Category: NZ Security

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Drawing Blood from a Stone.

The government’s decision to file a civil suit against the “Waihopai 3” is vindictive and a gross waste of taxpayer dollars. Much like the Zaoui case, which could have been concluded years before it actually did at far less cost than the amount on the final bill, this is a classic example of a vexatious state litigation. Vexatious state litigation, to coin a phrase, is an instance when the state (exemplified here by the Crown) continues prosecutions, appeals or defenses long after legal defeat is obvious and, as in the case here, judicially administered. Even so, there are a few aspects of the case worth reviewing.

As I mentioned in an earlier post titled “Political Idealism Trumps the Law,” the Waihopai 3 expertly exploited the claim of right defense to defend their direct action against the eavesdropping station. Contrary to most direct action proponents, they did not admit their crimes and accept their due punishment, but instead used the claim of right defense to argue their innocence based on moral grounds. Among other things that defense states that even if mistaken in their motives, people who honestly believe that their acts will prevent a greater harm are exonerated of responsibility for the consequences of those acts. Thus, although I (and presumably the government) believe that they are mistaken in claiming that the Echelon station at Waihopai facilitates torture, war crimes, crimes against humanity and human rights violations, the important point is that Peter Murnane, Adrian Leason and Sam Land were found by a jury of their peers to be innocent because they sincerely believed that their actions were helping to prevent a greater harm. So long as the claim of right defense exists in the law and juries are willing to accept that defense as legitimate, then the verdict should stand and, in the absence of irregularities in the administration of the case, no appeals or civil lawsuits filed. In other words, that should be the end of the story.

If the government does not like the claim of right clause in the law, it can work to change it. But suing for civil damages to the tune of 1.2 million dollars, including the cost of pies, beer and savories for repair workers, smacks of imperial hubris. Moreover, the claim is unrecoverable even if the Crown were to win the lawsuit. Father Peter has no tangible assets, and since neither the Dominican Order or the Catholic Church were party to his actions, they cannot be made parties to the suit. As for Land and Leason, what is the Crown going to do–confiscate Land’s organic farm and repossess Leason’s house while garnishing his salary, thereby throwing their families onto the street (and dole)? Even if it did so, the amount recovered from the sale of the assets of all three men would not come close to paying the full bill. So what is the point if the full costs are not anywhere close to recoverable?

The Crown also has not thought through the consequences of its lawsuit. The GCSB refused to front up at the original trial in order to refute the defendant’s allegations. That pretty much left their claims uncontested, which was instrumental in the jury’s verdict. Is the GCSB now going to show up at a civil trial and be prepared to re-litigate the original claims under the claim of right defense? If not, then there is no case for damages because a verdict of innocence under the right of defense absolves defendants of financial liability stemming from their acts. To put it bluntly: a verdict of innocence under the claim of right defense means full absolution from liability. That is why the right of defense is such a dramatic line to take and so difficult to argue successfully, which is why most direct action militants do not even bother with it and opt to plead guilty and ask for judicial mercy citing mitigating factors. But in this case the right of defense was made and it prevailed. Unless the GCSB wants to testify as to the merits of the claim of right defense as well as to the extent of the damages incurred (which I believe have been exaggerated) then there is no case to be made. If there is no case to be made, the pursuing the lawsuit is a waste of time and public money.

If the government allows this civil suit to continue it will be another example of politicians and state bureaucrats playing loose with taxpayer money in order to prove a vengeful point regardless of the merits of the case. The suit is clearly designed to be a warning to others who would dare to use the claim of right defense for direct actions, and therefore not only a form of vexatious state litigation but also an act of official intimidation against those who would dare speak (their) truth to power. For a supposed liberal democracy, that is a bad look.

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Blog Link: NZ and the R2P applied.

This is going to be my last comment about the NZDF in Afghanistan for a while. It concerns an overlooked aspect of why it is there. One aspect of this is that the R2P commitment was made by the 5th Labour government and National seems disinclined to continue it. Given that R2P does not have domestic or international legal authority since it is just a public commitment rather than  a convention, law or binding agreement, it will be interesting to see how National deals with this particular aspect of its foreign policy, and how MFAT (which committed NZ to the R2P doctrine), will react to any reneging on that commitment.

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Circumstance, Context and Consequence of New Zealand’s first combat death in Afghanistan.*

Events in Afghanistan this week prompted me to write on them as well as their implications. This is the full version, which did not appear in the mainstream press.

Until this week the 140-troop NZDF mission in support of the Provincial Reconstruction team (PRT) in Afghanistan’s Bamiyan province was considered the “softer” of the two NZDF deployments in that country. Given their status as elite combat troops, the 2001-05 and post-2009 NZSAS missions in Afghanistan have received more attention as the presumably “hard” edge of New Zealand’s military contribution to the NATO-led International Security Assistance Force (ISAF) charged with bringing peace and stability to that failed state. The death of Lieutenant Timothy O’Donnell has changed that view.

Lieutenant O’Donnell was killed while on routine patrol northeast of the city of Bamiyan. NZDF patrols are undertaken daily as part of the PRT’s responsibilities, which are to provide security and undertake civil reconstruction and nation-building projects such as the construction of schools, roads, medical clinics (including the combat medics to staff them), water treatment facilities and other infrastructure required for local governance to operate efficiently. Although Bamiyan province is largely populated by the non-Pashtun ethnic Hazaras (a Shiia minority elsewhere in Afghanistan) who are generally friendly to ISAF forces because they were discriminated against under Taliban rule, the Taliban presence, although not as dominant as in Helmand or Kandahar provinces, has remained as an ever-present threat that has increased over the last two years. In fact, the ambush in which Lieutenant O’Donnell died was preceded by at least three similar attacks in the last 14 months, all using the same combination of improvised explosive devices (IEDs), Rocket Propelled Grenades (RPGs) and small arms fire.

Despite the previous attacks, the NZDF did not vary its operational routine and continued to use three or four vehicle convoys for its patrols along well-established routes. The vehicles in question were US-provided reinforced Toyota Hiluxes and armed “uparmoured” Humvees in which electronic counter-measures (ECM) were reportedly used to thwart electronic pulse-detonated IEDs (UPDATE: official details are sketchy as to whether the convoy was a mix of vehicles or all of one or the other, but non official reports suggest that Hiluxes have not been used on those patrols for 18 months and the vehicles in question were all “uparmoured” Humvees). Although state of the art, such ECMs cannot prevent a command wire or pressure plate detonated IED (especially at night), one of which was apparently used in this latest attack.

In previous instances the Hiluxes suffered minor damages in IED attacks, but this time the IED was much more powerful. No NZDF Light Armoured Vehicles (LAVIIs), out of an inventory of 106, were provided to the NZDF/Bamiyan PRT because their characteristics were deemed unsuitable for the Bamiyan AOR because most of it is single track dirt paths (even though the NZSAS has two available for operational duty in Kabul and the US has deployed ECM-equipped and reinforced armoured Stryker (the name it gives to the LAVs) units in the Afghan theater of operations). Although very agile in rough terrain (especially in its 6×6 version), the 321-strong NZDF Pinzgauer Military Utility Vehicle (MUV) fleet was not requisitioned in Bamiyan even though it fulfills the NZDF Light Operational Vehicle (LOV) role, most likely because even in its “uparmoured” version it remains vulnerable to combined small arms assaults and is underpowered when traversing steep terrain in its uparmoured version.  Unlike in previous instances, air cover was not able to respond to the latest attack due to bad weather conditions in the area. The official line is that the patrol was able to find cover and establish a defensive position while returning fire, leading to a prolonged firefight before the assailants were repelled. In all likelihood given Taliban  hit and run tactics, the actual firefight was quite short and most of the damage to men and machines was done by the IED rather than the ensuing exchange of small arms fire. Whatever the exact circumstances, this combination of contributing factors proved to be lethal for Lt. O’Donnell and injurious to his comrades.

The ISAF strategy in Afghanistan is a macrocosmic reflection of what the PRT mission is in Bamiyan. It conducts counter-insurgency operations against Taliban and al-Qaeda forces in order to physically secure the country and prevent the re-establishment of both Taliban rule and al-Qaeda safe havens and training camps within it. In parallel, it attempts to train Afghan security forces and provide the infrastructural conditions so as to consolidate the control of the Western-backed Karzai regime centred in Kabul. As with the Bamiyan PRT, success in the first task is deemed necessary for success with the latter two.

In many ways the death of a Kiwi soldier was inevitable given the balance of the conflict. ISAF has not succeeded in routing the Taliban even if it has denied them and their al-Qaeda allies much territory and space for maneuver. Its nation-building efforts have been thwarted by endemic corruption by the Karzai regime and a motley assortment of tribal warlords and drug barons. For all its rhetorical commitment to supporting the ISAF mission from its side of the border, Pakistan remains a suspect ally, if not a covert adversary in the conflict. Given the announced timetable for a US troop drawdown and ISAF withdrawal beginning in July 2011, the Taliban have increased their attacks in order to raise the costs to ISAF, undermine public support for the mission amongst coalition partners (such as the Dutch, who have just exited the theater), and thereby hasten the inevitable. In fact, both ISAF commander General David Petraeus as well as US Joint Chiefs of Staff Chairman Admiral Michael Millan have said that ISAF casualties will increase over the next months as coalition forces push into Taliban strongholds in a final effort to degrade its ability to mount effective guerrilla operations against Afghanistan police, Army and ISAF targets.

However, true to form, the Taliban have responded with a classic guerrilla tactic when confronted with superior military forces: they employ a “balloon” strategy whereby they retreat from areas in which they are being squeezed by superior ISAF forces and regroup in areas in which the ISAF presence is relatively thin on the ground. The key to their success is to respond to mass with maneuver, avoiding the friction of large conventional forces via fluidity of movement towards areas in which the odds are in their favour. In other words, the Taliban like to” hit ’em where they ain’t.”

One such area is Bamiyan, which means that there is nothing soft about the NZDF/PRT role there. The hazards are not just military. Given the Taliban resurgence and the inevitable withdrawal of ISAF forces, it is prudent and rational for the Hazaras (as much as all other tribal groups throughout the country) to begin to look the other way when it comes to Taliban movements in Bamiyan, if not cooperate with or simply accommodate the insurgents. After all, the Taliban will be a armed and political presence long after the ISAF forces are scaled back or gone. That makes the NZDF position in the Bamiyan PRT harder to maintain the closer it approaches to the announced ISAF withdrawal date. In plain terms, without reinforcement the NZDF/PRT position becomes more tenuous given the shift in local loyalties as the withdrawal deadline approaches, and tenuous in military terms means a high probability of increased casualties as the adversary grows in confidence and receives more support or acquiescence from the local population.

The National government has reaffirmed its commitment to the Bamiyan PRT mission through September 2011 and is considering extending thr NZSAS deployment past its scheduled March 2011 end date. But the possibility of further fatalities now haunts its commitment. The larger question is whether the New Zealand public has the stomach to support continuing NZDF participation in the Afghan conflict in the face of increased casualties. That will be a critical juncture in New Zealand foreign relations, because public support is essential to maintaining the political will to continue fighting—and dying—in support of broadly defined foreign policy objectives. Since the measure of a military commitment is ultimately taken in blood, it behooves New Zealand’s political leadership to make a strong case as to why Kiwi lives are worth sacrificing in a seemingly futile conflict in far off place that appears, on the face of things, to have little strategic value to core New Zealand interests. It is also incumbent upon the opponents of the NZDF deployment to Afghanistan to make an equally convincing case as to why Kiwi lives should not be risked in Afghanistan in pursuit of vanity, favour, treasure or ephereal benefit.

Out of that debate a true public consensus can be formed that gives clear direction to the government’s approach to the ISAF commitment in the year leading up to general elections.

*A short version of this essay was published in the New Zealand Herald on August 5, 2010 under the title “Death makes it clear Bamiyan not “soft” option.”

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The measure of military commitment is taken in blood.

The death of Lt. Timothy O’Donnell in an ambush while on patrol in Bayiman province is a tragic but inevitable consequence of the NZDF participation in the ISAF mission in Afghanistan. His death, the first in ten years since the killing of Private Leonard Manning in an ambush by Indonesian militias in East Timor, is a sad reminder of the bottom line when soldiers are sent into conflict zones. But that is a cost worth paying when the soldiers are volunteers, understand their orders and the risks involved, deploy willingly and enjoy the support of politicians and public back home. The latter depends on how the public perceives the conflict in question, which usually reduces to perceptions of immediate or proximate threat weighed against the costs and benefits presumably involved.

The costs of the NZDF deployment to Afghanistan are now clear and are likely to mount in the months ahead as Taliban sharpen their attacks in the build-up to ISAF withdrawal as of July 2011. The question for NZ is now not so much military as it is diplomatic and political: will the NZ public continue to support the deployment if casualties continue to mount, and will the National government have the political will to continue in the fight in the event of growing public opposition and the intangible diplomatic benefits to be accrued from ongoing participation?

Although it is a bit dated, I have explained why I believe the mission is worth continuing here. I have also explained why I believe that the ISAF mission is bound to change once the July 2011 withdrawal commencement date begins. As a follow up, I have written a short piece that will appear in a mainstream media outlet tomorrow on Lt. O’Donnell’s death in the context of a Taliban resurgence and switch to a “balloon” guerrilla strategy in which the Taliban retreats from large kinetic confrontations in Halmand and Kandahar provinces and regroups in areas such as Bayiman where the ISAF presence on the ground is thinner (i.e. when they get squeezed they pop up elsewhere rather than fight a superior force at the point of massed contact).

All indications are that the security situation in Afghanistan will get worse rather than better, if it ever does. ISAF commander General David Petraeus and US Joint Chief of Staff Chairman Admiral Mike Millan have said as much. John Key has committed the NZDF to the Bayiman PRT until September 2011 and is considering extending the NZSAS deployment past its schedule end date of March 2011. But now that the costs of the mission are etched in blood, does he have the nerve, resolve and most importantly public support to keep that promise should things get worse in the months to come? Given that 2011 is an election year, will polls rather than principle drive his decision? One thing I believe will be certain. More Kiwi blood will flow in that forsaken land.

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Shameless Self-Promotion Alert.

For those who may be interested, I am interviewed on the TVNZ news analysis show fronted by Russell Brown, Media 7, tonight on the subject of wikileaks. Although only parts of the interview will be aired, Russell will put the entire conversation up on the Media 7 web site (or perhaps on Public Address). The discussants on tonight’s taping are Selwyn Manning from the independent news aggregator  Scoop and investigative reporter Jon Stephenson (who is the most knowledgeable Kiwi journalist when it comes to Afghanistan).  There is some serious brain power between them. Both are hard news gathers who eschew the official spin, both are very critical thinkers about issues of public policy, both have taken on both the government and mainstream media versions of important news, and both know how to string a few paragraphs together (which is more than can be said for many in the so-called journalism fraternity). In other words, the offer great value in terms of insight and analysis, which is what I believe was Russell’s hope when conceiving the show. Hence, I commend it to you if you are not already familiar with it.

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Blog Link: National Cuts and Runs.

Recent events strongly suggest that in spite of its supportive rhetoric, National is planning to withdraw the NZDF commitment to the International Security Assistance Force (ISAF) in Afghanistan as early as next year. Rather than just state why it has decided that the fight is no longer worth fighting, National is attempting to mask the decision by saying that it would “consider” continue the NZSAS deployment past March 2011 and that it might slow the NZDF withdrawal from the Bamiyan Provincial Reconstruction Team as part of the larger timetable for ISAF troop drawdowns that extends to 2014. But actions speak louder than words and National’s decision to not honour Australia’s request for 50 NZDF personnel to serve as police trainers in Oruzgan Province as replacements for departing Dutch troops is a clear indication that it believes the mission is a failure. So the writing is on the wall.

Whatever the merits of the Western involvement in Afghanistan, this decision sends some interesting signals to allies and disinterested parties alike. I explain my view of the subject in the July 24, 2010 issue of The Listener.

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Countering threats as a growth industry.

News that the US has a network of over one thousand agencies employing more than 800,000 people involved in counter-terrorism efforts comes as no surprise. The post 9/11 reaction to the threat of armed Islamicist extremism by the US government was as visceral as it was knee-jerk, with a blanket call put out to increase every aspect of the country’s counter-terrorism capability. From intelligence gathering to emergency response and everything in between, counter-terrorism agencies proliferated from the local to the state to the federal level, as did the number of private firms engaged in direct counter-terrorism efforts as well as support roles.

But there are problems with this expansion, and it is not just the waste of resources associated with the duplication of functions and overlapping of roles that comes with it. Nor are the problems confined to the US. Let me list a few.

Around the world concerns about terrorism has seen the expansion of government security apparatuses dedicated to fighting it. Intelligence agencies, police forces and the military of virtually all Western states, to say nothing of those in the Sunni Arab world, Africa, Asia and the Antipodes, have increased the amount of resources directed towards countering potential terrorist threats (South America is the exception to the rule because traditional inter-state rivalries and the lack of Islamicist grievances in the region have led authorities to focus attention elsewhere). In New Zealand, for example, both the Combined Threat Assessment Group (an inter-agency combine that analyses intelligence flows and threat assessments from such as the SIS, Police, NZDF, MoD, Immigration, Customs and Foreign Affairs) and the Counter Terrorism Tactical Assault Group (CTTAG, a combined military and police specialist unit trained to respond to terrorist incidents) were created after 9/11. Similar agencies now litter the state security landscape throughout the world.

Along with the proliferation of agencies comes increases in their funding and personnel, and more perniciously, the scope of their responsibilities. Again, in New Zealand this is evident in the Terrorism Suppression Act (TSA), which is modeled on similar legislation in the UK and US and which gives broad powers to the government to infringe on basic civil liberties in its efforts to detect and stop suspected terrorism-related activities on NZ soil. The same goes for the Search and Surveillance bill now before parliament. In the US the so-called Patriot Act, which is still in force, grants US security agencies broad powers of arrest and detention on the mere suspicion of terrorism-linked behaviour. The expansion in both the number and legal authority of counter-terrorism agencies has been facilitated by politicians who, in an effort to not look weak on the issue of terrorism, approve budgetary increases and laws that fuel the growth of the counter-terrorism industry. In the post 9/11 rush to promote security, only a few brave politicians have attempted to resist the trampling of civil rights that the expansion of the security apparatus inevitably entails.

Besides the obvious problems that come with the “squeezing” of civil society by the security state (since the expansion of the state’s counter-terrorism powers come at the direct expense of the right to privacy and presumption of innocence), there is another downside that needs to be considered: the construction of threats in order to justify the existence of counter-terrorism networks. What is more, this phenomena extends beyond government security agencies and into private enterprise and academia.

In order to justify their existence, security agencies have to be able to identify and counter threats. In some countries the threats are real, as is the need to thwart them. But in much of the world the threat of terrorism is no more than it was in the 1990s, 1980s or 1970s. One such place is NZ. In these countries security agencies have a bureaucratic self-interest in identifying “threats,” because if there are no new threats then the rationale for their role and resource expansion goes out the window. Thus in 2005 the NZSIS identified “home grown jihadis” as the gravest security threat to NZ. A year later it dropped all reference to local Islamic extremists and highlighted foreign espionage networks operating on NZ soil. The following years have seen it highlight foreign-based computer hacking and industrial espionage as sources of concern. Each year appears to bring with it a new threat, even as the others are quietly dropped from annual reports.

Along with state security agencies conjuring up or exaggerating threats, so has an army of private security firms, including open source intelligence providers, security guard outfits and private military corporations sprung up to take advantage of the post 9/11 climate of fear. They bandwagon with state security agencies to emphasize the dangers of terrorism and other threats so as to nurture a client base for their services. The infamous Blackwater (now known as XE) private military corporation is an example of a “one-stop” private contractor that has its own intelligence, airborne, naval and ground units ready to serve both public and private clients for handsome fees (one of their latest ventures is in anti-piracy operations).  Thousands of other such firms now dot the global security landscape, all emphasizing the dangers of  the threat environment in the pursuit of profit. Not only does this industry work neatly with state security agencies’ agendas, but it further squeezes civil society in the measure that its surveillance capabilities and quasi-police powers increase as well.

Even academia is not immune from this trend. Over the last decade “counter-terrorism” centres have sprung up in dozens of universities world-wide. They receive their funding from governments, hold conferences, and churn out reports, books, even specialised journals that are dedicated to the subject (including “Perspectives on Terrorism” and “Terrorism and Political Violence,” although my favorite journal along these lines is “Small Wars and Insurgencies”). Here too the push is on to identify threats so as to justify continued funding. Places like Nanyang Technological University in Singapore, home of the S. Rajaratnam School of International Studies, have dozens of highly paid researchers working on counter-terrorism and threat analysis projects (including one analyst at RSIS who declared that NZ faced a domestic Islamicist threat without ever having been to the country). Since funding for its facilities and personnel is directly related to its threat analyses, NTU has a vested interest in helping ensure that the perception of the global and regional threat environments is that they are variegated and “dense.” NTU is certainly not alone in pursuing the counter-terrorism dollar–this is a world-wide trend.

And of course, there are the countless terrorism “experts” that have sprung up as analysts and talking heads in the corporate media. No matter how tenuous their qualifications for discussing issues of threat posed by terrorism and irregular warfare groups, these pundits materially benefit from the exposure afforded to them by the sound-bite crowd.

Which brings up the thought for the day. Threats to international and national security do exist and terrorism is real. But pragmatic threat assessment and better use of extant security agencies and criminal law to counter terrorism have been overwhelmed by the urge to manipulate the impression of threats for individual, corporate, bureaucratic or political gain. That in turn has seen a shrinking of the civic space and private sphere in inverse proportion to the expansion of integrated (private-public) national security networks.

When money combines with a climate of fear, impressions of threat can be manipulated (if  not invented) in order to pursue profit or bureaucratic power. Threat manipulation in pursuit of corporate self-interest and the expansion of state security apparatuses poses a serious risk to democratic society. In another life long before 9/11 I participated in actual threat assessment exercises for the US government. The ethos then was to call things as they were, objectively, so as to not allow political agendas or ideological bias to divert resources away from real dangers. Now that logic has been reversed: threat mitigation is seen as a potential source of income and power, with the more threats identified the more resources will be directed towards them by political elites and a fearful public. By that logic, counter-terrorism is the mother of all cash cows, and as NZ prepares to host the Rugby World Cup, we can assume that there will be plenty of interested parties working hard to milk it regardless of the real threat environment in which the tournament is held.

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Broad Bows Out.

I cannot say that I regret the news that Howard Broad is ending his tenure as Police Commissioner. Regardless of what positives he brought to the job–and I know that certain people on the Left think that he is a great guy who can do no wrong–for me he is to the NZ Police what Richard Woods was to the NZSIS: a person who allowed overtly political criteria to intrude on what should have been autonomous decision-making based on assessments of real threat and practical priorities. Just like Wood’s disgraceful behaviour in the Zaoui case, Broad was the man at the helm during the Urewera raids, raids that just happened to be timed to coincide with the final reading of the revised (and more draconian) Terrorism Suppression Act and which targeted well-know dissidents who, whatever their crazed (or intoxicated) rhetoric and antics in the bush, were as far removed from a terrorism plot as are medieval war reenactment societies. Broad is the man who has lobbied in favour of expanded (domestic) surveillance and search powers for the Police and other state agencies. Broad is the man who ran the show at a time when a culture of criminal abuse within the Police was exposed, only to preside over a corporate whitewash of the culture rather than a wipeout of it. Truth be told, Broad was handpicked for the job by the Labour leadership  because of his ties to the party, and given the position when his  (less compliant) predecessor committed a personal  indiscretion that cast doubts on his professional judgement. In sum, Broad may be a nice guy in person, but under the 5th Labour government he allowed his political masters to exert too much influence on the Police as an institution, IMO.

All of which makes Pita Sharples’ tribute to Howard Broad, particularly his honoring Broad for services to the Maori community, as sickening a piece of political syncopathy as has been seen in recent years. On this one, I think Hone Harewira is right: the less said the better.

Having stated my view, let me also state that I do not believe that National will do anything to diminish the politicisation of Police decision making. In fact, Key and co. could well make it worse.

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Does New Zealand have a Strategic Culture?

Given the pacifist tendencies of many KP readers, the question in the title of this post may seem unusual and of little importance. Little attention has been paid by most public media, much less the Left-leaning ones, to the issue of strategic culture both in general and with specific reference to Aotearoa. My interest in the subject has been sparked by my current book project, where I try to analyse the post Cold War security politics of three “peripheral” democracies: Chile, New Zealand and Portugal. Among other things that I have discovered as part of the project, it appears that there be no, or at least different conceptualisations of, a unique kiwi strategic culture. Let me elaborate on both the subject and the specifics of this.

Strategic culture refers to the security perspectives, traditions, institutions and behaviour of a country. Although it has often been confused with it, strategic culture is more than just a military war-fighting tradition. It is more than a diplomatic posture. It encompasses the full array of security concerns, from intelligence-gathering techniques and priorities to trade orientation and diplomatic alliances, that make up the larger framework with which policy-making elites perceive the strategic environment in which they operate.

As an example of one dimension of strategic culture, let us look at the core feature with which it is most often confused: war-fighting tradition. Much has been written about different cultural and national “styles” of warfare, be it, among others, Arab, American, Australian, British, Chinese, German, French, Israeli or Russian.  Some emphasise mass over maneuver, others prefer tactical flexibility to centralisation of command, and still others prefer deception and stealth across ill-defined fronts rather fixed lines of combat in well-demarcated battle spaces. The array of war-fighting styles also extends to unconventional or guerrilla war-fighting—urban guerrilla warfare is not the same as rural insurgency, nor is the ratio of ideological-psychological work to kinetic operations the same in all contexts. Although there is plenty of overlap in all war-fighting styles, each is a unique adaptation, based on terrain, culture, technology, organisational capacity, leadership characteristics and the ethno-religious and national make-up of the fighting forces involved, as well as the ideologies that justify what they are fighting for.

The question thus begs: does NZ have a distinct war-fighting tradition? If so, what are its characteristics? Whatever the answer, that is only part of the picture.

That is because strategic culture involves geopolitical perspectives and geostrategic orientation, institutional morphology and historical practice. Countries with large land masses and multiple borders see things differently than do island states.  Countries with ample resources and robust economies of scale in value-added manufacturing conform their approaches to trade and security differently than resource poor agro-export platforms. Countries with on-going territorial, cultural or political disputes tend to “see” threats differently than those that are not encumbered by such conflicts. Countries governed by authoritarians often perceive things differently than well-established democracies. So do countries with long histories of warfare (internal as well as external) when contrasted against countries with peaceful internal histories and little involvement in foreign wars.

Domestic political dynamics over time, as well as specific histories of military and diplomatic alliances, also impact on the specifics of strategic culture.  The number of variables is larger and more varied than this, but the point should  be clear: strategic culture is a product of national character molded by historical practice, current political dynamics, institutional framework and geopolitical context.

In highly simplified fashion the equation looks like this: strategic culture—> geopolitical orientation—> geostrategic perspective—> threat environment assessment and contingency planning—> security force orientation—> force composition—> force staffing, training and equipment—> force deployment and operations. This includes intelligence and police services as well as the military, because it includes internal and external security roles. The most important thing to note is that strategic culture is the point of departure for all that follows; absent a strategic culture there is little basis for a coherent strategic vision over time , which in turn impacts negatively on all of the other variables arrayed along this particular chain of causality.

Which brings up the point of this post: does NZ have a distinct strategic culture? One of the things that emerged during my discussions with numerous observers during my visit to NZ in February and March was an unspoken consensus that NZ does not have a strategic culture to call its own. This is in part a product of the apparent ad-hoc approach to policy-making I mentioned in a previous post. But it also appears to be rooted in organisational dysfunction and incompetence as well as a dependence on foreign patrons for strategic guidance. Many of the most informed people I spoke with were openly derisive of the competence and vision of the MoD, NZDF and NZSIS leadership, particularly the civilians that ostensibly provide the MoD, NZDF and NZSIS with policy guidance (the name Mark Burton was mentioned more than once as absolute proof  of how ineptitude can still find its way into the upper echelons of security policy-making). Plus, advancement within the security bureaucracies is seen as being tied to toeing both the (incumbent) party line as well as the extant corporate culture, however misinformed or dysfunctional they may be. Thus, even though there are futures forecasting shops in various security agencies, very little is actually forecast that the bosses do not want to hear or read, and most of what is forecast is make-work destined for annual reports rather than designed to serve as a basis for strategic planning over the medium term.

The same accusation has been made of the plethora of security agencies that have emerged since 9/11, which may be in part why the National government has made the decision to convert the External Assessments Bureau into a National Assessments Bureau with oversight authority over the whole lot. But the latter does not indicate a move to develop a defined strategic culture. It is just an attempt to impose some form of managerial rationality on the intelligence-security combine in order to overcome areas of duplication, overlap and turf battles.

There was also the view expressed that when it comes to security, NZ has traditionally looked to Australia, the US and the UK (in the current order) for strategic guidance rather than develop a distinctive strategic culture of its own. This is believed to be a result of NZ dependence on these countries (and others, such as France) for military equipment and training and intelligence flows. But NZ has a distinctive approach to things like nuclear disarmament, non-proliferation and peace-keeping, so surely that is reflected in a unique perspective on the external security environment and the role that NZ should play in it. Here again, my supposition that NZ has a distinct way of viewing things from a security perspective was contradicted or dismissed by the knowledgeable interlocutors with whom I spoke. Yet I remain unconvinced that their skepticism is fully warranted. Surely there is an appreciation of the need for a uniquely Kiwi approach to strategic affairs?

Which leaves me with my opening question. I know that Chile and Portugal have distinct strategic cultures that informs the way in which they engage the post-Cold War world on security matters. These distinctive strategic cultures give them coherency and predictability when construing threats, organising their security forces and engaging in security planning. Can we say the same thing for NZ?