Yap's Political Status

Also described as Yap Independence Movement, Yap Secession from the FSM, and Yapese Secessionism

Over several centuries, Yap and its outer islands have been administratively grouped by foreign powers into political units with other distant islands, including Palau, the Central Caroline Islands and the Eastern Caroline Islands. Despite this, the People of Yap have always retained unique, distinctive and cohesive linguistic, social and cultural identities.

At the close of the US administered Trust Territory, elected leaders - and the voters of Yap - opted to join the nascent Federated States of Micronesia, which entered into Free Association with the United States. Questions about Yap's Political Status have remained a significant theme in politics and culture throughout Yap for decades.

Yapese Efforts to Forestall Establishment of the FSM, 1960s-70s

In November of 1965, the Yap Islands Congress, with the endorsement of the Yap Islands Councils, presented a petition to the American Ambassador to the United Nations Trusteeship Council and members of the US Congress. The Yapese sought - unsuccessfully- to delay decisions on questions as to the future political status of the TTPI. The Yapese sought closer ties with the United States and the forestalling of undesired changes.^[1]

Until such time as the Yapese believed they would be ready to (re)consider their political status, the request of 1965 asked that "the Trust Territory of the Pacific Islands be released from the United Nations Trusteeship Council supervision and be placed under the direct supervision of the United States of America..." and further "That being placed under the United States supervision, a form of political association with the United States shall be worked out whereby we will retain our Congress with an executor appointed by the President of the United States of America."

Yapese Attitude Toward Entering the FSM, 1970s-80s

With support from the US, the islanders of the Trust Territory began to determine their future political status; the Northern Marianas choosing to become a US commonwealth and the islands of Palau and the Marshalls each organizing themselves into their namesake republics. This left the future status of the western, central and Eastern Caroline Islands unresolved.

On May 10, 1979, voters in the Pohnpei, Chuuk, Kosrae and Yap districts ratified a new constitution, establishing the Federated States. Unlike the Palauans and Marshallese, their federation is not underpinned by any shared social, cultural, or even linguistic, commonality.

As explained by Norman Meller in his Constitutionalism in Micronesia:

A unified Micronesia had not been premised upon any shared sense of "nationalism;" it did not constitute a movement based on unfilled common needs; it lacked any "traditional affinity" in shared cultures... In the words of Senator John Mangefel, the wry philosopher of the Congress of Micronesia destined to become Yap's first elected governor, "If Micronesian unity collapses, it is because we failed to understand each other and to accommodate each other's particular wishes, not because some American Secretary, or ambassador, or high commissioner... we have found the enemy and they are ourselves." ^[2]

Context of Independence Movements in the FSM

Discussion of island groupings leaving the FSM predates the nation itself. In a commentary for the US Institute of Peace, Admiral (Ret.) Philip Davidson, Brigadier General (Ret.) David Stilwell, and former Guam Delegate to the US Congress Robert Underwood explained:

Some local political leaders in the FSM states (Chuuk, Kosrae, Pohnpei and Yap) have expressed dissatisfaction with the FSM federal government’s funding arrangements, which has helped fuel ongoing discussion about secession. A referendum on Chuukese independence was initially scheduled for 2015 and has been postponed several times. Some Yapese secessionists believe that it was a mistake for Yap to join the Federated States of Micronesia when the FSM became independent and that Yap should instead have joined Palau on the basis of cultural similarities and geographic proximity. The FSM’s relative lack of political cohesion dates back to its founding: in the late 1970s, when the islands were part of the Trust Territory of the Pacific Islands, Palau and the Marshall Islands were the first to become political entities, leaving the remaining Trust Territory districts to form the Federated States of Micronesia.^[3]

In 2022, Henry Falan, former Governor of Yap, recalled "an original proposal from Yap leadership was to put a provision in the [FSM] Constitution on the manner of seceding from FSM. [That] is one that I believe in and would like to see. Many states have tried to secede, but there’s no provision for it in the constitution.^[4]

Amendment to State Constitution, 2010

On July 15, 2010, during the Fourth Regular Session of the Seventh Legislature, Yap State Senators Jesse Raglmar-Sublomar, Henry Falan, Sabino Sauchomal, Charles S. Chieng, John E. Mooteb, Clement Mulalap, Raymond lgehep, Ted Rutun and John Masiwemai co-sponsored Resoluton No. 7-222, proposing a new Section 11 to the Yap State Constitution. The exact language of the proposed amendment read:

"Section 11. The Legislature, by two-thirds vote, shall present to the people on a ballot during an election the question: 'Shall the State of Yap commence a review of its political status?' If a two-third of ballots cast upon the question is in the affirmative, the Legislature shall prescribe by law the manner for the review of the political status of Yap State within six months after the referendum.

The resolution was passed by the Legislature on July 30, 2010. The Yap State Constitution, Article X, Section 4, specifies that "A proposed amendment shall become part of this Constitution when approved by a majority of votes cast."

The proposed amendment was presented to the voters during the November 2010 general election. In all, 2,523 of the 3,984 total votes cast were in favor of the amendment, or 63 percent of the electorate. Thereafter, Section 11, Article XIV in the Constitution of Yap State enabled the question of political status to be posed directly to the voters of Yap State.

Legislation to Review Political Status, 2023

In March of 2023, Yap State Senators Terrence R Fong, Victor Bamog, Anne-Marie Laamar, John Mafel, Nicholas Figirlaarwon, John Masiwemai and Pius Talimeisei jointly introduced legislation that would pose to the voters of Yap the question of whether or not to review political status. There is no mention of secession anywhere on the bill or on any ballot that would be a direct result of the bill. As the Governor later observed "While it is a distinct possibility, it is only a potential idea for discussion, and not the main issue in the bill."

On September 11, 2023, the Yap State Legislature passed Bill 11-11, which stated "The Governor of the State of Yap is hereby authorized to submit to the voters of the State of Yap the question: "Shall the State of Yap commence a review of its political status in an election." Yap State Law No. 1-27 was signed into law on October 13, 2023, providing that "The Governor of the State of Yap is authorized to submit to the voters of the State of Yap the question: Shall the State of Yap commence a review of its political status?" in an election.

The bill was passed with unanimous support within the chamber, comprised of Speaker Nicholas Figirlaarwon, Vice Speaker Theodore Rutun, as well as Senator Ann-Marie Laamar, Senator Victor Bamog, Senator John Masiwemai, Senator John Mafel, Senator Pius Talimeisei, Senator Liyon Sulog, and Floor Leader Terrance Fong.

On October 26, the Governor of Yap, Charles S. Chieng, established an Executive Task Force, charged with disseminating public information, conducting public and political education, and to develop and implement programs and awareness to the voters, citizens, and Yap communities.

In a letter to the Legislature, Governor Chieng explained:

The main aim of this bill is to gauge the will of the people of Yap State. No other viewpoint would be or should be pertinent to the bill and the ensuing election. The other notable comment in line with this thought is that the enacting of this bill may be detrimental to the interests of the State of Yap in dealing with the other sister states, the FSM National Government or other governments in the region. While it is a concern, your Committee feels that the time is ripe, in view of our economic stagnancy, social problems, faltering educational programs and overwhelming health care issues, it is overwhelmingly important for the people of the State of Yap to have an opportunity to voice their thoughts on the direction our government should be taking on their behalf. A review, if voted on favorably, would be conducive in establishing the future goals of the State, regardless of any third party perspective.

The Executive further called for a special election/referendum to be held on the question pursuant to State Law No. 11-27 on January 31, 2024.

Referendum, 2024

Lead Up to Referendum

In late December 2023 it was announced the Governor issued an amendment to Executive Order 2023-02, specifically addressing the conduct of the election/referendum concerning the review of Yap State's political status. The task force encountered challenges, including the unavailability of the State vessel for outreach to neighboring islands and international travel resources, hampering logistical plans. Furthermore, the pending approval of funding required for the task force's activities added to the many challenges.

Upon the recommendation of the task force, Yap's Governor Charles S. Chieng, issued Executive Order No. 2023-03 to amend the election/referendum date, stipulating that the Special Election/Referendum would now be held on May 31, 2024. To accommodate voters residing outside Yap proper, special polling places will be established in Pohnpei State, Guam, Honolulu, Maui, Hilo in Hawaii, CNMI, and other appropriate locations in the continental United States.

On February 15th, 2024 the Department of Youth and Civil Affairs announced the Yap State Election Office was busy preparing for the upcoming Special Election scheduled for May 31, 2024. Per Jovita T. Torwan, Election Analyst at the Yap Election Office, "The office is currently ready to assist voters who wish to change their polling location, additionally for off-island voters seeking to request their ballots. Furthermore, for new voters, please contact the office or one of their election boards in the community to get registered." Voters, who were implored to "exercise their civic duty by participating in our democratic voting process" were directed to the election office webpage at www.yapstate.gov.fm/services-4-1 to obtain the necessary forms and timelines permitting them to vote in the special election.

Sample Ballot, Yap State Review of Political Status, May 2024 Referendum

The Yap State Election Office confirmed scheduling the special election for Friday, May 31st, 2024. Registration was opened until May 24th, requests for absentee ballots and change of voting venue set to close on May 26th, 2024. Throughout the period, the Executive Branch maintained close contact with state lawmakers. Specifically, Director Alex Gilfiley from the Department of Youth and Civic Affairs (DYCA), Chairman of the task force and Director of the Department of Education (DOE) Dominic Fanasog, and Election Commissioner Christopher Buchun from the Yap State Election Office sat down for multi-hour meetings with the Yap State Legislature. Town hall style meetings, co-hosted by the Yap State Governor’s Referendum Taskforce and members of the 11th Yap State Legislature, were held, offering the public the chance to answer questions and share insights.

On May 31st, 2024, there were scheduled to be least two Election Board Members present at every polling site to provide assistance and ensure the integrity of the referendum from 7 am to 7 pm. At Small Business, there will be special polling sites for Election Districts (ED) 1, 2, 3, 4, and 5. The villages for each district are as follows: ED 1: Yap Proper; ED 2: Ngulu, Mogmog, Fais, Fethray, Falalop(Ulithi), Asor, and Sorol; ED 3: Falalop(Woleai), Falalus, Tegailap, Seliap, and Wottegai; ED 4: Eauripik, Faraulap, Ifalik, and Piig; and ED 5: Elato, Lamotrek, and Satawal.

Results of the Referendum

Ballot counting was set to commence on Friday, June 21, 2024, at 10:00 AM at the Yap Small Business Development Center. The ballots from each district were be counted twice by a team of 10 tabulators, and the results verified by 5 verifiers. Public Safety Officers and Election Officials were to be present to ensure the process remains orderly and maintaining the integrity of the tabulation. Following the counting on Friday, the Election Commissioner planned to review and certify the results, which will then be released for public information.

On June 3rd, the first, unofficial, partial vote count indicated a strong "yes" vote. These first public numbers included 456 votes for yes, 153 votes for no, and 8 spoiled ballots, with a total of 617 votes cast, according to the Public Information Office (PIO) of the Department of Youth and Civil Affairs. However, at that point "there [were] still a few boxes that need to be verified from the main island, as well as pending ballot boxes arriving from off-island."

On June 22, "unofficial vote results" were announced by the PIO. This included tabulation of 28 off-island ballot boxes on June 21st, " the last of the remaining ballot boxes that were needed to be tabulated." Specifically, PIO report "overall total of 2,045 votes casted; The breakdown was 1,072 votes for "YES," 943 votes for "NO," and 30 spoiled ballots. In conclusion, this was the voice of the People of Yap answering the question of: "Shall the State of Yap commence a review of its Political Status?"

The total number of unspoiled cast votes (2,015) was 87% of the number (2,327) of unspoiled cast votes by the same electorate in March 2019, when faced with a proposed amendment to the FSM Constitution, and 88% of the number (2,283) who cast votes in the March 2023 election for Yap's FSM Congressional election. In contrast with the 2019 and 2023 votes, the Yap Political Status question was not implemented by the FSM National Election Commission, with it's much larger budget and organizational footprint, particularly in terms of migrant and off-island voters.

Breakdown of Referendum Results

The disparity in rates of "Yes" votes between partial unofficial results released June 3 and those unofficial results released June 22, suggest significant placed-based, and or group-based, differences in voting patterns.

Yap State is comprised of Yap, sometimes “Yap Proper,” and the Outer Islands of Yap. The Yapese and Outer Islanders are linguistically, ethnically, and socially distinct. However, there is a long history of social connection, cooperation and by some accounts either “interdependence” or “dependence,” including the "Sawei" Yap/Outer Island Trade and Tribute Network. And there has been an escalating inflow of Outer Islands into Yap Proper over the last century, though the number domiciled remains less than the total number of Yapese on Yap.

At the same time there are a large number of both Yapese and Outer Islanders who have migrated to the United States, as well as a modest but notable population of Outer Islanders who have relocated to Pohnpei for work in the bureaucracy of the FSM National Government.

The late June results imply that support was strongest among Yapese on Yap and the Outer Island community on Yap, at 74 percent, to commence the review of political status. Among the total of Outer Islanders in the Outer Islands, and all Yapese and Outer Islanders outside of Yap State, 55 percent voted “No.” Still the total results found 52 percent of all voters choosing “Yes.”

It remains to be seen if aggregation of those votes from outside of Yap (mostly those counted after the figures released in early June) reflect a in-state versus out-of-state divide or a Yapese versus Outer Island divide. Migrants in the US and it’s territories, are stereotyped to place less emphasis on cultural distinctions between Yap and the Outer Islands, but more immediately, probably see themselves as the first and most tenuous population to be impacted by a political status change owing to the inferred sense of it’s impact on COFA / FAS migration policy, and hence their status in the US. Outer Islanders within the Outer Islands place more emphasis on the delicacy of Yapese-OI relations, and also place very high value on the ties to the US provided through COFA, even if many feel the FSM National Government may fail to pass on proportionate benefit to those in Outer Islands.