‘We’Not ‘I’

Mangafel has an impressive resume. One of the members of the early Congress of Micronesia-in the days when the Washington-appointed American Trust Territory High Commissioner was the law of the land-Mangafel went on to be a two-term governor of Yap, a national planner for the Federated States of Micronesia, and other high-level posts. But it's the quality of his thinking, not his resume, which accounts for Mangafel's sage advice being sought by many, from educators to politicians.

In an interview with Pacific Magazine, he offered observations about why education isn't working, how Micronesian identity is an essential ingredient to development and why Yap is, without a doubt, the economic success of the four-state FSM. And he predicts that Yap will ultimately leave the federation and join politically with Palau, its immediate neighbor to the south with which Yap has many historical, economic and family ties.

John Mangafel is a firm believer in the “wisdom of the betel nut basket,” a metaphor that is of significant relevance to Pacific Island governance. Photo: Giff Johnson

Yap has developed and maintained a political system firmly connected to its cultural decision making process. In the Micronesian area, this small island group that has a population of fewer than 10,000 has both the strongest culture base and the best financial record coming out of the 17 years of the first Compact of Free Association with the United States. And that's not just because the financial and development record of some of the federation members, such as Chuuk, is dismal. Yap ended the first Compact in 2003 with $40 million invested for the future. "Every quarter, Yap took Compact money and put it in the bank," Mangafel says. "We take what we need and the rest earns interest."

Given the common perception, at least among the younger generation, that tradition holds back development and political progress, one might ask: Is this a weird anomaly-a culture that hasn't been corrupted by the prospect of big bucks from Washington? Is there actually a way to balance the modern with the traditional to add up to more than the sum of either?

Mangafel says the answer is a resounding "yes" in Yap because there is a commitment to consensus, and the government-which controls the money-is watched over closely by the two councils of chiefs. "A real balance of power exists in Yap," he says. "It works well because of consultation," Mangafel says. "There is a commitment to reach agreement. It takes time, but we reach agreement." This consensus-building approach isn't appealing to time-conscious consultants or younger politicians more concerned with making a deal than developing a program of national unity.

The fact that Yap's hybrid of a traditional custom and western democracy is working serves to accentuate the failings of other states and, clearly, is increasing talk in Yap about breaking away from the FSM. A proposal put into the ongoing constitutional convention, for example, calls for Yap voters to have the opportunity to vote for independence.

The way Mangafel talks, one would think the decision has already been reached. "Yap will join with Palau," he says emphatically. "It's inevitable." Reflecting on the difficulties of maintaining the four-state FSM, Mangafel adds: "The FSM is not very stable. There's been talk in Pohnpei of seceding." And now Yap.

Another threat to stability Mangafel raises is post-2023 distribution of the FSM national trust fund that the newly amended Compact with the United States is funding. "Will the trust fund be enough for the whole FSM?" he asks. It's a question many are asking, especially since the funds have been slow to be invested. Yap is slated to receive about a 12 percent portion of the overall fund, which is supposed to replace U.S. grant funding when the current Compact expires in 2023. Disputes over division of revenue, which date back to the launching of the FSM in 1978, have always been an underlying point of contention, especially for the less-populated islands of Yap and Kosrae. And Mangafel is of the view that Yap would do better in a relationship with Palau than with the FSM.

Of a future Palau-Yap federation, Mangafel says that "if it's done right" it can work. Thinking out loud, Mangafel says that the political structure might be for Palau to have the presidency, because of its larger population, and Yap the vice presidency. "My generation is okay with this," he says.

What underlies Mangafel's observations is the willingness-more the requirement of a deeply rooted cultural trait-to engage in discussions and compromises that lead to a decision that is beneficial to the group. As if to underscore this principle, Mangafel comments that Yap works because "we still say 'we' instead of 'I'."

But what do you do when people can't agree? "We say 'let's stop and chew some betel nut'," he says. As people reach into their bags to prepare their betel nut, and begin chewing, "they start thinking about how to get along with each other and ways to reach agreement," he adds. 'Wisdom comes out of the betel nut basket' is the way an old Yapese phrase sums it up. "Stopping and chewing betel nut," Mangafel says, "means to consider and think how to reach consensus so there's no ill feeling."