The Australian Federal Police as an International Actor: Diplomacy by Default

Abstract

Under traditional International relations theory, diplomacy relates to relations between sovereign nations. There have been two broad schools of thought on the dynamics behind these relations: the ‘realist’ school, which tends to consider power and conflict as the major lens through which such should be viewed, and the ‘idealist’ school which tended to focus on cooperation rather than conflict. Between these two extreme views, a third school, the English School of International Relations, also known as the British Institutionalists, provides somewhat of a compromise view, acknowledging the merit of both realism and idealism, by accepting that power remains an important element but also advocating that acceptance of common norms and institutions plays a significant role in determining relations, or the International Society between states. In 1977 Hedley Bull offered the following definition of International Society when he stated that International Society … exists when a group of states, conscious of certain common interests and common values, form a society in the sense that they conceive themselves to be bound by a common set of rules in their relations with one another, and share in the working of common institutions. This thesis is not specifically related to International Relations theory, which deals with inter-state relations. Whilst inter-state conflict and international relations remain important drivers of foreign and military policy, there is a growing recognition that it is intra-state conflict avoidance and post-conflict reconstruction which increasingly mitigate the risk to the safety, security, peace and prosperity of nations and regions. Much of this disquiet has its roots in maladministration, poor governance and a lack of justice. These are areas in which traditional approaches to foreign intervention via trade, aid and military force have limited effect, and in which effective consent-based policing and justice can play a significant part in building sustainable and peaceful outcomes. This thesis discusses the role played by a non-traditional actor in the international arena, the police, specifically the Australian Federal Police (AFP), in addressing some of these intra-state justice and governance issues in a constantly changing, unstable and unpredictable global and regional environment. The thesis is intended to outline the diversity and versatility of AFP activities and to contextualise them in terms of non-traditional New Diplomacy. The aspects of diplomacy of most significance relate to diplomatic qualities or traits of the individual police officer, diplomatic behaviours of these members, and diplomatic outcomes of their activities. As such the thesis does not relate directly to International Relations theory or to International Society, as espoused by Hedley Bull. There are, however, some interesting intersections which are worthy of note. There are some critics of the English School who argue that it is Eurocentric. Today’s International Relations originated in the 19th century when a number of European nations formed a club of ‘civilised’ states bound by international law, which expanded around the globe to involve all nations. This concept has been used to explain the lack of imperative for a supra-state or world government to maintain orderly inter-state relations, as the force which binds them is consent to agree to common interest and values within a global rules-based order. In terms of policing on an international scale, global government is simply too unwieldy. There are a number of global, consent-based institutions such as the United Nations and INTERPOL, which fulfil this requirement to a certain extent. The AFP has had long involvement with both of these global institutions, as well as several regional policing institutions. In terms of conflict-oriented ‘realism’ and cooperative ‘idealism’, policing walks both sides of the street. As this thesis will discuss, the whole posture of liberal-democratic policing is conflict prevention, and the means by which such police carry out their daily duties is by cooperation. This is the context in which replication or expansion of International Society should be considered in relation to the activities of the AFP internationally and regionally. This thesis is by definition Eurocentric, or more specifically Anglo-centric, due to the historical fact that the AFP draws all of its principles from Australia’s British antecedents and adheres to a largely ‘western’ or European notion of human rights values. This thesis explores the role of the AFP as an international actor. The thesis asserts that effective international policing has never been more important in linking the international with the domestic. The way the AFP operates in a landscape where traditional policing paradigms are rapidly changing, due to ever-changing, political, diplomatic, and transnational issues, is examined in the context of the ‘globalisation paradox’, of both needing and fearing, global governance simultaneously, as raised by Anne-Marie Slaughter in her book, A New World Order. The way the organisation has evolved from its origins, based on Western liberal-democratic policing values, approaches and skills, to an organisation involved in international policing and diplomacy at the highest levels, while still retaining its liberal-democratic credentials is explained. It is argued that in the contemporary international and Australian context, the AFP is an effective and experienced agency. It is further argued that this is a distinctive form of new diplomacy, appropriate to an increasingly globalised world. The AFP has established an extensive international network in more than 30 countries, has been a consistent contributor to national security, has participated in numerous international deployments over half a century, and continues to play a meaningful role in Australian foreign policy efforts. The thesis provides evidence to show how AFP officers exhibit diplomatic qualities similar to those listed by Daryl Copeland in his book Guerrilla Diplomacy , as well as those mentioned by Christopher Meyer in his book Getting Our Way. In all of its international endeavours, AFP members have demonstrated, in varying degrees, the three enduring elements of diplomacy as outlined by Jonsson and Hall in their book The Essence of Diplomacy. They have communicated and negotiated in some very challenging circumstances and they are representatives of the Australian Government and its humanitarian values. The AFP, as part of broader efforts with institutions such as the UN, have not so much sought a replication of international society, as mentioned by Jonsson and Hall, but have provided a supplement to international society, by effective networking, thereby addressing in large part, Slaughter’s ‘globalisation paradox’. It is not so much universal police homogeneity which is sought by such endeavours, as a balance between it, and the heterogeneity which is inevitably associated with cultures transitioning from custom and tradition, to 21st century expectations of nationhood. The way the AFP’s transnational operations, activities, and deployments, not only serve perceived national interests, but result in more effective regional governance, is identified as ‘diplomacy by default’, because formal Track I diplomacy is not their primary objective. It will be demonstrated how international diplomacy, while generally conducted with perceived national interests as its primary goal, has a secondary benefit, good international citizenship, and that the AFP has a credible history of serving both. It is argued that the AFP is well positioned within government, law and intelligence and security circles, in the Australian and international contexts, through an extensive liaison officer network in South-East Asia, the South-West Pacific as well as more broadly. It will be demonstrated how the AFP has shown itself as capable and ready to respond effectively to extant and emerging challenges, and as such, has earned a place in foreign policy discussions and considerations at the highest diplomatic levels, including the UN. The AFP provides a distinctive and direct link between the global, the regional, and the domestic, which matches the rapidly globalised community it represents. The thesis confirms that international policing acts as a distinctive aspect of Australian ‘firm’ diplomacy, and supplements the more traditional elements of international engagement, between the ‘soft’ or traditional diplomacy, and the ‘hard’ form of military intervention. The evidence provided shows how it is by this form of whole-of-government activity, inclusive of policing, that stability and security are enhanced, and peace and prosperity are encouraged. Overall, the thesis affirms the AFP as a transnational agency, which is well placed to link the international with the domestic, the contextual with the aspirational, and the theoretical with the practical, in a period of strategic uncertainty in international affairs at the dawn of the Third Millennium.