Official AUKUS documents outline timeline of New Zealand's understanding and position on Pillar Two

A series of exchanges about the AUKUS security pact, from New Zealand and Australian defence and Foreign Affairs, has been revealed in newly released documents.

The previously undisclosed Cabinet papers were made public for the first time on Friday, and outline a timeline of conversations between the Defence and Foreign Affairs counterparts of the Australian and New Zealand governments' regarding AUKUS Pillar Two.

Pillar Two of the security partnership between Australia, the UK and the US focuses on developing and sharing military technology between the group, including drones and hypersonics.

• Read more: Possible AUKUS membership: NZ working through what it can bring to the alliance

These Cabinet papers are from the period of the previous Labour government and have been released after the Minister for Foreign Affairs Winston Peters wrote to former Prime Minister Chris Hipkins asking to release the Cabinet and MFAT papers relating to AUKUS Two. The Cabinet Office then collated the documents and asked for clearance from the office of the now-Labour leader.

In recent months, former Labour Prime Minister Helen Clark and National Leader Don Brash have been outspoken in their belief the coalition government has moved closer to the US and the AUKUS pact.

Minister of Foreign Affairs Winston Peters has responded to those criticisms by outlining that it was Labour who initiated the conversations around New Zealand's involvement.

The documents specify that New Zealand's "existing approach to AUKUS, including our key messages, was developed immediately after the September 2021 announcement" - something Peters has previously mentioned.

Labour's foreign affairs spokesperson David Parker has called the "document dump" a "shallow attempt" to say "Labour started this."

"The government continues its pretence that its promotion of AUKUS Pillar 2 is what Labour did previously, which is just not correct.

"The record shows Labour leader Chris Hipkins said his preference was for some other arrangement going into the 2023 election.

"The government has been so stung by the opposition from left and right to its desire to sign up to AUKUS Pillar 2, it has resorted to releasing old briefing papers to try and argue it was simply continuing Labour policy."

It was in September 2021 when Britain, the US and Australia announced the military technology partnership.

At the time, then-Prime Minister Jacinda Ardern stated New Zealand was not approached to be involved, and these documents show she was briefed only the night before by then- Australian Prime Minister Scott Morrison about "a major security announcement to come".

The newly revealed documents include a range of advice and recommendations from the period of March 2023, triggered by the then- upcoming in-person meeting that month of the three AUKUS political leaders, which outlined the next steps for the partnership (the next steps being Australia's acquisition of nuclear-powered submarines, and how Australia would transition from its current fleet).

Read more:

• Australia's AUKUS nuclear submarine programme announced, in 2023
• AUKUS participation talks highlight New Zealand's nuclear free status

The documents specify that Australian officials "have arranged to brief New Zealand in advance of these announcements." Further, they note:

• There has been growing momentum on Pillar Two of AUKUS
• The AUKUS partners have indicated to New Zealand that there is in-principle agreement that there will be some degree of opening up of Pillar Two to other key partners
• New Zealand's existing approach to AUKUS was determined by ministers based on advice from officials in October 2021
• Eighteen months on, we know considerably more detail about AUKUS
• Officials consider it timely to update New Zealand's key messages on AUKUS

That is, Ministry of Defence officials propose "updating New Zealand's approach," including "re-calibrating our key messages," which would build on and expand New Zealand's existing core messages."

The general talking points around AUKUS had included that New Zealand has close ties with AUKUS members, that New Zealand welcomes "security architecture that contributes to regional security and stability, and reflects the interests of the countries of the region", and New Zealand will cooperate with AUKUS members on "how we can cooperate to mutual benefit in such areas."

The updated key messages are outlined, and include new mentions of New Zealand's Defence Assessment from 2021, and the upcoming Defence Policy Review, saying that New Zealand understands the "strategic drivers for AUKUS."

The new messaging also notes long-standing engagements between New Zealand and Australia, the US and the UK on "military capability and interoperability issues, including areas which feature in AUKUS - such as cyber."

In relation to whether New Zealand, if asked, would join any non-nuclear aspects of AUKUS, it states that is a future decision for ministers, "taking account of any invitation on the part of the AUKUS partners and an assessment of our national interests."

On 9 March 2023, then-Foreign Minister Nanaia Mahuta and then-Defence Minister Andrew Little spoke to their Australian counterparts. It states the talking points for the meeting, including that New Zealand's "long-standing nuclear free policy is unchanged" and that "we are open to continuing to explore non-nuclear cooperation under Pillar Two of AUKUS."

Another briefing for a call with the UK's then-Foreign Secretary James Cleverly on 13 March last year also states, "our long-standing nuclear free policy is unchanged. We are interested, however, in potential cooperation on non-nuclear elements under Pillar Two of AUKUS."

A document outlining New Zealand's Positioning on AUKUS noted that as of 29 March, officials had not received any direct feedback from Australian counterparts about how they viewed New Zealand's response to the Leaders' announcement in March. However, "officials are aware informally" that New Zealand's response "has been viewed in Canberra as underwhelming."

From a document dated 12 April, a key point mentioned New Zealand is "interested in discussing with the AUKUS partners opportunities for cooperation on the non-nuclear aspects under Pillar Two of AUKUS."

A background document then specifies that ministers have confirmed to AUKUS counterparts New Zealand's interest "in engaging on possible opportunities under Pillar Two", and notes that "our interest has also been confirmed publicly by ministers."

Another document, in reference to New Zealand's approach to Pillar Two, states that it presents "significant capability opportunities for New Zealand, as well as interoperability implications for how we work with our key security partners."

There is a redaction, but a second bullet point states: "This will ensure we have sufficient visibility, and to inform consideration of what potential participation in AUKUS Pillar Two could look like and the key benefits, risks and implications."

The same document outlines "contingency media lines" on topics that may be raised by media, including whether New Zealand will join any of the non-nuclear aspects of AUKUS. The responses provided state: Whether New Zealand potentially engages with non-nuclear aspects of AUKUS would be a future decision for ministers, taking account of any invitation by the AUKUS partners and an assessment of our national interests. New Zealand is a Pacific nation. Reflecting our region's legacy of nuclear testing, we remain committed to nuclear disarmament and non-proliferation.

There are also prepared media responses about whether New Zealand is concerned about an increased presence of US and UK nuclear submarines in the region.

The responses provided include:

• It's important to distinguish between nuclear powered submarines and nuclear armed submarines
• New Zealand's views on nuclear weapons are well known and we continue to advocate for their total elimination.
• We acknowledge that nuclear powered submarines have been present in the wider region for decades. They are not permitted to enter New Zealand's internal waters pursuant to the New Zealand Nuclear Free Zone, Disarmament, and Arms Control Act 1987. This will not change.

A document, with no date, but specified as notes for a trip for the Foreign Affairs Minister to Jakarta, where Nanaia Mahuta travelled in mid July 2023, provides a bit more detail around Pillar Two:

Pillar Two of AUKUS engages a number of national interests for Aotearoa New Zealand, including potentially significant defence capability opportunities, and military and intelligence interoperability implications, as our key security partners develop and adopt advanced technologies and capabilities. Aotearoa New Zealand has indicated to the AUKUS partners (and publicly) that we are open to conversations about what AUKUS Pillar Two might offer/mean for Aotearoa New Zealand, on a no commitments basis.

A document, dated 20 July, notes potential responses if AUKUS is raised during the visit by US Secretary of State Antony Blinken between 26 and 27 of July 2023.

• Emphasise that we understand the strategic drivers for AUKUS, given the deteriorating geostrategic outlook in the Indo-Pacific. The same drivers have informed our Defence Policy and Strategy Statement
• Re-register that we are interested in discussing opportunities for cooperation on the nonnuclear aspects under Pillar Two of AUKUS. We look forward to senior officials' engagement on this soon.

An email from 15 September 2023 references an upcoming joint statement from the AUKUS leaders to mark the second anniversary of the original AUKUS statement. It includes a reference to existing key messages, given the potential of renewed media interest, and states, specifically on Pillar Two if it is raised:

• Pillar Two of AUKUS includes cooperation in emerging security areas, including areas in which we already work closely with Australia, the US and the UK. Officials are having conversations about what Pillar Two might offer or mean for New Zealand, on a no commitments basis

And a similar statement is made for the Minister of Foreign Affairs' trip to the Pacific Islands Forum in September 2023:

• [Pillar two - if raised], Pillar Two of AUKUS includes cooperation in emerging security areas, including areas in which we already work closely with Australia, the US and the UK. Officials are having conversations about what Pillar Two might offer or mean for New Zealand, on a no commitments basis

Another document from 15 September provides more detail: "Re-register that we would welcome an officials' discussion about Pillar Two and what this means, particularly in terms of our bilateral defence relationship, and our common focus on interoperability in a challenging geostrategic environment."

Current stance

In a statement released on Friday, the government reiterated that New Zealand's involvement in AUKUS Pillar Two is contingent on agreement from all parties.

"Two conditions need to be met. First, an invitation, second, NZ deciding to join. The people of New Zealand will be kept informed at every step along the process.

"New Zealand operates its foreign policy in the best interests of the security and prosperity of its citizens."