Timing Is Everything: The Politics and Processes of New Zealand Defence Acquisition Decision Making (Strategic and Defence Studies Centre Canberra Papers on Strategy and Defence, 173)

216 Pages·2009·0.84 MB·English

by  Peter Greener

TIMING IS EVERYTHING
The Politics and Processes of New Zealand
Defence Acquisition Decision Making

TIMING IS EVERYTHING
The Politics and Processes of New Zealand
Defence Acquisition Decision Making
PETER GREENER
Published by ANU E Press
The Australian National University
Canberra ACT 0200, Australia
Email: [email protected]
This title is also available online at: http://epress.anu.edu.au/timing_citation.html
National Library of Australia
Cataloguing-in-Publication entry
Author: Greener, Peter.
Title: Timing is everything : the politics and processes of New
Zealand defence acquisition decision making / Peter Greener.
ISBN: 9781921536649 (pbk.) 9781921536656 (pdf.)
Notes: Includes index.
Bibliography.
Subjects: New Zealand. Ministry of Defence--Procurement.
New Zealand. Defence Force--Procurement.
Defense contracts--New Zealand.
Military supplies.
Government purchasing--New Zealand.
New Zealand--Armed Forces--Procurement.
Dewey Number: 355.62120993

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Strategic and Defence Studies Centre Publications Program Advisory Review Panel: Emeritus
Professor Paul Dibb; Professor Desmond Ball; Professor David Horner; Professor Hugh White;
Professor William Tow; Professor Anthony Milner; Professor Virginia Hooker; Dr Coral Bell;
Dr Pauline Kerr
Strategic and Defence Studies Centre Publications Program Editorial Board: Professor Hugh
White; Dr Brendan Taylor; Dr Christian Enemark; Miss Meredith Thatcher (series editor)
Cover design by ANU E Press
Printed by University Printing Services, ANU
This edition © 2009 ANU E Press
Contents
Abstract vii
About the Author ix
Acknowledgements xi
Acronyms and Abbreviations xiii
List of Figures and Tables xvii
Foreword by Gerald Hensley xix
1. Introduction—The Policy Background and the Policy Framework 1
2. The ANZACS, Part 1—The Frigate that wasn’t a Frigate 23
3. Oranges and Lemons—HMNZS Charles Upham 53
4. ‘No, Minister….’—The ANZAC Frigates, Part II 77
5. ‘The Deal of the Century’—The F-16s 89
6. ‘I see no submarines’—Upgrading the Orions 109
7. Plotting and Sedition, or Necessary Acquisition? The LAV IIIs 127
8. Politics and Processes: Reflections on the Characteristics of the 151
Decision-Making Process
Appendix 1: Sole, Prime and Shared Responsibilities 157
Appendix 2: ANZAC Ship Baseline Characteristics 159
Appendix 3: User Requirement 161
Appendix 4: Recommendations of the Final Report of the Air Combat 163
Capability Study—October 1998
Bibliography 165
Index 185
v

Abstract
The spectre of block obsolescence of major weapons platforms loomed throughout
the 1980s, facing successive governments with significant challenges as they
worked to make sustainable decisions on replacement or upgraded equipment
for the New Zealand Defence Force.
This book identifies the critical factors that shaped and influenced defence
acquisition decision-making processes from the election of the Fourth Labour
Government in 1984 and the subsequent ANZUS crisis, through to the
11 September 2001 terrorist attacks on the United States and the following ‘war
on terror’. It explores and analyses decision-making processes in relation to six
acquisition decisions which have been made over a 20-year period. These are
the decisions on the ANZAC frigates; the military sealift ship HMNZS Charles
Upham; the second and third decisions on the ANZACs; the lease of the F-16
strike aircraft; the upgrading of the P-3C Orion maritime patrol aircraft; and the
purchase of light armoured vehicles for the Army—the LAV IIIs.
Whilst many factors are brought to bear, this book outlines how it is that
New Zealand’s own view of the world, external relationships, politics and political
influence, and the timing of decisions are amongst the most significant elements
that impact on the decision-making process, whilst individual actors play a
significant part in shaping the process. Although there has been a great deal of
publicity in recent years about rivalry between the Services and the place of
bureaucratic politics, this book argues that nonetheless officials continued to
work with rigour over time to provide the best judgement and advice possible
to Ministers. Three out of six of the case studies which have been analysed—the
ANZAC frigates, the upgrade of the P-3 Orions and the LAV III—have been
implemented or are in the process of successful implementation. In each case,
officials worked to ensure that they provided the Government of the day with
the most appropriate advice upon which to base decisions, although that advice
has not always been popular. Each case study demonstrates key aspects of the
decision-making process, providing specific insights into the way defence
decisions are made.
vii

About the Author
Peter Greener is Senior Fellow at the Command and Staff College, New Zealand
Defence Force, Trentham, Wellington. Professionally qualified as a
psychotherapist, he has a Master of Public Policy from Victoria University of
Wellington, and a PhD in Politics from the University of Auckland. Dr Greener
joined the New Zealand Defence Force in 2008, having previously been Head of
School, School of Public Health & Psychosocial Studies at the Auckland
University of Technology where he had been a senior staff member since 1997.
Prior to joining AUT he had been Director of the Auckland Family Counselling
and Psychotherapy Centre for some 12 years. Dr Greener has been a Visiting
Fellow at the University of Bradford, and Fellow of the Asia Pacific College of
Security Studies, Honolulu. From 1995–99 he was Chair of the Auckland Branch
of the New Zealand Institute of International Affairs.
Dr Greener’s research interests include the aetiology, management and
resolution of conflict; post conflict development; and the politics of defence
decision-making. He brings to these interests the perspective of his many years
experience as a psychoanalytic psychotherapist. Dr Greener has edited and
contributed to a number of books including Turning the tide—A New Approach
to Conflict Resolution (2001); Push for Peace (2005); Legacy of Armistice—why
Afghanistan? (2006); The Balkan Question—is there an answer in sight? (2007);
and “very, very, very good friends”? New Zealand United States Relationships
(2008). He was also a contributing author to The No-Nonsense Guide to Conflict
and Peace (2005 and 2006).
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