ANZUS
Australia, New Zealand, United States Security Treaty | |
---|---|
Type | Collective securityagreement |
Signed | 1 September 1951 |
Location | San Francisco,United States |
Effective | 29 April 1952 |
Parties |
|
Citations | [1952] ATS 2(full text) |
TheAustralia, New Zealand, United States Security Treaty(ANZUSorANZUS Treaty) is a 1951collective securityagreement initially formed betweenAustralia,New Zealand,and theUnited States.[1]It requires the parties to maintain their "capacity to resist armed attack", consult with each other on security matters in thePacificand declares that an armed attack on any of the parties "would be dangerous to [each signatories] peace and safety" and that each signatory "would act to meet the common danger in accordance with its constitutional processes".[2]It also provides for a council of the signatories foreign ministers, in which the implementation of the treaty can be discussed.
The treaty was one ofa seriesthat the United States formed in the 1949–1955 era as part of its collective response to the threat ofcommunismduring theCold War.[3]New Zealand was suspended from ANZUS in 1986 as it initiated anuclear-free zonein its territorial waters. In late 2012, the United States lifted a 26-year-old ban on visits by New Zealand warships to US Department of Defense and US Coast Guard bases around the world. New Zealand maintains a nuclear-free zone as part of its foreign policy and is partially suspended from ANZUS, as the United States maintains an ambiguous policy whether or not the warships carry nuclear weapons and operates numerous nuclear-powered aircraft carriers and submarines; however New Zealand resumed key areas of the ANZUS treaty in 2007.[4][5]
Treaty structure
[edit]The treaty was previously a full three-way defence pact, but was disrupted following a dispute betweenNew Zealandand theUnited Statesin 1984 over visiting rights for ships and submarines capable of carrying nuclear arms[6]or nuclear-powered ships of theUS Navyto New Zealand ports. The treaty became betweenAustraliaand New Zealand, and between Australia and the United States. While the treaty has lapsed between the United States and New Zealand, it remains separately in force between both of those states and Australia.[7]In 2000, the United States opened its ports to theRoyal New Zealand Navyonce again, and under thepresidency of Bill Clintonin the US and thegovernment of Helen Clarkin New Zealand, the countries have since reestablished bilateral cooperation on defence and security.[8]
While ANZUS is commonly recognised to have split in 1984, the Australia–US alliance remains in full force. Heads of defence of one or both states often have joined the annual ministerial meetings, which are supplemented by consultations between the US Combatant Commander Pacific and the Australian Chief of Defence Force. There are also regular civilian and military consultations between the two governments at lower levels.
Annual meetings to discuss ANZUS defence matters take place between the United States Secretaries of Defense and State and the Australian Ministers of Defence and Foreign Affairs are known by the acronymAUSMIN.The AUSMIN meeting for 2011 took place in San Francisco in September. The 2012 AUSMIN meeting was inPerth, Western Australiain November.[9]AUSMIN continues to meet annually, most recently in 2023.[10]
Unlike theNorth Atlantic Treaty Organization(NATO), ANZUS has no integrated defence structure or dedicated forces. Nevertheless, Australia and the United States conduct a variety of joint activities. These include military exercises ranging from naval and landing exercises at the task-group level to battalion-level special forces training, assigning officers to each other's armed services, and standardising equipment and operational doctrine. The two countries also operate several joint-defence facilities in Australia, mainly ground stations forspy satellite,andsignals intelligenceespionageinSoutheastandEast Asiaas part of theECHELONnetwork.
During the 2010s, New Zealand and the US resumed a close relationship, although it is unclear whether the revived partnership falls under the aegis of the 1951 trilateral treaty. The Wellington Declaration of 2010 defined a "strategic partnership" between New Zealand and the US, and New Zealand joined the biennialRim of the Pacificmilitary exercise offHawaiiin 2012, for the first time since 1984. The US prohibition on New Zealand ships making port at US bases was lifted after the 2012 exercise.[8]
History
[edit]This sectionneeds additional citations forverification.(August 2019) |
Origins
[edit]Following theFall of Singaporeand the decline of British power in Asia, Australia began to search for other partners to ensure its security. Australia and New Zealand also felt threatened by the possibility of a resurgent Japan and the spread of communism to their North.[11][12]Percy Spender,Australia's minister for external affairs, sought a broader Pacific security agreement in 1950 which would include Australia, the UK, otherCommonwealthcountries and the United States. The latter's participation was essential, with Spencer stating the agreement "would be meaningless without the United States".[13]At this point however, both the UK and the US were disinterested in such an agreement, with both seeking to limit their engagement with Asia.[14]
The beginning of theKorean Warin mid-1950 changed American views. Australia committed to the Korean War before the United Kingdom and continued to further court the Americans. While Australia could not convince the US to sign a harsher peace treaty with Japan to restrain future military aggression, they did press for further assurances that they would retain a voice in Pacific security decisions and for an American security commitment in return for their approval of the treaty. The United States was initially reluctant, but the need to strengthen the West against communism grew with thecommunist victory in the Chinese Civil Warin 1949 and the 1950-1953Korean War.The treaty allayed antipodean fears that such a peace would allow Japan to threaten them again.[15][16][14]
The United States was initially reluctant, with the president instead an informal guarantee of protection. However, Australia pushed for a more formal agreement, with Spender noting that "Presidents come and presidents go." However, the treaty did not include an automatic commitment to armed assistance like inNATO,with Spender expecting that this could not be ratified by theUS Senatewho would wish to retain the congressional power to declare war. Instead, the text of the treaty mirrored the text of theMonroe Doctrinewhich stated that attacks on theAmerican continentwould be seen as "dangerous to its own peace and security".[14]
The resulting treaty was concluded at San Francisco on 1 September 1951, and entered into force on 29 April 1952.[17]
Korea, Malaysia, Borneo, Vietnam, and the War on Terror
[edit]The treaty itself was not a source of debate for over 30 years, with New Zealand participating as part of theBritish Commonwealth Forcesin the Korean War and theMalayan Emergency,followed by theIndonesia–Malaysia confrontation,and directly as part of ANZUS in theVietnam War.The Vietnam War was the first conflict New Zealand entered that did not involve the British or any other Commonwealth countries outside of Australia. As an ANZUS member New Zealand contributed military and non military assistance to the United States war effort in Vietnam from 1963 until 1975. New Zealand and Australian combat forces were withdrawn in 1972 and New Zealand non-military medical aid continued until 1975.[18]
In response to theWar in Afghanistan,New Zealand sent transport aircraft, maritime patrol aircraft, and frigates to the Persian Gulf, as well as a very small number of soldiers,SASsoldiers, medical and assorted and peace-keeping forces, to Afghanistan in 2001. Despite Prime MinisterHelen Clarkbeing openly critical of American justifications for the2003 Iraq war,New Zealand did send engineer troops to Iraq following the2003 invasion.[19]These troops were however officially engaged in reconstruction under UN Security Council Resolution 1483 and were non-combatant.
Australian reservations about the MX missile
[edit]In 1983, the Reagan Administration approached Australia with proposals for testing the new generation of Americanintercontinental ballistic missiles,theMX missile.American test ranges in the Pacific were insufficient for testing the new long-range missiles and the United States military wished to use theTasman Seaas a target area.AustralianPrime MinisterMalcolm Fraserof theLiberal Partyhad agreed to provide monitoring sites nearSydneyfor this purpose.[20]However, in 1985, the newly elected Prime MinisterBob Hawke,of theLabor Party,withdrew Australia from the testing programme, sparking criticism from the Reagan Administration. Hawke had been pressured into doing so by the left-wing faction of the Labor Party, which opposed the proposed MX missile test in the Tasman Sea. The Labor left-wing faction also strongly sympathized with the New ZealandFourth Labour Government's anti-nuclear policy and supported aSouth Pacific Nuclear Free Zone.[21][22][23]
To preserve its joint Australian-US military communications facilities, the Reagan Administration also had to assure the Hawke Government that those installations would not be used in theStrategic Defense Initiativeproject, which the Australian Labor Party strongly opposed. Despite these disagreements, the Hawke Labor Government still remained supportive of the ANZUS security treaty. It also did not support its New Zealand counterpart's ban on nuclear-armed and nuclear-powered ships. Following the ANZUS Split in February 1985, the Australian government also endorsed the Reagan Administration's plans to cancel trilateral military exercises and to postpone the ANZUS foreign ministers conference. However, it still continued to maintain bilateral military ties and continued to share intelligence information with New Zealand.[23]Unlike New Zealand, Australia continued to allow US warships to visit its ports and to participate in joint military exercises with the United States.[24][25]
New Zealand bans nuclear material
[edit]In 1985, the nature of the ANZUS alliance changed significantly. Due to a current ofanti-nuclearsentiment within New Zealand, tension had long been present between ANZUS members as the United States is a declared nuclear power. France, a naval power and a declared nuclear power, had been conductingnuclear testson South Pacific Islands. Following the victory of theNew Zealand Labour Partyinelection in 1984,Prime MinisterDavid Langebarrednuclear-poweredornuclear-armedships from using New Zealand ports or enteringNew Zealand waters.Reasons given were the dangers ofnuclear weapons,continuedFrench nuclear testingin the South Pacific, and opposition to US PresidentRonald Reagan's policy of aggressively confronting theSoviet Union.[26]
Given that the United States Navy had a policy of deliberate ambiguity during theCold Warandrefused to confirm or denythe presence of nuclear weapons aboard its warships and support ships,[27]these laws essentially refused access to New Zealand ports for all United States Navy vessels. In February 1985, a port-visit request by the United States for the guided-missile destroyerUSSBuchananwas refused by New Zealand, as theBuchananwas capable of launchingRUR-5 ASROCnuclear depth bombs.As this occurred after the government unofficially invited the United States to send a ship, the refusal of access was interpreted by the United States as a deliberate slight.
According to opinion polls taken before the 1984 election, only 30 per cent of New Zealanders supported visits by US warships with a clear majority of 58 per cent opposed, and over 66 per cent of the population lived in locally declarednuclear-free zones.[28]An opinion poll commissioned by the 1986 Defence Committee of Enquiry confirmed that 92 per cent now opposed nuclear weapons in New Zealand and 69 per cent opposed warship visits; 92 per cent wanted New Zealand to promotenuclear disarmamentthrough the UN, while 88 per cent supported the promotion of nuclear-free zones.[29]
United States suspends obligations to New Zealand
[edit]After consultations with Australia and after negotiations with New Zealand broke down, the United States announced that it was suspending its treaty obligations to New Zealand until United States Navy ships were re-admitted to New Zealand ports, citing that New Zealand was "a friend, but not an ally".[30]The crisis made front-page headlines for weeks in many American newspapers.[31]David Lange did not withdraw New Zealand from ANZUS, although his government's policy led to the US's decision to suspend its treaty obligations to New Zealand.
An opinion poll in New Zealand in 1991,[32]showed 54% of those sampled preferred to let the treaty lapse rather than accept visits again by nuclear-armed or nuclear-powered vessels. The policy did not become law until 8 June 1987 with the passing of theNew Zealand Nuclear Free Zone, Disarmament, and Arms Control Act 1987,more than two years after theBuchananwas refused entry after the US refused to declare the presence or absence of nuclear weapons, and a year after the US suspended its treaty obligations to New Zealand. This law effectively made the entire country anuclear-free zone.[33]Despite the ANZUS split, US Secretary of StateGeorge P. Shultzmaintained that the ANZUS structure was still in place, should NZ decide in the future to reverse its anti-nuclear policy and return to a fully operational defence relationship with the US. President Reagan also maintained inNSDD 193(National Security Decision Directive) that New Zealand still remained a "friend, but not an ally".[34]
On 10 July 1985, agents of the FrenchDirectorate-General for External Securitybombed theGreenpeaceprotest vesselRainbow WarriorinAuckland,causing one death. The lack of condemnation by Western leaders to this violation of a friendly state's sovereignty caused a great deal of change in New Zealand's foreign and defence policy,[35]and strengthened domestic opposition to the military application of nuclear technology in any form. New Zealand distanced itself from its traditional ally, the United States, and built relationships with small South Pacific countries, while retaining its good relations with Australia, and, to a lesser extent, the United Kingdom.[36]
The suspension of New Zealand in ANZUS has had significant effect on New Zealand–United States relations and on New Zealand domestic policy. The anti-nuclear policy has been a part of New Zealand political culture for years now. However, that has not stopped United States politicians from trying to change the policy.[citation needed]
Afghanistan
[edit]Australia and New Zealand both provided military units, including special forces and naval ships, in support of the US-led "Operation Enduring Freedom"for support for anti-Talibanforces in response to the11 September 2001 terrorist attacks.Providing 1,550 troops, Australia remains the largest non-NATOcontributor of military personnel in Afghanistan. New Zealand committed 191 troops.[37]
East Timor
[edit]Between 1999 and 2003, the armed forces of Australia and New Zealand deployed together in a large scale operation inEast Timor,to preventpro-Indonesian militiafrom overturning avote for independenceon the region. The United States provided only limited logistical support but theUSSMobile Bayprovided air defence for the initial entry operation. The operation was taken over by the United Nations.
Taiwan
[edit]One topic that became prominent in the 2000s was the implications in the case of a hypothetical attack by the People's Republic of China againstTaiwan,who would likely receive American support. While Australia has strong cultural and economic ties with the United States, it also has an increasingly important trade relationship with mainland China.
In August 2004, Foreign MinisterAlexander Downerimplied in Beijing that the treaty would likely not apply to that situation, but he was quickly corrected by Prime MinisterJohn Howard.In March 2005, after an official of the People's Republic of China stated that it may be necessary for Australia to reassess the treaty and after China passed anAnti-Secession Lawregarding Taiwan, Downer stated that in case of Chinese aggression on Taiwan, the treaty would come into force, but that the treaty would require only consultations with the United States and not necessarily commit Australia to war.[citation needed]
1985 to present
[edit]Annual bilateral meetings between the US Secretary of State and the Australian Foreign Minister replaced annual meetings of the ANZUS Council of Foreign Ministers. The first bilateral meeting was held inCanberrain 1985. At the second meeting, in San Francisco in 1986, the United States announced that it was suspending its treaty security obligations to New Zealand pending the restoration of port access. Subsequent bilateral Australia–US Ministerial (AUSMIN) meetings have alternated between Australia and the United States.
The alliance engenders some political controversy in Australia. Particularly after Australian involvement in the2003 Iraq war,some quarters of Australian society have called for a re-evaluation of the relationship between the two nations. Nonetheless, the alliance enjoyed broad support during theCold War[38]and continues to enjoy broad support in Australia.[39]One commentator in Australia has argued that the treaty should be re-negotiated in the context of terrorism, the modern role of the United Nations and as a purely US–Australian alliance.[40]
Australia is also a contributor to theNational Missile Defensesystem.[41][42]
In May 2006, US Assistant Secretary of State for East Asia, Pacific Affairs and Northern Atlantinc OceanChristopher Hill,described the New Zealand anti-nuclear issue as "a bit of a relic", and signalled that the US wanted a closer defence relationship with New Zealand. He also praised New Zealand's involvement in Afghanistan and reconstruction in Iraq. "Rather than trying to change each other's minds on the nuclear issue, which is a bit of a relic, I think we should focus on things we can make work" he told an Australian newspaper.[43]
While there have been signs of the nuclear dispute between the US and NZ thawing out, pressure from the United States increased in 2006 with US trade officials linking the repeal of the ban of American nuclear ships from New Zealand's ports to a potentialfree tradeagreement between the two countries.[44]
On 4 February 2008, US Trade RepresentativeSusan Schwabannounced that the United States will join negotiations with four Asia–Pacificcountries:Brunei,Chile,New Zealandand Singapore to be known as the"P-4".These countries already have a FTA called theTrans-Pacific Strategic Economic Partnershipand the United States will be looking to become involved in the "vitally important emerging Asia-Pacific region". A number of US-based organisations support the negotiations including, but not limited to: theUnited States Chamber of Commerce,National Association of Manufacturers,National Foreign Trade Council,Emergency Committee for American Trade and Coalition of Service Industries.[45][46]
In 2010, the United States and New Zealand signed theWellington DeclarationinWellington,New Zealand, during a three-day visit by US Secretary of StateHillary Clinton.The signing of the declaration ended the ANZUS dispute of the past 25 years, and it was later revealed the US and New Zealand had resumed military co-operation in eight areas in 2007.[47]
On 16 November 2011, US President Obama and Australian Prime Minister Julia Gillard met in Canberra, Australia to announce plans for a sustained new American presence on Australian soil. 2,500 American troops are to be deployed to Darwin, Australia.
New Zealand and the United States signed theWashington Declarationon 19 June 2012 "to promote and strengthen closer bilateral defense and security cooperation".[48]On 20 September 2012, while on a visit to New Zealand, US Secretary of DefenseLeon Panettaannounced that the United States was lifting the 26-year-old ban on visits by New Zealand warships to US Department of Defense and US Coast Guard bases around the world;[49]US Marines had trained in New Zealand and New Zealand's navy took part in the RIMPAC maritime exercises alongside the US earlier that year.[50]
TheRoyal New Zealand Navy(RNZN) invited the United States Navy to send a vessel to participate in the RNZN's 75th Birthday Celebrations in Auckland over the weekend of 19–21 November 2016. The guided-missile destroyerUSSSampsonbecame the first US warship to visit New Zealand in 33 years. New Zealand Prime MinisterJohn Keygranted approval for the ship's visit under the New Zealand Nuclear Free Zone, Disarmament, and Arms Control Act 1987, which requires that the Prime Minister has to be satisfied that any visiting ship is not nuclear armed or powered.[51]Following the7.8 magnitude Kaikōura earthquakeon 14 November 2016 theSampsonand other naval ships from Australia, Canada, Japan and Singapore were diverted to proceed directly toKaikōurato provide humanitarian assistance.[52]
In late 2021 Australia, the UK and the USA signed theAUKUSagreement, a trilateral security partnership between Australia, the United Kingdom, and the United States. New Zealand did not participate and any nuclear submarines developed under the pact will be banned from New Zealand waters under their existing nuclear restrictions.[53]
See also
[edit]- Anglosphere
- ASEAN
- AUSCANNZUKUS
- Australian Defence Force
- AUKUS– 2021 Australia, United Kingdom and United States security partnership
- Contents of the United States diplomatic cables leak (New Zealand)
- Five Eyes
- Five Power Defence Arrangements(FPDA) – Defence cooperation among Australia, Malaysia, New Zealand, Singapore and UK
- New Zealand Defence Force
- Pine Gap
- Quadrilateral Security Dialogue(QUAD) – Strategic dialogue among Australia, India, Japan and US
- Southeast Asia Treaty Organization(SEATO) – 1954–1977 international collective defense organisation
- United States Armed Forces
References
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- ^Australia;New Zealand;United States(1 September 1951)."Security Treaty between Australia, New Zealand and the United States of America".Australian Government Publishing Service– viaAustLII.
- ^Joseph Gabriel Starke,The ANZUS Treaty Alliance(Melbourne University Press, 1965)
- ^Alexander, David (21 September 2012)."U.S. lifts ban on New Zealand warships, New Zealand keeps nuclear-free stance".Chicago Tribune.
- ^Kristensen, Hans (23 September 2012)."In Warming US-NZ Relations, Outdated Nuclear Policy Remains Unnecessary Irritant".Federation of American Scientists.
- ^The test for ship access was decided as nuclear capability not actual proof of nuclear armament by a NZLP 1984 committee of President Margaret Wilson, Chair of the Defence and Foreign Affairs Committee and MP and former President Jim Anderton and MP Fran Wilde,
- ^King M: 2003, The Penguin History of New Zealand, Penguin Books (NZ) Ltd, Auckland 1310, New Zealand. p426 and pp. 495–6
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- ^Parliamentary Debates: House of Representatives Offical Hansard.9 March 1950. p. 632.
- ^abcGyngell, Allan (2017).Fear of Abandonment: Australia in the World since 1942.La Trobe University Press. pp. 51–6.ISBN978-1-86395-918-6.
- ^David McLean, "Anzus Origins: A Reassessment,"Australian Historical Studies24#94 (1990), pp. 64-82.
- ^"ANZUS treaty comes into force | NZHistory, New Zealand history online".nzhistory.govt.nz.Retrieved24 September2017.
- ^William David McIntyre,Background to the Anzus Pact: Policy-Making, Strategy and Diplomacy, 1945-55(1994)
- ^'Surgical and medical support', URL:https://vietnamwar.govt.nz/nz-vietnam-war/surgical-and-medical-support(VietnamWar.govt.nz) Accessed 22 December 2022
- ^"NZ PM backs Blair's Iraq conduct".BBC News.11 July 2003.Retrieved1 July2010.
- ^Samantha Maiden (1 January 2012)."US planned to fire missile at Australia, secret Cabinet papers from the 1980s reveal".Daily Telegraph.Retrieved19 April2013.
- ^"US rocket plan became Hawke's first setback".Sydney Morning Herald.1 January 2013.Retrieved19 April2013.
- ^"Hawke Government events: 1985".The Bob Hawke Prime Ministerial Library. 6 March 2013. Archived fromthe originalon 14 May 2013.Retrieved23 April2013.
- ^abCarpenter, Ted (1986)."Pursuing a Strategic Divorce: The U.S. and the Anzus Alliance".Cato Institute Policy Analysis(67).Cato Institute:4–5. Archived fromthe originalon 13 May 2013.Retrieved19 April2013.
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{{cite web}}
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Aukus submarines banned from New Zealand as pact exposes divide with western allies: Experts say Aukus military deal underlines Australia's increasingly close alignment with the US on China – and New Zealand's relative distance.
Further reading
[edit]- Brands Jr., Henry W. "From ANZUS to SEATO: United States Strategic Policy towards Australia and New Zealand, 1952-1954"International History Review9#2 (1987), pp. 250–270online
- Capie, David. "Nuclear-free New Zealand: Contingency, contestation and consensus in public policymaking." inSuccessful Public Policyed by Joannah Luetjens, (2019): 379-398online.
- Catalinac, Amy L. "Why New Zealand Took Itself out of ANZUS: Observing 'Opposition for Autonomy' in Asymmetric Alliances,"Foreign Policy Analysis6#3 (2010), pp. 317–338.
- Dorling, Philip.The Origins of the Anzus Treaty: A Reconsideration(Flinders UP, 1989)
- Green, Michael J., et al.The ANZUS alliance in an ascending Asia(ANU Strategic and Defence Studies Centre, 2015)online[dead link ].
- Jennings, Peter. "The 2016 Defence White Paper and the ANZUS Alliance."Security Challenges12.1 (2016): 53-64onlineArchived1 September 2021 at theWayback Machine.
- Kelly, Andrew.ANZUS and the early cold war: strategy and diplomacy between Australia, New Zealand and the United States, 1945-1956(2018)online free.
- McIntyre, William David,Background to the Anzus Pact: Policy-Making, Strategy and Diplomacy, 1945-55(1994)
- McLean, David. "Anzus Origins: A Reassessment,"Australian Historical Studies24#94 (1990), pp. 64–82
- Miller, Charles. "Public Support for ANZUS: Evidence of a Generational Shift?"Australian Journal of Political Science,50#1 (2015), pp. 1–20.
- Robb, Thomas K., and David James Gill. "The ANZUS Treaty during the Cold War: a reinterpretation of US diplomacy in the Southwest Pacific."Journal of Cold War Studies17.4 (2015): 109–157.onlineArchived13 July 2019 at theWayback Machine
- Siracusa, Joseph M and Glen St John Barclay. "Australia, the United States, and the Cold War, 1945–51: From V-J Day to ANZUS",Diplomatic History5#1 (1981) pp 39–52
- Siracusa, Joseph M., and Glen St J. Barclay. "The historical influence of the United States on Australian strategic thinking."Australian Journal of International Affairs38.3 (1984): 153–158.
- Tow, William, and Henry Albinski. "ANZUS—Alive and well after fifty years."Australian Journal of Politics & History48.2 (2002): 153–173.
- Tow, William. "ANZUS and alliance politics in Southeast Asia." (2019)online.
External links
[edit]- Cold War treaties
- Cold War alliances and military strategy
- Cold War history of Australia
- Military alliances involving the United States
- Military alliances involving Australia
- Military alliances involving New Zealand
- Treaties concluded in 1951
- Treaties entered into force in 1952
- Australia–New Zealand military relations
- New Zealand–United States military relations
- Australia–United States military relations
- 20th-century military alliances
- 21st-century military alliances
- Anglosphere