Number 148, October 1998

The Australian DefenceForce*Broadened Concepts ofSecurity Operations
by Ian Wing

Conclusions
- 
The Australian Defence    Force (ADF) is undergoing a transition from an armed force prepared purely for warfighting    functions to a force capable of conducting a wide range of noncombatant functions. 

- 
Australia's traditional    security concepts emphasize national military power and a realist approach to    international relations. This approach is being challenged by the Broadened Concepts of    Security**(BCOS). 

- 
The ADF is increasingly    involved in Broadened Concepts of Security Operations**(BCOS OPS). These operations    address BCOS problems and threats but generally do not involve combat. 

- 
The use of the ADF in    BCOS OPS is gradually gaining acceptance within the Australian Department of Defence    [ADoD], and conventional armed conflict is seen by many commentators as less likely. 

- 
The possible adoption of    BCOS OPS as a role of the ADF may compete with the traditional war-fighting role and could    result in fundamental force structure and resource changes.

- 
More Australian    Government policy changes are possible, and increased participation in counter-drug    operations has been foreshadowed. Changes are likely to be incremental and to encounter    resistance.

**Background**
Australia is an island continent ofroughly the same landmass as the continental United States. Following the declaration ofthe 200 nautical mile Exclusive Economic Zone (EEZ), Australia is also responsible for amaritime area similar to its landmass. But Australia has a population of only 18 millionpeople concentrated in coastal areas and particularly in the southeast. As a result of thedisparity between its large size and small population, and its location far from itsWestern allies, Australia has historically feared external threats to its nationalsecurity. These fears have only been realized once: by Japanese attacks against northernAustralia in 1942.

Australian policy responses to securitythreats have relied on participation in alliances. Prior to, and after its Federation in1901, Australia provided forces to serve under British command. During and after World WarII Australia gradually shifted its focus to interoperability with the U.S. military.Following World War II, Australian forces participated in several counter-insurgencycampaigns in Southeast Asia including the Vietnam War. The policy of providing forces forthese operations was known as *forward defence*. Australia has also been acontributor to multinational peacekeeping and collective security.

The last two decades have seen severaldevelopments in Australian defense policy. First, successive Australian governmentsdefined the fundamental role of the ADF as the defense of Australia against armed attackrather than support for alliance operations overseas. This policy was referred to as *continentaldefence.* Second, Australia placed great emphasis on its alliance with the UnitedStates and became increasingly reliant on U.S. defense technology and intelligence. Third,Australia developed a layered defense strategy to exploit its isolated location. Fourth,successive governments agreed that Australia was unlikely to face a direct threat ofmilitary attack for at least 10 years and that the origin of that threat *could not beforeseen.***The ADF and Australian Defense Policy**
The ADF is a volunteer force of 57,028permanent and 26,362 reserve personnel. It is made up of the Royal Australian Navy (155ships, including submarines and auxiliaries), the Australian Army (nine brigades/taskforces), and the Royal Australian Air Force (192 aircraft). The ADoD has an annual budgetof 10.5 billion Australian dollars. The ADF is downsizing toward only 50,000 full-timepersonnel by the year 2000. This will represent a 30 percent decrease of full-timepersonnel since 1985. The ADF is under pressure to carry out its mission with decliningresources, due to fiscal restraint and the lack of a direct military threat.

The current government, a coalition of theLiberal and National Parties of the center right, has expanded the declared role of theADF from "continental defence" to operations further afield in the region. Thegovernment has stated that "Australia's security interests go well beyond thephysical protection of Australian territory" and Australia's security interests are"inextricably linked to the security and stability of the Asia-Pacific region."Australia has also officially recognized the existence of the broadened range of threatsto security.

Current Australian defense policy has fourforce structure development priorities: maintaining the "knowledge edge" (overAustralia's regional neighbors) using intelligence and technology; defeating threats inAustralia's maritime approaches using air and naval forces; strike (against potentialaggressors using F-111 bombers, submarines and special forces); and land forcecapabilities.

These priorities continue to emphasize thedefense of Australia in preference to other types of operational planning scenarios.Australian defense thinking is steeped in the realist philosophy, and the public positionof the Australian defense bureaucracy is that they have neither the charter nor theresources to plan for missions not directly associated with the defense of Australiaagainst military attack. But interestingly the Defence mission is currently stated as:

To promote the security of Australia, *andto protect its people and interests.*[author's italics]

This mission contains a hint of thebroadening role of the ADF which is likely to liberate it from concentrating on thedefense of Australia and eventually realizing its full potential in new types ofoperations.

The Australian Government hastraditionally operated using security concepts that emphasize national military power, butthis traditional approach is being influenced by the increasing importance of BroadenedConcepts of Security (BCOS), in which security operates at the individual, national,regional, and international levels. BCOS involve challenges such as economic dysfunction,environmental problems, epidemics, famines, ethnic conflict, religious conflict, sub-statenationalist conflict, terrorism, and crime.

The ADF is increasingly being used in BCOSOPS. These are operations that are intended to address BCOS problems and threats. They mayinvolve the use of force, but generally do not involve combat. The types of operations arenot necessarily new, but their increased acceptance and frequency are best understoodwithin a BCOSframework of analysis.

**The ADF and BCOS OPS**
The government recognizes the ADF as aresource with capabilities that are useful in the context of the broadened securityparadigm and which are often unavailable from other agencies. The ADF can often providecapabilities more quickly, in remote areas, in hostile environmental areas, over longerperiods, more cheaply, in greater numbers, or with less complaint. The range and frequencyof BCOS OPS will likely increase. Experience indicates that BCOS OPS are likely to fallinto nine categories. A brief survey of these categories, and their implications, follows.

**1. Support to the Civil Community.**Manycapabilities that were purchased for combat purposes have proven highly useful in moremundane tasks. The ADF routinely assists the civil community by loaning equipment,expertise and manpower. The ADF has recently provided housing and improved water suppliesfor Aboriginal communities in remote areas of the Northern Territory. The Sydney OlympicGames in 2000 will also require substantial civil operations assistance from the ADF.Although concerns have been raised that the ADF is being used as a cost-free resource fora wide range of tasks for which it is neither trained or resourced, this phenomenon islikely to increase.

**2. Environmental Support.**Environmentalproblems pose threats to harmonious relationships between states and, sometimes, to thesurvival of people who are affected. In Australia's region, these problems currentlyinclude the forest fires in Indonesia which cause serious haze problems throughoutSoutheast Asia, and the drought in Indonesia and Papua New Guinea. The ADF is increasinglyinvolved in the Australian response to environmental problems through food distribution tothe highlands of Papua New Guinea and Indonesian West Irian.

**3. Search and Rescue.**Australia isresponsible for the coordination of search and rescue (SAR) operations in the AustralianMaritime SAR Region. This region stretches from the middle of the Indian Ocean in thewest, to the Indonesian Archipelago in the north, to New Caledonia and New Zealand in theeast, and Antarctica in the south. As a result, the Navy and Air Force have performedseveral long-range SAR operations into the southern Indian Ocean to rescue boaters in diredistress. Rescues have been made by warships up to 2,400 kilometers southwest of Perthunder such severe conditions as four-meter [13-foot] swells, cold weather, and 40 knotwinds. This BCOS OPS category will not decrease in importance.

**4. Disaster Relief.**The ADF isfrequently called upon to support state and territory emergency services during floods andforest fires. The ADF is able to provide large numbers of disciplined personnel to assiststate and territory governments at short notice and maintain them in arduous conditions.The Army has also been called on to provide mass inoculations against deadly infectiousdiseases because of its ability to react more quickly than civilian medical agencies. ThisBCOS OPS category also will not diminish.

**5. Law Enforcement.**Australia hasno coast guard and maritime barrier control and constabulary operations are supported bythe ADF. Australia's 1.63 billion Australian dollar fishing industry is being threatenedby up to 1,000 illegal fishing vessels each year and Indonesian fishing vessels areroutinely apprehended by ADF patrol boats. Several flag of convenience fishing vesselshave been apprehended by ADF warships near Australia's McDonald and Heard Islands, located4,100 kilometers from the mainland. The Government has also recently announced thatunlicensed Japanese tuna fishing boats will be seized if they operate in the EEZ. ADFsupport to barrier control contributes to the prevention of illegal immigration and theMinister for Defence has foreshadowed the increased use of the ADF against the supply ofillicit drugs. Air Force and naval maritime patrols are conducted throughout the IndianOcean and Southwest Pacific and these contribute to the protection of the naturalresources of regional nations. The growing problem of piracy in Southeast Asian waters isanother field of potential ADF operations. The ADF is also capable of conducting limitedlaw enforcement support operations in support of the governments of regional nations. ThisBCOS OPS category is likely to increase in importance.

**6. Counterterrorism.**The ADFprovides specialist bomb disposal capability and since 1981 has also provided the lastresort close quarter battle capability to resolve siege-hostage situations. The use of theADF in counterterrorist operations requires the authority of a "call-out" fromthe Governor General. The ADF can also perform counterterrorism operations outside ofAustralia. Such operations may be required to support another nation's efforts to resolvea terrorist situation or as part of an ADF peace operation or evacuation operation. ThisBCOS OPS role is likely to increase as part of ADF planning for overseas operations.

**7. International Engagement.** Animportant element of Australia's efforts to engage with its region is provided by the ADF.Examples of this work are military diplomacy and reciprocal visits; defense cooperationand training; and international exercises and security conferences. This role is not newbut it is increasingly important because Australia is seeking to improve its political,economic and cultural linkages to Asia and the Pacific. The governmental elite of manyregional nations include military personnel and the ADF provides unique linkages betweenAustralia and these elite. ADF training may also improve respect for human rights amongsome regional armed forces.

**8. Peace Operations.** The ADF isexperienced in peace operations. The period since the end of the Cold War has seen anincrease in this form of operation and the increasing incidences of failed states andinterventionism indicate that this is likely to continue. Recent ADF peace operations haveoccurred in the Middle East, Western Sahara, Cambodia, Pakistan, Afghanistan, Somalia,Rwanda, Mozambique, Bosnia and Papua New Guinea.

These operations have generally beenoriented toward improving social conditions and alleviating suffering, and are oftenperformed by unarmed ADF personnel. This provides an insight into the changing nature ofthe ADF participation in peace operations. The ADF is performing the missions less becauseit is capable of wielding deadly force than because it is equipped with disciplinedpersonnel, who can act as observers or provide humanitarian capabilities in harshenvironments. These BCOS OPS will continue to be required and may gain recognition as anADF mission in the force structure development process.

**9. Evacuation Operations.** Manycountries in the region are threatened by internal breakdowns in law and order and thepossibility of *coup d'etat*. Australia's reaction to these situations has consistedof efforts to mediate between factions and stabilize the situation, while preparing toevacuate Australians and other approved nationals from the country to a safe location. ADFplanning includes provision for Services Assisted Evacuations (SAE) from benignenvironments and Services Protected Evacuations (SPE) from higher-threat environments. AnSAE was conducted from Cambodia in July 1997 and the deteriorating law and order situationin Indonesia in early 1998 led to the pre-deployment of ADF aircraft to facilitate apossible similar operation. Scenarios for future evacuation operations within the regionare apparent.

**Combatant Operations**
With the exception of limitedparticipation in the 1991 Gulf War, the ADF has not performed a combatant operation withthe aim of destroying an enemy force for over 27 years. During that period the ADF hasbeen a successful deterrent of possible military attacks against Australia although therewere no known likely threats.

The increasing importance of BCOS OPS doesnot mean that traditional combatant operations are obsolete. The ADF must remain capableof compelling other nations to conform with Australian policy or international collectivesecurity policy. To this end, ADF units were deployed to the Gulf in early 1998 as part ofpreparations for UN enforcement operations.

**For and Against Broadened Operations**
The likelihood of interstate conflict isdeclining although the 1991 Gulf War shows that it is still possible. At the same time theincidence of intrastate conflict is rising and this trend is significant for the planningof the future force structure of the ADF. The ADF is less likely to be employed in thedefense of Australia against military threats than in the defense of Australia's interestsagainst a range of military and nonmilitary threats.

Several factors indicate that the ADF willincreasingly prepare for and conduct BCOS OPS. They include: the positive effects on ADFmorale that are derived from performing missions that have a demonstrable benefit ratherthan more esoteric missions such as deterring aggression; the positive effect on publicrelations as the ADF works more closely with the general community; the useful trainingthat is required to prepare for BCOS OPS, and the valuable experience which accrues fromthem; and the examples and experience of other Western nations that use their militaryforces in law enforcement tasks. Other factors include: pressure from the Australianpublic for the ADF to demonstrate its relevance, and from law enforcement agencies seekingmore access to sophisticated ADF capabilities; and, international and domestic pressure onthe Australian Government to contribute to collective security responses to regionalcrises.

However, arguments against the increasingadoption of BCOS OPS have been raised within the policy, academic, military, social andlegal spheres. Policy practitioners are unwilling to dilute the meaning of security fromthe realist understanding. The ADoD and the small but influential defense industry benefitfrom the perception that Australia faces military threats as they reinforce the need forthe maintenance of the defense budget and the purchase of expensive warfighting equipment.The Australian academic community has served to reinforce the realist model with littledissent on government policy. The leadership of the ADF is wary of any expansion in itsroles because they are concerned that expansion could leave the ADF unprepared for themission of defending Australia against attack. The ADF leadership may also be reluctant tobecome further involved in the sphere of criminality and law enforcement because of thelikelihood of corruption infiltrating the defense force as it has the police forces.

Other arguments against BCOS OPS relate tothe unique nature of military service. Some believe that an organization which exists"to kill people and break things" is unsuitable for participation in normalsociety. Others believe that the ADF is not specifically trained for many types of BCOSOPS and the time spent on such training would reduce time spent on training forwarfighting and thus could erode the "warrior ethos." They contend the ADF isnot equipped for many BCOS OPS roles and spending on this equipment could reduce availablefunds for warfighting equipment. Finally, legal issues within the Australian Federaljudicial system make it problematic for the ADF to assume greater constabulary roleswithout legislative amendments.

Lieutenant Colonel Ian Wing, AustralianArmy, is Chief of the Defence Force Scholarship Fellow at the Australian Defence ForceAcademy in Canberra. This paper is based on a presentation given at NDU.

The Strategic Forum provides summaries of work by membersand guests of the Institute for National Strategic Studies and the National DefenseUniversity faculty. These include reports of original research, synopses of seminars andconferences,the results of unclassified war games, and digests of remarks by distinguishedspeakers.

Editor in Chief - Hans Binnendijk

Editor - Jonathan W. PierceNOTE

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