Security Council an important opportunity

Australia has been elected to a seat in the United Nations Security Council (UNSC) for 2013-2014. Our victory was remarkable because we comfortably defeated two European candidates, Luxembourg and Finland, both of whom could automatically count on solid European support. While voting is secret, it is likely that our support was broadly-based but importantly included countries in our region.

Our victory was also remarkable for the way in which our campaign for election to the Council was characterised by an unusual level of division within the Australian political elite and the mix of enthusiasm and cynicism that greeted the result. This is disappointing because the election to the 15-member Council was a significant recognition by other countries of our standing as a responsible and constructive member of the United Nations (UN). It is also an important opportunity for Australia to make a positive contribution to major issues facing the international community.

A challenging agenda

The range of issues demanding Security Council attention is immense. A review of the November Security Council Report lists issues as diverse as Somalia, the Congo, Western Sahara, Lebanon, Iraq, Bosnia, Kosovo, North Korea and Timor-Leste as requiring action. In addition, more general questions of 'protection of civilians in conflict', 'women, peace and security', the 'rule of law' and climate change are subject to Council attention.

Australia enters its new term with a strong record in key areas in which the UN is engaged, such as peace-keeping and foreign aid. We are known to support an open trading regime and our economic management record and position in the Asia-Pacific region give us a valued perspective on many issues.

As a member of the UNSC, Australia will be asked to take positions on issues even though they may not concern us directly. These issues are significant in terms of international peace and security and will be important to countries that supported our candidacy. We are, for example, not directly involved in the concerns of the Andean countries as they struggle to resolve issues of terrorism and drugs. As a Council member, however, Australia has standing in debates on those issues. And we will be heard, provided we contribute wisely and reasonably.

Security Council reform

A particularly challenging issue will be that of Security Council reform. There is a widespread view that the Council has been failing in its prime responsibility - to maintain international peace and security. Rwanda, Iraq and Syria are often cited as evidence of this. The blame for this situation lies in part in the structure of the Council itself. The five 'permanent members' – Russia, France, Britain, China and the United States – are guaranteed a place in the Council and can protect their interests through resort to the veto power. The Council no longer reflects the changed balance of power in the world but, by virtue of their special status, these countries have been able to prevent action on issues that do not agree with their national interests.

Russia, China and the United States are particularly guilty in this respect. Instead of acting in the 'common good', these countries have sought to frustrate UN action on issues such as illegal Israeli settlements in the Occupied Palestinian Territories, the civil war in Syria and climate change.

This is a potential challenge for Australia because the United States is one of the most determined opponents of reform of the UN Charter and the Security Council. The US has also taken positions on a number of issues in defiance of the clear will of the international community.

We are, however, on record as strongly supporting major reform of the Security Council. According to the Department of Foreign Affairs and Trade website:

"Australia wants to ensure that the UN delivers on the ground for the people, communities and nations that need it most. Australia played an important role in drafting the articles of the UN Charter that deal with the Security Council. We argued against allowing permanent members a veto power. Australia supports reform of the Security Council and its working methods to better reflect the modern world and ensure it is accessible to small and middle-sized countries."

A number of non-permanent members of the Council – Guatemala, Togo for example – are likely to pursue reform of the Security Council across a wide front. Australian support for initiatives in this area is likely to be pursued by these countries.

Australia and the United States

Australia can be expected to be sympathetic to American positions on many issues that will come before the Council over the next two years. This approach was hinted at by Foreign Minister Carr after our Council election. However, it would not be appropriate for Australia simply to follow the US lead on everything. The countries that supported us, especially those in our own region, will be expecting us to be an independent voice but one that is sensitive to their concerns. It is important that we not let them down.

The challenge for Australia will be to act independently on issues which we have previously been able to ignore or to use as demonstration of our loyalty to the United States. Our repeated military involvement in the Middle East, for example, can only make sense in the context of our relations with the United States, a point made by former Prime Minister Howard before we joined the American invasion of Iraq. A review of the White Paper, "Australia in the Asian Century" makes clear that our priorities lie in Asia and that this is where we have traditionally focused our main energies. The Council's agenda will not conform to the White Paper.

Domestic support for our term on the Council will be important because many 'non-core' issues have constituencies in Australia. There are, for example, Australians of Latin American descent who care deeply about developments in that part of the world. The Government will need to be responsive to the concerns of those Australians.

Domestic capacity

A major challenge for the Government will be the level of expertise it is capable of bringing to issues that will cover the entire international agenda. For over 20 years the Department of Foreign Affairs and Trade has suffered personnel and funding cuts. The scarce remaining resources have been heavily focused on the Government's consular obligations. Together these actions have seriously weakened the capacity of the Department to provide meaningful policy research and guidance. In anticipation of the election to the Council, the Government has expanded the number of people working on UN issues in the Department but it remains to be seen whether it is able to fulfil this demanding role while meeting its other responsibilities.

In promoting Australia's case for election to the Security Council, Prime Minister Gillard stressed our record as a major donor of aid and highlighted our contribution to peacekeeping activities. She emphasised Australia's commitment to the "high ideals" of the UN and to achieving change. Carefully managed and supported by the Australian population, our term on the Council will fulfil much of Ms Gillard's vision.