The Journal of the Australian Naval Institute often has articles written by ANI members about operations in which they served. These first hand accounts give a revealing glimpse of contemporary operations as well as providing a valuable historic record. One such article about HMAS Tobruk‘s involvement in truce monitoring operations in Bougainville was written by the ship’s commanding officer and long-time ANI member Commander (later Rear Admiral) Allan du Toit. It appeared in the January 1999 edition.
Breaking the Spears: HMAS Tobruk’s Involvement in Truce Monitoring Operations in Bougainville
After nine years of civil war costing thousands of lives, the people of the island of Bougainville in Papua New Guinea (PNG) laid down their weapons and symbolically ‘broke the spears’ at a moving ceremony in Bougainville’s capital, Arawa, on Thursday 30 April 1998. On a hot and overcast day, a crowd of several thousand, including members from the unarmed multi-national Truce Monitoring Group drawn from Australia, New Zealand, Vanuatu and Fiji, assembled at midday to watch the leaders of the war ravaged province formally sign a cease-fire deal, which many consider to be Bougainville’s best chance for long-term peace, reconciliation and reconstruction.
The formal signing of the cease-fire agreement, which had only been finalised by the leaders, meeting in HMAS Tobruk, during the early hours of that morning, was a particularly poignant culmination to Tobruk‘s recent participation in Operation Belisi in Bougainville, which included three deployments to the war torn island and a record breaking 73 continuous days at sea between January and March 1998 in support of truce monitoring operations ashore.
The Bougainville Conflict
Australian involvement in Bougainville stemmed from the crisis which began in 1989 when the PNG Government declared a State of Emergency on the island following the sabotage of the giant Panguna copper mine by local landowners demanding a greater share in the mine’s profits. Fuelled by a separatist zeal, the situation rapidly deteriorated into a conflict that engulfed the entire island with the PNG government subsequently placing an embargo on all support including food and medical aid to the troubled island. The ensuing period was marked by armed conflict between the pro-independence Bougainville Revolutionary Army (BRA) led by rebel leader Francis Ona, the PNG army and a pro-PNG resistance militia, which resulted in many deaths (estimates range from 2,000 to 20,000) as a result of intermittent skirmishes and the consequent breakdown of health and food supply infrastructure. The conflict has also kept the mine closed, wrecked the island’s infrastructure, sapped the PNG Defence budget and has been a painful thorn in the side of successive PNG governments.
A number of previous initiatives to secure lasting peace on Bougainville, including an attempt in 1994, which also involved Tobruk, proved unsuccessful and ended in a stalemate. Frustrations boiled over when, after an 18-month cease-fire collapsed in 1996, then PNG Prime Minister Sir Julius Chan hired foreign mercenaries to destroy the BRA’s jungle bases. International outrage scuttled the plan and contributed to his defeat in the June 1997 PNG general election.
With new Prime Minister Bill Skate intent on peace, PNG tried again. BRA leader Sam Kauona and Joseph Kahili, Vice-President of the Bougainville Interim Government (BIG), the BRA’s political wing, defied fiercely pro-independence Ona, who had largely been marginalised, by entering into talks with the PNG government and the locally elected and PNG recognised Bougainville Transitional Government (BTG). Under New Zealand sponsorship, the rival parties were invited to participate in new negotiations at Burnham in New Zealand to end hostilities. This resulted in a declaration “to achieve a lasting peace” which was signed by the leaders of the various factions on 18 July 1997.
The Burnham Declaration led to further talks in October 1997 which resulted in the Burnham Truce being signed; the formation of a combined multinational Truce Monitoring Group (TMG); and an agreement to continue talks aimed at securing lasting peace via a permanent cease-fire. The October 1997 truce was followed in January 1998 by the New Zealand brokered Lincoln Agreement, which paved the way for the negotiation of a permanent cease-fire deal and guaranteed the phased withdrawal of PNG troops, the transition to a Peace Monitoring Group (PMG), talks on the island’s political future and the election of a Bougainville Reconciliation Government (BRG).
The Truce Monitoring Group
The 200-member unarmed TMG, consisting mainly of Australian and New Zealand military and civilian personnel, with a few personnel drawn from Vanuatu and Fiji, was established on Bougainville in November 1997, as part of Operation Belisi to oversee the peace process following the Burnham talks. It was the largest multinational military deployment in the South Pacific since 1945, excluding exercises and disaster-relief operations. Their role was to monitor and report on the factions observance of the truce and to facilitate the return of the island to normality by providing a base level of confidence from which the people could move forward. Australia committed about 80 soldiers providing logistical support plus some civilians in the monitoring teams. TMG Headquarters was established at Arawa with the Logistic Support Team (LST) established at Loloho, and four 20 member Truce Monitoring Team (TMT) sites located at Buka. Arawa, Buin and Tonu. Following the arrival of the TMG, local peace groups emerged all over the island indicating a widespread desire by the population for peace.
Tobruk‘s involvement in Operation Belisi and the current peace process commenced in mid-November 1997 while alongside in Guam on a short new entry officers’ training cruise, when notice was received that the ship was to participate in operations to provide logistic support to the TMG bound for Bougainville. As a result, the remainder of the training cruise was cancelled and the ship proceeded directly back to Sydney, the eight day passage being used to good effect to plan for the imminent operation. Increasingly, the Australian Defence Force (ADF) has been involved in peacekeeping and aid to civil power operations where the amphibious and sea transport capabilities of Tobruk has been invaluable. Tobruk as the primary amphibious unit in the ADF inventory, is an extremely important and valuable asset, particularly in joint operations, and there have been few contingencies in recent years where her unique capabilities have not been required. Operational planning continued in Sydney, while material preparations were completed in readiness for the operation. Tobruk, under the command of Commander G.A. Robinson, RAN sailed from Sydney on Saturday 29 November, heavily laden with approximately 1200 tonnes of cargo and 70 soldiers, mostly medical and engineering personnel, embarked. Much to the relief of the embarked force, the six day passage to Bougainville, which lies to the east of the PNG mainland, was completed in good weather with Tobruk arriving off Anewa Bay on the morning of Friday 5 December. After rendezvousing with HMAS Success (Captain A.W. Flint. CSC, RAN) later that day. Tobruk proceeded alongside the former ore carrier berth at Loloho and immediately began discharging her vital cargo which was eagerly awaited ashore.
Tobruk‘s cargo handling capabilities were fully utilised; the 70 tonne heavy-lift Velle derrick and both eight tonne Favco cranes assisted with the discharge of vehicles and stores onto the wharf, while the two embarked LCM 8 landing craft conducted stern door operations to off-load vehicles and equipment stowed in the tank deck. Tobruk’s flexible cargo handling facilities and motivated ship’s company ensured that the unloading operation was completed within ten hours prior to getting underway the following morning for the return passage to Sydney, where she arrived on Thursday 11 to prepare for her return to Bougainville in early January 1998.
Considerable work was undertaken during the three week period in Sydney, including the installation of two reverse osmosis plants to produce fresh water onboard. Additional communications facilities, including provision of INMARSAT B, were also fitted. Shortly before Christmas Tobruk was advised that her participation in operations off Bougainville were likely to extend well beyond the end of January and that the ship should be stored for ninety day endurance. Final preparations for the deployment back to Bougainville were completed by New Year’s Eve, with equipment enhancements providing a greatly improved operational endurance.
73 Days At Sea
Tobruk departed Fleet Base East (FBE) on Friday 2 January to commence passage back to Bougainville to provide logistic and communications support to the TMG ashore on the war-torn island. The passage north involved the turnover of command from Commander Robinson to Commander A.K. du Toil, RAN, at sunset on Saturday 3 while transiting north off the New South Wales coast. Commander Robinson was subsequently landed by boat at Tweed Heads early the next morning and Tobruk shaped course for Bougainville to relieve Success on station in the Combined Force Area of Operations (CFAO).
Progress through the Coral Sea was hampered by Tropical Cyclone Katrina, which with almost every alteration of course made to avoid it, appeared to change direction towards Tobruk. After finally passing some 80 miles to the east of the cyclone, Tobruk passed through the Bougainville Strait and entered the CFAO during the night of Wednesday 7 January and rendezvoused with Success shortly after sunrise the following morning. After a three hour underway replenishment with Success, command team briefings and the transfer of two Sea King SK50A helicopters and associated personnel, Tobruk assumed responsibility as the Task Group Commander (CTG 627.9) from Success, which shaped course for Australia soon afterwards.
Tobruk commenced an intensive operational training program the following day designed to integrate the embarked 817 Squadron Detachment into the ship and establish standard operating procedures in direct support of TMG operations ashore. The aircrew quickly familiarised themselves with flying operations from both the forward and after flight decks and Tobruk soon settled down to an operations tempo, with the ship proceeding to sea on most days within the CFAO to maintain a patrol sector to the east of Kieta in order to avoid any confrontation or perceived breach of the truce monitoring arrangements, with the ship going to anchor in Arawa Bay each night. Because tensions were still very evident on Bougainville during the truce period, the number of service personnel permitted on the island was strictly limited. As a result, members of Tobruk‘s ship’s company were unable to proceed ashore for the duration of Tobruk’s deployment. One day a week, normally Sunday, was therefore spent at anchor in Arawa Bay for Ship’s Company rest and recreation.
The Australian contingent commander, Colonel S.K. Joske visited Tobruk shortly after arriving to brief the ship’s company on the progress of the fragile peace on the island and a close relationship was soon established with HQ TMG ashore. This close liaison was maintained throughout Tobruk’s involvement in Bougainville, and Colonel Joske and his relief, Colonel J.B. Wilkinson who arrived during the first TMG rotation in mid-February, regularly visited the ship for consultation and used the facilities on board to assist with planning future military involvement in the Bougainville peace process.
Ship’s Company postings and aircrew rotations commenced early in the deployment using scheduled fortnightly RAAF C-130 flights between RAAF Richmond and Aropa airfield. This greatly assisted in returning the ship to a more normal posting cycle, following the posting freeze introduced when Tobruk’s participation in the Operation was first ordered.
HMA Ships Balikpapan and Brunei brought much welcomed changes to the daily routine on two occasions during the deployment with their resupply of fresh, frozen, dry provisions and canteen supplies. In addition, Tobruk refuelled from HMNZS Endeavour, before the latter’s departure for New Zealand at the end of January, and HMNZS Manawanui, which regularly proceeded to Lae and Rabaul for fuel for the TMG, also provided Tobruk with fuel on two occasions, enabling operational endurance to be extended. Tobruk on the other hand, provided in theatre logistic support to the two Army LCM 8s which undertook essential TMG supply runs in Bougainvillean waters, conducted logistic resupply runs and medivac flights using her two embarked SK50 helicopters and transferred diesel and aviation fuel ashore as required.
The Ship’s Company responded remarkably well to the demands placed upon them and their families as the peace process ashore gained momentum. During the deployment, Tobruk’s entertainment committee worked tirelessly to provide entertainment and activities for the TMG members ashore and the ship’s company. With many days akin to ‘Groundhog Day’, activities to dispel the boredom included Australia Day celebrations, steel deck barbeques, big screen movie nights, a comedy night, celebrity heads auction, quizz and tombola nights, stern door swimming and regular screening of ‘Rat News’, the ship’s onboard television program. Communication with families was maintained with the full range of communications facilities available. Sport and fitness sessions were a major focus with over 100 PT sessions conducted.
Tobruk remained in the Bougainville CFAO, in direct support of the TMG. until Tuesday 10 March before returning to Sydney for much needed maintenance and leave after spending 73 demanding days at sea since departing FBE on 2 January. Tohnik was relieved on station on Tuesday 10 by HMAS Labuan (Lieutenant R.D. Knights RAN). The two ships rafted up while at anchor in Arawa Bay to effect the transfer of necessary stores and fuel and complete a command learn briefing. Key personnel from the TMG visited the ship during the handover, ensuring that Labuan’s command was as fully prepared as possible prior to Tobruk’s departure. CTG 629.7 responsibilities were transferred during the Dogs and Tobruk commenced the five day passage to Sydney shortly afterwards.
With the assistance of the strong East Australian Current, Tobruk arrived back in Sydney on the afternoon of Sunday 15, on an unseasonable grey and damp day and berthed at FBE in Woolloomooloo Bay. Tobruk was met by Maritime Commander Australia, Rear Admiral C.A. Richie, AM, RAN. and hundreds of friends and family members of the Ship’s Company. Shortly after berthing, Admiral Richie briefly addressed the Ships’ Company and recognised their achievement in keeping the ship operational throughout the deployment, before presenting Australian Service Medals with Bougainville clasp. The deployment of Tobruk to Bougainville was a demanding operation for the ship and her ship’s company. However, the challenges, and at times monotony of enduring 73 continuous days at sea were far outweighed by the operational focus and the desire to see peace break out on the beautiful, but troubled island.
Cease Fire Agreement
Following a brief respite in Sydney, during which time essential defects were rectified and some very welcome leave taken. Tobruk sailed for Bougainville on Wednesday 15 April for the third successive time in six months. On this deployment. Tobruk carried some 100 soldiers, three Iroqouis helicopters from 171 Reconnaissance Squadron, and a number of vehicles, generators and plant equipment to support the transition from the New Zealand led TMG to the Australian led PMG.
The six day return passage to Bougainville was made in benign conditions, which was greatly appreciated by the embarked force, who had plenty to do with lessons including health and hygiene, local customs and culture, public relations and Tok Pisin, the language of the Bougainville people. Tobruk entered the CFAO on Monday 20 April, and berthed at Loloho Wharf in Anewa Bay at 0800 on Tuesday 21 April to commence discharging cargo. The majority of the embarked force, however, remained on board for the week, thereby relieving the pressure on the limited resources and facilities ashore during the major change-over of personnel.
In contrast to her previous deployment to Bougainville, Tobruk‘s ship’s company participated in many activities ashore during the period alongside, in particular a very moving ANZAC Day dawn service at the war memorial at Kieta which had recently been reclaimed from the jungle. The service was a highlight and particularly significant with both Australians and New Zealanders serving together in theatre.
During this visit, Tobruk was the venue for a series of meetings to finalise the cease-fire agreement that was to be signed on Thursday 30 April. These meetings were rescheduled on several occasions, due mainly to difficulties in assembling the representatives of the various factions. After a number of preparatory meetings, the leaders’ of the warring factions arrived on board at 1000 on Wednesday 29 April and commenced a long and at times charged meeting that finally reached agreement during the early hours of the next morning – less that six hours before the formal cease-fire signing ceremony was due to be held in Arawa. With supporters of the various parties gathered on the jetty, the Commanding Officer of Tobruk was invited to the closing remarks of the meeting and witnessed the emotional atmosphere as the leaders agreed to strive for a peaceful conclusion to the crisis that has divided their potentially prosperous island. As a final gesture, the chairman presented Commander Du Toit with spears and a bow and arrows, symbolic and poignant gifts to demonstrate that the people of Bougainville were turning away from violence as a means of settling their differences.
After nearly six months involvement with operations in Bougainville, Tobruk finally sailed for Sydney at first light on Thursday 30 April, shortly after the completion of the leaders’ talks onboard, her Ship’s Company buoyed by their involvement in the peace process and their proximity to the focus of activity during the final days before the signing of the ceasefire agreement.
Lessons Learnt
Tobruk‘s participation in operations in Bougainville once again highlighted the importance of a deployable and sustainable off-shore ADF amphibious lift capability in support of regional contingencies and reinforced the continued versatility of Tobruk. There were two important lessons flowing from Tobruk‘s involvement in Bougainville from the Navy’s point of view. Firstly, it again confirmed that the RAN is well equipped and organised to conduct operations offshore. The Gulf war and Somalia experiences, and now Bougainville, have proved invaluable and much was learnt. All three operations were particularly rewarding in that they showed that the Navy is capable of conducting operations offshore in support of Government direction. Secondly, Tobruk‘s involvement in Bougainville again reinforced the need for an amphibious capability in the ADF. The logistics and sea transport roles, which are part of an amphibious capability, ensure that any Defence dollar spent in this area is a good investment. It also confirms that if we look at likely Defence scenarios which may confront the ADF over the ensuing years, there are few that would not require an amphibious capability as part of the solution.
Postscript from the Author
In retrospect, the unarmed TMG which deployed to Bougainville in December 1997, and from 30 April 1998 transitioned to become the PMG, undoubtedly played a crucial role in enabling a lasting peace in Bougainville which is now an autonomous region stridently seeking full independence from PNG. The presence of the PMG until 2003, including the role played by Tobruk and other RAN and RNZN units, helped build a sense of confidence that allowed peace negotiations to take place between the various waring parties and prevented any further major outbreaks of violence and bloodshed. Following the signing and implementation of the ceasefire agreement reached onboard Tobruk in April 1998, an organised Melanesian tribal reconciliation process began between the various waring factions spread across the collection of islands and atolls which make up Bougainville. A landmark peace agreement between all parties, which set terms for Bougainville’s current political autonomy and potential path to independence followed in 2001. This finally brought an end to the longest and deadliest conflict in the Pacific since the end of the Second World War.
About the author
Dr Allan du Toit retired from the RAN as a Rear Admiral in 2016 after a combined 40 years of naval service. He was born and raised in South Africa and entered the South African Navy in 1975. He joined the RAN in 1987 and commanded Tobruk during peacekeeping operations in Bougainville, the Australian Amphibious Task Group, the multi-national maritime interception force enforcing UN sanctions against Iraq, Combined Task Force 158 in the northern Persian Gulf, and Border Protection Command. He also served in a wide range of senior single-service and joint appointments ashore. His final appointment was as Australia’s Military Representative to NATO in Brussels.
Allan joined the ANI in 1987, served on its council from 1992-1997, and later served as president from 2011-13. He is a visiting fellow and member of the Naval Studies Group at UNSW Canberra.
