Policy Review on the Defence White Paper 2013

 

DEFENCE WHITE PAPER 2013

 25/04/25

By: Taina Voivoi

Introduction
The Defence White Paper 2013 outlines Papua New Guinea’s strategic approach to safeguarding national sovereignty and maintaining internal and external peace. Developed in response to regional security shifts, the policy is a key document underpinning PNG's broader security framework. This review evaluates the Defence White Paper’s key strengths and limitations, especially in how it aligns with the National Security Policy (NSP) 2013, and offers recommendations to improve defence governance and implementation in PNG.

Summary
The White Paper presents a vision to modernize the Papua New Guinea Defence Force (PNGDF) and enhance its readiness to address both traditional and non-traditional threats. Key areas of focus include:

  • Expanding the PNGDF to 5,000 personnel by 2017.
  • Enhancing maritime and border surveillance.
  • Strengthening disaster response and humanitarian aid roles.
  • Increasing international cooperation, particularly with Australia and regional partners.
  • Investing in military infrastructure and training programs.

The policy highlights the strategic importance of protecting PNG’s territorial integrity, contributing to regional peacekeeping, and responding to climate-related disasters—viewed increasingly as security challenges.

Critique
The Defence White Paper 2013 is commendable for recognizing the multidimensional nature of national security. Its alignment with the National Security Policy (NSP) 2013 is evident, particularly through shared objectives of protecting territorial integrity, fostering regional stability, and responding to emerging threats such as natural disasters and transnational crime (National Security Advisory Committee, 2013). Both policies emphasize a broadened view of security that includes humanitarian response, economic stability, and regional cooperation as essential aspects of PNG’s defence outlook.

Where the policy succeeds is in identifying key defence challenges, including limited force capacity and outdated infrastructure. It also emphasizes PNG’s geostrategic position in the Pacific as justification for modernizing the PNGDF. According to Herr and Bergin (2011), PNG’s location makes it a critical actor in Pacific maritime security, especially amid increasing illegal fishing, human trafficking, and other transnational threats that compromise national sovereignty.

In addition, the White Paper’s emphasis on international cooperation supports NSP 2013’s advocacy for “cooperative and comprehensive security.” Australia’s Defence Cooperation Program (DCP) and joint initiatives such as Exercise Wantok Warrior exemplify how strategic partnerships enhance PNG’s defence posture and operational capacity (Australian Strategic Policy Institute [ASPI], 2014). These collaborations contribute to regional stability and allow PNGDF personnel to benefit from technical exchanges, interoperability training, and infrastructure development support.

Despite its strengths, the White Paper lacks practical implementation mechanisms. For example, the target of recruiting 5,000 troops by 2017 was overly ambitious given PNG’s fiscal constraints and institutional limitations (Lowy Institute, 2017). NSP 2013 calls for realistic and sustainable policy goals, but the White Paper fails to provide a monitoring and evaluation framework to ensure accountability and transparency. Without clear timelines, performance benchmarks, or responsible implementing agencies, progress becomes difficult to track or verify.

While the policy briefly mentions non-traditional threats like climate change and health emergencies, it lacks operational depth in addressing these issues. MacLeod (2015) argues that human security, including health and environmental stability, must be central to national defence strategies, something not fully integrated into the 2013 document. For instance, the increasing frequency of extreme weather events in PNG due to climate change poses direct risks to infrastructure and food security, yet the White Paper provides minimal detail on defence-led disaster preparedness or climate adaptation strategies.

Finally, the absence of civil society participation in policy implementation undermines the NSP 2013 principle of a “whole-of-society” approach. Engagement with communities, provincial governments, and traditional leaders is essential for successful national security delivery. Without such inclusion, defence reforms risk being top-down and disconnected from local realities (MacLeod, 2015). Civil society involvement could play a significant role in peacebuilding, disaster coordination, and reinforcing public trust in the military.

Recommendations
To enhance the effectiveness of the Defence White Paper 2013 and ensure alignment with the NSP 2013, the following recommendations are proposed:

  1. Establish Monitoring Mechanisms: Implement performance indicators to assess progress on recruitment, training, and infrastructure development. Establishing an oversight committee to report on implementation progress can ensure transparency and help build public confidence in defence reforms.
  2. Update the Policy: Introduce a revised Defence White Paper to reflect current security trends including cyber threats, pandemics, and environmental crises. A regular review process every five years should be institutionalized to ensure the policy remains responsive and forward-looking.
  3. Strengthen Civil-Military Integration: Encourage collaboration between PNGDF and civil agencies in disaster preparedness and peacekeeping operations. Joint simulation exercises and integrated crisis response planning with the National Disaster Centre and provincial authorities should be prioritized.
  4. Ensure Budget Transparency: Regular audits and public reports on defence spending will improve accountability and public trust. Budgetary allocations should be clearly linked to measurable outcomes and made publicly accessible.
  5. Expand Training and Education: Invest in joint military training programs with regional partners and support officer education to build a professional defence force. PNG should also explore partnerships with regional defence academies to enhance leadership capacity within the PNGDF.

Conclusion
The Defence White Paper 2013 is a vital component of PNG’s national security architecture. Its objectives align with the National Security Policy 2013, particularly in safeguarding sovereignty and promoting regional peace. However, its effectiveness has been hampered by implementation challenges and limited civilian engagement. Strengthening monitoring systems, enhancing policy realism, and reinforcing regional cooperation will be essential to ensure the PNGDF evolves into a capable and responsive institution contributing to national and Pacific-wide security.

                                              


                                                                     References

 

Australian Strategic Policy Institute. (2014). Australia and PNG: Strengthening the defence relationship. https://www.aspi.org.au/report/australia-and-png-strengthening-the-defence-relationship

 

Herr, R., & Bergin, A. (2011). Our near abroad: Australia and Pacific islands regionalism. Australian Strategic Policy Institute. https://www.aspi.org.au/report/our-near-abroad

 

Lowy Institute. (2017). Papua New Guinea: A test for regional security capacity. https://www.lowyinstitute.org/publications/papua-new-guinea-test-regional-security-capacity

 

MacLeod, T. (2015). Rethinking security: Human security and non-traditional threats in the Pacific. Stability: International Journal of Security & Development, 4(1), 1–14. https://doi.org/10.5334/sta.fg

 

National Security Advisory Committee. (2013). Papua New Guinea National Security Policy 2013. Government of Papua New Guinea.

 

 

 

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