Australia: Background and U.S. Relations

Australia: Background and U.S. Relations Bruce Vaughn Specialist in Asian Affairs January 13, 2012Affaris August 15, 2013 Congressional Research Service 7-5700 www.crs.gov RL33010 CRS Report for Congress Prepared for Members and Committees of Congress Australia: Background and U.S. Relations Summary The Commonwealth of Australia and the United States enjoy a very close alliance relationship. Australia shares many cultural traditions and values with the United States and has been a treaty ally since the signing of the Australia-New Zealand-United States (ANZUS) Treaty in 1951. Australia made major contributions to the allied cause in both the First and Second World Wars and has been a staunch ally of Britain and the United States. President Obama traveled to Australia in November 2011 to reaffirm and extend the bilateral ANZUS alliance. During his visit, upgrades to the alliance, including the rotational stationing of U.S. Marines in northern Australia and increased rotations of U.S. Air Force planes, were announced by President Obama and Labor and then-Labor Party Prime Minister Julia Gillard. ThisGillard has since been replaced by fellow Labor Party member Kevin Rudd. The deployment of Marines marks a significant reaffirmation of the alliance at a time of shifting geopolitical dynamics in the Asia-Pacific Region and is viewed by many as a key component of the Obama Administration’s “Pacific Pivot” or strategic rebalancingrebalance to Asia strategy. All recent Prime Ministers of Australia, including Prime Ministers JuliaRudd, Gillard, Kevin Rudd, and and Liberal Party member John Howard, have reaffirmed Australia’s traditional view that the United States is a key source of stability in the Asia-Pacific region and remains Australia’s key ally and strategic partner. This view is also shared by opposition leader Tony Abbott of the right of centrecenter Liberal Party. Prime Minister Julia Gillard Party. Rudd became Prime Minister after an internal Labor Party struggle. Former Prime Minister Rudd has remained in the government as Gillard’s Foreign Minister. Prime Minister Gillard narrowly secured a second term as Prime Minister in August 2010 over the right of centre Liberal-National CoalitionParliamentary elections, in which Rudd and Abbott are the leading candidates, have been called for September 2013. Under the former Liberal government of John Howard, Australia invoked the ANZUS treaty to offer assistance to the United States after the attacks of September 11, 2001, in which 22 Australians were among those killed. Australia was one of the first countries to commit troops to U.S. military operations in Afghanistan and Iraq. Terrorist attacks on Australians in Indonesia also led Australia to share many of the United States’ concerns in the struggle against Islamist militancy in Southeast Asia and beyond. The United States and the previous Howard Government signed a bilateral Free Trade Agreement (FTA) and negotiated a Treaty on Defense Trade Cooperation. Australia plays a key role in promoting regional stability in Southeast Asia and the Southwest Pacific and supports international efforts to promote stability in Afghanistan. Australia has led peacekeeping efforts in the Asia-Pacific region, including East Timor and the Solomon Islands, and has supported U.S. efforts and worked closely with key regional states in the war against terrorism in Southeast Asia. These actions demonstrate Australia’s resolve to promote stability in Southeast Asia, the South Pacific, and beyond. The Australian economy has done relatively well as compared to other developed economies in recent years. GDP growth is expected to rise from 2.8% in 2012 to an annual rate of 3% for the period from 2013 to 2016. Australia is also expected to balance its budget in fiscal year 2012/13 (July-June). Australia’s Senate passed a carbon tax which the opposition has pledged to repeal if it wins the next elections expected in 2013. Australia is also working with the United States to craft the Trans Pacific Partnership (TPP) agreement to promote trade and investment liberalization in the Asia-Pacific region Australia is also working with the United States to help craft the Trans Pacific Partnership (TPP) agreement to promote trade and investment liberalization in the Asia-Pacific region. While Australia has a complex array of international relations with many state and non-state actors, its geopolitical context is to a large extent defined by its economic relationship with China and its strategic relationship with the United States. Australia’s political leadership believes it does not have to choose between the two and that it can seek to have a constructive trade relationship with China while maintaining its close strategic relationship with the United States. Australia plays a key role in promoting regional stability in Southeast Asia and the Southwest Pacific and has supported international efforts to promote stability in Afghanistan. Australia has led peacekeeping efforts in the Asia-Pacific region, including East Timor and the Solomon Islands, and has supported U.S. efforts and worked closely with key regional states in the war against terrorism in Southeast Asia. The Australian economy has done relatively well when compared with other developed economies in recent years. Australia’s developing trade relationship with China has been a key source of growth. Congressional Research Service Australia: Background and U.S. Relations Contents Recent Events .................................................................................................................................. 1 The Obama VisitPolitical Context ........................................................................................................................ 1 The ANZUS Alliance .Rudd’s Worldview ............................................................................................................... 2 Australia and the Shifting Correlates of Power in Asia.....Abbott’s Worldview ........................................................ 4 Background on Australia ................................................................................................................. 5 Government Structure and Domestic Politics... 2 Relations with the United States ............................................................................... 6 Government Structure............................... 3 AUSMIN ................................................................................. 6 The Gillard Government............................................................................................................ 6 The Former Rudd Government............4 The Obama Visit ...................................................................................... 7 Defense Policy and Security Ties .................................................................................................... 7 Defense Policy........ 5 Background on Australia ................................................................................................................... 7 Security Ties .............................................. 7 Government Structure and Domestic Politics................................................................................ 8 Australian External AffairsDefense and Foreign Policy ........................................................................................... 8 Defense Policy ................... 9 Foreign Policy Orientation ........................................................................................................ 9 Relations with the United States8 Foreign Policy ................................................................................................ 9 Asia-Pacific Affairs ............................ 10 Emphasis on Asia and the Pacific ..................................................................................... 1110 Australia’s Identity and Asia ............................................................................................. 1110 Indonesia ........................................................................................................................... 11 China ................................................................................................................................. 1211 Japan.................................................................................................................................. 13 India................................................................................................................................... 13 Australia and Regional Dynamics in the Southwest11 The Pacific ................................................... 14 Fiji ..................................................................................................................................... 14 Timor-Leste ....................................................................................................................... 15 The Solomon Islands......................................................................................................... 16 Australia and Counter-terrorism .................................................................................................... 16 12 Australia and the EnvironmentCounterterrorism ...................................................................................................... 17 13 Economic and Trade Issues............................................................................................................ 1713 Figures Figure 1. Map of Australia ............................................................................................................. 1915 Contacts Author Contact Information........................................................................................................... 19 Congressional Research Service Australia: Background and U.S. Relations Recent Events The Obama Visit President Obama’s visit to Australia on November 16 and 17, 2011, marked a significant expansion of an already strong tradition of military cooperation between the United States and Australia. The United States enjoys very robust bilateral strategic, intelligence, cultural, trade, and investment relations with Australia. Australia has embarked on a major defense buildup as a response to uncertainties in the evolving geopolitical dynamics of the Asia-Pacific region.1 President Obama’s visit took place after the Asia Pacific Economic Cooperation (APEC) meeting in Hawaii and immediately before the East Asia Summit (EAS) meeting in Bali, Indonesia. Taken together, these events sent a clear signal to Australia and the region that the United States has made a strategic decision to shift strategic focus onto the Asia-Pacific region. Australia continues to seek to keep the United States engaged in the Asia-Pacific, as it sees the United States as a stabilizing influence in the region. Two previously planned trips to Australia by the President had to be canceled due to the health care debate in Washington and the oil spill in the Gulf of Mexico. President Obama addressed a special sitting of Parliament on November 17 in Canberra before making a brief stop in Darwin, Australia, on the way to Bali. This important speech clearly set out America’s strategic commitment to the Asia-Pacific region and reaffirmed the bonds of solidarity between the United States and Australia.2 During an earlier visit to the United States in March 2011, Prime Minister Gillard addressed a joint session of the U.S. Congress and stated, “You have a friend in Australia. An ally for war and peace ... our values are shared and our people are friends. This is the heart of our alliance.”3 Australian Opposition Leader Tony Abbott welcomed the Obama visit and stated, “America is Australia’s greatest friend and strongest ally, the President of the U.S. will always be most welcome and our most honored guest.” This visit also marked the 60th anniversary of the ANZUS alliance.4 There is widespread political support for the alliance in Australia. During his visit to Australia, President Obama and Prime Minister Gillard announced that the United States will deploy on a rotational basis up to 2,500 Marines, which are part of a MarineAir Ground Task Force, to the Northern Territory and that there will be additional joint air force cooperation between the two nations. These moves are part of new force posture initiatives that will significantly enhance defense cooperation between the two nations and will also include the prepositioning of equipment and supplies.5 The U.S. forces will be housed in Australian facilities and are part of a U.S. effort to diversify the U.S. military presence in Asia.6 It was announced that the deployments would begin in the summer of 2012 with an initial group of 250 Marines. The 1 Edna Curran, “Australian Defence Minister Says Worried by F-35 Delays,” Dow Jones Newswire, October 16, 2011 and Nigel Pittaway, “Analysts Cautiously Optimistic About Australian Defense Reforms,” Defense News, July 18, 2011. 2 “Remarks by President Obama to the Australian Parliament,” Parliament House, Canberra, Australia, November 17, 2011, Office of the Press secretary, The White House. 3 “Australian Prime Minister Julia Gillard: ‘There is a Reason America,’” Los Angeles Times, March 10, 2011. 4 Catherine Hockley, “It’s Third Time Lucky as Obama Ready to Visit,” The Advertiser, October 14, 2011. 5 Prime Minister, president of the United States, “Australia-United States Force Posture Initiatives,” Office of the Prime Minister of Australia, November 16, 2011. 6 David Nakamura, “U.S. Troops Headed to Australia, Irking China,” The Washington Post, November 16, 2011. Congressional Research Service 1 Australia: Background and U.S. Relations announcement of the decision to expand the U.S. troop presence in Australia came after Secretary of State Hillary Clinton’s “America’s Pacific Century” article in Foreign Policy and has been viewed by many as providing a substantive military component to a policy that was designed to send a signal to Asia that the United States is firmly committed to the region. As such, expanded military ties with Australia can be viewed as a key component that will demonstrate America’s resolve in Asia. The Obama Administration’s decision to rebalance American strategic priorities from the Middle East to Asia coincides with Australian strategic priorities that seek to keep America fully engaged in Asia. The ANZUS Alliance The Commonwealth of Australia and the United States have been treaty allies since the signing of the tri-lateral Australia-New Zealand-United States (ANZUS) Treaty in San Francisco in 1951. In the mid-1980s, this became a de-facto bilateral alliance with Australia, as New Zealand was largely excluded due to its anti-nuclear policies. Since that time, the Australia-U.S. Ministerial (AUSMIN) process has become a key component of the bilateral strategic and defense relationship between Australia and the United States. The two nations also share a very deep and broad-based intelligence relationship.7 The U.S.-Australia joint defense facilities aid in intelligence collection, ballistic missile early warning, submarine communications, and satellitebased communications.8 Formal consultations include policy planning, political-military, and milmil talks.9 The Wellington Declaration of 2010 signaled that the United States and New Zealand have overcome past differences. The declaration establishes a new strategic partnership and provides for enhanced cooperation in a range of areas including enhanced military cooperation.10 Australia and New Zealand continue to have close bilateral defense ties. Australia has been a strong partner in the global war against terror and its citizens have been the victims of several terrorist attacks, as noted above. As a result, Australia shares the U.S. perspective in the struggle against violent anti-Western Islamist extremists. Australia has seen significant benefits from the economic rise of China, but like the United States has some concerns about China’s growing strategic posture.11 Of the 3,300 Australian Defence Force Personnel deployed abroad at present, approximately 1,550 are deployed in Afghanistan as part of Australia’s Operation Slipper, while an additional 800 are deployed elsewhere in the Middle East.12 Australia has been one of the larger contributors to international efforts to stabilize Afghanistan.13 7 H.E. The Hon. Kim Beazley, Australian Ambassador to the United States, “On ANZUS turning 60,” 2011 ANZAC Lecture, Georgetown University, April 20 2011. 8 Defending Australia in the Asia Pacific Century: Force 2030, Defence White Paper 2009, Australian Government, Department of Defence, http://www.defence.gov.au. 9 “The Australia-U.S. Alliance,” Department of Foreign Affairs and Trade, Government of Australia, http://www.dfat.gov.au 10 “US, New Zealand Sign Pact Ending 25-Year Rift,” Voice of America, November 4, 2011. 11 Defending Australia in the Asia Pacific Century: Force 2030, Defence White Paper 2009, Australian Government, Department of Defence, http://www.defence.gov.au 12 Global Operations – Department of Defence, http://www.defence.gov.au/op/index.htm 13 “The Australian Government is committed to international efforts to stabilise Afghanistan and to seek to ensure that international terrorist groups are denied safe haven there. As a part of the UN-mandated International Security Assistance Force (ISAF), Australia is working closely with NATO and other partners to assist the Afghan Government to create the conditions necessary for enduring stability and prosperity. Currently, Australia is the largest non-NATO (continued...) Congressional Research Service 2 Australia: Background and U.S. Relations Three Australian soldiers were killed and several others wounded on October 29, 2011, when a member of the Afghan National Army opened fire during a routine military parade in Kandahar. This brought the number of Australians killed in Afghanistan to approximately 35, with an additional 209 wounded.14 Australian Special Air Service Regiment troops have been a key part of Australia’s contribution to allied efforts in Afghanistan. The September 15, 2011, meeting in San Francisco of the Australia-U.S. Ministerial group marked the 60th anniversary of the ANZUS alliance at the same location where the treaty was signed. 15 Congressional Research Service Australia: Background and U.S. Relations Recent Events Australia, a traditionally staunch U.S. ally, has in recent years strengthened its long-standing alliance with the United States. The two nations also share strategic interests in the region and globally and have worked closely together to promote these goals. Australia’s “worldview” largely sees the United States as a force for good in the world and in Australia’s Indo-Pacific region. There is strong bipartisan elite and popular support in Australia for bilateral defense cooperation with the United States. Australia’s renewed emphasis on its relationship with the United States within the context of the Obama Administration’s rebalancing to Asia strategy makes it a valuable partner of the United States in the Indo-Pacific region. Australia’s political leadership does not see Australia’s economic relationship with China, which has been its largest trading partner since 2009, and its strategic relationship with the United States as incompatible1 and 87% of Australians believe that it is “possible for Australia to have a good relationship with China and the United States at the same time.” Australia’s decision to strengthen its already strong American alliance may also reflect growing uncertainty in Canberra about how to deal with the evolving correlates of power in Asia. While 76% of Australians identify China as the most important economy to Australia, as opposed to 16% that identify the United States economy as the most important, 48% of Australians place higher value on their relationship with the United States as compared with 37% that do with Australia’s relationship with China. Further, “68% of Australians support increased defense spending in the context of a rising Asia.”2 Australia has been an active supporter of United Nations Peace Operations and won a seat on the U.N. Security Council for 2013-2014. More than 65,000 Australians have served in U.N. and other multilateral peace operations since 1947, with 3,100 serving abroad today. Notable deployments in Australia’s region include Timor-Leste, Bougainville, and the Solomon Islands. Australia has also been one of the largest non-NATO contributors to the International Security Assistance Force in Afghanistan.3 Australia has announced that at least 1,000 of its 1,550 troops in Afghanistan will be withdrawn by the end of 2013.4 Political Context In a leadership “spill” in June 2013 Kevin Rudd ousted Australia’s first female Prime Minister Julia Gillard as leader of the Labor Party to become Prime Minister again. This is a particularly interesting turn of events as Gillard herself came to power in 2010 by displacing Rudd. Gillard was subsequently elected Prime Minister in the 2010 election with 72 Labor seats out of 150 in the House of Representatives. This made her government dependent on the Green Party and independent MPs. Rudd now faces a significant challenge to reunite a divided Labor Party and improve his and Labor’s standing in the polls if he is to be returned to office at the next election. The belief of many that Rudd could more effectively lead Labor in the next election played a key 1 “Australia,” The Economist Intelligence Unit Country Report, June 2013. “The Lowy Institute Poll 2013,” http://lowyinstitute.org. 3 “Australia: United Nations,” http://australia-unsc.gov.au. 4 “Australia Withdraws Afghanistan Troops,” The Guardian, March 26, 2013. 2 Congressional Research Service 1 Australia: Background and U.S. Relations role in his return.5 In August 2013, Rudd called elections for September 7, 2013. An August poll found the Liberal-National Coalition leading 51.5% to 48.5% over Labor based on preference votes being allocated as they were in the 2010 election. Tony Abbott is the leader of the Coalition. Australia has a voting system that reallocates first preference votes from the candidate with the least number of first preference votes to subsequent preferences if no one candidate wins 50% plus one in the first and subsequent rounds of vote counting. Rudd’s Worldview Rudd does not see an inherent contradiction in maintaining a strong alliance with the United States while also continuing to develop trade ties with China. While an advocate of the United States Rebalance to Asia Strategy, Prime Minister Rudd, a former diplomat who speaks Mandarin, has written in Foreign Affairs that the time has come for China and the United States to “... take stock, look ahead, and reach some long-term conclusions as to what sort of world they want to see beyond the barricades.” Rudd sees the present as offering the United States and China a “unique window of opportunity to put the U.S. China relationship on a better course.” Rudd also observed that to do this the two nations will need a “common conceptual framework and institutional structure.”6 When first Prime Minister, Rudd advocated an Asia Pacific Community concept, took an active role in Australia’s foreign and defense policies, promoted the alliance with the United States, sent troops to Afghanistan, expanded Australian foreign assistance, supported a robust Defense White Paper, and promoted the G-20.7 One of Rudd’s key achievements was keeping the Australian economy in relatively better shape than most of the developed world during the global financial crisis. Rudd has also placed emphasis on Australia’s relationship with Indonesia and other Asian nations. Abbott’s Worldview Liberal Party Leader Tony Abbott has reportedly suggested that Australia place renewed emphasis on “Anglosphere” countries in addition to Australia’s focus on Asia in its external relations. This has been criticized by Foreign Minister Bob Carr as potentially being misunderstood by Asian countries and as a result potentially undermining Australian relations with Asia.8 There appears to be support in Australia for close relations with Anglosphere countries:9 in one poll on Australian attitudes towards select countries, Australians ranked Great Britain first with a rating of 77 and the United States 70, as compared with China, 54; Iran, 38; and North Korea, 31.10 Ideological differences between the right-of-center Abbott and President Obama—differences that don’t present themselves between Rudd and Obama—could potentially place limits on the degree of closeness between the leaders. That said, this would not likely affect the substance of the very close relationship between the two nations. Abbott, who has stressed the role of values as 5 Andrew Probyn, “Rudd Wrests ALP Leadership,” The West Australian, June 27, 2013. Kevin Rudd, “Beyond the Pivot: A New Roadmap for U.S.-Chinese Relations,” Foreign Affairs, March/April 2013. 7 Graeme Dobell, “The Rudd Foreign Policy Legacy,” The Lowy Interpreter, June 24, 2010. 8 John Kerin, “Anglosphere Policy Would Hurt Asia Relations: Carr,” Financial Review, June 27, 2013. 9 The Anglosphere concept includes Australia, the United Kingdom, the United States, New Zealand, and Canada. 10 “The Lowy Institute Poll 2013,” http://lowyinstitute.org. 6 Congressional Research Service 2 Australia: Background and U.S. Relations Australia engages the world, has reportedly speculated that the United States under President Obama is undergoing a period of “doubt and introspection.”11 Relations with the United States The United States–Australia bilateral defense and alliance relationship has remained strong even as it has evolved through several different strategic contexts over the past 100 years. The United States and Australia both committed troops to suppress the Boxer Rebellion in China (19001901). In 1908, President Theodore Roosevelt’s Great White Fleet was welcomed in Australia, which was concerned with Japanese naval power after Japan defeated the Russian navy in the Battle of Tsushima in 1905. The defense relationship was forged when the two nations fought together on the Western Front in World War I, where U.S. troops fought under Australian General Monash at the Battle of Hamel. They also fought together in World War II in the South Pacific theatre of operations and beyond, and again in the Korean War in battles such as Kapyong. The 1951 ANZUS Treaty was signed at a time when Australia was concerned about a resurgent Japan and the United States was increasingly concerned with the growing power of the Soviet Union. The two nations came to share common concern during the Cold War, which saw Australian troops fighting alongside U.S. forces in Vietnam, and the two nations worked together to promote stability in the post-Cold War era in places like Somalia. The advent of the “War Against Terror” also drew the two nations together. Former Prime Minister John Howard evoked the ANZUS alliance to come to the assistance of the United States by sending Australian troops to serve in Iraq and Afghanistan. Australia and the United States also share a very deep and broad-based intelligence relationship.12 The U.S.-Australia joint defense facilities aid in intelligence collection, ballistic missile early warning, submarine communications, and satellite-based communications.13 Formal consultations include policy planning, political-military, and military-to-military talks.14 Australia has continued to have close defense ties with New Zealand as the United States has reestablished close defense relations New Zealand. The Wellington Declaration of 2010 and the Washington Declaration of 2012 signaled that the United States and New Zealand have overcome past differences. The declaration establishes a new strategic partnership and provides for enhanced cooperation in a range of areas including enhanced military cooperation.15 Australia and New Zealand continue to have close bilateral defense ties. Australia has been a strong partner in the global war against terror, while its citizens have been the victims of several terrorist attacks, as noted above. As a result, Australia shares the U.S. perspective in the struggle against violent, anti-Western Islamist extremists. Australia has seen significant benefits from the economic rise of China, but like the United States has some concerns about China’s growing strategic posture.16 11 “Rudd Puts on Foreign Policy Hat,” AAP, July 3, 2013. H.E. The Hon. Kim Beazley, Australian Ambassador to the United States, “On ANZUS Turning 60,” 2011 ANZAC Lecture, Georgetown University, April 20 2011. 13 Defending Australia in the Asia Pacific Century: Force 2030, Defence White Paper 2009, Australian Government, Department of Defence, http://www.defence.gov.au. 14 “The Australia-U.S. Alliance,” Department of Foreign Affairs and Trade, Government of Australia, http://www.dfat.gov.au. 15 “US, New Zealand Sign Pact Ending 25-Year Rift,” Voice of America, November 4, 2011. 16 Defending Australia in the Asia Pacific Century: Force 2030, Defence White Paper 2009, Australian Government, Department of Defence, http://www.defence.gov.au. 12 Congressional Research Service 3 Australia: Background and U.S. Relations Former Secretary of State Hillary Clinton signaled, in her 2011 article “America’s Pacific Century,” that the United States must make the Asia-Pacific a real priority. To implement this agenda and invest in the future of the Pacific, Clinton identified six “key lines of action: (1) strengthening bilateral security alliances; (2) deepening our working relationships with emerging powers, including with China; (3) engaging with regional multilateral institutions; (4) expanding trade and investment; (5) forging a broad-based military presence; and (6) advancing democracy and human rights.” Australia figures prominently in most of these contexts. Clinton wrote that “We are also expanding our alliance with Australia from a Pacific partnership to an Indo-Pacific one, and indeed a global partnership ... Australia’s counsel and commitment have been indispensable.”17 Vice President Biden reaffirmed the Obama Administration’s commitment to the rebalance to Asia strategy in a July 2013 speech at George Washington University.18 The political alignment of both the United States and Australia has enhanced continued close relations between the two countries. Australian voters moved their government to the left by electing Kevin Rudd of the Labor Party just prior to the American electorate’s shift to the left by electing President Obama. Former Prime Minister Gillard was also from the left of center Labor Party. Prime Minister Rudd stated that it was “American leadership from President Obama” that was the key to “bringing the world back from the brink” of a great depression in March of 2009.19 The close relationship between the two countries is demonstrated by the close people-to-people ties and is highlighted by the affection that Americans have for Australian performers, artists, and authors. The huge success of Australian actors and actresses in America dates back to Errol Flynn and more recently is demonstrated by Nicole Kidman, Russell Crowe, Cate Blanchett, Geoffrey Rush, Eric Bana, Hugh Jackman, and Heath Ledger. Australian musicians and performers such as AC/DC, Midnight Oil, INXS, Kylie Minogue, John Williams, Dame Edna, and Dame Joan Sutherland are also much loved in America, as are Australian authors such as Thomas Keneally, Jill Ker Conway, Peter Carey, Robert Hughes, Germaine Greer, and Patrick White. AUSMIN At the core of the ANZUS alliance is the Australia-United States Ministerial (AUSMIN) process. The 2013 AUSMIN meeting is to be held in the United States. This annual meeting of the U.S Defense Secretary and Secretary of State and their Australian counterparts, the Minister of Defence and the Minister of Foreign Affairs guides and shapes the alliance relationship. At the 2012 AUSMIN meeting held in Perth, on Australia’s Indian Ocean coast, former Secretary of State Hillary Clinton, and former Defense Secretary Leon Panetta met with then Minister for Defence Stephen Smith and Foreign Minister Bob Carr and discussed issues related to the following priority areas. Clinton also met with former Prime Minister Gillard. 1. Protect and promote Asia Pacific security. 2. Support regional dialogue. 3. Advance global security. 17 Secretary of State Hillary Clinton, “America’s Pacific Century,” Foreign Policy, November 2011. “Remarks by Vice President Joe Biden on Asia-Pacific Policy,” Office of the Vice President, July 19, 2013. 19 E.J. Dione, “Why We Didn’t Crash,” The Washington Post, August 24, 2009. 18 Congressional Research Service 4 Australia: Background and U.S. Relations 4. Promote global development. 5. Enhance our bilateral defense cooperation.20 The two nations also agreed to undertake a study of enhanced naval cooperation at locations around Australia including Australia’s Indian Ocean base at HMAS Sterling.21 At the September 2011 meeting Secretary Clinton stated the “ties between our two nations are as close as any in the world,” while then-Foreign Minister Rudd stated, “No one can overestimate the importance of the sharing of common values” when discussing the alliance.22 President Obama has described Rudd as “... somebody who I probably share as much of a worldview as any world leader out there.”23 The September 15, 2011, meeting in San Francisco of the Australia-U.S. Ministerial group marked the 60th anniversary of the ANZUS alliance at the same location where the treaty was signed. Former U.S. Defense Secretary Leon Panetta stated, “The goal here is to strengthen that relationship as best we can to send a clear signal to the Asia-Pacific region that the U.S. and Australia are going to work together to make very clear to those that would threaten us that we are going to stick together.” The 2011 AUSMIN meeting included a Joint Statement on Cyberspace that takes the view that “in the event of a cyber attack that threatens the territorial integrity, political independence or security of either of our nations, Australia and the United States would consult together and determine appropriate options to address the threat.”1524 At the November 2010 AUSMIN meeting, an agreement was reached to set up a Force Posture Working Group to examine “options for enhanced joint defence cooperation on Australian soil” including “more U.S. force training ... more port visits, disaster relief cooperation and a greater U.S. regional naval presence.” The announcement by President Obama and Prime Minister Gillard on further military cooperation appear to stem from this work. A recentA Lowy Institute poll of Australian public opinion found that 55% of Australians favor allowing the United States to base military forces in Australia.16 25 Australia and the United States signed a Defense Trade Cooperation Treaty in 2007. In September 2010, the U.S. Senate ratified the treaty. Approximately 50% of Australia’s war fighting assets are sourced from the United States.17 Australia has initiated a review of its F-35 purchase over concerns that the first group of planes will not be delivered on time. Australia has a requirement for up to 100 F-35As and plans to sign a deal on the first tranche of 14 planes in 2012. Australia reportedly wanted to take delivery of the first two F-35 planes in 2014 to begin training. 18 (...continued) troop contributor to ISAF, and the 10th largest contributor overall. Australia’s substantial military, civilian and development assistance to Afghanistan focuses on: training and mentoring the Afghan National Army (ANA) 4th Brigade in Uruzgan Province to assume responsibility for the province’s security; building the capacity of the Afghan National Police to assist with civil policing functions in Uruzgan; and helping improve the Afghan Government’s capacity to deliver core services and generate income-earning opportunities for its people. Australia’s military deployment is maintained at around 1550 personnel.” From “Afghanistan Country Brief,” Australian Government, Department of Foreign Affairs and Trade, http://www.dfat.gov.au 14 “Afghanistan,” Australian Department of Defence, http://www.defence.gov.au/op/afghanistan/info/personnel.htm 15 sourced from the United States.26 The Obama Visit President Obama’s visit to Australia on November 16 and 17, 2011, marked a significant expansion of an already strong tradition of military cooperation between the United States and Australia. The United States enjoys very robust bilateral strategic, intelligence, cultural, trade, and investment relations with Australia.27 President Obama’s visit took place after the Asia Pacific 20 Office of the Spokesperson, U.S. Department of State, AUSMIN 2012 Joint Communique, November 14, 2012. Government of Australia, Department of Defence, Defence White Paper 2013, p. 10. 22 “Transcript of Joint Press Conference with Defence Minister Stephen Smith, Foreign Minister Rudd, U.S. Secretary of State Hillary Clinton and U.S. Secretary of Defense Panetta,” San Francisco, September 15, 2011. 23 “I’m Just Like Rudd: Obama,” AAP, April 16, 2010. 24 U.S. Department of State, “U.S.–Australia Ministerial Consultations 2011 Joint Statement on Cyberspace,” September 15, 2011. 1625 Fergus Hanson, “2011 Lowy Institute Poll,” http://www.lowyinterpreter.org 17. 26 “Australia-United States Defence Trade Cooperation Treaty: Fact Sheet,” AUSMIN 2010. 18 Nigel Pittaway, “Australia Launches F-35 Review,” Defense News, October 31st, 2011. Congressional Research Service 3 Australia: Background and U.S. Relations Australia and the Shifting Correlates of Power in Asia Uncertainties over the shifting correlates of power in Asia have led recent governments in Australia to embark on the country’s biggest military expansion since World War II. Australia has plans to spend US $278.3 billion over the next 20 years to update its military equipment. This will include new submarines, frigates, air warfare destroyers, amphibious ships, new helicopters, offshore combatant vessels, and F-35 aircraft.19 China’s developing ability to project military power in the coming decades, signaled by the launch of its first aircraft carrier earlier this year, and concerns in some quarters in Australia that America may retreat from its engagement in Asia, are likely factors contributing to this defense buildup in Australia. Given the rapid rise and importance of Australian trade with China, some in Australia worry that over the long term Australia’s predominant strategic and economic partnerships, with the United States and China respectively, may become increasingly difficult to balance.20 It has been reported that Kevin Rudd told Secretary of State Clinton during a March 2009 meeting that the shared strategic goal of the United States and Australia should be to integrate China into the world system, but that the United States should be prepared to use force against China if plans fail. At the meeting, Rudd also reportedly described himself as a brutal realist with regard to China and stated that Australian intelligence agencies were closely watching China’s military expansion. He also reportedly indicated that Australia’s naval buildup, including plans to add additional attack submarines, was “a response to China’s growing ability to project force.”21 19 Enda Curran, “Australia’s Defence Minister Says Worried by F-35 Delays,” Dow Jones Newswire, October 18, 2011. Hugh White, “Power Shift: Australia’s Future Between Washington and Beijing,” Quarterly Essay, #39, 2010. 21 Daniel Flitton, The Age, December 6, 2010. 20 Congressional Research Service 427 Edna Curran, “Australian Defence Minister Says Worried by F-35 Delays,” Dow Jones Newswire, October 16, 2011, and Nigel Pittaway, “Analysts Cautiously Optimistic About Australian Defense Reforms,” Defense News, July 18, (continued...) 21 Congressional Research Service 5 Australia: Background and U.S. Relations Economic Cooperation (APEC) meeting in Hawaii and immediately before the East Asia Summit (EAS) meeting in Bali, Indonesia. Taken together, these events sent a clear signal to Australia and the region that the United States has made a strategic decision to shift its focus to the Asia-Pacific region. Australia continues to seek to keep the United States engaged in the Asia-Pacific, as it sees the United States as a stabilizing influence in the region. President Obama addressed a special sitting of Parliament on November 17 in Canberra before making a brief stop in Darwin, Australia, on the way to Bali. This important speech clearly set out America’s strategic commitment to the Asia-Pacific region and reaffirmed the bonds of solidarity between the United States and Australia.28 During an earlier visit to the United States in March 2011, former Prime Minister Gillard addressed a joint session of the U.S. Congress and stated, “You have a friend in Australia. An ally for war and peace ... our values are shared and our people are friends. This is the heart of our alliance.”29 Australian Opposition Leader Tony Abbott welcomed the Obama visit and stated, “America is Australia’s greatest friend and strongest ally, the President of the U.S. will always be most welcome and our most honored guest.”30 During his visit to Australia, President Obama and former Prime Minister Gillard announced that the United States will deploy on a rotational basis up to 2,500 Marines, which are part of a Marine-Air Ground Task Force, to the Northern Territory and that there will be additional joint air force cooperation between the two nations. These moves are part of new force posture initiatives that will significantly enhance defense cooperation between the two nations and will also include the prepositioning of equipment and supplies.31 The U.S. forces will be housed in Australian facilities and are part of a U.S. effort to diversify the U.S. military presence in Asia. (...continued) 2011. 28 “Remarks by President Obama to the Australian Parliament,” Parliament House, Canberra, Australia, November 17, 2011, Office of the Press secretary, The White House. 29 “Australian Prime Minister Julia Gillard: ‘There is a Reason America,’” Los Angeles Times, March 10, 2011. 30 Catherine Hockley, “It’s Third Time Lucky as Obama Ready to Visit,” The Advertiser, October 14, 2011. 31 Prime Minister, president of the United States, “Australia-United States Force Posture Initiatives,” Office of the Prime Minister of Australia, November 16, 2011. Congressional Research Service 6 Australia: Background and U.S. Relations Background on Australia Australia was first inhabited from 40,000 to 60,000 years ago. The Aboriginal people of Australia are the world’s oldest continuous culture. Today, Aboriginal and Torres Strait Islanders people account for up to 2.5% of Australia’s total population.2232 While the Aboriginal population were hunter-gatherers, they developed a complex “Dreamtime” culture, a spiritual culture focusing on creation myths, rituals, laws, and connections to ancestors and the Australian landscape. Captain James Cook claimed Australia for Britain in 1770, and in 1788 the first European settlement, largely made up of convicts, was established at Sydney, New South Wales. Australia evolved into a pastoral settler society based on sheep and wool, with the increasing importance of minerals following the gold rush of 1851. Australia at a Glance Government: Parliamentary democracy and federal state system Leadership: Prime Minister Julia GillardKevin Rudd Head of State: Queen Elizabeth II, who appoints a Governor-General on the advice of the Prime Minister. Political Parties: Labor, Liberal, National, Greens. Area: About the size of the lower 48 U.S. states Capital: Canberra, population 384,000 Population: 22 million Population growth rate: 1.21% Urbanization: 89% Literacy: 99% Life expectancy at birth: 81.8182 years Health Expenditure: 8.57% of GDP Ethnic groups: Caucasian 92%, Asian 7%, aboriginal and other 1% to 2.5% Foreign-born population: 25% Natural resources: Bauxite, coal, iron ore, copper, tin, gold, silver, uranium, nickel, tungsten, mineral sands, lead, zinc, diamonds, natural gas, petroleum. Land use: arable 6.15%, GDP growth: 2.83.6% GDP composition by sector: Agriculture 3.9%, industry 25.5%, services 70.6% Labor force: agriculture 3.6%, industry 21.1%, services 75%. GDP per capita ppp: $41,000(ppp): $43,300 Inflation: 2.8% Unemployment: 5.2% Exchange rate: Roughly even with the US Dollar. Although the majority of Australians have British or Irish ancestry, Australia’s immigrants also came from elsewhere in Europe, particularly after World War II.2333 Today, Australian immigration is increasingly from Asia, with Asians accounting for approximately 7% of the population. Despite the centrality of the “bush” or the “outback” to Sources: Australian Bureau of Statistics; CIA, The, CIA World Factbook,; State Department Background Notes,; the national myth, Australia has evolved into a Economist Intelligence Unit. very urbanized society, with only 11% living in rural areas. Australia is slightly smaller than the contiguous lower 48 United States and has a population of approximately 22 million. Australia has for some time been undergoing a national identity debate related to its relationships with Asia, in which it is geographically situated, and with Britain, the United States, and Europe, with which it has deep cultural and historical linkages. Australian trade interests are increasingly focused on Asia, and in particular China, while its key strategic relationship is with the United States.24 2234 32 Estimates vary from about 1% to 2.5%. In 1947, 89.7% of Australia’s population was Anglo-Celtic. By 1988 this had dropped to 74.6%. Department of Immigration and Citizenship, “National Agenda for a Multi-cultural Australia,” http://www.immi.gov. 2434 For a history of the evolution of Australia’s external relations see David Lee, Australia and the World in the Twentieth Century (Melbourne: Circa Publishers, 2006). 2333 Congressional Research Service 57 Australia: Background and U.S. Relations Government Structure and Domestic Politics Australia is an independent nation within the British Commonwealth. The Head of State is the ruling monarch of the United Kingdom, who is represented by the Governor General in Australia. Queen Elizabeth II is represented by the Governor General Quentin Bryce. In practice, . In practice, power is held by the Prime Minister and Cabinet, who are elected members of Parliament. Parliamentary Parliamentary elections are called by the government, but must be held at least once every three years. The Liberal-National Party coalition and the Labor Party are the two main political forces in in Australia.2535 There is a growing republican movement in Australia that supports breaking with the British Crown. The Gillard Government’s generally narrow margin over the opposition Liberal-National Coalition has meant that it must retain the support of independent and Green Party supporters to rule. The next general election is due in 2013, though the narrow margin of government support in parliament and the Labor Party’s dependence on independents and the Green party MP in the lower house could make an early election more likely should the government encounter political difficulties. Government Structure the British Crown. Australia is divided into several administrative divisions. There are six states and two territories. The states are: New South Wales, Queensland, Victoria, South Australia, West Australia, and Tasmania. The territories are the Australian Capital Territory and the Northern Territory. There are also a number of dependent islands including Christmas Island, Norfolk Island, and the Cocos Islands. All citizens 18 years of age and older must vote. The head of state is Queen Elizabeth II, who is represented by the Governor General in Australia, Quentin Bryce. Australia has a bicameral parliament consisting of the House of Representatives and the Senate. The House has 150 Representatives, who are elected through a preferential ballot. The Senate has 76 seats, with 12 senators from each of the six states and two senators from each of the two territories. One half of the state senators are elected every three years and territory senators are elected every three years. Although the government must call elections every three years, it may call early elections. A double dissolution, where all members of both legislative bodies must stand for election, may be called if government legislation is blocked twice in three months. The Gillard Government Prime Minister Julia Gillard has continued Australia’s tradition of close relations with the United States. Gillard addressed a Joint Session of Congress during her visit to Washington in February 2011. In her address, Gillard highlighted the strong bonds between the two nations. Gillard also recalled the crucial role that the United States played in stopping the Japanese advance towards Australia in World War II at the Battle of the Coral Sea and added that “Australia does not forget.”26 Prime Minister Gillard’s predecessor, former Prime Minister and current Foreign Minister Kevin Rudd, also of the Labor Party, also reaffirmed Australia’s traditional view that the 25 U.S. Department of State, “Background Note: Australia,” December, 2004, and Central Intelligence Agency, “World Factbook, Australia,” June, 2005. 26 “Australia’s Prime minister Julia Gillard: There is a Reason America,” Los Angeles Times, March 10, 2011. Congressional Research Service 6 Australia: Background and U.S. Relations United States is a key source of stability in the Asia-Pacific region and remains Australia’s key ally.27 Labor Party political rivals Gillard and Rudd appear to have put their differences aside, at least for the present.28 The Former Rudd Government On November 24, 2007, Kevin Rudd was elected prime minister, ending Prime Minister John Howard’s term in office that began in March 1996. Rudd’s electoral victory over Howard, who lost his own parliamentary seat representing Bennelong, marked a significant shift away from the Liberal Party-dominated government that had ruled Australia since 1996.29 As Prime Minister, Rudd reaffirmed Australia’s and the Labor Party’s commitment to its alliance relationship with the United States. Rudd moved to draw down Australian military forces in Iraq while keeping Australian troops in Afghanistan. The fact that Rudd chose to visit the United States on his first visit abroad as the opposition leader, prior to becoming prime minister, signaled that he views the U.S. strategic alliance to be of central importance to Australia. Rudd has taken an active role in foreign policy, particularly with China, given his former career in the Department of Foreign Affairs and Trade. Defense Policy and Security Ties Defense Policy The Gillard Government’s decision to take the defense relationship with the United States to a new level builds on previous Australian government’s close relationships with the United States and is seen by some as “a decisive answer to the strategic question posed by the rise of China.”30 The Australian Defence White Paper of 2009 stated: China will also be the strongest Asian military power, by a considerable margin. Its military modernisation will be increasingly characterised by the development of power projection capabilities. A major power of China’s stature can be expected to develop a globally significant military capability befitting its size. But the pace, scope and structure of China’s military modernisation have the potential to give its neighbours cause for concern if not carefully explained, and if China does not reach out to others to build confidence regarding its military plans.31 Australia did much to augment its defense capabilities under former Prime Minister Howard’s leadership, including a 47% real increase in defense spending under his watch.32 Howard committed his government to a 3% annual real increase in defense spending out to the year 2016. Former Prime Minister Rudd similarly pledged support for robust defense expenditures. A 27 “Country Report: Australia,” The Economist, October, 2011. Laurie Oaks, “Gillard, Rudd Put Differences Aside,” Daily Telegraph, October 29th, 2011. 29 “Country Report Australia,” The Economist Intelligence Unit, July 2008. 30 Paul Kelly, “Deeper US Alliance in Response to Strident China,” The Australian, November 10, 2010. 31 Defending Australia in the Asia Pacific Century: Force 2030, Defence White Paper 2009, Australian Government, Department of Defence, http://www.defence.gov.au 32 The Honorable Brendan Nelson, Minister for Defense, “Defence Update 2007 - Protecting Our People, Interests, and Values,” July 5, 2007. 28 Congressional Research Service 7 Australia: Background and U.S. Relations commitment to fund a strong defense posture has been continued by Prime Minister Gillard. Keeping the United States engaged in Asia has been a key foreign policy objective of Australia and one that continues to enjoy broad political support. There has been a long standing debate in Australian defense planning circles over the relative emphasis on continental defense of Australia and the need to configure Australian forces to integrate with key allies in expeditionary operations—traditionally with Great Britain and, since the end of World War II, the United States. Despite this debate, there has been much continuity in practice, especially with regard to support for Australia’s commitments to the United States. While the ANZUS alliance and the broad bilateral relationship have consistently enjoyed bilateral support across the political spectrum in both countries, relations between all political elites across the political spectrum have not always been close. The former leader of the then opposition Labor Party, Mark Latham, was criticized by the former Howard Government in the lead-up to the 2004 election for describing President Bush in unfavorable terms and for his intent to withdraw Australian troops from Iraq if elected. In response to Latham’s proposed policy, President Bush stated that it would be a “disastrous decision” that would “dispirit those who love freedom in Iraq and embolden the enemies who believe they can shake our will.”33 Many on the left of the Labor party also opposed a free trade agreement (FTA) with the United States.34 The exchange between Latham and Bush made the ANZUS alliance an election issue in Australia in 2004. Former Deputy Secretary of State Richard Armitage’s criticism of Labor’s earlier policy on Iraq led former Labor Prime Minister Paul Keating to urge the United States to stay out of Australian elections. Security Ties While rivalry between the Wallabies and the All Blacks remains intense on the rugby pitch, Australia and New Zealand continue their tradition of closely working together in the area of security. A core identity of the Australian military and broader Australian culture is the ANZAC legend. ANZAC refers to the Australia New Zealand Army Corp that fought together in World War I in places such as Gallipoli. The ANZAC experience at Gallipoli was central in helping Australia define its national identity independent of its status as part of the British Empire. Australia-New Zealand defense relations were formalized through the 1944 Canberra Pact and the 1951 ANZUS Treaty. Australia and New Zealand are also linked through the 1971 Five Power Defence Arrangements (FPDA), which also includes Great Britain, Malaysia and Singapore. The FPDA, which was established in the context of Britain’s plans to withdraw forces from east of the Suez, has, in the view of some, proven to be surprisingly durable. Large-scale exercises were held by member states to mark the 40th anniversary of the Arrangements.35 The 1991 Closer Defence Relations (CDR) Agreement, which was revised in 2003, serves as a framework for bilateral defense ties between Australia and New Zealand.36 Australian and New Zealand military forces continue to work together to promote regional stability in places such as Timor-Leste and The Solomon Islands. 33 “Australia: Friendly Fire,” Far Eastern Economic Review, July 15, 2004. Mark Davis, “Latham Faces Party Showdown on FTA,” Financial Review, July 21, 2005. 35 “Banyan: Echoes of Dreamland,” The Economist, November 5, 2011. 36 “New Zealand Country brief,” Department of Foreign Affairs and Trade, November, 2008. 34 Congressional Research Service 8 Australia: Background and U.S. Relations Australian Defense and Foreign Policy The 2013 Defence White Paper, along with the 2013 National Security Strategy document and the 2012 Australia in the Asian Century Foreign Affairs White Paper, all completed under the former Gillard Government, represent the most recent published articulations of Australia’s foreign and defense policy.36 An underlying theme of these documents is the shift of economic and geopolitical power from West to East and the need for Australia to seek to shape the international environment in support of its strategic and economic interests. The 2013 Defence White Paper also placed emphasis on the Indo-Pacific as a strategic concept. Defense Policy While the United States remains Australia’s key strategic partner, Australia maintains other traditional security relationships, such as with New Zealand and the nations of the Five Power Defence Arrangements (FPDA), and is developing new security ties with countries such as Japan, Korea, and Indonesia. 35 U.S. Department of State, “Background Note: Australia,” December, 2004, and Central Intelligence Agency, The World Factbook, Australia, June, 2005. 36 Australian Government, Department of Defence, Defence White Paper 2013; Australian Government, Department of Prime Minster and Cabinet, Strong and Secure: A Strategy for Australia’s National Security, 2013; and The Australian Government, Department of Defence, Defence White Paper 2009; and Australian Government, Australia in the Asian Century, Department of Prime Minister and Cabinet, October 2012. Congressional Research Service 8 Australia: Background and U.S. Relations A core identity of the Australian military and broader Australian culture is the ANZAC legend. ANZAC refers to the Australia New Zealand Army Corp that fought together in World War I in places such as Gallipoli. The ANZAC experience at Gallipoli was central in helping Australia define its national identity independent of its status as part of the British Empire. Australia-New Zealand defense relations were formalized through the 1944 Canberra Pact and the 1951 ANZUS Treaty. The 1991 Closer Defence Relations (CDR) Agreement, which was revised in 2003, serves as a framework for bilateral defense ties between Australia and New Zealand.37 Australian and New Zealand military forces continue to work together to promote regional stability in places such as Timor-Leste and the Solomon Islands. Australia and New Zealand are also linked through the 1971 Five Power Defence Arrangements, which also includes Great Britain, Malaysia and Singapore. The FPDA, which was established in the context of Britain’s plans to withdraw forces from east of the Suez, has, in the view of some, proven to be surprisingly durable. Large-scale exercises were held by member states to mark the 40th anniversary of the Arrangements.38 Australia and Japan have been developing bilateral security relations under the Australia-Japan Joint Declaration on Security Cooperation (JDSC) signed in 2007 under the Howard Government. The JDSC offers the potential for security cooperation in the areas of border security; counterterrorism; disarmament and counter proliferation of weapons of mass destruction; maritime and aviation security; and peace operations and humanitarian relief operations.3739 The United States, Japan, and Australia initiated a trilateral security dialogue in 2002. China, The rise of China, tensions on the Korean Peninsula, and the war against terror all provide an impetus for security collaboration between these three partners. Australian External Affairs Foreign Policy Orientation Australian foreign policy has always been closely aligned with the West, especially with the United Kingdom and since World War II with the United States. That said, Australia’s interest in developing relations with Asian states has grown steadily since World War II. These developed first with Japan and Southeast Asia and then increasingly with China and India. Australia’s special relationship with Papua New Guinea and the Pacific Island states of the South Pacific has led to deep involvement by Australia with these countries and regional institutions such as the Pacific Islands Forum. Australia’s geographic proximity to Indonesia has also meant that Indonesia and other ASEAN states are of great interest and importance to Australia. In September 2011, the Gillard Government commissioned a new foreign policy White Paper, “Australia in the Asian Century.” The White Paper is to “provide a blueprint for Australia at a time of transformative economic growth and change in Asia” and is to identify “opportunities for deepening our engagement with Asia across the board.” The White paper is also to assess the “political and strategic implications of the Asian Century for Australia; and the role of effective economic and political regional and global cooperation.” 38 Relations with the United States The United States–Australia bilateral defense and alliance relationship is one that has remained strong even as it has evolved through several different strategic contexts over the past 100 years or so. The United States and Australia both committed troops to suppress the Boxer Rebellion in China (1900-1901). In 1908, President Theodore Roosevelt’s Great White Fleet was welcomed in Australia, which was concerned with Japanese naval power after Japan defeated the Russian navy in The Battle of Tsushima in 1905. The defense relationship experienced its first real baptism of fire when the two nations fought together on the Western Front in World War I, where U.S. troops fought under Australian General Monash at the Battle of Hamel. They also fought together in World War II in the South Pacific theatre of operations and beyond, and again in the Korean War in battles such as Kapyong. The 1951 ANZUS Treaty was signed at a time when Australia was concerned about a resurgent Japan and the United States was increasingly concerned with the growing power of the Soviet Union. The two nations came to share common concern during the Cold War, which saw Australian troops fighting alongside U.S. forces in Vietnam, and the two 37 38 “Japan Country Brief,” Department of Foreign Affairs and Trade, May15, 2009. Office of the Prime Minister, “Australia in the Asian Century,” September 28, 2011. Congressional Research Service 9 Australia: Background and U.S. Relations nations worked together to promote stability in the Post Cold War Era in places like Somalia. The advent of the “War Against Terror” also drew the two nations together. Former Prime Minister John Howard evoked the ANZUS alliance to come to the assistance of the United States and he sent Australian troops to serve alongside American troops in Iraq and Afghanistan. Secretary of State Clinton signaled, in her 2011 article “America’s Pacific Century,” that the United States is at a pivot point and must make the Asia-Pacific a real priority. To implement this agenda and invest in the future of the Pacific, Clinton identified six “key lines of action: (1) strengthening bilateral security alliances; (2) deepening our working relationships with emerging powers, including with China; (3) engaging with regional multilateral institutions; (4) expanding trade and investment; (5) forging a broad-based military presence; and (6) advancing democracy and human rights.” Australia figures prominently in most of these contexts. Clinton wrote that “We are also expanding our alliance with Australia from a Pacific partnership to an Indo-Pacific one, and indeed a global partnership ... Australia’s counsel and commitment have been indispensible.”39 Australia, along with the United Kingdom, has enjoyed a special trusted place in American strategic, defense, and intelligence circles particularly under the close relationship between former President Bush and former Prime Minister John Howard. One American strategic analyst, Michael O’Hanlon, has described Australia as “tough enough to be of help in virtually any war, smart enough to be worth consulting on any big issue from the Middle East to the Korean Peninsula, and (with apologies) small enough that at the end of the day they also accept the role of being an important yet clearly junior alliance partner.”40 O’Hanlon also points to the value of Australia’s support in providing the U.S. multilateral and internationalist “cover” as well as being a “trusted confidant” and being part of a nucleus ready to build a new world order. The political alignment of both the United States and Australia has enhanced continued close relations between the two countries. Australian voters moved their government to the left by electing Kevin Rudd of the Labor Party just prior to the American electorate’s shift to the left by electing President Obama. Prime Minister Gillard is also from the left of centre Labor Party. Prime Minister Rudd stated that it was “American leadership from President Obama” that was the key to “bringing the world back from the brink” of a great depression in March of 2009.41 The popularity of President Obama with the Australian public has facilitated ties between the two nations. In one poll, 67% of Australians favored candidate Obama over candidate John McCain.42 Another poll reportedly had Australians supporting an Obama electoral victory by a margin of nearly five to one.43 The close relationship between the two countries is demonstrated by the close people-to-people ties between the two nations and is highlighted by the affection that Americans have for Australian performers, artists and authors. The huge success of Australian actors and actresses in America dates back to Erol Flynn and more recently is demonstrated by Nicole Kidman, Russell 39 Secretary of State Hillary Clinton, “America’s Pacific Century,” Foreign Policy, November 2011. Michael O’Hanlon and Michael Fullilove, “Barack Obama, Kevin Rudd and the Alliance: American and Australian Perspectives,” Lowy Institute, August 2009. 41 E.J. Dione, “Why We Didn’t Crash,” The Washington Post, August 24, 2009. 42 “All Countries in BBC Poll Prefer Obama,” BBC News, September 9, 2008. 43 Michael Fullilove, “Barack Obama, Kevin Rudd and the Alliance: American and Australian Perspectives”, Lowy Institute, August 2009. 40 Congressional Research Service 10 Australia: Background and U.S. Relations Crowe, Cate Blanchett, Geoffrey Rush, Eric Bana, Hugh Jackman, and Heath Ledger. Australian musicians and performers such as AC/DC, Midnight Oil, INXS, Kylie Minogue, John Williams, and Dame Joan Sutherland are also much loved in America, as are Australian authors such as Thomas Keneally, Jill Ker Conway, Peter Carey, Robert Hughes, Germaine Greer, and Patrick White. Asia-Pacific Affairs between these three partners. Australia and South Korea recently held their first Foreign and Defense Ministers meeting, or 2+2, in July 2013. This is South Korea’s second 2+2 dialogue. Its other 2+2 is with the United States. This effort to forge a closer bilateral partnership between Australia and South Korea is viewed by observers as an effort to foster enhanced cooperation between these two middle powers in Asia in a way that can promote their shared strategic interests in the region.40 Indonesia’s geographic proximity and size make good relations with Jakarta a key foreign policy priority for Australia. Australia’s relationship with Indonesia has at times been troubled. This was the case when Australia supported Timor-Leste’s independence. Today, bilateral relations are positive. The strategic aspect of the relationship is defined by the 2006 Lombok Treaty as well as a Memorandum of Understanding on Combating International Terrorism.41 In November 2007, the Indonesian Peoples Representatives Council ratified a security treaty, previously ratified by the Australian parliament, which was signed in Lombok, West Nusa Tenggara, by former Foreign Minister Alexander Downer and Foreign Minister Hassan Wirajuda. The treaty recognizes Indonesian sovereignty over West Papua.42 Many Australians were killed in the 2002 Bali 37 “New Zealand Country Brief,” Department of Foreign Affairs and Trade, November 2008. “Banyan: Echoes of Dreamland,” The Economist, November 5, 2011. 39 “Japan Country Brief,” Department of Foreign Affairs and Trade, May 15, 2009. 40 Lee Jaehyon and Joo Haeri, “A 2+2 for the Future: The First Korea-Australia Foreign and Defence Ministers’ Meeting,” The Asan Institute for Policy Studies, July 25, 2013. 41 Hon. Stephen Smith MP, Minister for Foreign Affairs, “Launch of Australian Strategic Policy Institute Strategy Report on Indonesia,” May 27, 2008, Parliament House, Canberra. 42 “Indonesian Parliament Approves Papua Sovereignty Treaty with Australia,” BBC News, November 29, 2007. 38 Congressional Research Service 9 Australia: Background and U.S. Relations bombing carried out by the Jemaah Islamiya terrorist group. The Australian Embassy in Jakarta was also bombed in 2004 and a second terrorist attack struck Bali in 2005.43 Foreign Policy Emphasis on Asia and the Pacific Many in Australia firmly believe that the 21st Century is an Asian Century and that this presents Australia with opportunity. The former Gillard Government commissioned a Foreign Policy White Paper Australia in the Asian Century which was published in 2012. The white paper was intended to present a roadmap to the nation for its engagement with Asia. Australia sees the global center of gravity shifting to its region thus eliminating a “tyranny of distance” that for much of Australia’s history left it isolated from global centers of commerce and power. The new perspective for Australia in this Asian Century, as outlined in the white paper, is the “prospect of proximity” and the opportunity that this presents.44 Australia’s Identity and Asia Australia’s identity as a nation is intertwined with its ongoing debate over how it should engage Asia. Former Prime Minister Howard approached the debate by making the point that Australia need not choose between its history, which is grounded in the West, and its geography, which locates Australia on the periphery of the Asia-Pacific region. Former Labor Prime Minister Paul Keating (1991-1996) moved enthusiastically to engage Asia, building on his predecessor Bob Hawke’s (1983-1991) efforts that included the formation of the Asia Pacific Economic Cooperation (APEC) forum in 1989. Many in Australia viewed Keating’s initiatives as going too far, reflecting the fact that many Australians’ sense of identity was not grounded in an “Asian” identity. As discussed above, observers note that Rudd has relatively more focus on Asia while Abbott has placed emphasis on reinforcing ties with the Anglo-sphere nations. These debates over identity are real to Australians. Although Australia is a large continent, its population of 22 million people is located relatively close to key population centers of Asia, including Indonesia (240 million), China (1.3 billion), and India (1.2 billion). Australia’s isolation from its key cultural partners and strategic allies in the West has led traditionally to an existential fear of being overwhelmed by Asia. This has given way in recent years to increasing interest in Asia as it is viewed as a source of prosperity and no longer only as a potential threat. The Rudd government’s February 2008 apology to the Aboriginal population of Australia demonstrates that the dominant Anglo-Celtic identity is increasingly prepared to accommodate non-white Australian identities. Increasing Asian immigration is also changing the face of Australia. Australia’s shifting trade patterns continue to draw it to Asia even as it has not fully reconciled what this means for its identity. Indonesia Indonesia’s geographic proximity and size make good relations with Jakarta a key foreign policy priority for Australia. While Australia’s relationship with Indonesia has at times been troubled, as was the case as a result of Indonesian displeasure over Australia’s role in Timor-Leste’s independence, relations are at present positive. The strategic aspect of the relationship is defined by the 2006 Lombok Treaty as well as a Memorandum of Understanding on Combating International Terrorism.44 In November 2007, the Indonesian Peoples Representatives Council ratified a security treaty, previously ratified by the Australian parliament, which was signed in Lombok, West Nusa Tenggara, by former Foreign Minister Alexander Downer and Foreign Minister Hassan Wirajuda. The treaty recognizes Indonesian sovereignty over West Papua.45 Many Australians were killed in the 2002 Bali bombing carried out by the Jemaah Islamiya 44 Hon Stephen Smith MP, Minister for Foreign Affairs, “Launch of Australian Strategic Policy Institute Strategy Report on Indonesia,” May 27, 2008 Parliament House, Canberra. 45 “Indonesian Parliament Approves Papua Sovereignty Treaty with Australia,” BBC News, November 29, 200743 44 Department of Foreign Affairs and Trade, “Indonesia Country Brief,” June 2008. Australia in the Asian Century, Government of Australia White Paper, October 2012. Congressional Research Service 11 Australia: Background and U.S. Relations terrorist group. The Australian Embassy in Jakarta was also bombed in 2004 and a second terrorist attack struck Bali in 2005.46 Australia and Indonesia have experienced difficulties, as well as successes, in their bilateral relationship in recent years. Tensions over asylum granted by Australia to a number of West Papuans have been of particular concern to Indonesia. Indonesian fears over Australia’s role in the Indonesian provinces on the western half of the island of Papua New Guinea can be better understood in context of10 Australia: Background and U.S. Relations Indonesia Australia and Indonesia’s bilateral relationship has been improving in recent years. Indonesian concerns over Australia’s role in the independence of East Timor, which was formerly an Indonesian province Indonesian province, have moderated over time. Australia, under the United Nations, played a key role in assisting Timor-Leste to become an independent nation. The Timor-Leste intervention was viewed negatively in Indonesia and led to the end of the previous Agreement on Mutual Security between Canberra and Jakarta.47 Australia and Indonesia resumed joint military exercises with an air force exercise held in April 2005.48 Australia’s generous post-2004 tsunami assistance also improved relations between Australia and Indonesia.military intervention by Australia, and others, was viewed negatively in Indonesia. Australia’s generous post-2004 tsunami assistance helped improve relations between Australia and Indonesia. Australia and Indonesia held their second bilateral defense and foreign ministers, or 2+2, meeting in April 2013.45 Some observers have called for increased bilateral maritime cooperation between Australia and Indonesia as growing naval forces in the Asia Pacific region may place increased emphasis on the strategic Malacca, Sunda, and Lombok Straits.46 China Bilateral relations between Australia and China are based on a strong trade relationship that has benefitted both countries. While China has figured prominently in Australia’s outreach to Asia, Australian values have at times been challenged as ties have developed. Ties between the two nations were strained over the imprisonment of an Australian national and Rio Tinto executive Stern Hu on espionage charges. Hu was involved in iron ore price negotiations. China’s Xinhua news service reported that Hu and three other Rio Tinto group employees obtained commercial improperly obtained commercial secrets related to China’s iron and steel industry improperly and violated Chinese law.49 Tensions also mounted over Chinese displeasure at 47 Hu was sentenced to seven years in prison in 2010.48 The Chinese were also reportedly displeased with the visit to Australia of Rebiya Kadeer, an activist from China’s Uighur minority. Chinese diplomats reportedly pressured organizers at the time to prevent her from appearing at a film festival in Melbourne and at the National Press Club.5049 Beijing has also reportedly expressed its displeasure was also reportedly displeased with Canberra over the 2009 Defence White Paper’s questioning of Chinese intent behind its ongoing military modernization.5150 The tensions were added to previous Chinese concerns over former Prime Minister Howard and then-candidate Rudd’s meeting with the Dalai Lama.52 Diplomatic tensions between Australia and China did not prevent Australia from signing its largest ever trade and investment deal with China in Beijing on August 18, 2009. Under the deal, China will purchase approximately A$50 billion of liquefied natural gas (LNG) from the Gorgon project based on Barrow Island off Northwest Australia. This will be a joint venture between 46 Department of Foreign Affairs and Trade, “Indonesia Country Brief,” June 2008. Richard Woolcott, “Foreign Policy Priorities for the Howard Government’s Fourth Term,” Australian Journal of International Affairs, June, 2005. 48 “Australia and Indonesia Hold First Military Exercise for Six Years,” Oster Dow Jones, April 12, 2005. 49 Dalai Lama.51 Japan Over the last decade Australia has become a close security partner with Japan52 although some in Japan reportedly have been concerned that Australia will place its relationship with China ahead of its relationship with Japan.53 Under former Prime Minister Howard, the Canberra-Tokyo relationship was taken to a new degree of closeness through the Japan-Australia Joint Declaration on Security Cooperation. This reinforced security ties already established through the Trilateral 45 “Indonesia, Australia Boost Defence Ties,” BBC News, April 4, 2013. Ristian Atriandi Supriyanto, “Australia-Indonesia: Towards a Maritime Strategic Partnership,” RSIS, July 17, 2013. 47 Jesse Riseborough, “China Charges Four Rio Executives with Bribery, Xinhua Says,” Bloomberg, August 11, 2009. 5048 “Rio Tinto Executive Stern Hu Jailed for 10 Years in China,” Reuters, March 29, 2010. 49 Andrew Shearer, “The China paradoxParadox,” The Wall Street Journal Asia, August 19, 2009. 5150 Andrew Shearer, “The Thrill isIs Gone: Australia Falls Out of Love with China,” The Weekly Standard, August 31, 2009. 5251 Michael Sainsbury, “China’s Billions for Gas,” The Australian, August 19, 2009. 47 Congressional Research Service 12 Australia: Background and U.S. Relations Chevron, ExxonMobil, and Shell.53 Under the deal, PetroChina will reportedly take about 30% of Gorgon’s anticipated annual output.54 Japan Over the last decade Australia has become a close security partner with Japan.55 Under Howard, the Canberra-Tokyo relationship was taken to a new degree of closeness through the JapanAustralia Joint Declaration on Security Cooperation. This reinforced security ties already established through the Trilateral 52 Malcolm Cook, “The Quiet Achiever,” Lowy Institute, January 2011. 53 Daniel Flitton and K. Murphy, “Rudd’s Arrival at G8 to renew Japanese Ties,” The Age, July 8, 2008. 46 Congressional Research Service 11 Australia: Background and U.S. Relations Security Dialogue among the United States, Japan, and Australia. Former Australian Minister of Foreign Affairs Stephen Smith claimed that Japan has been Australia’s “closest and most consistent friend in our region for many years.”56 Some in Japan reportedly have been concerned that Australia will place its relationship with China ahead of its relationship with Japan.5754 During Prime Minister Rudd’s June 2008 visit to Japan, he and Prime Minister Yasuo Fukuda issued a Joint Statement on Comprehensive Strategic, Security, and Economic Partnership which signaled the intention of the two governments to continue cooperation in a broad range of policy areas.58 India Prime Minister Gillard announced in November 2011 that she would seek to reverse the Labor Party opposition and lift Australia’s ban on uranium sales to India.59 The lifting of the ban would remove a key obstacle to closer Australia-India relations. Minister for Foreign Affairs Stephen Smith has stated that “While many commentators have been focusing on the rise of China, not enough attention has been paid to the rise of India.... As the world sees the potential of an Asian/Pacific century unfold, Australia sees India at the heart of this historic shift in political and economic influence.” At the core of Australia’s relationship with India is expanding trade. Australian trade with India has been expanding by 30% per year over the past five years. India and Australia have initiated a Free Trade Agreement feasibility study. The Rudd government believes India should have a permanent seat on the United Nations Security Council.60 Former Australian Defence Minister Joel Fitzgibbon has stated that maritime security and counter-terror cooperation are potential areas for cooperation between India and Australia.61 53 “$50 Billion LNG Sale to China,” Department of Foreign Affairs and Trade, August 25, 2009. Matthew Stevens, “Ferguson Fires up Asia’s Interest in Gorgon Project,” The Australian, August 19, 2009 55 Malcolm Cook, “The Quiet Achiever,” Lowy Institute, January 2011. 56 Stephen Smith, MP, Minister for Foreign Affairs, “A Modern Australia for a New Era,” Sydney April 9, 2008. 57 Daniel Flitton and K. Murphy, “Rudd’s Arrival at G8 to renew Japanese Ties,” The Age, July 8, 2008. 58 Department of Foreign Affairs and Trade, Government of Australia, “Japan Country Brief,” July 2008. 59 Lisa Curtis, “Australia’s Reversal of uranium Ban to India Could Spur Trilateral Engagement,” Heritage Foundation, November 17, 2011. 60 The Hon. Stephen Smith MP, Minister for Foreign Affairs, “India: A New Relationship for a New Century,” Department of Foreign Affairs and Trade, http://www.foreignminister.gov.au. 61 P.S. Suryanarana, “Australia for Practical Military Cooperation with India,” The Hindu, June 3, 2008. 54 Congressional Research Service 13 Australia: Background and U.S. Relations Australia and Regional Dynamics in the Southwest cooperation in a broad range of policy areas.55 The Pacific The Southwest Pacific is viewed by many in Australia as its “Near Abroad” and, as such, part of Australia’s natural sphere of influence.6256 As such, it is an area isof key strategic importance to Australia. The region has been subject to a number of external shocks including food and fuel price increases, the impact of the global economic crisis, natural disasters, ethnic conflict, difficulties in maintaining infrastructure and the negative effects of climate change.6357 Australia has led peace-keeping efforts in the region, including Timor-Leste and the Solomon Islands. These actions demonstrate Australia’s resolve to promote stability in the South Pacific. Fiji Since the 2006 coup led by Commodore Frank Bainimarama, Australia has sought to pressure Fiji to return to democratic government. Following the coup, Bainimarama dismissed the elected government and declared a state of emergency under which the constitution has been suspended, opponents have been arrested, and freedom of speech has been restricted. Australian pressure has included support for the expulsion of Fiji from the Commonwealth and the Pacific Islands Forum (PIF). Australia also imposed sanctions on Fiji including restrictions on travel, an arms embargo and suspension of defense cooperation and restrictions on Ministerial level contact with the interim government.64 Australia and New Zealand also initially sought to limit Fiji’s participation in United Nations peace operations. In 2009, Fiji had about 600 troops serving in Lebanon, Iraq, Timor-Leste and the Sinai.65 In 2011, debate in Australia on Australian policy towards Fiji began to question the policy of demanding a return to democracy as a prerequisite for reengaging with Fiji.66 Deputy Liberal Leader Julie Bishop “signaled an end to bipartisan support for Canberra’s policies in the South Pacific.”67 New Zealand Prime Minister Key appeared to soften New Zealand’s position on Fiji in September, 2011 after the Pacific Islands Forum meeting in Wellington by calling only for signs that Fiji was on a path to return to democracy.68 New Zealand has apparently been seeking ways to reengage with Fiji for some time.69 The Commonwealth continues to urge Fiji to return to democratic government. In September 2011, it was reported that the Commonwealth Ministerial Action Group, in a meeting that was attended by Foreign Minister Rudd, reaffirmed that the Commonwealth “continued its willingness to maintain dialogue with the government of Fiji, as well as the Commonwealth’s commitment to assist Fiji in all possible ways to restore civilian constitutional government and return to its place in the Commonwealth family, and so reverse the political isolation of Fiji.”70 The Commonwealth Heads of Government Meeting (CHOGM) held in Perth, Australia in October 2011 agreed to uphold Commonwealth values by 2) (i) “urging the interim government of Fiji to restore 62 Our Near Abroad: Australia and Pacific Islands Regionalism,”Australian Strategic Policy Institute, November 2011. Jeny Hayward-Jones, “The Pacific Islands and the World: The Global Economic Crisis,” Lowy Institute, August 2009. 64 Department of Foreign Affairs & Trade, “Australia’s Autonomous Sanctions: Fiji,” December 2006. 65 Jonathan Pealman, “Push to Block Fiji from UN Peacekeeping,” Sydney Morning Herald, April 29, 2009. 66 Dan Oakes, “Fijian Shadow Looms Over the Pacific Islands Forum,” The Age, September 6, 2011. 67 Bruce Gale, “Australia Rudd-erless in the South Pacific? Straits Times, April 20, 2011. 68 Dan Oakes, “Hard Line on Fiji May Be Easing,” The Age, September 8, 2011. 69 “Dictators Must Not Hold Sway in Pacific,” Dominion Post, January 4, 2010. 70 Commonwealth Ministerial Action Group Meets in New York,” All Africa, September 23, 2011. 63 Congressional Research Service 14 Australia: Background and U.S. Relations democracy without further delay, to respect human rights, and to uphold the rule of law, and reaffirming that the Commonwealth should continue to remain engaged with Fiji and support efforts towards that end.”71 Some have argued that Australia’s policy of demanding Fiji’s return to democracy as a prerequisite for reengagement has not achieved the desired result and has opened the door for a more independent foreign policy by Fiji. Some have also argued that this facilitates expanded Chinese influence in the region. According to one commentator, “New players such as China offer novel foreign policy options outside the traditional regional processes, while the contemporary relevance of the established processes is under increasing scrutiny.”72 Fiji’s more independent path can be discerned through such actions as Fiji’s joining the Non Aligned Movement (NAM) in May 2011, its more active diplomacy with the Melanesian Spearhead Group (MSG), through its association with the Pacific Small Islands Developing States (PSIDS) group at the United Nations as well as through developing relations with China. China’s trade with the region is growing rapidly. China is thought to be the region’s third largest aid donor after Australia and the United States.73 Fiji’s decision to open an embassy in Indonesia in April 2011 as part of its ‘Look North’ policy through engagement with ASEAN is also part of this foreign policy reorientation by Suva. Fijian Foreign Minister Inoke Kubuabola stated at the time of Fiji’s joining the NAM that it would help Fiji refocus its relations away from its traditional trading partners Australia and New Zealand.74 Timor-Leste Australia’s commitment to regional security and humanitarian concerns in the Asia-Pacific region has been demonstrated by its involvement in East Timor, officially known as Timor-Leste. The former Portuguese colony was occupied by Indonesia from 1975 to 1999. In 1998, diplomatic intervention by Prime Minister Howard prompted the dialogue between Indonesian officials and East Timorese nationalists that resulted in an agreement to hold U.N.-supervised elections in 1999. On August 30, 1999, nearly 80% of East Timor’s electorate voted to separate from Indonesia. Following the announcement of the result, anti-independence militias launched a campaign of violence. On September 15, 1999, the U.N. Security Council authorized the International Force East Timor (INTERFET) to restore peace and security and protect and support the U.N. mission personnel in East Timor. INTERFET operated under a unified command structure headed initially by Australia. East Timor became independent in 2002.75 Timor continues to capture the imagination of the Australian public. A movie was released in 2009 on the fate of the Balibo five, a group of five Australian-based journalists who were killed in 1975 by Indonesian security forces after they traveled to Timor to cover the Indonesian invasion of Timor.76 71 Commonwealth Secretariat, “Commonwealth Heads of Government Meeting,” Perth, Australia, 28-30 October 2011. Our Near Abroad: Australia and Pacific Islands Regionalism,” Australian Strategic Policy Institute, November 2011. 73 Greg Ansley, “Australia Told to Repair Relations with Pacific States,” New Zealand Herald, December 6, 2011. 74 “Fiji Admitted to Non-Aligned Movement,” Radio Australia News, May 4, 2011. 75 “Australian PM Hints at Long-term Military Presence in East Timor,” BBC Monitoring Service, June 19, 2003. 76 Nathaniel Cooper, “Tragic Times in Timor,” Sunshine Coast Daily, August 20, 2009. 72 Congressional Research Service 15 Australia: Background and U.S. Relations , indicating Australia’s resolve to promote stability in the South Pacific. Australia’s commitment to regional security and humanitarian concerns in the Asia-Pacific region has been demonstrated by its involvement in East Timor, officially known as Timor-Leste. The former Portuguese colony was occupied by Indonesia from 1975 to 1999. In 1998, diplomatic intervention by Prime Minister Howard prompted the dialogue between Indonesian officials and East Timorese nationalists that resulted in an agreement to hold U.N.-supervised elections in 1999. On August 30, 1999, nearly 80% of East Timor’s electorate voted to separate from Indonesia. Following the announcement of the result, anti-independence militias launched a campaign of violence. On September 15, 1999, the U.N. Security Council authorized the International Force East Timor (INTERFET) to restore peace and security and protect and support the U.N. mission personnel in East Timor. INTERFET operated under a unified command structure headed initially by Australia. East Timor became independent in 2002.58 Australia and East Timor have worked together to establish arrangements for the exploitation of energy resources beneath the Timor Sea. It has been estimated that East Timor will receive up to $15 billion in revenue over the next 40 years in oil and gas royalties.7759 Australia had previously negotiated a delineation of the border with Indonesia that was more favorable to Australia. Australia and East Timor have agreed to postpone final demarcation of their maritime boundary. The Solomon Islands Australia’s Regional Assistance Mission to the Solomon Islands (RAMSI) also demonstrates Australia’s resolve to reassert its influence, promote stability, and prevent failed states in the South Pacific. Australia headed a multinational force to restore order in the Solomons in 2003. This was augmented in April 2006 when a quick reaction force was sent to the Solomons to quell rioting and violence following the election of Prime Minister Snyder Rini.78 RAMSI was established under the Biketawa Declaration and is supported by the members of the Pacific Islands Forum and led by Australia and New Zealand.79 A contingent from the New South Wales 8th Brigade, with reserve support, was deployed to the Solomons in August 2009 to maintain the ADF’s presence in the Solomons which was first established in July 2003.80 RAMSI had strained relations between Australia and the previous Sogavare government, due to the government’s appointment of Julian Moti as Attorney General. Moti was wanted in Australia for child sex offenses. The December 2007 election of Derek Sikua as Prime Minister in the Solomons led to the deportation of Moti to Australia and an improvement in bilateral ties between the Solomons and Australia.81 These interventions, when taken in the context of Australia’s involvement in East Timor and ongoing efforts to promote peace and good governance in Papua New Guinea, demonstrate Australia’s commitment to promote stability in the region in order to prevent countries from slipping into anarchy. Australia has also proposed that the smaller of the South Pacific micro-states pool their resources for their common good. Australia and Counter-terrorism54 Stephen Smith, MP, Minister for Foreign Affairs, “A Modern Australia for a New Era,” Sydney, April 9, 2008. Department of Foreign Affairs and Trade, Government of Australia, “Japan Country Brief,” July 2008. 56 “Our Near Abroad: Australia and Pacific Islands Regionalism,” Australian Strategic Policy Institute, November 2011. 57 Jenny Hayward-Jones, “The Pacific Islands and the World: The Global Economic Crisis,” Lowy Institute, August 2009. 58 “Australian PM Hints at Long-term Military Presence in East Timor,” BBC Monitoring Service, June 19, 2003. 59 “Turning Timor Oil Into Prosperity,” The Sydney Morning Herald, July 11, 2005 and “East Timor PM Says Gas Deal with Australia is Fair,” BBC News, July 8, 2005. 55 Congressional Research Service 12 Australia: Background and U.S. Relations rioting and violence following the election of Prime Minister Snyder Rini.60 RAMSI was established under the Biketawa Declaration and is supported by the members of the Pacific Islands Forum and led by Australia and New Zealand.61 These interventions, when taken in the context of Australia’s involvement in East Timor and ongoing efforts to promote peace and good governance in Papua New Guinea, demonstrate Australia’s commitment to promote stability in the region. Australia and Counterterrorism Australia was the first country to offer its armed services to the International Coalition Against Terrorism (ICAT) and has sent rotations of special forces troops plus regular troops to Afghanistan. The former Howard government supported the United States in Iraq by sending about 2,000 defense personnel, F/A-18, P-3, and C-130 aircraft, two ANZAC Frigates, and a special forces task group.82 Australia has also joined the U.S.-sponsored Proliferation Security Initiative (PSI). The PSI’s aim is to interdict aircraft and ships that could be carrying weapons of mass destruction, missiles, or drugs. This staunch Afghanistan. This support stems from Australia’s desire to support its treaty ally and from a shared perspective on Islamist extremist violence.83 77 “Turning Timor Oil Into Prosperity,” The Sydney Morning Herald, July 11, 2005 and “East Timor PM Says Gas Deal with Australia is Fair,” BBC News, July 8, 2005. 78 John Kerin, “Flying Squad to Quell Solomons Riots,” Financial Review, April 20, 2006. 79 “Forum Secretary General Praises Success of RAMSI,” PACNEWS, July 16, 2009. 80 “Australian Peacekeepers Return From the Solomon Islands on Rotation,” BBC News, August 10, 2009. 81 U.S. State Department, “Background Notes: The Solomon Islands,” August 2009. 82 “Operation Falconer,” Australian Department of Defense, http://www.defence.gov.au. 83 Peter Finn, “Administration Makes Progress on Resettling Detainees,” The Washington Post, August 20, 2009. Congressional Research Service 16 Australia: Background and U.S. Relations on Islamist extremist violence.62 On October 12, 2002, two bombs decimated two crowded nightclubs full of foreign tourists in Bali, Indonesia, killing more than 200 foreigners and Indonesians, and injuring over 300. There were 88 Australians among the dead and seven Americans. Indonesian officials attributed the bombing to the militant Islamic network Jemaah Islamiya (JI), which has links to Al Qaeda. JI also carried out an attack against the Australian Embassy in Jakarta in September 2004 and a second attack in Bali in October 2005. Some within JI have reportedly set as their goal the establishment of an Islamic state that encompasses Indonesia, Malaysia, the Southern Philippines, and Northern Australia. Australian and Indonesian counter-terror cooperation has improved as a result of cooperation on the investigation into the Bali blasts. Australia has signed anti-terrorism pacts with a number of its Southeast Asian neighbors. It also provides counter-terror support to the Pacific Island Forum Secretariat.84 Australia and the Environment The Gillard Government’s dependence on political support from the Green Party has reportedly been a key factor in the government’s decision to push the implementation of a carbon tax in Australia. Australia has a target of reducing emissions to 95% of the 2000 levels by 2020. It is thought that Australian emissions will almost double from current levels by 2050 if changes are not made.85 The Liberal-National Coalition has pledged to repeal the tax if it wins the next election. Drought in some areas and flooding in other parts of Australia have brought increased focus on the environment by the Australian electorate. The Australian Commonwealth Scientific and Industrial Research Organization (CSIRO) has predicted that new weather patterns will mean that parts of eastern Australia, where most Australians live, will receive only 40% of their past average annual rainfall by 2070.86 Labor’s more proactive stance on environmental issues may have helped Rudd win the last election. One of Rudd’s first actions as Prime Minister was to sign the Kyoto Protocol. A key challenge for Australia in implementing the scheme will be addressing Australia’s use of coal. Australia has extensive reserves of coal and is thought to have a 200-year supply. Approximately 83% of Australian power comes from coal. This dependence has made Australians some of the highest emitters of carbon on a per capita basis. Australian coal exports are expected to increase. This has led some to view Australia as exporting its problem even if it achieves its goal of reducing its own emissions.87 Economic and Trade Issues According to some observers, Australia’s economic strategy can be described as a mix of both Asian regionalism, in which China is a key part, and globalism.88 China became Australia’s 84 Minister for Foreign Affairs Downer, “Counter-Terrorism Package,” March 7, 2003. Country Report: Australia, The Economist Intelligence Unit, December 2011. 86 John Vidal, “Australia Suffers Worst Drought in 1,000 Years,” The Guardian, November 8, 2006. 87 “Greens and the Black Stuff,” The Economist, July 26, 2008. 88 Michael Evans, “US-Australia Relations in Asia,” Woodrow Wilson Center Asia Seminar, June 1, 2005. 85 Congressional Research Service 17 Australia: Background and U.S. Relations largest trade partner in 2009. Between 2001 and 2010, China-Australia trade increased 9.8 fold. Most of this trade is due to Australian exports to China which grew from $5.4 billion in 2001 to $60.9 billion in 2010.89 Australia has prospered in recent years due to a significant extent on exports of commodities to Asia. An estimated 52% of Australian exports are derived from agriculture and mining.90 This is particularly so in the state of Western Australia because of the mining industry. Australia’s key export partners are China, Japan, South Korea, the United States, New Zealand, India, and the United Kingdom.91 The Australia-United States Free Trade Agreement (AUSFTA) came into force on January 1, 2005. Australia, the United States, and a collection of Asia-Pacific nations are currently seeking to negotiate the Trans Pacific Partnership to promote regional trade and investment. While Australia’s economy is dominated by its services sector, the agricultural, mining, and energy sectors account for the bulk of its exports. Among its largest export items are coal, gold, iron ore, aluminum, mineral fuels, meat, and wheat. The Australian economy and balance of trade are strongly influenced by world prices for primary products. Infrastructure development and climate change are viewed as two key issues of importance to continued economic growth. Australian droughts and floods have worsened in recent years and are predicted to continue to get worse in years ahead. The Minerals Resource Rent Tax (MRRT), the Carbon Tax, and the National Broadband Network are three of Prime Minister Gillard’s biggest policy initiatives, all of which have significant implications for the economy. The Gillard Government implemented the MRRT in 2011 which is set to impose a tax of up to 30% on profits from large mining firms. Coal-Seam Gas (CSG) development has been politically contentious in Australia. Farm and environmental interests have opposed CSG for its implications for water resources in Australia.92 Public finances in Australia are relatively good as compared with other developed nations. Australia’s budget deficit stood at 3.4% of GDP in FY 2010/11. High commodity prices have helped increase tax revenue. The Australian Dollar also reached a 29 year high at A$0.89:U.S.$1 in July 2011. The Gillard Government is committed to eliminating the deficit by FY 2012/13. The Economist Intelligence Unit expects the government to achieve this target. 89 Derek Scissors & Walter Loman, “Australia China Economic Relations,” The Heritage Foundation, March 9, 2011. Bureau of East Asian and Pacific Affairs, Department of State, “Background Note: Australia,” February 2008. 91 “Australia,” CIA World Factbook, July 15, 2008. 92 Country Report: Australia, The Economist Intelligence Unit, December 2011. 90 Congressional Research Service 18 Australia: Background and U.S. Relations Figure 1. Map of Australia Source: Map Resources. Adapted by CRS. Author Contact Information Bruce Vaughn Specialist in Asian Affairs bvaughn@crs.loc.gov, 7-3144 Congressional Research Service 1963 Economic and Trade Issues The Australian economy is expected to grow by 2.6% in 2013. This is expected to rise to 3.1% a year on average for the period 2014-2017. The growth of resource exports plays a key role in Australia’s economy with exports of metal ores and minerals rising. This in part was the result of a declining Australian dollar relative to the U.S. dollar in the first half of 2013 which improved export performance.64 According to some observers, Australia’s economic strategy can be described as a mix of both Asian regionalism, in which China is a key part, and globalism.65 China became Australia’s largest trade partner in 2009. Over the past decade Australia-China trade has increased dramatically. Most of this trade is due to Australian exports to China. Australia has prospered in recent years due to a significant extent on exports of commodities to Asia. Rudd reportedly wants 60 John Kerin, “Flying Squad to Quell Solomons Riots,” Financial Review, April 20, 2006. “Forum Secretary General Praises Success of RAMSI,” PACNEWS, July 16, 2009. 62 Peter Finn, “Administration Makes Progress on Resettling Detainees,” The Washington Post, August 20, 2009. 63 Minister for Foreign Affairs Downer, “Counter-Terrorism Package,” March 7, 2003. 64 “Exports Maintain Recent Strength, Aided by a Weaker Dollar,” Economist Intelligence Unit, July 3, 2013. 65 Michael Evans, “U.S.-Australia Relations in Asia,” Woodrow Wilson Center Asia Seminar, June 1, 2005. 61 Congressional Research Service 13 Australia: Background and U.S. Relations a fresh sense of urgency to the FTA negotiations with China. An FTA with China could boost Australian agricultural exports but could also raise popular Australian concerns over Chinese ownership of Australian land.66 While Australia’s economy is dominated by its services sector, the agricultural, mining, and energy sectors account for the bulk of its exports. Among its largest export items are coal, gold, iron ore, aluminum, mineral fuels, meat, and wheat. The Australian economy and balance of trade are strongly influenced by world prices for primary products. Infrastructure development and climate change are viewed as two key issues of importance to continued economic growth. Australian droughts and floods have worsened in recent years and are predicted to worsen in years ahead. The Australia-United States Free Trade Agreement (AUSFTA) came into force on January 1, 2005. United States goods and services trade with Australia totaled $60 billion in 2011. The United States goods and services trade surplus with Australia was $27 billion in 2011. United States foreign direct investment (FDI) in Australia increased 10.3% to $136.2 billion in 2011 from 2010 levels while Australian FDI in the United States increased 44.1% in 2011 to 55.9 billion over 2010 levels.67 Australia, the United States, and a collection of Asia-Pacific nations are currently seeking to negotiate the Trans Pacific Partnership to promote regional trade and investment. 66 67 “Chinese FTA is an Early Focus for the New Prime Minister, Economist Intelligence Unit, June 28, 2013. Office of the United States Trade Representative, Australia, August 1, 2013, http://www.ustr.gov/. Congressional Research Service 14 Australia: Background and U.S. Relations Figure 1. Map of Australia Source: Map Resources. Adapted by CRS. Author Contact Information Bruce Vaughn Specialist in Asian Affaris bvaughn@crs.loc.gov, 7-3144 Congressional Research Service 15