To enhance the regional security environment based on acceptance of cooperative security approaches in our region.
To limit the proliferation of nuclear and other weapons of mass destruction and missile delivery systems, particularly in our region.
To strengthen the effectiveness of the United Nations in cooperative security arrangements.
To promote solutions of international environmental issues consistent with Australia’s economic and environmental interests.
To advance Australia’s interests through strengthening the effectiveness of international organisations in political, social and humanitarian issues.
This sub-program is the responsibility of two branches of the International Organisations and Legal Division-International Organisations Branch and Environment and Antarctica Branch-and three branches of the International Security Division-Nuclear Policy Branch, Peace, Arms Control and Disarmament Branch, and Strategic Assessments Branch. Key strategies include pursuing these objectives through active participation in the multilateral system; improving the effectiveness of the multilateral system to better advance Australia’s objectives; through bilateral consultation and negotiation; and through effectively coordinating and projecting policy interests in Australia.
Achievement of Australian foreign policy objectives through the multilateral system, including advancement of dialogue and outcomes favourable to our political, humanitarian, environmental, social, arms control, disarmament and security interests;
Improvements in the effectiveness and efficiency of international organisations and other multilateral and regional mechanisms; and
Acceptance of Australian policies and initiatives by other countries, and the extent to which this is reflected in changed international behaviour.
Senator Evans’s book, Cooperating for Peace, was launched with great success at the 48th Session of the United Nations General Assembly in New York as Australia’s contribution to the debate initiated by the Secretary-General’s An Agenda for Peace. The book takes stock in a systematic, balanced and realistic way of security problems confronting the international community and how they can be tackled more effectively. Departmental officers contributed to this ‘blue book’ and to debate on its ideas, overseas and in Australia, and will continue to do so. A central concern of the sub-program is now with activities to follow up on the themes and recommendations set out in Cooperating for Peace, particularly to stimulate further debate on the fundamental concept of cooperative security, and to generate more support for action in the UN and elsewhere to strengthen international cooperation in the highest priority areas, including preventive diplomacy, peace building, peace-keeping and coordination of humanitarian relief activities.
Australia continued to be prominent among member states pushing the reform of the UN, particularly the introduction of modern personnel and management practices, more accountability, control of waste and duplication and enhanced program delivery. A stronger audit and inspection capacity was one of the Australian delegation’s objectives at UNGA 48, where the establishment of a UN Office of Inspector- General was given strong endorsement. A zero real growth budget for 1994-95, with substantial additional resources for human rights and political and humanitarian affairs, was approved at UNGA 48. Australia also pursued its concerns over the impact of assessments arising from the expansion in peace- keeping operations at the annual Geneva (Developed Country) Group meeting in October 1993.
The Government endorsed all of the recommendations in the Biennial Review of the United Nations, UN Specialised Agencies and Commonwealth Bodies, 1992-93. The review, which the Department conducts regularly in consultation with the broad range of government departments and agencies with an interest in the UN system, highlighted the breadth of our interest in UN reform. It recommended the establishment of an inter-departmental committee, chaired by the Department, to coordinate better Australia’s approach to electoral, reform and budget issues, commercial benefits, candidatures and senior posts. The committee held its first meeting in June 1994.
The United Nations will celebrate its 50th anniversary in 1995. Australia is supporting the event internationally through the role of its Permanent Representative to the UN, Mr Richard Butler, as Chair of the United Nations Preparatory Committee for the 50th Anniversary. Senator Evans chairs a national committee to prepare for the event, and the Department is planning suitable ways to mark the occasion. The Federal and NSW Governments are sponsoring a global diversity conference in Sydney, linked to the anniversary, in April 1995. The UN Secretary General, Mr Boutros-Ghali, has accepted an invitation to attend.
UN peace keeping
Although the overall number of personnel deployed in UN peace-keeping operations declined a little from its peak last year, it remained at more than 70 000. The complexity of the operations in the former Yugoslavia, Somalia, and Rwanda continued to put pressure on the capacity of the UN to plan and manage peace-keeping operations. As a result of problems in these operations, there were signs that the international community was becoming more realistic in its expectations of what they can achieve.
Following the withdrawal in May 1994 of the Australian contingent of 45 communications personnel from the Mission for the Referendum in the Western Sahara (MINURSO), the ADF continued to be represented in the UN Truce Supervision Organisation (UNTSO) in the Middle East and in the UN Operation in Somalia (UNOSOM). In March 1994 16 Australian Federal Police (AFP) officers were deployed to the UN Operation in Mozambique (ONUMOZ). The Department continued to be active in formulating foreign policy views on our involvement in peace-keeping operations, and cooperated with the Department of Defence and the ADF on a number of peace-keeping training activities with a strong regional focus.
UN elections
Australia was re-elected to the FAO Council, the UN Statistical Commission and the Executive Board of UNICEF. Australia assisted New Zealand’s election to the Governing Board of the United Nations Development Program.
Australia was elected as the endorsed Western European and Others Group (WEOG) candidate to second terms on the Commission on Sustainable Development (CSD) and the Committee on Economic, Social and Cultural Rights (CESCR). Australia nominated for election to a second term on the Economic and Social Council (ECOSOC) and the UN Commission on International Trade Law (UNCITRAL). Elections for these positions will be held at UNGA 49.
Dr Geoff Miller was narrowly defeated in the sixth and final round of elections for the position of Director-General of FAO. The voting outcome was disappointing but the intensive campaign underlined the reputation of Australia as a committed partner of both developed and developing countries on agricultural issues.
Australia’s candidature for election in 1996 to the Security Council was announced by the Government. If successful, Australia will hold a seat on the Security Council for the period 1997-98. This election will be the Department’s foremost priority candidature within the United Nations over the next two years.
Human rights
The Department energetically pursued the Government’s objectives of advancing human rights standards internationally and of promoting the rights of indigenous peoples. The Department was frequently involved in making representations to other governments on human rights matters of concern. Many of these were brought to the Government’s attention by the Parliamentary Group of Amnesty International. During 1993 the Department made 534 new representations to 90 foreign governments. These covered concerns over abuses such as extra-judicial killings, torture, detention without trial and the use of the death penalty.
The Department was occupied with preparations for a Parliamentary Consultative Delegation to Vietnam which would have contributed to the establishment of a dialogue on human rights issues. Unfortunately, it became necessary to cancel the visit, scheduled for July 1994, when Vietnam denied a visa to one member of the delegation and cut back the previously agreed program.
The Department was occupied in follow up to the June 1993 Vienna World Conference on Human Rights. At Vienna, Australia had successfully pursued its initiative on ‘national action plans’ and an important activity in 1993-94 was the preparation of Australia’s plan. Following intensive interdepartmental work, Australia was able to table its National Action Plan at CHR 50 and was the first country to do so. Since then several others have indicated an intention to follow Australia’s lead.
The Department was intensively involved in work in the United Nations aimed at the promotion and protection of human rights. This covered a very full schedule, including the UN General Assembly, the Commission on Human Rights (CHR), the Commission on the Status of Women (CSW) and the Working Group on Indigenous Populations (WGIP), as well as numerous other UN bodies and meetings.
Departmental officers at relevant posts and in Canberra were closely involved in human rights work at UNGA 48 and at CHR 50. This included activity on a range of country situations of concern to Australians, as well as on improvements to national and international human rights mechanisms. Both meetings were occasions for numerous statements outlining Australian positions on human rights issues. At UNGA 48 Australia strongly supported successful moves to establish the position of High Commissioner for Human Rights. At CHR 50 Australia took a leading role in drafting and leading negotiations on resolutions on Cambodia, Somalia, the promotion of national human rights institutions, trade union rights and on the International Decade For The World’s Indigenous People. Australia was also closely involved in work on resolutions and other action on Burma, Sri Lanka, East Timor, the prevention of sexual exploitation of children and the right to development. In addition, Australia supported resolutions on former Yugoslavia, China, Sudan, Iran, Iraq and Cuba. Australia was also active in work on thematic and functional issues, including regional arrangements in the Asia-Pacific region, the effective functioning of human rights treaty bodies, the appointment of a special rapporteur on violence against women and the establishment of a working group to draft an optional protocol to the Rights of the Child Convention which would outlaw the sexual exploitation of children.
Australia has contributed $50 000 to an appeal for funding for the UN Centre for Human Rights which established an office in Phnom Penh in October 1993. As well, departmental officers in Geneva, Phnom Penh and Canberra have assisted Mr Justice Michael Kirby, who was appointed by the UN Secretary- General in November 1993, as his Special Representative for Human Rights in Cambodia.
The Department supported Australia’s participation in the 1993 session of the Working Group on Indigenous Populations (WGIP). WGIP’s completion of its consideration of the Draft Declaration on the Rights of Indigenous People met a long-standing Australian objective. Australia was active in promoting the International Year of the World’s Indigenous People as a means of raising international awareness of indigenous issues.
The Department worked closely with the Human Rights and Equal Opportunity Commission in regional and international diplomacy aimed at the strengthening of national human rights institutions. Australian advice was involved in the establishment of national institutions in Indonesia, India and Latvia and discussions on other subject were held with a number of other countries.
The Department provided modest levels of assistance through its Human Rights Fund for activities, mainly in the region, aimed at the promotion of human rights. Pursuant to Senator Evans’s announcement at the World Conference, an agreement was signed with the UN’s Centre for Human Rights setting out provisions for Australia’s contribution of $300 000 to the UN’s Voluntary Fund for Technical Assistance in the field of human rights.
The Department maintained close contact with non-government human rights organisations through tri- annual consultations. The Department also strengthened its activities in human rights training for departmental and other staff. In late 1993, the Department published a ‘human rights manual’, which comprehensively outlined Australia’s approach to international human rights. The Department also established a human rights training course, in collaboration with Australian non-government organisations and AIDAB, aimed at improving the knowledge and skills of departmental and other Australian officials dealing with human rights matters.
Status of women
The Department promoted women’s rights internationally by contributing to the activities of multilateral bodies dealing specifically with women’s rights. This was supplemented by increased efforts to inject the consideration of women’s rights into other ‘mainstream’ human rights forums.
At the Vienna World Conference on Human Rights, Australia-along with other like minded countries- ensured that the equal status and human rights of women were given proper consideration. This effort facilitated a request to the Commission on the Status of Women (embodied in the Vienna Declaration and Programme of Action) to examine quickly the possibility of introducing an individual complaints mechanism through an optional protocol to the Convention on the Elimination of All Forms of Discrimination Against Women. Other significant advances included adoption at UNGA 48 of a Declaration on Violence Against Women. Australia worked actively to achieve this outcome. Also CHR 50 agreed to the appointment of a UN Special Rapporteur on Violence Against Women. This decision added to the significance of the Declaration itself and fitted with Australia’s objective of accelerating the integration of women’s rights into mainstream human rights forums.
In all aspects of its activities in this area, the Department worked closely with the Office of the Status of Women and AIDAB.
UNESCO
The Department coordinated briefing for the 27th Session of the UNESCO General Conference held in Paris in October and November 1993. It elected Dr Federico Mayor to a second term as Director- General, agreed to a two year budget of some US $455 million and adopted over 120 resolutions addressing program, legal, financial and constitutional matters. The Australian delegation made a significant contribution to the General Conference through its chairing of the Social Sciences Commission and in its role as rapporteur of the Finance and Administration Commission.
The Hon. Barry Jones MP continued his four year term as a member of the UNESCO Executive Board and actively pursued Australia’s interests in reform of UNESCO and our increased engagement in UNESCO program activities.
The Australian National Commission for UNESCO, to whose work the Department contributes briefing and advice, convened a national seminar in September 1993 with the theme ‘UNESCO: Past Performance, Future Challenge’. The Australian National Commission for UNESCO endorsed the outcomes of the Seminar and implemented a number of strategies to increase Australia’s active participation in UNESCO program activities and also to maintain a focus on the continuing reform of UNESCO. The National Commission was successful in obtaining funding under the UNESCO Participation Program for 1994-95 for six projects valued at more than US$100 000, and under the small grants program of the National Commission, 24 separate projects received funding.
Mr Richard Walsh resigned as Chairperson of the National Commission in September 1993 and the Minister for Foreign Affairs appointed Professor Kenneth Wiltshire, the J.D. Story Professor of Government at the University of Queensland, as his replacement. The Minister also appointed Ms Margaret Coaldrake, Director of the Museum of Australia, as deputy chairperson.
Narcotics
1993-94 was an active year for the Department in the continuing international campaign against the production, trafficking, sale and abuse of illicit narcotics.
The United Nations General Assembly devoted five meetings of its 48th session in November 1993 to the discussion of international action being taken to combat illicit drugs. Officers of the Department were actively involved in the debate and in negotiating resolutions flowing from the session.
In March 1994 the Government endorsed Australia’s International Drug Strategy (1994-1998). The plan sets Australia’s international priorities and coordinates the use of resources in order to make a significant contribution to global efforts to reduce drug abuse. In particular the Plan focuses and clarified Australia’s strategies for international drug action and provides the basis for a number of domestic agencies including law enforcement, customs and health, to develop complementary action plans. The key objective of the strategy is to protect and enhance the health, welfare, safety and prosperity of the Australian community through an integrated and comprehensive strategy against illicit drugs.
Officers of the Department again participated actively at the Commission on Narcotic Drugs in Vienna in April 1994. The commission is the key policy making mechanism for the United Nations International Drug Control Program (UNDCP) and is instrumental in setting priorities for international action to combat the illicit trade in narcotics.
Australia continued to be active in coordinating the operations of the so-called Dublin Group in the major narcotic producing regions of Thailand, Burma and Laos through its chairmanship in 1993 of the local chapters of the Group. (The Dublin Group, established in 1990, allows the exchange of information on narcotic matters among members of the European Community, Japan, Australia, Canada and the United States.) These Groups provided the opportunity for the exchange of valuable information between major donors to UNDCP on the efforts being undertaken in the host country to combat the production and trafficking of illicit narcotics.
The Department has played an active role in promoting reforms to the conduct of Commonwealth programs, funding arrangements and the secretariat.
Commonwealth Heads of Government met in Cyprus in October 1993 and expressed their satisfaction at measures taken towards ensuring that the Secretariat’s activities were based on critical examination of the Commonwealth’s comparative advantage. At Australia’s initiative, the Cyprus CHOGM issued a high profile statement urging an early successful conclusion to the Uruguay Round. Following the Cyprus CHOGM, Prime Minister Keating proposed a series of reforms to maximise the value of these meetings. The Cyprus CHOGM also established a Commonwealth inter-governmental group to examine how the Commonwealth could contribute to the international debate on ‘the emergence of a global humanitarian order’. The CHOGM reform process is continuing, with important changes likely for the next meeting in Auckland in 1995.
Senator Evans continued to play a leading role in Commonwealth discussions on South Africa, including in the decision in September 1993 to lift non-military sanctions. The Commonwealth’s high profile on South Africa was maintained through the activities of the Commonwealth Observer Mission to South Africa (COMSA) and the Commonwealth Electoral Observer Group (CEOG). Australians participated actively in both these initiatives. South Africa rejoined the Commonwealth in June 1994.
The Commonwealth dispatched an election observer mission to Pakistan in October 1993, led by senior Australian state parliamentarian Clive Griffiths. Commonwealth Secretary-General Anyaoku visited Australia as a guest of government in March 1994.
The Department participated in an intensive program of international environment and Antarctic meetings and negotiations. Outcomes broadly satisfied the range of important Australian environmental and economic interests engaged in the process. The Department gave increased attention to the relationship between the environment and other areas of policy, in particular trade, and continued to press Australian interests in making trade and the environment mutually supportive. Reflecting growing community interest, the Department worked hard to establish stronger relations with non-governmental organisations (industry, environment and development) and the state governments.
Climate change
The United Nations Framework Convention on Climate Change entered into force on 21 March 1994.
The preparatory meetings for the first conference of the parties, which will be held in Berlin in March 1995, have had a heavy workload to set in place the mechanisms of the convention. These mechanisms include methodologies to measure greenhouse gas emissions so that the data from different countries can be easily compared; the format for country reports; the way in which parties to the convention could implement measures jointly with each other; and details of how the funding mechanism is to operate
The adequacy of the convention’s commitments to meet its objective-which is to stabilise greenhouse gas concentrations in the atmosphere at a level which would prevent dangerous human interference with the climate system-has been another major issue considered in the preparatory meetings. The central implicit (but not binding) commitment is for developed countries to return to their 1990 levels of greenhouse gas emissions by the year 2000.
The convention is of particular importance to Australia because of our vulnerability to the potential impacts of climate change and the structure of our economy. The Department plays a central cooperative role in formulating Australia’s approach to the negotiations to ensure that it reflects the range and balance of Australia’s environmental, foreign policy and trade interests.
Biological diversity
The Convention on Biological Diversity entered into force on 29 December 1993. The Department led Australian delegations to negotiations in October 1993 and June 1994 to prepare for the first meeting of the Conference of the Parties, in November 1994. It also assisted an Australian delegation to a meeting of scientific experts on biological diversity in Mexico in April 1994. Australia, as the only mega-diverse developed country, is in a unique position and has continued to play an active role in ensuring the early and effective implementation of the Convention both in Australia and overseas. The Department contributed to work initiated by a Commonwealth-State Working Group to consider a national approach to access to genetic resources, to ensure protection of Australian interests in observing convention requirements.
Desertification
Australia played an active role in the negotiations mandated by the UN General Assembly to draw up a convention on desertification. The text of the convention was adopted in June. The convention is to open for signature and ratification in October.
The adopted text meets Australia’s concerns that the convention be global in scope and application; that it stress the causes of desertification; that it emphasise Africa but not to the exclusion of other regions; and that it reflect a commitment to community involvement and application. In addition the convention allows, but does not require, developed countries like Australia which are affected by desertification to prepare national action programs.
Australia is committed to the sustainable development objectives of the convention and considers that desertification has important links with other global problems. In addition we are well placed to offer other countries the benefit of our own experience and expertise in relation to desertification.
Small island states
The Global Conference on the Sustainable Development of Small Island Developing States, held in Barbados from 25 April-6 May 1994, addressed small island states sustainable development needs, in particular the vulnerabilities faced by small island developing states (SIDS). Australia played an active role in the conference’s preparatory process which was chaired by Australia’s Ambassador for the Environment, Ms Penny Wensley.
The conference produced a program of action which provides a clear, detailed blueprint to guide governments and UN as well as non-UN agencies in the sustainable development of SIDS, identifying their special problems and priorities and solutions to address them. Donors, particularly UN agencies, are urged to achieve greater coordination and integration of SIDS-related activity and policies, to ensure more effective use of ODA funds.
SIDS in each region are to identify or establish a consultative mechanism to facilitate coordination and implementation of the program of action. Australia is working with other South Pacific Forum members with a view to identifying an existing structure to perform this important function.
At the conference, the Australian delegation led by Mr Bilney, demonstrated its commitment to sustainable development in SIDS. The G77, in particular Pacific island countries and the small states of the Caribbean and Indian Ocean, commented favourably on the constructive role Australia played.
Commission on Sustainable Development
The 53-member Commission on Sustainable Development (CSD), of which Australia is a founding member, has a mandate to ensure effective follow-up to the United Nations Conference on Environment and Development (UNCED) and the integration of environment and development in the UN system.
In March, Australia submitted its first national report to the CSD on activities being undertaken to give effect to Agenda 21, the blueprint for action on environment and development issues agreed by governments at UNCED. The Department contributed to the report. It also managed the campaign for Australia’s successful re-election to the commission for a second term (1995-97).
In May, the Department led the delegation to the second session of the Commission which reviewed international progress on sustainable development in the areas of freshwater, human health, human settlements, toxic chemicals, hazardous wastes and radioactive wastes. The CSD also considered the availability of financial resources and technologies to assist developing countries achieve sustainable development, trade and environment issues, and changing consumption and production patterns. Australia’s major objective for this session was to promote decisions by the CSD, backed by the political will of its high-level Ministerial segment, which would result in further concrete action by the international community in these areas.
Trade and environment
The Department has been active in international forums including the GATT/WTO, the OECD, UNCTAD, UNEP and the CSD to ensure that trade and environment policies are made mutually supportive. It has also broadened the NGO Consultative Forum on International Environmental Issues to include a working group on trade and environment.
The Government supported references to sustainable development in the preamble of the World Trade Organisation (WTO) text agreed as part of Uruguay Round negotiations and the establishment of a committee established under the WTO to examine the links between trade and the environment.
The Department has led Australian delegations to the OECD’s Joint Session of Trade and Environment Experts, which is executing the work programme established following the endorsement of procedural guidelines on trade and environment policies in June 1993.
Australia supports the provision of specialised input from UNEP and UNCTAD into the international debate on trade and environment and encourages the CSD to ensure that UN bodies work cooperatively on trade and environment with other forums to ensure an efficient approach.
Antarctica
Australia continues to attach high priority to the protection of the Antarctic environment. The completion of legislation enabled Australia to ratify the Madrid Protocol in April, one of the first countries to do so on the basis of implementing legislation. Only nine of the 26 consultative parties, however, have ratified and further action will be needed to ensure the protocol’s early entry into force.
The Department led the delegation to the 18th Antarctic Treaty Consultative Meeting in Kyoto in April. It was active there in promoting the early operation of the Madrid Protocol, pending its entry into force, by securing agreement to convoke a Transitional Environmental Working Group (TEWG) at the next Treaty meeting in Seoul to address issues arising under the Protocol. The Department played a leading role in the proposal and negotiation of international guidelines for the conduct of tourism in Antarctica and also participated in a meeting of legal experts negotiating liability provisions under the Madrid Protocol.
At the annual meeting of Commission of the Convention for the Conservation of Antarctic Marine Living Resources (CCAMLR) in Hobart in October 1993, Australia contributed to the examination of CCAMLR secretariat operations as well as to consolidating conservation measures for Antarctic marine living resources.
The Australian Antarctic Foundation funded a number of Antarctic exhibitions and seminars, including ‘Women in Antarctica’, saw the completion of the Conservation Strategy for the Australian Antarctic Territory and funded participation in Australian Antarctic expeditions by scientists from China, Russia and Estonia and by a journalist from Indonesia. A review was conducted of the Foundation’s operations. The Foundation will continue its work but with a reduced budget.
NGO Consultative Forum on International Environmental Issues
The consultative forum provides a channel for the wider NGO community, not just the 17 members, to discuss international environmental issues with the Government. Meetings were held on 8 November 1993 and 20 April 1994. Substantive discussions on climate change and trade and the environment occurred and officials provided briefings on international developments since the 1992 Earth Summit.
A working group was formed under the auspices of the NGO forum to discuss trade and the environment. At the first meeting on 23 March 1994 working arrangements were identified and access to information was deemed to be critical to NGO capacity to provide input to policy development. Agreement was reached on a procedure for distributing official information to NGOs which would contribute to the work of the group by providing comments on issues arising at forthcoming meetings of international bodies, and statements on their trade and environment policy for analysis.
At the April 1994 meeting, an exchange of views on government policies towards the environment took place between Ministers and environment and development NGOs. Useful discussions followed between NGOs and officials on the Commission on Sustainable Development; APEC and the environment; convention developments (desertification, climate change, Law of the Sea, biological diversity and the Convention on International Trade in Endangered Species (CITES) and on NGO participation in government delegations.
Regional and bilateral action
Environment issues occupy an important place in Australia’s regional and bilateral relationships. Australia has environmental cooperation arrangements with France, Germany, the Russian Federation, the European Union, Indonesia, Japan and Singapore. A similar arrangement with China is being negotiated.
Talks were held with the Environment Ministers of Germany and Indonesia. Activities associated with these talks demonstrated the capabilities of the Australian environmental management industry. Bilateral environment talks at officials level were held with New Zealand, Indonesia, France and Denmark. Environment issues formed a central component of the annual ASEAN-Australia officials talks held in Canberra in May 1994.
Stronger commercial links with Asia and improved awareness of Australian environmental technology were promoted through the Department’s participation in the steering committee for the ‘Environmental Cooperation with Asia Program’ which forms part of the ‘Australia in Asia: Economies Growing Together’ initiative. The program seeks to strengthen commercially-based environmental relations in the region by enhancing awareness of the advantages of integrated environmental protection measures and the availability and cost competitiveness of Australian capabilities to assist in solving environmental problems.
A meeting of APEC environment ministers in Vancouver from 24-25 March contributed to making trade and environment policies mutually supportive. The environment ministers agreed on the value of integrating environmental concerns into their policy making and into APEC’s activities. This was reflected in two statements agreed at the meeting: the ‘APEC Environmental Vision Statement’ and ‘Framework of Principles for Integrating Economy and Environment in APEC’.
The International Union for the Conservation of Nature (IUCN), which has a membership of 64 countries, some 100 government agencies, 600 NGOs and 37 affiliates, held its 19th triennial General Assembly in Buenos Aires in January. The Department was involved in advising on foreign and trade policy aspects of the more than 100 resolutions considered at the assembly.
The implications for global and regional security and for nuclear non-proliferation of North Korea’s non- compliance with its nuclear safeguards obligations were a major pre-occupation of the Department and Australian officials at several overseas posts. Australia played a leading role in the deliberations of the Board of Governors of the International Atomic Energy Agency (IAEA) on the problem, including through Chairmanship of the Board of Governors for most of the year by Australia’s Permanent Representative to the IAEA, Mr Ronald Walker. Australia co-sponsored the Board’s resolutions calling for North Korean cooperation and compliance, and was instrumental in achieving the widest possible support for these resolutions. Australia continues to urge a peaceful resolution of the nuclear issue providing for full and effective safeguards on all North Korea’s nuclear facilities.
Australia continued working to build political and financial support for efforts to strengthen the international safeguards regime. Australia actively promoted the indefinite extension of the Treaty on the Non-Proliferation of Nuclear Weapons (NPT), lobbying in regional and other capitals and multilateral fora. Our efforts contributed to a further five countries joining the NPT. The Department provided financial and organisational assistance to the NPT Asia Pacific Regional Seminar held in Canberra in March. Australia was the first country to offer the IAEA extended access to Australian facilities, and is one of 43 countries and intergovernmental organisations to participate in a scheme to report specified nuclear-related production, export and import information. A key Australian budget reform proposal was implemented by the IAEA Secretariat, and other budgetary reform proposals will be considered further. Australia proposed measures to enhance the effectiveness of the IAEA’s technical cooperation activities. Within the Nuclear Suppliers Group, Australia successfully sought to tighten the Group’s export licensing guidelines. Revised guidelines were adopted at the April plenary meeting of the Group, together with Australian proposals for a program of information outreach activities. Australia successfully promoted a consensus resolution at the UN General Assembly for a convention to prohibit the production of fissile materials (a cut-off convention), and subsequently gave financial assistance to the IAEA for cut-off verification research. We have been an active and innovative contributor to discussions on cut-off, including in the Conference on Disarmament in Geneva.
The trade and non-proliferation implications of the US-Russia settlements on natural and highly enriched uranium were assessed and high level representations made to the US Government, indicating our concern that the cost of the settlements may be borne by third parties.
Australian uranium exporters were given a significant competitive advantage when the Australian Government concluded an Administrative Arrangement to the Australia-Mexico bilateral safeguards agreement. Australia’s competitors for Mexico’s uranium market have not yet concluded similar agreements. Bilateral nuclear consultations were held with Japan, the UK and Euratom. The consultations are an essential part of Australia’s stringent nuclear safeguards agreements and enable Australia to monitor the operation of our safeguards agreements. In addition, the consultations provide an important opportunity to promote Australia as a reliable supplier of uranium for peaceful non-explosive use.
The Nuclear Science and Technology Cooperation Agreement with Indonesia remains unsigned. Negotiations are continuing to finalise the text of the broader industry science and technology cooperation agreement which Indonesia has indicated it would prefer to see concluded ahead of the proposed nuclear agreement.
Nuclear safety worldwide is expected to be enhanced following international agreement in June to the text of a draft nuclear safety convention covering land-based civil nuclear power reactors. Australia participated actively in the negotiations. The convention will be opened for signature later in 1994. Regionally, the International Conference for Nuclear Cooperation in Asia adopted a program proposed by Australia to improve nuclear safety culture among the eight member countries.
Domestically, the Australian Safeguards Office continues to administer Australia’s obligations arising from the Nuclear Non-Proliferation Treaty (NPT). In preparation for its assumption of responsibility for administering Australia’s domestic obligations under the Chemical Weapons Convention and the Biological Weapons Convention, the Office was transferred from the Primary Industries and Energy portfolio to the Foreign Affairs and Trade portfolio. Conscious of the implications of the decline in Australia’s nuclear fuel cycle expertise for our ability to participate in and contribute to the regional and global non-proliferation agenda, the Department established an inter-departmental committee to develop a nuclear expertise training program.
The Department was intensively engaged in the establishment of the ASEAN Regional Forum and worked closely with Thailand over the last year putting forward ideas and proposals on how the ARF might operate. The Department produced a 20-page paper entitled Practical Proposals for Security Cooperation in the Asia Pacific Region, initially drafted by Professor Paul Dibb, which provided a menu of trust-building measures applicable in the region. Key aspects of the Paper included a focus on military cooperation and defence issues, a structure in three categories beginning with measures which might most easily be achieved, and absence of any time frame for introduction or implementation of the measures. Additionally, important regional security involvement included bilateral discussions with key regional players-such as China and Indonesia, participation in a preventive diplomacy workshop and the further strengthening of ‘second track’ dialogue processes in the region.
The Department ensured that its views were taken into consideration through close consultation with the Department of Defence during the drafting of the 1993 Strategic Review. This input contributed to the new emphasis given to Australia’s strategic partnerships in the region. The Department also built defence- related elements into the multilateral security dialogue process and sought to strengthen the development of bilateral defence links.
The defence and security relationship with the US Clinton administration was strengthened through a successful Australia-United States Ministerial meeting-the first since the Clinton administration came to office.
The Department contributed to the establishment of a new high level inter-departmental committee on defence material and exports. It also assisted the development of appropriate marketing strategies for defence-related exports through extensive consultation with Australian defence industries. It worked to ensure that proposed collaborative ventures with regional countries in the defence field are consistent with Australia’s strategic priorities.
The modest augmentation in the Department’s overseas resources that flowed from the 1992 reviews of the Australian Intelligence Community enabled Foreign Affairs and Trade posts in the Asia Pacific region to increase their reporting on political, economic and strategic issues.
The Department also contributed a significant input into the Judicial Inquiry into ASIS, which was set up by the Government in March.
With terrorism continuing to be a matter of serious international concern, the Department revised its procedures for responding to incidents involving Australian interests overseas. It maintained its readiness to deal with foreign policy aspects of terrorism in Australia through participating with other departments and agencies in a national counter-terrorism exercise during the year. We also exchanged expertise on counter-terrorism issues through dialogue with the United States.
High priorities for the Department were the initiation of multilateral negotiations for a Comprehensive Nuclear Test Ban Treaty (CTBT), preparations for the implementation of the Chemical Weapons Convention (CWC), and strengthening the Biological Weapons Convention (BWC). New areas of activity requiring substantial Australian engagement emerged during the year, including strengthening the Inhumane Weapons Convention provisions on landmines and determining successor non-proliferation arrangements to COCOM. Ongoing multilateral activities have included support for the Australia Group-focused on chemical and biological weapons proliferation-and participation in other non- proliferation export licensing regimes.
Advancing prospects for the early conclusion of the CTBT became a major focus for the Department and a dominant issue for the Australian delegation to the Conference on Disarmament (CD) in Geneva. Australian representatives played a key role in finalising the mandate for CTBT negotiations at the conclusion of the CD’s 1993 session. They were also active in achieving unprecedented, consensus support at the UN General Assembly for the CTBT. Australia subsequently tabled a complete draft CTB treaty text which has gained a high profile as a resource for negotiators in Geneva and has been widely praised by CD members and relevant interest groups. Australian input has been assisted by the establishment of a panel of experts to provide advice on verification issues.
Implementation of the CWC was advanced by the Department’s central role in the development of a Bill for to give domestic effect to the obligations Australia will assume when the convention enters into force. The enactment of this legislation in February 1994 enabled Australia to ratify the CWC in May, becoming the sixth country to do so. It was also agreed that the Australian Safeguards Office, following its transfer to the portfolio, would establish a CWC Office to serve as the national authority required by the CWC. Australia continued to play an active and influential role in the preparatory commission in The Hague, the Netherlands developing plans for the Organisation for the Prohibition of Chemical Weapons, the multilateral agency which will be responsible for international implementation of the convention. An Australian representative chairs a key expert group, on confidentiality issues, at the Prepcom. A second Australian official was appointed to a senior position in the provisional secretariat in The Hague. Australia also provided assistance to regional signatories with their domestic implementation of the CWC: a South- east Asian regional meeting in Bangkok was co-sponsored by Australia, and a legal expert visited South Pacific signatories.
The Department continued to play an active role in international efforts to strengthen the BWC, making a significant contribution to the positive outcome of an experts group process which concluded that verification of the convention was technically feasible. This accorded with Australian policy. Action to develop a protocol containing provisions to verify compliance with the BWC will now be considered at a Special Conference to be held in September 1994.
Two meetings of the Australia Group were organised and supported by the Department, which has encouraged the group’s increasing orientation towards the entry into force of the CWC. Membership expanded with the decision to admit the Czech Republic, bringing the number of participating countries to 26. The Department was also active in briefing non-members on the work of the Group and its contribution to the objective of chemical disarmament. Australian export licensing measures were enhanced with the commencement of procedures for biological weapons agents in December 1993, administered by the Department.
Australia also took an active approach to the work of the Missile Technology Control Regime. A paper prepared by the Department on the future direction of the regime attracted attention at the plenary. The Department also briefed South-East Asian countries on the work of the regime.
The Department also made representations to encourage a more positive United States approach to the South Pacific Nuclear Free Zone, including a central role in a démarche in Washington on behalf of the South Pacific Forum.
Encouragement to regional countries to contribute to the UN arms transfer register was maintained by the Department through an increasingly active dialogue, and the number of regional countries making returns looks set to increase. Australia also took an active role in CD group looking at transparency in armaments.
Australian also maintained its role as an active non-regional contributor to the Middle East Arms Control and Regional Security Working Group (ACRS), which forms part of the peace process in that region.
The Australian Safeguards Office (ASO) continued its active involvement in measures to strengthen IAEA safeguards, through participation in a number of international experts’ groups, development of new safeguards approaches and field trials in Australia, and undertaking a safeguards research and development program in support of the IAEA. Another ASO activity in this area was the conduct of a regional training course on national safeguards systems on behalf of the IAEA. ASO was also closely involved in advising the Government on the North Korean situation and other international issues.
Other major activities by ASO included ongoing operation of Australia’s network of bilateral safeguards agreements covering nuclear material derived from Australia’s uranium exports (there are some 50 000 tonnes of Australian obligated nuclear material covered by these agreements); ensuring that Australia’s obligations are met under the NPT safeguards agreement with the IAEA; and administering the Nuclear Non-Proliferation (Safeguards) Act 1987.
ASO is headed by an independent statutory officer, the Director of Safeguards, who prepares a separate annual report. This report is available through government bookshops or by writing to:
Australian Safeguards Office
PO Box E131
Queen Victoria Terrace ACT 2600.