Back
About RSIS
Introduction
Building the Foundations
Welcome Message
Board of Governors
Staff Profiles
Executive Deputy Chairman’s Office
Dean’s Office
Management
Distinguished Fellows
Faculty and Research
Associate Research Fellows, Senior Analysts and Research Analysts
Visiting Fellows
Adjunct Fellows
Administrative Staff
Honours and Awards for RSIS Staff and Students
RSIS Endowment Fund
Endowed Professorships
Career Opportunities
Getting to RSIS
Research
Research Centres
Centre for Multilateralism Studies (CMS)
Centre for Non-Traditional Security Studies (NTS Centre)
Centre of Excellence for National Security
Institute of Defence and Strategic Studies (IDSS)
International Centre for Political Violence and Terrorism Research (ICPVTR)
Research Programmes
National Security Studies Programme (NSSP)
Social Cohesion Research Programme (SCRP)
Studies in Inter-Religious Relations in Plural Societies (SRP) Programme
Other Research
Future Issues and Technology Cluster
Research@RSIS
Science and Technology Studies Programme (STSP) (2017-2020)
Graduate Education
Graduate Programmes Office
Exchange Partners and Programmes
How to Apply
Financial Assistance
Meet the Admissions Team: Information Sessions and other events
RSIS Alumni
Outreach
Global Networks
About Global Networks
RSIS Alumni
Executive Education
About Executive Education
SRP Executive Programme
Terrorism Analyst Training Course (TATC)
International Programmes
About International Programmes
Asia-Pacific Programme for Senior Military Officers (APPSMO)
Asia-Pacific Programme for Senior National Security Officers (APPSNO)
International Conference on Cohesive Societies (ICCS)
International Strategy Forum-Asia (ISF-Asia)
Publications
RSIS Publications
Annual Reviews
Books
Bulletins and Newsletters
RSIS Commentary Series
Counter Terrorist Trends and Analyses
Commemorative / Event Reports
Future Issues
IDSS Papers
Interreligious Relations
Monographs
NTS Insight
Policy Reports
Working Papers
External Publications
Authored Books
Journal Articles
Edited Books
Chapters in Edited Books
Policy Reports
Working Papers
Op-Eds
Glossary of Abbreviations
Policy-relevant Articles Given RSIS Award
RSIS Publications for the Year
External Publications for the Year
Media
Cohesive Societies
Sustainable Security
Other Resource Pages
News Releases
Speeches
Video/Audio Channel
External Podcasts
Events
Contact Us
S. Rajaratnam School of International Studies Think Tank and Graduate School Ponder The Improbable Since 1966
Nanyang Technological University Nanyang Technological University
  • About RSIS
      IntroductionBuilding the FoundationsWelcome MessageBoard of GovernorsHonours and Awards for RSIS Staff and StudentsRSIS Endowment FundEndowed ProfessorshipsCareer OpportunitiesGetting to RSIS
      Staff ProfilesExecutive Deputy Chairman’s OfficeDean’s OfficeManagementDistinguished FellowsFaculty and ResearchAssociate Research Fellows, Senior Analysts and Research AnalystsVisiting FellowsAdjunct FellowsAdministrative Staff
  • Research
      Research CentresCentre for Multilateralism Studies (CMS)Centre for Non-Traditional Security Studies (NTS Centre)Centre of Excellence for National SecurityInstitute of Defence and Strategic Studies (IDSS)International Centre for Political Violence and Terrorism Research (ICPVTR)
      Research ProgrammesNational Security Studies Programme (NSSP)Social Cohesion Research Programme (SCRP)Studies in Inter-Religious Relations in Plural Societies (SRP) Programme
      Other ResearchFuture Issues and Technology ClusterResearch@RSISScience and Technology Studies Programme (STSP) (2017-2020)
  • Graduate Education
      Graduate Programmes OfficeExchange Partners and ProgrammesHow to ApplyFinancial AssistanceMeet the Admissions Team: Information Sessions and other eventsRSIS Alumni
  • Outreach
      Global NetworksAbout Global NetworksRSIS Alumni
      Executive EducationAbout Executive EducationSRP Executive ProgrammeTerrorism Analyst Training Course (TATC)
      International ProgrammesAbout International ProgrammesAsia-Pacific Programme for Senior Military Officers (APPSMO)Asia-Pacific Programme for Senior National Security Officers (APPSNO)International Conference on Cohesive Societies (ICCS)International Strategy Forum-Asia (ISF-Asia)
  • Publications
      RSIS PublicationsAnnual ReviewsBooksBulletins and NewslettersRSIS Commentary SeriesCounter Terrorist Trends and AnalysesCommemorative / Event ReportsFuture IssuesIDSS PapersInterreligious RelationsMonographsNTS InsightPolicy ReportsWorking Papers
      External PublicationsAuthored BooksJournal ArticlesEdited BooksChapters in Edited BooksPolicy ReportsWorking PapersOp-Eds
      Glossary of AbbreviationsPolicy-relevant Articles Given RSIS AwardRSIS Publications for the YearExternal Publications for the Year
  • Media
      Cohesive SocietiesSustainable SecurityOther Resource PagesNews ReleasesSpeechesVideo/Audio ChannelExternal Podcasts
  • Events
  • Contact Us
    • Connect with Us

      rsis.ntu
      rsis_ntu
      rsisntu
      rsisvideocast
      school/rsis-ntu
      rsis.sg
      rsissg
      RSIS
      RSS
      Subscribe to RSIS Publications
      Subscribe to RSIS Events

      Getting to RSIS

      Nanyang Technological University
      Block S4, Level B3,
      50 Nanyang Avenue,
      Singapore 639798

      Click here for direction to RSIS

      Get in Touch

    Connect
    Search
    • RSIS
    • Publication
    • RSIS Publications
    • CO13098 | Australia’s New Defence White Paper: Shifting the Goal Posts
    • Annual Reviews
    • Books
    • Bulletins and Newsletters
    • RSIS Commentary Series
    • Counter Terrorist Trends and Analyses
    • Commemorative / Event Reports
    • Future Issues
    • IDSS Papers
    • Interreligious Relations
    • Monographs
    • NTS Insight
    • Policy Reports
    • Working Papers

    CO13098 | Australia’s New Defence White Paper: Shifting the Goal Posts
    Sam Bateman

    23 May 2013

    download pdf

    Synopsis

    The new Australian Defence White Paper issued earlier this month re-focuses Australia’s strategic attention on its nearer region – the so-called Indo-Pacific arc. What are the implications for Australia’s regional neighbours?

    Commentary

    THE AUSTRALIAN Government released a new Defence White Paper in early May, less than four years after the previous White Paper in 2009. Coming just a few months before a Federal election with the polls pointing strongly to a change of government in Canberra, the Federal Opposition has already said that if elected, they will issue their own White Paper.

    The Government claims a new White Paper was required because of the Australian Defence Force’s operational drawdown from Afghanistan, Timor-Leste and Solomon Islands; the ongoing economic strategic and military shift of influence to the Indo-Pacific; the US re-balance to the Asia-Pacific; and the persistent impact of the Global Financial Crisis.

    The Indo-Pacific Arc

    Critics have suggested, some say unfairly, that the document is just a political gimmick to gain support at the upcoming Federal election by showing that the government is serious about defence. However the document does include new elements that would likely have bipartisan support.

    The White Paper refocusses Australia’s strategic attention back to its nearer region. The lingering expeditionary considerations of the 2009 White Paper are gone. The 2013 Paper makes much of a new strategic construct – the Indo-Pacific strategic arc – connecting the Indian and Pacific Oceans through Southeast Asia. It emphasises the growing strategic importance of India and Indonesia, noting that Australia’s longstanding partnership with Indonesia remains Canberra’s most important defence relationship in the region.

    The security of Australia itself is the first key strategic interest identified in the White Paper. The security, stability and cohesion of the immediate neighbourhood, which is shared with Papua New Guinea, Timor-Leste and South Pacific states, is the second key interest; the third key strategic interest is the stability of the Indo-Pacific, particularly Southeast Asia and the maritime environment.

    Rather than focussing on a narrow set of bilateral relationships, the paper emphasises the importance of multilateral approaches. It says Australia’s security environment will be significantly influenced by how the Indo-Pacific and its architecture evolves. Hence Australia will do what it can to help strengthen the regional security architecture so that it embraces the US, China, India, Indonesia, Japan, the Republic of Korea and other regional states within a community that is able to discuss political, economic and security issues and act cooperatively to address them. Accordingly, Canberra will actively support institutions such as the East Asia Summit (EAS), the ASEAN Regional Forum (ARF) and the ASEAN Defence Ministers Meeting Plus (ADMM Plus).

    Australia’s shifting posture towards China

    Canberra’s view of China is very different in the 2013 White Paper from that of the 2009 document that reflected some hawkish views about the possible threat posed by China and its military expansion. The 2013 paper acknowledges that Chinais an important partner for Australia in the region and that the defence relationship is a key component of the broader bilateral relationship. Accordingly Canberra “does not approach China as an adversary. Rather its policy is aimed at encouraging China’s peaceful rise and ensuring that strategic competition in the region does not lead to conflict”.

    Prime Minister Gillard’s visit to China in April 2013 was a major breakthrough in the bilateral relationship. The two sides agreed to designate this relationship as a ‘strategic partnership’ in recognition of its breadth and complexity. They also agreed to conduct annual dialogues at the leaders-level, as well as annual bilateral ministerial-level Foreign and Strategic Dialogues and a Strategic Economic Dialogue, to promote closer cooperation across a range of issues. These will be in addition to the longstanding Defence Strategic Dialogue held annually between the Department of Defence and the People’s Liberation Army (PLA).

    The defence relationship is articulated further in the Australia-China Defence Engagement Action Plan. The Plan includes initiatives to enhance maritime engagement, peacekeeping cooperation, humanitarian assistance and disaster relief engagement, working-level activities, academic exchanges and senior level dialogue.

    Maritime dimension 

    The White Paper notes that the emerging Indo-Pacific system is predominantly a maritime environment with Southeast Asia at its geographic centre. That means a strategic focus on the archipelagic arc to Australia’s north stretching from Indonesia through Papua New Guinea to Solomon Islands and Vanuatu.

    Arguably this arc also includes the Philippines through which vital Australian trade routes pass and which has a pressing need to improve its maritime security. While relations with Indonesia, Timor-Leste and Papua New Guinea are all mentioned in the White Paper as strategic priorities, the Philippines is rather down-played, being put together with Thailand as a more remote but long-standing defence partner.

    The 2012 Philippines-Australia Status of Visiting Forces Agreement is now in place, and the White Paper notes that Canberra will seek to enhance practical engagement with the Philippines, particularly in counter-terrorism and maritime security.

    Where’s the money?

    The major weakness of the White Paper is its lack of detail on money. It has a short chapter on Defence Budget and Finances that discusses the process but has no dollars.

    The Australian Government has ruled out further funding cuts in the Defence Budget after a AUS$5.5 billion cut last year, but retains its commitment to the ‘big money’ items of 12 Australian-designed and built submarines, 12 Boeing EA-18 G “Growler” fighters and 72 Lockheed Martin stealth Joint Strike Fighters. Two new Australian-built supply ships and 24 new Australian-built patrol boats are also to be fast-tracked.

    Simple ‘back of the envelope’ calculations throw real doubt on how all these acquisitions will be accommodated within realistic projections of the Defence Budget. The money may simply not be there, unless there is some sudden deterioration in Australia’s strategic circumstances necessitating a marked increase in defence spending.

    About the Author

    Sam Bateman is a Senior Fellow in the Maritime Security Programme at the S. Rajaratnam School of International Studies (RSIS), Nanyang Technological University. He is a former Australian naval commodore who had several postings in the Strategic Policy area of the Department of Defence in Canberra.

    Categories: RSIS Commentary Series / Maritime Security / East Asia and Asia Pacific

    Synopsis

    The new Australian Defence White Paper issued earlier this month re-focuses Australia’s strategic attention on its nearer region – the so-called Indo-Pacific arc. What are the implications for Australia’s regional neighbours?

    Commentary

    THE AUSTRALIAN Government released a new Defence White Paper in early May, less than four years after the previous White Paper in 2009. Coming just a few months before a Federal election with the polls pointing strongly to a change of government in Canberra, the Federal Opposition has already said that if elected, they will issue their own White Paper.

    The Government claims a new White Paper was required because of the Australian Defence Force’s operational drawdown from Afghanistan, Timor-Leste and Solomon Islands; the ongoing economic strategic and military shift of influence to the Indo-Pacific; the US re-balance to the Asia-Pacific; and the persistent impact of the Global Financial Crisis.

    The Indo-Pacific Arc

    Critics have suggested, some say unfairly, that the document is just a political gimmick to gain support at the upcoming Federal election by showing that the government is serious about defence. However the document does include new elements that would likely have bipartisan support.

    The White Paper refocusses Australia’s strategic attention back to its nearer region. The lingering expeditionary considerations of the 2009 White Paper are gone. The 2013 Paper makes much of a new strategic construct – the Indo-Pacific strategic arc – connecting the Indian and Pacific Oceans through Southeast Asia. It emphasises the growing strategic importance of India and Indonesia, noting that Australia’s longstanding partnership with Indonesia remains Canberra’s most important defence relationship in the region.

    The security of Australia itself is the first key strategic interest identified in the White Paper. The security, stability and cohesion of the immediate neighbourhood, which is shared with Papua New Guinea, Timor-Leste and South Pacific states, is the second key interest; the third key strategic interest is the stability of the Indo-Pacific, particularly Southeast Asia and the maritime environment.

    Rather than focussing on a narrow set of bilateral relationships, the paper emphasises the importance of multilateral approaches. It says Australia’s security environment will be significantly influenced by how the Indo-Pacific and its architecture evolves. Hence Australia will do what it can to help strengthen the regional security architecture so that it embraces the US, China, India, Indonesia, Japan, the Republic of Korea and other regional states within a community that is able to discuss political, economic and security issues and act cooperatively to address them. Accordingly, Canberra will actively support institutions such as the East Asia Summit (EAS), the ASEAN Regional Forum (ARF) and the ASEAN Defence Ministers Meeting Plus (ADMM Plus).

    Australia’s shifting posture towards China

    Canberra’s view of China is very different in the 2013 White Paper from that of the 2009 document that reflected some hawkish views about the possible threat posed by China and its military expansion. The 2013 paper acknowledges that Chinais an important partner for Australia in the region and that the defence relationship is a key component of the broader bilateral relationship. Accordingly Canberra “does not approach China as an adversary. Rather its policy is aimed at encouraging China’s peaceful rise and ensuring that strategic competition in the region does not lead to conflict”.

    Prime Minister Gillard’s visit to China in April 2013 was a major breakthrough in the bilateral relationship. The two sides agreed to designate this relationship as a ‘strategic partnership’ in recognition of its breadth and complexity. They also agreed to conduct annual dialogues at the leaders-level, as well as annual bilateral ministerial-level Foreign and Strategic Dialogues and a Strategic Economic Dialogue, to promote closer cooperation across a range of issues. These will be in addition to the longstanding Defence Strategic Dialogue held annually between the Department of Defence and the People’s Liberation Army (PLA).

    The defence relationship is articulated further in the Australia-China Defence Engagement Action Plan. The Plan includes initiatives to enhance maritime engagement, peacekeeping cooperation, humanitarian assistance and disaster relief engagement, working-level activities, academic exchanges and senior level dialogue.

    Maritime dimension 

    The White Paper notes that the emerging Indo-Pacific system is predominantly a maritime environment with Southeast Asia at its geographic centre. That means a strategic focus on the archipelagic arc to Australia’s north stretching from Indonesia through Papua New Guinea to Solomon Islands and Vanuatu.

    Arguably this arc also includes the Philippines through which vital Australian trade routes pass and which has a pressing need to improve its maritime security. While relations with Indonesia, Timor-Leste and Papua New Guinea are all mentioned in the White Paper as strategic priorities, the Philippines is rather down-played, being put together with Thailand as a more remote but long-standing defence partner.

    The 2012 Philippines-Australia Status of Visiting Forces Agreement is now in place, and the White Paper notes that Canberra will seek to enhance practical engagement with the Philippines, particularly in counter-terrorism and maritime security.

    Where’s the money?

    The major weakness of the White Paper is its lack of detail on money. It has a short chapter on Defence Budget and Finances that discusses the process but has no dollars.

    The Australian Government has ruled out further funding cuts in the Defence Budget after a AUS$5.5 billion cut last year, but retains its commitment to the ‘big money’ items of 12 Australian-designed and built submarines, 12 Boeing EA-18 G “Growler” fighters and 72 Lockheed Martin stealth Joint Strike Fighters. Two new Australian-built supply ships and 24 new Australian-built patrol boats are also to be fast-tracked.

    Simple ‘back of the envelope’ calculations throw real doubt on how all these acquisitions will be accommodated within realistic projections of the Defence Budget. The money may simply not be there, unless there is some sudden deterioration in Australia’s strategic circumstances necessitating a marked increase in defence spending.

    About the Author

    Sam Bateman is a Senior Fellow in the Maritime Security Programme at the S. Rajaratnam School of International Studies (RSIS), Nanyang Technological University. He is a former Australian naval commodore who had several postings in the Strategic Policy area of the Department of Defence in Canberra.

    Categories: RSIS Commentary Series / Maritime Security

    Popular Links

    About RSISResearch ProgrammesGraduate EducationPublicationsEventsAdmissionsCareersVideo/Audio ChannelRSIS Intranet

    Connect with Us

    rsis.ntu
    rsis_ntu
    rsisntu
    rsisvideocast
    school/rsis-ntu
    rsis.sg
    rsissg
    RSIS
    RSS
    Subscribe to RSIS Publications
    Subscribe to RSIS Events

    Getting to RSIS

    Nanyang Technological University
    Block S4, Level B3,
    50 Nanyang Avenue,
    Singapore 639798

    Click here for direction to RSIS

    Get in Touch

      Copyright © S. Rajaratnam School of International Studies. All rights reserved.
      Privacy Statement / Terms of Use
      Help us improve

        Rate your experience with this website
        123456
        Not satisfiedVery satisfied
        What did you like?
        0/255 characters
        What can be improved?
        0/255 characters
        Your email
        Please enter a valid email.
        Thank you for your feedback.
        This site uses cookies to offer you a better browsing experience. By continuing, you are agreeing to the use of cookies on your device as described in our privacy policy. Learn more
        OK
        Latest Book
        more info