Melanesian Agreement

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Country/entity: Papua New Guinea
Bougainville
Region: Asia and Pacific
Agreement name: Melanesian Agreement
Date: 26 Jun 2025
Agreement status: Multiparty signed/agreed
Interim arrangement: Yes
Agreement/conflict level: Intrastate/intrastate conflict
Bougainville Conflict (1987 - 1998)
The conflict on Bougainville, an island under the jurisdiction of Papua New Guinea (PNG), began in 1987 as a dispute over compensation for the use of land by Bougainville Copper Ltd, a an Australian subsidiary. The underlying issue of independence soon emerged and the conflict escalated between the government of PNG and the native islanders, in turn spearheaded by the Bougainville Revolutionary Army (BRA). Until fighting ended in 1998, an estimated 20,000 died in the conflict. Several pre-negotiation agreements culminated in an agreement to a ‘permanent and irrevocable’ ceasefire, and a framework for normalizing the PNG-Bourgainville relationship, which included elections.
Stage: Implementation/renegotiation
Conflict nature: Government/territory
Peace process: Bougainville: peace process
Parties: Hon. James Marape, MP — Prime Minister, Government of Papua New Guinea
Hon. Ishmael Toroama, MHR — President, Autonomous Bougainville Government
Third parties: -
Description: This agreement establishes a "Melanesian framework" for implementing the results of the 2019 Bougainville independence referendum, where 97.7% of Bougainvilleans voted for independence from Papua New Guinea. The agreement commits both parties to working through Papua New Guinea's National Parliament for final decision-making on independence while maintaining peaceful relations and includes provisions for institutional strengthening and international monitoring. It represents a significant step in the post-referendum consultation process that began after the December 2019 referendum results were declared.

Agreement document: PG_250626_Melanesian Agreement (opens in new tab) | Download PDF
Source of document: https://abg.gov.pg/index.php?/news/read/melanesian-agreement-between-the-governments-of-papua-new-guinea-and-bougainville

Groups

Children/youth: Groups→Children/youth→Other
Noting the wider consultations that have taken place with civil society organisations, women’s groups, churches, business representatives and youth, and the shared aspirations of women and youth for a peaceful and inclusive pathway forward;
Disabled persons: No specific mention.
Elderly/age: No specific mention.
Migrant workers: No specific mention.
Racial/ethnic/national group: No specific mention.
Religious groups: No specific mention.
Indigenous people: No specific mention.
Other groups: No specific mention.
Refugees/displaced persons: No specific mention.
Social class: No specific mention.

Gender

Women, girls and gender: Noting the wider consultations that have taken place with civil society organisations, women’s groups, churches, business representatives and youth, and the shared aspirations of women and youth for a peaceful and inclusive pathway forward;
Men and boys: No specific mention.
LGBTI: No specific mention.
Family: No specific mention.

State definition

Nature of state (general): No specific mention.
State configuration: No specific mention.
Self determination: No specific mention.
Referendum: Guided by the outcome of the constitutionally-sanctioned Bougainville Referendum, declared on the 11th of December 2019, in which an overwhelming majority of 97.7% of Bougainvilleans had voted in favour of separate independence, based on the definition of independence used on the Bougainville referendum ballot paper;
Acknowledging the crucial role that the Joint Moderated Consultations have played in resolving important issues pertaining to the post-referendum process;
...
The Parties have agreed to the following:
1. Joint Commitments:
...
1.2. The Parties recognise the legitimate choice of the Bougainville people for independence as expressed in the Referendum result;
...
1.5. The Parties agree that the process for bringing the Referendum results to the National Parliament will be by way of a sessional order as determined by the National Parliament.
The sessional order will be recommended by the Speakers of both the National Parliament and the Bougainville House of Representatives;
1.6. The Parties acknowledge that the National Parliament and Bougainville House of Representatives have a central and integral role to play in the process leading up to the National Parliament and thereafter;
1.7. The Parties acknowledge the importance of the Bipartisan Parliamentary Committee on Bougainville in consulting and disseminating the joint key messages, as assisted by the Moderator, for members of the 11th National Parliament, and the people of Papua New Guinea, on the Bougainville Referendum and the post-referendum process;
1.8. The Parties further acknowledge the importance of a public awareness raising programme by the Government of Papua New Guinea and the Autonomous Bougainville Government on the joint key messages for the people of Papua New Guinea and Bougainville, on the Bougainville Referendum and progress made in the post-referendum process.
2. Principles:
2.1. The Parties commit to exploring the joint creation of a Melanesian framework with agreed timelines, for a pathway forwards, that may form part of the Joint Consultations Report presented to the 11th National Parliament;
2.2. The results of the Bougainville Referendum and the Joint Consultation Report will be taken to the 11th National Parliament immediately after the Bipartisan Committee has completed its work in line with its Terms of Reference;
2.3. The Parties shall accept the decision of the National Parliament, in the first instance, regarding the Referendum results, and commit to further consultations, if required and agreed, according to an agreed timeline;
State symbols: No specific mention.
Independence/secession: Guided by the outcome of the constitutionally-sanctioned Bougainville Referendum, declared on the 11th of December 2019, in which an overwhelming majority of 97.7% of Bougainvilleans had voted in favour of separate independence, based on the definition of independence used on the Bougainville referendum ballot paper;
...
The Parties have agreed to the following:
1. Joint Commitments:
...
1.2. The Parties recognise the legitimate choice of the Bougainville people for independence as expressed in the Referendum result;
...
1.4. The Parties are committed to maintaining a close, peaceful and enduring relationship between Papua New Guinea and Bougainville;
Accession/unification: No specific mention.
Border delimitation: No specific mention.
Cross-border provision: No specific mention.

Governance

Political institutions (new or reformed): Governance→Political institutions (new or reformed)→General references
The Parties have agreed to the following:
1. Joint Commitments:
1.1. The Parties agree to the role of the National Parliament in the decision making process in accordance with Section 342 of the National Constitution;
...
1.5. The Parties agree that the process for bringing the Referendum results to the National Parliament will be by way of a sessional order as determined by the National Parliament.
The sessional order will be recommended by the Speakers of both the National Parliament and the Bougainville House of Representatives;
1.6. The Parties acknowledge that the National Parliament and Bougainville House of Representatives have a central and integral role to play in the process leading up to the National Parliament and thereafter;
1.7. The Parties acknowledge the importance of the Bipartisan Parliamentary Committee on Bougainville in consulting and disseminating the joint key messages, as assisted by the Moderator, for members of the 11th National Parliament, and the people of Papua New Guinea, on the Bougainville Referendum and the post-referendum process;
1.8. The Parties further acknowledge the importance of a public awareness raising programme by the Government of Papua New Guinea and the Autonomous Bougainville Government on the joint key messages for the people of Papua New Guinea and Bougainville, on the Bougainville Referendum and progress made in the post-referendum process.
2. Principles:
...
2.4. The Parties jointly commit to institutional strengthening and institutional building of the ABG administration as per the Sharp Agreement;
Elections: No specific mention.
Electoral commission: No specific mention.
Political parties reform: No specific mention.
Civil society: The Parties have agreed to the following:
1. Joint Commitments:
...
1.8. The Parties further acknowledge the importance of a public awareness raising programme by the Government of Papua New Guinea and the Autonomous Bougainville Government on the joint key messages for the people of Papua New Guinea and Bougainville, on the Bougainville Referendum and progress made in the post-referendum process.
Traditional/religious leaders: No specific mention.
Public administration: No specific mention.
Constitution: No specific mention.

Power sharing

Political power sharing: No specific mention.
Territorial power sharing: Power sharing→Territorial power sharing→Autonomous regions
The Parties have agreed to the following:
...
2. Principles:
...
2.4. The Parties jointly commit to institutional strengthening and institutional building of the ABG administration as per the Sharp Agreement;
Economic power sharing: No specific mention.
Military power sharing: No specific mention.

Human rights and equality

Human rights/RoL general: No specific mention.
Bill of rights/similar: No specific mention.
Treaty incorporation: No specific mention.
Civil and political rights: No specific mention.
Socio-economic rights: No specific mention.

Rights related issues

Citizenship: No specific mention.
Democracy: No specific mention.
Detention procedures: No specific mention.
Media and communication: No specific mention.
Mobility/access: No specific mention.
Protection measures: No specific mention.
Other: No specific mention.

Rights institutions

NHRI: No specific mention.
Regional or international human rights institutions: No specific mention.

Justice sector reform

Criminal justice and emergency law: No specific mention.
State of emergency provisions: No specific mention.
Judiciary and courts: No specific mention.
Prisons and detention: No specific mention.
Traditional Laws: No specific mention.

Socio-economic reconstruction

Development or socio-economic reconstruction: No specific mention.
National economic plan: No specific mention.
Natural resources: No specific mention.
International funds: No specific mention.
Business: Noting the wider consultations that have taken place with civil society organisations, women’s groups, churches, business representatives and youth, and the shared aspirations of women and youth for a peaceful and inclusive pathway forward;
Taxation: No specific mention.
Banks: No specific mention.

Land, property and environment

Land reform/rights: No specific mention.
Pastoralist/nomadism rights: No specific mention.
Cultural heritage: No specific mention.
Environment: No specific mention.
Water or riparian rights or access: No specific mention.

Security sector

Security Guarantees: No specific mention.
Ceasefire: No specific mention.
Police: No specific mention.
Armed forces: No specific mention.
DDR: No specific mention.
Intelligence services: No specific mention.
Parastatal/rebel and opposition group forces: No specific mention.
Withdrawal of foreign forces: No specific mention.
Corruption: No specific mention.
Crime/organised crime: No specific mention.
Drugs: No specific mention.
Terrorism: No specific mention.

Transitional justice

Transitional justice general: No specific mention.
Amnesty/pardon: No specific mention.
Courts: No specific mention.
Mechanism: No specific mention.
Prisoner release: No specific mention.
Vetting: No specific mention.
Victims: No specific mention.
Missing persons: No specific mention.
Reparations: No specific mention.
Reconciliation: No specific mention.

Implementation

UN signatory: No specific mention.
Other international signatory: No specific mention.
Referendum for agreement: No specific mention.
International mission/force/similar: No specific mention.
Enforcement mechanism: No specific mention.

Melanesian Agreement

Endorsed in Plenary, 12th June 2025

Burnham Military Camp, Burnham, Aotearoa New Zealand

An agreement between the Government of Papua New Guinea (GoPNG) and the Autonomous Bougainville Government (ABG), collectively, (the Parties), to craft and pursue a clear political pathway forward, in accordance with the requirements of S342 and Part XIV of the Constitution of Papua New Guinea (the National Constitution), which implements the Bougainville Peace Agreement.

Recognising the historical significance of Burnham Military Camp, Christchurch, Aotearoa New Zealand, as the spiritual birthplace of the negotiation process, leading to the Bougainville Peace Agreement, and the outcomes of the third Joint Moderated Consultation (JMC) held in Burnham, New Zealand from 9-13 June 2025;

Appreciating the support of the government and people of Aotearoa New Zealand in enabling this important round of joint consultations;

Recalling the work undertaken by the Parties so far in giving effect to important political agreements, such as the Sharp Agreement, the Kokopo Joint Statement, the Post Referendum Results Implementation Roadmap (Wabag Roadmap), the Port Moresby Joint Statement, and the Era Kone Covenant;

Guided by the outcome of the constitutionally-sanctioned Bougainville Referendum, declared on the 11th of December 2019, in which an overwhelming majority of 97.7% of Bougainvilleans had voted in favour of separate independence, based on the definition of independence used on the Bougainville referendum ballot paper;

Acknowledging the crucial role that the Joint Moderated Consultations have played in resolving important issues pertaining to the post-referendum process;

Noting the wider consultations that have taken place with civil society organisations, women’s groups, churches, business representatives and youth, and the shared aspirations of women and youth for a peaceful and inclusive pathway forward;

The Parties have agreed to the following:

1. Joint Commitments:

1.1. The Parties agree to the role of the National Parliament in the decision making process in accordance with Section 342 of the National Constitution;

1.2. The Parties recognise the legitimate choice of the Bougainville people for independence as expressed in the Referendum result;

1.3. The Parties recognise that the context of Bougainville is unique in Papua New Guinea, as reflected in the Bougainville Peace Agreement, the Papua New Guinea Constitution’s provisions on Bougainville and the Bougainville Constitution;

1.4. The Parties are committed to maintaining a close, peaceful and enduring relationship between Papua New Guinea and Bougainville;

1.5. The Parties agree that the process for bringing the Referendum results to the National Parliament will be by way of a sessional order as determined by the National Parliament.

The sessional order will be recommended by the Speakers of both the National Parliament and the Bougainville House of Representatives;

1.6. The Parties acknowledge that the National Parliament and Bougainville House of Representatives have a central and integral role to play in the process leading up to the National Parliament and thereafter;

1.7. The Parties acknowledge the importance of the Bipartisan Parliamentary Committee on Bougainville in consulting and disseminating the joint key messages, as assisted by the Moderator, for members of the 11th National Parliament, and the people of Papua New Guinea, on the Bougainville Referendum and the post-referendum process;

1.8. The Parties further acknowledge the importance of a public awareness raising programme by the Government of Papua New Guinea and the Autonomous Bougainville Government on the joint key messages for the people of Papua New Guinea and Bougainville, on the Bougainville Referendum and progress made in the post-referendum process.

2. Principles:

2.1. The Parties commit to exploring the joint creation of a Melanesian framework with agreed timelines, for a pathway forwards, that may form part of the Joint Consultations Report presented to the 11th National Parliament;

2.2. The results of the Bougainville Referendum and the Joint Consultation Report will be taken to the 11th National Parliament immediately after the Bipartisan Committee has completed its work in line with its Terms of Reference;

2.3. The Parties shall accept the decision of the National Parliament, in the first instance, regarding the Referendum results, and commit to further consultations, if required and agreed, according to an agreed timeline;

2.4. The Parties jointly commit to institutional strengthening and institutional building of the ABG administration as per the Sharp Agreement;

2.5. To ensure progress is made and political commitment is sustained, monitoring of this Melanesian Agreement could include an international component, a Parliamentary component, and the Bipartisan Parliamentary Committee, all with UN support.

We endorse this agreement on this day 26 June 2025.

HON. JAMES MARAPE, MP HON.

ISHMAEL TOROAMA, MHR

Prime Minister President

Government of Papua New Guinea Autonomous Bougainville Government

Melanesian Agreement

Groups

Gender

State definition

Governance

Power sharing

Human rights and equality

Rights related issues

Rights institutions

Justice sector reform

Socio-economic reconstruction

Land, property and environment

Security sector

Transitional justice

Implementation

Source agreement