemporary economic development consists of market
building, with a subsidiary objective of state building. The hallmark of develop-
ment is a well-functioning economic market and, in theory, a well-functioning state.
If judged from an empirical perspective in light of six decades of experience, neither
the market building nor the state building initiatives have been radically successful.
Not surprisingly, the failure of modern development has invoked criticism and calls
for reform. Particularly in the past fifteen years, the rhetoric of development
economics has changed to embrace a range of concerns that are difficult to
reconcile within a strict economic perspective. For example, development rhetoric
increasingly reflects concerns for social institutions and gender equality. Health and
education ostensibly are being given higher priority in the new regime.
Development is no longer supposed to be just about roads, dams and factories.
Softer values such as “governance” and “participation” are also playing a new role.
Similarly, the unique needs of indigenous peoples are being incorporated into
the new development framework. The increasingly “human face” afforded
development initiatives is welcome, but it raises important questions. It is unclear
how, or how well, these new variables will fit into the old model. Examining how
the ADB Reports treat indigenous persons in Cambodia is, in part, an opportunity
to shed light on these questions.
What do these artifacts reveal? To begin with, they demonstrate that the new
values have not displaced old development objectives. They are simply layered
over them. The development of indigenous persons in Cambodia does not stand on
its own legs. The ADB’s development agenda for indigenous people in Cambodia is
remarkably similar to the development policies it pursues throughout the Third
World. This core formula consists primarily of an effort to build roads, extend
markets and income-generating opportunities, provide credit and integrate
indigenous persons into the national economy, while simultaneously integrating
Cambodia into the regional and international economy. The Poverty Report
describes the goals of Cambodia’s Second Socioeconomic Development Plan (2001-
2005), developed under the tutelage of international aid agencies:
Specific strategies related to indigenous peoples include building or rehabilitation of the
main road infrastructure; promoting agricultural development and off-farm employment
in both urban and rural areas; and empowering the poor to participate in and benefit
158 Hammer
from the growth process by improving their access to natural assets such as land,
health and education services, appropriate technology, and credit. (Poverty Report at
11-12).
The same theme can be found in the Health & Education Report. “Indigenous
peoples often are not able to participate equally in the development process or share
in the benefits of development.” (Health & Education Report at 3 (emphasis added)).
If the problem is being excluded from development, then the solution is to “target”
indigenous people for development.4
The potential exclusion of vernacular communities from development is tied to
their relative isolation. “The indigenous ethnic minorities concentrated in the
northeastern Provinces of Kratie, Mondolkiri, Ratanakiri and Stung Treng
represent perhaps the most disadvantaged population group in the country. Due
primarily to the region’s geographic isolation, these marginalized populations have
not been integrated into mainstream society and face numerous problems.” (Health
& Education Report at A-1). Targeting indigenous peoples for development
therefore requires eliminating this isolation. This will require the building of the
necessary physical and institutional infrastructure – extending the scope of the
market and the state to include remote Provinces like Ratanakiri. Roads are critical
to modern development and the functioning of the market economy. In economic
parlance, roads facilitate transportation and lower the transaction costs of trade. But
there is a danger. Roads travel in two directions. Roads bring increased contact with
outsiders. Roads have brought a substantial in-migration of Khmers into the remote
provinces. Roads bring commercial goods and new cultural influences. Roads also
facilitate the extraction of resources and timber from the ancient forests which serve
as the homes of indigenous persons. Roads are the primary instruments facilitating
the clash of the modern and pre-modern worldviews.
While there is an eminent logic to roads in the modern industrial worldview,
what is the logic of roads from the perspective of these vernacular communities? In
a world of non-confederated, geographically compact, isolated villages seeking to
live in equilibrium with the local environment, there is no logic to roads. What is
the road for?
[T]he principal points of reference of spatio-temporal orientation are neither the
cardinal points nor the territorial organization imposed by the Khmers, but rather the
sites of the old village, the abandoned swiddens, the hunting trails, the paths
maintained to link the village to cultivated lands, a rock, a thicket where the spirit is
known to live, etc... However, as soon as one is far from familiar space, taking one’s
bearings becomes unclear. Everything that is outside the universe of daily custom, the
distance/limit of which varies from five to ten kilometers depending on the size of the
village, is vaguely described as being “far,” “over here,” “over there,” without greater
precision. (Bourdier at 93).
Roads are not only lacking in logic; they are profoundly dangerous. These
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cultures have been able to survive only because of the absence of roads, a point
ironically acknowledged by the ADB. “Although these areas are poorer, they afford
a certain amount of cultural protection. In the past, isolation limited the contact
between the majority culture and the ethnic minorities, which played an important
role in their cultural survival.” (Health & Education Report at 20).
What have these new roads brought? Roads have brought immigrants,
commercial goods and beliefs that challenge traditional worldviews. “The research
findings show effects of immigration on cultural practices and traditions such as
style of clothing, types of food and housing, taboos and other beliefs, and respect
for elders.” (Poverty Report at 25). Roads and immigrants bring new notions of
land as being a commodity that is the proper object for delineation, ownership,
exclusion and speculation. These are profoundly new ideas, with detrimental and
unintended consequences. Again, when the Poverty Report wants to expressly
incorporate anthropological perspectives, it cites the secondary literature and
segregates the information in highlighted “Boxes” set apart from the rest of the
Report, see, e.g., “Box 3, Land Sales in Kamang Village along the National Road,
Ratanakiri.”
Since the initial land sales along the road four or five years ago, the number of Khmer
in the district center have increased steadily, along with the expansion of Bokeo
market. With many Khmer migrants seeking to acquire land for cultivation of crops, the
pressure on Kamang villagers to relinquish their land rights became severe. The land
parcels most desired by the Khmer buyers are those located along the road. These can
be reached by motorcycle and are directly accessible by transport to either Banlung
market or the Vietnam Border. (Poverty Report at 27, quoting McAndrew (2001)).
Roads and development threaten the survival of the very environment and
sacred forests that define the center of these peoples’ universe.
Environmental factors loom large in the lifestyles and status of ethnic minorities.
Changes in the quality of the natural environment – e.g., deforestation, erosion, decline
in water quality, lost biodiversity, and changing agricultural practices have changed and
are changing the cultures and economic opportunity of many minority villages. (Health
& Education Report at 7).
The roads, markets and development of the modern worldview cannot coexist
with traditional lifestyles and belief systems.
In recent times, the indigenous peoples who live in the wide and scattered areas of the
northeastern provinces have faced unprecedented change. The ever-evolving political
environment, new administrative practices, the rapidly changing economy, and the
migration of groups from the lowland areas have had a major impact on the ethnic
minority groups that reside in this region. With greater integration of the national
Development as Tragedy 161
economy, the northeastern highland areas are increasingly exploited for commercial
purposes.
Government policies that implicitly support these changes are also inadvertently
encouraging the “khmerization” of the highland populations by moving them close to
roads, encouraging settled agriculture, and trying to integrate them into the national
economy. (Poverty Report at 36).
The very next line of the Report cautions that “[t]his offers both opportunities
and risks for the indigenous population.” (Poverty Report at 36). The risks are
fairly obvious from the perspective of the traditional worldview. What, then, are
the opportunities?
For the ADB, the opportunities for indigenous peoples lie in the ability to
partake in the benefits of the development from which they have been excluded.
Roads can be built. Markets can be extended and indigenous peoples can be
integrated into the market economy. To become full economic citizens, however,
there also needs to be a transition from a cashless to a cash-based society. Hence, the
ADB has identified an “urgent need” of these communities:
There is an “urgent need” to enhance the income security of vulnerable ethnic
minorities through targeted programs of assistance. Incomes can be enhanced in
many ways, through access to use of forest products, through marketing of produce,
through agricultural and other wage employment, or through self-employment and
home-based employment for artisanal and other activities. (Poverty Report at 41).
In the traditional society, there was no need for money or income. Security was
based on completely different cultural and material sources. In professing this
urgent need to generate income and therefore to start commodifying every aspect
of their surroundings, there is no awareness on the part of the development
economists of the radically disruptive effects that money can have on one’s
perception of self and one’s surroundings. Indeed, as Simmel teaches, money and
markets can affect profound changes on one’s very process of thinking. The reader
should recall the visceral reaction of the Taumpon villager against specialization
and to wage labor. If income security is an urgent need, it is certainly not an
indigenous one. This is illustrative, however, of a tendency throughout the Report
to interpret the problems of vernacular communities through the lens of the
modern worldview and then to project these concerns back upon the indigenous
peoples. This is dangerous because needs, particularly urgent needs, are then used
to define policies and priorities.
The reasoning is often circular. Income is necessary because it is essential to
overcoming poverty. Poverty reduction is the central mission of the Asian
Development Bank. But, what is poverty? In development circles, poverty is
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The real question is not whether, but how groups like the ADB address the
needs of vernacular communities. ADB has sponsored workshops and cataloged
the problems that need to be addressed:
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Challenges to the traditional way of life were highlighted at this workshop, particularly
the growing immigration of lowland Khmer to Ratanakiri Province which is increasing
the population density and preventing traditional swidden agriculture, as well as caus-
ing access problems to nontimber forest products. (Poverty Report at 21-23).
The Report adds: “Central to this ABD project is the belief that development is
both possible and desirable in a multiethnic society.” (Health & Education Report
at 33). The focus then becomes how, not whether, development should proceed in
light of these distinct cultural concerns.
Development as Tragedy 165
and values; and (3) language. With respect to the constraint of lack of understanding
and knowledge about the population, the Report states that “differences in
language, educational level, class, and ethnicity can create barriers to real
communication and effective service.” (Health & Education Report at 18). In terms
of the competing knowledge systems, practices and values constraint, the Table
contends that “standardized interventions... often fail to acknowledge and validate
the use of traditional indigenous knowledge systems. In turn, minority peoples can
be skeptical of services that challenge traditional knowledge and practices, and
resistant to participating in such services.” (Health & Education Report at 19).
Lack of Understanding and knowledge about the population is identified as a
variable that can impede both the physical access to services as well as the use of
existing services. According to the Report, the “locus of possible solution” lies with
the service provider on the supply side of the equation. Competing knowledge
systems, practices and values is another factor that can impede the use of existing
services. Interestingly, the “locus of possible solution” rests both on the supply
side with the provider, but also on the demand side of the equation with the
“community to be served.” Changing traditional beliefs and values, which the ADB
treats as a choice variable, will naturally lead to an increased demand for modern
education.
The notion that improper sets of beliefs can simply be changed is found
elsewhere in the Report. “All societies have beliefs about the best way to maintain
health and the proper way to educate children and adults. In the case of health, this
includes beliefs about how people become sick and what steps should be taken to
maintain and improve health. Societies also have beliefs about what should be
taught to their members.” (Health & Education Report at 25-26). The Report
quickly adds, however, that “[i]t is important to point out that traditional beliefs are
not necessarily fixed and unchangeable.” (Health & Education Report at 26).
The first order goal is to provide health and education. The challenge then
becomes how best to design and market these programs. This is where cultural
sensitivity and community participation come in, but these concerns only
influence how things are to be done, not what is to be done. The Report states that
“[e]xpanding consultations with local communities in order to understand the local
sensitivities and opinions will enhance project and program success.” (Health &
Education Report at 37). Programs also need buy-in on the part of the local
population. “To be most effective, outreach and program interventions need to be
designed by highland minorities themselves, adapted to the unique culture of each
ethnic group served, available in the language of each ethnic minority group
served, and led by ethnic minority people.” (Health & Education Report at 37).
It is telling how, in constructing the mind-set of indigenous persons for
Development as Tragedy 167
purposes of evaluation, the authors of the Report project a very rational cost-
benefit formula on the indigenous decision makers. In assessing education the
Report asserts: “For many ethnic minorities, the costs of education may well
outweigh the benefits, especially if the quality of teaching is low, students don’t
speak the language used in the school system, textbooks are in short supply, and the
education is seen as irrelevant to the community.” (Health & Education Report at
12). The projections of the Poverty Report are similar.
[I]ndigenous children are less likely to go to school than the average Cambodian
children. Some reasons include (i) the low standard of living of indigenous people, so
that in many cases the opportunity costs are too great (children are required to help in
the field and look after siblings and animals, while the planting and harvest season
needs intensive work in which all household members must assist, such that during
these times many children drop out of school); (ii) the schools are often too far from
their homes; (iii) there is a lack of learning materials; and (iv) many people cannot
afford school uniforms for their children. The high cost has to be compared with the
benefits of education which appear to be low in the highland area. (Poverty Report at 19).
This is exactly how I, as an economist, would break down and evaluate the
relevant factors. The point is not that these factors are irrelevant, nor that
indigenous people do not think in a rational manner, rather, the point is that it is
questionable whether this strict cost-benefit analysis accurately reflects the actual
thinking of the “targeted” communities. A similar projection can be found in the
assessment of health care services. The Poverty Report acknowledges the linkages
between health and worldview: “The health status of indigenous villagers cannot
be separated from spiritual beliefs or social life.” (Poverty Report at 32). The Health
and Education Report, however, reverts to standard cost-benefit analysis. “In
addition to considering the costs” of services, households must also consider the
value of the services they are using. If services are of poor quality, they will not
be used regardless of the cost.” (Health & Education Report at 17). Medical
anthropologists would note that there are many other ways to think about how
health fits within the constellation of traditional beliefs and how decisions are made
at the individual and community level.
The ADB is incapable of escaping the limiting parameters of its own economic
worldview. To be sure, an analysis that recognizes the different linguistic and
cultural differences as factors to be considered in program implementation
produces more defensible policy recommendations than one that does not. The
Reports make persuasive recommendations that the educational system should
better conform to local needs. “Education projects should take into account the
labor needs of households and adjust the school schedule to reflect the agricultural
168 Hammer
calendar.” (Health & Education Report at 22). The Reports also advocate for
curricular materials better suited to the discrete needs of the indigenous
communities (rather urban Khmer dwellers in Phnom Penh) and for greater
openness to the use of local languages. These are appropriate second-order
refinements for policy implementation, assuming that modern educational
institutions are in fact called for. A mind-set that treats culture and belief only as
second order concerns, however, can never be self-critical as to whether its first
order development prescription is appropriate in the first place. The failure to
understand the culture, belief systems and lifestyles of indigenous peoples as
part of a larger integrated worldview makes real understanding, dialogue and
participation impossible. Trapped in the confines of its own worldview, the ADB is
incapable of empathetically engaging the other.
These concerns were incorporated into the 1997 Draft Guidelines intended to
govern development decisions affecting Cambodia’s indigenous peoples. Given
that there is no history of such participation, the ADB further identified the need for
Development as Tragedy 169
The implications are clear. Indigenous people will participate. They will
participate in accordance with western notions of gender equality. Capacity will be
built and they will be trained in the correct manners of gender-sensitive participa-
tion. Finally, they will be criticized to the extent that they permit their own culture
and worldview to influence how they actually participate.
The authors of the ADB Reports are so captured by their own worldview that
they are not aware of the serious “problems” raised by this passage. Can one obtain
gender-sensitive participation in these communities and not already substantially
change the local culture in the process? Should indigenous people be able to choose
for themselves how gender sensitive and in what manners they want to be? The
dominant tone in the Reports is that indigenous peoples must take development
on western terms. Furthermore, whatever participation is envisioned, it is not
permitted to redefine the first order components of development. Ironically, the
envisioned participation is not even flexible enough to permit indigenous partici-
pants to redefine the ground rules of the participation itself. Participation must
proceed in accordance with western norms and conventions. The thought of
participating in the native languages or building the capacity of the ADB to participate
is never raised or discussed.
Again, projects addressing issues of gender help highlight these underlying
tensions. UNDP has initiated a program for “reducing the workload of hill tribe
women in Ratanakiri.” The objectives of the project are defined as follows:
This project sought to improve the status of women in Ratanakiri by reducing their daily
work load and increasing their opportunities for decision making, education, and
income generation through formation of a women’s group, exchange visits, monitoring
and interaction with VDCs [Village Development Councils]. (Poverty Report at 17).
The project to reduce the workload of hill tribe women further illustrates the
modern tendency toward hyper-compartmentalization. The first slice is to look at
gender in isolation from other aspects of the social context. The next slice is to focus
on sex-based divisions of labor, then to look at labor in terms of workload, with
workloads being predominately a category that is best understood and measured
Development as Tragedy 171
in time. Reducing workloads saves time. The saved time is then a substitutable
commodity that can be redeployed and used for other objectives in furtherance of
the modern worldview – opportunities for decisionmaking, education, and
income-generation.
From a western standpoint, this may be an excellent project. It frames and
analyzes the problem in a sophisticated manner. It respects important western
values and it resonates with a progressive modern worldview founded on
principles of gender equality. The problem, however, is that these values are being
projected upon others who operate in accordance with a different set of values and
beliefs. Again, the problem, such that it is, is a projected problem. The frames for
understanding the problem and the proposed policy prescriptions are also modern
projections. Even if one believed that the problem were real, and that the women in
these traditional communities are the ones who should be afforded the ultimate
choice as to whether and how their workloads should be reduced, there is no
obvious way to know what that choice would be, and probably no means of
soliciting such a decision that did not itself do serious damage to traditional norms
and beliefs.
Unfortunately, participation is being institutionalized on a scale that far exceeds
individual development projects. Contemporary development consists of
state-building as well as market building. In a move potentially as disastrous as
building roads to the doorsteps of indigenous villages, the SELIA experiment of
decentralized and deconcentrated governance is seeking to reshape local processes
of decisionmaking in Ratanakiri, and to better connect these apparatuses to the
central state. (Poverty Report at 16, McAndrew (2001). Distance from the modern
state and the ineffectiveness of bureaucratic institutions to project state authority
to these distant Provinces is what helped ensure the cultural survival of these
communities. The systemic institutionalization of western-style, ground-up
forms of participation will substantially undermine traditional forms of social
organization and decisionmaking in indigenous communities.
communities will not only have markets, roads, schools and clinics, but they will
also think about, understand and utilize these social institutions in a western
manner. Development here seeks to change minds as well as markets.
This approach to worldviews is both naive and dangerous. It is true that no
worldview is static. By their very nature, worldviews are dynamic and adaptive.
They must be if belief systems are to continue to produce order and meaning in a
changing world. At the same time, however, worldviews are self-constrained in
their abilities to change and adapt. They can stretch, but they can also break. The
best conceptual analogy is to an ecosystem. Worldviews need to be approached as
integrated wholes, recognizing the high degrees of interdependence between
constituent parts. Entire ecosystems can collapse if subjected to improper strains.
Ecosystems also embody illustrations of cascading effects and unintended
consequences. The same is true of worldviews. Like an ecosystem, worldviews can
also crumble and fall into disrepair. The pragmatic test is whether the existing belief
system continues to provide order (adequately explain events) and to provide
meaning (the existential function). When worldviews fall into disrepair, the results
can manifest in forms of social psychoses for members of the community. Dalton
(1967) talks about the social malaise often associated with development in tribal
societies. Campbell discusses the fate of the American Plains Indians, with the
killing of the buffalo and the resettlement on reservations. (Campbell 2002). Within
a single generation, the Plains Indians’ symbolic ordering of the universe was
completely destroyed. The psychosis took the form of the sweeping in of the
peyote cult and the apocalyptic Ghost Dance movement. The disrepair of a
worldview also makes individuals and entire communities vulnerable to religious
conversions, which, from this perspective, is an attempt to trade in one belief
system for another in a desperate search for order and meaning.
Why should this matter to development theory? Building from development
paradigms of food security, income security and physical security, Adam Ashforth
advocates the need to pay attention to the spiritual security of communities
(Ashforth 2005). The concern for spiritual security naturally follows from an
appreciation of the significance of worldviews. This is not an abstract or esoteric
diversion. Spiritual insecurity is directly triggered by the failure of the prevailing
worldview to serve its primary functions. External development policies can be
appraised in terms of their likelihood to disrupt existing belief systems and trigger
the forms of social stress and psychosis that historically have been observed.
Pragmatically, Dalton argues for the need to help facilitate cultural and technological
innovations to accommodate the changes wrought by economic development.
(Dalton 1967). The failure of the ADB Reports on indigenous peoples to even
consider such possibilities is testimony to the ADB’s blindness to the relevance of
Development as Tragedy 173
Notes
1. “We are, in fact, in the presence of populations that are scattered in outlying
zones of the country, societies without a script and that have a matrilineal line of
descent, the federated organization of which does not exceed that of the village and
whose dispersed settlement is nearly sedentary.” (Bourdier at 202). “Above the
village unit whose average is about 200 people there is no collective forms of
socio-political organization, notwithstanding the mutual recognition between
villages belonging to the same group or to different ones.” (Bourdier at 233). “It is
of course permissible, and entirely pertinent, to characterize the indigenous
societies in Ratanakiri as stateless societies . . .” (Bourdier at 201).
2. Tellingly, when the real lives of indigenous peoples find their way into the ADB
Report, it often comes in the form of excerpted materials from the anthropology
literature. These excerpts are cabined in Boxes of highlighted text and physically
separated from the ADB’s own textual narrative. This information comes from “Box
1-A Definition of Highland Poverty.” (Poverty Report at 22).
3. Not surprisingly, people in other academic disciplines with different professional
training will approach the same issues with radically different methods and come
to radically different conclusions. Contrasting the contents of Don McCaskill and
Ken Kampe (1997) collection in Development or Domestication? Indigenous
Peoples of Southeast Asia with the ADB Reports on indigenous peoples nicely
illustrates this point.
4. Others have commented on the prominent role that military terminology like
“targeting” and “interventions” play in contemporary development rhetoric.
(Bourdier 2007). Viewing indigenous communities as objects to be targeted is not
conducive to empathetic engagement. Ironically, the ADB’s Health Report also
provides some vivid examples of the darker side of being targeted. “The Khmer
Rouge targeted the Cham, forcing them to adapt Khmer names and requiring them
to give up Islamic Practices.” (Health Report at A-2). “The Pol Pot Regime targeted
the Vietnamese community and forced virtually all of its members to leave the
country, killing many in the process.” (Health Report at A-2). “The Chinese often
were targeted by the Pol Pot Regime due to their wealth, although not with the
same fervor as the Cham and the Vietnamese.” (Health Report at A-3).
Development as Tragedy 175
References
Ashforth, Adam. 2005. Witchcraft, Violence and Democracy in South Africa. University
of Chicago Press, Chicago and London.
Asian Development Bank. 1999. The Bank’s Policy on Indigenous Peoples. ADB,
Manilla.
Asian Development Bank. 2001. Health and Education Needs of Ethnic Minorities in the
Greater Mekong Subregion. ADB, Manilla.
Asian Development Bank. 2002. Indigenous Peoples/Ethnic Minorities and Poverty
Reduction: Cambodia. ADB, Manilla.
Balcomb, Anthony O. 2005. “Worldviews: What are They? How are they Formed?
How do they Interface, Collide and Mix in Africa?,” paper presented at Seminar on
Indigenous Knowledge (April 6-7, 2005). World Bank, Paris.
Bediako, Kwame. 1995. Christianity in Africa: The Renewal of Non Western Religion.
Orbis Books, Maryknoll, New York.
Bourdier, Frederic. 1996. Provincial Statistics and Statistics of Ministry of Interior 1995.
Ministry of Interior, Phnom Penh.
Bourdier, Frederic. 2006. The Mountain of Precious Stones, Ratanakiri, Cambodia:
Essays in Social Anthropology. Center for Khmer Studies, Phnom Penh.
Bourdier, Frederic. 2007. Institutions and Social Actors involved in the Struggle Against
HIV/AIDS in Cambodia: A Political Anthropology of Human Agents and Agencies.
Brown, Ellie, et al. 2003. Health Benefits and Practices about Malaria in Ratanakiri:
Findings from Social/Anthropological Research.
Campbell, Joseph. 2002. “The Thresholds of Mythology.” In Inward Journey: East and
West, Joseph Campbell Audio Collection.
Dalton, George. 1967. “The Development of Subsistence and Peasant Economies in
Africa.” In Tribal & Peasant Economies: Readings in Economic Anthropology. Edited by
Dalton, George. University of Texas Press, Austin.
Maki, Uskali. 2001. The Economic World View: Studies in the Ontology of Economics.
Cambridge University Press, Cambridge and New York.
McAndrew, John P. 2001. Indigenous Adaptation to a Rapidly Changing Economy:
The Experience of Two Tampaun Villages in Northeast Cambodia. CIDSE Cambodia,
Phnom Penh.
McCaskill, Don and Kampe, Ken, eds. 1997. Development or Domestication?
Indigenous Peoples of Southeast Asia. Silkworm Books, Chaing Mai.
Mehmet, Ozay. 1995. Westernizing the Third World: The Eurocentricity of Economic
176 Hammer
populations are numerically less than the Khmer, Lao, Vietnamese, Cham and
Chinese migrants, even though, paradoxically, they still represent the majority of all
inhabitants living in both provinces.
The legacy of the past, reoriented by ongoing changes taking place in a
globalizing micro-environment, has led outsiders (deciders, developers, external
observers, and some social scientists), to use conventional terminologies, which are
supposed to reflect the status and life conditions of the indigenous populations
in a given area. Apart from the ambivalent notion of “minority,” one of them,
generally accepted as a matter of fact, is the concept of “margin” and its associated
component of “marginalization.” The second is the notion of “exclusion” which is
referring either to a relative physical isolation or a social vulnerability. The latter
denotation maintains the idea of inadequate access in terms of geographical and/or
socio-economic characteristics. I will come back later in the paper to the meaning
and ambiguity of these concepts, but let me first clarify the rationale for my
analysis, which is the purpose of this presentation.
have a place in the future, if they keep thinking and behaving in the same manner
as their forefathers. Retroactively, rejecting the preconceived idea of being
backward just because they live in the forest (the place where according to the
Khmer popular culture both dangerous spirits and wild human beings are living)
encourages, to some extent, young men to be flexible with facts and figures coming
from the Khmer world. As one young Tampuan told me once, “we need to inject
modern urban life into our village; otherwise we will get lost and get bored very
quickly.”
This reflection inevitably leads to the need to scrutinize the use and abuse of the
concept of margin, implicitly associated with marginalization. I will just introduce
some of its properties deserving attention or rectification. Most of the time, margin
has a negative connotation, worse again for marginalization. The concept of mar-
gins has a different meaning for a geographer, a historian and an anthropologist.
The former privileges the spatial dimension without sufficiently articulating it with
its related cultural factors, while the latter undervalues the territorial compo-
nent. In between, historians have the advantage of apprehending it as a process.
Some anthropologists join them by insisting on the existing social dynamics,
giving therefore importance to the interaction between a context, its history
and the prevailing interference orienting actual and potential changes.
None of these approaches is entirely wrong, but none is totally true. No
discipline has an exclusive means for finding the real way. But each discipline has
a “sensitivity” to inaugurate a particular angle of perception through its own
scientific tools. Under these circumstances, it becomes more relevant to join efforts
to provide deciders and developers with an exact contextual understanding of a
specific social and cultural configuration. For instance, the notion of margin is
traditionally used in reference to the notion of center. But one cannot validate the
idea that a center (sometimes opposed to the notion of periphery) as per se the
crucible for marginalization. Karl Marx himself suggested the ambiguity of this
correlation by showing that the evolution of the socio-economic inequalities in
primitive societies, and later on the emergence of social classes and the state, was
an essential condition for a collectivity to respond effectively to a continuous
challenge which has been most of the time imposed by a small number of people,
most of the time labeled as marginal.8 In that respect, marginalization cannot
unilaterally be perceived as an unconstructive procedure (even as a fate), but as a
potential synergetic force allowing response and stimulation. Historians, more
sensitive to the evolution of the collectivities and the circumstances enabling them
to go in a particular direction, probably have more awareness of such constructive
assertions.
perceived by deciders and implementers, but also how local populations react to
their insertion (or possibly to their exclusion) in a global world.
Generally speaking, the main tendency is to witness an increasing number of
inconsistencies in the social relations. This is at first reflected within the village,
taking the form of competition (a notion with very limited cultural foundations
fifteen years ago) for access to property, financial assets, material goods and
natural resources. In the villages where I stayed fourteen years ago and later on
came back from time to time, I could observed a tendency for the men to be more
prone to elaborate alternative socio-economical networks for personal interests,
rather than to a collective one as before. Such social distance, turning into rivalry,
occurred also within the family, when a couple decides to move apart to avoid
traditional sharing activities, when the husband alone gets material advantages,
which retroactively generates splits within the household unit.
The second kind of confrontation takes place during the encounter (or absence
of encounter) between actors of change and villagers. Normally, even if some
developers tend to forget it, development has to be considered as a negotiation.
This negotiation, which is the key essential dimension for a potential enhancement
liable to avoid further conflicts, implies information, awareness and a mutual
understanding. But so far, all these co-comprehensive components do not prevail.
In most of the villages in Ratanakiri, they are totally absent. With the exception of a
few individuals, who rarely represent the collective aspirations of the other
villagers, indigenous populations have limited access to government plans.
Sometimes they do not have any knowledge at all about what is going to happen,
such as when it comes to the “Triangle Development Program,” a huge political and
economical agreement between Laos, Vietnam and Cambodia that will drastically
alter Ratanakiri’s upcoming socio-economic configuration.
In this impressive economic development program, which has already started
with infrastructure construction (from road improvement to one Casino supposed
to be built soon at the Cambodian/Vietnamese border!) and new attractions for
private economic investors (land concession, woodland management obscured by
rampant corruption and illegal logging controlled by top people), local people have
never been consulted. And for those (NGOs members, developers…) who managed
to read the official documents written a few years ago – which were not supposed
to be disseminated – highlanders hardly exist as beneficiaries, just sometimes as
potential workers, liable to participate for the improvement of a farming system,
which is not theirs and which will remain out of their economic control.
As a result, inhabitants of the province are aware that something is in the
pipeline, probably to their detriment, but they do not know what, and therefore are
not in a position to respond to any hidden questions related to their future. Every
184 Bourdier
day forms of social resistance are difficult to emerge in the absence of politically
visible developments. If someone intends to raise his voice or if he is ready to
struggle, he needs to have a minimum awareness of what is going on. At this stage,
the silence of the government is one of its most powerful and terrible arms.
Consequently, most of the local peoples, who have been living there for
centuries with a long term vision strengthened by a real sense of solidarity – at a
time when the notion of community at the village level had a real meaning – are
developing a short term vision, linked with the sentiment of surviving in a new
insecure social environment, in which individualization procedures overshadow
social cohesion. In that way, marginalization is coming up. A marginalization
rooted in a political hegemony of a State not yet ready to listen to the people’s
voices, and more attentive in manipulating them under the name of national
welfare.
When the margins turn one’s step toward an object of desire 185
Notes
1. Michel Foucault, L’archéologie du savoir, Paris, Gallimard, 1969, pp. 75-84.
2. Susan D. Blum, Margins and Centers: A Decade of Publishing on China’s Ethnic
Minorities, The Journal of Asian Studies, Nov. 2002, 61(4), pp. 1287-1310.
3. This passage uses the nowadays forgotten concept of Lucien Lévi-Bruhl. Lévi-
Bruhl (1857-1939) was a pioneering French anthropologist whose studies of so-
called primitive cultures had an impact on depth psychology. Lévi-Bruhl believed
that so-called primitive cultures existed in a “pre-logical,” mystical state of mind
marked by non-contradiction and, more importantly, participation in a collective,
totemic idea. He contrasted the pre-logical to apparently individualized, “rational”
peoples bearing contemporary scientific cognition. Later in his career, Lévi-Bruhl
conceded that modern people also experience mystical dimensions, but not as visi-
bly as so-called primitives. C. G. Jung used Lévi-Bruhl’s term “participation mys-
tique” to assert that the collective unconscious is a buried storehouse of psycholog-
ical energy inherited from mankind’s ancestral past.
4. Pierre Clastres, Chronique des Indiens Guayaki, Ce que pensent les Aché, chas-
seurs nomades du Paraguay, Paris, 1972, Plon.
5. Hélène Clastres, La terre sans mal, Paris, 1980.
6. Philippe Descola, Par delà nature et culture, Paris, 2006, Seuil.
7. It has become known as Actor-Network-Theory (ANT), cf. Bruno Latour,
Reassembling the Social. An Introduction to Actor-Network-Theory, Oxford, 2005,
University Press.
8. Quoted in Maurice Godelier, Horizon, trajets marxistes en anthropologie, Paris,
1977, Maspéro: 30-31
9. Henri Lefèvre, Critique de la vie quotidienne, Paris, 1977, L’Arche.
10. Michel Foucault, Power/Knowledge. Selected Interviews and other Writings
1972-1977, Brighton, The Harvest Press.
11. Nowadays this is done by the state and not undertaken by the pursuit of
Buddhist religious achievements, with symbolic heralds as the King (in spite of
being symbolically present and popularly recognized).
Part Three: Constructing Self and Others: Understandings
Beyond Borders
Notions of ethnicity and majority and minority status are quintessentially about
defining self and others. In the past, these efforts were deeply influenced by
colonization. Today, they are heavily influenced by the forces of modern
nation-building. Some groups are largely victims in these external dynamics, being
stamped with labels and put into categories largely outside of their control. Other
groups are able more effectively to engage in the processes that construct their own
identities. The papers in this section explore different aspects of how concepts of
self and other are constructed and redefined.
Ethnicity and religion are not the only markers of difference and group definition.
Darren Zook looks at disabled persons in Cambodia. Continuing the discourse
of nation-building, Zook investigates how disabled persons have been able
effectively to engage the political process in a manner that starts to redefine the
boundaries of inclusion and exclusion. In the final paper, Ed Green explores the
lives of those he terms “the important forgotten” – men living in rural Indonesia
who have sex with men (MSM). The paper embodies many of the themes of the
volume. Self-definition is a critical step in establishing awareness of a group
identity. Sexual orientation runs headlong into many of the boundaries defining
life in rural Indonesia: understandings of gender, family and religion. Green’s work
ensures that these lives and these stories will not be forgotten and illustrates how
appreciating differences is often the first step in cultivating understandings that can
go beyond borders.
Minorities, the State, and the International Community in
Cambodia: Towards Liberal Multiculturalism?
Stefan Ehrentraut
State Nation-Building
In a nutshell, Kymlicka demonstrates that nation-building is a standard
operation of all modern states. States engage in deliberate projects of citizen-
making aimed at creating a national identity among a diverse population by means
of participation in national institutions operating in one national language. The
practice of state nation-building and the public institutions it shapes systematically
privileges speakers of the dominant language and marginalizes speakers of
minority languages, not least by perpetuating the former’s societal culture into the
indefinite future at the expense of all others. Because virtually all states have been
or are engaged in this kind of majority nation-building, minorities in all states face
common threats from states. These threats are unique to minorities and justify
certain standard protections from states, in the form of distinct sets of positive
minority rights. Minorities need protection from states not (primarily) as a matter
Minorities, the State, and the International Community in Cambodia 191
of liberal values, but as a matter of universal, basic norms of equality and fairness
between groups and their members in modern states (Kymlicka 2001: 242-253).
In this view, it is the mode of minorities’ historical incorporation into the state
that most profoundly shapes the identities of its members, their responses to state
nation-building and the relationships to the larger society to which they aspire.3 In
the case of national minorities, cultural diversity comes about by the involuntary
incorporation into a state of a territorially concentrated, self-governing society.
National minorities typically resist state nation-building, aspire to the perpetuation
of their cultures as separate societies alongside the majority culture, and claim the
self-government rights necessary to do so.
does not enjoy substantial language and self-government rights and there is no
group of recent immigrants that does.
In contrast, national minorities – including indigenous peoples – did not choose
to migrate. These groups formed self-governing, territorially concentrated,
culturally distinct societies prior to their involuntary incorporation into aspiring
nation-states. What justifies specific rights for such groups is not that they were the
initial appropriators of their homelands but that they were self-governing and
might have maintained their independence in a different constellation of power.
The loss of this independence came about by a violation of their inherent right to
self-government through coercion and colonization. In this regard, the situation of
national minorities is not generally different from overseas colonized peoples, such
as the Khmer during French rule. Because their involuntarily incorporation was
unjust, and because of the profound interest people have in access to their own
culture, members of national minorities should not be required to integrate into the
mainstream society but enabled to maintain distinct societies alongside the
majority culture (Kymlicka 2001: 149). Protecting national minorities from unjust
state nation-building involves providing to them the same powers and tools of
nation-building which the cultural majority takes for granted (Kymlicka 1995: 26-
33).
conflicts managed peacefully within the normal democratic process. It was this at
least perceived success that contributed to the process of internationalization of
Western multiculturalism via international organizations, of which many have
adopted minority rights policies, declarations and conventions. These minority
rights provisions emerging in international law mark a profound change in the
ideal of a “modern state” promoted by the international community. Previously,
this ideal was a central, unitary nation-state with one set of national institutions
operating in one language only. In contrast, what international organizations today
are promoting is a radically different ideal of group-differentiated citizenship in
decentralized states that use federalism and local and regional autonomy to
accommodate the claims of historical, territorial minorities to self-government and
language. This is consistent with contemporary state practice in virtually all liberal
democracies (Kymlicka 2007: 31-39).4
However, liberal multiculturalism came to be legally codified at the level of the
UN in a way significantly different from established practices and distinctions in
the West. The UN system during recent decades has singled out the category of
indigenous peoples for strong targeted minority rights norms. Various international
organizations have adopted conventions, declarations and a wide range of policies
and mechanisms to articulate, promote and protect the rights of indigenous
peoples, such as ILO Convention 169, the UN Declaration on the Rights of
Indigenous Peoples and Worldbank Operation Directive 4.10. Few UN agencies
today do not have specific projects, programs, policies, funds, fellowship programs
and the like to promote indigenous peoples specifically. Various governments, such
as Denmark’s, Norway’s, Spain’s and Sweden’s as well as the European Commission
have adopted policies to ensure respect for indigenous rights in the implementation
of technical cooperation programs. The international community has facilitated the
emergence of a forceful international movement of indigenous peoples demanding
from states recognition of their rights to self-government, lands and resources,
cultures and languages. Large and increasing numbers of minority groups from
Asia continue to join this movement.
Among the latest step in this internationalization of minority rights was the
adoption of the UN Declaration of the Rights of Indigenous Peoples in September
2007. International law at the UN level today attributes an extraordinarily wide
range of the strongest possible minority rights, including the right to self-
determination, to “indigenous peoples,” and to them only. Consider just a few of the
articles that the UN Declaration describes as “minimum standards:”
Article 3: Indigenous peoples have the right of self-determination. By virtue of that right,
they freely determine their political status and freely pursue their economic, social and
cultural development.
196 Ehrentraut
inates and is most readily recognized, namely the US, Canada, Australia and New
Zealand.
Any national minority now has very strong incentives to identify as indigenous
people, because recognition as such is the only legal way to gain international
protection for the kind of territorial and historical interests and aspirations that
indigenous peoples share with sub-state nations. Among the minorities now
debating adoption of the indigenous peoples label are the Crimean Tatars, the
Roma, the Palestinians, the Abkhaz in Georgia, the Chechens in Russia and the
Tibetans in China (Kymlicka 2007: 207). Kymlicka suggests that this re-identifica-
tion resulting from incomplete international protection is not going to benefit either
indigenous peoples or sub-state nations in the longer-run:
The net effect of such shifts in self-identification would be the total collapse of the
international system of indigenous rights … Yet there is very little within the current UN
indigenous rights machinery that prevents such a shift from taking place (Kymlicka
2007: 208).
national minorities. Cambodia’s ethnic Chinese and Vietnamese are rather close to
the paradigm case of immigrant groups, while Cambodia’s highland peoples are
fairly close to paradigm cases of indigenous peoples. The incorporation of ethnic
Vietnamese and Chinese generally came about by individual and familiar migra-
tion to Cambodia and it was voluntary insofar as no coercion on the part of the
Cambodian state was involved. Both groups maintain and cherish aspects of their
cultural heritage in Cambodia, but neither group aspires to self-government or
autonomy. Nor would such autonomy claims be accepted by the majority society.
While ethnic Chinese are generally integrated to a higher degree than ethnic
Vietnamese and participate more fully and successfully in mainstream institutions,
this reflects two significantly different histories of migration. Part of the difference
is timing, as most ethnic Vietnamese have arrived more recently in Cambodia. It
also reflects different degrees of acceptance among the majority population. Due
not least to a history of Vietnamese colonization resulting in the removal of the
Mekong Delta from Cambodian jurisdiction, as well as the Vietnamese occupation
during the 80s, Khmer find it hard to recognize Vietnamese as a legitimate ethnic
group in Cambodia. In contrast, ethnic Chinese are accepted as full and equal
citizens and having Chinese ancestors is often associated with higher status and
prestige (Edwards 1996).
But more important than those differences is what ethnic Chinese and
Vietnamese in Cambodia have in common: a history of migration from a culture
that controls and is perpetuated by a state or sub-state elsewhere and the absence
of aspirations to self-government and language rights in public institutions.
Historically, members of both groups came to Cambodia and there is no evidence
of either group having aspired to establishing a parallel set of nation institutions.
It is thus clear that Cambodia’s highland peoples are not immigrant groups, but
fall on the national minority side of the Western multiculturalist distinction. If there
are such things as “indigenous peoples” in the region, highland peoples can be
fairly counted in that category. This is what the international community has
consistently done since the establishment of the current Cambodian state in 1993.
Today, most highland peoples continue to form not just sub-groups of
Cambodia’s mainstream Khmer society, but largely autonomous societies, with sets
of societal institutions that may not be complete any more but are still intact and
operate in distinct minority languages most of the time. These institutions cover a
wide range of human activity and are of great significance to individual group
members and their well-being (White 1996).
There is a strong case to be made that highland peoples are entitled to have
control both over themselves as peoples, and over their institutions and to have
their lands restored by the state. Despite living in what is now Cambodia for many
generations, members of highland societies continue to speak their own languages
and to participate in their own institutions operating in those languages. Against
the odds of a history of majority nation-building, highland peoples have managed
to maintain and perpetuate not only elements of their ethnic heritage, but more or
less institutionally complete cultures. In most cases, members of highland peoples
remain determined to maintain the existence of their societies as distinct cultures
alongside the Khmer majority.
highland peoples and they successfully participate in public institutions, are well
represented in government and various political parties and are active in many
sectors of the economy.
However, Cham have been in Cambodia for many centuries and have main-
tained a degree of cultural difference and separation that in many ways resembles
those present in highland communities. Being Cham in Cambodia is a much
thicker identity than being Chinese, for example, as it covers not only secondary
associations but distinct societal institutions and practices that are closely linked to
historical self-governance and statehood in Champa, in addition to a distinct
religion and language. It is common for ethnic Chinese to take pride in a high
degree of integration into Khmer society, individually and collectively. In contrast,
Cham take as much pride in having maintained a distinct culture after the involun-
tary loss of historical statehood and their ancestral homeland. Ethnic Chinese in
Cambodia learn Mandarin as a second language in addition to Khmer. In most
cases, Mandarin was not the native language of their ancestors when they arrived
in Cambodia.
Like highland peoples and unlike ethnic Vietnamese and Chinese, Cham do not
have a state maintaining their distinct culture elsewhere. The best chance for Cham
to live among Cham and speak the Cham language is in Cambodia. People in a
Cham village are often found to be as determined as highlanders to maintain their
distinct language, institutions and ways of life. They are up against similar odds in
the context of a nationalizing state.
To sum up, Cambodia is usefully understood as a polyethnic and multination
state, containing ethnic groups as well as national minorities. The difference
between national minorities and ethnic groups characterizes two markedly
different pattern of cultural diversity here and accurately reflects the aspirations of
most minorities but not those of Cambodia’s Cham. Cham may historically have
come to Cambodia as immigrants, but have since transformed themselves into a
national minority plausibly entitled to protection of their distinct culture not
fundamentally different from the rights that are due to highland peoples.
Significantly though, the kind of autonomy Cham are seeking in Cambodia is not
territorial in the sense of highland peoples’ aspirations.
- Every Khmer citizen shall be equal before the law, enjoying the same rights, freedom
and fulfilling the same obligations regardless of race, colour, sex, language, religious
belief, political tendency, birth origin, social status, wealth or other status.
- The exercise of personal rights and freedom by any individual shall not adversely
affect the rights and freedom of others. The exercise of such rights and freedom shall
be in accordance with law.
These constitutional provisions, like many others, may not have much
immediate significance for state practice in Cambodia. But they plausibly reflect
the aspirations of a great number of Cambodians and are an important part of the
normative framework in which public policy is publicly justified. The first
paragraph commits the Cambodian state to the recognition of the full range of
individual human rights. The second paragraph is a conception of Cambodian
citizenship based on a general principle of non-discrimination. “Khmer-citizen” is
understood to be the constitutional equivalent of a “Cambodian citizen” and state
officials are often at pains to explain how this includes national and ethnic
minorities. There are more tensions between the Constitution’s account of Khmer
citizenship and liberal multiculturalism. Liberal multiculturalism implies a
group-differentiated conception in which citizens are not equal before the law.
Rather, national minorities have rights to autonomy and language in addition to
common citizenship rights, in order to ensure their members’ equal benefit
from individual citizenship rights, most importantly the human rights that are
guaranteed in the first paragraph and implied in the non-discrimination principle
of the second and third. Recognition of the principles of liberal multiculturalism
would mean adoption of a conception of Cambodian citizenship that is capable of
including national minorities as Cham citizen, Jorai citizens, and Bunong citizens
and so on. Liberal multiculturalism is also in potential tension with the third
paragraph, because the maintenance of distinct minority cultures may require
limitations on the rights and freedoms of majority citizens, with the aim of
protecting equal enjoyment of common citizenship rights for minority citizens.
autonomy claims the state is incapable of meeting. There is, in striking contrast to
most Asian states, no history of minority nationalism in Cambodia and there never
has been a threat of minority secession. There are no autonomy claims actually or
conceivably made that cannot be accommodated by and large within the general
framework of the Cambodian state and its reform. Conceivable autonomy claims
occur well below any threshold that concerns the security or integrity of the state or
could plausibly justify deviation from the normal political process. This is
significant because it is standard practice among most states in the region to invoke
state security to justify suspending what human rights and democratic process
guarantees may exist, in response to minority claims for autonomy.
Highland peoples, the groups that are most widely and most plausibly
considered indigenous peoples in Cambodia, make up a small fraction of the
population that is further divided into a large number of indigenous groups
(estimated in the range of 20), with virtually no political organization above the
village level. There are probably very few minorities in Asia that are a lesser threat
to the security and integrity of the state than highland peoples are to Cambodia.
Much less is at stake geopolitically in recognizing those groups as indigenous
peoples under international law in Cambodia than there is with national minorities
in virtually any other Asian state.
Cham lost a state in Vietnam and were transformed from a state-people into a
stateless people, from the state-culture of Champa into a transnational minority
culture. What may be most remarkable here is the enormous transformation in
relationship to the Khmer, from refugees into “Khmer Islam,” from outsiders into
insiders, from newcomers into a national minority, from the others into citizens.
The accommodation of Cham in Cambodia is a success story of minority accommo-
dation that neither Western nor international multiculturalism can fully appreciate.
Cham have since their arrival had a home in Cambodia but never a homeland.
There has not been one territorially concentrated Cham culture forming a self-
governing society in Cambodia and nothing suggests today that Cham aspire
to forming one in the future. Cham do not consider themselves indigenous in
the lexicon sense of having been in Cambodia before the Cambodian state nor have
they been isolated in the process of state-formation.6 They were defeated in this
process by the Vietnamese state. This is the main reason for Cham being in
Cambodia today and it is significant to contemporary Cham identity as not only a
stateless but also a homeland-less people.7 Cham do have the kind of claims rooted
in history and homeland that the international concept of indigenous peoples
highlights, maybe unduly so, but what is distinct about Cham is that they have
these claims only in Vietnam.
In its traditional interpretations, international law has nothing to offer to Cham
Minorities, the State, and the International Community in Cambodia 203
in Cambodia, the country in which the majority of them today struggle for the
maintenance of a diverse, distinct, and distinctly non-state, societal culture. Cham
self-identification is not limited to traditional interpretations, however, and this
may point to the larger shortcoming of the international framework, which has
made self-identification as “indigenous” not only the most rational but, ironically,
also the most truly modern choice for any national minority.
There are Cham communities in virtually all of Cambodia’s provinces but not in
one of the 24 provinces do Cham people form anywhere close to a majority. Many
Cham people are highly mobile across and beyond Cambodia and do not seek most
of the rights indigenous peoples have in international law, suggesting that
contemporary Cham aspirations in Cambodia have little territorial implications.
Yet the only option to seek international protection for group-related interests
Cham people plausibly have in Cambodia is by identifying as an indigenous
people. This may seem unlikely and none among the considerable number of
international organizations in Cambodia has suggested identifying Cham in this
way. But it is not inconceivable. When asked by the government of Switzerland
whether the Roma (a transnational and fairly mobile minority group whose
members live mainly in Europe) are covered under Convention 169, the ILO
responded that it considers the convention applicable if the group identifies as
“tribal.”8 If self-identification is all that separates Roma from a tribal people, this
would conceivable be the case for Cham, too, and not only in Cambodia.
The strength of international indigenous rights instruments may thus be the
biggest obstacle to their adoption in Cambodia, as elsewhere in Asia. A right to
self-determination is much stronger than what Cambodia’s national minorities
are seeking and it also is more than is politically realistic to expect. The kind of
accommodation Cham enjoy in Cambodia appears to be a better match for their
contemporary aspirations than seeking self-governance. Claiming indigenous
rights could well risk the terms of current Cham accommodation with the
Cambodian state.
There is no instrument in international law short of self-determination that
provides protection for the kind of group-related interests that highland peoples
and Cham appear to have in common, namely to maintain distinct cultures, if a less
territorial one in the case of Cham. International law offers highlanders, as well as
Cham, an unhelpful choice between too much and nothing. The concern that
recognition of highland cultures as indigenous peoples could encourage autonomy
claims by other groups is thus conceivable in Cambodia. But it remains an unlikely
prospect and it would be manageable, presenting little risk to the state even if it
occurred.
The idea that public recognition of some minorities would get a state on a
204 Ehrentraut
“slippery slope” of escalating minority rights claims and divisive “ethnic” politics
that could threaten the unity of its population is sometimes invoked by opponents
of liberal multiculturalism. But modern states are inevitably and thoroughly
“ethnic” and it is more plausible to think that the alienation of minority members
in nationalizing state institutions creates a “slippery slope” that undermines the
unity of its citizenry. But even if this first account is accepted, what is distinct about
Cambodia’s cultural diversity is not that the possibility of a slippery slope does not
exist, but that the slope is very short and not very slippery.9 What sets Cambodia
apart is that geopolitical concerns are present on a scale that is so low that they can
be managed securely within the general framework of the kind of state Cambodian
is and within the international framework despite how deficient and incomplete it
is. This configuration is rare indeed.
Cambodian citizens belong to cultures that have these kind of claims in Vietnam,
namely Khmer, Cham and some highland people, while very few if any Vietnamese
citizens have such claims in Cambodia.
In contrast to many Asian states, there are also no national minorities in
Cambodia that have a kin-state across the border. This means that one of the biggest
geo-political obstacles to the adoption of liberal multiculturalism does not exist
here. Not only is the potential and perceived threat to the majority culture from
adopting liberal multiculturalism smaller in Cambodia than in virtually any other
state in Asia, the potential gains for the Khmer majority culture from liberal
multiculturalism being adopted regionally are greater than they would be for most
of the other states. The Cambodian Constitution’s conception of citizenship is at
least as inclusive of Khmer Kampuchea Krom as it is of highland peoples and
Cham. The Khmer of Khmer Kampuchea Krom are considered Khmer citizens
when in Cambodia. In a world of nationalizing modern states, the interest of the
Khmer in Khmer Kampuchea Krom have in access to Khmer culture can only be
protected by moving either the border or the people. In a liberal multicultural
framework, the Khmer of Khmer Kampuchea Krom are Khmer citizens to the
fullest sense possible in a modern Vietnamese state.
Liberal multiculturalism highlights important similarities between Khmer
Kampuchea Krom in Vietnam and highland peoples in Cambodia. Whatever
reasons the Khmer in Khmer Kampuchea Krom have for seeking protection for
their culture in Vietnam, and whatever reasons Cambodians have in being
supportive of it, are as much the same reasons for protecting highland cultures in
Cambodia. The fact that the Khmer of Khmer Kampuchea Krom can identify as
indigenous people in Vietnam highlights the liberal multiculturalist point that
minority rights are not primarily about the minority group’s culture or its level of
economic development, but rather the relationships it has with the state and what
kind of state it is in.
This does not resonate well with Cambodian conceptions of cultural diversity,
which emphasize linguistic and institutional integration of highland peoples as the
most liberal, progressive and adequate response to these groups’ distinct, pre-
modern condition. As such, the multiculturalism emerging in Cambodian law,
hesitantly, is widely seen by government officials as a concession to the internation-
al community’s demands for greater compliance with foreign conceptions of
citizenship and diversity. At the time the Cambodian government committed itself
to some sort of domestic recognition of indigenous peoples it was likely not aware
of the full implications this concept is meant to have in international law and was
almost certainly not intending to commit the state to the substance of these norms.
Consider the land law (2001), preparation and implementation of which was
and is greatly supported by various international organizations. The law includes a
(donor-driven) provision for indigenous peoples to own their land communally.
Because indigenous peoples are not legally recognized in Cambodia, a process for
their establishment and incorporation as legal persons is now being piloted in three
indigenous villages, based on the land law. Consider the definition of “indigenous
community” in article 23:
a group of people who reside in the territory of the Kingdom of Cambodia whose
members manifest ethnic, social, cultural and economic unity and who practice a
traditional lifestyle, and who cultivate the lands in their possession according to
customary rules of collective use.
In one plausible and indeed apparent interpretation, this definition does not
acknowledge that there are minority groups with distinct cultural identities, lan-
guages and institutions in Cambodia. Arguably, the majority of ethnic Khmer citi-
zens live in communities in which considerable measures of unity and traditional
lifestyles are evident. Cultivating the lands in one’s possession according to rules
could be much like having a Ministry of Agriculture, a Ministry of Land
Management and a National Forest Administration. “Collective use” is not unlike
management of public goods for individual benefits.10
Comparing this definition in the land law to the preamble of Cambodia’s
Constitution helps identify important differences in the two documents’ underlying
Minorities, the State, and the International Community in Cambodia 207
In many cases, only after the Khmer Rouge did state-minority-relations not
require interpretation. Victimization from Khmer Rouge nation-destroying did not
depend primarily on cultural membership and made cultural differences look
secondary. The universality of this shared experience of violent atomization made
trust between members of different Cambodian cultures more conceivable, because
it made the Cambodian nation more imaginable. The narrative of “We, the
destroyed people of Cambodia” that is prominent in the Constitution’s preamble
refers to an experience so universally shared among members of all of Cambodia’s
cultures that it made “We” more possible than it ever was before. It made “We” fit
into a “Khmer” conception of citizenship. But the linguistic equivalent of this
“Khmer” conception of citizenship is that the Khmer language is the sole official
language in which all public institutions are supposed to operate.
values or beliefs (Kymlicka 1995: 93). Aside from the potential to undermine
members’ liberties, village-level incorporation divides indigenous cultures into
numerous political subunits and is likely to lead to their further fragmentation,
severely inhibiting those groups’ ability to consolidate and institutionalize their
societies and to maintain them under conditions of modernity.
Pseudo-liberal Multicollectivism
What is liberal about liberal multiculturalism is that minority rights operate
within the constraints of universal human rights of individuals and are designed to
enhance their enjoyment by all citizens. In Kymlicka’s interpretation, liberal
multiculturalism is the twin idea of “equality between groups” and “freedom within
groups” (Kymlicka 1995). In this view, only minority rights that don’t impede on
individual freedoms are justifiable. In contrast, notions of collectivism put the
interest of groups above the liberty of their members and tend to directly
contradict liberal principles that prioritize individual freedoms over the claims of
groups on their members.
The land law gives considerable power to traditional authorities, by making
“exercise of all ownership rights related to immovable properties of a community and the
specific conditions of the land use … subject to the responsibility of the traditional
authorities and mechanisms for decision-making of the community, according to their
customs.” While there is no obvious indication that empowering traditional
authorities of Cambodia’s highland peoples would threaten human rights of group
members, there also is no evidence that individual human rights are among the
state’s concerns when considering minority rights. An absence of concern for
human rights is also suggested by the definition of who is a member of an
indigenous community, a person who
meets the ethnic, cultural and social criteria of an indigenous community, is recognized
as a group member by the majority of such group, and who accepts the unity and
subordination leading to acceptance into the community.
For the purposes of facilitating the cultural, economic and social evolution of members
of indigenous communities and in order to allow such members to freely leave the
group or to be relieved from its constraints, the right of individual ownership of an
adequate share of land used by the community may be transferred to them.
The law does not appear to be very concerned about the “cultural, economic and
social evolution” of highland peoples’ as members of a community. Rather, it is
consistent with a conception of indigenous communities as groups in which such
evolution does not take place. It suggests that leaving indigenous communities and
individualizing land ownership facilitates the evolution of its members, while
implying that remaining in indigenous communities does not.
In contrast, the main premise of liberal multiculturalism is that minority and
majority members alike need secure access to their own culture to facilitate
individual “cultural, economic and social evolution.” This is also what the preamble
suggests when it links all the people of Cambodia to historically self-governing
society in the past and glorious liberal democracy in the future by means of
preserving, promoting and modernizing distinct cultures in the present.
Nationalizing states provide secure access to citizens’ own culture, and the
security of effortlessly belonging to it, for members of the majority only. Liberal
multiculturalism suggests that access to one’s own culture is so profoundly
important for individual well-being and autonomy that it should be secured by
states for members of minority cultures as well. Self-government and language
rights are needed to protect and promote not only equality between groups but also
freedom within groups, that is, the “evolution” of its members.
The benefits of cultures, institutions and languages are indeed enjoyed
communally but they are also enjoyed by individual members who speak those
languages and participate in those institutions and cultures. Linking the aspirations
of highland peoples to notions of collectivism is particularly unhelpful in
Cambodia, where those notions are considered obsolete from the top to the bottom,
after being universally discredited by the tragic failure of Pol Pot policies. Cultures
need protection because of the profound interest members have in secure access to
them. If not for the benefit of individual citizens, liberal states have little reason to
maintain any culture. There is nothing inherently collectivist about the interest
people have in access to their own culture and much of the need for protecting it is
distinctively modern. There is not, in contrast, much that is liberal or multicultural
about the land law’s provisions for communal title.
Cultures, customs and traditions are not static but fluid and they change for as
long as they exist, in response to changing environments and exchanges with other
cultures as well as to internal contestations and dynamics resulting from individual
212 Ehrentraut
Aggressive Modernization
Liberal multiculturalism promotes minority rights that are meant to allow
minorities to maintain their distinct cultures, principally into the indefinite future if
they so wish. In contrast, distinguishing indigenous communities by their state of
civilization or economic development suggests that accommodation is inherently
transitional and temporary. To see how profoundly divergent the policy choices
suggested by this difference are, consider a recent article in a local newspaper.14
Prime Minister Hun Sen said yesterday that by 2015 the northeast of the country will
become the nation’s fourth focal point for industry and commerce after traditional
economic powerhouses Phnom Penh, Siem Reap and Sihanoukville. “The areas of
Stung Treng, Ratanakiri, and Mondulkiri provinces and other parts of Kratie and Preah
Vihear provinces will become the fourth economic ‘pole’,” he said yesterday during the
inauguration of National Highway 7 and Sekong Bridge in Stung Treng province.
The vast potential of natural resources in the Kingdom will transform the
livelihoods of the ethnic minorities currently living there, said the premier. “For
example, hydroelectricity is not only able to supply power to local markets, but also
neighboring countries,” he said. “The northeast region is rich in mine deposits which
can be exploited …. This is also a big tourist destination for Cambodia.
The geographical areas the Prime Minister refers to are the part of Cambodia
that is home to most of the country’s indigenous peoples. National Highway 7 has
just been turned from a dirt road into a modern highway by Chinese companies
and funds. It now connects Cambodia’s economic powerhouses with China’s
industrial south, opening up easy access to the traditional homelands of
Cambodia’s indigenous peoples along the way. The livelihoods and homelands of
ethnic minorities “currently” living there will be transformed by the exploitation of
the “Kingdom’s” natural resources. At the end of the statement, ethnic minorities
have disappeared from the landscape in which they currently live. This is not
because they have been removed from it but because the transformation and
modernization of their livelihood means they are ethnic minorities no more.
The plan the Prime Minister describes is part of precisely what liberal multicul-
214 Ehrentraut
turalism and international law suggest indigenous peoples need protection from. It
also has important similarities to what many ethnic Khmer blame the Vietnamese
state of doing to the Khmer in Khmer Kampuchea Krom. Yet this plan is considered
so noble and modern a project that it merits highlighting just a few months prior to
national elections. The article goes on to quote a prominent Cambodian economist
with approval, and reports the concern of a prominent opposition politician that
such developments may re-enforce inequalities between the rich and the poor. The
article quotes no member of any of the ethnic minorities currently living there and
no one with disagreement other than on how to best put the plan into practice.
Conclusions
Existing provisions do not suffice to protect Cambodia’s minority cultures from
unjust nation-building. A greater degree of self-government should be provided to
enable those groups to maintain their existence as distinct societies if they so wish.
Liberal multiculturalism suggests incorporating national minorities based on the
Constitution’s conception of culture and based on a notion of non-discrimination
that tries to remove disadvantages, including through the recognition and
incorporation of separate institutions and cultures. Liberal multiculturalism
suggests that justice for Cambodia’s minority cultures requires a multinational and
asymmetrical conception of decentralization, aimed at accommodating minority
cultures by diversifying Khmer state and citizenship. Such a conception would
incorporate indigenous groups and their societal institutions at the level of their
culture. It would protect territorial concentrations of highland peoples by
devolving essential powers to subunits substantially controlled by them.
Reforming the framework for D&D reform appears to be among the more practical
and realistic opportunities to create some measure of self-government for
indigenous peoples and enhance their control over themselves and their cultures’
change.15
Minorities, the State, and the International Community in Cambodia 217
Notes
1. I would like to thank Katrin Seidel and Chen Sochoeun for commenting on
earlier versions of this paper and Peter J. Hammer for doing so multiple times.
Remaining mistakes are mine. This research was made possible by a doctoral
scholarship from the Friedrich-Naumann-Foundation and support for field
research from the Cambodia-Office of the Heinrich-Böll-Foundation.
2. Kymlicka’s conception was chosen because the author discusses the relevance of
liberal multiculturalism in Asia specifically and his work is closely studied among
many scholars of multiculturalism in Asia.
3. It is worth mentioning that other theorists of multiculturalism base their theories
on a similar distinction between immigrant ethnic groups and incorporated
national minorities, such as Spinner 1994 and implicitly, Taylor 1994.
4. “Kymlicka 2007” refers to a manuscript entitled ‘The Global Diffusion of Liberal
Multiculturalism.” It has since been published as “Multicultural Odysseys:
Navigating the New International Politics of Diversity” (Oxford, 2007).
5. Indeed, ILO Convention 169 has inclusiveness built into it, by adding “tribal
peoples” as a distinct category to “indigenous peoples” and assigning to groups in
both categories the same comprehensive set of positive minority rights. The
declared reason for doing so was to be able to extend protection to groups such as
pastoralists and other nomadic and semi-nomadic groups in Asia and Africa that
may not have claims to prior settlement or whose claims to prior settlement may be
hard to validate.
6. Ample evidence of this historical fact is carved into temples around Angkor Wat
that depict epic battles between pre-modern Cham and Khmer states.
7. Cham share with Khmer a national narrative of lost greatness to which Vietnam
is essential as the Other. This has plausibly facilitated Cham accommodation in
Cambodia. Cham are a people made stateless by Vietnam. Khmer are a people
jealously guarding their precious state sovereignty to protect against the perceived
risk of sharing the same fate. The existence of Cham in Cambodia (and Khmer
Kampuchea Krom in Vietnam) attests to the possibility and likely reinforces the
perception.
8. Report of the 280th session of the Governing Body (GB280-18-2001-02-1095-3-
EN.Doc). The government in Colombia has accepted that Roma in that country
qualify for coverage under ILO Convention 169.
9. For how long such a slope could be, consider that anywhere between 2% to 60%
of the population in Indonesia can be considered indigenous peoples, depending on
which definition is used for counting. For how slippery it may get, consider
Tibetans, Palestinians, South Ossetians and Kurds, among many other examples of
sub-state nations.
218 Ehrentraut
10. One more thing that is distinct about Cambodia is the extent to which not only
indigenous peoples but also the majority culture manages land and natural
resources according to custom, the former because they do not write down their
laws and the latter because it does not enforce them. What is distinct is that
effective public rules (and public goods) are features of minority systems of
management more than they are features of state institutions.
11. Conversely, if unity, tradition and collectivism justify rights to communal title
for hill tribe communities, there is no reason to deny the same to other Cambodian
communities in which those features are evident, too. Nothing in the text of the
land law justifies excluding those communities from the definition of indigenous
community and the benefits of communal title. But neither tradition nor collec-
tivism are particularly good reasons to justify minority rights.
12. Indeed at one point in the piloting process, the Interior Ministry suggested that
recognition would be given only for a period of five years, by which time a review
would be undertaken to determine whether the pre-conditions for recognition still
existed.
13. The land law has been the main focus of international efforts to provide
protection for indigenous peoples in Cambodia. Given the rapid pace of land
alienation among indigenous communities and the extent to which the mainte-
nance of their distinct culture depends on preventing it, it was sensible to prioritize
secure land tenure and it probably was sensible to emphasize the communal
character of land and resource use. However, the conception of indigenous
communities in the land law has since become the legal basis for indigenous
peoples’ incorporation into the state.
14. Mekong Times, PM: Northeast region will become Cambodia’s fourth econom-
ic “pole,” 30 April 2008.
Minorities, the State, and the International Community in Cambodia 219
References
Anaya, James S. (1996), Indigenous Peoples in International Law (Oxford University
Press, New York).
Barnes, R.H., Gray, Andrew, Kingsbury, Benedict (eds.) (1995), Indigenous Peoples of
Asia (Association for Asian Studies, Ann Arbor).
Edwards, Penny (1996), Ethnic Chinese in Cambodia, in Center for Advanced
Study, Interdisciplinary Research on Ethnic Groups in Cambodia. (Center for Advanced
Study, Phnom Penh): 108-176.
Gover, Kirsty; Kingsbury, Benedict (eds.) (2004), Indigenous Groups and the Politics of
Recognition in Asia. Cases from Japan, Taiwan, West Papua, Bali, China and Gilgit,
International Journal on Minority and Group Rights, Volume 11, Issue 1-2.
Kymlicka, Will (1995), Multicultural Citizenship. A Liberal Theory of Minority Rights
(Oxford University Press, Oxford).
Kymlicka, Will (2001), Politics in the Vernacular. Nationalism, Multiculturalism, and
Citizenship (Oxford University Press, Oxford).
Kymlicka, Will (2002), Contemporary Political Philosophy. An Introduction (Oxford
University Press, Oxford).
Kymlicka, Will (2007), Multicultural Odysseys: Navigating the New International
Politics of Diversity (Oxford University Press, Oxford).
Spinner, Jeff (1994), The Boundaries of Citizenship. Race, Ethnicity and Nationality in
the Liberal State (John Hopkins University Press, Baltimore).
Taylor, Charles (1994), Multiculturalism (Princeton University Press, Princeton).
UNDP (2004), Human Development Report. Cultural Liberty in Today’s Diverse World
(Oxford University Press, Oxford).
White, Joanna (1996), The Indigenous Highlanders of the Northeast. An Uncertain
Future, in Center for Advanced Study, Interdisciplinary Research on Ethnic Groups
in Cambodia. (Center for Advanced Study, Phnom Penh): 333-374.
The Making of an Invisible Minority:
Muslims in Colonial Burma
Stephen L.Keck
In 1905, alert people in Rangoon might have witnessed a small – if determined –
protest waged by the city’s Muslim community. These Muslims sought the location
of the grave of Bahadur Shah Zafar II, the last ruler of the Mogul empire, who had
been exiled to Rangoon after the British crushed the Indian Rebellion of 1857.
Rangoon had been chosen because it was assumed that it was a politically safe place
to allow Bahadur Shah—whose very existence had served as a rallying point (for
those calling for the renewal of the Mogul empire) against British rule—to live out
his last years. The protestors were angry because by 1903 they did not even know
the location of Bahadur Shah’s grave: “[T]he Mahommedan Community of
Rangoon is agitated over the resting place of the last king of the proud line of
Mughals… As a man or as a King, Bahadur Shah was not to be admired, but he
should be remembered.”1 The protestors wanted to purchase some land to construct
a monument for the last of the Mogul line. The British government, not surprising-
ly, was cool to the idea. The initial response from Calcutta was negative: “it would
be very inappropriate for the Government to do anything to perpetuate or pay
respect to the memory of Bahadur Shah, or to erect over his remains a tomb which
might become a place of pilgrimage.”2 The issue remained unresolved until 1907,
when the British agreed to erect a rather simple stone slab near the place where
Bahadur Shar was buried. The Rangoon Times commented that there was now a
“sense of satisfaction among the Mahommedan community.”3
This episode, which was minor compared to the 1893 riots, provides a good first
look at the status of Muslims in British Burma. To begin with, Rangoon was an
acceptable destination for Bahadur Shah because the British could be confident that
he could not attract a large number of Muslims to his cause. In addition, as a
Muslim immigrant into Burma, Bahadur Shah would come to represent what
would become an unwritten assumption: namely, that Muslims did not really
belong to Burma. At the same time, the British response was to try to do as little as
possible to allow local Muslims to make his tomb into any kind of sacred place or
heritage site. As we will see, this attitude towards the last Mogul ruler would aptly
epitomize a tendency to view Islam in Burma as a transitory phenomenon.
This discussion has been created for “Cambodia and Mainland Southeast Asia
at its Margins: Minority Groups and Borders” in the hope of providing a broader
frame of reference for the problem of Muslims in Myanmar and more generally the
222 Keck
(1856-1873), in which the Yunnanese Muslims revolted against the Qing dynasty,
produced instability north of Burma for nearly 17 years. The Panthay Rebellion has
not attracted as much attention as it deserves, but it was an event in which more
than one million people died; it also had the effect of increasing the number of
immigrants from Yunnan into Burma. Second, and, more important, the Indian
Rebellion of 1857 not only directly threatened British power, but led to a decided
reaction against Islam within the Raj. Furthermore, as the twentieth century
approached, the British were also cognizant of a general rise in communitarian
tensions on the subcontinent. In fact, the riot between Hindus and Muslims in 1893,
in which at least 20 people were killed, was understood largely in these terms. After
all, this event had found echoes the same year in a number of Indian cities,
prompting some observers to regard this as an Indian affair.
Significantly, it is the case that the British were fascinated by Burma’s ethnic
diversity. During this period – which began with the end of the Third Anglo-
Burman War and ends with the beginnings of the First World War – a small army
of British ethnographic writers undertook often exhausting labours to depict the
diversity of ethnic groups in Burma. Their studies might serve as an example of
“orientalist” discourses as they presented a collective picture of the land and its
peoples: Burma was a foreign place made up of the Burmese and their many
exotic minorities. The peoples of Burma were characterized as “other,” exotic and
usually represented as being inferior—facing the hurdles associated with the
advent of modernity.
With the prospect of fundamental social transformation on the horizon, it
should be recalled that this discussion began with the recognition that the
emphasis placed on ethnographic considerations meant that comparative treat-
ment of Islam was essentially non-existent. Even this point is a curious one.
Colonial administrators in many parts of the Empire regarded Islam as a potential
threat: the fear that Muslims might call for a Jihad against the British was a fear
articulated in many imperial venues. For example, W.W. Hunter’s tract The Indian
Musalmans: Are They Bound in Conscience to Rebel Against the Queen? (1871) took the
position that Islam was a threat to British rule because the “whole Muhammadan
community has been openly deliberating on their obligation to rebel.”5 While
Hunter’s view was regarded as an extreme or unconventional one, it was still
credible to a few segments of British opinion. More generally, while British authors
might reject Hunter’s ideas, many did assess Islam in terms of a distinctive
community.6 Therefore, the relative silence regarding Islam in Burma is at once
noticeable and curious.
It seems clear that the British never regarded Islam as essential in any way to
Burma. My argument, which is based upon a preliminary stage of research, will
224 Keck
suggest that the British (with some notable exceptions) were largely indifferent to
Muslims in Burma and therefore ignored them. Since many British administrators
had served first in India, the investigation of Islam and its practices almost
certainly seemed as unnecessary as it was uninteresting. At the same time, the
British were fascinated by Burma’s diversity and so travel writers and ethnogra-
phers explored and described (and photographed) many of these peoples. Ethnic
diversity was part of the frame used to exhibit exotic Burma. The Chins,
Kachins, Shan, Karen, Paloung and many others joined the Burmans as the peoples
associated with the colony called Burma. Minority status became based upon
ethnicity (and at times location) and not religion. This would be the case with the
creation of colonial heritage as well. Burma’s Muslims simply did not fit into this
picture. They were, in fact, on their way to becoming an “invisible minority.” While
it is beyond the bounds of this paper, I might suggest that this cultural definition of
Burma was repeated after independence. Myanmar’s minorities belonged (which
hardly guaranteed favorable treatment), but Islam remained alien. Therefore, it
seems at least plausible that the way people were defined (or not defined) affected
the manner in which they were treated. The status of Muslims in Myanmar, who
since 1962 have experienced “Burmanization,” is an eventual end point to a much
larger story than this paper has explored.
Muslims in Burma
The development and arrival of Islam in Burma remains under-studied, but
remains a controversial topic.7 The Census of 1901 provides some basis for claming
that Muslims represented about four percent of the population of Burma.8 Berlie has
postulated four main groups of Muslims. The first group probably followed some
of the trading patterns in the Indian Ocean. This development may have begun in
the eigth or ninth centuries, leaving Arakan with a permanent Muslim community.
A second group, known as the Panthays, came from the north. These Chinese
Muslims migrated from Yunnan with many settling in the northern parts of Burma.
Another group came with British colonization: the bulk of these Muslims came
from Chittagong and other places in Bengal. They settled in Arakan and Rangoon.
Many of the descendants of these Muslims remain in Burma, but significant
numbers left the country at various points in the twentieth century. The fourth and
oldest group are the Burmese Muslims, whose origins are remote.9 Since the British
census of 1881 they are referred to as “Zerbadees.”10
regarded Muslims as separate from other groups. This can be readily gleaned from
the censuses, patterns of elective government and even the naming of certain parts
of Rangoon, i.e., Mogul street. In fact, there appears to be considerable warrant for
comparing British municipal policy in places like Rangoon and Mandalay with
Indian cities. As students of Southeast Asian history are doubtlessly aware, colonial
Burma produced a sizeable body of literature written by various Britons about
the country. Collectively, these volumes provide contemporary scholars with an
important body of sources for recovering the mentalite of the colonizer. For our
purposes, this discussion will draw from several British authors who lived and
worked in colonial Burma. Sir George Scott was arguably the most influential
British mind in colonial Burma, author of The Burman and compiler of the Gazetteer
of Upper Burma and the Shan States (1900-1901). V.C. Scott O’Connor was a talented
civil servant whose The Silken East (1904) and Mandalay and Other Cities of the Past
in Burma (1907) reflect a deep emotional engagement with Burma. These two works
remain unsurpassed for British travel writing about the country. Finally, there is
Mrs. Powell-Brown, the wife of Captain Frank Powell-Brown, who had served the
Irrawaddy Flotilla Company for over ten years. In addition, some attention will also
be devoted to the agenda (and writings) of Taw Sein Ko, whose exploration of the
peoples and history of Burma is also reflective of colonial worldviews. Given the
inherent limitations in recovering British understandings of Islam, this discussion
will attempt to delineate a number of themes or choices made by writers who were
addressing metropolitan audiences in the hope of making sense of the country.
While it is not exhaustive, it is clear that these figures tended to invoke different
themes in representing Islam in Burma. In practice this meant that Muslims helped
to signify larger lessons about Burma itself. These authors’ descriptions help to
portray the “cosmopolitan,” “picturesque” or idiosyncratic view of Burma and its
peoples.
Mrs Powell-Brown emphasized that the Chittagonians were working for their
families in East Bengal: “they are scraping together every available pice in order to
get back to their own country, where their mothers, wives and children are
awaiting them.”13 The Chittagonian sailors were simply part of her description of
river travel in Burma. This positive theme also found treatment in O’Connor’s The
Silken East in which the author went to considerable lengths to portray boat travel
on the Salwin. O’Connor’s elegiac prose aimed to describe the rather wondrous (if
difficult) mode of locomotion on the Salwin.
However, O’Connor proved to be ambivalent about Muslims in Burma: the
most arresting appeal to “cosmopolitanism” could be found in his description of
“modern” Rangoon. Having traced the city’s much earlier pristine origins, he
offered a profoundly different picture of modern Rangoon. The modern city
represented a complete change from its existence before the advent of British rule.
Rangoon’s most cosmopolitan thoroughfare is Mogul Street, which begins with the
funnel of an ocean steamer, climbs up to the white minarets of a Musulman mosque,
and ends under the wooden eaves of a Native Christian chapel. A Chettis’ hall, with
wooden columns, of a design that was probably invented in Southern India twenty
centuries ago, faces the white temple of Islam, and the voice of the green-turbaned
muezzin, as he calls the Faithful to prayer, is overborne by the clatter and chink of
money, and the guttural brawlings of that loudest of vulgarians, the Chetti. Over the
way, in an adjoining street, the Hindu clangs his bell and blows his conch before the
The Making of an Invisible Minority 227
altars of Shiv, in defiance of his Musulman neighbour. His Musulman neighbour retorts
by sacrificing the sacred cow, and spilling her blood before the very eyes of those who
worship her as a god. Gentle amenities of this kind, fomented by turbulent Afghans and
by Hindu millionaires, whose care it is to establish an alibi, by retreating at the crisis to
a safe distance of fifteen hundred miles, are apt occasionally to end in conflicts of
a serious character. In 1893 they ended in a riot which was only quelled after thirty
persons had been shot down, some two hundred, most mounted policemen, had been
wounded, and a regiment of English soldiers had been summoned to over-awe the
populace. Often, as I drive down this crowded thoroughfare, past the archways of the
mosque, I am reminded of the appearance it presented on that occasion, when its steps
were slippery with the blood of mullahs and muezzins and chulias, pouring out of
ragged wounds made by the sniders of the military police. I am reminded of the latent
forces of an ancient hate, under the new cosmopolitan unity of Rangoon.14
O’ Connor’s more important point was that these problems were not intrinsic to
Burma: “For Mogul Street is a living bit of India. Except as a wayfarer no Burman
occupies it.”15 For O’Connor, Rangoon had become an Indian city which had
displaced the native Burmans. O’Connor wrote in an era shaped at once by
industrialism and social Darwinism. This meant that he was cognizant not only of
the dynamics of the 1893 riots, but also of a debate in colonial society about the
“survival” of the Burmans as a “doomed race.”16 While this is the subject of
another discussion, it is useful to note that it was a common fear that Indian
immigration into Burma would have the effect of displacing the indigenous
population. Therefore, in Rangoon O’Connor saw the embodiment of a threat to the
country which he had come to love. Indians—both Hindus and Muslims—were
mostly unwelcome; in essence, O’Connor’s desire to identify with the Burmans
meant that he regarded Indians as the “other.” More important for the argument
here, cosmopolitanism in this instance meant that he portrayed Muslims as people
who did not really belong to the land of Burma. To put this differently, he could not
anticipate (or probably accept) the desirable or successful Burmanization of Indian
Muslims. Instead, O’Connor almost certainly worried about the opposite: the fate
of the Burmans amidst an onslaught of Indian immigration.
Enigmatic Muslims
Another way to represent Burma’s Muslims was to present them in enigmatic
terms. Muslims were not Burmese. They were living in the country, but were not
essential in any way to it. British writers rarely connected them to the broader
subject of colonial rule. Instead, they were observed to be working in Burma, but
not belonging to it. Possibly the best indication of this trend can be glimpsed from
Scott’s vast writings. In the Gazetteer of Upper Burma and the Shan States, Scott
describes a Muslim community situated in Sin-Gaing township:
The township has an approximate population of 44,801 persons of whom the great bulk
are Burmese. Only eight villages, Kanlu, Letpan, Kalanbo, Thitkauk, Hin-ngu, Shwega,
Myanung-son-nge and Tabetswe are Mahommedan; here live the descendants of the
original settlers and the majority of them still retain their ancestral religion, though they
The Making of an Invisible Minority 229
have entirely adopted Burmese language and dress. It is said that the first immigrants
numbered 3,000, and that the Burmese King, fearing the combined strength of so many
foreigners, separated them, allotting a village to each body.18
Scott’s last comment looked ahead to some of the realities that Muslims have
faced in Myanmar after the nation became independent, in which they remain
regarded as aliens with their loyalty to extant political authorities in question. In
any case, these Muslims were largely assimilated to Burma language and customs,
but they did not receive the special analytical treatment which would be reserved
for other minorities in the country. Instead, it was important to Scott that they could
not be regarded as truly Burmese; they were still immigrants even if they “adopted
Burmese language and dress.”
Last, there were British writers who regarded Islam in local terms. Just as they
wrote to explicate the Wa, Palaungs or other tribes, so too did they see the Muslims
of Arakan as a local phenomenon. However, it should be pointed out that many
British writers could explore Arakan and be virtually oblivious to their presence.
For example, readers of Twentieth Century Impressions of Burma (1910), which was a
volume that presented a nearly official version of the country through the eyes of
the British establishment, might be forgiven for thinking that Islam did not exist in
the country. The treatment of Akyab is particularly striking because while readers
might learn that the population was mixed, the only mention of Islam came in the
mini-biography of Mr. E. Kadir Maracan, who was a municipal commissioner and
since 1906 an honorary magistrate. The entry identifies him by adding that he is
also “vice-president of the Arakan Anjumau-i-Islamia.” His father, who had
emigrated from Pondicherry to Akyab, had also “built a handsome mosque,
and an Anglo-Vernacular School for the education of Mahomedan boys, and
was generally recognized as a leader among the Mahomedan community.”19 An
illustration accompanies the text of the son outside his impressive European-style
home. This is the only reference to anything Islamic in the four-page section on
Akyab.
The most sensitive British observers, then, understood that Muslims could be
found in many parts of Burma. They were not worried, as was W.W. Hunter, about
the possibility that Islam might become a disruptive or oppositional force. Beyond
communal issues associated with Rangoon, they appear to be largely indifferent
to their existence. Nonetheless, the one thing which unified these different
representations of Islam was the fact that it was seen as foreign, external and
ultimately alien to Burma. Implicit in these descriptions was the idea that Muslims
in Burma could never be more than an immigrant group, which, even though they
might dress as Burmans and speak Burmese, could never be fully assimilated into
230 Keck
a Burman nation.
He might have added that the large number of Indian immigrants were
understood to be a threat to the indigenous peoples and cultures of Burma. For our
purposes here, Maung May Oung’s admission suggests that the very aim of
recovering, delineating and ultimately celebrating the customs and manners of
Burma reflected a deep worry about the country’s status within British India.
It is instructive to examine Sir George Scott’s attempt to define the status of the
Panthays in Upper Burma. Scott’s work in the Gazetteer of Upper Burma and the Shan
States produce a comprehensive ethnology of Burma examining the ethnic origins
of the Panthays by focusing on the community at Pang Long. He understood these
Muslims to be a mixture of Chinese and Mongol groups and while many had lived
in Burma for centuries they were still regarded as outsiders. They are a “mixed
race” which was descended from the colonists sent into Yunnan by the Mongols.
Significantly, Scott added that it should not be forgotten that the “invasions of
Burma were led by Musalman Generals.”25 In addition, these people were mostly
Chinese, but they are “distinct in their physiognomy.”26 The important point here is
that Scott’s effort to provide a historical basis for the existence of Islam in northern
Burma directly underscored the point that Muslims of Pang Long were, in essence,
alien to the country.
The work of V.C. Scott O’Connor, Taw Sein Ko, J.H. Hannay, Maung May Oung
and Sir George Scott also highlights the much larger creation of knowledge about
232 Keck
Conclusion
Outside of Myanmar the status and treatment of its Muslim minority has received
little attention. Given that the politicalization of Islam has become a major subject
in many parts of the world, the relative silence about Muslims in Myanmar is
actually much more striking than the earlier patterns of British indifference. This
discussion, which has tried to be suggestive rather than in any way exhaustive, has
attempted to show that Muslims in Burma became further marginalized under
British rule for a variety of reasons. British observers understood Muslims in Burma
to be mostly Indian and therefore possibly transitory. We have also seen that British
ethnographic research assumed that minority status was a reflection of ethnic, not
religious, divisions. The stress placed upon ethnographic representations virtually
ensured that a disparate Muslim minority would be overlooked or underestimated.
In addition, the connection between the idea that the Burmans might be a “doomed
race” and the growth of interest in saving the country’s cultural heritage should
probably be explored further. The importance placed upon the recovery of customs
and heritage made it easy for the British and those who followed to see that some
groups were more legitimate than others. There are two other considerations which
I would suggest were of great importance. First, despite the communitarian
tensions which were already on the rise in India, the secular mindset of the British
The Making of an Invisible Minority 233
meant that they were unable or unwilling to understand that a minority group
could be based as much upon religion as it might upon ethnicity. Second, the
underrepresentation of Islam might have stemmed from a reverse “Orientalist”
argument: namely, Muslims were simply not exotic enough. The British (and other
Europeans) were far more interested in describing Southeast Asia’s many peoples
than they were in cataloging Muslim practices in Burma.
It is difficult to gauge the impact of British representations of Islam on the
country’s Muslim population. Bahadur Shah did receive a plaque in 1907 and many
Muslims flourished under British rule. Nonetheless, the years which followed the
First World War brought renewed tensions, culminating in an anti-Muslim riot in
1938. Many Indians (Muslims and Hindus alike) would leave the country during
and immediately after World War II. Clashes between Buddhists and Muslims
would be particularly acute in Arakan in the late 1940s. At its worst, the conflict in
Arakan replicated the ethnic cleansing which defined the most sinister events of the
Partition. Another wave would leave Myanmar after 1962 and subsequent decades
would strangely see that Taw Sein Ko’s view of the future might approach fulfill-
ment. Burmanization—an impossible concept during the colonial period—would
begin as and remain a challenge for Myanmar Muslims.
234 Keck
Notes
1. William Dalrymple, The Last Mughal (London, 2006), p. 482.
2. Ibid, p. 482.
3. Ibid, pp. 481-482.
4. J.A. Berlie, The Burmanization of Myanmar’s Muslims (Bangkok, 2008).
5. W.W. Hunter cited in Daivd Lelyveld, Aligarh’s First Generaton: Muslim Solidarity
in British India (Oxford, 1978), p. 10.
6. Ibid, p. 10.
7. For example, the discussion about the origins and development of Islam in
Arakan remains lively. See Aye Chan, “The Development of a Muslim Enclave in
Arakan (Rakhine) State of Burma (Myanmar), SOAS Bulletin of Burma Research,
Vol.3, No. 2, Autumn 2005.
8. The 1901 Census is cited in Alleyne Ireland, The Province of Burma (Boston and
New York, 1907) p. 71.
9. See also: Judith L. Richell, Disease and Demography in Colonial Burma (Singapore,
2006) p.32.
10. Berlie, pp. 1-13.
11. Elizabeth Powell-Brown, A Year on the Irrawaddy (Rangoon, 1911).
12. Ibid, p. 71.
13. Ibid, p. 77.
14. V.C. Scott O’Connor, The Silken East (London, 1904), pp. 69-71.
15. Ibid, p. 71.
16. Taw Sein Ko, “Burma: A Melting Pot of Races” in Burmese Sketches, vol 2
(Rangoon, 1920), p. 323.
17. V.C.Scott O’ Connor, The Silken East, p. 823-27.
18. J.G. Scott and J. P. Hardiman, Gazetter of Upper Burma and Shan States, Part 2
Volume 3 (Rangoon, 1900-1901), p. 175.
19. Arnold Wright (editor), Twentieth Century Impressions of Burma (London, 1910), p. 398.
20. Taw Sein Ko, “Burma: A Melting Pot of Races,” in Burmese Sketches, vol. 2
(Rangoon, 1920), p. 322.
21. Ibid, p. 323.
22. J.H. Hannay, “Ethnology in Burma,” in Arnold Wright (editor), Twentieth
Century Impressions of Burma (London, 1910), pp. 65-75.
23. Maung May Oung “Manners and Customs” in Arnold Wright (editor), Twentieth
Century Impressions of Burma (London, 1910), pp. 76-89.
24. Ibid, p. 77.
25. Sir George Scott, Gazetteer of Upper Burma and the Shan States (Part I-Vol. 1)
(London, 1900), p. 609.
26. Ibid, p. 612.
The Cham Muslims of Cambodia: Defining Islam Today and
the Validity of the Discourse of Syncretism
Allen Stoddard
On a recent visit to Cambodia, I had an insightful interaction with the current mufti
of Cambodia, Sos Kamry. As I explained to him my research interests, we spoke for
some time about the history of the Cham Muslims and Islam in Cambodia. He
spoke briefly about the history and culture of the Cham people, focusing primarily
on the great struggle their community has undergone during the last three decades,
trying to recover from the great suffering endured during the time of the Khmer
Rouge.
As we moved into a more specific discussion of Cambodia’s contemporary
Cham communities, I asked if he could tell me more about the different groups of
Muslims that exist in his country. His immediate answer caught me off guard:
“There is only one group. There are no divisions. We are all just Muslims.” In
response, I asked him about certain communities I had recently visited that seemed
to have varying patterns of worship and tradition, or other groups who are
supported by foreign Muslim organizations and thus implement that particular
form of Islam. He calmly explained that those Muslim groups which combine
elements of other religions into their practice or accept foreign forms of Islam are
not “really Muslims.” He further clarified, “There are no ‘sects’—that is a Buddhist
thing. There are no divisions. There is only Islam.”1
This brief and simple interaction highlights an interesting contemporary
question that is replete with cultural, religious, political, and socio-economic
implications: what is Islam and who is a Muslim? Who is allowed or authorized to
address and answer such questions? And is such an essentialized definition of
Islam or a Muslim even possible? Ongoing conflict in Iraq, the terrorist attacks of
9/11 along with continuing al-Qaeda activity, and other global events have
contributed to a growing public interest in the world of Islam and Muslim
communities. There is a growing increase in special television programs, books,
news reports, and articles that are dedicated to the cause of defining Islam and
Muslim peoples. Harvard University, for example, recently held a special guest
lecture where this very theme was addressed, entitled “Who Speaks for Islam?
What a Billion Muslims Really Think.”2
In relation to these serious global matters, a somewhat obscure and relatively
small group such as the Cham Muslims of Cambodia seems at first glance to sit on
the periphery of the issue. And indeed, the majority of interest and research that
236 Stoddard
History
The majority of Cham descend from the kingdom of Champa, a largely maritime
nation that extended over the central and southern coastal regions of Vietnam. This
kingdom flourished from the second to the seventeenth century A.D.5 Whereas the
Viet people who bordered the Cham territory were a colony of China for a thousand
years, the Cham and their neighbors, the Khmer, were more heavily influenced by
Indian culture that had spread in the region via maritime trade routes through
Southeast Asia. Their geographic location, being flanked by the Vietnamese to the
north and the Khmer to the south, made warfare and diplomacy a constant scene
among the Cham. From 980 A.D. on, the Vietnamese began forcing the Cham to
retreat steadily southward; and shortly following this period, the Khmer also began
to push on Cham borders and invade their kingdom.6
In 1471 the Vietnamese invaded Cham lands and permanently seized the Cham
capital of Vijaya. While this defeat did not mark the end of the Champa civilization,
the fall of Vijaya is significant for several reasons. First, the defeat at the hand of the
Vietnamese greatly reduced the Champa Kingdom to its southernmost territories.
Secondly, the displacement which followed led to the first major migration of the
Cham into Cambodia. The largest group7 of Cham Muslims within Cambodia
today, namely the Cham proper, began their movement into Cambodia in 1471 as a
result of this defeat. And lastly, it was likely at this time of intense conflict between
the Vietnamese and Champa Kingdom that the majority of Cham began to convert
to Islam.
Before their widespread conversion to Islam, Cham religious beliefs were
primarily influenced by Hindu ideas, along with a certain influence of Buddhism.
Remaining Cham sculpture from their early history shows the central role of Siva
in religious devotion.8 These Hindu traditions dominated the Champa Kingdom
from its earliest period until the thirteenth century. Yet by the thirteenth century,
Persian and Arab trade in the region, as well as contact with Sufi missionaries from
Gujerat and Bengal and from the Middle East, introduced the Cham to Islamic
teachings for the first time.9 Although this initial introduction of Islam to the Cham
community did lead a small segment of the kingdom to convert to Islam, most
historical evidence verifies that the majority of conversions occurred after the fall of
Vijaya.
Regarding the appeal of the Islamic faith at this time of crisis, scholar Raymond
Scupin notes that as the Cham capital fell and many of the Cham fled to Cambodia,
Melaka, and Java, the Cham “were exposed to the intensive wave of Islamization
that affected other Malayo-Polynesian-speaking peoples in the Malay and
Indonesian coastal states. More than likely, Malayan and Indonesian Muslims were
successful in demonstrating the spiritual efficacy and the possibilities of social
238 Stoddard
Java. They identify themselves as “Cham” only when that label is loosely applied
to mean “Cambodian Muslims.”16 Perhaps more than any other group among the
Cham, the Chvea have most fully assimilated into Khmer customs. They all speak
Khmer and often refer to themselves as “Khmer Islam” to avoid the stigma of being
foreigners. But while the Chvea may be marked by a predisposition to assimilate
into Khmer culture, they also maintain close ties with the Muslim Patani Malays of
Southern Thailand— a relationship which has had and continues to have an impact
on their religious and cultural orientation, as Malaysian Muslims continue to be
engaged in an effort to move the Cambodian Muslim community towards a greater
“orthodoxy.”17
Current Practice
The three main divisions within the Cham Muslims of Cambodia—the Cham,
Cham Sot, and Chvea—each share a number of similarities regarding culture,
history, and religious practice. But their differences warrant discussion as they
contribute to the question of who can speak for Islam, and what precisely the Islam
is that is being spoken for. While the Cham proper and Cham Chvea do not claim
a similar ancestral heritage, both groups are eager to identify themselves in terms
of their religion rather than any foreign origin. The willingness of both of these
groups to make adjustments in ritual, tradition, and overall orientation toward a
more “orthodox” Islam has enabled them to receive greater support from foreign
Muslim sources. This support from several Middle Eastern countries—as well as
from Malaysia, Indonesia, and Brunei—has provided funding for building schools
and mosques, purchasing text books and religious literature, and providing travel
funds for the hajj. These groups welcome this support, feeling that “it signals an
inter-national recognition of their importance as Cambodian Muslims.”18
Despite their contrasting origins, there are great similarities between the Cham
proper and Cham Chvea. But in comparing the Cham proper with the Cham Sot,
though they share a common cultural heritage, it is their differences that are most
striking. The most obvious difference between these groups is that while the Cham
proper and Cham Chvea hold to the common Muslim practice of praying five times
a day, the Cham Sot instead hold to the ancient Cham tradition of praying only once
a week. This one aspect of their religious practice underscores the dominant
concern and focus of the Cham Sot—namely to preserve the religion, history, and
cultural traditions of their ancient Champa roots. Along with differences in prayer,
the Cham Sot also continue to use the Cham script in their writing, while the other
Cham rely on the Jawi script (following their Malay counterparts) in their religious
commentaries.19
240 Stoddard
this broad heritage, to lay bare the essential message of the Prophet in it primal
simplicity and purity.27
As noted earlier, this element of adaptability was a key factor that contributed
to the successful spread of Islam into Cambodia. The message of Islam was well
received, as least in part, due to its simplicity and lack of rigid ceremonies that were
dominant within Indic traditions. Sufi ideas were especially embraced due to their
allowance for ancestral veneration and their emphasis on spiritual charisma and
versatility. But while the flexibility inherent in the message of Islam was an
attractive aspect of the message to the earliest Cham, the very diversity which
stems from such flexibility has contributed to growing divisions and contentions
among contemporary Cham communities.
movement criticizes the type of financial support offered by Wahhabi groups and
instead stresses the internationalization of Islam primarily through proselyting.31
The Tablighi Jamaat is a global Islamic reformist movement which began in India in
the 1920s. It spread into Cambodia in the early 1990s under the leadership of Imam
Suleiman Ibrahim and established its spiritual center in Phum Trea, just north of the
provincial capital of Kampong Cham.
This movement, with its emphasis on individual piety and religious activism,
has spread rapidly among Cambodian Chams.32 Their presence is more easily
recognizable due to their differences in dress. A growing number of women are
opting to wear the black tent-like purdah, which reveals only a small opening for
the eyes. Several men, as well, opt for a style of dress that sets them apart not only
from Khmer Buddhist neighbors, but also from other Cambodian Muslims—
instead of the traditional sarong and skull cap, many men now dress in long white
robes and turbans and are encouraged to grow a beard.33
While the Tablighi movement may not necessarily insist on the implementation
of an Arabic or Middle Eastern form of Islam, they are similar to the Wahhabi
movement in that they view their movement as being a representation of an Islamic
orthodoxy. As Collins notes, “they consider that they are doing what the Prophet
Mohammed himself did in his life, and that they are following the true, original way
of Islam.”34 That these two groups can both claim to represent a pure, orthodox form
of Islam and be radically opposed highlights the essence of the problem of the syn-
cretic/orthodox debate. One could very well argue that groups such as the Cham
Sot do deviate from the religious practices of many Muslims worldwide—by
neglecting the basic Islamic practice of praying five times a day they are clearly not
adhering to one of the most fundamental elements of Quranic- and Hadith-based
Islamic devotion. However, the essential question to consider here is that if the reli-
gious practice of the Cham Sot truly is “deviant,” which fundamentalist ideology,
whose Islam, is fit to correct these aberrations and enforce the model of religious
purity?
free from any cultural accretions, Cham identity is progressively forsaken in order
to follow a purely Muslim identity.35
As noted previously, this tendency to treat any practice that is pre-Islamic as
being of necessity impure or syncretic is ironic in that it disregards the very
foundations and initial expansions of Islam. And specific to the Cham Muslims of
Cambodia, it betrays the historical beginnings of an acceptance of Islam due to its
potential for securing social unity and its ability to adapt to existing traditions. And
by so doing, the actors who attempt to speak for Islam in Cambodia today often do
so in opposition to Cham traditions—thereby threatening to destroy a Cham
cultural consciousness which has already been fractured by years of serious
oppression and destitution.
Perhaps then, instead of viewing Islam in Cambodia through the more subjec-
tive lens of orthodox versus unorthodox or pure versus syncretic Islam, there is a
more useful paradigm. As one scholar has noted, it may be more helpful to inter-
pret specific manifestations of Islam through the lens of there being only one Islam
but many different kinds of Muslims.36 Such an approach to Islam is more nuanced
and complex, but it might help avoid the many problems that arise from more
essentialized and dogmatic presentations. As Geertz argues, “A descent into the
swirl of particular incident, particular politics, particular voices, particular tradi-
tions, and particular arguments, a movement across the grain of difference and
along the lines of dispute, is indeed disorienting and spoils the prospect of abiding
order. But it may prove the surer path toward understanding “Islam”—that reso-
nant name of so many things at once.”37
The Cham Muslims of Cambodia 245
Notes
1. Sos Kamry, interview by Allen Stoddard, Phnom Penh, Cambodia, 25 July 2007.
2. Mogahid, Dalia, “Who Speaks for Islam? What a Billion Muslims Really Think.”
Harvard University Center for Middle Eastern Studies. 4 March 2008.
3. Kraft, Siv Ellen, “‘To Mix or Not to Mix’: Syncretism/Anti-Syncretism in the
History in the History of Theosophy.” Numen, 49, no.2 (April 2002), 145.
4. Stewart, Charles and Rosalind Shaw, “Introduction: Problematizing Syncretism,”
in Syncretism/Anti-Syncretism: The Politics of Religious Synthesis, Charles Steward
and Rosalind Shaw, eds. New York: Routledge, (1994), 10.
5. Scupin, Raymond, “Historical, Ethnographic, and Contemporary Political
Analyses of the Muslims of Kampuchea and Vietnam,” Sojourn, Vol. 10, No. 2,
(1995): 302.
6. William Collins, “The Chams of Cambodia” in Interdisciplinary Research on Ethnic
Groups in Cambodia. (Phnom Penh: Center for Advanced Study, 1996), 18–19.
7. The three distinctive groups that may be distinguished within the Cham catego-
ry are the Cham proper, Chvea, and Cham Sot (Cham Jahed).
8. Collins 1996, at 18.
9. Ibid., 24.
10. Scupin 1995, at 305.
11. Setudeh-Nejad, S., “The Cham Muslims of Southeast Asia: A Historical Note.”
Journal of Muslim Minority Affairs, 22, no.2, (2002), 453.
12. Collins 1996, at 24
13. Taylor, Phillip, Cham Muslims of the Mekong Delta. Singapore: National
University of Singapore Press, (2007), 109–110.
14. Ovensen, Jan and Ing-Britt Trankell, “Muslim Minorities in Cambodia,” in
Southeast Asian Islam: Plurality, Tolerance and Change. NIASyntt: Asia Insights, no.4
(December 2004), 22–23.
15. De Féo, Agnès, “Muslims in Cambodia: Religious Revival through
Transnational Islamic Groups Since 1991,” in Dynamics of Contemporary Islam and
Economic Development in Asia, From the Caucasus to China, Centre de Sciences
Humaines (CSH), New Delhi, (April 16-17, 2007), 1.
16. Collins 1996, at 78.
17. Ibid.
18. Ovensen 2004, at 22.
19. Collins 1996, at 77.
20. De Féo, Agnès, “The Syncretic World of the ‘Pure Cham.’” Phnom Penh Post, 14
no.19, (September 23—October 6, 2005), 2, 4.
21. Scupin 1995, at 305 (italics added).
22. Van der Veer, Peter, “Syncretism, Multiculturalism and the Discourse of
246 Stoddard
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Islamic Groups Since 1991,” in Dynamics of Contemporary Islam and Economic
Development in Asia, From the Caucasus to China, Centre de Sciences Humaines
(CSH), New Delhi (April 16-17, 2007), 1–7.
De Féo, Agnès. “The Syncretic World of the ‘Pure Cham.’” Phnom Penh Post, 14
no.19, (September 23—October 6, 2005), 8-9.
Geertz, Clifford, “Which Way to Mecca?,” New York Review of Books, June 12, 2003.
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in the History of Theosophy.” Numen, 49, no.2 (April 2002), 142-177.
Maroney, Eric. Religious Syncretism. Great Britain: SCM Core Press, 2006.
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Asian Islam: Plurality, Tolerance and Change. NIASyntt: Asia Insights, no.4 (December
2004), 22-24.
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of the Muslims of Kampuchea and Vietnam,” Sojourn, Vol. 10, No.2, (1995).
Setudeh-Nejad, S. “The Cham Muslims of Southeast Asia: A Historical Note.”
Journal of Muslim Minority Affairs, 22, no.2, (2002), 451-455.
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Syncretism/Anti-Syncretism: The Politics of Religious Synthesis, Charles Steward and
Rosalind Shaw, eds. New York: Routledge, 1994.
Taylor, Phillip. Cham Muslims of the Mekong Delta. Singapore: National University of
Singapore Press, 2007.
U.S. Department of State. “Cambodia”. International Religious Freedom Report
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Disability, Democracy, and the Politics of
Civic Engagement in Cambodia
Darren C. Zook
The extent to which the nation-state is a sensory experience is often overlooked
and underestimated. The political textures of the nation-state, and the physical
expressions of political culture that mark its landscape, are arguably just as
important as the functional elements of politics that are often taken for granted by
analysts and observers: elections are as much an audio-visual spectacle as they are
a practical process of democracy. As a spectacle, and as a sensory experience,
however, the nation-state is experienced differentially by its constitutive elements.
Citizens with physical and cognitive disabilities, for instance, do not have access to
the same political sensations as other citizens: monuments remain unseen, anthems
remain unheard, rallies remain unattended, and so forth. In spite of the best efforts
of even the most sensitive of government institutions and agencies, the blunt fact
persists that for citizens with physical and cognitive disabilities, the state is an
indifferent manufactory of a disturbingly diverse array of inequalities.
Yet states, whether democratic or not, cultivate indifference at their own peril;
where citizens seek access and recognition, states seek legitimacy and loyalty. In
many ways, these two simultaneous needs produce a condition of mutual
dependency, but this does not lead ineluctably to a pessimistic end. In fact, there is
a great deal of room here for potential negotiation, and not just of the opportunistic
variety, that can be of considerable benefit for both sides. This potential is enhanced
in moments of democratic transition and expansion. It is in the interest of the state
in such moments to reach out to and incorporate marginalized populations, and it
is in the interest of marginalized populations, and here I will focus on the disabled
communities, to create new channels of access to the institutions of the state. The
state needs its citizens to claim a universal legitimacy, and citizens need the state,
and its array of institutions, to claim and access their rights. It is therefore in the
interest of both sides to redraw the political, social, and cultural landscape of the
state.
It is in this context that the example of Cambodia becomes particularly relevant.
After decades of political instability and turmoil, including one of the worst
genocides of the twentieth century, Cambodia went through a two-year period of
institutional reform and democratic transition that ended with the elections of 1993.
Like many other countries making similar transitions, Cambodia is still going
through the long and arduous process of democratic consolidation. One of the
250 Zook
crucial elements in this process has been the mobilization of citizens, as individuals
and as members of various communities, into a coherent and articulate civil
society capable of meaningful civic engagement. Among the many communities
that have responded to the call of democracy in Cambodia is the vast and complex
section of society composed of persons with physical and intellectual disabilities.
Though the community of persons with intellectual and physical disabilities is
extraordinarily diverse, in terms of age, gender, geographic location, and the
severity of the disability as well as its nature and origin, finding common cause
among these groups in the struggle to create and claim rights in Cambodia has led
to a local and regional campaign of civil society mobilization that has significant
potential impact on the struggles of both disabled persons and other marginalized
groups. These citizen-initiated forms of mobilization are creative, constructive, and
innovative, and while their specific goal has been to address the direct needs of
the various disabled communities in Cambodia, the larger effect has been to
strengthen the democratic social contract between state and society and to develop
a new political rhetoric that draws upon a lexicon of rights, dignity, and
respect. The various campaigns of political mobilization within the disabled
communities have laid the foundation for political integration with Cambodia’s
many other communities, whether disabled or non-disabled, marginalized or
non-marginalized. The process is by no means complete or without formidable
challenges, and in many ways there is still more bad news than good, but the
benefits are already apparent, and the possibility of reconstructing an entirely new
and inclusive political landscape in Cambodia is very real indeed.
Amputees 18%
Blind 17%
Polio 14%
Deaf 14%
Intellectual dis. 10%
Para/quadraplegic 7%
Leprosy 2%
Other 18%
will not be a part of this effort, and as a result a valuable opportunity to chart the
transformation of the disabled communities over time, in demographic terms, will
be lost (Government of Cambodia 2008).
The geographic landscape of disability is in fact one of the most important
elements in understanding how both state and society perceive and engage with
the disabled communities in Cambodia. Cambodia is still a country where the
population is located largely in rural areas, and it is estimated that 85-90% of
persons with physical and intellectual disabilities live in the rural areas. This fact
alone creates a staggering number of logistical challenges in facilitating interaction
between disabled communities and the state, between disabled communities and
nondisabled communities, and among the various disabled communities
themselves.
For instance, given the widespread dispersal of persons from the disabled
communities in Cambodia, reaching deep into what is often remote, inaccessible
wilderness, and given the uniformly meager resources of the Cambodian state, it
makes financial and political sense to consolidate centers and facilities for the
various disabled communities in urban areas, either in Phnom Penh or in other
provincial urban centers such as Battambang or Siem Reap (Molyvann 2003).
Government offices and ministries that deal with disabled communities are located
in Phnom Penh or a few provincial towns, as are many of the medical facilities
designed for treatment or training. The National School of Prosthetics and
Orthotics, for instance, established by the government with the help of nongovern-
mental assistance from groups such as Cambodia Trust, Veterans International, and
the American Red Cross, is located in Phnom Penh. Most centers serving the blind
and deaf communities are also located in Phnom Penh. Alternatively, the
Quadriplegic and Paraplegic Center, which was opened in 1993, is located in
Battambang, as is the Rehabilitation Center for Persons with Spinal Injuries. It is not
illogical or imprudent to put these facilities in Battambang, considering the fact that
the four northwest provinces located around Battambang see some of the highest
rates of paraplegic and quadriplegic injuries due to their location in heavily mined
areas, but the journey to Battambang is still an arduous one, and the facilities
themselves, while effective, can only serve a limited number of patients at one time.
Currently it would be cost prohibitive to require that all rural schools offer
enhanced facilities and courses to accommodate students from the various disabled
communities. Quite often, these schools have inadequate resources to serve the
students they have even in the best of circumstances (Ayres 2000; Bray and Bunly
2005; Forsberg and Ratcliffe 2003). And even where the school might have resources
to provide enhanced services, there are other logistical obstacles throughout the
rural landscape that would make it difficult for students from the disabled
Disability, Democracy, and the Politics of Civic Engagement in Cambodia 253
would be the Cambodian Mine Victim Information System (CMVIS), which has
compiled the Mine Incident Database Project since 1994. CMVIS, along with MAG,
have also engaged in mine risk education programs, especially in the northwestern
provinces of Cambodia, where the majority of landmines, and the majority of
landmine victims, are found. CMVIS also carries out education programs
regarding the risks of explosive remnants of war (ERW) and unexploded ordinance
(UXO), particularly in the southern provinces of Kandal, Kampong Speu, Prey
Veng, and Svay Rieng, where the prevalence or ERW and UXO is highest.
Alongside these activities, the Cambodia Campaign to Ban Landmines has worked
assiduously in the field of landmine victim assistance, while the Cambodia Red
Cross and Handicapped International have been active participants in compiling
information about landmine (and ERW and UXO) victims and in engaging in
programs of mine risk education. In 2006, the UK-based nongovernmental group
Spirit of Soccer began a mine risk education program in Battambang that uses sport
to reach their targeted audience of school-aged at-risk youth.
As imperfect as they might be, these clusters of organizations and their many
activities engaging with the disabled communities of Cambodia represent a radical
potential not only for the members of the disabled communities themselves but also
for new forms of political mobilization within Cambodia. These new methods of
political mobilization will serve to strengthen civil society by creating social and
political networks that facilitate discourse and action among the different disabled
communities and between disabled and nondisabled communities as well. This
represents a radical potential insofar as it differs considerably from any other
moment of opportunity within living memory in Cambodian politics. During the
genocidal years of the Khmer Rouge period (1975-1979), for instance, with the
insistence on purity and productivity, disabled persons were routinely singled out
for extermination, either on the grounds that they were impure (in the case of
congenital physical and intellectual disabilities) or else non-productive (in the case
of acquired physical and intellectual disabilities) (Kiernan 2002). With its own
perverse logic, the Khmer Rouge often created these physical and intellectual
disabilities through their own actions, and then exterminated those who
manifested these disabilities in any way that hindered the efforts of the regime. In
the period from the Vietnamese intervention up until the first peace talks (1979-
1989), the civil war between Vietnamese-backed forces and former Khmer Rouge
elements effectively precluded any concerted government action or policy package
that could deal in any meaningful way with persons from disabled communities in
Cambodia (Gottesman 2004; Slocomb 2004). The situation was too volatile or
unstable for nongovernmental organizations to create a supplementary presence,
so in essence the disabled communities were left to fend for themselves during the
258 Zook
period, including even victims of war and amputees. During the period of
Vietnamese withdrawal, peace talks, and United Nations-sponsored nation-
building under UNTAC (1989-1993), efforts were concentrated on building the
foundational institutions and instruments of the democratic state, which meant that
issues relating to disability communities were considered at best of secondary
importance (Doyle 1997; Roberts 2000; Widyono 2007). It was therefore only with
the post-UNTAC period of independent democratization that the possibility of
effective policy and vibrant activism became a part of Cambodia’s political
landscape, and it is not by pure accident that most of the organizations currently
active in engaging with issues of disability in Cambodia were established in the
1993-1994 period. This helps to explain why issues of disability and members of the
disabled communities have been a part of Cambodia’s democratic transition right
from the beginning.
The emphasis on rights and the rule of law also provides a necessary supple-
ment to the preferred state approach to disability issues, which is one of
“rehabilitation,” particularly through economic development programs (Asian
Development Bank 1999; Disability Action Council 1999). The state often views civil
society activism based on the claiming of rights from and against the state to
be excessively contentious, even to the extent of undermining state efforts at
development. But rights-based efforts and development-based efforts are not part
of an either/or trade-off, and should be seen instead as two parts to a more effective
policy whole. Development-based rehabilitation models in Cambodia are
designed to integrate disabled persons and communities into their local (or
national) communities by providing the means for them to participate in the
process of development in Cambodia (either at the local or national levels) (Thomas
2005). Rights-based approaches can have the same effect and result, but they
are citizen-initiated and articulated, which provides an element of dignity that is
often absent when one is seen as merely the passive recipient of government
rehabilitation efforts.
There are certainly benefits to be drawn from the rehabilitation approach,
so it cannot be entirely discounted, but there are substantial problems with the
rehabilitation and development approach that make it essential to create alter-
native, citizen-based methods of social integration and inclusion. To begin with, the
very framing of the issue as one of rehabilitation, a word that is also used with
reference to reintegrating criminals back into society, is yet another example of
putting the focus on the disabled person or community as the problem that needs
to be rehabilitated. Moreover, by singling out disabled persons and disabled
communities for an entirely different and often separate relationship with
development programs, the state effectively undermines the very idea of integra-
tion through rehabilitation right from the start. Even then, if the state focuses only
on development-based models to somehow engineer the integration of disabled
persons and communities in Cambodia, this runs the risk of minimizing the
rights-based approaches which are equally essential and also it runs the risk of
marginalizing the role of disabled persons and communities by relegating them to
one small element of a much larger program of national economic development.
The economic integration through development approach is therefore not
rejected by persons and communities with disabilities in Cambodia, but rather seen
as a parallel course alongside rights-based campaigns and activities. Even within
the realm of economic integration, however, there has been a considerable degree
of mobilization to construct programs that ensure that disabled persons and
communities do not become passive recipients of a state-based-development-
as-charity approach. The result has been citizen-initiated environmentally
260 Zook
success of Krousar Thmey has been both “horizontal” and “vertical”: it is now quite
common at Krousar Thmey to see children from both disabled and nondisabled
communities interacting for educational and extracurricular activities (thus break-
ing down horizontal barriers in same-age groups), and several Krousar Thmey
graduates are now attending university in Cambodia, with Krousar Thmey
translating college textbooks on-site into braille for these students to use (thus
breaking down vertical barriers of educational advancement). On a more cautious
note, there is also a pilot program at the school to train blind children in advanced
grades in the skill of massage therapy, a thriving industry in tourist-laden Siem
Reap. While there is certainly a degree of practicality in this effort, it is also evident
that there is all sorts of potential for abuse in this field, not necessarily at Krousar
Thmey itself, where the project is closely monitored, but away from the school once
these students graduate and enter the general labor market.
Perhaps the most important contribution that all of these actions collectively
make is that as issue-based efforts at mobilization they constructively form an
active part of a vibrant and ever-expanding civil society in Cambodia. Citizen-
based, civil society initiatives have the dual effect of increasing the visibility of
disabled persons and communities in Cambodia and simultaneously producing
outcomes from which all Cambodia citizens can benefit. In showing that disabled
persons and communities contribute in equal measure and in equal part to the
politics of Cambodia, they also enhance the visibility in Cambodian politics of
issues relating to social justice and human dignity for all Cambodians. Whatever
the case may be for the future, for the present, the many contributions of the
disabled communities can and should be recognized for their contributions to the
strengthening of Cambodia’s democratic institutions and the democratic process of
governance.
Conclusion
In November 2007, Cambodia hosted, for the first time since its democratic
transition, an international athletic competition. The significance of the choice
cannot be overestimated: Cambodia chose to host as its first international sports
event the World Disabled Volleyball Tournament. The choice to host this event was
due, in part at least, to the efforts and the mobilizational campaign—to the civic
engagement, in short—of the Cambodia National Volleyball League (Disabled).
Everything about this event was significant, from the fact that the team itself was
composed of members who had fought on both sides of the civil war, now finding
a common identity as Cambodians, to the fact that the winning team of the
tournament was in fact the Cambodian team, making them in essence world
champions. The volleyball team became national heroes and celebrities, and did so
262 Zook
References
Asian Development Bank. 1999. Identifying disability issues related to poverty
reduction: Cambodia Country Study. Phnom Penh: Asia Development Bank.
Ayres, D.M. 2000. Anatomy of a Crisis: Education, Development, and the State in
Cambodia, 1953-1998. Honolulu: University of Hawaii Press.
Bonnet, M. 1997. Motor disabled people in the agricultural and rural sector in
Cambodia. Sustainable Development Department: UN Food and Agricultural
Organization.
Bray, M. and Bunly, S. 2005. Balancing the Books: Household Financing of Basic
Education in Cambodia. Hong Kong: Comparative Education Research Center.
Cooperation Committee for Cambodia. 2006. The Challenge of Living with
Disability in Rural Cambodia: A Study of Impaired Mobility in the Social Setting of
Prey Veng District, Prey Veng Province.
Delegation of the European Commission to the Kingdom of Cambodia. 2006. EU
awards 2 million euros to 10 new human rights and democracy projects in
Cambodia. Press release of 12 December.
Disability Action Council. 1999. Cambodia Plan of Action for the Disability and
Rehabilitation Sector: Working Draft for Comments. DAC: Secretariat.
Doyle, M.W. 1997. Authority and elections in Cambodia. In Keeping the Peace:
Multidimensional UN operations in Cambodia and El Salvador, ed. M.W. Doyle, I.
Johnstone, and R.C. Orr, 134-164. Cambridge: Cambridge University Press.
Forsberg, G. and Ratcliffe, M. 2003. Education Sectorwide Approach: Cambodia
Education Case Study. Asian Development Bank.
Gottesman, E.R. 2004. Cambodia After the Khmer Rouge: Inside the Politics of Nation
Building. New Haven: Yale University Press.
Government of Cambodia, Ministry of Planning. 2008. “General Population Census
of Cambodia 2008” (final draft of 24 August 2006).
Handicap International. 2006. Annual Report 2006. Phnom Penh: Handicap
International Belgium (Cambodia).
Kiernan, B. 2002. The Pol Pot Regime: Race, Power, and Genocide in Cambodia under the
Khmer Rouge 1975-1979. New Haven: Yale University Press.
Mines Action Group. 2008. Cambodia Programme: February 2008 Update.
Molyvann, V. 2003. Modern Khmer Cities. Singapore: Select Books.
Roberts, D. 2000. Political Transition in Cambodia 1991-1999. London: Routledge.
Slocomb, M. 2004. People’s Republic of Kampuchea, 1979-1989: The Revolution After Pol
264 Zook
Introduction
Little is known of the lives of gay men living in rural areas across the world and
especially so in Southeast Asia. As was shown in a small study published in Jurnal
Kajian Budaya (Indonesian Journal of Cultural Studies),1 men who have sex with men
(MSM)2 do live in villages and small towns in Indonesia, partly because they do not
want to live in the cities and partly because they see no need to leave their rural
surroundings. More culturally sensitive research is required to explore the lived
experience of men who have sex with men in rural Indonesia and to understand
this overlooked and marginalized population within Indonesian society.
This paper arises from a research project conducted to explore the stories of men
living in rural communities in Java who acknowledge that they have sex with other
men. It is a project about discovering the meaning that these men give to their
experience of seeking and having sex with other men, mindful of where they live
and the social conventions that exist there.
Men who have sex with men are one of the more vulnerable groups “on the
margins” of society who have been systematically denied access to important
social resources. They have been denied visibility, recognition, social status and
honorability. But more importantly they have also been excluded from AIDS
education and prevention programs, sometimes even by organisations and NGOs
whose specific task it is to take HIV education to MSM. For too long, it has been
assumed that MSM live only in the cities, with the result that those men living in
rural areas who have sex with men have been largely absent from depictions of
both rural life and representations of “non-heterosexual” life. The extent of the
omission of these men from HIV education programs is underlined by a recent
United Nations paper in which MSM were described as “the missing piece” in the
HIV education and prevention jigsaw – a group that the paper describes as “…invis-
ible … on our social or public health radar.”3 For rural MSM, it seems that they are not
only “invisible,” but that they don’t even exist. Yet they do.
Methodology
The aim of this research project was to explore, understand and theorize about the
experience of being a man who has sex with other men in rural Indonesia. It
describes what life is like for the MSM who informed it and it explores the
266 Green
meanings they give to their lives. This was largely hidden and unknown territory.
A qualitative methodology was chosen as the most appropriate research approach
to use and therefore, this study is both descriptive and theoretically exploratory.
The methodology is situated within a qualitative framework and makes use of
two related research techniques – phenomenology and ethnography. The aim of a
phenomenological approach in qualitative research is to describe accurately the
lived experiences of people. The primary source of data is the life-world of the
individual being studied. However, in phenomenological research, “… each step of
the research process is essentially a personal struggle to maintain a connectedness with the
lived world of the other.”4 Phenomenology is about discovering the meaning given to
a phenomenon by those people who experience that phenomenon. The philosopher
Jacques Derrida makes the point that such discovery can only occur when the
researcher is open to the otherness of the other.5 This study is concerned not only
with the life experiences of these individual MSM but with behaviours that derive
from those experiences and the significance they give to them.
A feature of qualitative research in general, and of phenomenology in particu-
lar, is the value and the prominence given to the informants’ point of view and the
meanings they give to their own lives and to the place where they live.
Phenomenology is a way to account for how individuals define and reflect
upon situations and actions and to establish or find essential elements or “… com-
monalities of meaning between individuals who experience a similar phenomenon.”6 It is
through these descriptions by the men of their subjective experiences of rural life
that the researcher can come to an understanding of what it is like being an MSM
living in rural Indonesia.
On the other hand, ethnography is an exploration of a culture from the
perspective of the people who actually live in that culture. Ethnography aims to
describe the values, beliefs, and practices of cultural groups.7 A culture is not only
perceived as an ethnic population but can also be seen as a community or a social
world. Ethnography involves the study of a small group of individuals in their own
cultural environment. In this case, it is through these men’s perception of their
own homosexuality and its interface with gay culture and with traditional rural
values that the researcher is made aware of these men’s conceptualisation and
interpretation of what, for them, being a MSM in a rural community is about.
In qualitative research, it is not generally assumed that the specific findings
of one inquiry may apply to other situations and some caution is taken in any
extrapolation of the results. Thus, there is a concern for, and attention given to, the
uniqueness of a particular context and a particular group of informants.
The in-depth interview was chosen as the primary means of data collection for
a number of reasons. This type of interview allows participants to tell their story in
The Important Forgotten 267
their own way and in so doing be able to emphasise what has been, and what is,
important to them.8 There are advantages in this. First, it ensures accuracy –
people are more likely to tell “the truth,” and a richer and fuller version of it, when
they can tell it their way. Second, such an interview can be less traumatic and less
confrontational for the informant, especially when the topic is so personal and
potentially traumatic in its telling. Lastly, this interview method allows for some
interventions (when needed) to prompt a recollection or to gently steer the
interview back on track if the informant wanders too far. The in-depth interview
also allows for a face-to-face meeting. It ensures a privacy and an immediacy that
helps the informant provide data that he might otherwise not disclose.
Additionally, to assist the establishment of some sense of rapport and trust between
the informant and the researcher, the interview can be much more of a conversation
than an oral interrogation. The language used can be everyday words without
the stiltedness, the caution and tentativeness, that comes from more structured
processes.9 Given the nature of this study, sexuality and sex are aspects of these
men’s lives that are likely to be raised and in-depth interviews may allow a more
open and frank canvassing of these issues than other forms of data collection.
The interview was conducted in English and Bahasa, the questions being
initially asked in English, translated into Bahasa, answered in Bahasa and then
translated back into English. The accuracy of the translation was double-
checked in the transcription process whereby the research assistant helping
with the transcription was not the same person who assisted in the interviews.
Each of the interviews lasted for approximately one and a half hours. However, in
the case of six out of the nine men, the interview team met with the man before the
interview and then at that meeting an interview was scheduled for a few days later.
Because of privacy concerns of these men, none of the interviews were conducted
in the village in which the men lived, although in the case of two men, the pre-
interview meetings were. In the case of two of the waria, the interviews were
conducted in their home village and, in fact, conducted in the family home of one
of them.
Participants
This paper is based on interview data gathered from a small sample of self-
identified MSM who grew up and live in villages outside metropolitan Yogyakarta
in Java. Nine men and three waria, who self-admitted that they desired and had sex
with other men, agreed to participate in the research. The men interviewed came
from six different villages. The men who came from the same village knew each
other but had never engaged in sex with each other. The men’s ages ranged from 25
to 65. Four of the men had married and each of these men had children. Eight of the
268 Green
Findings
Though it is not possible in this paper to detail all of the findings of this research,
the final report of the research project will have a greater analysis of the data. What
is presented here is these men’s experience in relation to four themes that emerged
from the data:
- early sexual experience,
- self-disclosure,
- identity, and
- religion.
These themes were chosen because they have significant implications for HIV
education and prevention programs that may be designed to target Indonesian
MSM living in rural areas.
For other men, this realization of difference came later. “P” stated that,
In junior high school I found that I was different and when my friends spoke about the
sexy bodies of girls I don’t have the same feeling. …I realized that I liked boys when I
was a student [in high school]… 15 or 16.[1/1]
Similarly, the warias also had their initial sexual experiences at an early age. For
example, “A” said that her11 first sexual experience was with a boy in sixth grade of
elementary school when she was about 11 or 12 years if age. She had already begun
to see herself as female and this sexual activity was where she masturbated the boy
rather than an act of mutual masturbation. It was an act that “A” remembers
initiating. “K” also told of sexual experience in junior high school. As she recalls it,
It was the boys who touched me first … four boys. Yes … it was kissing and touching.
But I did not say no to their touching me. We were just kissing and touching and the
boys held my hand and directed it to his cock. [10/5-6]
As with the men in the Bali study,12 these men saw no reason to leave the village
because of this difference. With the exception of two men, the remaining seven men
and the three waria had their first sexual experience in the village. The ages of this
first sexual experience varied but what is important to note is that for some men
and waria this was very young.13 For example, “Ha” recalled that
…when I was in 1st grade of elementary school we had sex and the boy was very
active…we sucked each others’ cocks. But, when I was in 4th grade and he was in 1st
grade of junior high school I was the active one. I was the one doing things. [9/4]
Another man said that he was having sex in the first grade of high school … at
about 13 years of age. He said that,
In junior high school … I began to engage in sex … by seducing [merayu] him myself.
I liked someone who was stronger than me and was more manly [kebapakan]. I was
looking for the boarding house where the other boy lived and I found it and spent the
night there with him and I seduced him and it happened. At first I started by touching
him and then the boy did not object and wanted it.
E: So who initiated it?
H: Me
E: So … the young boy seduced the older boy.
H: Yes. [8/5-6]
There is no indication that any of these men and waria were in any way forced
The Important Forgotten 271
to have sex and in every instance of their first sexual experience, the men and waria
who were interviewed said that they initiated it.
The other point to note about these youthful sexual experiences is the amount
of sex some of these young men had. For example, one young man, “W” was
having sex with other boys and men three times per day at 16 years of age. One of
the men he was involved with was a teacher at his high school as indicated by the
exchange below,
E: And how much sex were you having?
W: Three times per day. … Not certain … sometimes with a different boy … sometimes
with my friend.
E: Was this sex playing with each other cocks, sucking cock or was it anal sex. Were
you fucking?
W: Yes.
E: The other boys?
W: Yes.
E: And the teacher?
W: Yes.
E: And was anyone fucking you?
W: No … I don’t want [that]. [6/7-8]
Two things to note from this exchange: one is the inventory of sexual experience
that some of these young men had and the second, and more important point, is
to understand the amount of control these young men and warias had over the
situations in which they put themselves. In the case of “W,” it is clear that he sought
out, initiated and controlled the sexual encounters, even when that encounter
involved an older man who was in a position of power. It was “W” who controlled
what he would and would not do. This is not to say that his sexual partners were
unwilling participants, but the initiative as to what would and would not happen
seemed to lie with “W.” Warias “A” and “K” made exactly the same point.
However, not all early sexual encounters were so full on. In the case of “P,” he
went from his village to the swimming pool in Yogyakarta after he had found out
that on a certain day of the week, it was possible to find other MSM there. He
recalled that there was
… only touching in the swimming pool but no sex. My hand is above the water but the
other man’s hands are on my body below the water. … The water was at my chest and
so most of my body is below the water. [1/4]
At this time, “P” was 32 years of age and for him it had been a long and
difficult personal journey to get to the stage of accepting his sexual self and then
272 Green
Self-Disclosure
One of the criteria for interviewing these men and waria was they that accepted and
acknowledged, at least to themselves, that they desired sex with men and that they
had had, and were continuing to have, sex with men. This self-acknowledgement is
the first and most important form of self-disclosure and is one of the milestones in
“the ‘coming out process’ among the Indonesian MSM,” at least the way it appears
to happen in western societies. As will be seen from the discussion below, this
concept of “coming out” appears not to follow Western patterns. Self-disclosure to
others, especially to family and to the community in general is not considered
important. Furthermore, all of these men said that they had told the other boys or
men they were sexually active with that they preferred to have sex with men, even
though some of them were also having sex with women. Additionally, most of the
men said that they had told someone and this someone was usually a friend,
though that friend was not necessarily MSM or gay.
For these men, to tell someone else, even a friend, was difficult. For example, for
“P,” one of the older men in the group and the one person for whom self-acceptance
was an especially slow and tortuous process, telling someone that he liked men
sexually was “awkward” [1/7].
But other men said that they had not told anyone and furthermore had no
intention of telling anyone. “S” said that he would not tell anyone because he was
“ashamed” [3/7]. “N” said that he was “afraid,” but part of this fairly strong reaction
may be because both of these men are married. Other men simply said that they
were “shy” and that they did not want others to know [7/20], which is perhaps a
polite way of saying that others did not need to know. One man told me that I was
the first person he had ever told that he had a boyfriend. As for family, no one had
told their family and, as of the time of the interview, no one had any intention of
telling anyone within the family. Of course, this is not to say that family did not
sometimes have an idea as to what was going on. For example, “H” remembered
that
… one day my brother came to my room and found a gay magazine and so he could
The Important Forgotten 273
There were two exceptions to this. “P,” the one man who had quite late in life
come to an acceptance of himself, decided to make something of a declaration to his
family at an opportune family gathering. He recalled it this way:
Up to now I am the one who hold the family’s assets together. And we had a family
gathering some time ago and at that gathering I asked my mother to talk to the family
and divide the inheritance among the children … in this case it was land. And I think in
that kind of situation when all of the family are gathered together that is the right time
for me to declare that I will not get married. I told them that I will not get married and I
asked my family not to bother trying to find a prospective wife for me because I will not
get married. And there was no objections to my declaration … just so so. … Maybe they
did not know about my gayness … but I needed to say these things to them to make
them stop hoping that I would get married. [1/9]
But he also made it very clear that he could never tell his mother saying that she
“would never understand these things” [1/10]. He felt he did not have to “disappoint”
[1/10] [perhaps “upset’” may be a better word to describe his intentions] his
elderly mother. But he left open the possibility of actually telling someone in the
family, saying,
… if I have to do it, I will tell that to only one person … my brother … because I
consider that he is the one who can be asked to talk [to other members of the family]
about this thing. Maybe he will be disappointed but I am sure that my brother will not
get angry. [1/9]
The other exception was “B.” This man was younger than “P” and prided
himself on his macho look, his manly physique and he openly said that he used his
masculinity to divert attention away from any suspicion that he was gay. But he also
made it very clear that he accepted that he was gay, and it is perhaps this that
allowed him to speak with select others. He said that,
I have been telling this story of mine to about five people. Two of them were imam, but
the other three were friends. The imams told me to stay away from the gay life and gay
people and to do more praying. But speaking is easy and for me who had to do this …
well it was not that easy. But the more I struggled with myself, the more depressed I
got and the more hurt I felt. And I also wanted to know more about what gay life was
like. I felt that the imam were small people and this also pushed me to want to know
more about gay life. ... my friends understood what I was going through and they
respected my feelings. They wanted to know more about what brought me to being gay
and they could listen to me. I [especially] liked one of them … that is why I decided to
tell my story to him. My friends understood what I am because they had a very good
274 Green
education background and a wide knowledge [of the world]. That is why he knows and
understands that this kind of life [homosexual life] is real and exists. … I was thankful
that I could find friends [in the village] who could understand me and help me overcome
the emotional struggle I was having inside myself. Before, I felt as if there was nobody
who wanted to know about me or who would accept me. [2/4-5]
The warias’ development was not something that could be hidden from family,
friends or the public. It was not something that they could choose or not choose to
The Important Forgotten 275
disclose. Their increasing feminization was something that they had to deal with
and it was also something that their families had to deal with. Sometimes that was
not easy, but what was gratifying was that all three warias said that their families
continued to love and accept them as they took on the characteristics of women. It
is highly likely that not all warias, or indeed not all MSM more generally, had the
support of family that the ones in this research did. Nevertheless, these rural warias
were able to grow up and continue to live in the village and be loved and accepted
by their families and friends as well as being free of physical violence coming from
the people in the village itself.
This factor, too, has implications in how HIV education programs for MSM
living in the villages should be designed and delivered and it will be discussed
again in the final section of this paper.
Identity
Across the world there is an enormous range of same-sex behaviours and lived
identities that cannot be reduced to some simplistic Lesbian-Gay-Bisexual-
Transgendered (LGBT) paradigm. Under that paradigm, each person is expected to
fit themselves (or be fitted) into a box of this or that category. Those who cannot box
themselves into some pre-determined sexual category are then un-identified such
that the unlabelled are denied space in the discourses of sexuality and denied place
in the polemics of HIV education and prevention.
Sexual identity should be based on the lived experience of the individual and
what has meaning and significance for that individual from their lived experience.
In this study, an attempt was made to not pre-determine categories and then group
people into those categories. This study tried to avoid that boxing exercise and any
attempt at grouping the men as to who they should be and what they should call
themselves and how they should identify. And while this paper uses the term MSM,
it does not do so as an identity category, but as a term of sexual desire and sexual
practice. But even here, that term is fraught with difficulty. In this small study, there
were “men who have sex with men” because they desired other men. There were
men who had sex with other males because they did not consider these males to be
men. There were males who did not think of themselves as men, who had sex with
those they considered real men. There were men who considered themselves men
in one situation but not in another. Had the sample been larger, it is likely that the
possibilities of sexual practice may well have also been larger. And in this sample,
there were also men who had sex with women as well as men. Some of these men
were married, some were not.
The men in this study who were living in the village were very reluctant to
categorize themselves other than admitting that they liked to have sex with men.
276 Green
Take “N” for example. Not only did he not understand the term “gay,” but he was
even confused as to whether the Indonesian term “banci” applied to him. The
following exchange captures this confusion over terms and a refusal to be easily
categorized,
N: In my residence, there are many many men who like men, but in my own village, I
think I am the only one.
E: Would you use the word “gay” to describe these men?
N: What does “gay” mean. I do not understand this word.
E: You do not understand what “gay” means? So when men have sex with one
another, how do you see that? What do you call that?
N: I would call him “mas.” [Either the question or the term is misunderstood, … or both].
E: What if you and I had sex together … what do you call us?
N: Maybe “banci” … but I really do not know a name for this.
E: So do you call yourself “banci”
N: [Laughs] I do not know. When I was in junior high school, many of my friends called
me “banci,” but I just kept silent.
E: But now, you say you say you are not “gay,” you are not “banci,” so does this mean
that you just like to have sex with men?
N: Now I do not think that I am “banci,” but sometimes my voice is a little bit like a
woman’s. I act sometimes a little bit girly. I just like having sex with a man some-
times.[4/8]
And “N” went on a little later in the interview to make this comment,
Other men understood the term “gay” and only reluctantly applied it to
themselves. But the term had meanings that they did not like and that they refused
to apply to themselves. Essentially the term “gay” was seen in an effeminate
context and did not apply to laki-laki asli [real men]. “Gay” did not apply to what
“A” calls “normal” men, which for him refers to “straight acting” men, “Gay” was
The Important Forgotten 277
not how some of the men in this study saw themselves. Therefore, “gay” applied
only to the extent that it referred to male-to male sexual practice. The following
exchange illustrated the point,
E: Are you a gay man?
A: I cannot say I am gay. When someone asks me whether I am gay and cannot answer
that. I do not like it [the term “gay”]. But I am gay … I know I am gay.
E: Why do you not like to say [admit] you are gay?
A: I do not know ... but I do not enjoy when somebody says I am gay. It looks [feels] so
ahhhhhhhhhhhhhhhh. What I like about gay is the relationship between a real man and
a real man. I do not like a sissy.
E: So … you think gay is banci?
A: Yeah.
E: You think gay is sissy
A: Yeah. I think gay is like that. … Yes .. I really don’t like that. I only want a real man.
E: So … you want a masculine man … who doesn’t look sissy?
A: Yes.
E: So … it is about style
A: Yes … I want to look like a normal style guy … I think gay is [associated with] a
woman’s style. And I don’t like that … I want to look normal.
E: So … what do you call yourself … if you are not “gay?” You say you don’t like “gay”
or the gay way.
A: No … I just don’t for somebody to call me gay because it makes me not enjoy myself.
E: What would you like to be called … if you are not gay … what are you … are you a
normal man?
A: No … I just only like men and men, but I do not like someone to tell me I am gay. I
do not want someone to tell me I am gay. I only tell myself that I like men.
E: You reject the label, but you know that you like men?
A: Yes. [7/15-17]
Nevertheless, there were men in this study who were quite willing to label
themselves. “W” was a case in point.
E: So physically you like a man, emotionally you like a man. But you are married with
a wife and a child.
W: Yes.
E: So are you gay … or straight ... or bisexual … or what?
W: Bisexual. [6/14]
Similarly, “Ha” was happy to identify as “gay” even though he fully intended
to get married to conform to societal, religious and family expectations. “Ha” said
that “one of the demands of the society that when a man is of age he should get married”
278 Green
[9/12], and that this applied to all men … gay, straight or otherwise. “Ha” makes it
clear that despite the marriage requirement, he still saw himself as “gay”:
E: How did you see yourself at this time … did you ever use the word “homosexual”
about yourself … or “gay” or any other word about yourself at this stage?
H: Yes. I can feel as a gay.
E: So you understood the terms. You understood “homosexual” and “gay” .. were these
terms the same … was there any linkage of these terms?
H: They were the same … “Homo” in English is “gay.” [9/9]
But he went on to define himself a little more “clearly” [sic], but perhaps that
definition only delightfully muddies the water. He said,
E: How do you see yourself now … you are not married at the moment … are you
homosexual … are you gay .. .what are you… have you an identity … or do you just
like men and just like to have sex with men. Or perhaps you have no identity …
perhaps you just happen to like men.
H: On the chatting line there are many people ask me about that but my answer is I am
a gay man who still needs a woman. [9/12]
E: So the only time you are a man is when you are actually talking to people that you
know are not gay. When you talk to gay men, you behave like a woman.
H: No … I only talk and feel like a woman when I am with a [male] sexual partner.
E: So sometimes when you are with your sexual partner you feel like a woman, but at
other times you feel like a man.
H: Yes … I feel I am a woman only when I am with a [male] lover. [Note the difference
that “H” makes here … I ask whether he feels like a woman and he replies that in the
sexual act he is a woman.] [8/14-15]
This flexibility in terms of gender behaviour is reflected in the way “H” refuses
to be defined and confined by a term.
E: And how do you see yourself now … are you gay, homosexual, bisexual. What is
your identity now? … Do you have a word for that feeling … liking a man?
H: Until now, I do not have a word for this, but let’s say because I am a quite
successful man, all of my children have completed university, automatically people feel
a little bit ashamed to say [“banci”] to me. But my feeling has just remained the same
in that I still like [to be with] men. I am “laki laki asli” [a real man] but my feeling is that
of a woman. … in [a sexual] situation. I am the bottom and so I consider myself as the
woman.
E: Ahhhhhhhhhhh. So it is the position you take in sex that dictates the feeling or iden-
tity you have. Is that how it is?
H: Yes. It seems that if I want to have sex with a man, my feeling at that time is that of
a woman. [8/13-14]
But identity can also be derived from factors outside of ourselves and can come
from factors as diverse culture, language, religion, and geography. This was made
clear in a recent study into rural gay men in Australia15 where place was an
important determinant of identity. Those men identified as rural men and as gay
men. In this study of MSM living in villages in Indonesia, the propensity to
identify on the basis of where one lived was not as strong. However, there was one
man who did so, and he deserves a place in this narrative. “P” had suggested that
after much searching he had finally made contact with another man who liked men,
but that this man was in the city. He made it clear that while there were similarities
between himself and this other man from the city “… especially about the taste and
the type and also about the lifestyle” [1/8], there were also significant differences. And
these differences were based on where they grew up and lived. He put it this way,
P: Because these men were from the city and I was from the village and we therefore
had two different lifestyles. …What I feel is that people from the city have different
patterns of life and that affects me. I know that I am gay, but I do not need to go to a
280 Green
However, the waria who were part of this study were not nearly so reluctant to
categorize themselves and nor were they as confused about who they were. The
waria repeatedly said that while they had the body of a man, they had the soul
[“jiwa”] of a woman. What was not clear from their testimony was whether this jiwa
was a collective meaning in the way Boellstorff suggests16 or whether it is used to
compare themselves to other women rather than to other waria. It is with some
confidence that “K” can declare,
My soul is definitely a woman’s ... [10/2]
But it is important to understand that for waria, while they have the soul of a
woman, they also acknowledge that they have the body of a man. And as was
mentioned earlier in this paper, none of the waria in this research wished to change
the male genitals that they were born with. It is simply that the soul is in the wrong
body. Or as “K” put it,
My soul is a woman, but it has the wrong casing [body]. [10/6]
Later in the interview she refers to this notion of completeness again by which
she means not only does she means that she has good and bad in her, but she also
obliquely refers to the fact that she is both man and woman and that she has not had
surgery to remove her penis … so she is “complete” in that sense as well. [10/11]
This complete “package” “K” refers to as “boobs with a cock” [10/12] and she goes
on to say that,
… if I cut off my cock, I will not be a lady-boy any more. [10/13]
While the other waria did not use terms nearly so colourful as “K,” their
sentiments were the same. Sexually and socially, these waria saw themselves as
women. “I” put it this way,
When I have sex, I feel like it is between and man and a woman and I am the woman
The Important Forgotten 281
This factor has significant implications in how HIV education programs for
MSM living in the villages should be designed and delivered and will be discussed
again in the final section of this paper.
Religion
In this study eight of the nine men were Muslims, and one was Christian and all
three waria were Muslim. All of the men and waria expressed some pride in
their religious faith and no one said that they had no faith or that religion was
unimportant in their lives.18 These men and waria saw it as important socially and
individually to fulfill their religious obligations and they saw their faith as having
something to say about how they should behave as citizens in a civil society. For
example, “A” said that,
I am a good Muslim. I believe that by praying in the mosque … helping other people …
282 Green
caring .. just like this … and helping somebody .. this is [what being a] good [Muslim is]
for me. [7/17-19]
But several people in this research saw themselves not quite as good Muslims
largely because they did not pray. One man said he had “tried” [2/10] to be a good
Muslim … another said when asked whether he considered himself to be a good
Muslim answered that despite praying and going to the mosque, he was unable to
say whether he was a good Muslim … the implication being that this was for God
to decide [7/17].
Another man, when asked whether he considered himself to be a good Muslim,
responded with the phrase “… paling…sadar kalau eling” [I realize when I
remember] [2/10]. He then went on to say “well … let’s say I am not quite close to
Him” [2/10]. Again, being a good Muslim was something for God to decide rather
than man. It was in this vein of thinking that these men reconciled their sexual
desire and practice with their religious faith.19 Looking across their testimonies, it
is remarkable how comfortable they are with their sexuality and their religion. This
finding is as welcome as it is largely unexpected. For example, one man said that,
It is possible for me to be a good Muslim and it is not a big deal [that I like other men].
[4/11]
This man went on to say that, for him, his problem was not about whether his
sexual desire and practice was sinful but
My battle [pertarungan] is that I am afraid if someone that I loved would leave me.
[8/12]
The Important Forgotten 283
Therefore, the battle was to find someone to love, to forge a lasting relationship
and as to whether that was sinful was something secondary and something that he
did not have to decide because sin was something essentially in the hands of God.
Other men said similar things. When the proposition was put to “A” that Islam says
that sex between men is wrong, he responded by saying that,
I know that … I feel bad when I hear this in the mosque, especially when the imam
preaches that it is haram [forbidden]. And I have a feeling [reaction] … but what can I
do. It is life and sometimes when I think about it it makes me hurt also. But I do not
know whether it is real or not. But I know the story. It is hard because I also believe the
religion. But sometimes when I read the book [the Koran], sometimes I do not believe
also. Yeah … the problem is the religion … Yes … it is the religion. I have no answer
… but life must go on. [7/17-19]
When the warias described themselves as not quite a good Muslim, it was in
terms similar to the MSM. They made it clear that their religious faults were ones
of omission. For example, “K” remarks that
I do not pray enough yet…. It is only in the fasting month that I go to the Mosque.
[10/11]
“I” said that while she sees herself as a Moslem and that she “…learnt some
Islamic lessons from a ustad” [12/5] she only prays “sometimes” and that rather than
going to the mosque, when she prays, she prays “…at home sometimes with other
warias.” [12/5]
For “W,” sex with a man did not preclude him from being a good Muslim, but
the lack of prayer in his life could. It was not so much his love of men that could
284 Green
cause him to be not so good a Muslim, but his lack of contact with God. Another
man said that life was like a house and composed of many rooms under the one
roof. Sexuality and religion are both part of life, but as he said,
… religion is a private matter and being gay is also a private matter. For me, gay and
religion each have their own room in the house. … As I said before, gay is a private
matter and religion is a private matter. [5/13]
One of the reasons for this accommodation between the sexual self and religion
is that several of the men reasoned that God made them the way they were. And
while they may have questioned why he did that to them in particular, they felt that
if this was how he created them, then how they felt in a sexual sense was also God’s
doing.20 For example “H” made the comment that,
I felt that God made me this way … so I just did it [got on with it]. [8/2]
Several studies and articles have suggested that religion poses significant
problems for those who see religion as important in their lives. For example, Khan
stated in relation to MSM in South Asia that
… having same-sex desires, was seen in opposition to Muslim identity. This led to
expressions of guilt and deep shame and feelings of depression. Islamic concepts of
heaven and hell were a felt reality in their lives and at times created considerable ten-
sion and fear. The feelings of pain and loneliness that so many stated they experienced
were felt to be deserved and could not be avoided.21
This level of comfort with religion was even more explicit in the testimony of the
warias. They explained this accommodation between their sexual selves and their
religious faith in a number of ways. As has been mentioned, each of the warias not
only saw themselves as women, but said that they were women. Therefore they
explained their sex with men as the natural and normal sexual desire of a woman.
For example, “I” said that
I have feeling as a woman, and therefore I should have sex with a man and not to a
woman. Because I am a woman. [12/5]
The warias were very mindful of what they saw as sin. For them, sin was very
much a matter for God alone to decide and was not a matter to be decided by
humans. Therefore “K” was able to say that,
God’s issues are for God and it is only for He and I to know what goes on between us.
What I do is between me and God. [10/10-11]
Similar sentiments were echoed by “A” in suggesting that the matter of sin was
something not of concern to other people. She suggested that,
The Koran is about God’s business and [it is not] about human business. .. God is the
only one who knows everything. People cannot decide if something is sinful or not
sinful because He is the only one who can decide these things. [11/7]
But the warias, like the MSM, also suggested that God created them the way
they were and therefore how they felt and the desires that emanated from their
God-given sexuality. This is the rationale behind “A’s” statement that
… I am like this because of God and not because of me. [11/7]
But the overwhelming sentiment to emerge from the warias’ testimony is one of
a quiet comfort with their religion, a refusal to be seen by others (and to see
themselves) as sinful and to let matters of moral judgment be decided by God. As
“I” put it,
I surrender everything to God. I believe He will find me a way out. [12/2]
However, while none of the men or warias expressed a gladness that they were
MSM or waria, none of them spoke of the deep shame, the guilt and the depression
that Khan refers to. Instead they find an accommodation with religion that allows
them to continue to pray …and so remain good Muslims and do good works that
allow them to be good people. Additionally, they are more inclined to see their
sexuality and their sexual desires as God-given, a view that then also allows
notions of sin to be a matter decided by God rather than some cleric.
Again, this factor has implications for how HIV education programs for MSM
living in the villages should be designed and delivered and it will be discussed
again in the final section of this paper.
conformity to community norms can hinder dealing with issues of safe sex,
especially among MSM.23 MSM themselves will be extremely discreet, and are
unlikely to access programs that do not recognize the circumstances in which they
live.24 This applies as much in Indonesia as it does in other countries of the world.
In the background research for this project, a doctor who has regular inter-
actions with people who live in the villages was consulted. The reason for choosing
this particular doctor was because he self-acknowledges that he is gay. In discussing
how the problems of gay men living in villages might be addressed, he made the
important point that,
I think solving this problem will not happen by the men leaving the village. Maybe if they
moved to the city, they would still feel under pressure. But what I have been doing is to
help them alleviate the mental pressures that they feel. They have no skills that would
equip them for employment in the city. If they moved to the city under those conditions,
not only would their depression continue (and get worse) but it is also likely that they
could not eat. But living in the village, they have something to hold [on to] and they also
have a job. This is not whether they like to stay or not like … whether they want to or
do not want to … for them this is a must.25
Therefore to reach out to this important, but forgotten, sector of the communi-
ty, it appears that HIV education programs must be taken to the village. We cannot
expect MSM to leave where they want to live. In addressing the issue of how one
might take HIV education and prevention programs to the villages, the doctor
warned that it would be difficult and there would be obstacles to overcome
including opposition from sections of the village community. Additionally, issues
of stigma, lack of privacy and the cultural notion that disease is a curse and
diseased people will be shunned all have to be dealt with at a local level.
From the data detailed in this paper there is now some information on the lived
experience of MSM living in rural communities in Java. Some of this information
may be useful in underpinning new programs that reach out to these important
forgotten men. Clearly, boys are having sexual contact with each other at an early
age, and from the evidence of this research, boys not yet out of elementary school
are exploring each others bodies, searching for meaning in such contact and simply
enjoying the pleasure of such contact. Given this, consideration should be given to
the provision of age-appropriate HIV education programs to those in elementary
school and such programs should be cognizant that some boys will be engaging in
same-sex activities. Obviously, such programs should be continued throughout
all levels of school, with increasingly sophisticated information provided in an
increasingly realistic and frank manner.
Given that all the men in this research were unwilling to disclose their
The Important Forgotten 287
sexuality at the community level, except with those they were sexually engaged
with, then any HIV education program must be broad enough to not target only
MSM. Rather MSM should be seen in the context of one of the groups in the
community that will benefit from such a program, as will any sexually active
individual, as well as those at risk from injected drug use. So a way forward may
be to focus on HIV as a disease and every sector in the society gets a mention
including MSM. So there is a focus on the disease but not on people. But such an
approach would make it very clear that even in a village there are people who inject
drugs, there are men who have sex with other women (and not just their wives)
and there are men who have sex with men.
However, given the plethora of ways in which these men identified, as gay
men, as MSM, as women sometimes and as men at others even within a village
environment, HIV education programs must somehow encompass multiple gender
identities. Of course, this is without even mentioning warias, whose specific needs
must also be addressed.
However, one issue might not be the obstacle that it sometimes is made out to
be. As has been shown in this paper, these rural MSM were able to self-negotiate a
position of relative comfort with their sexual desires and practices and with the
requirements of their religion. Therefore, while any HIV education program that
mentions MSM may have to incur the scrutiny of the religious authorities at the
village level, such a program can be designed that incorporates a more pragmatic
approach to the question of MSM and religion. Such an approach is not without
precedent and the Workshop Manual published by Positive Muslims in South
Africa26 is instructive reading. What is required is a program that provides support,
and not judgment, to MSM and develops a progressive Islamic perspective on HIV
and AIDS that acknowledges the relationship between health and socio-economic
well-being.27
Conclusion
This research is a work in progress. There is much more to be done. This paper is
an attempt to “visibilize” and validate those men who have sex with men who live
outside cities and metropolitan areas. This paper has attempted to consider and
contemplate their experience of life in the village, and thereby come to a fuller
understanding of what it is to live there and be a man who has sex with men. It is
only in the light of an understanding of these men’s lived experience that we can
make some comment on ways in which HIV education programs are designed to
most effectively reach out to them. A failure to do this will result in a continuation
of them being marginalized, “invisibilized” and forgotten. They are too important
for that.
288 Green
Notes
1. Green, E.J. (2006a), “Living in Rural Areas of Indonesia - The Experience of Gay
Men,” Jurnal Kajian Budaya (Indonesian Journal of Cultural Studies), Vol. 3, No. 5, p.
111 – 136.
2. MSM - Men who have Sex with Men: Men who engage in same-sex behavior, but
who may not necessarily self-identify as gay.
3. Bruce, N. C. and Pandey, I. (2007), Men who have Sex with Men: The Missing Piece
in National Responses to AIDS in Asia and the Pacific, UN AIDS, Bangkok, p. 4.
4. Barnacle, B. (ed.) (2001), Phenomenology, RMIT University Press, Melbourne, p.
vii.
5. Reynolds, J. (2001), “The Other of Deridean Deconstruction: Levinas,
Phenomenology and the Question of Responsibility,” in Minerva – An Internet
Journal of Philosophy, No. 5, p. 31 - 62, at http://www.ul.ie/~philos/vol5/index.html ,
p. 59.
6. Herschell, R. M. (1999), “Some Principles for ‘Quality Control’ in Qualitative
Research - A Phenomenographic Treatise,” Paper presented at the Annual Conference
of the Association for Qualitative Research, 6 – 10 July, Melbourne, unpublished, p. 4.
13. See the following report concerning the ages of sexual debut for Muslim MSM
men: Khan, S. (2006), Faith, Cultures and Sexualities - A pilot study on the impact of
Islamic beliefs, traditions and customs on Muslims who have sex with other males, Naz
Foundation International - International HIV/AIDS Alliance, Brighton, March 2006.
Regarding sexual debut, thirty four participants (56% - 34/61) reported their sexual
initiation by the age of fourteen years, of which three stated that they began having sex
before the age of ten years. Twenty participants began having sex between the ages
of fifteen years to eighteen years, while seven began having sex after the age of
nineteen years. [p. 16]
14. See also Green (2006a), where men indicated that they thought that members of
the family had some idea that they were not overly interested in women. But unlike
the men in Bali, none of these men indicated that they had any intention of
actually telling members of the family.
15. Green, E.J., ( 2006b), “Staying Bush” – A Study of Gay Men Living in Rural Areas,
PhD Thesis, University of New South Wales, Sydney.
16. Boellstorff, T. (2005b), The Gay Archipelago: Sexuality and Nation in Indonesia,
Princeton University Press, Princeton, p. 10.
17. Khan, S., Bondyopadhyay, A., and Jenkins, C., Eyes Wide Shut: Violence, Stigma
and Social Exclusion - MSM, HIV and Social Justice in South Asia, at
http://www.nfi.net/essays.
18. Boellstorff, T. (2005a), “Between Religion and Desire: Being Muslim and Gay in
Indonesia,” American Anthropologist, Vol. 107, No. 4, p. 577.
19. This is at some variance with the findings of Boellstorff who suggests that
“Many of these gay Muslims located sinfulness in practices … particularly penile–anal
sex” (Boellstorff, 2005a, p. 579).
20. Boellstorff (2005a, p. 580).
21. Khan (2006) p. 19. See also: Kesarwani, R. (2007), “Gay Muslims: ‘A Jihad for
Love’,” International Herald Tribune, November 20; Ayu, M. “Was I Born This Way?
The Thoughts of a Muslim Gay in an Oppressed Society,” at
http://gayreading.com/Lifestyles.Muslim.html; Branigan, T. (2001) “Gay Muslim
Working to Dispel Stereotypes,” The Jakarta Post, November, 25, p. 6; Diani, H.
(2002) “Opening Up: This is Who I Am – I Have Nothing to Hide: Oscar Lawalata,”
The Jakarta Post, 13 January, p. 3; Graham, D. (2003) “Writing at Sexuality’s
Margins,” Inside Indonesia, Vol. 76, October- December, at http://www.insideindone-
sia.org/edit76/p33review.html; Hickson, J. (1999) “The Struggle for Gay and Lesbian
Rights in Indonesia,” Green Left Weekly Online Edition, Vol. 348, at
http://www.greenleft.org.au/back/1999/348/348p9,htm; Howard, R.S. (1996)
“Falling into the Gay World: Manhood, Marriage and Family in Indonesia,” PhD
Thesis, University of Illinois, Urbana, unpublished; Junaidi, A. (2004) “Raising the
290 Green
Awareness of Gays and Transvestites,” The Jakarta Post, 18 September, p. 18; Junaidi,
A. (2004) “Younger Gays, Transvestites Have Courage to Come Out,” The Jakarta
Post, 18 September, p. 18; Juniartha, I. W. (2001) “Major Challenges Lie Ahead at the
End of the HIV/STD Project,” The Jakarta Post, 28 June, p. 9; Khan, B. (1997) Sex
Longing and Not Belonging: A Gay Muslim’s Quest for Love and Meaning, Floating
Lotus Books, Bangkok; Oetomo, D. and Emond, B. (1993) “Homosexuality in
Indonesia,” Paper Presented at an International Conference on AIDS, Berlin, unpub-
lished; Oetomo, D. (1996) “Gay Identities,” Inside Indonesia, Vol. 46, March, at
www.insideindonesia.org/edit46/dede.htm; Oetomo, D. (2001) “Gay Men in the
Reformasi Era,” Inside Indonesia, Vol. 66, April – June, at
www.insideindonesia.org/edit66.dede1.htm; Oetomo, D. (2001) “Cultural and
Religious Barriers Around Sexuality and Health,” paper delivered at The Sixth
International Congress on AIDS in Asia and the Pacific, Melbourne, October, at
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“Now You Se It, Now You Don’t: Homosexual Culture in Indonesia,” IIAS
Newsletter, Vol. 29, November, p. 9; Oetomo, D. (2004) “Younger Gays, Transvestites
Have Courage To Come Out,” The Jakarta Post, 18 September, p. 18; Offord, B. and
Cantrell, L. (2001) “Homosexual Rights as Human Rights in Indonesia and
Australia,” Journal of Homosexuality, Vol. 40, Nos. 3 - 4, p. 233 – 252; Petkovic, J.
(1999) “Dede Oetomo Talks on Reyog Ponorogo,” Intersections, Issue 2, May, at
http://wwwsshe.murdoch.edu.au/intersections/issue2/Oetomo.html; The Editor,
“‘Arisan!’ Tackles Taboos,” Shanghai Star 1 August, 2004, at
http://app1.chinadaily.com.cn/star/2004/0108/fe22-1.html;
22. Heckman, T. (2005) “The Need for Culturally-Contextualised Interventions for
Rural Persons Living with HIV/AIDS,” Paper delivered at the HIV/AIDS Prevention in
Rural Communities: Sharing Successful Strategies IV Conference, 7 – 9 April, Indiana
University, Bloomington.
23. DeCarlo, P. (1998) “What are Rural HIV Prevention Needs?,” Center for AIDS
Prevention Studies, San Fransisco, p. 2.
24. Zuniga, M.A., Buchanan, R.J. and Chakravorty, B.J. (2005), HIV Education,
Prevention and Outreach Programs in Rural Areas of the Southeastern United
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25. Interview with Dr C, Research Transcript, p. 1 - 2.
26. Esack, F. (ed.), (2007), HIV, AIDS and Islam: A Workshop Manual Based on
Compassion, Responsibility and Justice, Positive Muslims, Cape Town.
27. Ibid, p. vii.
The Important Forgotten 291
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The Important Forgotten 295
With special thanks to the Rockefeller Foundation for supporting the CKS
Building Educational Capacity in Cambodian Higher Education Program and
this conference.
7:00-8:00 Registration
10:30-11:00 Women, Pregnancy and Health: Case Studies among the Bunong
in Mondulkiri, Cambodia
Brigitte Nikles (Social Anthropologist, Nomad RSI Cambodia)
Theme Three: Migrant Labor and Workers (Chair: Dr. Darren Zook)
Theme Four: Development, Change and Ethnicity (Chair: Dr. Ian Baird)
Theme Five: Constructing Identities: Selves, Groups and Nations (Chair: Dr.
Frédéric Bourdier)
10:45-11:15 The Cham Muslims of Cambodia: Defining Islam Today and the
Validity of the Discourse of Syncretism
Allen Stoddard
(Harvard University, Cambridge, Massachusetts USA)
3:30-4:00 The Ethnic Process of Chinese People from Hai Ninh in Dong Nai
Dr. Tran Hong Lien (Southern Institute of Social Sciences,
HCMC, Vietnam)
CAMBODIA
Mr. Jan Berkvens Rabbit School, Phnom Penh
Dr. Frédéric Bourdier Institut de Recherche pour le Développement
Dr. Sokhom Hean Centre for Advanced Study
Mr. Sreang Heng Royal University of Phnom Penh
Mr. Touch Hun Rabbit School, Phnom Penh
Mr. Jeremy Ironside Freelance researcher
Mr. Chean R. Men Center for Khmer Studies
Ms. Brigitte Nikles Nomad RSI Cambodia
Dr. Philippe Peycam Center for Khmer Studies
Mr. Seng Sary Mean Chey University
Ms. Sarayeth Tive Women’s Media Center, Phnom Penh,
Mr. Siren Un Rabbit School, Phnom Penh
CANADA
Dr. Ian G. Baird, University of British Columbia, Vancouver
FRANCE
Ms. Marion Sabrie University Paris IV-La Sorbonne, Paris
GERMANY
Mr. Stefan Ehrentraut Centre for Advanced Study and Potsdam University
INDONESIA
Dr. Ed Green Universitas Gadjah Mada, Yogyakarta
304 Conference Participant
ITALY
Dr. Margherita Maffii University of Milan, Milan
JAPAN
Dr. Satoru Kobayashi Kyoto University, Kyoto
Dr. Toshihiko Shine Tokyo University of Foreign Studies, Tokyo
PHILIPPINES
Dr. Marlon de Luna Era De La Salle University, Manila
THAILAND
Ms. Omsin Boonlert Chiang Mai University, Chiang Mai
Dr. Kosum Saichan Chiang Mai University, Chiang Mai
UAE
Dr. Stephen L. Keck American University of Sharjah, Sharjah
USA
Mr. Allen Stoddard Harvard University, Cambridge, Massachusetts
Dr. Darren C. Zook University of California, Berkeley, California
Dr. Maya Kalyanpur Towson University, Towson, Maryland
Dr. Peter Hammer, Wayne State University, Detroit, Michigan
Dr. Robert L. Winzeler University of Nevada, Reno, Nevada
VIETNAM
Dr. Vu, Kieu-Dung Population Council, Hanoi
Dr. Tran Hong Lien Southern Institute of Social Sciences, HCMC
CONFERENCE ATTENDEES: Yin Sombo
Yorth Bunny
AUSTRALIA
Roger Leonard Burritt CANADA
Rethy Chhem
CAMBODIA Kelly Crowley
Ang Sokreoun Kathy Hibbert
Born Tola Tara Lawrence
Chap Prem Allan Pitman
Chea Bunary Sharon Rich
Chea Vanny Teresa Van Deven
Chhay Thun Piset
Chheat Sreang FRANCE
Chhort Bunthang Guy Faure
Chhun Phaveng Dennis Paillard
Chiv Sarith
Choeun Huy GERMANY
Chor Chan Thida Wolfgang Klenner
Dy Changkolney
Eang Sokkea NORWAY
Ek Sovann Espen Bjertness
Ham Samnom
Hang Chansophea MALAYSIA
Ith Sothea Mashhor Mansor
Ke Sam Oeurn Morshidi Sirat
Lim Dina
Mech Samphors INDONESIA
Mel SoPhanna Widharto
Nov Sokmady
Phy Sopheada THAILAND
Ratha Chhim Scott Hipsher
Saut Moeun Peter Masefield
Say Puthy
Sok Leang USA
Sok Ra Phillipp Alperson
Suon Sokoeun Dennis McCornac
Tha Leang Ang Ros Soveacha
Than Bunly
Touch Soputhy UNITED KINGDOM
Uy Sareth Suzanne Majhanovich
Vong Meng V.H. Lien Warder