Pacific Islands Forum: Facilitating Regional Security Cooperation A thesis submitted in fulfilment of the requirements for the Degree of Master of Arts in Political Science in the University of Canterbury by Sheryl Boxall University of Canterbury 2006 i Abstract Oceania is an example of a region where traditional security theory based on historical enmity and competition does not fit. A history of amity and cooperation has evolved through regionalism and the region’s pre-eminent organisation, the Pacific Islands Forum (the Forum). In 2004, the Forum was tasked to develop the ‘Pacific Plan’ (the Plan) to facilitate closer cooperation and deeper integration. Security is one of the four pillars of the Plan. The objective of this thesis is to analyse the institutions of the Forum as facilitators of regional security cooperation. The Forum is reviewed and the idea of a logic of action is introduced. To help explain security in an environment with a history of cooperation, traditional security theory is re- defined. A security environment equation is created as a framework to help analyse the Forum’s structures and security mechanisms. The Forum Regional Security Committee is examined closely resulting in suggestions to strengthen the region’s security environment. ii Acknowledgements Taking this opportunity to thank the many people and organisations that supported and encouraged this thesis is the ‘cherry on the top’ of completing this work. I have enjoyed the topic and have become very grateful to be part of the Pacific region. Associate Professor John Henderson was more than a supervisor during this time. With quiet humbleness he guided me through this study and patiently listened to my arguments and allowed me have my own thoughts and ideas. I am mostly grateful for your insight into my abilities and firm belief that I could achieve my goals. Emeritus Professor Keith Jackson was a stalwart second supervisor who reined me in and tightened my thinking processes. Thank you for your reliability and holding me to account, which made me actually produce something in the end. Thanks must also go to everyone in the School of Political Science and Communication, who are all just wonderful, each in your own way. The support of Jill Dolby and Jacob Bercovitch must be acknowledged separately because they were instrumental in keeping me on track (despite the multitude of diversions), not just for the two years of this thesis, but also during my honours and undergraduate years – thank you both very much for your patience and love. All my friends have been great – thank you. Some of them came to my rescue while organising the Securing a Peaceful Pacific project – especially when the caterers did not show up and with 200 people expecting lunch on the last day – they put on a supreme effort. Our team made it fun and an extremely worthwhile endeavour. My main saviour, Vanessa Roberts kept me focussed, dealt to the details and became a great exercise companion and my dear friend. Greg Watson provided the intellectual boxing ring to spar and stretch our crazy ideas of international relations during the publication of the conference book. Currently in Iran, studying at the University of Tehran, I wish iii him all the best. Thanks also to everyone at the Macmillan Brown Centre for Pacific Studies and especially Moana who also become a good friend. Thanks also go to many people from various institutions. This includes those from the New Zealand Ministry of Foreign Affairs and Trade who supported this project, especially Alan Williams who allowed me to tag along to the annual Forum summit in Apia, Samoa. The NZ delegation welcomed and included me and provided a special opportunity to see regionalism first hand. Also the Forum Secretary General Greg Urwin, the Secretariat staff and especially those in the library for doing a great job, a special thanks to you all. Thanks are also due to PACDAC/PADET (esp Roger, Pauline and Kate) for the generous financial grant to cover all my travelling costs to Samoa and later to Fiji. Another set of thanks is also due to Dal Pat Nana from the Department of Internal Affairs. Support from my personal friends also needs acknowledgment: thanks to Stephanie, Susan (also Ross and Hilary) and all the staff at ELC. Mikey and Margie provided warm love and care and more importantly, comic relief when needed. Thanks to my good friends Lisa Cousins and Susannah Gordon for editing this work and questioning my ideas and arguments. Lastly, thanks to my family and a big special thanks to my son Jack for his patience and kindness and understanding of the priorities needed to complete this thesis. He is a trustworthy and admirable person, which I am very proud of. iv Contents Chapter 1: Introduction 1.1 Introduction 1 1.2 Propositions 3 1.3 Defining the Region 4 1.4 Regionness Theory 6 1.5 Pacific Regionness 8 1.6 Oceania’s Security Environment Described 12 1.7 Sources and Fieldwork 16 1.8 Limitations and Rationale 17 Chapter 2: Pacific Islands Forum 2.1 Introduction 20 2.2 Forum Profile 20 2.3 Forum Update 23 2.4 Pacific Islands Forum Annual Meetings 28 2.4.1 Leaders’ Summit and Forum Officials 29 Committee 2.4.2 Post-Forum Dialogue 32 2.5 Logic of Action 34 2.5.1 What is the Logic of Action for a Regional 37 Organisation? 2.5.2 Logic of Purpose 37 2.5.3 Structural Logic 39 2.5.4 Practical Logic 40 2.6 Pacific Islands Forum Agreement 42 2.6.1 Article I: The Pacific Islands Forum 45 (the Forum) 2.6.2 Article II: Purpose 46 2.6.3 Article III: The Forum Leaders’ Meeting 47 2.6.4 Article IV: Establishment of the Pacific 51 Islands Forum Secretariat & Article VIII: Functions of the Secretariat v 2.6.5 Article V: Pacific Islands Forum Officials’ 52 Committee 2.6.6. Article VII: Functions of the Secretary 54 General 2.7 What the Agreement Missed! 57 2.8. Forum Appraised 58 Chapter 3: Pacific Cooperation Review 3.1 Introduction 59 3.2 Historical Cooperation 59 3.3 Decolonisation – The beginnings of regionalism 63 3.4 The Monnet Philosophy 72 3.5 Monnet’s Philosophy – Pacific Style 73 3.6 Diversity and the ‘Pacific Way’ 77 3.7 Pacific Cooperation Actualised 78 3.8 Inequalities and Cooperation 81 3.9 Stresses of Regionalism 83 3.10 Costs and Benefits of Regionalism – where is 85 the equity? 3.11 The ‘Pacific Way’ 87 3.12 The Forum and a Mature ‘Pacific Way’ 88 Chapter 4: Security Theory Re-defined 4.1 Introduction 94 4.2 Theories of International Relations and Security 94 4.2.1 Realism 94 4.2.2 Liberalism 95 4.2.3 Constructivism or Idealism 96 4.3 The Realism and Security Debate 97 4.4 Regional Security Complex Theory (RSCT) 101 4.5. Theory of Pacific Security Relations? 102 4.6. New Security Agenda (NSA) Framework 104 4.6.1. Military Sector 105 vi 4.6.2. Political Sector 106 4.6.3. Economic Sector 106 4.6.4. Societal Sector 107 4.6.5. Environmental Sector 108 4.7 Securitisation 110 4.8 Pacific Security – Theory re-defined 111 Chapter 5: Security Environment Equation 5.1 Introduction 114 5.2 Security Environment Equation 116 5.3 The Pacific Security Environment – A full picture 119 5.3.1 Pacific Security Agenda 121 = Issues + Securitisation 5.3.2 Pacific Security Architecture 127 = Actors + Policies 5.3.3 Pacific Security Infrastructure 139 = Security Services Providers 5.4 Security Equation Applied 141 Chapter 6: Forum Regional Security Committee 6.1 Introduction 143 6.2 FRSC – Inception 144 6.3 FRSC in the Security Equation 146 6.4 FRSC – Structure and Status 146 6.5 FRSC – Logic of Action 149 6.6 FRSC – Characteristics and Functions 150 6.6.1 Characteristics 150 6.6.2 Functions 151 6.7 FRSC with Teeth – the appropriate level of authority 153 6.8 Ministers’ Meeting Agenda 153 6.9 Security Ministerial Portfolios Adjusted 155 6.10 FRSC with Democracy 155 6.11 FRSC with Political Respect 156 vii 6.12 FRSC with Legitimacy 156 6.13 FRSC – Reduced Sensitivities 157 6.14 FRSC Strengthened 159 Chapter 7: Conclusion 160 Tables Table 1 Geographical and Demographic Characteristics 8 of the Pacific Region Table 2 Pacific Islands Forum Membership 21 Table 3 Universal Security Environment Equation 118 Table 4 The Pacific Security Environment 120 Table 5 Pacific Security Policy 129 Table 6 Security Environment Equation – FRSC 146 Table 7 Functions of FRSC 151 Annexes Annex 1 1971 Forum Communiqué 163 Annex 2 EPG Review and Pacific Plan Membership 167 Annex 3 2005 Agreement Establishing the Pacific Islands 173 Forum Annex 4 1944 Australian Treaty Series 189 Agreement between Australia and New Zealand (ANZAC Pact) Annex 5 1947 Australian Treaty Series 199 Agreement to Establish the South Pacific Commission Annex 6 1973 Australian Treaty Series 213 Agreement Establishing the South Pacific Bureau for Economic Co-operation Annex 7 2000 Biketawa Declaration 220 Bibliography 223 viii Chapter 1: Introduction 1.1 Introduction …Security is a precondition for economic growth and sustainable development. Forum Secretary General, Greg Urwin1 Security – being and feeling safe from harm or danger – is a basic need and the means of survival.2 A dichotomy however exists in the pursuit of security. The end, ‘a peaceful and secure world,’ is threatened by the means, as frequently the ‘how to…’ becomes a source of tension and in itself causes conflict. The process or way is often determined by the nature of relationship between those seeking to secure a particular space.