Security,development and the Australian security discourse about failed states

This paper discusses Mark Duffield's theory of the merging of development and security. It introduces failed states as a key linkage between these concepts. To subject the theory to a partial empirical test, the use of the term ‘failed state’ in Australian security discourse vis-à-vis three countries in the South Pacific is presented. Evidence from these cases supports the notion that security and development are indeed coming together. This threatens to strip development policy of its meaning, subordinating it to security concerns.     

Jewel of the Pacific and planter's paradise

A 10‐week series with 60 photographs on the Solomon Islands was not unusual in illustrated newspapers and magazines in the early 20th century, and The Queenslander was maintaining a pattern of photographic imaging of sub‐empire going back to the 1890s, concentrating on possible post‐war colonial realignments, appropriateness of British policy and the economic and political roles Australians would adopt if a formal relationship existed with the Solomon Islands. In calling for a greater presence in 1917–18, The Queenslander was supported by expansionists, missions and traders, shipping companies and readers with personal links through work, investment, friends or missions. This essay acknowledges the role of photography in Australian relations with the Pacific, its role in shaping public opinion, and the access it offers to the history of Australia's diverse regional links and particularly its thwarted claims for a closer relationship with the Solomons, depicted optimistically as a planter's paradise and a potential addition to an Australian sub‐empire.     

The ‘arc of instability’ and Australia's strategic policy

The proposition that Australia faces an ‘arc of instability’ to its north has been an important feature of the Australian strategic debate in the early twenty-first century. Prompted by worries in the late 1990s over Indonesia's future and East Timor's uncertain path to independence, the ‘arc’ metaphor also encapsulated growing Australian concerns about the political cohesiveness of Melanesian polities, including Papua New Guinea and Solomon Islands. While tending to overlook the divergent experiences of countries within its expanding boundaries, the ‘arc’ fed from Australia's historical requirement for a secure archipelagic screen. As such it has became an important weapon in the debate over whether the locus of Australia's strategic priorities should be increasingly global in the ‘war on terror’ period or remain closer to home in the immediate region. The ‘arc of instability’ metaphor was consequently adopted by leading Australian Labor Party politicians to argue that the Howard Coalition government was neglecting South Pacific security challenges. It became less prominent following the Howard government's greater activism in the South Pacific, signalled by Australia's leadership of the East Timor intervention in 2003. But its prominence returned in 2006 with the unrest in both Honiara and Dili. In overall terms, the ‘arc of instability’ discussion has helped direct Australian strategic and political attention to the immediate neighbourhood. But it has not provided specific policy guidance on what should be done to address the instabilities it includes.     

Reputation and responsibility in Australia's 2003 intervention in the Solomon Islands

This article reinterprets Australia's motives for its 2003 intervention in the Solomon Islands. The central argument is that considerations of Australia's international reputation have not been afforded sufficient importance in explaining the Howard government's decision to intervene. A primary concern for the Howard government was to bolster Australia's reputation in the ‘War on Terror’ vis-à-vis the USA and the international community more broadly by being seen to maintain order in its regional sphere of responsibility. The article establishes the historical basis for Canberra's claims to a special responsibility for the South-West Pacific region. It then demonstrates the close connection between Australia's responsibility for order in its region and the reputational norms that evolved during the early years of the War on Terror. These claims are substantiated through an analysis of the Solomon Islands crisis from June 2000 until the Regional Assistance Mission to Solomon Islands was deployed in July 2003.     

‘Saving the Solomons’: a New Geopolitics in the ‘Arc of Instability’?

The recent crisis in the Solomon Islands is reviewed in the context of historical and regional antecedents. In the past two decades political and ethnic disputes have flared in several parts of Melanesia and nearby parts of the ‘arc of instability’. Tensions and violence in the Solomon Islands, based on social, economic and political issues, exemplify regional development concerns. The collapse of the economy and civil order resulted in the Solomon Islands being characterised as a ‘failed State’. Localised warfare brought external military intervention, with a regional assistance mission led by Australia, which paralleled other involvement in the region. Involvement has emphasised renewed Australian interest in the region, in the light of global geopolitical shifts, and a more controversial approach to regional security and development.     

Women's Organizations,Voluntarism, and Self‐Financing in Solomon Islands: a Participant Perspective

Arguing that the capacity to organize is not foreign to Solomon Islands women, this paper demonstrates their resourcefulness, resilience, and significant but neglected national potential by focusing on a key domain of women's practice and management expertise ‐ women's groups, organizations, and associations, most of which are church‐based, and government programs or projects directed to women. The paper surveys the establishment and operation of different categories of women's groupings before and since independence in 1978. It highlights the commitment to voluntarism and self‐financing that has enabled many groups and organizations to function and even flourish despite recent armed conflict and the resultant near collapse of the economy and the state, especially in the capital, Honiara. It exemplifies the priority shift which has seen many women and their organizations supplement the traditional concerns of home economics, health, education, and community service with overt attention to questions of economic development, political participation, and human rights. The paper concludes by considering the problems facing women's groupings in Solomon Islands, including those generated by women's own attitudes and behaviour as well as gendered and other external constraints.     

The Culture of Agreement Making in Solomon Islands

Current growing interest in mining in Solomon Islands warrants critical reflection on the centrality of natural resources in the post‐colonial formation of state‐society interactions, in particular, as they have been shaped by decades of forestry resources extraction. Since independence in 1978 waves of Malaysian, Taiwanese, Korean, Australian and Japanese investors have developed natural resource extraction projects. Not only have these projects been poorly regulated, they have entwined politicians, leaders and landholders with the state as an economic agent with its own base of economic power. As a result, wealth in Solomon Islands is highly politicised and dependent on the bargaining position of the state and foreign investors (Bennett 1987, 2002). Instead of looking at the failures of the state, as is common in political science approaches to Solomon Islands, we draw on case studies in forestry, mining, and customary land dealings on the island of Malaita and on the Weathercoast of Guadalcanal to highlight the kinds of social networks that enable agreements over the use of natural resources. Challenging common assumptions about the division between state and society, we show that leaders in rural regions of Solomon Islands behave like landlords, that brokers from the communities see themselves as actors equalling the state, and that the state performs like a capitalist actor.     

Have we failed our neighbour?

In April 2006, rioting broke out in Honiara, Solomon Islands, following the parliamentary election of Snyder Rini. Occurring almost three years after the commencement of the Australian-led Regional Assistance Mission to Solomon Islands (RAMSI), the riots sparked intense deliberations about the nature of Australia's engagement with Solomon Islands and the success, or otherwise, of RAMSI. Within the context of discussions about state-building in Melanesia, this article seeks to outline challenges to the success of RAMSI. Ultimately, we argue that successful state-building in Melanesia is highly dependent upon awareness of local conditions, rather than simply the application of international best practice. Moreover, we suggest that unless the current approach is modified to accommodate local circumstances—including social and political structures and locally defined needs and desires—the existing growth of anti-RAMSI sentiment will continue to escalate. In conclusion, we offer policy-relevant suggestions aimed at assisting mission stakeholders to improve RAMSI's viability and impact.     

Vanuatu in Australia–China–Taiwan relations

Vanuatu became a major issue in Australia–China–Taiwan relations during Serge Vohor's turbulent prime ministership in 2004. Already engaged in a struggle with Australia over ‘good governance’, Vohor signed an agreement diplomatically recognising Taiwan. Chinese and Australian pressure led to Vohor's ouster, and a diplomatic setback for Taiwan. Although Australia and Taiwan viewed each other as side issues in this episode, with Australia focused on Vohor and Taiwan on China, their interests were directly opposed during the episode. As became evident in the aftermath of the post-election riot in Solomon Islands in April 2006, these divergent positions have had a lasting negative impact on each country's perception of the other. The key events of 2004 are examined here to demonstrate how this episode has affected the wider landscape of Australia–China–Taiwan relations.     

An Alternative Explanation for Alleged Wreckage of the Caravel San Lesmes found at Amanu

Solomon Islander swimmer Alick Wickham is a celebrated figure in Australian, Solomon Islander and international sport history. His iconic status is inextricably linked to the myth that he introduced the crawl stroke, commonly known as freestyle, to Australia and hence the wider world. The focus of this paper is not the mythic qualities of Wickham's contribution to the crawl stroke, but rather how this myth has been enmeshed in a range of discourses. Through the lens of postcolonialism and by focusing on the creation of social memory — in literature, postage stamps and documentaries — Wickham's contribution to the crawl stroke has been represented in three dominant ways: as a racial discourse centring on the social construction of the ‘nimble savage’, as part of Australian nationalism in terms of the nation's contribution to world swimming, and as a discernible dimension in the construction of Solomon Islander identity after independence.     

Land in Kwara'ae and development in Solomon Islands

This paper documents land tenure and the effects of economic development in Kwara'ae on the island of Malaita. It uses local histories to confirm the essential flexibility of a system of cognatic inheritance, based on social and economic values which contradict the more exclusive unilineal emphasis preferred and promoted by government land and development policy in Solomon Islands. In considering the resulting problem of land disputes, the paper questions the value of reforms which undermine the tradition of communal control of natural resources.     

Contemporary Histories of the Conflict in Solomon Islands

Happy Isles in Crisis. The historical causes for a failing state in Solomon Islands 1998–2004. Australian National University, Canberra: Asia Pacific Press 2004. Pp: xi + 265. By Clive Moore . Price A$35 The Manipulation of Custom. From Uprising to Intervention in the Solomon Islands Australian National University, Canberra: Pandanus Books RSPAS 2004. Pp: 262. By Jon Fraenkel . Price: $34.95     

Fellowship and Citizenship as Models of National Community: United Church Women's Fellowship in Ranongga,Solomon Islands

From humble beginnings in the 1960s, the United Church Women's Fellowship (UCWF) is now viewed as one of the most effective organizations on the island of Ranongga (Western Province, Solomon Islands). This essay considers reasons for the success of women's fellowship in Ranongga, focusing on the distinctive position of women in gendered local and translocal forms of social organization. Far from being isolated from the outside world, Ranonggan women have long been engaged in drawing outsiders into local communities. I explore this theme in narratives of Christian conversion and of the beginning of women's fellowship; I also consider the practices of local and national women's fellowship groups that work to constitute unified communities out of diverse groups of people. My discussion of Ranonggan women's fellowship illustrates local dynamics of community‐making that do not map easily on to dominant models of nation‐states and ethnic groups. I ask whether the UCWF provides an alternative model for thinking about larger‐scale political formations, particularly in the Solomons. This question is especially relevant considering the significant contribution that women's Christian organizations have made in efforts to reconstitute a national community in the context of the ongoing political crisis in Solomon Islands.     

Helpem Fren:

In its first three years (2003–06), the Pacific Islands Forum-sponsored and Australian-led Regional Assistance Mission to Solomon Islands (RAMSI) was successful in stopping violence, confiscating weapons and restoring peace. But RAMSI must now tackle difficult questions concerning its role and the underlying challenges of national development in Solomon Islands. Concurrently, relations have deteriorated between Australia and RAMSI on the one hand and, on the other, a new Solomon Islands Government under Manassah Sogavare. This Introduction offers a review and analysis of recent events and ‘opens windows’ onto the five articles and final comment that follow. As indicated by the title of this Special Issue, ‘Tingting baek, lukluk raon: Solomon Islands, History and Predicament’, these papers collectively look back on the past, survey the present, and look forward to the future.     

The End of Regional Assistance Mission to Solomon Islands (2003–17)

The Regional Assistance Mission to Solomon Islands (RAMSI) ended in June 2017 after 14 years. It was an initiative of the Pacific Islands Forum authorized under the Biketawa Declaration of 2000, which enabled a regional response to crises in the region. Between 1998 and 2003, Solomon Islands had undergone a period usually called the ‘tenson’ in Solomons Pijin, or the ‘Tension’ or ‘Ethnic Tension’ in English, when government processes failed and two rival militia groups out of Malaita and Guadalcanal terrorized Honiara and its surrounds. Prime Minister Ulufa‘alu was removed in a de facto coup in 2000. Although all Pacific Islands Forum nations participated, Australia paid 95 per cent of the costs. This was the first time Australia and New Zealand had led a substantial intervention mission beyond their borders that was not under United Nations auspices. The article places Solomon Islands politics and governance issues into a 20-year perspective and examines the success and failures of RAMSI, which was far more adaptable than is usually admitted. The article also considers the appropriateness of the Westminster system to government in Solomon Islands.     

The politics of Antarctic minerals: The Greening of white Australia

On 22 May 1989 the Australian Government announced that it would not sign the Antarctic Minerals Convention that had been concluded in June 1988. Australia had been a strong supporter of the minerals treaty approach to regulating Antarctic mineral development. This case study in Australian foreign policy examines four well known approaches to foreign policy making in order to explain Australia's volte face on the minerals treaty. It is concluded that domestic politics best explains Australia's decision and that students of Australian foreign policy need to pay more attention to the domestic determinants of the policy making process.     

To not reinstate the past:

Abstract

Most interpretations stress a qualitative shift in colonial policy at the end of World War II, reflecting a major reorientation of outlook towards development, welfare and ultimately independence. There are, however, continuities before and after the war that call for a shift of emphasis.

Because the British Solomon Islands Protectorate is conventionally represented as an extreme case of backwardness and severity before the war, it should present the putative contrast sharply. On the contrary, the pre-war administration field staff had aspirations for a more progressive regime, but these were thwarted by the protectorate's poverty and were shelved by the eruption of the war. The war-time destruction prompted administrators to consider afresh the problems of colonial development, coinciding with Colonial Office demands for post-war development submissions. Proposals proved too ambitious for the limited imperial purse, but even the attenuated plans proved unrealistic given the acute shortages of material and human resources.

Thus, while ‘post-war thinking’ began well before the war, the era of ‘post-war development’ could not properly begin until several years after the end of the war.     

‘Add women and stir’: the Regional Assistance Mission to Solomon Islands and Australia's implementation of United Nations Security Council Resolution 1325

With the changing nature of warfare and the increasing awareness of the specific gender dimensions of war and peace, the international legal framework has been expanded to address the particular challenges faced by women in conflict and post-conflict contexts. This process culminated in 2000 with the first United Nations document to explicitly address the role and needs of women in peace processes: United Nations Security Council Resolution (UNSCR) 1325 on women, peace and security. Thirteen years on, this article assesses the extent to which Australia's stated commitment to women, peace and security principles at the level of the international norm has translated into meaningful action on the ground in the Regional Assistance Mission to Solomon Islands (RAMSI). The analysis shows that despite it being an ideal context for a mission informed by UNSCR 1325, and Australia being strongly committed to the resolution's principles and implementation, the mission did not unfold in a manner that fulfilled Australia's obligations under UNSCR 1325. The RAMSI case highlights the difficulty in getting new security issues afforded adequate attention in the traditional security sphere, suggesting that while an overarching policy framework would be beneficial, it may not address all the challenges inherent in implementing resolutions such as UNSCR 1325.     

State Absence and State Formation in Solomon Islands: Reflections on Agency,Scale and Hybridity

This article engages ethnographic research on perceptions of disputation, justice and security in rural Solomon Islands to reflect on issues of agency, power and scale in areas of limited statehood. Set against widespread popular perceptions of state retreat in Solomon Islands, the authors situate their study within the literature which addresses engagements with conflict‐affected and fragile countries and, in particular, literature with an interest in the spaces created by prolonged state absence as potential sites of innovation and transformation. The article examines the role of agency and power at different scales in the highly contested processes of state formation underway in post‐conflict Solomon Islands. Taking issue with the presumed privileging by local actors of non‐state over state forms that runs through much of the hybridity literature, the authors suggest that international ‘state‐building’ interventions, such as that recently experienced in Solomon Islands, require a more nuanced and historically informed understanding of local agency vis‐à‐vis the state in fragile and conflict‐affected settings.     

Community-based Fisheries Management,Tradition and the Challenges of Development in Marovo,Solomon Islands

This study examines traditional fisheries-related resource management through a case in which local communities, from a basis of customary, ‘common property’ control over the sea and its resources, handle a multitude of development issues. Presenting first some important issues relating to people's role in fisheries management and to the ‘common property’ debate, the article then describes a traditional system for management of land and sea resources in a Pacific Islands society; that of Marovo Lagoon, Solomon Islands. Emphasis is given to fisheries resources, with a view to explaining in practical terms how a system of customary marine tenure operates under the wider social, political, economic and ecological circumstances of change arising from development pressures. Against this background, assessments are made of the viability of this traditional fisheries management system under present conditions of state control and of both external and internal pressures for large-scale resource development enterprises.