Defending Australia: a history of Australia’s defence white papers

This paper provides a summary of each of Australia’s defence white papers issued between 1976 and 2013 and seeks to draw out common themes that emerge in some or all of them. Executive summary Australia published defence white papers in 1976, 1987, 1994, 2000, 2009 and 2013 and a new white paper is expected in 2015. A community consultation process was undertaken as part of the 2000 and 2009 defence white papers and a similar process is being carried out for the upcoming 2015 defence white paper. The need to defend Australia against a major aggressor remains the primary driver in Australian defence policy. Regional security and contributing to the global order have been secondary, but still important priorities in Australian defence planning. Each of the defence white papers has been created on the basis that Australia should be able to defend itself against a potential aggressor without outside assistance (the principle of self-reliance), while at the same time stressing the importance of the alliance with the United States. Threat perceptions have changed from the Cold War influences reflected in the 1976 and 1987 white papers to a contemporary focus on terrorism while also incorporating emerging threats such as cyber attacks and the rise of China. Defence white papers are not produced in a vacuum but are informed by key reviews of Australia’s strategic situation, industry policy and force posture. Defence policy is subject to the broader economic conditions of the time and the Department of Defence must contend with many other priorities for government funding. The financial plans set out in the various defence white papers are often ambitious and rarely brought to fruition. On the whole, capability choices have displayed continuity between the different white papers regardless of changes in government. This is understandable given the length of time required for major capital equipment acquisitions. Recent white papers have placed a greater emphasis on regional engagement. The contribution of the Australian Defence Force (ADF) to humanitarian assistance and disaster relief operations, as well as to border protection activities, has also been included in the most recent white papers.