Since the early 1970s, Australian Governments have been strongly supportive of nuclear non-proliferation under the definitions of the Non-Proliferation Treaty (NPT), signed by the McMahon Government in 1970 and ratified by the incoming Labor Whitlam Government in 1973. Australia’s anti-nuclear position was even strengthened under Liberal-Coalition Prime Minister Malcolm Fraser, as the “green/anti-nuclear” movement was quickly growing in Australia at the time. With the exception of Prime Minister John Howard, who saw a changing Asia-Pacific nuclear balance, subsequent prime ministers Hawke, Keating, Rudd, and Gillard also strongly followed the non-proliferation line.
Paradoxically, every prime minister supported to various degrees, the development of uranium mining and export as an economic driver. The Fraser and later Rudd Governments argued that uranium exports should be used as a means to strengthen non-proliferation by demanding safeguards from customers.
Uranium exports have been controversial, with strong domestic protests over the years, governments trampling over indigenous wills, and deep party rifts within the Labor movement. Yet on the issue on non-proliferation, Australia had always been at the forefront in international forums.
Prior to the 1970s, Australia took a different view towards nuclear non-proliferation. In 1944, Australia supplied uranium ore to the Manhattan Project. Australian physicist Mark Oliphant played a major role in pushing the atomic bomb program in both Britain and the US before the Japanese bombing of Pearl Harbor in 1941.
However after World War II, the US Government reneged on its agreement to share nuclear technology with its allies. Then Australian Prime Minister Robert Menzies, granted Australia’s assistance to Britain in its quest for autonomous nuclear weapons, giving technical assistance and allowing nuclear tests in the Mont Bello Islands, Emu Field and Maralinga, on Australian soil between 1952 and 1963. Australia also participated in the development of the Blue Streak and bloodhound missiles, which were potential nuclear weapon delivery systems with Britain during this era.
The significance of Australian participation, which didn’t go unnoticed by Australian bureaucrats and politicians at the time, was that under section IX.3 of the proposed NPT, Australia would be able to claim nuclear status as it had participated in the production and detonation of nuclear weapons prior to 1st January 1967. Historical reports indicate that the Australian Government’s main motivation at the time, (including US pressure), was to prevent the proliferation of nuclear weapons in the local hemisphere, rather than seeking the abolishment of nuclear weapons.
Bureaucratic support from within the Australian defence and security establishment for a nuclear hedging position was strong at the. Wikileaks publication of diplomatic cables between Australia and the US on Iran’s bid to develop nuclear weapons indicated this. Notable Australian diplomat and former Director-General of the Office of National Assessments, Peter Varghese was reported as saying in his briefings to the United States that Australia didn’t see Iran as a ‘rogue state’ in its development of nuclear weapons as “Tehran’s nuclear program (was) within the paradigm of the laws of difference, noting that Iran’s ability to produce a nuclear weapon may be enough to meet its security objectives”.
Attempts during the 1950s and 1960s were made by a number of defence personnel, high placed public servants, academics, and right wing elements of the Liberal-Country Party to acquire nuclear weapons. Initially purchasing them from either Britain or the United States was advocated. Later developing an independent nuclear deterrent was favoured.
Most of the active proponents for nuclear weapons were defence related personnel. They developed a number of plans to acquire nuclear weapons from the British, or have the United States deploy them on Australian soil. Sir Philip Baxter, who was head of the Australian Atomic Energy Commission (AAEC) at the time, operated a clandestine research program to isolate the isotope U-235 from uranium, the quality needed in the production of nuclear weapons.
Some academics like Professor A. L. Burns of the Australian National University also advocated an Australian nuclear option which was aired by the Australian media at the time, especially in relation to the Chinese testing a nuclear bomb and the belief that Indonesia was also developing nuclear weapons. Pressure groups like the Democratic Labor Party and Returned Soldiers League which were both influential during the 1960s also strongly advocated an Australian nuclear weapon option.
The reluctance of the Australian Government to go ahead with the development of its own nuclear weapons all changed after Prime Minister Menzies retirement, when John Gorton unexpectedly became prime minister after the disappearance of Prime Minister Harold Holt in 1967. John Gorton, an ex-RAAF pilot strongly believed that Australia should have its own independent nuclear deterrent with the Chinese in possession of nuclear weapons in the region. Plans went underway to develop a nuclear facility at Jervis Bay on the South Coast of New South Wales that would house both a nuclear reactor, which could produce weapons grade plutonium, and bomb manufacturing facilities.
Gorton tried to develop an Australian nuclear weapon capability before the NPT was signed. However in March 1971, he was disposed by William McMahon, who cancelled all nuclear weapon development plans. It will always remain a matter of conjecture how much influence the US had in his decision.
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