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Strengthening international frameworks and norms

Performance Criterion Result

Providing whole-of-government leadership and coordination on multilateral issues and in multilateral forums.

Criterion Source
Corporate Plan 2016–20, p. 13
Program 1.5, Portfolio Budget Statements 2016–17, p. 37
Case Study: Reinforcing and advancing global human rights norms

 Met

Shaping multilateral outcomes, institutions and norms to advance Australia’s interests.

Criterion Source
Corporate Plan 2016–20, p. 13
Program 1.5, Portfolio Budget Statements 2016–17, p. 37
Case Study: The UN: Preventing conflict and sustaining peace
Case Study: The Paris Agreement on Climate Change and the Green Climate Fund – strengthening partnerships to deliver for the region

 Met

Overview and analysis

The multilateral system is founded on the idea that global order should be based on agreed rules rather than power alone. When the system operates effectively, Australia is more prosperous and secure. When the international environment is uncertain, we need to engage actively and build coalitions with like-minded countries to serve our interests.

We intensified efforts to secure constructive multilateral outcomes over the year, advancing our interests in the United Nations (UN), promoting measures for the conservation and sustainable use of oceans, strengthening a rules-based order and supporting global security.

Our engagement in the UN

This year we supported the Prime Minister, Minister for Foreign Affairs and Minister for Immigration and Border Protection at the 71st session of the UN General Assembly’s High-Level Week, as they advocated Australian responses to global challenges such as refugees, climate change, water management and gender equality. Ms Bishop highlighted Australia’s commitment to human rights and promoted our UN Human Rights Council candidacy for the 2018–2020 term.

We led high-level consultations with UNDP, UNICEF, UNFPA, UN Women and UNCDF in Fiji. Holding talks for the first time in the Pacific enabled UN officials to see the challenges facing our region and the importance of building resilience, reducing vulnerability to natural disasters and economic shocks, and gender equality. UN representatives recognised Australia as a valued partner with deep and enduring connections to the Pacific.

Oceans

In the UN General Assembly, we played a leading role negotiating resolutions on sustainable fisheries and the Law of the Sea and advocating our interests in the conservation and sustainable use of oceans. We led negotiations for a new global treaty for the conservation and sustainable use of high seas biodiversity, including by convening a regional workshop with the Pacific Oceans Commissioner and the Pacific Oceans Alliance in Fiji. We supported the Minister for International Development and the Pacific who led Australia’s delegation to the inaugural UN Ocean Conference in June 2017, where we showcased Australia’s management of marine areas and highlighted our assistance to regional countries.

We provided legal and policy advice to support Australia’s operational responses and regional enforcement action against illegal, unreported and unregulated fishing vessels—an effort that has seen significant reduction in such activity. Our legal advice also supported efforts to improve fisheries management through Australia’s engagement in regional fisheries management organisations.

Rules-based order

The department worked to strengthen the international rules-based order and secure greater accountability under international law, including by co-leading efforts to bring to justice those responsible for the downing of MH17. We also supported the establishment by the UN General Assembly of the Syria Accountability Mechanism, which seeks to identify those responsible for the most serious crimes under international law committed in Syria since March 2011.

We led Australia’s engagement in the Antarctic Treaty system, including at the Antarctic Treaty Consultative Meeting in Beijing in May 2017. With the Australian Antarctic Division, the department conducted an inspection of the United States’ Amundsen–Scott South Pole Station in accordance with the Antarctic Treaty. Such inspections help promote adherence to treaty norms, maintain a strong, effective treaty system and preserve our sovereignty over the Australian Antarctic Territory.

The department worked to implement the resolutions from the 32nd International Conference of the Red Cross and Red Crescent, including to strengthen protections afforded to detainees in non-international armed conflict and to enhance compliance with international humanitarian law.

We worked towards an agreement with Timor-Leste on maritime boundaries through a non-binding conciliation commission established under the UN Convention on the Law of the Sea. We also defended two arbitrations commenced by Timor-Leste (these have now been withdrawn as part of the conciliation). To ensure both countries continue to benefit from petroleum operations in the Timor Sea prior to agreement of a maritime boundary, we engaged with key investors to preserve business certainty and support regulatory stability.

Working with the Department of Health, we ran Australia’s successful campaign for re-election to the Commission on Narcotic Drugs—one of two governing bodies of the United Nations Office on Drugs and Crime. Australia produces over half the world’s pain relief drugs under the existing drugs control regime and is a strong advocate for greater global access to controlled drugs. Re-election retains our voice in this important forum.

To disrupt trafficking of crystal methamphetamine (‘ice’) and its precursors more effectively, and in line with recommendations from the
National Ice Taskforce, we worked with the Australian Federal Police to develop an international ice engagement strategy. We are helping to implement the strategy by building regional political support for strengthened law enforcement cooperation that addresses ice trafficking.

Security

The international security environment has become increasingly complex and contested, with significant multilateral polarisation evident in international forums.

North Korea has exacerbated this problem through the provocative development of illegal nuclear weapons and ballistic missile programs. We pressed strongly for implementation of unanimously agreed UN Security Council resolutions and sanctions against North Korea. We renewed our focus on strengthening the Treaty on the Non-Proliferation of Nuclear Weapons (NPT) through the Non-Proliferation and Disarmament Initiative, and promoted the 2010 NPT Action Plan that is a consensus document. In underlining the necessity for an inclusive approach to multilateral nuclear disarmament taking into account the security dimensions of the issue, we focused on practical measures that have broad support, including:

  • promoting early entry into force of the Comprehensive Nuclear-Test-Ban Treaty (CTBT), which underpins the global norm prohibiting nuclear testing
  • advocating for negotiations on a Fissile Material Cut-Off Treaty
  • progressing nuclear disarmament verification initiatives.

Maintenance of the global norm against chemical weapons usage—which came under serious challenge during the year—requires strong advocacy and practical action. As Australia Group Chair, we led regional outreach efforts promoting robust export control arrangements to prevent the proliferation of chemical and biological agents for use in weapons of mass destruction programs and by terrorist groups. We secured an Australia Group statement expressing grave concern at the use of chemical weapons, including the use of sarin against civilians in Syria on 4 April, chemical weapon attacks conducted by ISIL, and the reported use of a banned nerve agent to assassinate North Korean national, Kim Jong-Nam, in Kuala Lumpur Airport.

Illegal and irresponsible arms transfers pose a threat to global peace and security, particularly in fragile states. We worked across the range of conventional arms architecture, promoted universalisation of the Arms Trade Treaty and supported mine action programs.

We advocated domestically on international security issues, including through regular input into deliberations before the National Security Committee of Cabinet, the Secretaries’ Committee on National Security and the National Intelligence Coordination Committee. We also contributed to national-level policy responses on defence, cyber and counter-terrorism.

Responding to terrorism

In response to growing terrorist challenges, the department was active in bilateral, regional and multilateral counter-terrorism (CT) forums. The department implemented and administered UN sanctions regimes applying to terrorism and undertook a mandatory three-year review of CT financial sanctions listings. We promoted CT cooperation through representations, advocacy and consultations, as well as through negotiating international CT arrangements. We delivered CT and countering violent extremism capacity-building assistance, focusing mainly on Southeast Asia.

Shaping international law and associated norms in our region

Geopolitical shifts and the contest for influence in our region are challenging the rules and norms Australia has relied upon for decades for our security and prosperity. Our efforts to strengthen regional architecture and improve adherence to international law and associated norms are critical in shaping our strategic environment.

Led by the Ambassador for People Smuggling and Human Trafficking, we strengthened regional engagement in combating people smuggling, human trafficking and modern slavery. We played a lead role in the negotiation of a third country resettlement arrangement with the United States for refugees currently in regional processing centres (RPCs) on Nauru and Manus Island. The People Smuggling and Human Trafficking Taskforce continued discussions with other countries to keep expanding options for people in RPCs.

We used the Bali Process to improve coordination against irregular maritime movement of people within our region. Bilateral and multilateral partners welcomed these efforts, including UN agencies. As co-chair with Indonesia, we took forward commitments agreed by all members at the ministerial conference held in March 2016, including:

  • implementation of a review of the response to the 2015 events in the Andaman Sea
  • establishment of a consultation mechanism to facilitate talks among affected countries on emergency irregular migration situations
  • creation of a new Task Force on Planning and Preparedness to assist countries prepare for and respond to future such events.

We also led efforts with Indonesia to develop the Bali Process Government and Business Forum, which aims to bring together governments and the private sector to prevent and combat human trafficking and modern slavery.

In the East Asia Summit—the region’s premier leaders-level forum for addressing strategic challenges—the department helped secure a Leaders’ Statement on Non-Proliferation, which addressed the threats of North Korea’s provocations and nuclear terrorism. By hosting EAS and ASEAN Regional Forum meetings, including at experts-level, we promoted regional maritime security cooperation and capacity building and built understanding of shared strategic challenges. With the Department of Defence and other agencies, we managed government policy on the South China Sea in support of regional peace and stability.

Australia’s treaty making process

We managed the domestic aspects of Australia’s treaty-making process, tabled 19 major treaty actions in Parliament and referred eight minor treaty actions for consideration by the Joint Standing Committee on Treaties. We facilitated signature by Australia of 18 treaties. We supported treaty negotiations across government, including for the Framework Agreement for the Future Submarine Program between Australia and France. With the Department of Industry and Science, the department engaged in multilateral negotiations to establish a Square Kilometre Array (SKA) observatory at sites in Australia and South Africa. The SKA will be the largest radio telescope ever constructed and will enhance Australia’s reputation as a global leader in radio astronomy.

Countering ISIL

Ambassador Christopher Langman with Staff Major-General Falah al-Muhammadawi at the opening of the Australian-funded small arms training range at the Iraqi Counter-Terrorism Service Academy. [DEPARTMENT OF DEFENCE/Craig Cunningham]

Ambassador Christopher Langman (in blue shirt), with Staff Major-General Falah al-Muhammadawi (at Ambassador’s right) at the opening of the Australian-funded small arms training range at the Iraqi Counter-Terrorism Service Academy, Al Taji Military Base, Iraq, 19 September 2016. [DEPARTMENT OF DEFENCE/Craig Cunningham]

The Islamic State in Iraq and the Levant (ISIL) is the most prominent and dangerous terrorist organisation in the world today. Despite its loss of territory in Syria and Iraq, it has proved to be highly adaptable and its ideology has continued to resonate in the Middle East, Africa, Europe, and South and Southeast Asia. With its spread into our region, and the return of foreign fighters to Australia, ISIL directly affects our core national interests. ISIL-inspired attacks across these regions indicate that the group is moving from controlling territory to executing terror attacks abroad, either directly or through sympathisers who attack in its name. Concerted global counter-terrorism efforts will be needed for many years to combat this lethal threat.

The department pursued a multi-faceted approach to countering ISIL. We supported the Counter-ISIL Coalition in providing diplomatic support to Australian military efforts in training Iraqi forces and delivering airstrikes in Iraq and Syria. We contributed to whole-of-government efforts to degrade ISIL’s financing and economic infrastructure through sanctions, prevent cross-border movement by foreign terrorist fighters, counter ISIL’s extremist narratives and support stabilisation and restoration of essential services in liberated areas in Iraq and Syria.

Australia also made a significant humanitarian contribution in Iraq and Syria. The department has committed over $433 million in humanitarian assistance in response to the Syrian crisis since 2011, including the $220 million Syria Crisis Humanitarian and Resilience Package (over three years from 2016). We have provided $180 million in humanitarian assistance in response to the Iraq crisis since June 2014, including a $100 million multi-year package announced in April.

Supporting Women and Security

High Commissioner Mauritius Susan Coles, Deputy High Commissioner Lorena Lopez de Herd and the local ‘Women in Uniform’ Committee undertaking a shipboard tour of the USS Cole. [DFAT/Yasmin Hosanoo]

Raising the profile of women in defence and policing, High Commissioner Mauritius Susan Coles (4th from right), Deputy High Commissioner Lorena Lopez de Herd (4th from left) and the local ’Women in Uniform’ Committee, undertake a shipboard tour during the visit of the USS Cole to Mauritius in 2016. [DFAT/Yasmin Hosanoo]

We signed a new four-year partnership agreement with UN Women to secure a clearer alignment of priorities and guaranteed core funding. We worked closely with like-minded countries to defend gender equality gains in an increasingly challenging global environment. Reflecting the growing significance of the Women, Peace and Security Agenda (WPS), we designated our first WPS National Focal Point, became a founding member of the cross-regional WPS National Focal Points Network, and joined the Governing Board of the UN’s Global Acceleration Instrument for Women, Peace and Security. We funded efforts to address violence against women and develop innovative measures to overcome the gender data gap.

The new Ambassador for Women and Girls, the Hon. Dr Sharman Stone, commenced in January 2017 and continued Australia’s strong advocacy of gender equality. Ambassador Stone visited 11 countries and twice represented Australia at the UN.

At the UN Commission on Crime Prevention and Criminal Justice, Australia (with Mexico) secured adoption of a resolution recognising the need to protect women as victims of crime and to consider the needs of women coming into contact with the criminal justice system. Its adoption builds Australia’s credentials on gender empowerment and human rights, and reinforces our domestic efforts to combat violence against women.

We provided $226 million for UN peacekeeping missions, making Australia the 11th largest contributor overall. Our support helped peacekeeping missions to increase stability in conflict and post-conflict countries. We endorsed the Kigali Principles on the Protection of Civilians, which provide guidance on how UN peacekeepers can protect civilians facing violence.

MH17 update

Since Russia vetoed the establishment of an international tribunal under Chapter VII of the UN Charter in July 2015, the department has made the identification of a viable prosecution mechanism a key priority. Acting on this was a complex exercise given the range of jurisdictions involved.

On 16–17 May 2017 the department chaired a Joint Investigation Team (JIT) officials meeting in Canberra that successfully negotiated a common position on the prosecution option. JIT officials agreed to announce that prosecutions would take place within the Dutch national system to hold to account those responsible for the downing of flight MH17 on 17 July 2014. Subsequently, on 5 July 2017, the JIT partners publicly announced that these prosecutions would take place.

The prosecution approach reflects a commitment to securing justice for the 298 victims and is an important step towards holding the perpetrators accountable. Bringing suspects to trial would send a strong message about Australia’s commitment to a rules-based international system.

Providing political and practical support for the prosecutions, including through our diplomatic network, remains a key priority for the department.

Providing whole-of-government leadership and coordination on multilateral issues and in multilateral forums.

Reinforcing and advancing global human rights norms

Case Study
Wityana Marika from Indigenous Australian band Yothu Yindi performing alongside other Indigenous leaders and performers at the 2016 World Indigenous Business Forum in Saskatoon, Canada. [DFAT/Sheena Graham]
Wityana Marika (left) from Indigenous Australian band Yothu Yindi performs alongside other Indigenous leaders and performers at the 2016 World Indigenous Business Forum in Saskatoon, Canada, 25 August 2016. DFAT supports Indigenous Australians to participate in the Forum. [DFAT/Sheena Graham]

Reinforcing and advancing global human rights norms

Australia is a proactive and principled advocate for human rights globally. We support international human rights institutions and mechanisms that promote stability, inclusive economic growth, reduce poverty, and contribute to the development of international human rights norms.

To achieve these goals, the department takes a coordinated whole-of-government position to multilateral negotiations, participating annually in the three sessions of the Human Rights Council (September, March and June) and the United Nations’ Third Committee (October/November). The department leads Australia’s international engagement, including through its UN posts in Geneva and New York.

Australia’s human rights performance, especially in relation to Indigenous Australians and asylum seekers, has continued to receive close and often critical scrutiny by local and international civil society and media, as well as UN special rapporteurs and working groups. We responded to such scrutiny by providing accurate information about Australia’s policies and engaging in frank dialogue. We received visits by five special rapporteurs during the year (indigenous rights, human rights defenders, violence against women, the rights of migrant workers and racism), demonstrating Australia’s longstanding and firm commitment to openness and international accountability.

During the reporting period, Australia contributed to, or voted on, more than 200 human rights-related resolutions and delivered over 70 national and joint statements. The department coordinated the development of whole-of-government positions in a variety of multilateral forums on a diverse range of human rights issues including migration, countering violent extremism, climate change, women’s health, domestic violence, democracy and the rule of law, right to food and right to privacy.

Our efforts throughout the year helped shape global norms. For example, we worked with Canada and European partners to champion the equal application of international human rights law to lesbian, gay, bisexual, transgender and intersex (LGBTI) people and to set up the Equal Rights Coalition—a first-of-its-kind diplomatic network dedicated to achieving non-violence and non-discrimination for LGBTI people.

Working with the Department of the Prime Minister and Cabinet, and in line with the department’s Indigenous Peoples Strategy, we supported indigenous participation in multilateral organisations, including the UN Economic and Social Council. With Austrade and Efic, the department is working to improve access for Indigenous Australian businesses to international commercial opportunities. We initiated a study by the Expert Mechanism on the Rights of Indigenous Peoples into good practices and the challenges faced by Indigenous businesses. Our constructive contribution with the Department of the Prime Minister and Cabinet at the UN Permanent Forum on Indigenous Issues in April 2017 attracted positive responses from other states.

The department promoted the evolution of global norms concerning business and human rights, including a range of issues from modern slavery and human trafficking to workplace and gender discrimination, by working closely with whole-of-government partners. We led broad national consultations on the UN Guiding Principles on Business and Human Rights (UNGP) with Australian business and civil society and established a formal Multi-Stakeholder Advisory Group of experts in 2016. To address issues arising from these consultations, the department is continuing to work closely with agencies across government, including the Departments of Industry, Employment and the Attorney-General.

Shaping multilateral outcomes, institutions and norms to advance Australia’s interests.

The UN: Preventing conflict and sustaining peace

Case Study

The UN: Preventing conflict and sustaining peace

Conflict between or within countries can cause immense human suffering, reverse development gains and accelerate refugee flows. It has been widely accepted for some time that the UN should focus in a more coordinated way on conflict prevention, rather than waiting for crises to develop. Australia is playing a central role in moving the UN closer to achieving this objective.

In 2016 the department co-chaired an intense and complex negotiating process to secure the first-ever UN resolution:

  • acknowledging that conflict prevention should be the shared responsibility of the entire UN system, including agencies that deliver aid programs with developing countries
  • mandating the UN Secretary-General to undertake reforms to achieve a more coordinated and coherent effort towards this end
  • recognising that increased, predictable funding for the UN’s conflict prevention efforts is critical.

Our post in New York convened open and constructive negotiating sessions and built support among the whole membership in a way that ensured passage of the resolution through both the UN General Assembly and Security Council.

Taking forward the actions envisaged in the resolution, we continued to support the UN’s conflict prevention efforts. The department contributed to the UN’s Department of Political Affairs, which has mediation and prevention of conflict at the heart of its work. We also made a substantial financial contribution ($10 million, over three years) to the
UN’s Peacebuilding Fund (PBF), which delivers funding for services and programs to help countries emerging from conflict. The PBF helps resettle internally displaced people, provide water and sanitation to conflict-affected communities, and re-integrate ex-combatants (including children) into society. The PBF supports over 200 projects in 27 countries, including countries in our region such as Sri Lanka, Solomon Islands and Papua New Guinea.

Australia also remains an active member of the Group of Friends of Sustaining Peace at the UN headquarters in New York in order to assist ongoing efforts to implement the resolution.

Shaping multilateral outcomes, institutions and norms to advance Australia’s interests.

The Paris Agreement on Climate Change and the Green Climate Fund – strengthening partnerships to deliver for the region

Case Study

The Paris Agreement on Climate Change and the Green Climate Fund – strengthening partnerships to deliver for the region

Australia ratified the Paris Agreement in November 2016, demonstrating the Government’s commitment to strong international action on climate change. As chair of the influential Umbrella Group of countries, we led efforts to implement the agreement from 2020.

The department helped deliver on Australia’s climate change commitments, including the Government’s decision to allocate at least $1 billion over five years from the aid program to support developing countries build climate resilience and reduce emissions.

We increased integration of climate considerations into the broader aid program, through specific actions such as a new climate program in the Pacific to implement the Prime Minister’s $300 million announcement made in September 2016.

We also implemented Australia’s $200 million contribution over four years (2015–18) to the Green Climate Fund (GCF) that helps developing countries address the impacts of climate change. It also supports these countries achieve economic growth more sustainably, which in turn strengthens the stability of our region. This contribution is part of Australia’s commitment to the UN Framework Convention on Climate Change.

As co-chair of the GCF Board for 2016 and 2017, with South Africa and Saudi Arabia respectively, the department worked hard to help strengthen GCF governance, effectiveness and operations. We helped develop the fund’s policies, streamline its processes, and identify vulnerabilities and investment opportunities in our region. The newness of the GCF as an institution, with a board still determining how best to operate and a secretariat still building its capacity, meant delivering these achievements required significant investment by the department. Expectations of the GCF, especially from developing country partners, were high.

The GCF board meeting in Samoa in December 2016 brought the GCF board to the Pacific for the first time and provided an opportunity to highlight the climate change impacts the region faces.

Our strong advocacy for Pacific countries delivered approval of US$251 million by the GCF board for six proposals in Cook Islands, Fiji, Samoa, Solomon Islands, Tuvalu and Vanuatu. During Australia’s co-chair term, the board also approved US$2.1 billion for 35 projects, including US$1.2 billion for 11 private sector projects that leverage institutional investors and support innovative approaches to renewable energy and energy efficiency.

The department strengthened engagement with stakeholders to develop a pipeline of GCF projects, including in the Pacific. We worked closely with Pacific countries and GCF implementing partners, such as the World Bank, Asian Development Bank, Secretariat of the Pacific Regional Environment Programme and the United Nations Development Programme to improve the quality of proposals in the region. Our advocacy with civil society and business resulted in a number of organisations considering GCF implementing partner status.

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