Vision 2030

A publication of the Medical Association for Prevention of War (Australia)

An alternative approach to Australian security

A response to the Australian Federal Government’s 2009 defence white paper, Defending Australia in the Asia Pacific Century: Force 2030

With foreword by The Rt Hon Malcolm Fraser, ac ch

Former Prime Minister of Australia

Preamble to the United Nations Charter, 1945WE THE PEOPLES OF THE UNITED NATIONS DETERMINED• tosavesucceedinggenerationsfromthescourgeofwar,whichtwiceinourlifetimehasbroughtuntold

sorrowtomankind,and• toreaffirmfaithinfundamentalhumanrights,inthedignityandworthofthehumanperson,inthe

equalrightsofmenandwomenandofnationslargeandsmall,and• toestablishconditionsunderwhichjusticeandrespectfortheobligationsarisingfromtreatiesand

othersourcesofinternationallawcanbemaintained,and• topromotesocialprogressandbetterstandardsoflifeinlargerfreedom

AND FOR THESE ENDS• topracticetoleranceandlivetogetherinpeacewithoneanotherasgoodneighbours,and• touniteourstrengthtomaintaininternationalpeaceandsecurity,and• toensure,bytheacceptanceofprinciplesandtheinstitutionofmethods,thatarmedforceshallnotbe

used,saveinthecommoninterest,and• toemployinternationalmachineryforthepromotionoftheeconomicandsocialadvancementofall

peoples,

HAVE RESOLVED TO COMBINE OUR EFFORTS TO ACCOMPLISH THESE AIMS.

MedicalAssociationforPreventionofWar(Australia)ABN 15 779 883 661 PO Box 1379 Carlton VIC 3053 mapw@mapw.org.au www.mapw.org.au

©MedicalAssociationforPreventionofWar(Australia).Copyrightintheindividuallyattributedchaptersremainswiththeauthors.

FirstpublishedMay2010.

MAPW(Australia)warmlythankseachoftheindividualauthorsfortheircontributiontothisdocument,andDrSueWarehamOAMandDrBillWilliamsforadditionalmaterial.

Sincerethanksalsoto:MichelleFahy,editor;SimonKneebone,cartoons;MarkCarter,graphicdesign;andArenaPrinting,printing.

Therecommendationslistedonpage40ofthisdocumentarethoseoftheMedicalAssociationforPreventionofWar(Australia).Theydonotnecessarilyrepresenttheviewsoftheindividualauthorsthatcontributedtothisdocument.

Contents

Foreword 2by The Rt Hon Malcolm Fraser, ac ch

Why debate our military expenditure? 4

What does the defence white paper say? 6

1 Defence white paper: same old, same old? 8by Dr Bill Williams, President, Medical Association for Prevention of War (Australia)

2 The real face of war 12by Dr Jeff McMullen am, writer, filmmaker, and advocate for human rights

3 Security in the Asia-Pacific region: for whom? 16by Nic Maclellan, journalist and researcher

4 Breaking promises on nuclear disarmament 20by A/Prof Tilman Ruff, International Campaign to Abolish Nuclear Weapons

5 War, the environment, and the defence white paper 24by Dr Bill Castleden, Doctors for the Environment Australia and

Dr Sue Wareham oam, former President, Medical Association for Prevention of War (Australia)

6 Human security: how do we achieve it? 28by Steph Cousins, Humanitarian Advocacy Coordinator, Oxfam Australia

7 The Asia-Pacific: cooperation or a new cold war? 32by A/Prof Jake Lynch, Centre for Peace and Conflict Studies, University of Sydney

8 Arming the region and going to war: who decides? 36by Dr Sue Wareham oam, former President, Medical Association for Prevention of War (Australia)

Recommendations 40

A vision for Australia in 2030 41

Appendix: 2009 defence white paper executive summary 42

2

ForewordThe Rt Hon Malcolm Fraser, ac ch

Former Prime Minister of Australia

Defending AustrAliA in the Asia Pacific Century: force 2030,Australia’slatest

defencewhitepaper,purportstobeablueprintforthedefenceofAustraliaoverthenexttwodecades.Inreality,however,thepaperfacesbackwardsandshowsourdefenceplannershavestillnotbrokenoutoftheColdWarmentality.ItignoresthestrategicchangesthathavetakenplaceintheworldandtheopportunitythesechangespresenttoAustralia.Asaconsequence,manyexpensiveproposalshavebeenputforwardwhichareill-judged.

Debateoverthenatureofgenuinedefenceandsecurity,andhowwecanbestachieveit,isverymuchneededinAustralia.Itisnoteworthythattherewasnosignificantparliamentarydebateoncethedefencewhitepaperwaspublished–anabdicationofresponsibilityonthepartofbothGovernmentandOpposition.

FollowingoursupportoftheUnitedStatesinanillegalattackonIraqin2003,whichdiduntolddamagetotheprimacyofinternationallaw,itisallthemoreimportantforustounderstandwhataddstoordetractsfromAustralia’ssecurity.Thewhitepapergivesnocomfortonthis,statingthatourmilitarystrategy“doesnotnecessarilyentailapurelydefensiveorreactiveapproach”andthat“wewillneedtobepreparedtoundertakeproactivecombatoperations…asfarfromAustraliaas

possible.”1Well,ifthatisnecessaryforAustraliandefence,sobeit.However,weneedtonotethatthewarinIraqhasmadeno-onesafer,leastofallAustralians.ThewhitepapersmacksofPresidentBush’sdestabilisingviewson‘pre-emptivestrike.’

ThepapermakesspecificmentionofChinainawaythatpuzzledmanyAustraliansandcertainly also the Chinese. These referenceswereunnecessaryandill-advised.

MuchofthatwhichisrecommendedinthepaperisdesignedtomaintainthegoodwilloftheUnitedStates,asthoughthatwillguaranteeassistanceifweeverneedit.TheauthorsdemonstrateasublimefaithintheAmericanalliance.Weshouldhaveamoreadultview.TheUnitedStatesdoesnotexpectornecessarilywanttheagreementofitsalliesinallaspectsofAmericanpolicy.ThebestofAmericaexpectsanallytohaveits

ownviewsandtoexpressthoseviewswithcogentandreasonedargument.

Theideaimplicitinthepaperthatwewouldbenefitfromthe‘extendeddeterrent’isoverstated.TheUnitedStateshasneversuggested,publiclyorprivately,thatitwoulddeploynuclearweaponsinAustralia’sdefence.Weshouldunderstandthatnobodywinsbrowniepointswithasuperpower.Majorstatesactintheirownnationalinterests.The1. defending Australia in the Asia Pacific Century: force 2030,paragraph7.4

Debate over the nature of genuine defence and security, and how we can best achieve it, is very much needed in Australia.

3

authorsofthewhitepaperseemnottounderstandthattheUnitedStateswouldassistAustraliaifwewereunderthreatonlyiftheUSjudgedthattobeinitsnationalinterests. We are not their onlyinterestinthispartoftheworld.TheirrelationshipwithIndonesia,theworld’slargestIslamiccountry,isregardedasenormouslyimportant.

AllthismeansweshouldbeawareofthelimitationsofANZUS.AttheverybeginningtheUnitedStateswasthereluctantpartnerandwasonlypersuadedtoenterintoadefencearrangementwithAustraliabecausetheMenziesgovernmentwouldnotsigntheJapanesePeaceTreatyuntilsomearrangementwasmade.ThereweremanyatthetimewhowantedaNATO-typecommitment–thatis,acommitmenttodefendamembercountryunderattack.WeneedtobeawarethatANZUSisverymuchlessthanthis.Itisacommitmenttoconsultintheeventofathreatorattack.Thereisnoguaranteeactionwillfollow.

AllofthisemphasisestheneedforAustraliatoplayamoreindependentandconstructiveroleintheaffairsofourownregion.Itistherespectwithwhichweareregardedgenerallythatismorelikelytowinsupport,andthatrespectwillnotnecessarilyflowbybeingacompliantpartneroftheUnitedStates.

NoneofthisistosaythattheUSallianceisnotimportant.Ofcourseitis.Butweneedtoknowwhatwecanexpectfromitandhowbesttocontributetoit,andnotsubmergeourselvesina

mistakeninterpretationofit.Quiteapartfromthis,the

whitepaperrevealsacontinuingrelianceonthe‘extendeddeterrent’Imentionedearlier.TheGovernment,therefore,hasatwo-headedpolicy:GarethEvanswasaskedtoco-chairacommitteetodeveloparoadmaptowardsnucleardisarmament,ausefulexercisewithproductiveresults,butonetotallyatoddswiththewhitepaperitself.TheGovernmenthasnotattempted

toexplainhowitmayrationaliseGarethEvans’venturewiththesubstanceofthewhitepaper.Onecontradictstheother.

AtatimewhenPresidentObamaisseekingtoalterAmerica’snuclearposture,andhasspokenofaworldwithoutnuclearweapons,Japanhasindicateditiswillingtomodifyitsattitudetotheuseofnuclearweapons,asafirststeptowardsnucleardisarmament,somethingwhichmostcountriestheoreticallysupport.Specifically,JapanhasproposeddiscussionwiththeUSofa‘nofirstuse’policy.Thatisaproductiveandusefulstep.Wehavenotfollowedsuit.

Iampleasedtocontributetothispublicationbecauseitisanattempttocreateadebatewhereadebateissorelyneeded,andwheretheactionsoftheGovernmentandtheOppositionhavebothbeendeficientinlettingthiswhitepaperslidewithoutanytrueexamination.

All of this emphasises the need for Australia to play a more independent and constructive role in the affairs of our own region.

4

Why debate our military expenditure?

THIS PUBLICATION waspromptedbyAustralia’s2009defencewhitepaper,defending Australia in the Asia-Pacific

century: force 2030,whichwasreleasedinMay2009.TheMedicalAssociationforPreventionofWar(Australia)wasnotaloneinregardingthewhitepaperasalarming,provocative,andpotentiallydestabilisingforourregion.

Themattersraisedinthewhitepaperdemandvigorousdebate,foritsetsoutarationaleforasignificanttaxpayer-fundedmilitaryexpansionoverthenexttwodecades.Thepaperraisesmanyquestions.Isthefocusonlargeweaponsacquisitions an appropriate response to the real threatsthatAustraliansface?Have‘defenceandsecurity’cometobealmostsynonymouswithmilitaryforce,excludingotherpowerfuldeterminantsofgenuinehumansecurity?Shouldweallowourmilitaryexpendituretobeincreasedto$73millionadayorshouldthisfigurebereinedinandthefundsusedtoprovideforthebasicneedsofallpeopleandtoimproveinternationalrelations?

Howresponsiblydoesthewhitepaperaddressthesecuritythreatsarisingfromenvironmentalandclimatedestruction,thedarkcloudsloomingoverourchildren’sfuture?Isthewhitepaper’saffirmationoftheneedforUSnuclearweaponstoprotectusconsistentwiththeGovernment’sstatedgoalofabolishingtheseinstrumentsofterror?Hasn’twarfareitselfbecomesodestructiveofpeopleandourenvironmentthatouroverarchingprioritymustnowbepreventingitratherthanpreparingforit?

Debatingtheanswerstothesequestions,andmanyothers,willhelpdeterminehowsecureAustraliansreallyareinthecomingdecades.Manyofthesequestionswereraisedatthecommunitymeetingsheldaspartofthewhitepaperconsultationprocess,buttheconcernswerelargelyignored.Ourparliamenthasalsobeensilentonthese issues.

Itistimeforamuch-neededdebateonhowAustraliansregardsecurityandthebestwayswecanachievegenuinesecurity.

Our military expenditure in context

ThefollowingdataareprovidedasbackgroundinformationforaconsiderationofAustralia’smilitarybudget.

Global military spendingThe2009yearbookoftheStockholmInternationalPeaceResearchInstitute(SIPRI)estimates2008globalmilitaryspendingatUS$1,464billion,afigurewhichrepresentsa45percentrealincreaseoverthepreviousdecade.

Whileglobalmilitaryexpenditurehasincreaseddramaticallyoverthisperiod,theincreasehasnotbeenconsistentacrossallnations.Increaseshavebeenconcentratedinaverysmallnumberofcountries,particularlytheUS.Infact,accordingtotheGlobalIssueswebsite,theUScurrentlyaccountsfor41.5percentoftotalglobalmilitaryexpenditure.

Rising Australian military expenditureSIPRIestimatesthatAustralia’smilitaryexpenditureoverthelasttwodecadeshasrisenasfollows:

A$25 billion

A$20 billion

A$15 billion

A$10 billion

A$5 billion

01988 1998 2008

Australia’s military expenditure (A$ billion)

11.2

7.4

21.9

5

Military spending as percentage of GDPInmostestablisheddemocraticnations,militaryspendingasapercentageofGDPfellbetween2000and2006,toalevelthatisnowlessthanAustralia’s.ThefollowingtableshowsthecountriesinwhichmilitaryexpenditureasapercentageofGDProse duringtheperiod,withsomeothersforcomparison.

Military expenditure (%GDP)

Country 2000 2006

United States 3.1 4.0

Australia 1.7 1.9

United Kingdom 2.5 2.6

Finland 1.3 1.4

New Zealand 1.0 1.1

Canada 1.2 1.2

Japan 1.0 1.0

France 2.6 2.4

Germany 1.5 1.3Source:RTiffenandRGittins,How Australia Compares,2ndedition,CambridgeUniversityPress2009,p148

Our projected military expenditure, according to the white paper

For2010,Australia’sprojectedmilitaryexpenditureis$26.8billion–that’snearly$73millioneveryday–andthatfigurewillriseeachyear.

TheAustralianStrategicPolicyInstitute(ASPI),inits27May2009reportthe Cost of defence: AsPi defence Budget Brief 2009–2010,said,inrelationtothewhitepaper:

“Central to the ambitious plans laid out in that document was a new funding model that had three essential elements: 3% real annual growth in the defence budget to 2017-18, 2.2% real annual growth in the defence budget from 2018-19 to 2030, and 2.5% fixed indexation to the defence budget from 2009-10 to 2030.

…despite the deferrals, defence funding will reach an historic high of $26.8 billion next year, representing fully 2.3% of gdP. the year-on-year nominal increase is a stunning $4.3 billion, amounting to a 16% real increase (relative to the 2.5% indexation)….

the high share of gdP accounted for by defence funding – a figure not seen since 1986 – has been inflated by the recession and will fall back to 1.9% over the next four years as the economy recovers and defence spending moderates……A $45 billion war chest has been created for the next decade.”

ASPIstatesthatthetotalcostofouroperationsinIraqandAfghanistanwillbe$2.4billionand$3.6 billionrespectively.

Compare these figures with: UN spendingThecurrentUNbudget,for2010and2011,isapproximatelyUS$2.55billionannually.1 The UN peacekeepingbudgetfor2009wasapproximately$8billion.TotalfundingforallUNactivity,thatis,forthesecretariat,peacekeepingactivitiesandall UNagencies(includingtheFoodandAgricultureOrganization,theWorldFoodProgram,theWorldHealthOrganization,theUNHighCommissionerforRefugees,theUNChildren’sFund,theUNDevelopmentProgram,theUNEducational,ScientificandCulturalOrganizationandmanyothers)isapproximatelyUS$30billionayear.2

And with: achieving the Millennium Development GoalsThecostofattainingtheMillenniumDevelopmentGoals(MDGs)hasbeenestimatedatUS$135billion.3

Thisamountwouldensure:• theeradicationofextremehungerandpoverty• universalprimaryeducation• areductionofchildmortality• theempowermentofwomen• environmentalsustainability…andtheachievementofotheressentialgoals.

SIPRI states that“Preventive interventions to reduce hunger, improve the physical environment and reduce poverty are important means of improving the security of human lives. furthermore, in comparison with military expenditure, the prevention strategies developed for the WHO and other parts of the united nations to reduce the risks to human lives are highly cost-effective. for example, 8 million lives could be saved annually for an annual investment of $57 billion in basic health interventions. …

More importantly, there are significant overlaps between the risk factors for disease and for collective violence, which suggests that there is an overlap in the agendas for “freedom from want” and “freedom from fear.” this has implications for different types of security strategy.

…While economic scarcity and competition for resources are potential sources of conflict and violence, using the world’s resources constructively to address hunger, environmental factors and poverty….is likely both to improve human survival directly and to strengthen international security indirectly.”4

1. www.unmultimedia.org/radio/english/detail/88111.html2. GlobalPolicyForumwww.globalpolicy.org/un-reform/un-financial-crisis-9-27.html3. StockholmInternationalPeaceResearchInstitute.2007Yearbook4. SIPRIYearbook2007.Chapter7Summary,page10

6

WHILE THE FOLLOWINg areexcerptsonly,theyindicatesomeareasofthewhitepaperanditsrecommendationsthat

requirescrutinyanddebate.Thewhitepaper’sexecutivesummaryis

reproducedonpages42-44.Todownloadtheentiretextofthewhitepaper,visitwww.defence.gov.au/whitepaper/

On the risk of Australia being invaded, the white paper gives a reassuring assessment:

3.7 …today, Australia is one of the most physically secure countries in the world. But that does not mean we are destined forever to be secure from external threat. We have to consider the possibility of potentially adverse changes in our strategic outlook, especially in the Asia-Pacific region. the probabilities of such changes occurring are low, but not so low as to be beyond contemplation.

6.23 …the enduring reality of our strategic outlook is that Australia will most likely remain, by virtue of our geostrategic location, a secure country over the period to 2030. We are distant from traditional theatres of conflict between the major powers, and there is an absence of any serious, enduring disputes with our neighbours that could provide a motive for an attack.

Despite this, the paper’s recommendations for new weapons acquisitions are far-reaching, and it does not acknowledge the possible concerns the recommendations might raise in the minds of our neighbours:

Fromthewhitepaper’sexecutivesummary(pages13-14):the major new direction that has emerged through consideration of current and future requirements is a significant focus on enhancing our maritime capabilities. By the mid-2030s, we will have a more potent and heavier maritime force. the government intends to replace and expand the current fleet of six Collins class with a more capable class of submarine, replace the current Anzac class frigate with a

more capable future frigate optimised for AsW [anti-submarine warfare]; and enhance our capability for offshore maritime warfare, border protection and mine countermeasures.

While focusing on building our maritime capabilities, the government has also been able to make provision for the enhancement of other key elements of the Adf [Australian defence force], including our air combat capability (by proceeding with the acquisition of fifth-generation multirole combat fighters); strike capability (through the acquisition of long-range, land-attack strike missiles); the Army’s fleet of heavy protected vehicles and other land force capabilities; the capabilities of our special forces; and in the emerging area of cyber warfare.

The concerns of other nations could be heightened, in particular, by the long-range nature of possible ADF action foreshadowed in the white paper:

7.3 Our military strategy is crucially dependent on our ability to conduct joint operations in the approaches to Australia - especially those necessary to achieve and maintain air superiority and sea control in places of our choosing. …

7.4 such a strategy does not necessarily entail a purely defensive or reactive approach. in operational terms, if we have to, we will need to be prepared to undertake proactive combat operations against an adversary’s military bases and staging areas, and against its forces in transit, as far from Australia as possible. this might involve using our strike capabilities, including combat aircraft, long-range missiles and special forces. …

While Australia’s military modernisation is implied to be a matter of necessity, China’s military modernisation is portrayed (albeit inconsistently) in a more threatening manner:

4.26 China will also be the strongest Asian military power, by a considerable margin. its

What does the defence white paper say?

7

military modernisation will be increasingly characterised by the development of power projection capabilities. A major power of China’s stature can be expected to develop a globally significant military capability befitting its size. But the pace, scope and structure of China’s military modernisation have the potential to give its neighbours cause for concern if not carefully explained, and if China does not reach out to others to build confidence regarding its military plans.

4.27 China has begun to do this in recent years, but needs to do more. if it does not, there is likely to be a question in the minds of regional states about the long-term strategic purpose of its force development plans, particularly as the modernisation appears potentially to be beyond the scope of what would be required for a conflict over taiwan.

The white paper portrays US military supremacy as a stabilising factor globally, a point which would be disputed by many nations. The paper’s failure to acknowledge this divergence of views undermines its relevance to the essential task of reducing global tensions:

4.2 since World War ii, Australia’s strategic outlook and defence planning have been shaped most fundamentally by the global distribution of power, and in particular the strategic primacy of the united states. the united states has played a stabilising role across the world and especially so in the Asia-Pacific region. …

On the role of ANZUS, the white paper affirms the oft-quoted myth that the Treaty will provide protection for Australia when we need it. It also overlooks the ANZUS Treaty’s strong and repeated emphasis on the pre-eminence of the UN in settling international disputes:

Defencewhitepaper,paragraph11.6:formal undertakings to support each other in time of need underpin our defence relationship with the united states. those undertakings are stated in the Australia-new Zealand-us (AnZus) security treaty of 1951, in which the parties agreed to “act to meet the common danger”. this does not commit Australia or the united states to specific types of actions, but it does provide a clear expectation of support. …

ANZUSTreaty,Article1:the Parties undertake, as set forth in the Charter of the united nations, to settle any international disputes in which they may be involved by peaceful means in such a manner that international peace and security and justice are not endangered and to refrain in their international relations from the threat or use of force in any manner inconsistent with the purposes of the united nations.

ANZUSTreaty,Article3:the Parties will consult together…..[if] any of the Parties is threatened in the Pacific.

On the world’s worst weapons of mass destruction, nuclear weapons, the white paper implicitly repeats the illogical and deeply-flawed notion that US nuclear weapons – unlike other nuclear weapons – bring stability:

4.59 it is the government’s judgement that stable nuclear deterrence will continue to be a feature of the international system for the foreseeable future, and in this context extended deterrence will continue to be viable. the challenge will be to deter rogue states of concern …

6.34 …for so long as nuclear weapons exist, we are able to rely on the nuclear forces of the united states to deter nuclear attack on Australia. Australian defence policy under successive governments has acknowledged the value to Australia of the protection afforded by extended nuclear deterrence under the us alliance. …

On the overwhelming security implications of both climate change and resource depletion, while recognising the necessity for non-military action, the white paper raises the possibility of military responses:

4.63 the main effort against such developments will of course need to be undertaken through coordinated international climate change mitigation and economic assistance strategies, and concerted international action to assure energy supply and distribution, which will need to be at the forefront of Australia’s policy responses.

4.64 should these and other strategies fail to mitigate the strains resulting from climate change, or resource security issues, and they exacerbate existing precursors for conflict, the government would possibly have to use the Adf as an instrument to deal with any threats inimical to our interests.

8

1 Defence white paper: same old, same old?

Dr Bill Williams, President, Medical Association for Prevention of War (Australia)

THE IMPULSE AMONg healthprofessionalstoaddresswarfareasathreattopublichealthisnotnew.Indeed,thecentraltenet

ofthemedicalprofessionisthatdoctorsmustdonoharm.ButthepowerandeffectivenessofourorganisationshasincreasedsubstantiallysinceRudolphVirchow–pre-eminentphysicianofthenineteenthcentury–declared,“Wemustdeclareahorriblewaronwar,”inresponsetothedevastationofthe1870Franco-PrussianWar.AfterWorldWarIItherewasasurgeofphysician-ledprotestagainstwaringeneralandnucleararmsinparticular.Themostdistinguishedphysicianofthetwentiethcentury,AlbertSchweitzer,spokeoutvehementlyagainstatomicweaponstestingandofthenecessityfor‘reverenceforlife,’earninghimtheireofarmsmanufacturersandtheCIA,aswellastheNobelPeacePrizein1952.

Organisationsofdoctorswerecreatedinmanycountries,includingMAPWinAustralia,toraiseawarenessofthegenocidalcapacityofnuclearweapons.Paediatriciansandpathologiststheworldoverjoinedforceswiththepublicintheearly1960stoopposenuclearweaponstesting.Theywere

instrumentalintheattainmentofthePartialTestBanTreatyin1963,whichprohibitedabove-groundtestingofnuclearweapons.

AttheheightoftheColdWarandtheUS-USSRnucleararmsrace,in1981physiciansagainunited(undertheumbrellaoftheInternationalPhysiciansforthePreventionofNuclearWar)tobringsanitytogovernmentdecision-making.Thisessentialpeacemakingrolewasrecognisedin1981bytheWorldHealthAssembly(thesupremedecision-makingbodyoftheWorldHealthOrganization)inaresolutionwhichdeclared“theroleofphysiciansandotherhealthworkersinthepreservationandpromotionofpeaceasthemostsignificantfactorfortheattainmentofhealthforall.”

Anintegralpartofphysicians’effortstoattainhealthforallistostaunchthehaemorrhagingofresourcestotheworld’smilitaries.

The 2009 defence white paper

TheoneandonlysuccessfulmilitaryinvasionofourcontinentwasthatonwhichthenationofAustraliawasfounded.WavesofEuropeans–soldiers,police

9

officersandarmedcivilians–occupiedthelandafterGovernorArthurPhilipraisedtheUnionJackinSydneyCoveon26January1788.Aidedbygermsandsteel,theyspeedilydispossessedtheAboriginalinhabitants,renderingthemmarginalifnotextinct,clanbyclan,oftenwithinonegenerationoffirstcontact.NoeventofsimilarnatureormagnitudehasoccurredinAustraliasincetheAboriginaldispossessions.Andnoeventlikethisispredicted,identifiable,orevenimaginedinthe138pagesofAustralia’s2009defencewhitepaper,defending Australia in the Asia Pacific Century: force 2030,whichsuggeststhatwhileriskstoAustralia’ssecurityoverthenexttwodecadesmaybemanifoldandunpredictable,conventionallarge-scaleterritorialthreatsarenotamongthem.Paradoxically,thisleadsnottoarestructuringorreprioritisationofoursecurityanddefencepoliciesbuttoproposalsforadramaticincreaseinexpenditureonconventionalmilitarypower.Accordingtothewhitepaper,wemustsubstantiallybolsterourmilitaryhardware,enhanceourcapacitytoengageinwar-fightingfarfromhome,strengthenourlinkstotheUSmilitary,relylongtermonthethreatandpotentialuseofnuclearweapons,andadoptanaggressive,domineeringposturebothinourneighbourhoodandfarfromourshores.

Thepreparationofthewhitepaperinvolvedasuiteofintelligenceassessments,aforcestructurereview,anindependentauditofthedefencebudget,andacommunityconsultationprogram.Communitysurveyswereconductedaspartoftheconsultationprocessandworkshopsaroundthecountrywerewellattended.Theyshowedthatsupportforincreaseddefenceexpenditureinthepublicmindhasfallenfrom75percentin2000to30percentinJune2008.1Thus,publicsupportforincreaseddefencespendinghasfallenbymorethanhalf;theviewsofthepublicareinstarkcontrasttotheadviceacceptedbytheauthorsofthewhitepaper(advicethatpresumablycamefromthe“defencespecialists,academics,businessandindustryrepresentatives”(paragraph1.22)).

Giventhepublic’sclearlyarticulatedview,andthepaper’sstrategicanalysiswhichconcludedthereisnoidentifiablemajorthreattoAustralia,thewhitepapermightreasonablyhaverecommendedareductioninfinancialoutlayorperhaps,atmost,moreofthesame.Butthepaperenvisagesa$4.3billion(16percent)realincreaseinAustralia’smilitaryspendingnextfinancialyear,1 ‘LookingovertheHorizon:AustraliansConsiderDefence’inAppendixAof

Community Attitudes to defence: final report (urbis, June 2008);partofthewhitepapersurveyprocessandquotedinSenateEstimatesTranscripts(ScottLudlam14August2009)

to$26.8 billion–that’s$1,230foreveryAustralian.Aboveandbeyondthis,anannualthreepercentrealincreaseisplanneduntil2018,thenanannual2.2percentrealincreaseuntil2030.

Andwherewillthemoneygo?Theshoppinglistislong.Itincludestwelvenewsubmarines(atpresentwehavesixCollinsClasssubmarines,butstaffingonlyforthree),100jointstrikefighteraircraft,eightnewfrigates,andnewlong-rangesea-basedlandattackcruisemissiles,amongotherhardwareacquisitions,plusamajorenhancementofelectronicandcyberwarfarecapability.Theemphasisofmuchofthisexpenditureis

unashamedlyonlong-rangeoperationsandhigh-intensitywarsfoughtinlockstepwiththemajorpowers.

Thefindingsofthewhitepaper’sstrategicanalysisactuallysupportastrongargumentforcuttingthedefencebudgetandredirectingittowardsdiplomacyandaidprograms.ThisapproachhasbeenpromotedbyAustralia’sformerarmychief,ProfessorPeterLeahy,retiredlieutenant-general,andnowheadoftheNational Security Institute at the UniversityofCanberra.ProfessorLeahytoldtheAge(10March2010)that“anewnationalsecurityenvironment,characterised

bylow-levelconflicts,terrorism,policingandreconstructionwork,mighttiltthefundingbalancetowardstheDepartmentofForeignAffairsandTrade,theAustralianFederalPolice,andthegovernmentaidorganisationAusAID.”

Ourinternationalobligations–includingthoseundertheANZUSTreatyandtheUNCharter–bindus,andallsignatories,to“settleanyinternationaldisputesinwhich[we]maybeinvolvedbypeacefulmeansinsuchamannerthatinternationalpeaceandsecurityandjusticearenotendangeredandtorefrainin[our]internationalrelationsfromthethreatoruseofforceinanymannerinconsistentwiththepurposesoftheUnitedNations.”2

Australia’sresponsibilitytotheUnitedNationsispre-eminent:wemustmaintainourcommitmentstothenumerousmultilateralandinternationalbodieswhichpromotethecommongood,notonlyinourregion,butglobally–andweshouldencourageourmajorally,theUnitedStates,todothesame.Althoughthewhitepaperrecognisesadherenceto“arules-basedinternationalorder”(paragraph7.19),itremainssilentonAustralia’sparticipationintheinvasionandoccupationofIraqin2003,widelycondemnedasaviolationofinternationallaw.Floutingtherulesonlyengendersfurtherdiscordandensuresongoingconflict.Agenuinecommitmenttoupholdinginternational

2 Article1,ANZUSTreaty

…the paper envisages a $4.3 billion (16 per cent) real increase in Australia’s military spending next financial year, to $26.8 billion – that’s $1,230 for every Australian.

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lawandtoareinvigoratedUnitedNationsmustbeatthecoreofAustralia’ssecuritypolicies.Ourlong-termsecurityinterestsarebestservedbynurturingunderstanding,agreement,andcooperationamongourneighboursandothernations;thisincludesincreasingourcommitmenttoUNpeacemakingandpeace-buildingefforts.

Amajor2006study3bytheRANDCorporation(arespectednon-profitUSresearchorganisation)foundthat‘peacemaking’–usingdiplomacytoendwars–isincreasinglysuccessful:abouthalfofallthepeaceagreementsnegotiatedbetween1946and2003havebeensignedsincetheendoftheColdWar.ThestudyalsoreportedthatUnitedNationspeace-buildingoperationshadatwo-thirdssuccessrateandweresurprisinglycost-effective:infact,theUNspentlessmoneyrunningseventeen peace operations aroundtheworldforanentireyearthantheUnitedStatesspentinIraqinasinglemonth.

Meanwhile,a2009report4 fromAustralia’sLowyInstituteforInternationalPolicyalsoconcludedthatdiplomacyisbyfarthemosteffectivewaytoinfluencethebehaviourofothernations.YettheLowyreportfoundthattheDepartmentofForeignAffairsandTrade(DFAT),withabudgetoflessthan$1.2billion,wasrun-downandpoorlyequippedtodealwithloominginternationalthreatswhichincludeglobalwarming,thefinancialcrisis,terrorism,andregionalpowershifts.

Aforward-thinkingAustraliansecuritystrategywouldhaveenormousopportunityandcapacitytointerveneeffectivelyinunstablezones,goingbeyondconventionalmodesofdiplomacyandmilitaryengagement.

Improving health promotes peace

Thepowerofhealthinterventions,inparticular,tobuildpeaceiswelldocumentedintheHumanSecurityReport,producedin2009bytheHumanSecurityReportProject,anindependently-fundedresearchcentrebasedatSimonFraserUniversityinVancouver,Canada.Thereportillustratesthatinterventionsbyhealthprofessionalscanbecomesteppingstonestopeace.Trustgeneratedbynegotiatinghealthinterventionsinconflictzones–typicallytoimmunisechildren–cancreateenoughconfidencebetweenenemiestojump-startnegotiationsthatcaneventuallyleadtopeacesettlements.

Thereportalsorevealstheeffectivenessof3 Jones,SethGetal(2006)securing Health: lessons from nation Building Missions,

SantaMonica,CA:RANDCenterforDomesticandInternationalHealthSecurity. www.rand.org/pubs/monographs/2006/RAND_MG321.pdf

4 Australia’s diplomatic deficit,seewww.lowyinstitute.org/Publication.asp?pid=996

advocacyandeducationprogramsthatseektoinformpopulationsandgovernmentsaboutthetruehumancostsofwar:enhancingpublicknowledgeaboutwarfaremakesademonstrablecontributiontoconflictprevention.ThisresearchvindicatestheworkoforganisationslikeInternationalPhysiciansforthePreventionofNuclearWar,whichreceivedthe1985NobelPeacePrizeforitsworkinthisarea,andtheMedicalAssociationforPreventionofWar,publisherofthisdocument.

Thereportdescribesafurtherpeaceful,health-orientedprocesswherebyofficialstatepolicythatimprovesthehealthoutcomesofordinarycitizens

inpost-conflictsettingsenhancesthelegitimacyofthegovernmentconcerned,thusdecreasingtheriskofwarrestarting.Here,healthpolicyisseenascontributingtopost-conflictpeace-building.Fundsspentstabilisinghealthandothersocialoutcomesinpre-conflict,conflict,andpost-conflictzonesproviderealvalueformoney:onejointstrikefightercosts$122million,whereasinKabula350-bedgeneralhospitalcosts$25million5andanewschoolamere$122,000.6

Likeinjustice,povertyandmarginalisationcreatebreedinggroundsforbitterness,hatredand

civilinstability,andtheirextrememanifestation,terrorism.Bydirectlyandmateriallyaddressingtheproblemsofdisadvantage,despair,andeconomicinsecurity,wecanmakerealstepstowardspeaceandsecurityinourtime.Australia’scurrentdevelopmentaidfallsfarshortoftheUNstandardof0.7percentofgrossnationalproduct:in2008-09ourcontributionwas0.33percentofGDP($3.8 billion),duetoincreaseto0.5percentby 2015-16.7WecouldmorestronglypromoteglobalsecuritybyincreasingouroverseasaidtotheUNstandardlevel:atinyreallocationfromourmilitarybudgetwouldsuffice.

Whileaddressingpovertyandinequityareobvioustargetsforasmartsecuritystrategy,asophisticatedandpre-emptivestrategyalsorequiresustoaddressbroaderthreats:inparticular,thedepletionofwater,food,andenergyresources,andpressingenvironmentalthreatssuchasresourcedepletion,soildegradation,deforestation,waterandaircontamination,aswellasthepotentiallycatastrophicimpactofclimatechange.Whilethewhitepaperacknowledgestheexistenceofthesethreats,itessentiallydismissesthembydeferringaccountabilityforanymaterialresponsetolaterplanners,therebydoingourchildrennofavoursatall.5 www.afghan-web.com/health/jumhuriat_hospital.html(16August2009)6 InternationalSecurityAssistanceForce(2008)www.nato.int/isaf/docu/

pressreleases/2008/01-january/pr080104-004.html7 www.ausaid.gov.au/anrep/rep09/downloads/pdf/anrep08_09intro.pdf

Our long-term security interests are best served by nurturing understanding, agreement, and cooperation among our neighbours and other nations…

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Peace at home?

AfurtherflawinthewhitepaperisitspuzzlingsilenceonaprominentandcontroversialtaskrecentlyundertakenbytheAustralianDefenceForce(ADF):theNorthernTerritoryEmergencyResponse(NTER).TheADFactedina‘non-force’capacity(unarmed)providinglogistical,technical,andcommunicationssupporttootherserviceproviders,suchasdoctorsandnurses.Atthepeakofitsinvolvement,600ADFpersonnelfromthearmy,navy,andairforcewereinvolvedatacostofalmost$18million.Whilethewhitepaperconsidersmultipleexcursionsinto‘failingstates’inourneighbourhood–past,presentandfuture–itisopaquewhenitcomestoourgovernment’songoingdomestic intentionsfortheADF.

AreportbytheAustralianIndigenousDoctorsAssociation(AIDA)inMarch2010predictsthatanyimprovementsinphysicalhealthattributabletotheNTERmaybeoutweighedbynegativeimpactsonthepsychologicalhealth,spirituality,andculturalintegrityofmanyAboriginalpeople.Thereportconcludesthat“thewaysinwhichtheNTERwasintroducedandisbeingimplementedarelikelytocontributetothecontinuationofthehighburdenoftraumaanddiseasealreadycarriedbyAboriginalpeopleacrossgenerations–acumulativeburdentowhichtheNTERislikelytoadd.”

AlthoughtheNTERhasthesupportofthemainstreampoliticalparties,ithasattractedwiderpoliticalandsocialcontroversy.InvolvingtheADFinthisdisputeisintrinsicallyproblematic,perhapsevencounter-productive.Governmentsofallpoliticalpersuasionsmusttakegreatcarenottorisktheapolitical statusoftheADFinAustraliansociety.ItisdisturbingthattheNTERwasignoredinthewhitepaper,asifithadnobearingonthefutureactivitiesoftheADF,theirlegalityortheirconstitutional,budgetaryorpoliticalimplications.

The deep social impact of war

Warcauseshumanitariandisasters,thedestructionofcivilsocietyandessentialservices,humanrightsabuses,environmentalcontamination,floodsofrefugees,andbringscripplingeconomiccosts.Essentialservicesaregenerallydisrupted,sometimesbydeliberatetargeting.Asoneexample,sevenyearspost-invasion,Iraq’shealthcaresystemstillsuffersgraveproblemsfollowingthedestructionoffacilities,theexodusofthousandsofdoctors,universityteachersandotherworkers,theabduction,killingandtortureofdoctors,anddeliberateattacksonhospitalsandclinics.

Duringwar,deathsarefarout-numberedbymaiming,otherphysicalinjuries,andseverepsychologicaldisturbances–allofwhichperpetuatesufferinganddrainscarceresourcesfrompost-wareconomies.Whilephysicalinjuriesarethemostvisible,itispsychologicalinjuriesthatareoftenmoreincapacitating,bothforciviliansandmilitarypersonnel,andtheseoftenmanifestacrossgenerations,leavingpermanentscarsinfamilies.Thepoisonouscultofmilitarismleachesdeep,warpingthesocialfabric.Thereisacorruptinganddisfiguringimpactonsocialcohesioncaused

byouradherencetoamilitaristethos:violenceandalienation,dominanceandsuppression,fearandsuspicionof‘theother.’

ThereisanurgentneedtobroadenAustralia’snationaldiscoursearound‘security’andtoaddressthegrowingnumberofthreatsforwhichtraditionalmilitaryresponsesareuselessor,worse,counterproductive.

Australia’sbesthopeforpreservingourfreedomandwayoflifeliesinworkingwithlocal,regional,andglobalpartnerstoaddressoursharedglobalhumansecuritychallenges–climatechange,resourcedepletion,povertyandinequity,disease,disastersandhumanrightsabuses.The$146billionworthofadditionalfundingallocatedacrossthelifeofthewhitepaperto2030,wereitdivertedtoprotectingusfromknown,identifiableandpreventablethreats,wouldbearthereal‘force’ofwisdom.

dr Bill Williams has over twenty years experience in community medicine, including clinical and public health responsibilities in urban, rural, and remote locations, including ‘developing’ populations in Australia and overseas. He is current President of the Medical

Association for Prevention of War (MAPW) Australia, and a board member of the international Campaign to Abolish nuclear Weapons (iCAn). He works as a general practitioner on Victoria’s surfcoast.

There is an urgent need to broaden Australia’s national discourse around ‘security’…

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2 The real face of warDr Jeff McMullen am,

writer, filmmaker, and advocate for human rights

WE LIVE IN theMatrixofWar.NotthecyberworlddepictedintheKeanuReevesmovie–ourmatrixisshapedbyour

culture,education,lifeexperienceandmedia.Aftermorethanhalfacenturytravellingthisworld,experiencingsomethirtyconflicts,eachoneleavinganindelibleimprintonmymind,Iamcertainthatourperceptionofwaranditsimpactonciviliansandcombatantsislargelyfalse.

Therearenowordstodescribethefullhorrorofwar.

Ihavelookedintoaschoolpiledhighwiththousandsofcorpses,seenstakesdrivenintothewombsofmothersfrozenindeathclutchingtheirbabies,childrenwithheadssplitopenbymachetes,andheadsofvillagersimpaledonstakes,metboysoldiersagedtenwhohaverapedoldwomen,combatantswhohavemurderedpeopleoftheirownskincolour,religionandvillage,andotherswhohavecutdownwholecommunitiesofpeopleasiftheywerenothumanatall.Sometimesthe

battlefieldhaslookedlikeahumanabattoir.Warisslaughter.Youwillbarelybelievethatsoldierscouldskina

manaliveorrapeayounggirlinfrontofhermother.Whatrobsasoldierofhishumanitysuchthathecouldcrushababy’sskullonrocks?

Wardoesthistous.Ihavebeeninthelandofthelivingmutantsin

Kazakhstan:theradiationpoisoningfromSovietnuclearweaponstestingcausingchildrentobebornwithtwoheads,noeyes,ortwistedtailslikemermaids.

Itellyoutherearenowords.IdiscussedtherealfaceofwarwithStephen

Spielberg,whosefilms,includingschindler’s list (sevenAcademyAwards)andsaving Private ryan (OscarforBestDirector),areamonghisbest-knowneffortsatconveyingthecrueltyandterrorofwar.Spielbergsaidthataftertalkingtomanyveteranshefeelsthatsomeofhisscenescatchthebutcheryandthepanic,theheavydreadthatdrainsallenergy

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fromthelegsandpinssomementothegroundinanoverwhelmingfear.Yetthismasterstorytellerknowsthatnosingleaccountofwar,whetheronthefrontlineoratthegraveside,capturesthefullmeasureofthedevastationcausedbyourspecies’predatorybehaviour.Spielbergtoldmethatafterallhisstruggletorenderanauthenticexperienceofwarincinemahebelievedhismostimportantfilmingwastheshoah Project whichrecordedunadornedthealmostmatter-of-factaccountsbyHolocaustsurvivorsofterroronascalethatdefiesbelief.Thisishisefforttopreservethetruthforhumanity.

The Big Lie machine

WorkingagainstthetruthistheBigLiemachinewhichisswitchedoninwartime.AsthelateandgreatplaywrightArthurMillerobserved,themarkofmodernpoliticalleadershiphasbeenthewillingnesstosendmenintowarandtolietoyourpeopleaboutwhyyouaredoingit.

Theshockandawegeneratedbypropagandaabout‘weaponsofmassdestruction’obscuredthetruthaboutAustralia’scommitmenttothewarinIraq.Internationallawforbadesuchanattack.TheinvasionofIraqwasillegal.TheBigLieaboutweaponsofmassdestructionobscuredthefactsforatimeandconfusedmanypeopleintheUnitedStates,Britain,andAustralia.ButwhathappenedwhentheBigLiebecamecleartoalmosteveryone?Afterthedeathtollhadclimbeddisastrouslyourimpulsewastowithdrawfromthepainofthatrealityandretreatintoourowncomfortingamnesia.Wedidnotwanttoconfrontthetruththatthesedeathswereunnecessaryandillegal.

AstheAmericanpoliticalstrategistKarlRovebragged,governmentscouldcreateanewpoliticalrealitybeforethepublichadevencometogripswiththepreviousone.TheBigLiemachineexploitstheshortattentionspanofthepublicandoureagernesstoreinforcestereotypicalprejudiceandfearofdifference.Thiscreationof‘realities’oftensucceedsonagrandscaleinbothdemocraciesandtotalitarian nations.

ThewaytheSovietGovernmentorchestrateditsinformationcampaignduringtheColdWartoconvinceRussiansthatanuclearblastcouldsomehowbeapeacefulinitiativewasOrwellianinitsgrandeur.In1965,inwhatwasthentheSovietRepublicofKazakhstanabombblastwasusedtocreatetheso-calledAtomicLake,successfullyjoiningtwosmallriversbutmassivelyirradiatingtheregionforatleast250,000years.YoucanimaginewhytheychoseKazakhstanandtheAsianbrigadesoftheRedArmyfortestingtheirradioactiveweapons.ItisthesamereasontheFrenchoptedforSouthPacificnucleartesting,

theAmericanswenttotheirwesternstates,andtheBritishwereinviteddownto‘isolated’partsofAustraliatoirradiatetroops,airforceandnavalpersonnel,andaboriginalsettlements.

Themenwhohavebeenpreparingandplanningfornuclearwar,frankly,aredelusional.Thereisnootherwaytoexplaintheviolencetheyhaveinflictedonthehumanfamilyandtheearth.Couldanypsychiatristcertifyasreasonableorsanethepolicyofdevelopingenoughnuclearweaponstodestroymostofhumanityandmuchoflifeonearth?

In1984ItravelledwithfiftyeminentAmericanphysiciansattemptingtobridgethechasmoftheColdWartotelltheworldthetruthaboutthethreatposedbynucleararsenals.IwasreportingfortheABC’sfour Corners programandmycrewandIwerestruckbythefactthatweweretheonlyjournalistsintheworldwhofeltthatthisextraordinaryeffortwasworthyofsignificantfilmcoveragefrombeginningtoend.

ThephysiciansmetinsidetheSovietUnionwithRussiandoctors,ledbyDrYevgenyChasov,personalphysiciantomostSovietleadersofthateraandco-founderofInternationalPhysiciansforthePreventionofNuclearWar.TherenownedHarvardcardiologist,ProfessorBernardLown,hadforgedastrongfriendshipwithChasov.Bravely,thesephysiciansgatheredevidencetochallengetheconventionalmilitarydoctrineweallcalledMAD–abeliefinthedeterrenceof‘mutuallyassureddestruction’.Evenafterthephysicianswerehonouredwiththe1985NobelPeacePrizefortheirefforts,thesemenwerestillbeingvirtuallyridiculedbysomesectionsofthemediawhosawthemasmerepuppetsinanaïveandmisguidedpeacemovement.

OnmytripsbehindtheIronCurtaintomanypreviouslyhiddencornersoftheoldRussianEmpireIsawthecrueltyoftheSovietUnion’sBigLies.Whenitbecameasuperpoweron29August1949bydetonatingitsfirstatomicbomb,thetwentykilotonblastscatteredavastplumeofradiationoversurroundingvillagesinKazakhstan.Between1949andPresidentGorbachev’smoratoriumonnucleartestingin1990some470nucleardeviceswereexplodedinthenorthernpartofKazakhstannearthesecretmilitarycitadelofSemipalatinsk.

In1993,Iledasixty Minutes filmcrewintothoseirradiatedvillagesastheSovietUnionwasfallingapart.Kazakhdoctorshadinformedmesecretlythatmanyofthosenucleartests,especiallythe116detonatedaboveground,hadirradiatedvillagersandmembersoftheRedArmywhohadbeensentacrossamocknuclearbattlegroundwithnomorethangasmasksandponchosforprotection.ARussianspecialistattheInstituteforRadiationin

The Big Lie machine exploits the short attention span of the public and our…fear of difference.

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Semipalatinskshowedustheirchamberofhorrors,includingtheCyclopschild,staringatuswithasingleeyefromalaboratorybottle.ThereweremoresuchbottlesthanIcouldcount,eachoneholdingamutantbabydestroyedbytheweaponsofwar.

IcanstillseethehospitalwardsofKazakhchildrendyingofradiation-relatedillnesses.TheRussiansadmittedthatthenuclearfallouthadcausednumerousmiscarriages,longlastinggeneticdamage,andnightmarishbirthdefectsamongsomeoftheliving.

Inthemostremotevillages,whichstillhadoverathousandtimesthesafelevelofradiation,Isawtwistedyoungcripplesshutawayinbackrooms.Theirmothersclaimedthatwhenpregnanttheyhadbeentoldbylocalauthoritiestostandinfrontoftheirhomesasthenucleardevicesweredetonated.Notfaraway,onalonelytreelessplain,thearmyhadbuiltitsversionofhumancivilisation,multi-storiedconcretebuildings,bridges,roadsdottedwithtrucksandevenlocomotives,whichhadbeenblowntostardustbythenuclearweapons.IwasabletoconfirmfromaRussianscientistandaHealthCommissiondoctorthatonethirteen-year-oldboy,BerikSyzdykov,hadmostcertainlybeentakingshapeinhismother’swombduringthedeadlyventingofradioactivityfromthatnearbygroundzero.WhenIfollowedBerik’smotherintotheircrumblingmudbrickhouseIsawthattheboy’sfacewassobadlydisfiguredhisfeatureswerebarelyrecognisable.Hewascrownedwithhugetumours.ThroughmytranslatorBerik’smothersaid,“Thebombdidthistomychild.Hiseyesareclosedforever.Hewillneversee.”InhisimaginationBerikwasfarfromgroundzero,theAtomicLake,andallthepoisoncausedbynuclearweapons.Helivedformusic,hisonlygreatpleasure.Beforeweleftwefoundhimatapeplayerandanarmfulofmusicfromaroundtheworld.Iwillneverforgetthatboywithnoeyes.Washistherealfaceofwar?

The tragedy of war

Presidentsandprimeministersarefarmorefamiliarwiththeonerousdutyofsalutingflag-drapedcoffinsandtryingtocomfortthefamiliesofyoungwarriorssenttokillorbekilled.AsStevenSpielbergwouldunderstand,therearecertainuniversalmomentsinwar,thepoignancyofamilitarymessengerstandingatthefrontscreendoor,thecollapseintonumbnesswhenyoulearnthatyourson,daughter,husbandormother,hasbeenkilledinwar.Evenso,nothingpreparesyoufortheprofoundsenseofloss.AlloverthisworldIhavewatchedpeoplecryinghopelesslyasalovedonediesintheirarms.

InNicaraguain1983duringthecivilwarbetweentheSandinistasandthecounter-revolutionaries,Iwatchedamaneulogisinghissonafterthebodyofthenineteen-year-oldwasliftedfromthebackofapick-uptruckinthevillageofCua.Hesworethathissonhaddiedforthehomelandand,byGod,hewouldgivethelivesofhisthreeremainingsonsinthearmytodefendtheSandinistarevolution.Asthedayfaded,sodidtheoldman’sresoluteness.Hisgriefandhisdeepfearofwhatcouldhappentohisothersonsfounditswayintohisheart.No-onecouldcomforthim.TheSandinistafighterswouldnotlookhiminthe

eye.Clutchingabottle,hecameweavingacrossthedirtsquaretowardsme.Icouldnotlookaway.Ijustheldoutahand.Ithoughtofmyfather,aRAAFairmanwhofoughtintheMalayanEmergency.Howwouldanyofusfeelifwehadlostoursoldierson?Theoldmanflunghisarmsaroundmyneckandsobbed.

Thatoldman’ssenseoflossisoneofmyenduringmemoriesof

therealpainofwar.Itisstoredinmyheadandmyheart.ItinformsmyworkandgivesmehopeasItreateachdayasanopportunitytoworkforabetterworld.Therearesomanyunforgettablestrangers,eachonecarryingtheweightofthetragedyofwar.

ThecombatantsIhavemetaroundtheworld,menandwomen,boysandgirls,areconditionedbycircumstancesandtrainingtosuspendtheirhumanitylongenoughtocutathroatorsqueezethetrigger.Thisisnoteasilydone.Theconditioningstartsyoung.Weplaywargames,paradeinuniforms,andglorifytheendlessbattle.Themediafixesonwinnersandlosers,oftenmissingthetragedythatweareall losing,andthatciviliansandcombatantsalikearebeingscarred.Ourapproachtohistorytoohasthisheavyemphasisonheroicvictoryordefeatandstrugglestoconveytheauthenticexperienceofwar.

LivingintheMatrixofWarwearedangerouslydesensitised.

Despitethedeathinconflictofmorethan160millionhumanbeingsinthetwentiethcenturywehavenotyetgraspedtheessentialthreatwarposestoourspecies.Wecontinuetowagewaragainstotherpeopleandagainsttheearthitself.

The bigger picture

Manyrecentconflicts,includingAfghanistan,Iraq,Somalia,Burundi,Rwanda,Zimbabwe,Bosnia,EastTimor,SriLanka,thecivilwarsofCentralAmerica,andthegeneralpatternofviolenceintheMiddleEastandAfricaasawhole,showthedangerouslinkbetweensevereoverpopulationandcriticalstressonbadlydepletedenvironments.EverywhereIhaveroamedsincemychildhoodontheedge

…we have not yet grasped the essential threat war poses to our species…

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oftheMalayanEmergencyIhavewitnessedthisconnection.Conflictoverbasiclife-sustainingresources–water,food,fuel–threatenstodominateourchildren’slifetime.

BritishearthscientistNormanMyerscalculatesthatsincetheendofWorldWarIIwehavedevouredmorerawmaterialsthanallofourancestorscombined.By2100,one-thirdoflivingspeciesmaybegone.Watchthebirdsnowonthewingbecauseoftheextanttenthousandspecies,seventhousandareindrasticdecline.Takealongwalkthroughaforestanddrinkdeepitsbeautybecauseuptofiftythousandoftheworld’stwohundredandfiftythousandkindsofplantsareexpectedtodisappearoverthenextfewdecades.Someoftheworld’sfinestlandundercultivationisthreatenedbyrisingsalt.Globalwarmingcouldincreasetheincidenceofdrought.Ifsealevelsdorisetherecouldbewidespreaddisplacementofcoastalpopulationsaddingtotherisingnumberofrefugeesnowcrossingborders.

RealsecuritywillrequireanunderstandingofthisBigPicture.AsanurgentfirststepwemustshattertheMatrixofWarandworktounderstandtheunderlyingcausesofviolencetoeasethethreattoour,andother,species.

Insteadofrespondingtoeachcrisisasithappens,governmentleadershipandpolicymustinvesttime,money,knowledge,technologicalinnovationandwisdomintoatwenty-firstcenturystrategyforpeace.Withoutthis,ourspeciesislikelytoreduceitstimeonearth.Noneofuscancomprehendthefullconsequencesoffailure.Wemustactwiselytoreducethefearofdifferenceandthecausesofconflict,orfuturegenerationsmaynotexist.

Militarystrategiesofdeterrence,defence,orpre-emptivewarareall,invaryingdegrees,anadmissionoffailure.Rethinkingeverythinginthemeasurerequiredforhumansurvivaldemandsnewpriorities,dialogue,andplanningforpeace.

How might we build this peace?

Individuals,soldiers,andciviliansmustbeledawayfromabeliefintheinevitabilityofconflicttotheideaofcooperationandaclearsenseofthecommongood–anenlightenedself-interestthatreducesthechanceofviolence.

Asreligionremainstheworld’smostprofoundculturaldivide,oftencontributingtothelanguageofconflict,religiousleadersneedtodropanydogmaofexclusivityandstressinsteadourcommonhumanity.

Theworld’srichestnationsarestillrenegingonthepromisestheymadeattheUNInternationalConferenceonPopulationandDevelopmentin

Cairoin1994.Goalsincludeduniversaleducation,accessby2015toreproductivehealthcareandfamilyplanning,ensuringwomencontroloftheirfertilityandreducinginfantmortality.Australiahasfailedtomeetthesegoalsevenamongourownpoorestcitizens,ourindigenouspeople.

Investinginthehealthofstrugglingnationstocombatpreventablediseasessuchasmalaria,cholera,andHIV-AIDSwillnotonlyreducetheinstabilitythatfuelswar,butwillalsostrengthenthebondsofthehumanfamily.Withoutavigorousneweffortoneducationandhealththelikelihoodofconflictwillincrease.

Environmentalaction,includingareductioninglobalwarmingandafargreaterglobalefforttoeasethegrowingwatercrisis,isalsoessentialtoreducetheriskofwar.

Witharoundthirtymillionpeoplenowadriftaroundtheworld,investingmoreinprovidinggenuinerefugeforthemcouldhelpeasedangerouspopulationpressures.

WeareunitedbyDNAanddestiny.

Darewesayitaloudordoweliveinfearofbeingseenasweak?Peaceisasuperiorstrategytowar.

dr Jeff McMullen AM is a writer, filmmaker and advocate for human rights. After 45 years of journalism with the ABC and Australia’s sixty Minutes his work over the past decade has focused on the health and education of indigenous children. He is CeO (Honorary) of

ian thorpe’s fountain for Youth, director of Australian indigenous Mentoring experience, trustee of the Jimmy little foundation and a director of the indigenous Australian engineering summer school program. His memoir, ALifeofExtremes–JourneysandEncounters, examines patterns of conflict, connections between war and environmental ruin, as well as the possibility of change.

Dare we say it aloud or do we live in fear of being seen as weak? Peace is a superior strategy to war.

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3 Security in the Asia-Pacific region: for whom?

Nic Maclellan, journalist and researcher

COMPARED WITH DEFENCE whitepapersissuedsincethe1980s,thefocusofthe2009defencewhitepaperisthechanging

strategicpatternintheAsia-Pacificregion.ThecentralideaisthatAustraliacannolongerassumetheuncontestedprimacyoftheUnitedStatesintheAsia-Pacificregion.

ThewhitepaperiscontradictoryabouthowfarUSdeclinehasprogressedfollowingtherisingeconomicandpoliticalpowerofkeyAsianstatesChinaandIndia(indeed,inparagraph4.14thepapersaystheUSwillmaintainstrategicsupremacyforanothergeneration as“themostpowerfulandinfluentialstrategicactorovertheperiodto2030–politically,economicallyandmilitarily”).ThepaperisalsounclearastowhetherAustraliashouldmoveclosertoUSpolicypositions,whethertheUSwillaccepttheinevitableriseofChina(bycooperatinginregionalsecurity),orwhethertheUSgovernmentshouldresistitsdeclininginfluencewithanassertionofmilitarypowerandfurtherdeploymentofstrategicnuclearsystems.

FormerPrimeMinisterMalcolmFraser,describingthewhitepaperas“adepressingdocument”,stressesthatAustraliansupportfortheUnitedStatesinvolvessupportforitsnuclearpolicy.

Henotesthepaper“claimsstabilitydependsuponthecontinuedinvolvementoftheUSintheWesternPacific,andundertheumbrellaofan‘extended’nucleardeterrent.Byimplication,ourroleistodoenoughtoearnAmericansupportshouldweeverneedit.”1

Chapter4discussesAustralia’songoingsupportforextendednucleardeterrence–afarcryfromtheRuddgovernment’spre-electioncommitmentstosupportanuclearweaponsconventionandmovetowardsglobalcooperationfortheabolitionofnucleararsenals.TheargumentagainstabolitionfromconservativeanalystsisthatmovingawayfromtheUSnuclearumbrellawouldrequiregreaterspendingonconventionalweaponry.Butthisfliesinthefaceofthescandalouswasteoftheexistingmilitarybudgetbydefencebureaucrats,andthelackofresourcesprovidedfordiplomacyanddevelopmentassistanceinneighbouringcountries,whichwouldcontributetogreaterregionalsecurity.

Thewhitepaper’sdiscussionofAustraliandefencepolicyhasanumberofotherflaws,including:• thedefinitionoftheconceptof‘stability’inthe

Pacificregion1 MalcolmFraser:‘Peaceisourbestdefence’,Age,29June2009

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• itsfailuretodiscusshumanrightsandself-determinationinWestPapua,Bougainville,andotherPacificnations

• theframingofkeyregionalhumansecurityissues,suchastheimpactofclimatechangeonPacificislandnations,asanissueofborderprotection.Thesedistortionsaffectgovernmentsecurity

spendingandarereflectedinmajorpoliceandmilitarydeploymentsinthePacificregion.Thischapterexploresthesekeyregionalsecurityissuesandquestionswhethermaintainingregional‘stability’willaddressthesourcesofarmedconflictinneighbouringislandstates.

Pacific stability and human rights

RecentcrisesinFiji,Bougainville,TimorLesteandSolomonIslandshaveprovokedconcernabouttheriseof‘ethnictension’inMelanesia,andmediacommentaryaboutthe‘arcofinstability’tothenorthandeastofAustralia.Intheoverseasaidsector,developmentprioritieshavebeensharplyaffectedbythesecrises.TheAustralianAgencyforInternationalDevelopment(AusAID)hasreallocatedtensofmillionsofdollarsawayfromlong-termbilateralandregionalprogramstowardsemergencyrelief,rehabilitationandreconstructionprograms.Newcrisesawait,suchasthepotentialforrenewedconflictinIndonesian-controlledWestPapua.

Australia’sengagementwiththeAsia-Pacificregionisinfluencedbytheobviousimpactofgeography–it’sourregionanditsissuesaffectusdirectly.AustraliaplaysanimportantroleasamajorpowerinthePacificislands,throughtrade,aid,defence,tourismandculturalrelations.Governmentpolicyisinfluencedbythenotionofpromotingregional‘stability.’Buttherearealsohistoricdebtsandlegaciesofcolonialismthatinfluencemanyislanders’perceptionsofAustralia,raisingquestionsaboutthecostsaswellasbenefitsofAustraliantradeandaidpolicies.

Politicalchangesinneighbouringislandstatesareacentralfeatureofthewhitepaper,whicharguesthataftertheprincipaltaskoftheAustralianDefenceForce(ADF)–deterringanddefeatingarmedattacksonAustralia–the“secondprioritytaskfortheADFistocontributetostabilityandsecurityintheSouthPacificandEastTimor[sic].Thisinvolvesconductingmilitaryoperations,incoalitionwithothersasrequired,includinginrelationtoprotectingournationals,providingdisasterreliefandhumanitarianassistanceandonoccasionbywayofstabilisationinterventions”(paragraph7.10).

Sincethe1990s,Pacificsocialcriseshavebeen

viewedthroughtheparadigmof‘failedstates’and‘thearcofinstability.’IntheHowardyears,the1998-2003crisisinSolomonIslandsandthe2000Fijicouphelpedspark‘stabilisationinterventions’intheregionbytheAustraliangovernment–atrendamplifiedbySeptember11,the2002Balibombing,andthe2003invasionofIraq.

PoliceandmilitarydeploymentsinTimor,SolomonIslands,Nauru,PapuaNewGuineaandTongaafter2000requiredmajorgovernmentinvestments.TheRuddgovernmenthasmaintainedsignificantspendingontheseoverseasdeploymentsandpolicetrainingprograms.IntheMay2009

budget,itallocated$1.7billionin2009-10formajorADFoperationsoverseas.AlongwithdeploymentsinAfghanistanandIraq,itfundedongoingoperationsinTimorLeste($213.8million)andSolomonIslands($29.6million).

AsdetailedontheNautilusInstitute’swebsite‘AustralianForcesAbroad’,thedeploymentoftroopsandpoliceinPapuaNewGuinea,SolomonIslands,TimorandTongaaddstoongoingDefenceCooperationProgram

(DCP)activities.Inrecentyears,theAustraliangovernmenthasprovidedover$10millionayearinDCPtoPapuaNewGuineaandover$30millionayeartootherPacificislandstates.

AustralianFederalPolice(AFP)operationshavealsoincreasedoverthelastdecade.TherearenowmoreAFPthanADFpersonneldeployedinthePacific.InAugust2006,PrimeMinisterHowardannouncedthattheAFP’sInternationalDeploymentGroup(IDG)wouldincreaseby400personnel,takingtotalstaffto1200,includinga200-strongOperationalResponseGroupto“deployatshortnoticeinresponsetolawandorderissuesandundertakestabilisationoperations.”ThiswasthelargestsingleincreaseinstaffsincetheAFP’sestablishmentin1979,costing$493millionoverfiveyears.TheRuddgovernmenthasmaintainedthisprogram,withitsMay2008budgetannouncing$191millionfor500newAFPofficers.In2009,afurther$500millionwasallocatedtolawenforcementagenciesinSolomonIslands,Indonesia,PakistanandAfrica,including$438.8millionfortheAFPinSolomonIslands.

InthePacific,communityperspectivesofpeaceandsecurityfocusmainlyonlocalcontextanddailyneeds:peoplecommentonthedifferencebetween‘lawandorder’and‘peaceandsecurity.’Therefore,Australia’ssignificantinvestmentsinpoliceofficersdon’talwaysaddresstheneedforbettercommunitysecurity:manyordinaryPacificislandpeoplequestionwhetherthemassiveinvestmentinpoliceandmilitarydeploymentstranslatesintoanequitabledistributionofbenefits,especiallyasthebulkofthepopulationliveinruralareasandouterislands.

Australia can no longer assume the uncontested primacy of the United States in the Asia-Pacific region.

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Creatingpeaceandsecurityinislandcommunitiesinvolvesmorethandisarmingmilitiasorcriminals–itistiedtobroadernotionsofeconomic,socialandenvironmentalvulnerability.Localcommunitieswantjobs,essentialservices,improvedlivelihoods,andarenewedfocusonendingviolenceagainstwomeninthehomeandcommunity.2

Inrecentyears,Australiangovernmentshaveshiftedaidprogramresourcesawayfromcoresocialsectors.IntheHowardyears,thiswasreflectedinamassiveincreaseinfundingfor‘goodgovernance’activitiesandarelativedeclineindirectfundingforhealthandeducationprograms.Fundingfor‘goodgovernance’initiatives–publicsectorreforms,strengtheningthemachineryofcentralgovernment,andlawandjusticeprograms–rosefrom$26 millionofAusAID’sbudgetin1998to$832millionin2006-07.

WhentheALPwongovernmentinNovember2007,goodgovernanceprogramsmadeupathirdofAustralia’soverseasaidbudget,morethanhealth,educationandruraldevelopmentcombined.UnderKevinRudd,theAustralianaidprogramhasbegunaddressingthisproblem,butthere’salongwaytogo.

Self-determination in ‘the arc of instability’

AfterdefendingAustraliaagainstdirectarmedattack,thewhitepapersaysour“nextmostimportantstrategicinterestisthesecurity,stabilityandcohesionofourimmediateneighbourhood”(paragraph5.7).Buttheconceptof“stabilityandcohesion”isneverexplored.Intheaftermathofarmedclashes,isareturntostabilitysimplyareturntoanunjuststatusquo?Civilsocietygroupsaroundtheregion,especiallychurchesandwomen’sorganisations,areattemptingtostopsocial,economicorculturalconflictsdegeneratingintoarmedviolence,buttheyarealsoworkingtoaddressunderlyinggrievances.

Aroundtheregioninrecentdecadestherehasbeenaseriesofviolentconflicts,smallbyglobalstandardsbutsignificantforsmallislanddevelopingstates,includingviolentclashesinNewCaledoniainthe1980sbetweentheFrenchstate,localEuropeansettlersandtheKanakindependencemovement;thewarinBougainvillefrom1989to1998,wheremorethan15,000peopledied;armedconflictinSolomonIslandsin1998,resultinginmorethan200deathsandanestimated15,000-20,000internallydisplacedpeople;Indonesia’songoingoccupation

2 FordiscussionofthisanalysisinthecontextoftheRegionalAssistanceMissiontoSolomonIslands(RAMSI),seeOxfam’sBridging the gap between state and society, 2006.

ofthewesternhalfoftheislandofNewGuinea,wheremanymembersoftheindigenousMelanesiancommunityintheprovincesofPapuaandWestPapuacontinuetochallengeIndonesianruledespiteongoinghumanrightsabusesbymilitary,policeandmilitiaforces.

AustraliaisworkingwithotherPacificgovernmentstoendthearmedconflictintheseislandsandachieve‘stability,’butastheoldsayinggoes:‘Nojustice,nopeace.’AttheheartofthepoliticalconflictsinBougainville,NewCaledoniaandWestPapuaisthequestforself-determination,withindigenousnationalistmovementsasserting

theirrighttosovereigntyand,insomecases,politicalindependence.

Thewhitepaperissilentonthisissueofjusticeandpeace:thewords‘stability’and‘instability’appeardozensoftimesinthetext,butthere’snomentionof‘humanrights’or‘self-determination.’Yettheseissuesunderlieongoingtensionswhichmayagaineruptintoarmedconflictincomingyears.Forexample,thewhite

papermakesoneglancingreferencetopastADFandAFPdeploymentsinBougainville,aspartofpeace-buildingoperationsafterthe1990sconflict,butthere’snodiscussionofwhatwillhappentoBougainvilleasitreachestheendofadecade-longtransitionafterthe2005electionofanautonomousgovernment.ThetransitionfromautonomytoanewpoliticalstatusinbothBougainvilleandNewCaledoniawillculminatein2015-16,yetthecentralissueofAustralia’sroleinsupportingapeacefulvoteonself-determinationinthesenationsisnotmentionedinthewhitepaper(or,indeed,inanyothermajorpolicydocumentsontheregion).

ThewhitepaperisalsosilentonhumanrightsabusesbytheIndonesianmilitaryinWestPapuaandthebroaderissueofWestPapuanself-determination,yettheexperienceofTimorLestehighlightsthecriticalimportanceofengagingwiththeseissues.ThereisgrowinginternationalconcernoverthefuturepoliticalstatusofWestPapua.WhilesomePacificcountriessuchasVanuatuandNaurusupporttheWestPapuannationalistmovement,othermembersofthePacificIslandsForum–likeAustraliaandPapuaNewGuinea,concernedoversecurityandborderissues–stresstheirsupportforIndonesiansovereigntyoverWestPapua.

RegionalForumleadersmeetingshavecalledforanendtomilitaryhumanrightsabusesintheprovincesofPapuaandWestPapua,whilewelcomingthe2001specialautonomylawwhichoutlinesthetransferofgreaterpowersandfinancefromJakartatothelocaladministrationinJayapura.ButthishasnotendedabusesbyIndonesia’sarmedforces.InternationalhumanrightsgroupssuchasAmnestyInternationalandHumanRights

Creating peace and security in island communities involves more than disarming militias or criminals…

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WatchhaveissuednumerousreportsdocumentingongoingabusesbyIndonesia’seliteSpecialForcesunitKopassusandtheBRIMOBparamilitarypoliceforce.

Humanrightstrainingandcapacity-buildingforpoliceandmilitaryforcesinIndonesia,PapuaNewGuinea,andotherregionalneighboursneedstobeassessedbyrights-basedstandards.AsformerForeignMinisterGarethEvansnotedaboutAustralia’spasttrainingofIndonesia’smilitary:“Iamoneofthosewhohastoacknowledge,asAustralia’sforeignministeratthetime,thatmanyofourearliertrainingeffortshelpedonlytoproducemoreprofessionalhumanrightsabusers.”3

Human security and climate change in the Pacific

Forthefirsttime,theissueofclimatechangehasbeendiscussedinadefencewhitepaper.Unfortunately,thissignificantoccurrencedoesnotreflectashiftingovernmentfocusfrom‘nationalsecurity’to‘humansecurity.’

On3June2009,theUnitedNationsGeneralAssemblyunanimouslyadoptedaresolutionon‘ClimateChangeanditspossiblesecurityimplications.’Theresolution,proposedbyPacificislandgovernments,recognisesclimatechangeasapotentialthreattotheirnationalsecurityandcallsfortheUNSecurityCouncilandrelevantUNagenciestoinvestigatetheissue.

TheresolutionwashighonthePacificagendabecausemanypeoplefromlow-lyingatollnationsbelievethatclimatechangeisagreaterthreattonationalsecuritythanterrorism.InaSeptember2008statementtotheUNGeneralAssembly,VicePresidentoftheRepublicofPalauEliasCamsekChinargued:

“never before in all history has the disappearance of whole nations been such a real possibility. Palau and the members of the Pacific islands forum are deeply concerned about the growing threat which climate change poses not only to our sustainable development, but in fact, to our future survival. this is a security matter which has gone unaddressed.”

InAustralia,asoverseas,theclimateandsecuritydebatehasbeenflourishingamongsecurityanalystsandstrategicthinktanks,whichfocusonborderprotectionandthepotentialforconflictoverlandandresources.4

In2007,thenAustralianFederalPoliceCommissionerMickKeeltysparkeddebatewhenhearguedthatclimatechangewillturnbordersecurityintoAustralia’sbiggestpolicingissuethiscentury,“Intheirmillions,peoplecouldbegintolookfornewlandandtheywillcrossoceansand3 GarethEvans:‘Indonesia’sMilitaryCultureHastoBeReformed,’international Herald

tribune,24July20014 SeeAnthonyBerginandRossAllen(2008)the thin green line – climate change and

policing,inASPISpecialReportIssue17,AustralianStrategicPolicyInstitute;OxfordResearchGroup(ORG)An uncertain future – law enforcement, climate change and security,ORGBriefingPaper

borderstodoit.Existingculturaltensionsmaybeexacerbatedaslargenumbersofpeopleundertakeforcedmigration.Thepotentialsecurityissuesareenormousandshouldnotbeunderestimated.”

Thisissueishighlightedinthewhitepaper,whereactiononclimatechangeisseenthroughtheprismofbordersecurity:“Themaineffortagainstsuchdevelopmentswillofcourseneedtobeundertakenthroughcoordinatedinternationalclimatechangemitigationandeconomicassistancestrategies…Shouldtheseandotherstrategiesfailtomitigatethestrainsresultingfromclimatechange…andtheyexacerbateexistingprecursorsforconflict,theGovernmentwouldpossiblyhavetousetheADFasaninstrumenttodealwithanythreatsinimicaltoourinterests”(paragraphs4.63-4.64).

Arewetodefinepeopledisplacedbyglobalwarmingas“threatsinimicaltoourinterests”?Thisnarrowvisionofnationalinterestisafeatureofmuchofthesecuritydebate.The2009CopenhagenclimatenegotiationshighlightedthewideninggulfinclimatepolicybetweenAustraliaandSmallIslandDevelopingStatesinourregion.Australia’sinterests,astheworld’slargestcoalexporterandamajorexporterofuranium,clashwiththeprioritiesofPacificislandpeoples.

Theideathatlow-lyingatollnationsmayceasetoexistbecauseoflossofterritoryduetoenvironmentalcauses(ratherthanconflict)alsoraisesnewdilemmasininternationalhumanitarianlaw.Thegrowingawarenessoftheeffectofglobalwarmingonthesenationsprovidesanopportunityforustowidentheinternationaldebateaboutsecurity.Aspartofthisregionaldebate,Australiaurgentlyneedstoreducegreenhousegasemissions,workforalegallybindingverifiabletreatytoaddressglobalwarming,andredirectfundingforadaptationtoclimatechangetocommunity-basedinitiativesinvulnerablecountries.5

Thesilencesofthewhitepaper–onhumanrights,self-determinationandsustainabledevelopment–createanopeningforAustralianstojointheconversationonalternativevisionsofsecuritythataddresstheunderlyingcausesofconflictinourregion.

nic Maclellan works as a journalist and researcher in the Pacific islands. He has worked for many years with nuclear veterans and indigenous communities in the Pacific affected by nuclear testing, and has written widely on disarmament, human rights and the

environment in the Pacific islands. He is co-author of a number of books on nuclear issues in the Pacific.

5 FordiscussionofthetensionsbetweenAustralia’sclimatepolicyandthatofneighbouringSmallIslandDevelopingStatesseeNicMaclellan:‘Risingtides–respondingtoclimatechangeinthePacific,’social Alternatives,Vol28No4,2009,p8-13.

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4 Breaking promises on nuclear disarmament

Associate Professor Tilman Ruff, Chair, International Campaign to Abolish Nuclear Weapons (ICAN) (Australia)

Long drought, buoyed hopes… then disappointment

TheHowardgovernmentwasconsistentinitslackofinterestinnucleardisarmament.Whiletacitlycontinuingsupportformeasuressuchasanucleartestbanandatreatystoppingproductionoffissilematerialsforweapons,theHowardgovernmentechoedthepoliciesoftheUSGeorgeWBushadministration,undertooknosignificantinitiativesanddowngradeddepartmentalcapacityinnucleardisarmament.

WhentheRuddgovernmentcametooffice,therewasreasontohopeworkonnucleardisarmamentwouldreceiveamajorboost.ALPpolicysupportsaworldfreeofnuclearweapons(seebox)andoneofthelastforeignpolicyinitiativesofthepreviousLaborgovernmentwastheCanberraCommissionontheEliminationofNuclearWeapons(thefinalreportofwhichtheHowardgovernmentbasicallyburied).PriortoLabortakingoffice,RobertMcClelland,thenshadowforeignminister,becameconvincedthatanuclearweaponsconventionwasthebestwaytoeliminateandoutlawnuclearweapons.HetoldtheNationalPressClubthat,“[AnALPgovernmentwouldbe]committedtodrivingtheinternationalagendaforanuclearweaponsconvention.”

McClelland’scommitmentwasaccompaniedbyrepeatedstatementsbyMrRuddcommittingLabortoamoreactive,independentandmultilaterally-

engagedAustraliandiplomacyandaffirmingnucleardisarmamentasahighpriority.HespokeoftheparlousstateofthenuclearNon-ProliferationTreaty(NPT),andcommittedtoreactivatetheCanberraCommission.

UnfortunatelyMcClellanddidnotbecomeforeignministerand,despiteencouragementfromseniorpoliticalfigures,thenewgovernmentdidnotestablishaclearnucleardisarmamentprogramandadequatelyresourceanddriveitsimplementation.

Nevertheless,thegovernmentundertooksomecommendableactionsduringitsfirstyearinoffice.MrRuddwasthefirstservingAustralianprimeministertovisitHiroshima.Hewasclearlymovedbytheexperienceandon9June2008wroteinthevisitors’bookatHiroshimaPeaceMemorialPark,“Lettheworldresolveafresh,fromtheashesofthiscity,toworktogetherforthecommonmissionofpeaceforthisAsia-Pacificcentury,andforaworldwherenuclearweaponsarenomore.”

Onthesameday,MrRuddannouncedthe(hastilyprepared)establishmentofanInternationalCommissiononNuclearNon-ProliferationandDisarmament,co-chairedbyformerAustralianforeignministerGarethEvans.Japansubsequentlyjoinedthisinitiative.TheCommission’spurposeistohelpreinvigoratenucleardisarmamentefforts,inparticulartoworkforagoodoutcomeatthefive-yearlyReviewConference(RevCon)oftheNPTinMay2010andtobuildpoliticaltractionforabolishingnuclearweapons.Thefirstmajorreport

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oftheCommissionwaslaunchedinDecember2009.WhilethegovernmenthasyettoformallyrespondtotheCommission’sreport,itsrecommendationsprovidedabasisforthejointAustralia-JapanpackageofmeasuresproposedfortheNPTRevCon.Unfortunatelyhowever,themeasuresproposedfallshortofthoserecommendedbytheCommission,particularlyinfailingtoinclude‘nofirstuse’ofnuclearweapons.Infact,thepackagedoesnotsubstantiallyextendthedisarmamentandnon-proliferationcommitmentsagreedatthe1995and2000RevCons.Noristhereanythingnewinthepackageonwhatnuclear-alliedstateslikeAustraliaandJapanshoulddotowardseliminatingtheroleofnuclearweaponsintheirsecuritypolicies.

AfurtherpositiveactionwasthePrimeMinister’sOctober2008requesttotheparliamentaryJointStandingCommitteeonTreaties(JSCT)toconductawide-ranginginquiryintohowAustralia’sroleinnuclearnon-proliferationanddisarmamentmightbemademoreeffective.Thiscross-partycommittee,chairedbyKelvinThomson(ALP),issueditsunanimousreportinSeptember2009,concluding,“Itistimeforconcrete,demonstrableactiontobreakdownthecurrentinternationalstalemateandachieveaworldwithoutnuclearweapons.”Iturgesthegovernmenttodeliveronitspromisetoworkforaglobaltreatytoabolishnuclearweapons.

Thegovernment’sFebruary2010responseto

theJSCTrecommendationshasbeendisappointingandimpedesratherthanbuildsinternationalmomentumonnucleardisarmament.Onanuclearweaponsconvention,itsaid,“Thegovernmentisfirmlycommittedtoaworldfreeofnuclearweaponsandrecognisesthatatanappropriatetime,theinternationalcommunitymayneedtoexplorepossiblelegalframeworks,includingaNuclearWeaponsConvention,fortheeventualabolitionofnuclearweapons.Itnonethelessseesthisasalong-termgoal.”Thismissestheopportunitytoutilisecross-partysupportandgrowinginternationalmomentumonthisvitalglobalissue.Thegovernment’slanguageisqualifiedtothepointofmeaninglessnessandputsAustralianleadershipandworkforanabolitiontreatyoffthetable.Australia’sstatementtotheUNDisarmamentCommissioninMarch2010didnotmentionanuclearweaponsconvention.

Thegovernmentwouldhavewidespreadpublicsupporttoreducethewideninggapbetweenitsrhetoricanditsactionsonnuclearweapons.The2009LowyInstitutePollfoundthat75percentofAustraliansagreedthatnucleardisarmamentshouldbeatoppriorityfortheirgovernment.Yetthetop-upsinthe2009-10budgetforDFAT($26million)andtheCommission($9.2million)areminisculecomparedwiththe$4billionincreaseinthedefencebudgetfromthepreviousyear.TheoverallannualDFATbudgetof$1.2billionisalreadyapoorcousin

ALP positions on nuclear disarmament

Shadow Foreign Minister Robert McClelland:“Ultimatelythequestiontobeaskedisnotwhythereshouldbeanuclearweaponsconventionbutwhytheinternationalcommunityhasnotyetagreedtostartnegotiatingone.Inthatrespect,Australiahasbeenmissingfromtheinternationalplayingfieldforfartoolong.Thereisnomoreimportantissuetointernationalsecuritythannuclearnon-proliferationanddisarmament.Australiahaspreviouslyhadanexcellentrecordofachievementinthisarea.ARuddLaborGovernmentwillonceagaintakeupthecause.” — speech to un Association of Australia and MAPW, Canberra, 14 August 2007

“[AnALPgovernmentwouldbe]committedtodrivingtheinternationalagendaforanuclearweaponsconvention.” —speech to national Press Club, 15 november 2007

Senator John Faulkner:“Thegovernmentsupportsexplorationofpossiblelegalframeworksfortheeventualabolitionofnuclearweapons,includingatanappropriatetimethepossibilityofnegotiationofanuclearweaponsconvention.…TheGovernmentseesthenegotiationofapossiblenuclearweaponsconventionasalonger-termgoal.”

— reply to senate Question on notice, 12 february 2008

ALP National Conference 2009:“Notingthatthe2009DefenceWhitePaperenvisagescontinuedAustralianrelianceonextendednucleardeterrenceprovidedbytheUnitedStatesto2030andbeyond,andthatsubstantialprogresstowardsandpotentiallyachievementofaworldfreeofnuclearweaponsisfeasiblewithinthattimeframe,LaborcommitstoensurethatAustralia’sdefencepolicydoesnotimpede,butratheranticipatesandsupportstheachievementofaworldfreeofnuclearweapons.”

— A world free of nuclear weapons, AlP national Conference resolution, 2009

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to2009-10militaryspendingof$26.6billion,andthedisparityisincreasing.

The white paper and nuclear weapons

Doesthewhitepaperalignwiththegovernment’sstatedcommitmenttoaworldfreeofnuclearweapons?DoesitreducetheroleofnuclearweaponsinAustralia’ssecuritypolicy,asweregularlycallonnuclear-armedstatestodo?DoesitarticulateapathtowardsremovingnuclearweaponsfromanyroleinAustralia’salliancerelationships,andfacilitateprogresstowardstheeliminationofnuclearweapons?DoesitprovideclearsupportforPresidentObama’svisionforUSleadershiptowardsaworldfreeofnuclearweapons?DoesitpromoteconstructiveengagementwithourneighbourstostrengthentheSouthPacificandSoutheastAsianNuclearWeaponFreeZonesandencouragecollaborativeactiontoadvancenucleardisarmament?Doesitrecognisetheintertwinednon-militaryaspectsofhumansecuritywhicharesharedacrossnationalborders?Onallthesereasonableexpectationstheanswerisno.

Thewhitepaperstatesthat,“WithinthetimeframeofthisWhitePaper,theUnitedStateswillcontinuetorelyonitsnucleardeterrentcapability…”andclaimsthatUSextendeddeterrenceprovidesakeydefenceagainsttheproliferationofweaponsofmassdestruction.Inreality,thefailureofnuclear-armedstatestodisarmisthemajordriverofproliferationandcauseofthedailyuniversalthreatofnuclearannihilation.Thepaperconfirms“thevaluetoAustraliaoftheprotectionaffordedbyextendednucleardeterrenceundertheUSalliance,”which“providesastableandreliablesenseofassurance.”Whatdoesthismean?Itmeansawillingnesstocountenanceandcontributetotheuseoftheworld’sworstweaponsofterror.Awillingness,ultimately,tothreatenandincineratemillionsofpeople,anddevastateandradioactivelycontaminatevastareasofland,placingallofusinjeopardy.Itmeanswearepartoftheproblemmorethanthesolution.

Nucleardeterrence,atitscore,isapledgetoinflictcatastrophicnuclearretaliation.Wenowknowthattouseevenatinyfractionoftheworld’scurrentnucleararsenalwouldproduceaglobalclimaticcatastrophethatwouldmakeanysuchusenotonlyacrimeagainsthumanity,butsuicidal.AcountrylikeAustraliathatreliesuponaproxynucleararsenalismakingaFaustianbargain.Fornothingmorethananunenforceablepromisethat

our‘protectorstate’mayretaliateuponmillionsofinnocentpeopleonourbehalf,wemakeourselvesatargetfornuclearweapons,putourfateinthehandsofothers,andforfeitourmoralstatureasastatefreeofnuclearweapons.Thispositionincreasesthewaysandplacesinwhichanuclearwarmightstart.ItalsomakesoursecurityhostagetonuclearsecurityandrestraintinRussia,China,andNorthKorea;andaddstotheriskofnuclearwarthroughtechnicalfailure,humanerror,madness,malice,inadvertence,terroristinfiltrationorcyberattack.

Thewhitepaperdoesnotconsidertheprospectthatsubstantialdisarmament,evenabolitionofnuclearweapons,ispossibleby2030.EventheInternationalCommission’s“hard-headed,pragmatic”incrementalapproachenvisagestheachievementofapre-abolition“minimisationpoint,”by2025.TheabolitionproposalputbyMikhailGorbachevtoRonaldReaganduringtheir1986Reykjaviksummitenvisagedatimeframeoffifteenyears.

ThemodelnuclearweaponsconventiondraftedbytheInternationalAssociationof

LawyersAgainstNuclearArms,theInternationalNetworkofEngineersandScientistsAgainstProliferation,andInternationalPhysiciansforthePreventionofNuclearWarwasupdatedin2007andiswidelyregardedasthemostdetailedmodelforhowthecomprehensivelegalarchitecturenecessarytoabolishnuclearweaponsmightlook.ItisthecentrepieceofthefirstelementofUNSecretary-GeneralBanKi-moon’s2008planfornucleardisarmament.Themodelconventionenvisagesaphased,verifiedprocessoverfifteenyears.Bythattimeframe,andallowingfiveyearsfortheconventiontobenegotiated,theeliminationofnuclearweaponscouldbeimplementedin2030.TheGlobalZerocampaign,includingmanygloballeaders,suchastheCommissionco-chairs,alsoenvisagesa‘globalzeroaccord’negotiatedbetween2019and2023,providingthebasisfortheeliminationofnuclearweaponsby2030.

Thewhitepaperfailstorecognise,letalonecontributeto,thepossibilityofsubstantialprogresstowardsnuclearweaponsabolitionby2030.Overthenextfewyears,itislikelythateithersubstantialprogresstowardsabolitionwillbemade,orincreasingproliferationwillaccelerateourslidetowardstheinevitableeventualuseofnuclearweapons.Agrowingchorusofinternationalleaders,includingfrommostnuclear-armedstates,iscallingforaworldfreeofnuclearweapons.Forthefirsttime,aUSpresidenthasbeenelectedwithanexplicitplantowardsanuclearweaponfree

In reality, the failure of nuclear-armed states to disarm is the major driver of proliferation and cause of the daily universal threat of nuclear annihilation.

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world.Forthefirsttime,theUNSecurityCouncilhasunanimouslyendorsedthesamegoal.Forthefirsttimeintwodecades,RussiaandtheUSarenegotiatingbindingverifiablereductionsinnuclearweapons.WehavenowthebestopportunitysincetheendoftheColdWartomakedecisiveprogressinriddingtheworldofnuclearweapons.Thewhitepapercouldhavemadeapositivecontributionbyanticipatingandpreparingforaworldfreeofnuclearweapons.InsteaditcontradictsandunderminesAustralia’sstatedcommitmenttonucleardisarmament.

Afurthercriticaldeficiencyofthewhitepaperisthatitmakesnodistinctionbetweenthenuclearandnon-nuclearaspectsofAustralia’salliancewiththeUS.Deterrencedoesnothavetobenuclear.Asfoundbyrepeatedparliamentaryassessmentsinrecentdecades,thereisnoconceivablemilitarythreatAustraliafacesthatcouldnotbemetbythecombinedconventionalmilitarycapacityofAustraliaanditsallies.

AnelementinthewhitepaperwhichdemandscommentistheassertionthattheextendednucleardeterrenceprovidedbytheUS“hasovertheyearsremovedtheneedforAustraliatoconsidermoresignificantandexpensivedefenceoptions”(paragraph6.34).ThiscouldreasonablybeinterpretedasaveiledthreatthatwithouttheUSnuclearumbrella,Australiamayneedtoacquireitsownnuclearweapons.Thisisstronglycounterproductive,potentiallystimulatingmilitarybuild-upandnuclearproliferationinothercountries,furtherunderminingthesecurityofAustralians.

Australiansecuritycanbestbepromotedbyresolvingregionaltensionsandworkingwithotherstoaddresstheurgentsharedhumansecuritychallengesweface–thecontinuedexistenceofnuclearweapons,climatechange,resourcedepletion,povertyandinequity,disease,disastersandhumanrightsabuses.TheseshouldbetheprimepurposeofAustralianforeignanddefencepolicy.

How can Australia contribute to freeing the world of nuclear weapons?CountrieslikeAustraliathatarealliedwithnuclear-armedstatesshouldmakecleartheirsupportfortheabolitionofnuclearweaponsandremoverelianceonnuclearweaponsbyplanningforsecurityarrangementsinwhichnuclearweaponshavenoplace.ThisissomethingonwhichAustraliaandJapancouldusefullycooperate.

AustraliashouldensurethatAustralianfacilitiesandpersonnelcouldnotknowinglyorunknowinglyparticipateinorcontributetotheuseofnuclearweapons.

Currentstocksoffissilematerialsthatcanbeusedtomakenuclearweaponsarevastandwidelydispersed.Freeingtheworldofnuclearweapons

requiresceasingproductionof,securingand,wherepossible,eliminatingthesefissilematerials.Thiscouldbeachievedmorequicklyandreliablyifnuclearpowerwerephasedout.Whilenuclearpowercontinuestobegenerated,Australiashouldreverseitscurrentprioritisationofshort-termnarrowcommercialinterestsovernon-proliferation.ThegreatestcontributionAustraliacouldmaketonon-proliferationwouldbetoceasemininguranium.

Whileuraniumisminedandexported,thereareanumberofmeasuresAustraliacouldadoptinrelationto‘Australianobligatednuclearmaterial’(AONM)whichwouldsubstantiallyreducethepotentialforAustralianuraniumtocontributetonuclearweaponsproliferation.Australiashould:withdrawapprovalforspentnuclearfuelcontainingAONMtobereprocessedtoextractplutonium;applysafeguardsonmineduraniumoreratherthanonlyfromtheenrichmentstage;requirethatAustralianuraniumbeenrichedonlyinfacilitiessubjecttothehighestlevelofinternationalcontrol;andceaseexportinguraniumtocountrieswithnuclearweapons.

Allgovernmentsshouldnowbegincollaborativeworktonegotiateacomprehensivetreatytoabolishnuclearweapons.Australia’sSouth-EastAsianandPacificneighboursarenaturalpartnersforthiswork.Thereisagoodbasisforcross-partysupportonthisissueasanuclearweaponsconventionwasrecommendedunanimouslybytheall-partyparliamentaryJointStandingCommitteeonTreaties,whichalsorecommendedthatthegovernmentallocateresourcestothedevelopmentofaconvention.Achievingthiswillrequirestrongerpoliticalleadershipthanhasbeenshownsofar,andalsoasubstantialincreaseinthedisarmamentcapacitywithinDFAT.

ThewhitepapermakesAustraliansandtheworldlesssecure.Itshouldbecomprehensivelyrevised.Ratherthancoweringunderanuclearumbrellawhichmakesusanucleartargetandpotentialaccompliceinnuclearweaponsuse,ourdefencepolicyshouldalignwithastrongcommitmenttoaworldfreeofnuclearweaponsandaclearplanofactionforhelpingbringthisabout.

tilman ruff is Chair of the international Campaign to Abolish nuclear Weapons (iCAn), a Board member of iPPnW, past president of MAPW (Australia), and an ngO adviser to the Co-Chairs of the international Commission on nuclear non-Proliferation and

disarmament. An infectious diseases and public health physician, he is associate professor in the nossal institute for global Health, university of Melbourne.

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5 War, the environment, and the defence white paper

Dr Bill Castleden, Doctors for the Environment Australia and Dr Sue Wareham oam, former President, Medical Association for Prevention of War (Australia)

INTHETWENTY-FIRSTcentury,notionsofsecuritymustincorporateenvironmentalsecurityasakeyfeature.Withthepossible

exceptionofdevastationbynuclearweapons,theoverwhelmingthreatstohumansurvivalareclimatechangeandotherformsofenvironmentaldestruction.Formanyoftheworld’speople,theseenvironmentalfactorsthreatentotipthebalancefrommarginalsurvivaltowardsnon-survival,aggravatingthealreadyunconscionableinequitiesthatdividethehavesandhave-notsofthisworld.NorcanAustralia’senvironmentremainimmunetotheeffectsoftheseunprecedentedupheavals.

The2009defencewhitepaperanditsrecommendationspaidgrosslyinadequateattentiontothiscoresecurityissue.Australia’sever-increasingfocusontheuseofmilitarystrategiestoaddressglobalproblemsandourconcurrentrisingdefencebudgetsaredistractingusfromafundamentalandcriticalneedtoresolvetheseenvironmentalthreats.Warandourpreparationsforithastentheearth’sdegradation,depleteour

resources,andcontributetoclimatechange,furthererodingoursecurity.Resolvingtheworld’s(andourown)pressingenvironmentalissueswould,incontrast,greatlyenhanceoursecurity.Thisworkshouldbegivenhigherpriorityingovernmentpolicymaking,includingmilitarypolicymaking.

Climate change as a driver of war

Itisincreasinglybeingrecognisedthatclimatechange,ifnotadequatelyaddressed,willleadtoworseningglobalviolenceandinstability,boththroughclimatestressanddrought,andhumancompetitionforwaterandfood.1TheAsia-Pacificregionislikelytobeseverelyaffected,particularlybyinundationoflow-lyingislandsanddenselypopulatedpartsofBangladesh.Inits2007report,A Climate of Conflict: the links between climate change, peace and war,InternationalAlertidentifiedforty-sixcountries–hometo2.7billionpeople–in1 Seeforexample:ButlerCD(2005),‘Inequalityandconflict’,inGoldieJ,Douglas,RM,

Furnass,B(Eds),in search of sustainability,Melbourne,CSIRO.p33-48

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whichtheeffectsofclimatechangeinteractingwitheconomic,social,andpoliticalproblemswillcreateahighriskofviolentconflict.Indonesiaisoneofthem.Overwhelmingly,thecountriesonthelistarenotthemselvesthedriversofclimatechange.

Theproblemofresourcedepletion,goinghand-in-handwithclimatechange,wasdetailedalsobytheUNEnvironmentProgram(UNEP)inits2009reportfrom Conflict to Peace Building: the role of natural resources and the environment. The reportstatedthat,“Thepotentialconsequencesofclimatechangeforwateravailability,foodsecurity,prevalenceofdisease,coastalboundaries,andpopulationdistributionmayaggravateexistingtensionsandgeneratenewconflicts.”Since1990,thereportsaid,atleasteighteenviolentconflictshavebeenfuelledbytheexploitationofnaturalresources,includingfertileland,water,and“highvalue”resourcessuchasdiamonds,gold,timber,mineralsandoil.Aspopulationsincreasethereissignificantpotentialforsuchconflictstointensifyincomingdecades.

ThesignificanceofthisissueisunderlinedbythefactthatthePentagon–somewhatironically,giventhatitisasignificantcontributortoclimatechange,asdescribedbelow–istakingitseriously,althoughnotnecessarilyforthesamereasonsas,say,thepeopleofthePacificislandsorthoseindrought-strickenAfricancountries.PentagonchallengesincludethefactthatthejointBritish-AmericanmilitarybaseontheislandofDiegoGarciaisonlyafewfeetabovesealevel.JohnBroder,writinginthenew York times on9August2009,saidthattheUSDepartmentofDefenceisusingclimatemodellingbasedonsophisticatednavyandairforceweatherprogramsandUSgovernmentclimateresearchprogramsatNASAandtheNationalOceanicandAtmosphericAdministrationtomodellikelysea-levelchanges,rainfallpatterns,andeffectsonfoodsecurity.

AccordingtotheUNEPreportnoseriousdiscussionofcurrentoremergingthreatstosecuritycantakeplacewithoutconsideringtheroleofnaturalresourcesandtheenvironment.Bythiscriterionthen,Australia’slatestdefencewhitepapercannotbeconsideredaseriousdiscussionofemergingsecuritythreats,foritsattentiontoenvironmentalmattersisscant.Afewparagraphsaddressing“NewSecurityConcerns:ClimateChangeandResourceSecurity”inadocumentofnearly140pagesislittlemorethanlipserviceto

loomingenvironmentalchanges.The“newsecurityconcerns”sectionofthe

paperacknowledgesthat,“Changingclimatepatterns,combinedwithboomingpopulationgrowth,willsharpencompetitionforscarcefood,waterandenergyresourcesinmanypartsoftheworld,particularlyinAfricaandtheMiddleEast.”Yetthepaperdownplaysthesignificanceofthisfortheforeseeablefuture,statingthat“large-scalestrategicconsequencesofclimatechangeare,however,notlikelytobefeltbefore2030.”WhetherthisexpectedlackofstrategicconsequencesofclimatechangeappliesonlytoAustraliaorglobally

isnotspecified.Thewhitepaperacknowledges

thatclimatechangemitigationmeasures,economicassistancestrategies,andinternationalactiontoensureenergysupplyanddistribution,shouldallbeattheforefrontofAustralia’spolicyresponses.Thisisimportantrecognitionoftheneedforthesemeasures.However,asmentionedbyNicMaclellaninChapter3,thewhitepaperaddsthatthegovernment“wouldpossiblyhavetouse”theAustralianDefenceForce(ADF)todealwithany“threatsinimicaltoourinterests”(whateverthatmightmeaninpractice).MaclellanalsonotesthecommentsofformerAustralianFederalPoliceCommissionerMickKeeltyonthe‘policing’implicationsoflarge-scalemovementsofpeoplefleeinguninhabitableenvironments.

Thesamethemewasaddressed,somewhatmorecrassly,bySenatorBillHeffernan

inOctober2007,whenhecalledfornorthernAustraliatobepopulated,lestitbeinvadedbyAsians.“Partsofthecountrywouldappealtopeoplewhohadnothing,”hesaid,referringtotheprospectofrisingsealevelsleavingmillionsofpeopleinourregionandbeyondhomeless.Whilethesenator’ssolutionforclimaterefugeesisunlikelytoreflecttheviewofamajorityofAustralians,itreinforcedthefortressapproachhintedatbythewhitepaper.

Suchanapproachraisestroublingethicalimplications.Asweareoneoftheworld’shighestpercapitacarbonemitters,ourpoliciesshouldstartfromtheunderstandingthatmillionsofourneighboursarethreatenedbyclimatedisastersnotoftheirmaking.ManywouldseeAustralia’sclearresponsibilitybeingtodrasticallyreduceourowncarbonemissions,todoallthatispossibletoensurecoordinatedactionforglobalreductions,andtobaseourtreatmentofclimaterefugeesonprinciplesofjustice,notprinciplesofisolationism.

With the possible exception of devastation by nuclear weapons, the overwhelming threats to human survival are climate change and other forms of environmental destruction… The 2009 defence white paper … paid grossly inadequate attention to this core security issue.

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OneofPrimeMinisterRudd’sfirstactionswhenelectedin2007wastosendthenewmembersofhisgovernmentoutintothestreetsandshelterstolearnwhatit’sliketobehomeless.Perhapsgovernmentmemberselectedin2010shouldreceive a trip to Tuvalu.

War as a contributor to climate change

Buildingandmaintaininglargearmedforcesandtheirassociatedweaponry,themachinesofmodernwarfare,servetoaddfueltotheclimatechangefireandfurtherdepletefiniteresources.Theworld’smilitariesaresignificantdirectcontributorstoclimatechange.Navalships,combataircraft,landtransportforhundredsofthousandsoftroops,andtheprovisionandtransportoftheinfrastructuretocareforthem,areallenergy-intensive.Manyofthetoolsofwarfare,suchasexplosionsandfire,alsoemitcarbon.Asjustoneexample,thecurrentmodelAbramstankusedbytheADFmoveslessthanonemileforeverygallonoffuelused,translatingtomorethan235litresper100kilometres.2

TheUSmilitaryisthebiggestpurchaserofoilintheworld.3 InAugust2008,thediplomat magazinequotedJimBartis,aseniorpolicyresearcherwithRANDCorporation,whosaid,“Our[US]DefenseDepartmentusesabout350,000barrels[55millionlitres]offueladay.”(BartisalsomentionedthatasanationtheUSaccountsforalmostaquarteroftheentireworld’soilconsumption.)MichaelKlare,ProfessorofPeaceandWorldSecurityStudiesatHampshireCollege,Massachusetts,statedinanarticle‘ThePentagonvPeakOil’whichappearedontheMotherJoneswebsite(14June2007)thattheUSusesmoreoilannuallyinitscombatoperationsinIraq,Afghanistanandthesouth-westAsianregionthanthatusedbythewholeofBangladesh,withits150millionpeople.A2007study4orderedbythePentagonfoundthatthemilitaryinIraqandAfghanistanareusingsixteentimesmorefuelpersoldierthanthatusedinWorldWarII.

InrelationtotheAustralianmilitary’senergyusage,PaulMalone,writinginthe Canberra times on9June2007,reportedthatourdefenceestablishmentsandoperationsaccountforalmost

2 Turse,Nick(2008)‘TheMilitary-PetroleumComplex,’inforeign Policy in focus,26March2008

3 http://energybulletin.net/node/13199bySohbetKarbuz,formerheadofnon-OECDenergystatisticssectionoftheInternationalEnergyAgency(Paris)

4 transforming the Way dod looks at energy,byUSconsultingfirmLogisticsManagementInstitute

three-quartersoftotalfederalgovernmentenergyuse.AnswersbyAirChiefMarshalHoustoninSenateEstimateson25February2009,inresponsetoquestionsfromSenatorScottLudlam(AustralianGreens),indicatethatAustralianmilitaryfuelusageisapproximately420millionlitresannually.HoustonalsoconfirmedthattheDefenceDepartment’scarbonfootprintisnotmeasured.

Other environmental impacts of war

Warsnotonlykillandmaimhumans,theyareaccompaniedbyenvironmentaldestruction.The

world’smilitariesaremajorperpetratorsofenvironmentalharm,overandabovetheircarbonemissions.

TherecentwarinIraqprovidesadramaticexample.AReutersreporton27October2008quotedIraqiEnvironmentMinisterNermeenOthmanassaying:“TheenvironmentalcatastrophethatweinheritedinIraqisevenworsethanitsounds.Wardestroyscountries’environments,notjusttheirpeople.Waranditseffectshaveledtochangesinthesocial,economicandenvironmentalfabric.ItwilltakecenturiestorestorethenaturalenvironmentofIraq.”Thereportsaidthatin2010Iraqhasbeenleftwith25millionlandmines.Italsodrewattentiontothelargequantitiesofdepleted

uranium(aby-productofuraniumenrichmentthatisusedtomanufactureconventionalmunitions)whichiscausinglowlevelradioactivecontaminationofaffectedareas.Morethan 60 percentofIraq’sfreshwaterispolluted.Bomb-damagedfactorieshavecontaminatedthesoil,whileforestsinthenorthandpalmgrovesinthesouthwereflattenedtoremovehidingplaces.Thelandisstrewnwithunexplodedbombs,chemicalwaste,rubble,andtrash.

TheMiddleEasthassufferedrecurringenvironmentalcatastrophesbroughtaboutbywarfare.Duringthe1991GulfWar,SaddamHussein’sforcesdeliberatelysetfiretoapproximately600oilwellsacrossKuwaitandspiltfourmillionbarrelsofoilintothePersianGulf(‘BewareanEcologicalCatastropheinIraq,’international Herald tribune,13December2002).In2006,Lebanon’sbeacheswereblackenedbyoilfromstoragetankshitbyIsraelibombing(Black Beaches in lebanon,http://dahrjamailiraq.com,29 July2006).

War’stoxiclegacyisseeninmultipleothersitesaroundtheglobe.OneoftheworstexamplesisVietnam,wheredioxinfromtheapproximatelyeightymillionlitresofAgentOrangesprayedover

Wars not only kill and maim humans, they are accompanied by environmental destruction. The world’s militaries are major perpetrators of environmental harm, over and above their carbon emissions.

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theenvironmentbetween1962and1971continuestotakeaheavytoll.LargeareasofthecountryarestillcontaminatedandtheVietnamesegovernmentestimatesthathundredsofthousandsofchildrenhavebeenbornwithbirthdefectsasaresult(‘Vietnam’sPoisonousLegacy,’Canberra times,9 April2006).

Closertohome,national geographic reportedin2008thatthefloorofthePacificOceanisstrewnwiththewrecksof3,700WorldWarIIvessels,ofwhichabout330werefueltankers(althoughestimatesofthenumberofWorldWar11shipwrecksinthePacificvary).Atleastsomehavebeguntoleakintoenvironmentallyrichlagoons.Theyaretickingenvironmentaltime-bombs.

Theworld’smostdestructiveweapons,nuclearweapons,haveleftaradioactivelegacywherevertheyhavebeendevelopedandtested.Theiruseinwarfarecontinuestohangoverhumanityasacertaintyunlesstheyareabolished.Thedefencewhitepapervirtuallyignoresthefar-reachingimplicationsofAustralia’spositionundertheUSnuclear‘umbrella’(discussedindetailinchapter4),butitissurelytimeforAustraliatorejecttheideathatnuclearweaponsofferusany‘defence.’

Diversion of resources

Governmentspendingisalwaysconstrained,andAustraliaisfacedwiththeneedtofinanceanumberofmajorenvironmentalmeasures.Theyincludethefurtherdevelopmentandimplementationofrenewableenergies,energy-savinginitiatives,and‘feed-in’tariffs(incentivesforconsumerstouserenewableenergysourcesinthehome),whichareonlytangentiallycoveredinthegovernment’stwice-rejectedemissionstradingscheme.Restorationofourcountry’swaterwaysandotherremediationprojectsarealsourgentlyneeded.AsustainedreductionindefenceexpenditurewouldreduceAustralia’scarbonemissionsandreleasefundsforinvestmentintheseessentialareas.Greaterassistanceforclimatechangeadaptationstrategiesforneighbouringcountriescouldalsobeprovided.

Suchexpenditureswoulddofarmoretosecureourfuturethananincreasedmilitarybudget.

Recommendations

• Environmentalsecurity–national,regionalandglobal–shouldberecognisedasoneofthemostfundamentalrequirementsinAustralia’sdefenceandsecurityplanning.

• FarstrongeractionsshouldbetakenbytheAustraliangovernmenttodrasticallycutourcarbonemissionsandpromotesuchreductionsglobally,andtoprovideassistancetothevictimsofclimatechange,bothwithinandoutsideAustralia.

• Australia’smilitarybudgetshouldbereducedtohelpprovidethenecessaryfundsforsuchmeasures.• Theuseofarmedforcetorepel

climaterefugeesfromAustraliashouldplaynopartinourresponsetoclimatechange.

• ADFactivitiesshouldbesubjecttocarbonauditing.

• NuclearweaponsshouldnotplayanypartinAustralia’sdefence.

Bill Castleden is former Associate Professor of surgery at the university of Western Australia and

Head of Vascular surgery at fremantle Hospital. treating victims of two irA bombings in london confirmed his abhorrence of violence and he joined MAPW when it was formed in 1981. Bill retired in 1998 and became active in environmental work forming doctors for the Preservation of Old growth forests in WA and becoming a founding member of doctors for the environment Australia. He served as deA’s Chair from 2003-2008.

dr sue Wareham’s biography appears at the end of chapter 8.

Environmental security – national, regional and global – should be recognised as one of the most fundamental requirements in Australia’s defence and security planning.

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6 Human security: how do we achieve it?

Steph Cousins,Humanitarian Advocacy Coordinator, Oxfam Australia

HUMANSECURITYisaboutputtingpeople,ratherthanstates,atthecentreofdecisionsaboutsecurity.Theindependent

CommissiononHumanSecurity,launchedatthe2000UNMillenniumSummit,definedhumansecurityastheprotectionofthe“vitalcoreofallhumanlivesinwaysthatenhancehumanfreedomsandhumanfulfilment…Itmeansprotectingpeoplefromcritical(severe)andpervasive(widespread)threatsandsituations.”

Humansecurityaroundtheworldisincreasinglyunderthreat.Notonlybecauseofviolenceandchronicstresses,butalsobecausegovernmentsandtheinternationalcommunityhavenotyetdevelopedthecapacityandwilltoliveuptotheirresponsibilitytoprotectciviliansinat-risksituations.Thischapterexploresourglobalresponsibilitytoproactivelybuildhumansecurity,examinesthechallengesfacinggovernmentsinlivinguptothisresponsibility,andproposesseveralwaysinwhichtheAustraliangovernmentcouldimproveitseffortsinadvancinghumansecurityaroundtheworld.

Current state of insecurityWhiletherehasbeenadeclineinthenumberofconflictssincetheendoftheColdWarthisis,regrettably,littlecauseforcelebration.Thethreatofnewwars,thefailureofprecariouspeacedeals,andthedestabilisingimpactofclimatechangeallcastdoubtonwhetherthisdeclinewillcontinue.The2008global Burden of Armed Violence report bytheGenevaDeclarationSecretariat,statesthatsince2005thenumberofconflict-relateddeathshasincreasedandhasbeenhighlyconcentrated:two-thirdsbeingduetoconflictinAfghanistan,Iraq,Pakistan,Somalia,andSriLanka.

Asthecornerstoneofinternationalhumanitarianlaw,the1949GenevaConventionsnotonlyprohibitdeliberateviolenceagainstcivilians,theyalsooutlawviolencewithanimpactoncivilianswhichisdisproportionatetothewarringparties’legitimatemilitaryobjectives.Yetmodernwarfare,conductedinincreasinglycomplexenvironmentswiththeinvolvementofmultiplestateandnon-stateactors,inflictsanunacceptabletolloncivilians.Today,90percentofthevictimsofarmedconflictare

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cleansing,andcrimesagainsthumanity,andagreeingthattheinternationalcommunityalsohasaresponsibilitytoactandassist.SeveralUNSecurityCouncilresolutionshavealsosoughttoclarifystates’internationalobligationstoprotectciviliansandvulnerablegroupsinarmedconflict,andurgedstatestoincreasetherepresentationofwomeninconflictmanagementactivities,usegender-sensitivetrainingwithinarmedforces,andadequatelyaddresssexualandgender-basedviolence.5

Thereisnowgreaterinternationalconsensusthatstateshavebothsovereigntyrightsandresponsibilities.TheAustraliangovernmenthasshownhigh-levelsupportfortheresponsibilitytoprotect(R2P)principle,evidencedin2009byitsestablishmentofthe$2millionAustralianR2PFundtoinvestininitiativestodeveloptheprinciple.

WhileengagementinhumanitarianandsecurityactivitiesissupportedbytheAustraliangovernment’snationalsecurityagenda,insofarastheseactivitiescanstrengthenournationalsecurity,6whatismissingfromgovernmentpolicydiscourseisaclearlyarticulatedcommitmenttoglobalsecurityasanaiminitself.Ifwearetoliveuptoourmoralandlegalobligations,Australiawillneedtoensurethatprotectionofciviliansistheoverridingpriorityinourresponsetoglobalconflictsandcrises.Wemustalsoactmorequicklytotacklethetrendsmakingpeoplevulnerabletocrisis,includingpovertyandinequality,climatechange,andarmsproliferation.

Adopting a human security approach

Thisapproachcanbebroadlycategorisedasahumansecurityframework.Humansecurityemphasisestheconstructionofsustainablelocalcapacitytodealwiththeoutbreakofwarandchronicstresses.Asapreventiveandpeace-buildingtool,itaimstoaddresstheunderlyingandstructuralcausesofconflict,inclosecollaborationwithlocalcommunities.

Whilehumansecuritycanbeinterpretedmorenarrowly,itismostusefulwhenappliedtoanysituationprovokingacombinationofdailyanxietyandrisk,vulnerability,disempowerment,andalackofbasicrights–suchasextremepoverty.Abroadhumansecurityapproachcandisrupttheinterconnectedcycleofpoverty,conflict,andarmedviolence.Toachievehumansecurityacombinationofprotectionandempowermentisnecessary:

effectiveandaccountablestatesshouldprotectcitizensfrominsecuresituations,whileindividualsshouldbeempoweredtoprotectthemselvesand5 SeeUNSecurityCouncilResolutions:1325(2000),1888(2009),1889(2009)on

WomenPeaceandSecurity;1612(2005),1261(1999),1314(2000),1379(2001),1460(2003),1539(2004)and1882(2009)onProtectionofChildreninArmedConflict;1265(1999),1296(2000),1674(2006),1894(2009)onProtectionofCiviliansinArmedConflict.Allavailablefromwww.un.org/documents/scres.htm

6 TheFirstNationalSecurityStatementtotheParliament:addressbythePrimeMinisterofAustralia,theHonKevinRuddPM,4December2008

civilians,ofwhich70percentarewomenandchildren.

Sexualattacks,particularlyagainstwomen,arebeingusedbothasaweaponandasa‘spoil’ofwar.In2007,OxfamGreatBritainaskedpeopleinseventeencommunitiesineasternDemocraticRepublicofCongo(DRC)aboutthethreatstheyfaced;fifteencommunitiesidentifiedsexualviolenceaskeyamongthem.IntheDRC’sprovinceofSouthKivu,74percentofrapistsarearmedfighters.1Womenaremostcommonlyattacked,butmenandboysarealsovulnerabletosexualviolence,particularlywhensubjectedtotortureanddetention.Violentdeathsoccurringinpost-conflictsettingsandduetohighlevelsofarmedcrimeandpoliticalviolencearealsoincreasing,witharound80percentofdeathscausedeitherdirectlyorindirectlybyarmedviolencehappeningoutsideoftraditionalconflictsettings.

Peoplelivinginpovertybearthebruntofwarandchronicviolence.Theworld’scurrentfortyorsoconflictsareconcentratedinareaswithhighratesofpoverty.Thisisnotcoincidental.AccordingtoOxfordUniversityProfessorofEconomicsPeterCollier,aspercapitaincomehalves,theriskofcivilwarroughlydoubles.2Itisnotsurprisingthen,thattheUNreportsthatatleasttwenty-twoofthethirty-fourcountriesleastlikelytoachievetheMillenniumDevelopmentGoalsareengagedin,oremergingfrom,conflict.Despitethis,theeconomiccostofconflictsisroughlytwiceasmuchastheworldhasspentoninternationalaidinrecentdecades.3 The cumulativeimpactofongoingpoverty,conflictandinternationalneglectisthathumaninsecurityisgrowing.

Our responsibility to promote global human security

Everypersonhasarighttobeprotectedfrommurder,rape,anddisplacement.The1948UniversalDeclarationofHumanRightspromisedeveryonetherightto“life,libertyandsecurityofperson”andtolivein“freedomfromfearandwant…”.Commonarticle1oftheGenevaConventionsprovidesthatstatesareresponsibleto“respectandensurerespect”fortheConventionsinallcircumstances,whichmeansthatallstates,whetherengagedinaconflictornot,“musttakeallpossiblestepstoensurethattherulesarerespectedbyall.”4

Atthe2005UNWorldSummit,governmentsforthefirsttimeextendedthisobligationbyendorsingtheir“responsibilitytoprotect”theirpopulationsfromgenocide,warcrimes,ethnic

1 GenderActionforPeaceandSecurity(2009),global Monitoring Checklist on Women, Peace and security,p57

2 PeterCollier,‘DevelopmentandPeace’inglobal future,firstquarter20033 PCollier(2007)the Bottom Billion: Why the poorest countries are failing and what can

be done about it,Oxford:OxfordUniversityPress,p324 InternationalReviewoftheRedCross,Common Article 1 of the geneva Conventions

revisited: Protecting collective interests,No.837,p67-87by LaurenceBoissondeChazournes,LuigiCondorelli.Seewww.icrc.org/Web/eng/siteeng0.nsf/html/57JQCP(accessed10March2010)

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theirfamilyfromrisksandtodemandthattheirbasicrightsaremet.

Politicising and militarising aid

InaspeechtotheOverseasDevelopmentInstituteinLondonin2009DonaldSteinberg,DeputyPresident,InternationalCrisisGroup,said:

“i start from the premise that the traditional dividing line between issues of hard national security and soft issues of human security have become hopelessly and permanently blurred. today, there are no ‘hard’ and ‘soft’ issues: crises no longer remain in their separate and distinct boxes…there is a broad and growing recognition among practitioners and theorists alike that conflict prevention, conflict resolution and post-conflict reconstruction form the bedrock of diplomacy and the promotion of international security interests around the world.”

Theseremarksunderscoreboththestrengthsandweaknessesofcouplinghumansecurityapproacheswithforeignpolicyagendas.Ontheonehand,itmakesasoundpoliticalcaseforensuringthatforeignpolicyagendasarealignedwiththesecurityofpeopleandtheircommunities.Howeverthiscanalsoleadtothepoliticisationandmilitarisationofaid,meaningthataidisusedasameansofadvancingamilitaryorpoliticalobjective.Thiscanunderminetheperceivedimpartialityandneutralityofhumanitarianactionandshrinkhumanitarianspace,withgraveconsequencesforaidworkersandbeneficiariesalike.A2010UNHCRreportnotesthat,“ThemostvividexampleofasituationwherethedistinctidentityofUNhumanitarianactorshasbeenfundamentallyunderminedisIraq,wheretheharnessingofUNsecurityarrangementstothepresenceofthemultinationalforcesbytheUNSecurityCouncilremovedallsemblanceofneutralityorindependence…and‘humanitarian’activitiesbecamepartofthecounter-insurgencystrategy.”7

ThisblurringofthelinesbetweenreliefandmilitaryrolesisalsoevidentinAfghanistan,anothertheatreintowhichtheAustralianDefenceForcehasbeendeployedunderaclearlystatednationalinterestagenda.8The2009defencewhitepaperopenlyacknowledgesthatincontextslikeAfghanistan,the‘interdependence’ofsecurityobjectivesand“broaderpolitical,humanitarian,economicanddevelopmentgoals,”substantiatestheneedfor“a‘whole-of-government’responseonthepartofmilitaryandcivilianagencies,extendingbeyondindividualagencyoperations,andintegratingsecurityandotherobjectivesintocomprehensivepolitical-militarystrategies”(paragraph2.26).Whatismissingfromthisanalysis7 VickyTennant,BernieDoyleandRaoufMazou,“Safeguardinghumanitarianspace:

areviewofkeychallengesforUNHCR”,UnitedNationsHighCommissionerforRefugees(UNHCR)PolicyDevelopmentandEvaluationService,February2010,p22

8 SeetheHonStephenSmith,MinisterforForeignAffairs,StatementonAfghanistantotheParliamentofAustralia,2February2010

isanacknowledgementofthesubstantiallyincreasedrisktociviliansthatariseswhenpursuingsuchanintegratedapproachincomplexandinsecureemergencycontexts.

TheUSArmy,inits2009Commanders’ guide to Money as a Weapons system: tactics, techniques and procedures,hasgoneevenfurtherinitsstarkendorsementoftheuseofaidasa“nonlethalweapon”inorderto“wintheheartsandmindsoftheindigenouspopulation[and]facilitatedefeatingtheinsurgents.”Thisapproachhasbeendestructive.ThereisincreasingevidencethatmilitarisedaidisputtingAfghanpeopleatthefrontlineoftheconflict.Forexample,researchofAfghanperceptionsoftheconflictfoundthatschoolssupportedorconstructedbymilitary-dominatedprovincialreconstructionteams(PRTs)wereperceivedbyAfghanstobeathigherriskofbeingattacked.9ThisperceptionissupportedbystatisticsshowingthatbetweenJanuaryandNovember2009,therewere613school-relatedsecurityincidents—almostdoublethenumberrecordedduringthesameperiodin2008.10Asoneaidworkersaid,“WetrytokeepPRTsawayfromourofficesanddonotinteractwiththembecauseitbringsthreatsfrominsurgentsandsuspicionfromourtargetcommunities.”11

Consistentwithahumansecurityapproach,OxfamInternationalhasmadestrongcallsforcommunitypeace-buildingtoincreasethecapacityofAfghancommunitiestoresolvetheirowndisputes,andbuildandsustainpeace.Oftenpeace-buildingapproachesrequiregovernmentstotakeastepbackandallowcivilsocietytodowhatitdoesbest–toworkatthelocalleveltopromotedialogueandnon-violentalternativestoconflict.

The 3Ds: Diplomacy, development and defence

Thetripartitepillarsofdiplomacy,developmentanddefencearefastbecomingintegraltoforeignpolicydiscourseamongtheworld’spowerfulnations.Nevertheless,thecurrentrealityinAustralia,andglobally,isthatmilitarysolutionstoconflictareoftengivenpriorityandsubstantiallymoreresourcesthandiplomacyanddevelopment.ThisisreflectedindefencespendingrelativetodiplomacyanddevelopmentinAustralia,althoughsubstantialgrowthintheAustralianaidbudgetwillhelpnarrowthedefence-developmentgap.(Thetotalaidbudgetfor2009-10was$3.8billion,arealincreaseover2008-09of5.6percent,ahighergrowthratethanthe3percentannualaveragerealgrowthallocatedtothedefencebudgetoutto2017-18.)Still,the

9 ActionAid,AfghanAid,CARE,ChristianAid,ConcernWorldwide,OxfamInternational,TroCaire,jointNGOreport,Quick impact, Quick Collapse: the dangers of militarised aid in Afghanistan,January2010

10 UNAMAHumanRights,Afghanistan Annual report on Civilians in Armed Conflict,2009

11 BritishAgenciesAfghanistanGroup,Aid and Civil-Military relations in Afghanistan (policy brief ), January2009

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FederalGovernment’s2009-10budgetcommitted$26.6billiontoDefenceandonly$3.33billiontoAusAIDand$1.99billiontotheDepartmentofForeignAffairsandTrade(DFAT).ThegapbetweentheDefenceandDFATbudgetsiswideninginrealtermsduetothedeclineinDFAT’soperatingbudget.

Since2001Australiahascommitted$600milliontoaid,capacitybuilding,andreconstructioninAfghanistan,yetin2009-10alonethegovernmentbudgetedmorethandoublethisamountforAustralia’smilitarycontributiontothecountry.The globalimpactofthisunbalancedprioritisationisstark:since2001theUSalonehasspent US$227billiononitsmilitaryoperationsinAfghanistan,whilealldonorstogetherhavespentlessthan10 percentofthisamountondevelopmentaidtoAfghanistaninthisperiod.12

Making a change: recommendations

Whileitiscriticallynecessarytorebalancetheuseofdiplomacy,developmentanddefence,theroleofthemilitaryshouldnotbeunderstated.Foritspart,theAustralianDefenceForce(ADF)canensureitcomplementsahumansecurityapproachbydevelopingthecapabilityandexpertiserequiredtocontributetoUNsecurityoperations,protectciviliansinarmedconflict,and‘donoharm.’ThiswillrequireensuringADFpersonnelaretrainedinhowtoupholdhumanrightsinstruments,thatthey‘ensurerespectfor’internationalhumanitarianlaw,andthattheyrespectandupholdhumanitarianspacebyabidingbyrelevantcivil-militaryguidelinessuchastheOsloGuidelines,13 MCDA guidelines,14IASCCivil-MilitaryGuidelines,15 andcountry-specificguidelinessuchastheGuidelinesfortheInteractionandCoordinationofHumanitarianActorsandMilitaryActorsinAfghanistan.16

TheADFmustalsofullyimplementthelandmarkUNSecurityCouncilResolution1325onwomen,peaceandsecurity,whichurgesstatestoincreaserepresentationofwomeninalllevelsofdecision-makingaroundconflictmanagement,recognisegender-specificneeds,especiallyprotectionofwomenfromgender-basedviolence,andincreasegender-sensitivetrainingeffortsforarmedpersonnel.12 AmyBelasco,the Cost of iraq, Afghanistan and other global War on terror Operations

since 9/11,CongressionalResearchServices,200913 GuidelinesontheUseofMilitaryandCivilDefenceAssetsinDisasterRelief,

November2006,www.coe-dmha.org/Media/Guidance/2OsloGuidelines.pdf(accessed12March2010)

14 GuidelinesontheUseofMilitaryandCivilDefenceAssetsToSupportUnitedNationsHumanitarianActivitiesinComplexEmergencies,March2003,www.coe-dmha.org/Media/Guidance/3MCDAGuidelines.pdf(accessed12March2010)

15 Inter-AgencyStandingCommitteeandUN,Civil-Military guidelines and reference for Complex emergencies, NewYork,2008www.humanitarianinfo.org/iasc/pageloader.aspx?page=content-products-products&sel=8

16 GuidelinesfortheInteractionandCoordinationofHumanitarianActorsandMilitaryActorsinAfghanistan,Version1.0(20May2008),www.afgana.org/showart.php?id=323&rubrica=223

Toadvancehumansecurityaroundtheworldthere are several practical steps the Australian governmentcouldtake.Theseinclude:1.clearlyarticulatingitsinternationallegal

protectionandhumanrightsobligationsinallnationalsecuritystatements,policypapersonforeignaffairs,andrelevantbudgetstatements

2.increasingtheresourcingofoverseasdevelopmentassistanceinlinewithMillenniumDevelopmentGoaltargets,andincreasingcommitmentstofundingarmedviolencereductioninitiativeslinkedtoachievingtheMDGs

3.substantiallyincreasingthecapacityandresourcingofDFAT,particularlyatthepostlevelinhigh-riskcountriesorregions,soitcanengageininternationaldiplomacyeffortsincrisissituationsinvolvingour‘responsibilitytoprotect’andotherprotectionobligations

4.developingawhitepaperonpeacekeepingtoenablegreaterpublicscrutinyofAustralia’sapproachandourinvestmentinpeacekeepingoperations

5.consideringandrespondingtorecommendationsmadebythe2007inquiryintoAustralia’sinvolvementinpeacekeepingoperations.Asyet,anddespiteacommitmenttodosobythesecondhalfof2009,theDepartmentofDefencehasnotpublishedtheAustraliangovernment’sresponsetotheinquiry’sthirty-eightworthwhilerecommendations.

Thechallengesofhumaninsecurityinourworldremaingreat,buttheyarenotinsurmountable.Asgovernmentscometoacceptthattheirsovereigntycarriesaresponsibilitytoboththeirowncitizensandallhumanity,wewillseeincreasedwillingnesstopreventandrespondtoshockingandchronicthreats.TheAustraliangovernmentcandomuchto reconceptualise its role in the international communitybyadoptingavisionforhumansecuritythatgoesbeyondournationalinterests.ThiswillbecriticalworkifAustraliaistotakeanon-permanentmemberseatontheUNSecurityCouncilin2013.

steph Cousins is the Humanitarian Advocacy Coordinator at Oxfam Australia. she works to promote the right to assistance and protection of people affected by crisis. she also advocates for the prevention of conflict, mass atrocities, arms proliferation, and armed violence.

steph is the current Chair of the Pacific small Arms Action group and secretary of the international detention Coalition governance Committee. she has worked extensively with partner organisations, former-refugees and diaspora communities to advocate for appropriate local, national, regional and international responses to rapid onset and protracted emergency situations.

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7 The Asia-Pacific: cooperation or a new cold war?

Associate Professor Jake Lynch, Director, Centre for Peace and Conflict Studies, University of Sydney

IT LOOkED LIkE araisedmiddlefinger.Astark,mockingfigure1–thenumberofvotesgarneredwhenAustraliaputitselfforwardacoupleof

yearsagoformembershipoftheUnitedNationsSecurityCouncil.EvenIranfoundthirty-twosupporterswhenitstoodforelectioninthesameround.Australia,apparently,wasfriendless.SowhydidtheinternationalcommunityshunKevinRudd’sambitionsforgreaterrecognitionontheworldstage?

AsimilarlycoolresponsewasvisiblewhenIndonesianPresidentSusiloBambangYudhoyonovisitedAustraliainearly2010.AmidthewarmglowofmutualpubliccomplimentscameablastofscornforthePrimeMinister’sproposed‘Asia-Pacificcommunity.’Yudhoyono’speopledeclinedtobedrawnintoadebateontheinitiative,sayingmerely

that“Jakarta’sforeignpolicyprioritylayinsteadinstrengtheningtheAssociationofSouth-EastAsianNations,”accordingtotheaccountintheAustralian.

There’sanimportantcluehere:Rudd’suseoftheword‘Pacific.’Ifgovernance,evendecision-making,fortheEastAsianregionisconceivedinaPacificframework,thatissignificant,becauseontheothersideoftheworld’sgreatestoceanlies,ofcourse,theUnitedStates,itslandmassstretching,asthesonggoes,“fromseatoshiningsea.”

OnAmerica’sfurtherseaboard,USinterestsextendthrough‘Atlanticism,’notablyintheNorthAtlanticTreatyOrganisation(NATO),inwhichWashingtonisleadpartnerwithtwenty-sevencountriesofEurope.AccordingtothePentagon’s(in)famous1992memo,defense Planning guidance (DPG),EuropeandEastAsiaaretwoofthree

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regions–theMiddleEastbeingtheother–inwhichAmericandominancemustbereasserted.

Thechallenge,accordingtotheDPG,washowtoreplicatetheexisting“US-ledsystemofcollectivesecurity”inthepost-Communistera.Ofparticularimportance,thememosaid,was“thesensethattheworldorderisultimatelybackedbytheUS.”Tothisend,“wemustpreventtheemergenceofEuropean-onlysecurityarrangementsthatcouldundermineNATO.”

Whybringupaneighteen-year-oldinternalmemorandum?defense Planning guidance still resonatesbecauseitreads,inretrospect,likeablueprintforUSforeignandsecuritypoliciesintheperiodsinceitspublication.SideliningtheUnitedNationsinfavourofadhoc‘coalitionsofthewilling’–check.BuildingupAmericanmilitarymighttoasufficientextenttodeteranyoneelsefromcontemplatingrenewedsuperpowerrivalry–check;withtheUScontinuingtooutspendtherestoftheworldputtogetheronitsarmedforces.

SohowarethestricturesofDPGplayingouttodayinourquadrantoftheglobe,andwhataretheimplicationsforAustralia?

The Kosovo precedent

Consider,first,anearlyexampleofthisUSstrategyinaction:thebombingofYugoslaviain1999.ApersistentregionalconflictinvolvingtheAlbanian-majorityprovinceofKosovoturnednastywiththeemergenceofawell-armedirregularforce,theKosovoLiberationArmy.TheKLArapidlysidelinedtheleadingpoliticalpartyintheprovincebysuchexpedientsas“kangaroocourts”and“summaryexecutions”ofuncooperativemunicipalofficials:thewordsofaUNreport.

Later,journalistsrevealedtheKLAhadbeenequippedandtrainedbywesternintelligenceagencies,notablytheCIA.Apeacekeepingmission,deployedbytheOrganisationforSecurityCooperationinEurope,wasgivenalopsidedbriefandfailedtosuppressguerrillaattacks.TheYugoslavarmywentbackin,withtrademarkheavy-handedness.UKPrimeMinisterTonyBlairledcallsfor“humanitarianintervention”toprevent“repression.”USSecretaryofStateMadeleineAlbrightreachedabackstairsdealonindependencewithKLAleadersthateffectivelyscupperedpeacetalks,andNATOhaditspretextforseventy-eightdaysofaerialbombardment.

Whathadbeenapoliticalproblem,albeitaknottyone,wastransformedintoamilitaryproblem.Intheprocess,theidentityoftheobviouscandidatetoprovideasolutionswitched:fromtheEuropeanUnion,apoliticalorganisation,toNATO,amilitaryone.Theotherimportantdifference,ofcourse,isthattheUSisexcluded,bydefinition,fromEUmembership,whereasitisthedefactoleaderofNATO.European-onlysecurityarrangementshadbeen,toquotedefense Planning

guidance,effectively“undermined.”TosecurecontinuingUSinfluenceinthevitalinterestsofitsEuropeanallies,conflictshadtoturnviolenttojustifytheapplicationofmilitarymeans.

Implications for East Asia today

Asimilarsyndromerisksbeingreplicatedinourownquadrantoftheglobe.AustraliahascommittedA$16billiontopurchase100US-madejointstrikefighterplanes,withaninitialorderforfourteenoftheaircraftplacedlastyear,aspartofour‘defence’budget.Thecombatrangeofthisaircraftisalittleover1,000kilometres,whichputs,bymyreckoning,justtwocountrieswithinitsreach:IndonesiaandPapuaNewGuinea.DefenceMinister,SenatorJohnFaulkner,gaverathermoreofthegameawayasheannouncedtheinitialtrancheoftheorderinthefederalparliament.Itwould,hesaid,positionAustralia“tojoininfuturecoalitionoperations.”

Coalitionoperationswhere?ErikPaul,inhismemorablestudy,little America: Australia, the 51st state,showshowAustraliaunderJohnHowardgrewintoitsroleasaregional“deputysheriff”inmaritimeSouth-EastAsia,comingtoberegardedintheprocessas“anintegralpartofUS-UKglobalgeo-strategy.”The2009defencewhitepaperevokesthepossible“threat”ofSouth-EastAsiabeingusedas“aconduitfortheprojectionofmilitarypoweragainstusbyothers,”onlytothendownplaythisthreatbysayingthatstability“should”continueintheregion.Inthisandothersectionsofitsrhetoric,however,thewhitepaperbringstomindGeorgeLakoff’saphorism:“evennegatingaframeevokesaframe,andevokingaframestrengthensaframe.”(Ifyouwanttotestthisforyourself,try,asathoughtexercise,tocomplywiththefollowinginstruction:‘Don’tthinkofanelephant.’)

IfAustraliaistomakeprovisionagainstevenafaintthreatofmilitarypowerbeingprojectedagainstusthroughSouth-EastAsia,whowouldbethemostlikelyantagonist?Notthecountriesoftheregionthemselvesbut,accordingtothewhitepaper,theChinese:“thepace,scopeandstructureofChina’smilitarymodernisationhavethepotentialtogiveitsneighbourscauseforconcernifnotcarefullyexplained,andifChinadoesnotreachouttootherstobuildconfidenceregardingitsmilitaryplans.”

The hawkish view

TheabovequotemarkstheacceptancebytheRuddgovernmentofthehawkishviewamongdefenceanalystsofChina’spreparations,exponentsofwhichincludethecorporate-sponsoredLowyInstitute,andadviserstothewhitepaperdraftingprocess,notablyProfessorRossBabbage,aformerDefenceofficialandarmsdealer,whoweighedintothedebatewithawell-timednewspapercolumnarguingthatAustralianeedsaforceatitsdisposalcapableof“rippingthearmoff”aninvading“majorAsianpower.”Babbage

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headstheKokodaFoundation,whosewebsiteannouncesitasan“independentthink-tank”butwhoselistofsponsorsincludestheDepartmentofDefence,theDepartmentofthePrimeMinisterandCabinet,andnofewerthantencompaniesinthearmsindustry.

OnthesubjectofChina’sintentions,the‘Kokodaview’contrastswiththatofthegovernment’sownpublicservants.TheDefence-fundedAustralianStrategicPolicyInstitutepositioneditselfasaring-holderinthedebate,notinginacontemporarybriefingthatwhereas“seniorAustraliandefenceplannersnowforeseetheriseofanaggressive,hegemonicChinainAsia[thisis]incontrasttointelligenceassessmentswhichseenosuchChinainprospect.”

TheunambiguousmessagetoChina,inboththewhitepaperanditsaccompanyingprocurementplans–alsoincludingnewsubmarines,warshipsandmissilesystems–didpromptsomeperturbations.Afront-pagestoryinthesydney Morning Herald,undertheheadline,‘Ruddaccusedoffuellingnewarmsrace’,highlightedChineseconcerns:

“A Chinese military strategist, rear-Admiral Yang Yi, told the Herald yesterday that Australia had spawned a new variation of ‘the China-threat thesis’ that could be emulated by other nations and encourage them to accelerate their rearmament programs. ‘i really can’t understand this stupid, this crazy idea from Australia’, he said. ‘i am very concerned and worried about it’.”

Sincethen,ChinahasreactedfuriouslytotheannouncementofanewUS$6billionprogramofAmericanarmsforTaiwan,andisaringsidespectatorattheongoingUS$8billionupgradeoftheUSmilitarybaseonGuam.Conflictsarebecomingincreasinglymilitarised,thusfurtherentrenchingUSdominanceinEastAsia.

Echoes from the past

Let’scupoureartosomeechoesfromthepast.AndrewAlexander,ajournalistontheright-of-centre daily Mail newspaperintheUK,recountedhowhisresearchforabookabouttheoriginsoftheColdWarconfoundedhispresuppositions:therehad,inreality,been“noSovietmilitarythreat,”andwrong-headedwesternassessmentsthatoneexistedwereresponsiblefor“oneofthemostunnecessaryconflictsofalltime,andcertainlythemostperilous.”

Anassessmentofconflictdynamicsonthe

KoreanpeninsulabyleadingpeaceresearcherJohanGaltungseemsparticularlyapttoreadacrosstothepresentsituation.“TherearehawksanddovesinNorthKorea,”heremarked,“andtheyaresometimesinthesameperson.Thequestionthenis,howdoesonestrengthenthedoves?”AswithChina:AdmiralYangYiappearedtobeexpressingalarmatanunpleasantsurprise,butforeveryseniorstrategistwiththatviewofourrelationshipwithChina,therewillbeoneforwhomtheunveilingofthewhitepaperwasan‘I-told-you-so’moment.Andthehawksoneithersidedrawstrengthfromeachother.

Withtoday’sinterdependentsystemofworldtradeandfinance,toenvisageanAsia-Pacificcoldwarmaybefanciful.Butdivisionsdoexistandtheyriskbecomingwider.ThecoolresponsefromMrYudhoyonotoRudd’snotionofanAsia-PacificcommunitywouldhavecomeasnosurprisetoanyoneinCanberrawhohadconsultedBarryDesker,a‘wiseoldowl’ofregionaldiplomacywhowasSingapore’sAmbassadortoJakarta.ShortlyafterRuddlaunchedtheidea,Deskerdeclaredit“deadinthewater”becausethePMhadnotheldpriorconsultationswithanyAsianleader.

PreviouslyDeskerhadreferredtoanincipientdividebetweensetsofpolicystancesandassumptionsthathecharacterised

asbelongingeithertothe“Washingtonconsensus”orthe“Beijingconsensus.”ItwasprofoundlyinAustralia’sintereststoavoidthatdividewidening,Deskeraverred,andforAustraliatouseitsuniquestatus,asbothamajortradingpartnerofChinaandalongstandingmilitaryallyoftheUS,tocontributesomethingineffortstocloseit.

Another way forward

Onekeyareaofdifference,highlightedbyDesker,concernedtheinterconnectedquestionsofinterventionandstatesovereignty,withtheChineseparticularlysensitivetothelatter.ThebombingofYugoslavia,whichflattenedChina’sembassyinBelgradeina‘NATOtargetingerror,’washaltedonlybyaUNresolutionthatappearedtopullbackfromgrantingKosovoitsindependence.Acoupleofyearsago,however,cametheUS-inspireddémarche wherebyKosovouppedanddeclareditselfasovereigncountryandWashingtonanditsfriendsledthewaytorecognition.Thetwinconceptsofhumanitarianinterventionandtheso-calledResponsibilitytoProtect(R2P)oftheinternationalcommunity,hadbeenimplicatedintheredrawing

The unambiguous message to China, in both the white paper and its accompanying procurement plans – also including new submarines, warships and missile systems – did prompt some perturbations.

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ofinternationalbordersand‘regimechange.’TenyearsonfromNATO’sOperationAlliedForce,

someofitsramificationsbeganwashinguponourownshores.Inearly2009,theworldeffectivelystoodbyastheSriLankanarmypoundedTamilareasinthecountry’snorth-east.AlaterreportbytheUSStateDepartmentidentified158credibleaccountsofshellingandbombingofcivilians–aseriousbreach,ifproven,ofthelawsofwar–attacksthatcouldonlyhavecomefromthegovernmentside.Bynow,R2PhadbeenacceptedinprinciplebyaunanimousvoteoftheUNGeneralAssemblyin2005.WhenitcametoprotectingtheTamils,however,anyprospectofeffectiveUNSecurityCouncilaction,ofanykind,tostoptheviolencewasunderminedbythecertaintyofaChineseveto.Beijingsimplykeptthesubjectofftheagenda.

Later,theRuddgovernmentwasbuffetedbytheusualtidalwaveofsyntheticoutrage,fromcertainpoliticiansandmedia,asafewhundredTamilrefugeesmadetheirwaybyboattoAustralia.TheexperiencesofrecentelectoralpoliticsinAustraliasuggestthatnoissueismorelikelytounravelwhattheFederalfinanceminister,LindsayTanner,called“Labor’s…compromisestomarryprogressivereformwithmajoritygovernment.”ItwouldbeinAustralia’sinterests,andcertainlyintheinterestsofanyoneseekingtogovernAustraliainthecauseofprogressivereform,torenewthedrivetowardscreatingsomeconsensusontheworldstagethatawiderangeofmeasures,besidesmilitaryintervention,shouldbedevelopedanddeployedincircumstanceswhenhumanprotectionisatissue,thusavoidingrefugeeflowsatsource.

ThecaseputforwardbytheDepartmentofForeignAffairsandTradeonitswebsiteforAustralia’srenewedcandidacyforUNSecurityCouncilmembershipmakesmuchofCanberra’scommitmenttohumanrights.Ifourvoiceistocarryanyinfluence,thatcommitmentneedstobeappliedacrosstheboard,andbeseentodoso.Forexample,aswitch,earlyin2010,inAustralia’shabitsofvotingandspeakingabouttheIsrael-Palestineconflict,whilemeasuredininfinitesimalgradations,representsawelcomeshiftinthiscontext.Canberrawentfroma‘no’toan‘abstain’inGeneralAssemblyvotesontheGoldstoneReportintowarcrimesallegationsarisingfromIsrael’sattackonGaza.

ChinacondemnedIsrael’sattackonGazabutkeptquietoverSriLanka;theUS,wherethesecriseshappenedeithersideofachangeintheWhiteHouse,playedittheoppositewayround.Atthetime,Australiawas,bymyreckoning,theonlydemocracythatcondemnedneither(manyothershavingbeen‘covered’instatementsputoutontheirbehalfbysuchorganisationsastheEU,AUandOAS).IfconcernforhumanprotectionandhumanrightscouldbeconvincinglyreassertedasthepropertyofnosinglegroupofUNmemberstatesandsimultaneouslytheresponsibilityofall,thentheprospectofrebuildingsucha

consensuswouldgatherstrength.Butsuchaconsensusdependsonendingdoublestandardsand‘exceptionalism,’andAustraliacouldclearlysignalthatthisisourintentionandourinterpretationofthemandateimplicitinprovisionsforprotectingnon-combatantsandtheirhumanrightssuchastheResponsibilitytoProtect.HeshamYoussef,ChiefoftheCabinettotheSecretaryGeneraloftheArabLeague,madeitclearduringarecentvisitthatCanberrawouldgetnoArabsupportforaSecurityCouncilseatwhileitisseenasanextensionofWashington,especiallyonPalestinianissues.

ClimatechangepolicypresentsanotherexampleoftheurgencyofourpositiveengagementwithChina.ChinawasreportedtohavebeeninstrumentalinconfiningtheCopenhagenclimatesummittosuchapunyoutcome.Aneyewitnesstothetalks,MarkLynas,toldtheLondonguardian:“China,backedattimesbyIndia,thenproceededtotakeoutallthenumbersthatmattered.”Beijingsawa“rich-countryconspiracy,”accordingtoLynas,andmoveddecisivelytosnuffitout.Itis,again,profoundlyinAustralia’sinterestsforeffectiveactiontocounterclimatechangetobebroughtforward,notpushedback.Weliveonthedriestinhabitedcontinent,afterall.

ForChinatofeelasifitsbackisagainstthewall,encircledanddenied,playstoitsworstinstinctsandbringsthemout.ThatistoAustralia’sdisadvantagenow,andrisksplungingusintoadangerousstand-off,whichwoulddivertpreciousresourcesawayfromothermoreimportantuses.Ifweweretosetoutonamoreeven-handedpolicy,andattendtoBarryDesker’scautionabouttheneedtoconsultintheregion–notjustinWashington–beforemakingsuggestions,wecouldlookforwardtoamorecooperativeandproductiverelationship.

ItmaybeintheinterestsoftheUSmilitary-industrialcomplex,anditsoffshoothere,foranarmsracetoensueintheAsia-Pacific,butitisnotintheinterestsofAustralians.Wemustbepreparedtoputdownourswordandshakehands,thenwecanallcomeoutfrombehindourshields.Whoknows,wemaythengetourseatattheroundtable.

Jake lynch is director of the Centre for Peace and Conflict studies at the university of sydney, and an executive Member of the sydney Peace foundation. since 1997, he has been researching, practising, and teaching peace journalism. He was formerly a newsreader for BBC

World tV, the sydney correspondent for the london independent newspaper, and a political correspondent for sky news. Publications include several books and many book chapters and articles. He is a regular contributor to public media. in 2009, he won a prestigious grant from the Australian research Council to investigate prospects for devising a global standard for reporting conflict.

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8 Arming the region and going to war: who decides?

Dr Sue Wareham oam, former President, Medical Association for Prevention of War (Australia)

IN HIS PREFACE tothe2009defencewhitepaper,thenDefenceMinisterJoelFitzgibbonwrote,“Thereisnogreaterresponsibilityforanational

governmentthanthedefenceofthenation,itspeopleandtheirinterests.”Whilethepre-eminenceofmilitaryspendingoverhealth,education,theenvironment,andotheressentialareasisarguable,fewwoulddisputethatdefenceisoneofthecoregovernmentfunctions.Itisataskthatrequiresalltheintelligenceandwisdomatourdisposal.

Itisthereforealarmingthatmuchoftheintelligenceandwisdomrelatingtoourdefenceandsecurityismarginalised,andthatimportantdecisionsaremadewithinanarrowcontextthatappearstoequatemilitaryforcewithsecurity.

Asoneexampleofthisprocess,theAustralian

CouncilforInternationalDevelopment(ACFID),whichrepresentsAustralia’soverseasaidanddevelopmentsector,statedinitssubmissiontothewhitepapercommunityconsultationthatACFIDmemberstypicallyhavebeenpresentalongsidelocalpartnersin140developingcountriesfordecades,andthat“thisprovidesthemwithavaluableanddistinctivesetofrelationshipsandknowledgethathaslargelynotbeentakenintoaccountbyAustraliansecuritypolicymakers.”ACFIDrecommendedincludingtheconceptof‘humansecurity’inAustralia’ssecuritystrategy.

Inaddition,despitethewhitepaper’sstatedgoaloftransparencyinstrategicaffairs,importantdecisionsondefenceandsecuritymattersareshroudedinsecrecy.Thischapterexaminessomeofthesecausesforconcern.

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Government helps militarise our region

Launchingthewhitepaperon2May2009,PrimeMinisterRuddstated,“It’sasplainasdaythatthereisasignificantmilitaryandnavalbuild-upacrosstheAsia-Pacificregion.That’sareality.”WhetherornotthePM’sstatementisaccurate,thesituationhedescribedisonethatAustraliahasbeenhappytofoster.

ForovertwodecadesAustraliangovernmentshaveworkedtoincreasetheflowofweaponsfromAustraliaintoourregion(andelsewhere)foreconomicreasonsandtosupportourdomesticweaponsindustry.Accesstointernationalmarketsisactivelyencouraged.TheAustralianTradeCommission(Austrade),forexample,promotestheexportofweaponstotheUnitedStates,theMiddleEast,South-EastAsiaandelsewhere.Austrade’swebsitecurrentlystates,withapparentrelief,that“…defenceisagainabigissueandasaresult,itisplayingawiderroleinthecommercialworldaswell.”ExportstotheMiddleEast,oneofthemostviolentregionsonearth,areannouncedwithpride.1Also,inJanuary2008,ParliamentarySecretaryforDefenceProcurementGregCombetlaunchedtheDefenceExportUnit,tofurtherexpandexportmarketsforAustraliandefencecompanies.

Arms fairs – targeting regional trouble-spots

Theincreasinglycommercialemphasisonweaponssalesisepitomisedby‘defenceandsecurity’exhibitions.In2008suchaneventwasplannedforAdelaide.TheAsia-PacificDefenceandSecurityExhibition(APDSE)wasdesignedtoallowweaponsmanufacturersfromaroundtheworldtocomeandpromotetheirproducts.Theexhibition,however,wascancelled,theSouthAustraliangovernmentcitingitsconcernaboutviolencefromprotestersasthereason.(Theironyofthegovernment’sconcernthatviolencemightobstructthesaleofdeadlyweaponspassedwithlittlecomment.Inanyevent,thecancellationwasmorelikelyduetooffencecausedbyitsplannedopeningdate–RemembranceDay,11November.)

Despiteitscancellation,thepromotionoftheexhibitiongavealarminginsightsintotheindustry’sreadinesstofurthermilitariseareasoftensionforfinancialgain.TheAPDSEwebsiteclaimedthattheAsia-Pacificregionwas“thesignificantgrowthmarket”forarmssalesandwas“theleastrepresentedbyqualitydefenceand/orsecurityexhibitions.”Italsoreferredtospecificregionaltensionsandproblemsthatcouldbeturnedtoadvantageforweaponsmanufacturers,suchasAustralia’sbordersurveillance,theSpratlyIslandsandotherdisputedterritoriesintheregion,possible1 www.austrade.gov.au/On-the-Defensive-Trends-in-Australian-Defence-Exports/

default.aspx

militaryclashesinvolvingChinaorNorthKorea,conflictsoverenergysupplies,andthesecurityimplicationsofclimatechange.Inotherwords,abountyoftensionswaitingtobefuelled.

TheAustralianfederalgovernmentdidnotprovidefinancialsupportfortheAdelaideexhibition,butDefenceMinisterJoelFitzgibbondidprovideawrittenstatementcongratulatingtheSouthAustraliangovernmentforhostingsuchanimportantandvaluableevent.InamessageontheAPDSEwebsite,SouthAustralianPremierMikeRanndescribedthe“terrificbusinessandinvestmentopportunities”representedbythe“boomingAustraliandefenceindustry.”

Military exports – secret men’s business

TheexportofAustralian-made‘defenceandstrategicgoods’iscontrolledbytheDefenceExportControlOffice(DECO)withintheDepartmentofDefence.Alltransactionsaredeemed‘commercial-in-confidence,’meaningthatapplications,andthegrantingorrefusalofexportapproval,aresecret.StatisticalinformationonAustralia’sarmstransfersisnotamatterofpublicrecord,althoughtheDefenceMinistermayathisorherdiscretionprovidesomeinformationatquestiontimeinparliament.

OnrequestingalistingofAustralia’stopweaponsexportsfromDECOinearly2010,theMedicalAssociationforPreventionofWar(MAPW)wasinformedthatnosuchlistingcouldbeprovided.MAPWwasinsteadreferredtotheDepartment’sreplytoasenatequestiononnoticeon2February2010,fromSenatorScottLudlam(AustralianGreens,WA),inwhichthesenatoraskedforalistingofthetop200(bymonetaryvalue)defenceexportsfromthe2008-09financialyear.

ThelistprovidedbyDefenceMinisterFaulknergaveatwo-orthree-worddescriptionforeachitem(suchas‘militaryvehicle’),thedestinationandthemonetaryvalue.Theministertoldparliamentthatthenamesofthecompaniesinvolvedarenotreleasedbecausethetransactionsare‘commercial-in-confidence.’

Wecanthereforeassumethatmostmembersofparliament,andtheoverwhelmingmajorityofmembersofthepublic,haven’taclueaboutwhatweaponsweselltowhom,andwouldhavegreatdifficultyfindingout.Thisprocessgetszeromarksfortransparency.

‘Sensitive’ weapons sales

DECO’s2008brochureAustralian export controls for defence and dual-use goods says applications are assessedaccordingtostrategic,foreignpolicy,andotherfactors,includinghumanrightsconcerns.‘Sensitive’applicationsmaybereferredtotheStandingInterdepartmentalCommitteeonDefenceExports.OnlytheDefenceMinistercandenyan

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exportapplicationorrevokeanexistinglicence.Theterm‘sensitive,’however,isopento

interpretation.Asoneofmanypossibleexamples,exportstoIsraelmightseemuncontroversialtosome,butextremely‘sensitive’toanyonewhohasvisitedGazasinceJanuary2009orsouthernLebanonsinceAugust2006.Inaddition,whileitsstatedattentiontohumanrightsiscommendable,theDefenceDepartmentdoesnotnecessarilyhavealltherequiredexpertisetoassessthesematters.Itcanbearguedthatsuchexpertiseismorereadilyavailablewithinnon-governmentorganisationssuchasAmnestyInternational.Inaddition,theDefenceDepartmenthasavestedinterestinfacilitatingweaponstransfers,toassistourdomesticindustry.

Further expertise on the foreignpolicyimplicationsofourweaponsexportsisalsofound,notsurprisingly,intheforeignaffairsministry.ThereisastrongcaseforallapplicationstobereferredtotheMinisterforForeignAffairs,andfortheministertohavevetopoweroverproposedmilitaryexports.Theassessmentprocessshouldincludeattentiontolikelysocialandhumanrightsimpactsofthesale.

Monitoringofweaponsuseforhumanrightsviolationsaftertheyaresoldisalsoimportant,butcurrentlydoesnotoccur.

TheimportanceofhavingarigorousapprovalandoversightprocesswashighlightedinAugust2008,whenitwasreportedthatAustraliancompanieshadrepeatedlybreachedexportcontrolregulationsrelatingtosensitivedefencetechnology.Therewereforty-oneknownbreachesinthepreviousthreeyears.TheDefenceMinisterJoelFitzgibbondidnotrevealthenamesofthefirmsortheequipmentinvolved.2

The role of lobbyists

Lobbyistscanplayasignificantroleininfluencinggovernmentpolicy,soitisimportantthatlobbyingonmajorissuesisconductedtransparently.In2008thegovernmentestablishedaLobbyingCodeofConductandRegisterofLobbyists,3thepreambletothecodestatingthatitis“intendedtopromotetrustintheintegrityofgovernmentprocessesandensurethatcontactbetweenlobbyistsandGovernmentrepresentativesisconductedwith…transparency,integrityandhonesty.”

Whilethecodeandregister(whichincludesnotonlylobbyistsbutalsothenamesoftheirclients)are2 ‘Firmsindefenceexportbreaches,’Canberra times,16August2008,page13 SenateStandingCommitteeonFinanceandPublicAdministration,Knock, knock…

Who’s there? the lobbying Code of Conduct

helpfulstepstowardsgreatertransparency,therearesomesignificantlimitations.Thecodeappliesonlyto“thirdpartylobbyists,”thatis,thosewholobbyonepartyonbehalfofanother.Companiesorotherentitieswith‘in-house’lobbyists–commoninlargecompanies–arenotcoveredbythecode.Also,thecodeappliesonlytoministersandnottootherparliamentarians,andthereisnoobligationonanymemberofparliamenttorecordandreporttheircontactwithlobbyists.

Theissueofpaidaccesstoparliamentariansisimportantandisrelevanttomanyareasofbusiness.DefenceMinisterJohnFaulkner,tohisgreatcredit,

setavaluableexampleinJuly2009whenherefusedtoattendameetingofweaponsmanufacturerswhohadpaidtheALPupto$110,000forministerialaccess.4

Transparencywouldbestrengthened,aswouldourdemocracy,byfurthertighteningthesystemofpoliticaldonationsandotherpayments,andbybroadeningthescopeofthecodeofconductforlobbyists.

Community consultation or community window-dressing?

Aspartofthepreparationofthedefencewhitepaper,aseriesofcommunityconsultationswasheld

aroundthecountry.Thirtypublicmeetingswereheldand450writtensubmissionsreceived.However,concernshavebeenexpressedthatthecommunityconsultationreportdidnotaccuratelyreflectmanyoftheviewsexpressedduringtheprocess.Forexample,ProfessorJohnLangmore,oftheSchoolofSocialandPoliticalSciencesatMelbourneUniversity,andaformerfederalALPparliamentarian,wrote,“Anindicatorofthedisregardforpublicaccountabilityaboutdefencewastheskewedreportonthepublicconsultationandthefive-monthdelayinpublishingthereportafterithadbeenhandedtotheGovernment.Thereportmocksadvocatesofmilitaryrestraint,peacemakingandpeace-keeping.Thedemocraticinstinctsofthepanelwereshallowandtheircommitmenttoaccuracyweak.”5

Anadditionalfeatureofthe‘communityconsultation’processwasthelargenumberofprivatemeetings,approximatelythirty-sixintotal.Thelistofattendeeswasheavy-ladenwithweaponsindustryrepresentativesandthosewithaninterestintheindustry,andtherewasscantrepresentationofthosewithabroaderperspectiveonwaystoachievesecurity.Includedalsointhemeetingswereseveral4 ‘JohnFaulknerwon’tmeetarmsdealers,’Australian,9August20095 Personalcommunicationtotheauthor,reproducedwithpermission

Transparency would be strengthened, as would our democracy, by further tightening the system of political donations and other payments, and by broadening the scope of the code of conduct for lobbyists.

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universities,areflectionofthefinanciallinkstheweaponsindustryisstartingtomakeineducationalinstitutions,includingschools.(Thisisaworryingtrend.Asoneexample:theUniversityofAdelaidehasa‘strategicalliance’withtheDefenceScienceandTechnologyOrganisation,partoftheDepartmentofDefence.TheUKorganisationScientistsforGlobalResponsibility,initsJune2008reportBehind Closed doors: military influence, commercial pressures and the compromised university,examinedthegrowingpresenceofmilitaryandcommercialinfluencesoncampusesintheUKandtheireffectontheresearchagenda.)

ApossibleconflictofinterestwasapparentalsointhechoiceofStephenLoosley,aboardmemberofThalesAustralia(amajorweaponsmanufacturingcompany),tochairthecommunitymeetings.

Overall,thecommunityconsultationprocessgaveastrongimpressionofwindowdressing.Apollof1200people,conductedbytheAustralianNationalUniversityinApril2009shortlybeforethereleaseofthewhitepaper,foundthat30percentwantedtoincreasedefencespending,while35percentwanteditcut.ThosefiguresindicateasignificanttrendtowardsAustralianswantinglessspentondefence,comparedwithtwoyearspreviously,whenthecorrespondingfigureswere47percentand12per cent respectively.6 These results are consistent withthoseobtainedbyMAPWinitsanalysisofwrittensubmissionstoseveralofthecategoriesintheconsultationprocess(includingstrategy/internationalandfundingfordefence).MAPW’sanalysisshowedfargreaternumbersofsubmissionscallingforlessdefencespendingthanthosewantingmore,alongwithhighlevelsofconcernthatDefenceDepartmentprioritiesdonotmatchthenatureofthethreatsthatareemerging.7

Indirectcontrasttosuchcommunityconcerns,thewhitepaperdeliveredananachronisticCold-War-stylecalltoarms.Thisisnotwhatweneedinthetwenty-firstcentury.

Going to war

InSeptember2001,followingtheterroristattacksintheUS,PrimeMinisterHowardstatedthatAustraliawouldbeinvolvedinanyactionthatUSPresidentBushchosetoorder.Howardgavenoqualificationtotheoffer.Ourprimeministerdidnotactasleaderofasovereignnation,butasservanttoanothernation.

TheissueoftheauthoritytosendAustralianforcestowar,probablythemostgravedecisionacountrycanmake,hasalsoraisedseriousconcernsonotheroccasions,includingtheMenziesgovernment’sofferofcombattroopsforVietnamsometimebeforetheofficialannouncementwasmadein1965,8andAustralia’sparticipationin

6 ‘PMunderpressuretospendlessondefence,’Canberra times,29April2009,page67 Thesubmissionscanbereadatwww.defence.gov.au/whitepaper/readsubmissions.

htm8 MSexton,War for the Asking: How Australia invited itself to Vietnam,NewHolland

Press(firstpublished1981)

the1991Iraqwar,inwhichtherewasnopriorparliamentarydebate.

Inanattempttoreducetheprospectofsuchundemocraticprocessesoccurringagain,SenatorScottLudlamintroducedtheDefenceAmendment(ParliamentaryApprovalofOverseasService)BillinSeptember2008.Similarbillshavebeenpresentedtoparliamentbefore.ThebillstipulatesthatADFpersonnelmaynotserveoverseasexceptbyresolutionofbothhousesofparliament.Thebilldoesnotthreatentoobstruct(ordelay)engagementinwarfarethathasthestrongsupportoftheparliamentand,therefore,theAustralianpeople.However,intheabsenceofsuchsupport,anyargumentbeingmountedforwarissurelyhighlyquestionable.

ThebillwasconsideredbytheSenateForeignAffairs,DefenceandTradeLegislationCommittee.Despiteacknowledginginitsreport“theviewsofmostsubmittersthattheAustralianpeople,throughtheirelectedrepresentatives,havearighttobeinformedandheardontheseimportantmatters,”(paragraph2.102)thecommitteedeclinedtoholdpublichearings.Itmadeasinglebriefrecommendation,“Thecommitteerecommendsthatthebillnotproceed.”Therewasnorecommendationthat,giventheseriousnessofthematter,itbepursuedbytheparliamentinanothermanner.SenatorLudlam,inadissentingreport,recommendedthat“thecommitteecontinuetoengagewiththisissuebyorganisingofftherecordbriefings,roundtablesandforumsonthematter[withrelevantagencies].”

Thepossibilityofparliamentbeingmarginalisedorignoredonthismostweightyofdecisionsremains–withneitherofthetwomajorpartiesexhibitingconcernattheprospect.Ourdemocracy,andprospectsforpeace,aremuchthepoorerforit.

dr Wareham acknowledges with thanks the assistance of david fisher, retired engineer and consultant to former senator John Woodley, in preparing this paper.

dr sue Wareham OAM is immediate Past President of the Medical Association for Prevention of War (Australia). she has spoken and written widely on matters related to peace and disarmament and is on the Management Committee in Australia for the international

Campaign to Abolish nuclear Weapons (iCAn). dr Wareham travelled to iraq in 1999 to observe the impact of economic sanctions, and to lebanon in 2006 to report on cluster bomb injuries. she works in general practice in Canberra.

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Recommendations

The Medical Association for Prevention of War (Australia) recommends that:

1. Discourseregarding‘security’bebroadenedtoincorporateagreaterunderstandingofhumanandenvironmentalsecurity,inalltheiraspects,alongwiththerequirementsneededtoachievethem.

2. Effectiveactionstoaddressthemajorthreatstohumansecurity–climatechange,nuclearweapons,reducedaccesstowaterandotheressentialresources,poverty,andarmsproliferation–betakenasamatterofurgency.

3. Australia’smilitaryspendingbereduced.4. IncreasedfundingbedirectedtotheDepartmentofForeignAffairsandTrade,toenable,for

example,agreatercapacityforarmscontrolanddisarmamentdiplomacy,andgreaterengagementininternationaldiplomacyeffortsincrisissituationsandhighriskcountries.

5. Australia’soverseasdevelopmentaidbeincreasedtotheUNtargetof0.7percentofGDP.6. SecurityinthePacific,especiallyinareasofconflictsuchasWestPapuaandBougainville,

beconsiderednotsimplyintermsof‘stability’butalsofromhumanrights,justiceandself-determinationperspectives,sothattheunderlyingcausesofconflictareaddressed.

7. TheimpactofclimatechangeinthePacificbeframedasahumanrightsissueratherthanaborderprotection issue.

8. Anyuseorthreatofuseofnuclearweaponsinour‘defence’beexplicitlyrejected.9. Australiatakealeadinnegotiatingacomprehensivetreatytoabolishnuclearweapons,inline

withtheALPpre-electionpromisein2007,andthatallocationofresourcestothisprocess,asrecommendedbytheJointStandingCommitteeonTreaties,occur.

10. NoAustralianuraniumbesoldtoanynationthathasnuclearweapons;andothermeasuresalsobetakentohelppreventdiversionofAustralianuraniumtonuclearweapons,includingabanonreprocessing.

11. Humanrightsstandardsbeappliedconsistently,andtheimperativetoprotectnon-combatants–assetout,forexample,intheResponsibilitytoProtectmandate–beupheldatalltimes,regardlessoftheidentityofthoseinvolved.

12. Theprotectionofciviliansbetheoverridingpriorityinourresponsetoglobalconflictsandcrises,withthisgoalbeingclearlyarticulated.

13. Thedistinctionbetweenhumanitarianreliefandmilitaryactionbeclearatalltimes,withhumanitarianspacebeingrespectedandupheld.

14. ImplementationofUNSecurityCouncilResolution1325bepromoted,toincreaserepresentationofwomeninalllevelsofdecision-makingrelatingtoconflictmanagement;andthatprotectionfromgender-basedviolencebepromotedasanessentialpartofcivilianprotection.

15. Australianothostfurtherarmsexhibitions,noractivelypromotegreatermilitarisationofourregionandbeyond.

16. AllmilitaryexportsbeapprovedbytheMinisterforForeignAffairs.17. Decisionsonsuchmilitaryexportshaveinputfromnon-governmentorganisationswithhumanrights

andotherrelevantexpertise.18. Australia’smilitaryexportsbethesubjectofregularreportstoparliament.19. Thecodeofconductrelatingtothelobbyingofparliamentariansbestrengthenedandextendedto

ensuregreatertransparency.20. TheAustralianparliamentexplorefurtherinitiativestoensureournationcannotgotowaragain

withoutparliamentaryapproval.

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Change is possible. We realised that we had choices in the sort of future we wanted to create, and we decided to act.

A vision for Australia in 2030

IT’S2030,andtheworldhaswitnessedprofoundupheavalsthathavetransformedhuman

society–forthebetter.Twentyyearsagotherewas

recognitionthatallpeopleonthissmallplanetsharedacommonfuture.Themajorproblemswefacedcouldnotberesolvedbyarmedforcesdefendingtheirpatch.Theproblemsrequiredcooperation,attentiontotheneedsofallpeople,andthesalvagingofasickenvironmentbeforeitsabilitytosustainuspeteredout.

Werealisedthatwarswerenotmakingusanysafer.Thenationthatspentabouthalfofthetotalglobalmilitaryspendingstillhadenemies.Thetwenty-firstcenturywasshapingupasevenmorebloodythanthetwentiethhadbeen,afrighteningconceptthatmadeustakestockofwherewewereheading.Followingtheserealisations,theutilityofwarfareasameansofaddressingconflictwasincreasinglyquestioned.Now,inAustralia,theAustralianDefenceForcenolongertakespartinattacksonothernations.Italsoscrappedlong-rangemissilesasbeingtoothreatening.Itdoes,however,playastrongroleinUNpeacekeepingmissions,whicharestillneededinsomeplaces.

Thearmstradehasbeenreinedin.Diplomaticeffortstoresolveconflictnowreceivegreatlyincreasedfunding.Afargreaterroleforwomeninbuildingpeacehasbeenimplemented,somethingtheUNhadbeencallingforsince2000.

Terrorismismuchlessofaproblemnowbecauseunjustmilitaryoccupations,andthehatredtheyinspire,havebecomeathingofthepast.

Nuclearweapons,theoneclassofweaponthatcouldhavedestroyedourcivilisationinanafternoon,havebeenoutlawed.Asafirstandlongoverduestepinthisprocess,thethousandsofUSandRussianweaponsthatwereonhighalertweretakenoffalert,sotheycouldnotbeaccidentallylaunched.Itseemsinconceivablenowthatwecouldhavebeensofoolishastotrustthatmistakeswouldnotoccur.

ThiswasfollowedbytherapidconclusionofaNuclearWeaponsConventiontooutlawtheseterrifyingdevices.(It’salsocalledtheCanberraConvention,becauseitwastheAustraliangovernmentthatreallydrovethisagenda,justasithadpromisedtodobeforetheelectionin2007.)Somenationstriedtohangontotheirnuclearweapons,butthepoliticalcostsof

harbouringweaponsofmassdestructionbecametoogreat.Inaddition,globalverificationprocesseswerestrict,andweputresourcesintoensuringthattheyworked.

Havingdrasticallycutbackglobalmilitaryexpenditurefromthe2010levelofUS$1.46trillion,wehadthefundsweneededtotacklethebigissues,suchasclimatechangeandsalvagingourdepletedenvironment.Importantly,theMillenniumDevelopmentGoalswerequicklyachieved,sothateveryonecannowliveindignity,withfood,cleanwater,basichealthcareandeducation.Australia’soverseasdevelopmentaidisnowattheUNtargetof0.7percentofgrossnationalproduct.Humanlabour,everywhere,ishonouredwithadecentwage.

Onclimatechange,wewereslowtoact.Droughtsandotherextremeweathereventswerealreadybecomingcommonbeforeweawokefromourcomplacency.Finallywerealisedthatnoneofuscouldbesecurewhenwholenationswerethreatenedbyrisingsealevelsandlossofproductiveland.Wehadtoacttogether.Ambitiousgreenhousegasemissiontargetswereimplemented.Energyisnowusedefficientlyandamixofrenewableenergieshasgreatlyreducedourrelianceoncoal.

Inallthiswetookheartfromthepowerfulnon-violentmovementsforsocialchangethatthetwentiethcenturyhadgenerated,suchasthosethatbroughtdowndictatorsandendedapartheid.Youngpeopleplayedapivotalroleinshapingourfuture–welistenedtothem.Changeispossible.Werealisedthatwehadchoicesinthesortoffuturewewantedtocreate,andwedecidedtoact.

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Appendix 2009 defence white paper executive summary

DEFENCE PLANNINg is,byitsverynature,acomplexandlong-termbusiness.Defenceplanningisoneareaofpublicpolicywhere

decisionstakeninonedecadehavethepotentialtoaffect,forgoodorill,Australia’ssovereigntyandfreedomofactionfordecadestocome.TheGovernmentmustmakecarefuljudgementsaboutAustralia’slong-termdefenceneeds.Suchjudgementsareevenmoreimportantintimesoffiscalorstrategicuncertainty.

TheglobaleconomiccrisisisthemostfundamentaleconomicchallengefacingthisGovernment.Attimessuchasthese,theGovernmentmustbefiscallyresponsible.ItwouldberecklesstocommitsubstantialnewresourcestoDefencewhileuncertaintysurroundingthecrisisremains.

ThisnewDefenceWhitePaperexplainshowtheGovernmentplanstostrengthenthefoundationsofAustralia’sdefence.ItsetsouttheGovernment’splansforDefenceforthenextfewyears,andhowitwillachievethoseplans.Mostimportantly,itprovidesanindicationofthelevelofresourcesthattheGovernmentisplanningtoinvestinDefenceovercomingyearsandwhattheGovernment,onbehalfoftheAustralianpeople,expectsinreturnfromDefence.

Ultimately,armedforcesexisttoprovideGovernmentswiththeoptiontouseforce.Maintainingacredibledefencecapabilityisacrucialcontributortooursecurity,asitcanservetodeterpotentialadversariesfromusingforceagainstusorourallies,partnersandneighbours.ItistheGovernment’spolicythatthemainroleoftheAustralianDefenceForce(ADF)shouldcontinuetobeanabilitytoengageinconventionalcombatagainstotherarmedforces.

TheADFmustalsobepreparedtoplayitspartindealingwithintra-stateconflict,anenduringfeature,andassessedtobethemostcommonform

ofconflictintheperiodto2030.Australia’sarmedforcesmustalsobeabletocontendwithnon-stateglobalactors.Defence’svitalroleinsupportingdomesticsecurityandemergencyresponseeffortswillcontinue,andDefencewillsupporttheseareasofCommonwealthresponsibility.

Fromtheoutset,weneedtohaveaclearviewofhowmuchstrategicriskAustraliaispreparedtobear,andhencehowmuchmilitarypowerweshouldseektodevelop.ThemoreAustraliaaspirestohavegreaterstrategicinfluencebeyondourimmediateneighbourhood-thatistosaytheabilitytoexertpolicyinfluencethatisunderpinnedbymilitarypower-thegreaterthelevelofspendingondefenceweneedtobepreparedtoundertake.Ifwewanttobackupstrategicinfluencewithmilitarypower,wehavetobepreparedtoinvesttheresourcesrequired,andtobeconfidentthatthesecuritybenefitsoutweighthosecosts.

Asinotherareasofpublicpolicy,themorebalancedourportfolioofcapabilities,themorewewillbeabletohedgeandre-balanceasrequired.Thekeyissueistohaveasolidfoundationuponwhichtobuild,adaptandtakeadvantageofopportunities.Weneedtoreviewperiodicallyandrigorouslywhetherthemixandscaleofourcapabilitiesareappropriatetotheemergingchallengesinourstrategicoutlook.TheGovernmentintendstoprepareanewDefenceWhitePaperatintervalsnogreaterthanfiveyears.ThisquinquennialWhitePaperdevelopmentprocesswillbethecentrepieceoftheGovernment’snewstrategicrisk-basedapproachtodefenceplanning.

Defencepolicymustbebasedonclearobjectives.Notallstrategicrisksnecessarilyrequireourfullattention,whilethosethatarethemostremotemightrequireourfullestattentionbecauseoftheirpotentialconsequences.Wehavetobeveryclearaboutwhatmattersmost,sothatwecanprovisionagainsttherightrisksanddonotwasteresources.

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Australia’smostbasicstrategicinterestremainsthedefenceofAustraliaagainstdirectarmedattack.Thisincludesarmedattacksbyotherstatesandbynon-stateactorswiththecapacitytoemploystrategiccapabilities,includingweaponsofmassdestruction(WMD).Thismostbasicstrategicinterestabidesirrespectiveoftheperceivedintentionsofothers,andisafunctionofourgeographyandlevelsofcurrentandfuturecapabilityintheregionaroundus.Beforeweattendtoanythingelse,wemustsecurethisstrategicinterest.

Ournextmostimportantstrategicinterestisthesecurity,stabilityandcohesionofourimmediateneighbourhood,whichwesharewithIndonesia,PapuaNewGuinea,EastTimor,NewZealandandtheSouthPacificislandstates.Whilewehaveawiderangeofdiplomatic,economic,culturalandotherlinkswiththosecountries,fromastrategicpointofview,whatmattersmostisthattheyarenotasourceofthreattoAustralia,andthatnomajormilitarypower,thatcouldchallengeourcontroloftheairandseaapproachestoAustralia,hasaccesstobasesinourneighbourhoodfromwhichtoprojectforceagainstus.

Beyondourimmediateneighbourhood,AustraliahasanenduringstrategicinterestinthestabilityofthewiderAsia-Pacificregion,whichstretchesfromNorthAsiatotheEasternIndianOcean.Inparticular,wehaveadeepstakeinthesecurityofSoutheastAsia.Strategically,ourneighboursinSoutheastAsiasitastrideournorthernapproaches,throughwhichhostileforceswouldhavetooperateinordertosustainablyprojectforceagainstAustralia.AstableandcohesiveSoutheastAsiawillmitigateanysuchthreatandisinourstrategicinterests.Morebroadly,wehaveadeepstakeinthemaintenanceofanAsia-Pacificregionalsecurityenvironmentthatisconducivetothepeacefulresolutionofproblemsbetweenregionalcountriesandcanabsorbtheriseinstrategicandmilitarypowerofemergingmajorplayers.

Beyondourregion,Australiacannotbesecureinaninsecureworld.Wehaveastrategicinterestinpreservinganinternationalorderthatrestrainsaggressionbystatesagainsteachother,andcaneffectivelymanageotherrisksandthreats,suchastheproliferationofWMD,terrorism,statefragilityandfailure,intra-stateconflict,andthesecurityimpactsofclimatechangeandresourcescarcity.

TheGovernmenthasdecidedthatAustralia’sdefencepolicyshouldcontinuetobefoundedontheprincipleofself-relianceinthedirectdefenceofAustraliaandinrelationtoouruniquestrategicinterests,butwithacapacitytodomorewhenrequired,consistentwiththosestrategicinterests

thatwemightsharewithothers,andwithinthelimitsofourresources.Thispostureentailsthemaintenanceofalliancesandinternationaldefencerelationshipsthatenhanceourownsecurityandallowsustoworkwithotherswhenweneedtopoolourresources.Intermsofmilitarypower,thisdefencepolicymeansthatwemusthavethecapacityto:

• actindependentlywherewehaveuniquestrategicinterestsatstake,andinrelationtowhichwewouldnotwishtobereliantonthecombatforcesofanyforeignpower;

• leadmilitarycoalitionswherewehavesharedstrategicinterestsatstakewithothers,andinrelationtowhichwewouldbewillingtoacceptaleadershiprole,inparttocompensateforthelimitedcapacityorengagementofothers;and

• maketailoredcontributionstomilitarycoalitionswherewesharewiderstrategicinterestswithothersandarewillingtoacceptashareoftheburdeninsecuringthoseinterests.

TheprincipaltaskfortheADFistodeter and defeat armed attacks on Australiabyconductingindependentmilitaryoperationswithoutrelyingonthecombatorcombatsupportforcesofothercountries.ThismeansthattheADFhastobeabletocontrolourairandseaapproachesagainstcredibleadversariesinthedefenceofAustralia,totheextentrequiredtosafeguardourterritory,criticalsealanes,populationandinfrastructure.

AfterensuringthedefenceofAustraliafromdirectattack,thesecondprioritytaskfortheADFistocontribute to stability and security in the South Pacific and East Timor.Thisinvolvesconductingmilitaryoperations,incoalitionwithothersasrequired,includinginrelationtoprotectingournationals,providingdisasterreliefandhumanitarianassistanceand,onoccasion,bywayofstabilisationinterventions.

ThenextmostimportantprioritytaskfortheADFis to contribute to military contingencies in the Asia-Pacific region,includinginrelationtoassistingourSoutheastAsianpartnerstomeetexternalchallenges,andtomeetingourallianceobligationstotheUnitedStatesasdeterminedbytheAustralianGovernmentatthetime.ThestrategictransformationoftheregionwillmeanthatAustraliashouldbepreparedtomakecontributions–includingpotentiallysubstantialones–tosuchmilitarycontingenciesinsupportofourstrategicinterests.

Finally,theADFhastobepreparedtocontribute to military contingencies in the rest of the world,in

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supportofeffortsbytheinternationalcommunitytoupholdglobalsecurityandarules-basedinternationalorder,whereourinterestsalignandwherewehavethecapacitytodoso.

Asaresultofthesepriorities,theADFof2030willneedtobeamorepotentforceincertainareas,particularlyunderseawarfareandanti-submarinewarfare(ASW),surfacemaritimewarfare(includingairdefenceatsea),airsuperiority,strategicstrike,specialforces,IntelligenceSurveillanceandReconnaissance(ISR),andcyberwarfare.ItistheGovernment’sjudgementthatthesearethecrucialareaswhichrequireparticularattentiontosecureouruniquestrategicinterests.

Themajornewdirectionthathasemergedthroughconsiderationofcurrentandfuturerequirementsisasignificantfocusonenhancingourmaritimecapabilities.Bythemid-2030s,wewillhaveamorepotentandheaviermaritimeforce.TheGovernmentintendstoreplaceandexpandthecurrentfleetofsixCollinsclasswithamorecapableclassofsubmarine,replacethecurrentAnzacclassfrigatewithamorecapableFutureFrigateoptimisedforASW;andenhanceourcapabilityforoffshoremaritimewarfare,borderprotectionandminecountermeasures.

Whilefocusingonbuildingourmaritimecapabilities,theGovernmenthasalsobeenabletomakeprovisionfortheenhancementofotherkeyelementsoftheADF,includingouraircombatcapability(byproceedingwiththeacquisitionoffifth-generationmultirolecombatfighters);strikecapability(throughtheacquisitionoflong-range,land-attackstrikemissiles);theArmy’sfleetofheavyprotectedvehiclesandotherlandforcecapabilities;thecapabilitiesofourspecialforces;andintheemergingareaofcyberwarfare.

Inaddition,theGovernmenthasmadeprovisionforremediationofthecurrentandprojectedforce,byaddressingcrucialdeficienciesandgapsthatmightlimitthesizeanddurationofdeployments,orcreateunacceptablerisksinsomemoredemandingscenariosinwhichtheweight,reachandrelativecombatpowerofmajorcapabilitieswouldmakeacrucialdifference.

Finally,theGovernmenthasalsomadeprovisionforremediatingDefence’scritical‘backbone’,suchasfacilitiesandinfrastructure,informationandcommunicationstechnology(ICT)systems,andwarehousinganddistributionsystem.Togiveeffecttothisremediationandreform,theGovernmenthasendorsedaStrategicReformProgramcomprisingacomprehensivesetofreformsthatwillfundamentallyoverhaultheentireDefenceenterprise,producingefficienciesandcreatingsavingsofabout$20billion.TheStrategicReformProgramwilldeliverAustraliaagenuinelystrategicnationaladvantage:savingswillbereinvestedincapabilityandDefence’scallonnationalresourceswillbeconstrained.

TheStrategicReformProgramwilldriveefficiencieswithoutcompromisingeffectiveness.ItdrawsondetailedanalysisofalmosteveryaspectoftheDefenceenterprise.ThroughtheStrategicReformProgram,theGovernmentwillimprovethedevelopment,procurement,maintenanceandmanagementof:militarycapability;ICT;theDefenceestate;scienceandtechnologysupport;andgeneralgoodsandservices.Enterprisesupportserviceswillbecentralised,standardisedandsimplified.Andthroughtheintroductionofanintegratedworkforcemanagementsystem,Defencewillmakebetteruseofthetaxpayers’dollarbybettermatchingtheskillsandcompetenciesofitspeopletothejobsthatneedtobedone.

this is a reproduction of the defence white paper’s executive summary. the entire text of the white paper can be downloaded from www.defence.gov.au/whitepaper

What does MAPW do?

Highlighting nuclear dangers • Strongadvocacyfornuclear

weaponsabolition,especiallythroughtheMAPW-initiatedInternationalCampaigntoAbolishNuclearWeapons(ICAN)anditsgoalofanuclearweaponsconvention.

• PresentationofevidencetotheJointStandingCommitteeonTreatiesinquiryintoAustralia’snucleartreaties–evidencewhichhelpedpersuadecommitteemembersfromallpartiesoftheneedforanuclearweaponsconvention.

• MAPWformerpresidentAssociateProfessorTilmanRuff’scontributionsasNGOadvisertotheCo-chairsoftheInternationalCommissiononNuclearNon-ProliferationandDisarmament.

• Advocatingfortheremovalofweapons-gradeuraniumfromreactorsusedformedicalpurposes. The Australian governmenthasnowraisedthisissue internationally.

• Educationregardingthelinksbetweennuclearpowerandnuclearweaponsproliferation.

• Publicisingnewevidencelinkingnuclearpowerfacilitiesandchildhoodleukaemia.

• MAPWVice-PresidentPeterKaramoskos’advocacyasthepublic’srepresentativeontheRadiationHealthCommitteeoftheAustralianRadiationProtectionandNuclearSafetyAgency.

Campaigning for peace

• Repeatedadvocacyforthevictimsofarmedconflict–includinginSriLankaandinthe2008-09warinGaza,forhumanetreatmentofrefugeesfromtheseandotherwars,andforaccountabilityforallegedwarcrimes.

• OppositiontoAustralianDefenceForceinvolvementinIraqandAfghanistan.

• Awareness-raisingregardingthejointUS-AustralianTalismanSabremilitaryexercisesinJuly2009.

Spreading the word

• Regularemailandwebsitenewsandresourcesonpeaceandarmedconflict.

• AnactivestudentpresenceattheJuly2009GlobalHealthConferenceformedicalstudentsinBrisbane.

• Frequentmediaandcommunitycommentontheseissues.

The Medical Association for Prevention of War (Australia) is an organisation of health professionals dedicated to the prevention of armed conflict and the abolition of all weapons of mass destruction. It is affiliated with International Physicians for the Prevention of Nuclear War (IPPNW), recipient of the 1985 Nobel Peace Prize.

Ouractivitiesandachievementsoverthelastyearinclude:

We rely on members and supporters for funding. If you would like to contribute to MAPW’s work for peace, or if you would like to receive regular email updates on our activities, please contact our national office (details inside front cover) or visit www.mapw.org.au

“Instead of responding to each crisis as it happens, government leadership and policy must invest time, money, knowledge, technological innovation and wisdom into a twenty-first century strategy for peace.

Without this, our species is likely to reduce its time on earth. None of us can comprehend the full consequences of failure. We must act wisely to reduce the fear of difference and the causes of conflict, or future generations may not exist.”

— Jeff McMullen, Chapter 2, The real face of war