STRUGGLING FOR SELF RELIANCE Four case studies of Australian Regional Force Projection in the late 1980s and the 1990s STRUGGLING FOR SELF RELIANCE Four case studies of Australian Regional Force Projection in the late 1980s and the 1990s BOB BREEN Published by ANU E Press The Australian National University Canberra ACT 0200, Australia Email: [email protected] This title is also available online at: http://epress.anu.edu.au/sfsr_citation.html National Library of Australia Cataloguing-in-Publication entry Author: Breen, Bob. Title: Struggling for self reliance : four case studies of Australian regional force projection in the late 1980s and the 1990s / Bob Breen. ISBN: 9781921536083 (pbk.) 9781921536090 (online) Series: Canberra papers on strategy and defence ; 171 Notes: Bibliography. Subjects: Australia--Armed Forces. National security--Australia. Australia--Defenses--Case studies. Dewey Number: 355.033294 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photocopying or otherwise, without the prior permission of the publisher. The Canberra Papers on Strategy and Defence series is a collection of publications arising principally from research undertaken at the SDSC. Canberra Papers have been peer reviewed since 2006. All Canberra Papers are available for sale: visit the SDSC website at <http://rspas. anu.edu.au/sdsc/canberra_papers.php> for abstracts and prices. Electronic copies (in pdf format) of most SDSC Working Papers published since 2002 may be downloaded for free from the SDSC website at <http://rspas.anu.edu.au/sdsc/working_papers.php>. The entire Working Papers series is also available on a ‘print on demand’ basis. Strategic and Defence Studies Centre Publications Program Advisory Review Panel: Emeritus Professor Paul Dibb; Professor Desmond Ball; Professor David Horner; Professor Hugh White; Professor William Tow; Professor Anthony Milner; Professor Virginia Hooker; Dr Coral Bell; Dr Pauline Kerr Strategic and Defence Studies Centre Publications Program Editorial Board: Professor Hugh White; Dr Brendan Taylor; Dr Christian Enemark; Miss Meredith Thatcher (series editor) Cover design by ANU E Press Printed by University Printing Services, ANU This edition © 2008 ANU E Press Contents Abstract vii About the Author ix Acronyms and Abbreviations xi Preface xv 1. Relevance, Theory and Practice of Force Projection for Australia’s 1 Defence 2. Australian Force Projection 1885–1985 11 3. Lead Up to Operation Morris Dance 23 4. Responses to Crisis 31 5. Lessons and Observations 45 6. Lead-Up to Operation Lagoon 53 7. Conduct and Aftermath of Operation Lagoon 71 8. Search for Joint Command and Control 85 9. Lead Up to Operation Bel Isi 93 10. Challenges during the first 12 months 109 11. Projection to East Timor 127 12. Reflections and Observations 155 13. Conclusion 165 Glossary 177 Bibliography 185 Index 213 v Abstract This monograph contains historical and comparative analyses of four Australian regional force projections in the 1980s and 1990s: (1) a contingency evacuation deployment to the waters off Fiji; (2) an armed peacekeeping operation into Bougainville; (3) an unarmed peace support intervention into Bougainville; and (4) a multinational stabilisation operation into East Timor. It uses the following framework of 10 functions of force projection to describe and analyse these interventions: No. Function Elements 1. Generic Preparation Military capability that is made up of force structure, readiness, mobilisation and sustainability 2. Command Command, control, communications and computer systems 3. Specific Preparation Concentration of force elements in mounting or home bases, reconnaissance, reinforcement, training, administration and issue of equipment and stocks 4. Deployment Concentration of personnel and matériel, loading, movement of force elements to area of operations and, best effect arrival and pre-positioning 5. Protection Intelligence, surveillance, contingency rehearsal and rapid response 6. Employment Conduct of operations that may include maintaining deterrent presence, manoeuvre and application of firepower 7. Sustainment Planning and carrying out the movement of supplies and maintenance of forces through a supply chain 8. Rotation Reinforcement, relief, resting, retraining, re-equipping and redeployment of force elements 9. Redeployment Protected movement to specified locations, normally home bases 10. Reconstitution Return to required level of military capability After explaining the relevance and importance of these functions, the monograph sets the scene with a short history of Australia's proficiency in force projection from 1885 until 1985. Australia depended on allies for this period. When they were not in a position to help, Australia struggled. These deficiencies increased risk at tactical tipping points in New Guinea in 1942 and in Vietnam in 1966. These were short periods when the outcomes of tactical contests had strategic consequences for Australia. Both times, Australian troops prevailed against the odds. Bravery and good luck saved Australia from political and strategic embarrassment. After 1972, Australia's strategic emphasis moved towards more self-reliant defence and conducting joint (maritime, land and air) operations. The Australian armed forces did not learn from the tipping points of 1942 and 1966. In 1987, risks emerged during an evacuation contingency deployment to the waters off Fiji. Operations in Bougainville in 1994 and 1997±98 exposed persistent problems with preparation and deployment as well as force command, protection and sustainment. The short notice intervention into East Timor in 1999 confirmed that there was still significant room for improvement. These four projections achieved successful outcomes. However, ad hoc and inefficient processes vii Struggling for Self Reliance demonstrated that Australia was still struggling for self reliance. For all of these interventions, Australian Defence Force (ADF) higher levels of command put the tactical level under unnecessary additional pressure that increased risk. Despite concerted efforts to establish more effective command and control arrangements for joint operations, these case studies expose weaknesses in command and control as well as logistics. Examined collectively, they make a case for consolidating ADF command and control arrangements and matching responsibilities of joint commanders with the authority and enablers to achieve their missions. They also make a case for a permanent joint commander of ADF operations, supported by a joint integrated headquarters, and having operational control over assigned high readiness force elements from the three Services in order to rehearse the functions of force projection. viii About the Author Bob Breen's experience in first-hand research on international and regional peace support missions began in Somalia in 1993 as an historian and operations analyst and continued in Rwanda, the Middle East, Mozambique, Bougainville and East Timor periodically until 2002 when he began a PhD program at The Australian National University, graduating in 2006. He resumed work as an analyst in late 2007, when he conducted research for the Australian Defence Force Chief of Joint Operations in Iraq and Afghanistan. After publishing a book and two monographs in the early 1990s on Australian military experiences in the Vietnam War and the Korean War, his subsequent publications have related to Australia's military participation in peace missions in Somalia, Bougainville and East Timor. As an army reserve colonel during the period 1997±2002, he was also responsible for designing, developing and participating in the delivery of preparatory training programs for Australian government officials, civilian peace monitors, Australian Defence Force contingents, Australian United Nations Military Observers and politicians about to serve on or visit peacekeeping operations or UN electoral missions. Currently, he is writing the official history of Australian peacekeeping in the South Pacific during the period 1980±2005 and preparing manuscripts for publication on Australia's military force projection, battalion group operations in East Timor in 2000 and an historical analysis of the experiences of Australian junior combat leaders and small teams on contemporary peace enforcement operations. Bob Breen is a research fellow at the Strategic and Defence Studies Centre at The Australian National University in Canberra. The research for this book was conducted before he took up this position as an author of an official history. His views in this book are his own and do not represent the views of the Department of Defence. ix Acronyms and Abbreviations 1 ATF 1st Australian Task Force 1 RAR 1st Battalion, the Royal Australian Regiment 2 RAR 2nd Battalion, the Royal Australian Regiment 3 RAR 3rd Battalion, the Royal Australian Regiment ABRI Angkatan Bersenjata Republik Indonesia or Indonesian Armed Forces ACOPS Assistant Chief of the Defence Force±Operations ADF Australian Defence Force ADFA Australian Defence Force Academy ADFCC Australian Defence Force Command Centre ADFIC Australian Defence Force Intelligence Centre ADHQ Australian Defence Headquarters AIF Australian Imperial Force ALG Air Lift Group AN and MEF Australian Naval and Military Expeditionary Force ANZAC Australian and New Zealand Army Corps ANZUS Australia New Zealand and United States AO Area of Operations APC Armoured Personnel