A Critical Review: The Papua New Guinea Defense White Paper (2013)

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By Zola Yinanguie 


Introduction

The Defence White Paper (DWP) is a comprehensive document that outlines Papua New Guinea’s strategic defence policies and objectives, offering direction for the growth of the PNG Defence Organization (PNGDO) to achieve our national security goals. The DWP 2013 aligns closely with the National Security Policy (NSP). The PNGDO’s main operation focus is based on four tasks: Defend Papua New Guinea, Civil Emergency Assistance, National Building, and International Obligations. In this policy review, I intend to provide a mixed response on the DWP 2013.

Summary

The DWP is well-structured and includes acknowledgements by prominent figures such as former Prime Minister Peter O’Neil, former Minister of Defence Dr. Fabian Pok, former Chief Secretary Manasupe Zurenoc, and supporting statements by former Commander of PNGDF Brigadier General Francis Agwi and former Secretary for Defence John Sini Porti.

Developed through wide consultation and guided by the National Security Policy Technical Working Group (NSPTWG), the policy links PNG Vision 2050, development and security, the National Security Policy, and PNG’s strategic defence interests. It emphasizes defending PNG’s sovereignty and the integrity of its land, air, and maritime borders, and outlines the defence force’s roles in engineering, health, and communication.

Additionally, the policy seeks to increase PNG’s participation in bilateral and multilateral forums and UN peacekeeping efforts. By focusing on these areas, the Defence White Paper aims to ensure a secure and prosperous future for Papua New Guinea.

Critique

In 2017, an article published on online platform stated that PNG’s DWP has terribly failed to achieve any of its objectives. While the DWP outlines PNG’s strategic defence policies and objectives, there are several strengths and weaknesses that have been identified and will be evaluated in this section.

The DWP outlines numerous tasks and goals, however, its implementation has faced significant challenges. It was released in 2013, by 2017, almost 138 of the 258 tasks identified in the White Paper were implemented, defence spending remained at 2% of the government expenditure due to economic constraints (Kaiku & Boie, 2023). Another example, in 2017, the PNGDF did not reach its target of 5000 soldiers as stated in the DWO, as the PNGDF were financially constrained, this did not allow them the capacity to cater for a larger number of intakes (Teme, 2017). The DWP does not fully address economic limitations, which could hinder achieving its targets. While it provides strategic guidance, it needs a more detailed implementation roadmap, including timeliness, resource allocation, and clear responsibilities.

Additionally, an effective monitoring and evaluation framework is necessary to track progress and make adjustments, ensuring objectives are met and allowing for timely interventions. In an article titled Monitoring and Evaluation in the Public Sector, it states that monitoring and evaluation is essential in the public sector as it enables accountability, evidence-based decision-making, learning and improvement, transparency and communication, and effective resource allocation. The PNGDF has experienced several budget cuts in the middle of the fiscal year because a proper plan of execution and accountability to funds allocated was not provided. Hence, several reforms have been undertaken in the past two years to help drive accountability and transparency in finance and administration. The PNGDF will introduce the IMFS System in the department’s finances, and a project steering committee will oversee all projects whilst working alongside the Australian Defence Force (The National, 2019).

Institutions of national security have been ineffective due to the lack of effective coordination and implementation since independence (National Security Policy, 2013). In an interview with PNG News, PNGDF Commander Major General Mark Gonia, noted that the delivery of a new defence white paper did not occur as planned, citing a lack of commitment from the government and organizational challenges within the PNGDF. He emphasized his intentions to reset the force, focusing on five lines of effort, namely, people, organizational reform, operational proficiency, infrastructure and nation building (PNG News Update, 2023).

The DWP emphasizes the role of the defence force in various capacities but could further elaborate on the strategies for human resource development, including training, retaining service members, and capacity building. The five lines of effort would involve investing in the growth and development of PNGDF personnel, implementing organizational reforms to improve efficiency and effectiveness, enhancing operational proficiency through training and equipment modernization, upgrading infrastructure to support PNGDF operations, and contributing to nation-building efforts in Papua New Guinea.

A politicized military may prioritize political agendas over security concerns, leading to corruption and the PNGDF’s ability to respond effectively to threats. A recent article published by The National online, covered the appointment of the Chief of PNGDF, Rear Admiral Philip Polyewara, and Deputy Chief of Defence, Brigadier General Larry Opa. Defence Minister Dr. Billy Joseph stated that the appointments were made to stabilize PNGDF leadership and motivate progress work on the DWP and review the Defence Act (Poivi, 2024). As describe in the same article, the Defence Commanders were selected upon merit, hence, their appointment and implementation of policies should ensure the stability and encourage growth within the PNGDO.

Recommendations

1. Provide a detailed series of steps to be carried out or implemented, in areas of timeliness, resource allocation and clear responsibilities or roles of parties involved. 

2. An effective monitoring and evaluation framework is necessary to track progress and make adjustments, ensuring objectives are met and allowing for timely response. 

3. Include objectives highlighted in the five lines of effort in an updated policy. 

Conclusion

In conclusion, while the DWP sets a strategic vision for PNG’s defence, its success centers on addressing economic constraints, providing a detailed implementation roadmap, and establishing a strong monitoring and evaluation framework to ensure effective execution and adaptation to emerging challenges. Additionally, fostering strong leadership and organizational commitment is crucial for achieving the outlined objectives.


References

Defence White Paper, Papua New Guinea. (2013). Defence White Paper 2013. Port Moresby: Government of Papua New Guinea.


Kaiku, P. & Boie, F.H. (2023, December 22). Why did ONG sign a Defence Cooperation Agreement with the US?. The Interpreter. The Lowy Institute. https://www.lowyinstitute.org/the-interpreter/why-did-png-sign-defence-cooperation-agreement-us

 

National Security Policy, Papua New Guinea. (2013). National Security Policy 2013. Port Moresby: Government of Papua New Guinea.

 

Post Courier. (2017, December 13). PNG’s embarrassing failed Defence White Paper. https://www.postcourier.com.pg/pngs-embarrassing-failed-defence-white-paper/

 

Eval Community. (n.d.). Monitoring and evaluation in the public sector: Key components, principles and examples.
Monitoring and Evaluation in the Public Sector: Key Components, Principles and Examples - EvalCommunity EvalCommunity

 

Poivi, A. (2024, June 14). PNGDF chief notes issues. The National. https://www.thenational.com.pg/pngdf-chief-notes-issues/

 

Teme, K. (2017, June 27). PNGDF unable to meet target. Post Courier. https://www.postcourier.com.pg/pngdf-unable-to-meet-target/

 

The National. (2019, January 16). Accountability key priority for PNGDF. The National. https://www.thenational.com.pg/accountability-key-priority-for-pngdf/

Comments

  1. Joelson Maodina AnereApril 25, 2025 at 10:39 PM

    Great article but the recommendations although three or four could have been elaborated upon or deepened. I believe that the PNGDF White Paper of 2013 should have included a Monitoring and Evaluation Framework. The Department of National Planning & Monitoring could have assisted in providing a DNPM Monitoring & Evaluation Framework that should be closely aligned to the PNG National Responsibility Act of 2016. The Corporate Service & Compliance Division of the PNG Department of National Planning & Monitoring particularly its Project Audit, Internal Audit, Social Audit inclusive of Gender Audit Team would have been able to assist the PNGDF White Paper 2013 Drifting Committee prior to the Finalizing and Launching of the PNGDF White Paper of 2013.

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