{"id":63901,"date":"2021-04-19T06:00:04","date_gmt":"2021-04-18T20:00:04","guid":{"rendered":"https:\/\/www.aspistrategist.ru\/?p=63901"},"modified":"2021-04-18T19:35:05","modified_gmt":"2021-04-18T09:35:05","slug":"australias-evolving-guarantee-to-the-south-pacific","status":"publish","type":"post","link":"https:\/\/www.aspistrategist.ru\/australias-evolving-guarantee-to-the-south-pacific\/","title":{"rendered":"Australia\u2019s evolving guarantee to the South Pacific"},"content":{"rendered":"
<\/figure>\n

It\u2019s hard to believe these days, but Australia used to be shy about proclaiming a defence or security guarantee to Papua New Guinea and the South Pacific.<\/p>\n

In the 1970s and 1980s, a gap opened between secret defence guidance about Australia\u2019s determination to fight for the island arc and what Canberra said to the new nations of the arc.<\/p>\n

Well into the 1990s, Australia promised to do its bit so South Pacific states could \u2018look after their own strategic interests\u2019<\/a>; in a crisis, the focus of the Oz military would be \u2018evacuation of Australian citizens\u2019.<\/p>\n

The mindset was crammed into one phrase by Ashton Calvert (secretary of the Department of Foreign Affairs and Trade from 1998 to 2005), who remarked to me that Australia\u2019s policy in the South Pacific was \u2018to intelligently manage trouble\u2019. Australia would stand ready but stand back, keeping its hands off.<\/p>\n

The mindset has changed remarkably. Canberra\u2019s ambitions have grown, as has the need.<\/p>\n

The depth and geographic reach of Australia\u2019s guarantee expanded<\/a>, evolving outwards from PNG to cover the whole of the South Pacific and Timor-Leste. That growth matched the development of international relations thinking beyond state security.<\/p>\n

Australia\u2019s pledge to the islands today is as much about internal security<\/a>\u2014human, economic, political and environmental\u2014as defence against external threats.<\/p>\n

Because Canberra\u2019s South Pacific view is always framed by PNG, the gap between Oz secret strategy and public statements in the 1970s and 1980s had a PNG foundation.<\/p>\n

No longer the colonial master, Australia was discovering how to deal with an independent neighbour, just as it had to build understandings with other newly independent island states. A Canberra element was to shift the secretive habits of Australia\u2019s Defence Department: some core interests are so important they need to be publicly stated.<\/p>\n

To see how this once operated, come to a meeting in 1985 between Indonesia\u2019s defence minister, General Benny Murdani, and Australia\u2019s defence minister, Kim Beazley. Murdani asked the extent of Australia\u2019s military commitment<\/a> to PNG. Beazley replied: \u2018First, you need to understand that we would fight for PNG to the last Australian soldier. We have done it before. Second, we would never be as emphatic in our expression of that to the PNG government in case they decided to test it.\u2019<\/p>\n

Beazley was telling Murdani that Australia would go to war to defend PNG\u2019s border against Indonesian incursion. That danger was real because the rebel Free Papua Movement was using bases in PNG to operate in Irian Jaya.<\/p>\n

Angered at Port Moresby\u2019s \u2018connivance\u2019, Jakarta made military plans to cross the PNG border in force to destroy rebel camps. The secret version<\/a> of the 1986 Review of Australia\u2019s defence capabilities <\/em>feared Indonesian troops would stay in PNG permanently to \u2018occupy the border region to some depth\u2019.<\/p>\n

Knowing it\u2019d fight for PNG, Australia decided to stop worrying about PNG testing a guarantee. Don\u2019t ask, don\u2019t tell was too dangerous a policy. Stop worrying about \u2018moral hazard\u2019 (PNG could take risks because Australia would carry the cost if things went badly) and just focus on the hazard. Time to give formal expression to Australia\u2019s willingness to defend PNG.<\/p>\n

Beazley later said the Indonesia border issue was one reason Australia needed to formalise<\/a> the PNG defence relationship within a broad 1987 treaty: \u2018The purpose in part was to discourage Indonesia from doing anything in PNG and in part for us to get a handle on what the PNG government was doing.\u2019<\/p>\n

The 1987 joint declaration of principles<\/a> on Australia\u2013PNG relations pointed to \u2018unique historical links and shared strategic interests\u2019. It stated: \u2018In the event of external armed attack threatening the national sovereignty of either country, such consultation would be conducted for the purpose of each Government deciding what measures should be taken, jointly or separately, in relation to that attack.\u2019<\/p>\n

Australia\u2019s pledge to fight for PNG didn\u2019t have any ANZUS-style reservations (\u2018acting in accordance with its constitutional principles\u2019). The guarantee had to be part of a general declaration of principles because Canberra and Port Moresby couldn\u2019t agree on the terms of a separate defence treaty. A certain principled vagueness was retained, but the fog was clearing.<\/p>\n

A decade later, in 1997, the Howard government\u2019s strategic policy<\/a> described Australia\u2019s \u2018compelling\u2019 interests in PNG and readiness \u2018to commit forces to resist external aggression\u2019. For the first time, the unclassified document expanded the PNG guarantee to make it a Melanesian pledge, with the \u2018same considerations that apply to PNG\u2019 also covering Solomon Islands and Vanuatu.<\/p>\n

Having given a PNG-level promise to Melanesia, the 1997 statement then embraced the whole of the Pacific Islands Forum, recognising that \u2018any attack on them\u2014or penetration by a potentially hostile power\u2014would be serious for our security and that, as with PNG, we would very likely provide substantial support in the unlikely event that any of them faced aggression from outside the region\u2019.<\/p>\n

What Australia could hardly say officially to PNG in the 1980s it was now affirming to the whole of the South Pacific. Timor-Leste was soon added.<\/p>\n

In 1999, Australia led the UN into East Timor to protect the independence vote. For the Australian cabinet, the new reality was that \u2018our long-term interests in East Timor\u2019s security and territorial integrity\u2019 amounted to another security IOU<\/a>.<\/p>\n

In learning by doing, Canberra has come to understand that its guarantees have economic and political meanings as well as military.<\/p>\n

We\u2019ve worked out you can\u2019t have an exit strategy from your own region: as Solomon Islands teetered towards disaster in 2000, Canberra rejected a request for 50 Australian police (no exit strategy!) and sent a navy ship<\/a> to evacuate<\/a> Australians from Honiara, a moment of panicked exit not policy commitment.<\/p>\n

The region\u2014not just Australia\u2014draws much from the peace process in Bougainville and the 14-year<\/a> Regional Assistance Mission to Solomon Islands.<\/p>\n

Australia\u2019s Pacific pivot<\/a> is an external defence guarantee and an internal promise to the South Pacific and Timor-Leste: offering economic and security \u2018integration\u2019 to uphold the region by holding it closer.<\/p>\n

China\u2019s challenge<\/a> is the pivot<\/a> headline, yet many previous Australian steps lead to the Pacific step-up<\/a>.<\/p>\n

Canberra\u2019s worry these days isn\u2019t the moral hazard of its pledge. It\u2019s more that the South Pacific takes the guarantee for granted\u2014as a mere statement of Australian interests\u2014and that it doesn\u2019t carry enough weight in island policy choices.<\/p>\n","protected":false},"excerpt":{"rendered":"

It\u2019s hard to believe these days, but Australia used to be shy about proclaiming a defence or security guarantee to Papua New Guinea and the South Pacific. In the 1970s and 1980s, a gap opened …<\/p>\n","protected":false},"author":79,"featured_media":63906,"comment_status":"closed","ping_status":"closed","sticky":false,"template":"","format":"standard","meta":{"_mi_skip_tracking":false,"footnotes":""},"categories":[1],"tags":[17,338,357,99],"class_list":["post-63901","post","type-post","status-publish","format-standard","has-post-thumbnail","hentry","category-general","tag-australia","tag-defence-policy","tag-papua-new-guinea","tag-south-pacific"],"acf":[],"yoast_head":"\nAustralia\u2019s evolving guarantee to the South Pacific | The Strategist<\/title>\n<meta name=\"robots\" content=\"index, follow, max-snippet:-1, max-image-preview:large, max-video-preview:-1\" \/>\n<link rel=\"canonical\" href=\"https:\/\/www.aspistrategist.ru\/australias-evolving-guarantee-to-the-south-pacific\/\" \/>\n<meta property=\"og:locale\" content=\"en_US\" \/>\n<meta property=\"og:type\" content=\"article\" \/>\n<meta property=\"og:title\" content=\"Australia\u2019s evolving guarantee to the South Pacific | The Strategist\" \/>\n<meta property=\"og:description\" content=\"It\u2019s hard to believe these days, but Australia used to be shy about proclaiming a defence or security guarantee to Papua New Guinea and the South Pacific. 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