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The newly signed defence agreement between Australia and Papua New Guinea represents a commonsense outcome and formal acknowledgement between the two countries for the benefit of military and regional stability.
The signing of the Papua New Guinea – Australia Mutual Defence Treaty, also known as the Pukpuk Treaty, officially elevates the defence relationship between Papua New Guinea and Australia to that of an alliance.
The agreement is designed as a legal framework upgrade to an existing Status of Force Agreement signed in 1977 between the two countries and is Australia’s first new alliance in 70 years.
At its core principles, the new agreement includes a mutual defence alliance which recognises that an armed attack on Australia or Papua New Guinea would be a danger to the peace and security of both countries.
“Building on more than 50 years of cooperation and respect, the signing of the Papua New Guinea – Australia Mutual Defence Treaty is a shared historic moment for our two nations,” Prime Minister Anthony Albanese said.
“The treaty reflects the deep trust between Australia and Papua New Guinea across the breadth of our bilateral relationship.
“Papua New Guinea proposed this treaty, and we were honoured to agree.
“Our alliance is built on generations of mutual trust and demonstrates our commitment to ensuring the Pacific remains peaceful, stable and prosperous.
“By continuing to build our security relationships in the region, we safeguard our own security.”
Recruitment quick-fix
Importantly, the treaty also expands and modernises the current defence relationship to promote a shared ambition to establish a recruitment pathway for Papua New Guinea citizens into the Australian Defence Force.
It’s understood that this could mean up to 10,000 Papua New Guineans could service with the Australian Defence Force under dual arrangements.
Select PNG military leadership have previously undertaken further training in Australia during limited placements; however, this new agreement is envisioned to completely expand the practice.
Certainly this is a timely initiative considering that the Australian Defence Force has previously struggled to hit its recruitment targets and the new treaty agreement could act as a quick-fix for 10,000 troops that are increasingly hard to pull from the Australian public. It is currently around 3,700 personnel short of standard capability, according to recent records.
In August, Defence announced that more than 75,000 Australians had applied to join the Australian Defence Force in the last year, while 7,000 enlistments were processed in FY2024–25. In addition, The Australian government also announced intentions to halve the average delay of 268 days for final enlistment decisions.
Former Chief of the Defence Force General Angus Campbell, speaking at the Senate estimates meeting last year, said there have been considerable efforts made to remediate recruiting.
“Recruiting performance is highly correlated with unemployment: low unemployment, low recruiting and vice versa … Nevertheless, considerable effort and innovation continue to inform changes to our recruiting system, focused in four areas of activity,” he said.
“Firstly, widening the aperture of eligibility to increase the number of potential applicants who might wish to join the ADF, including through consideration of non-citizen enlistment on a pathway to citizenship.
“Secondly, increasing the capacity of the recruiting system to manage a greater volume of applicants.
“Thirdly, improving recruiting processes so as to accelerate and thereby shorten the time taken to recruit an applicant.
“And finally, encouraging our people to remain in service through targeted retention initiatives.
“Nevertheless, a considerable effort continues to be required to remediate our recruiting and retention challenges.”
Foregone conclusion
Militarily, the treaty could be considered to have more in common with a formality. It advocates for strengthened defence cooperation through enhanced capability, interoperability and integration; however, the Papua New Guinea Defence Force (PNGDF) and ADF were already heavily involved through Exercise Talisman Sabre earlier this year, ADF peacekeeping deployments to PNG and various infrastructure projects.
As an example, Australia had already fully committed to the opening of His Majesty’s Papua New Guinea Naval Base Tarangau, also known as Lombrum Naval Base, on Manus Island earlier this year. The base was opened following completion of an extensive redevelopment under a joint initiative by Papua New Guinea and Australia.
Such a base provides PNG with a sovereign capability to protect its borders and maritime resources. The naval base is owned by and for the benefit of the Papua New Guinea Defence Force.
PNG Minister for National Defence and Emergency Services, Dr Billy M Joseph, speaking about the defence treaty, said the signing was a historic day for the nation’s history and for the next 50 years.
“This treaty respects our laws and sovereignty; protects our country against all enemies, conventional and nonconventional; builds our own PNGDF capabilities and capacities; builds mutual trust with our closest neighbour; now ally,” he said.
“(The treaty opens) up massive benefits. including migration and commercial opportunities, and provides socio economic benefits through direct defence investments.
“(It secures) pathways for young PNGeans to join the ADF and become Australian citizens and live on Australian pensions.”
PRC paranoia
Importantly, the treaty also attempts to address Australian political paranoia surrounding the growing influence of the People’s Republic of China (PRC) among smaller island nations in the Indo-Pacific.
The treaty advocates for ensuring any activities, agreements or arrangements with third parties not to compromise the ability of either Australia or PNG to implement the treaty. In addition, it reaffirms both countries’ absolute respect for their neighbours’ sovereignty, independence and territorial integrity.
I would argue this kind of agreement is the first and not the last, as Australia goes about establishing treaties as a way forward to secure the crucial long-term allegiance of allies in the Indo-Pacific.
Previous efforts made by Australia utilising humanitarian and monetary aid to smaller island nations have had mixed results, with several Indo-Pacific countries instead committing to the PRC-led One-China territorial policy.
It is well-understood that attempting to fight the PRC for influence in a monetary, investment and infrastructure aid battle would be fairly unfavourable.
A contrasting alliance-building strategy has previously been speculated by former PNG military chief Major-General Jerry Singirok, speaking to local media Pacific Waves PNG, after the signing of the treaty.
“It’s a very, very cunning approach to use Australia as a proxy to the USA, which has global interests in relation to a threat from the north, that being China … You don’t need to be a rocket scientist to know what the treaty is all about,” he said.
“It’s all about seeking alliance with the smaller Pacific nations, PNG offers a strategic geographical location, it’s a midpoint between Australia and the seventh fleet in Hawaii.”
Australian special envoy for Defence, Veterans Affairs and Northern Australia, Luke Gosling, alluded to the same “responsive alliance scenario” in the Indo-Pacific.
“This mutual defence treaty strengthens our ability to respond together to regional challenges, deepens our security cooperation and reaffirms that our futures are intertwined,” he said following the treaty signing.
“From standing side by side in World War II to building a stable and prosperous Pacific today; Australia and PNG’s bond has always been about mateship, trust and shared responsibility.
“Stronger together.”
