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Australia's Defence Relationships with Pacific Island Nations

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Australia's Defence Relationships with Pacific Island Nations Submission – Australia’s Defence relationships with Pacific Island nations The Pacific Islands: an ‘arc of opportunity’ Associate Professor Joanne Wallis (From July 2020: Professor of International Security at the University of Adelaide) Strategic and Defence Studies Centre Coral Bell School of Asia Pacific Affairs College of Asia and the Pacific Australian National University +61 2 6125 9936 The Australian National University Canberra ACT 2601 Australia www.anu.edu.au CRICOS Provider No. 00120C Report title: Report sub-title The Pacific Islands matter to Australia1 Since before Federation, Australia has been anxious about its proximity to the Pacific Islands, the region’s vulnerability to penetration by potentially hostile powers, and its distance from its major security allies (first the United Kingdom, later the United States). Accordingly, Australia has had (and continues to have) two primary strategic interests in the Pacific Islands: • First, to ensure that no power hostile to Western interests establishes a strategic foothold in the region from which it could launch attacks on Australia or threaten allied access or its maritime approaches.2 To achieve this, Australia has sought to be the region’s ‘principal security partner’.3 • Second, to ensure ‘security, stability and cohesion’ in the region,4 as instability is perceived to leave Pacific Island states vulnerable to hostile powers. Australia also has significant economic interests in the region; thousands of Australians live there, and many more visit each year. The Pacific Islands have become increasingly ‘crowded and complex’ as both traditional and non-traditional external powers increasingly focus on having a presence in the region.5 The increased presence of these external powers poses challenges to Australia, both in terms of its own security and in terms of how they may shape – and potentially constrain – Australia’s ability to act in the region. The Pacific Islands matter to Australia; while Australia’s recent ‘step-up’ represents a welcome refocus on the region, more needs to be done to improve Australia’s relationships and enhance our influence. Australia’s defence relationships are some of its most enduring and influential in the region and – although they could be expanded and improved – they offer a model for how other Australian activities in the region could be conducted. 1 This submission is based, in part, on Joanne Wallis, Pacific Power? Australia’s Strategy in the Pacific Islands, Melbourne: Melbourne University Press, 2017. 2 Department of Defence, 2016 Defence White Paper, Commonwealth of Australia, Canberra, 2016, para. 3.7. 3 Ibid., para. 3.21. 4 Department of Defence, Defence White Paper 2013, Commonwealth of Australia, Canberra, 2013, para 1.21. 5 Joanne Wallis, Crowded and Complex: The Changing Geopolitics of the South Pacific’, Canberra: Australian Strategic Policy Institute, 2017, https://www.aspi.org.au/report/crowded-and-complex-changing- geopolitics-south-pacific; Joanne Wallis and James Batley (eds.), ‘‘How does the ‘Pacific’ fit into the ‘Indo- Pacific’? The changing geopolitics of the Pacific Islands’, Security Challenges (forthcoming); Joanne Wallis, James Batley and Ruben Seaton, How Does the ‘Pacific’ Fit into the ‘Indo-Pacific’? The Changing Geopolitics of the Pacific Islands: Workshop Report, Working Paper 2019/1, Department of Pacific Affairs, ANU, 2019, http://dpa.bellschool.anu.edu.au/sites/default/files/publications/attachments/2019- 08/dpa_wp2019_1_workshop_report_final_0.pdf. The Australian National University | 1 Report title: Report sub-title Australia as a Pacific Power? As I argue in detail in my book, Pacific Power? Australia’s Strategy in the Pacific Islands (Melbourne University Press, 2017), although Australia has vital strategic interests in the Pacific Islands, our influence has eroded, and we are now less well placed to pursue them. Consequently, I argue that it is time to recharacterise the Pacific Islands as an ‘arc of opportunity’.6 This positive characterisation is intended to highlight the potential of Pacific Island states, rather than their perceived weaknesses. The arc of opportunity characterisation focuses on two sets of opportunities: • First, opportunities for Australia to stop treating its proximity to the region as a source of anxiety and to instead recognise, and capitalise on, opportunities for strengthening and developing Pacific Island states to bolster its own security. • Second, for Pacific Island states to take advantage of opportunities available to them, including Australian support, in order to improve stability and advance development. This recharacterisation may change how Australia defines and pursues its strategic interests in the Pacific Islands by encouraging Australia to see itself as a regional partner, rather than a regional power, which would reflect Australia’s stated strategic interest in being the region’s principal security partner. It may also improve regional perceptions of Australia and receptiveness to Australian influence. guided by this recharacterisation, in my book I identify a number of opportunities for Australia to improve the effectiveness of its levers of influence in the future. I also identify opportunities for Australia to mitigate the limits on its influence. Reflecting the focus of the current inquiry, I focus on defence assistance in this submission. Defence Cooperation Program Australia’s defence assistance to the Pacific Islands is primarily delivered via the Defence Cooperation Program (DCP). The DCP has been driven by Australia’s strategic interests in the Pacific Islands: • Reflecting the belief that ensuring security, stability and cohesion in the Pacific Islands enhances Australia’s security, the DCP is based on the premise that enhancing securing in the region enhances Australia’s security. • The DCP also reflects Australia’s strategic interest in ensuring that no power hostile to Western interests establishes a strategic foothold in the region, as it intends to enhance the ability of Pacific Island states to withstand external pressures. The DCP has differed from other Australian assistance to the Pacific Islands because: 6 Joanne Wallis, ‘The South Pacific: “Arc of instability” or “arc of opportunity”?’, Global Change, Peace and Security, vol. 27, no. 1, 2015, pp. 39–53; Joanne Wallis, ‘‘The Pacific: From “arc of instability” to “arc of responsibility” and then to “arc of opportunity”?’, Security Challenges, vol. 8, no. 4, 2012, pp. 1–12. The Australian National University | 2 Report title: Report sub-title • It has not been presented as an aid program, but instead as a ‘means of facilitating cooperative activities between the Australian Defence Force and regional security forces’.7 • It ‘coincide[s] with the ambitions and interests’ of recipient countries.8 Therefore, to find programs that were relevant to the region, annual defence cooperation talks are held with each recipient state to identify priorities. There are concerns about the DCP: • Some projects lack of clear objectives; • It sometimes supports militaries that repress their populations or commit human rights abuses; • There can be a lack of clarity about spending and management of projects; and • The links between the DCP and defence strategic guidance are often unclear, as is whether the projects selected are the most cost-effective. Despite these concerns, the DCP contributes Australia’s strategic interests in the Pacific Islands: • The DCP contributes to Australia’s strategic interest in being the region’s principal security partner, by building ‘strong people-to-people links with regional militaries at the tactical, operational and strategic levels’9 through training and personnel exchange.10 • The DCP has strengthened the capacity of regional security forces and improved ‘Australia’s capacity to work with partners in response to common security challenges’.11 Therefore, the finding of the 1984 Senate Standing Committee review that the benefits the DCP delivered to Australia’s bilateral relationships were ‘more important than the strictly military benefits which flow from the program’,12 continues to stand today. Pacific Patrol Boat Program The most important aspect of the DCP is the Pacific Patrol Boat Program (PPBP) and its replacement, the Pacific Maritime Security Program (PMSP). As islands and archipelagos, Pacific Island states have extensive maritime territories. As they often have limited government capacity, they face difficulties in monitoring these territories. As a result, 7 Stephen Merchant, ‘Australia’s defence cooperation program and regional security’, in David Hegarty and Peter Polomka (eds), The Security of Oceania in the 1990s, vol. 1: Views from the Region, pp. 71–7, 72. 8 Ibid. 9 Department of Defence, Annual Report 2013–2014, Commonwealth of Australia, Canberra, 2014. 10 Interview with Stephen Merchant, 27 April 2016. 11 Department of Defence, Annual Report 2013–2014, program 1.1. 12 Senate Standing Committee on Foreign Affairs and Defence, Australia’s Defence Co-operation with its Neighbours in the Asian-Pacific Region, AGPS, Canberra, 1984, p. 7. The Australian National University | 3 Report title: Report sub-title they are vulnerable to illegal (and often unsustainable) fishing, unregulated seabed mining and transnational crime. The PMSP serves Australia’s strategic interests in several ways: • It helps Australia secure its maritime approaches from powers or forces hostile to western interests. Successive Defence White Papers have focused on protecting
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