1.1(11) International security, nuclear disarmament and non-proliferation

Overview

The department advanced Australia’s international security objectives against the backdrop of changing and, in several respects, deteriorating strategic circumstances. Heightened tensions in the South and East China Seas, Russia’s annexation of Crimea, the civil conflict and use of chemical weapons in Syria, and a diversifying terrorist threat impacted on the global security landscape.

Despite these challenges, Australia’s efforts demonstrated our credentials as a constructive partner and contributed to some good progress on international and regional security initiatives. We ratified the Arms Trade Treaty (ATT), bringing it a step closer to entry into force, and we supported measures by the UN Security Council to help address the illicit global circulation of small arms and light weapons (SALW). In concert with Japan, we raised the profile of the Nuclear Non-Proliferation and Disarmament Initiative (NPDI) as an important player in the lead-up to the 2015 Review Conference (RevCon) of the Nuclear Non-Proliferation and Disarmament Treaty (NPT). We participated in the international effort to eliminate Syria’s chemical weapons. As chair, and in line with our commitment to strengthen the major export control regimes, we also secured the Australia Group’s (AG) agreement to new measures to tighten counter-proliferation standards.

We worked with regional partners, in practically-focused workshops and through outreach, to help strengthen counter-proliferation and counter-terrorism capabilities in the Pacific and Southeast Asia.

Through the Australia–Japan–United States Trilateral Strategic Dialogue (TSD) we enhanced the security-related dimensions of our relationships with key partners. The TSD was given added impetus in October 2013, when ministers reaffirmed their commitment to addressing security challenges in the Indo–Pacific and beyond.

Provocations by North Korea, along with Iran’s nuclear ambitions, continued to present a threat to global peace and security. In concert with like-minded countries we maintained pressure on Iran and worked constructively with the International Atomic Energy Agency (IAEA) to seek assurances that Iran’s nuclear program would only be developed for peaceful purposes.

Working closely with other agencies, the department led Australia’s engagement on the international cyber policy agenda. We supported the Foreign Minister’s participation in the October 2013 Seoul Conference on Cyberspace and secured agreement from China, Japan and the Republic of Korea to initiate bilateral cyber policy talks.

Faced with increasingly complex and diffuse terrorist threats, the department coordinated Australian counter-terrorism efforts in the region and multilaterally. While Southeast Asia remained our main focus, the growing number of Australians travelling to Syria and Iraq to fight alongside terrorist groups prompted a range of additional activities by the department domestically, in the Middle East, and through the Global Counter-Terrorism Forum (GCTF).

Conventional weapons

The department led whole-of-government efforts to achieve Australia’s early ratification of the ATT, ensuring we were among the lead group of countries to take this important step towards bringing the treaty into force.

We worked with other key supporters on preparations for the first meeting of states parties which will be held in late 2014 – early 2015 and will establish the framework and protocols for ATT implementation.

In September 2013 the Foreign Minister presided over the adoption of the Security Council’s first comprehensive resolution on SALW, resolution 2117. This outcome was a considerable advance for the SALW agenda. It reinforced and complemented both the ATT and the UN Program of Action on SALW, and encouraged states to facilitate women’s full participation in small arms and light weapons policy making.

Australia played a leading role in clearing landmines and other explosive remnants of war in Cambodia, Laos, Sri Lanka and Palau, and in Afghanistan. Australia’s support through the $100 million Mine Action Strategy also helped reduce the socio-economic impacts of explosive remnants of war, educate people about the risk, improve livelihoods and assist with the care and rehabilitation of victims, as well as research and advocacy. This support complemented the department’s ongoing work to promote the universalisation of the treaties banning the production and use of cluster munitions and landmines.

Leading the way on the Arms Trade Treaty

Illegally traded conventional weapons are one of the world’s biggest killers, claiming more than half a million victims every year. Australia played a key role in negotiating the international Arms Trade Treaty and on 3 June 2013 we became the thirty-third country to ratify it.

This historic treaty establishes common standards for the international transfer of conventional arms and enhances the transparency of the global conventional arms trade. The ATT will enter into force 90 days after 50 countries have ratified it. A major foreign policy achievement for Australia, the treaty reflects strong recognition of the need to better regulate the conventional arms trade and to reduce the impact of armed violence on communities, and especially women and girls.

The department is working with partners in the region and further afield to encourage effective and universal implementation of the ATT. Drawing on our strong arms export control expertise, Australia will offer practical assistance to help others with implementation. This includes a further $1 million contribution to the UN Trust Facility for Supporting Co-operation on Arms Regulation, which we helped establish in 2012. We will provide practical legal and technical support and capacity-building to developing countries to implement the treaty. We are also encouraging countries in our region to participate in a baseline survey to help identify steps each country can take, and what assistance they may need, to implement the ATT.

Nuclear non-proliferation and disarmament

Strengthening the global nuclear non-proliferation and disarmament regime remained a focus of our security efforts.

We continued to work closely with NPDI partners, co-ordinating practical measures, drafting working papers and conducting outreach to advocate implementation of the 2010 NPT RevCon Action Plan. We raised the profile of the group through direct outreach to the Chair of the NPT preparatory committee (PrepCom) and to the five permanent members of the Security Council. Nigeria and the Philippines became additional members. We participated in NPDI senior officials’ meetings to develop positions and advocacy strategies for the group. We also facilitated the Foreign Minister’s participation in the 8th NPDI Ministerial Meeting in Hiroshima in April 2014.

The department managed Australia’s contribution to the third NPT PrepCom for the 2015 NPT review cycle. We led the Australian delegation to the second conference on the humanitarian impact of nuclear weapons in Nayarit, Mexico in February 2014 and provided strong support for Ms Bishop in her public advocacy on the humanitarian impact of nuclear weapons.

The department helped advance Australia’s interests in the IAEA, including through our role on the IAEA Board of Governors. We influenced adoption of a biennial budget favouring Australia’s priorities and won consensus backing for the annual General Conference resolution on nuclear safety. We maintained IAEA focus on North Korea, helped win the vote against the ‘Israeli Nuclear Capabilities’ resolution and maintained pressure on Iran to address concerns about its nuclear program. We contributed funding to the IAEA’s verification of Iran’s commitments under the Joint Plan of Action between the P5+1 and Iran.

We also supported the Foreign Minister’s participation in the Nuclear Security Summit in The Hague in March 2014, at which Australia announced an additional contribution of $1 million to the IAEA Nuclear Security Fund to help countries strengthen their nuclear security to combat the risk of nuclear terrorism.

The department progressed negotiation of a civil nuclear cooperation agreement with India. The agreement will provide for the export of uranium to India, while ensuring such material is used only for peaceful purposes under international safeguards. We also inaugurated a bilateral non-proliferation and disarmament dialogue with India.

Counter-proliferation and export controls

The use of chemical weapons in Syria in August 2013 provided a stark reminder why ongoing global cooperation is required to counter the proliferation of weapons of mass destruction. As a member of the UN Security Council and the Organisation for the Prohibition of Chemical Weapons (OPCW), Australia promoted a robust global response to the incident and provided $2 million to the unprecedented international mission to remove Syria’s chemical weapons stocks and ensure these do not fall into terrorists’ hands. All declared chemical weapons material was destroyed or removed from Syria by the 30 June deadline set by the UN Security Council.

As permanent chair of the AG—the custodian of global best practice measures for containing the proliferation of chemical and biological weapons—we ensured the AG responded strongly, including by agreeing to new measures to strengthen counter-proliferation standards. The group also expanded its cross-regional membership, with Mexico becoming the forty-second country to join the AG.

We contributed to international efforts to prevent proliferators from gaining access to sensitive dual-use weapons of mass destruction (WMD) related materials and technologies through our regular regional outreach and bilateral engagement, active lobbying of countries of proliferation concern and strong leadership in the various export control regimes. We supported the OPCW in conducting regional capacity-building workshops for Southeast Asian and Pacific partners.

Ambassador to the Netherlands, Neil Mules AO (left), and Director-General of the Organisation for the Prohibition of Chemical Weapons, Ahmet Üzümcü, after signing an agreement to support the UN Mission to Eliminate Syrian Chemical Weapons, The Hague, 20 January 2014

Counter-terrorism

The international terrorist threat became more complex and fluid over the year. The number of terrorist attacks increased. More Australians travelled to Syria and Iraq to join the conflict there, many fighting alongside terrorist groups such as the Islamic State of Iraq and the Levant. Although Al-Qaida’s central leadership was weakened, the violent extremist messaging with which it is identified continued to inspire terrorist groups around the world, aided by social media networks.

Led by the Ambassador for Counter-Terrorism, we strengthened Australia’s counter-terrorism partnerships with countries neighbouring Syria, intensified engagement with senior officials and initiated discussions on MOUs on cooperation to combat terrorism. At home we contributed to community outreach programs aimed at countering violent extremism and deterring Australians from joining the conflict in Syria. In the GCTF we helped develop international measures to address the challenge of ‘foreign fighters’ and the threat of kidnapping for ransom.

Terrorist networks in Southeast Asia continued to pose a threat to Australians and Australian interests, and countering their activities remained a key focus of the department’s work.

In Indonesia we supported initiatives, including under the Australia–Indonesia Security Program, to build capacity and counter violent extremism in the community, focusing on disengaging terrorist inmates from violent extremism and strengthening Indonesia’s capacity to monitor terrorist offenders following their release from prison. We partnered with Indonesia to organise a regional working-group meeting of the GCTF in Yogyakarta on modern counter-terrorism policing. Australia and Indonesia became co-chairs of a new GCTF working group that will address challenges associated with the management of terrorist prisoners.

In the Philippines we worked on improving the management of terrorist offenders, reducing the risk to Australians of kidnap-for-ransom, and supporting the Philippines in concluding negotiations with Islamic separatists (resulting in the peace agreement known as the Comprehensive Agreement on the Bangsamoro).

South Asia was another counter-terrorism priority area. We partnered with the Australian Federal Police to provide counter-terrorism and security related training to Pakistani police officers. This included strengthening the Pakistan Police Service’s capacity to deal with improvised explosive devices and funding a countering violent extremism radio program. We assisted UN agencies to train South Asian police, prosecutors and judges. Together with Macquarie University’s Police, Intelligence and Counter-Terrorism school we provided security-related training opportunities to police in the Maldives.

The department enhanced Australia’s international engagement on counter-terrorism through membership of the UN Security Council. We helped sharpen the council’s counter-terrorism focus on new issues such as violent extremism, internet radicalisation and recruitment, and foreign fighters. We helped secure a robust international standard against the payment of ransoms to terrorists. As Chair of the UN Al-Qaida Sanctions Committee, Australia promoted a strategic approach to ensure sanctions could support national and regional responses to the evolving Al-Qaida-inspired terrorist threat. We also coordinated the first three-yearly review of terrorist listings pursuant to Australia’s implementation of UNSC resolution 1373 (2001).

National security and strategic policy

The department helped shape high-level national security and strategic policy, including through cooperation with the Department of Defence on development of the 2015 Defence White Paper, and active participation in the Secretaries’ Committee on National Security, the National Intelligence Coordination Committee and other forums.

We made a substantial personnel contribution to the major Australia–US biennial military exercise, Talisman Sabre 2013 and, with Defence counterparts, began planning for the 2015 exercise.

Position Profile

Consul–Strategic Policy, Honolulu Damien Donavan

I took up the newly established position of Consul–Strategic Policy at the Australian Consulate-General in Honolulu in January 2014.

This position is indicative of the importance Australia places on the alliance with the United States and the strong—and increasing—level of engagement between Australia and the US military in Hawaii. This is particularly true in light of the rebalance to the Asia–Pacific and US Force Posture Review Initiatives, including Marine and expanded US Air Force aircraft rotations through Darwin. Moreover, it signals the value we place in the role Pacific Command (PACOM) and its component commands have to play in ensuring security in our region.

It is a challenging role, given the PACOM Area of Responsibility encompasses more than 50 per cent of the globe and includes 36 countries. Military leaders here also have to contend with significant security risks, including that posed by North Korea, tensions in the East China and South China Seas, political extremism, weapons proliferation, piracy and other non-traditional security threats. This diversity also makes the role highly rewarding.

Every day brings a new set of issues to progress. I am able to engage with extremely professional people who are passionate about their roles. And Australia is highly respected as a dependable partner for peace in the region.

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We contributed to whole-of-government responses to the allegations made by Edward Snowden, particularly highlighting the critical national interests served by the Australian Intelligence Community.

Strengthening the Trilateral Strategic Dialogue (TSD) between Australia, Japan and the United States was a priority, particularly given the opportunity it provides for the timely exchange of views on the global and regional strategic environment. We supported the TSD Foreign Ministers’ meeting in Bali and progressed practical cooperation through the TSD’s working groups.

We continued to work with other agencies and overseas partners on cyber policy issues, including internet governance. We supported Foreign Minister Bishop’s participation in the October 2013 Seoul Conference on Cyberspace, a major international platform for dialogue on cyber norms involving governments, business and civil society. China, Japan and the Republic of Korea agreed to initiate bilateral cyber policy talks. We co-chaired with Malaysia a successful ASEAN Regional Forum workshop on cyber confidence building measures in Kuala Lumpur in March 2014.

Space security remained an area of focus, reflecting our reliance on space-based systems and the growing international concern about the need to strengthen norms to guide space activities. We continued our advocacy of the proposed International Code of Conduct for Outer Space Activities, including through the ‘open-ended consultations’ in November 2013 and May 2014. At AUSMIN 2013 Australian and US ministers agreed arrangements for the relocation of a highly advanced US space situational awareness telescope to Western Australia to track space assets and debris.

Assistant Secretary John Quinn (fourth right) and Director Cyber Policy Section Henry Fox (second left) with ASEAN officials at the Regional Forum Workshop on Cyber Confidence Building Measures, Kuala Lumpur, 26 March 2014

Outlook

The security landscape will remain challenging, complex and fluid, buffeted by shifting strategic dynamics in the Indo–Pacific, Middle East and Eastern Europe.

We will push for stronger regional and global counter-proliferation and disarmament norms to help prevent the proliferation of WMD by both state and non-state actors. The department will host the 30th Anniversary of the AG in Australia in 2015. Not withstanding challenges presented by an increasingly fraught multilateral system, as co-chair we will engage NPDI partners to encourage the 2015 NPT Review Conference to deliver strong security dividends. Negotiations with India on a civil nuclear cooperation agreement will continue.

Terrorist threats present the least predictable dimension of the international and national security landscapes. Instability in the Middle East, particularly the conflicts in Syria and Iraq and the phenomenon of foreign fighters, will have potentially significant consequences in our region and domestically. The department will deepen Australia’s cooperation with a range of counter-terrorism partners to extend international counter-terrorism efforts.

The Indo–Pacific likely will generate further security tensions, including as a result of shifting strategic and economic weight among countries in the region. Deepening relations with major powers, including through the TSD, strengthening regional partnerships and reinforcing regional architecture will be priorities. Helping to finalise the Defence White Paper 2015 will be a focus.

Over the next year, we will press for further transparency and confidence building measures in space, building on the recommendations and guidelines developed by UN bodies in 2013–14. We will continue our efforts, with like minded partners, to finalise the International Code of Conduct for Outer Space Activities.

Cyber security will require adroit management. In collaboration with other departments and agencies we will progress our bilateral cyber policy dialogues with China, Japan and the Republic of Korea, intensify our discussions with other countries on cyber issues, and take forward practical measures to advance the regional cyber confidence building agenda. We will also participate in the next global cyberspace conference in The Hague in April 2015.

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