STATEMENT OF INTENT 2019-2023 - MINISTRY OF DEFENCE - defence.govt.nz - NZDIA
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G.4 SOI (2019)
G.4 SOI (2019)
MINISTRY OF DEFENCE
Manatῡ Kaupapa Waonga
STATEMENT
OF INTENT
2019-2023
defence.govt.nz
defence.govt.nz
Presented to the House of Representatives
pursuant to section 39 of the Public
Finance Act 1989
Published in August 2019 on the Ministry
of Defence website: defence.govt.nz
ISSN: 2463-6436 (Online)
Crown Copyright © 2019
This copyright work is licensed
under the Creative Commons
Attribution 4.0 International
licence. In essence, you are free
to copy, distribute and adapt the work, as long
as you attribute the work to the Crown and
abide by the other licence terms. To view a
copy of this licence, visit
creativecommons.org.
Any use of flags, emblems, names or words
protected by the Flags, Emblems, and Names
Protection Act 1981 must not infringe on the
provisions of that Act.
Image: construction of the maritime
sustainment capability – the HMNZS Aotearoa
– in Ulsan, Republic of Korea
Cover image: the HMNZS Manawanui dive
and hydrographic vessel
2 STATEMENT OF INTENT 2019–2023
CONTENTS
Foreword by the Minister of Defence 5
Introduction by the Secretary of Defence 7
The Government’s direction for Defence 9
Who we are 13
Our role and functions 14
How we work 15
Our customers 17
Vote Defence 18
The defence operating environment 19
Our strategic direction 21
The Ministry’s strategy 22
What will success look like in four years? 22
The Ministry’s strategy summarised 23
Our strategic priorities 24
Our capability 41
How we are organised 42
Our stewardship priorities 43
Our people: making sure every person counts 44
A more diverse Ministry 44
Partnership: delivering defence capability 47
STATEMENT OF INTENT 2019–2023 3
4 STATEMENT OF INTENT 2019–2023
FOREWORD
BY THE MINISTER OF DEFENCE
In June 2019 the Coalition Government
released the Defence Capability Plan 2019.
The Plan sets out the indicative investments
that will provide the New Zealand Defence
Force with the capabilities needed to meet the
challenges identified in the Strategic Defence
Policy Statement 2018.
The Plan maintains the envelope of $20 billion an important role in enhancing New Zealand’s
investment in the Defence Force out to 2030, security and foreign policy objectives.
recognising that $5.8 billion has already been The Ministry’s regular focussed assessments
committed, including for the procurement of the on emerging issues ensure Defence is able to
P-8A Poseidon aircraft, HMNZS Aotearoa and keep pace with changes in the international
HMNZS Manawanui which are now underway. strategic environment and their possible
Capability decisions need to consider the implications for New Zealand’s interests and
fundamental changes to the ways in which Defence Force capabilities.
militaries operate. For these reasons planned I am confident that the Ministry will rise to the
investment includes space-based systems, challenge of delivering the Defence Capability
intelligence capabilities and semi-autonomous Plan 2019. It is imperative that the Government
and remotely operated technologies. has confidence in the Defence agencies to
Replacing the five Hercules transport aircraft is deliver investments successfully. The
the highest priority project within the Defence improvements made in the Defence capability
Capability Plan 2019, and I look forward to management system will help ensure Cabinet
receiving in 2020 detailed costing information is provided with robust advice and is fully
for the C-130J-30 Super Hercules as informed and aware of all the implications of
replacements. the proposed investments.
The signalled capability investments will There is no greater responsibility for a
support the foreign policy objectives in the government than when deciding to deploy our
Government’s Pacific Reset and responding to uniformed women and men overseas.
the impacts of climate change, which will As Minister of Defence I am committed to
continue to test the security and resilience of ensuring that New Zealand Defence Force
our community, nation, the South Pacific and personnel have the best equipment available
world. to them to carry out their duties.
The Strategic Defence Policy Statement 2018
identified that New Zealand is navigating an
increasingly complex and dynamic
international environment.
We have an obligation to meet our
commitments to our partners and uphold and
Hon Ron Mark
represent our nation’s values globally.
Minister of Defence
New Zealand’s international Defence
engagement activities and deployments play
STATEMENT OF INTENT 2019–2023 5
MINISTERIAL STATEMENT OF
RESPONSIBILITY
I am satisfied that the information on strategic
intentions prepared by the Ministry of Defence
is consistent with the policies and performance
expectations of the Government.
Hon Ron Mark
Minister of Defence
6 STATEMENT OF INTENT 2019–2023
INTRODUCTION
BY THE SECRETARY OF DEFENCE
The Ministry of Defence, Manatῡ Kaupapa
Waonga, Statement of Intent 2019-2023
provides the opportunity to clearly articulate
our strategy and to outline to the New Zealand
public our priorities as an organisation.
The Defence Capability Plan 2019 provides the
Ministry with a clear plan for the delivery of
future investments for Defence for the next 15- through the Pacific Reset has raised the
20 years. priority placed on the Defence Force’s ability to
operate in the South Pacific to the same level
The Plan provides a vision for the capabilities
as New Zealand’s territory.
that will deliver on the Strategic Defence Policy
Statement 2018 and for an enhanced and Through the Defence Capability Change Action
sustainable Defence Force that is well Programme the Ministry has implemented a
positioned to deliver to the community, nation range of improvements to the capability
and world for decades to come. management system so that it is capable of
delivering an expanding portfolio of projects.
Some of these investments, like the purchase
Embedding and sustaining these
of the P-8 Poseidon aircraft and C-130
improvements will continue to be a key focus
Hercules replacement, are once in a
for the Ministry.
generation decisions for Government.
The Ministry and its staff remain focused on
By delivering the Defence Capability Plan 2019
delivering on its challenge to ensure Defence
the Ministry will give effect to the Government’s
has the people, relationships, policies and
policy intentions, acknowledging a commitment
combat capabilities to respond to concurrent
to safeguarding and providing resilience for the
and adverse security challenges.
nation’s wellbeing.
The Ministry will ensure that the Plan is
delivered in a fiscally responsible manner.
Indicative capabilities and costings will be
subject to robust scrutiny prior to Cabinet
consideration of business cases. Andrew Bridgman
Secretary of Defence
In line with Government expectations the
Ministry will operate in ways that maintain
public trust and confidence, and embody and
promote New Zealand values.
We will work to ensure that New Zealand
remains secure and prosperous, is a credible
and trusted international partner and that
Defence is prepared to address future
challenges.
Defence supports New Zealand communities,
our Pacific Island neighbours, and our interests
in the Southern Ocean and in Antarctica. A
greater focus on our immediate neighbourhood
STATEMENT OF INTENT 2019–2023 7
CHIEF EXECUTIVE STATEMENT OF
RESPONSIBILITY
In signing this statement, I acknowledge that I
am responsible for the information on strategic
intentions for the Ministry of Defence. This
information has been prepared in accordance
with section 38 and section 40 of the Public
Finance Act 1989.
Andrew Bridgman
Secretary of Defence
8 STATEMENT OF INTENT 2019–2023
1
THE GOVERNMENT’S DIRECTION
FOR DEFENCE
●●●●
STATEMENT OF INTENT 2019–2023 9
THE GOVERNMENT’S POLICY Community
OBJECTIVES FOR DEFENCE Defence supports New Zealand’s community and
The Strategic Defence Policy Statement 2018 environmental wellbeing and resilience.
sets out the Government’s policy objectives for
Nation
Defence, which is made up of two agencies:
the Ministry of Defence and the New Zealand Defence promotes a safe, secure, and resilient
Defence Force.1 New Zealand, including on its borders and
approaches.
Defence contributes to maintaining
New Zealand’s prosperity via secure air, sea and
electronic lines of communication, and secure
access to space-based services.
World
Defence contributes to the maintenance of the
international rules-based order.
Defence contributes to New Zealand’s network of
strong international relationships.
The Government has also identified the
following six principles to describe its
expectations of Defence and how it operates:
Defence is combat capable, flexible and ready
Defence personnel are highly trained
professionals
Defence has the resources to meet the
In addition to guiding operational decision- Government’s operational and strategic priorities
making, the Policy Statement provides the
policy basis for further work to identify and Defence operates in ways that maintain public
trust and confidence
define the Defence capabilities required to give
effect to the Government’s intentions.2
Defence embodies and promotes New Zealand’s
The Policy Statement introduced some new values
elements to New Zealand’s defence policy
settings, including the Community, Nation and Defence is a credible and trusted international
partner
World framework that explains the value
Defence provides to New Zealand.
1
The Strategic Defence Policy Statement 2018 is available from the Ministry’s website at
www.defence.govt.nz/publications/publication/strategic-defence-policy-statement-2018.
2
In the Defence context, ‘capability’ refers to the personnel, equipment, platforms, and/or other
resources that affect the capacity to undertake military operations.
10 STATEMENT OF INTENT 2019–2023The Policy Statement identifies three key Protect New Zealand’s wider interests by
forces affecting New Zealand’s strategic contributing to international peace and security
environment: and the international rules-based order
The increasing importance of spheres of
Contribute to advancing New Zealand’s
influence, with some states pursuing international relationships
greater influence in ways that, at times,
challenge international norms. Work with other agencies to monitor and
understand New Zealand’s strategic environment
Challenges to open societies, driven by
increasing disillusionment with existing Be prepared to respond to sudden shifts in the
arrangements within these societies, strategic environment
threaten to reduce the willingness of those
states to champion the rules-based order.
A collection of complex disruptors,
including an array of impacts from climate
Together, the Defence priorities
change, new technologies changing the
nature of conflict, extremist ideologies, and and principal roles describe
transnational organised crime. Many of Government’s expectations for the
these disruptors disproportionately affect Defence Force’s ability to operate.
open societies and weak states. They are
forces for disorder.
Defence faces capability challenges.
The Government expects the Defence Force to
Increasing demands for Defence operations in
deliver the following principal roles:
New Zealand and our neighbourhood will
Defend New Zealand’s sovereignty and territory, present a capacity challenge, while maintaining
and contribute to protecting New Zealand’s interoperability with security partners presents
critical lines of communication a capability sophistication challenge.
Managing the introduction of replacement
Contribute to national, community and
environmental wellbeing and resilience, and
capabilities is, and will continue to be, a major
whole-of-government security objectives focus.
Three particular areas require attention:
Meet New Zealand’s commitments to its allies
and partners Maritime domain awareness and
response, in New Zealand’s
Support New Zealand’s civilian presence in the neighbourhood and further afield.
Ross Dependency of Antarctica, and work with
other agencies to monitor and respond to activity A Defence contribution to New Zealand’s
in the Southern Ocean secure access to space-based systems.
Conduct a broad range of operations in the South Enhanced Defence cyber capabilities to
Pacific, including leading operations when provide military commanders with a
necessary, to protect and promote regional broader set of tools to achieve military
peace, security and resilience objectives.
Make a credible contribution in support of peace
and security in the Asia-Pacific region, including
in support of regional security arrangements
STATEMENT OF INTENT 2019–2023 11PLANNED INVESTMENTS IN
DEFENCE
The Defence Capability Plan 2019 published in
June 2019 sets out the planned investments in
the New Zealand Defence Force out to 2035.3
Delivering on these investments will provide
the Defence Force with the capabilities
required to give effect to the Government’s
policy intentions outlined in the Strategic
Defence Policy Statement 2018.
The planned investments maintain the
$20 billion programme of capital investment
out to 2030, while improving the overall ability
of the Defence Force to respond to the
strategic environment. Furthermore, for the first
time the timeline for investments has been
extended to 2035.
Extending long term planning in Defence
allows for sustainable, high value investments
to be considered. Taken alongside recent
commitments, the Plan provides for the
replacement and regeneration of all major
defence capabilities.
3
The Defence Capability Plan 2019 is available from the Ministry’s website at
www.defence.govt.nz/publicaitons/publication/defence-capability-plan-2019.
12 STATEMENT OF INTENT 2019–2023WHO WE ARE
2
●●●●
STATEMENT OF INTENT 2019–2023 13 purchase major defence equipment for use
OUR ROLE AND FUNCTIONS by the New Zealand Defence Force as a
defence capability
The Ministry of Defence is the Government’s
lead civilian advisor on defence. Our purpose build and maintain strong defence
is to give civilian advice on defence matters to relationships internationally
enhance the security and interests of advise on Defence’s performance and
New Zealand and its people. We also effectiveness as a system.
purchase major equipment which becomes a
capability when it is used by service men and We work closely with the Defence Force, the
women of the Defence Force. Ministry of Foreign Affairs and Trade, and
other agencies to carry out these activities. We
To carry out our role, we: also build and maintain strong defence
provide analysis and advice on connections with other governments, including
New Zealand’s national security and our ally Australia, so New Zealand can
defence interests and challenges, across contribute to the security of the Asia-Pacific
both the short and long terms region, as well as understand and respond to
defence and security challenges
advise the Government on how our
internationally.
Defence Force can meet current
challenges (such as potential Further detail about how we work with the
deployments) and possible future Defence Force is set out later in Figure 3 on
challenges, by purchasing, upgrading and page 16.
deploying capabilities
NEW ZEALAND
GOVERNMENT
SECURITY AND
COMMUNICATIONS
INTELLIGENCE
SECURITY BUREAU
SERVICE
MINISTRY FOR OFFICE OF THE
PRIMARY INDUSTRIES AUDITOR GENERAL
NEW ZEALAND
DEFENCE FORCE
Strategic Partner MINISTRY OF
DEPARTMENT OF BUSINESS,
INTERNAL AFFAIRS INNOVATION AND
EMPLOYMENT
MINISTRY OF
MINISTRY DEPARTMENT OF
ANTARCTICA AUDIT NEW ZEALAND
FOREIGN AFFAIRS
NEW ZEALAND
AND TRADE OF THE PRIME MINISTER
AND CABINET
DEFENCE
MARITIME NEW NATIONAL MARITIME
ZEALAND COORDINATION
CENTRE
STATE SERVICES
THE TREASURY
COMMISSION
NEW ZEALAND NEW ZEALAND
POLICE CUSTOMS SERVICE
CROWN LAW MINISTRY OF HEALTH
Figure 1: Government agencies that the Ministry works with
14 STATEMENT OF INTENT 2019–2023The Defence Capability Plan 2019 sets out the
HOW WE WORK detailed capability requirements to deliver on
these policy settings – including the people,
WE INFORM AND IMPLEMENT THE
research and development, infrastructure,
GOVERNMENT’S POLICY FOR
processes, information technology, equipment,
DEFENCE and logistics.
The Ministry’s work starts with developing a The Plan allows the Government to
long-term view of the performance and fit-for- communicate its Defence capability priorities to
purpose of New Zealand’s defence system, the public, industry, and international partners.
and an understanding of New Zealand’s It does not represent a final commitment by the
current and longer term defence challenges. Government. Each investment is subject to
The Government sets its strategic direction for approval of a business case that justifies the
how it expects Defence to respond to these proposed investment and funding being
challenges, which the Ministry and Defence available through the Budget process.
Force implement together. The Strategic
Defence Policy Statement 2018 sets out the
roles and tasks the Government expects the The Ministry’s purpose is to give
Defence Force to undertake, and guides civilian advice on defence matters
choices and priorities in making capability
to enhance the security and
purchases, building international defence
relationships, and assessing risk and interests of New Zealand and its
performance. people
Based on the Government’s direction, Defence
develops long-term plans on how these
intentions translate into defence effects and
materiel.
Formal Defence Assessment Government direction on Defence Force roles
Examines the strategic outlook and and tasks (Strategic Defence Policy Statement)
implications for New Zealand – informing Public expression of the Government’s defence
the Government’s Defence policy goals policy goals
Public document on the broad timing and scope
of intended defence capability procurement
activity over the long-term (Defence Capability
Plan)
Regular defence assessments Publicly describes the capability sets needed to
Inform the formal Defence Assessment deliver the Government’s defence policy
Figure 2: How the Ministry informs and implements the Government’s policy for Defence
STATEMENT OF INTENT 2019–2023 15WE WORK IN PARTNERSHIP WITH interacting with Defence Force counterparts on
THE DEFENCE FORCE a daily basis.
The Ministry and New Zealand Defence Force The separation between the two agencies is
work very closely together; drawing on their part of New Zealand’s constitutional
strong, separate civilian and military arrangements. Under the Defence Act 1990,
perspectives. the Secretary of Defence is the lead civilian
advisor on defence matters and the Chief of
The relationship between the two agencies is Defence Force is the lead military advisor and
led by the two chief executives and is one of senior military officer. Together, the Defence
deep partnership and collaboration. Contacts agencies deliver on the Minister of Defence’s
are extensive and deep, with all Ministry staff priorities for the defence portfolio.
Command of the Navy, Army, Air Force &
Assessment and Lead Civilian Advice
Joint Forces; and Lead Military Advice
PROTECT:
INFORM: VETERANS
PREPARED:
New
New Zealand’s Reviews PROJECT:
Providing
AFFAIRS:
Navy, Army & Zealand’s
strategic Defence system directed by Armed advice and Respecting
Air Force sovereignty
forces at the supporting Veterans
environment and performance the Minister of capabilities for and provide
direction of Government and
joint security to
interests Defence Government decision- honouring
operations New
marking Service
Zealanders
Government to Government Military to Military
Managing international defence relationships
Managing defence capability (accountability shared by the Secretary of Defence and Chief of Defence Force)
Strategic Policy Capability Acquisition Introduction into In Service Disposal
Definition & Service
Selection
Primary responsibility of the Ministry Primary responsibility of the NZDF
Collaboration with other defence and wider security sector agencies
Figure 3: Respective roles of the Ministry of Defence and New Zealand Defence Force
The Defence Force and Ministry deliver a New Zealand. The Ministry’s work supports the
range of activities to support our Community, Government to make the best decisions on the
Nation and World. In support of the direction and tasking of the Defence Force.
New Zealand Government, the Ministry works This includes support for decisions with
to maintain strong and sustainable defence immediate impact involving the deployment of
relationships with international partners and Defence Force personnel, and decisions with
leads strategic thinking to inform Defence long-term implications regarding the
policy that supports the resilience of capabilities that the Defence Force has in
16 STATEMENT OF INTENT 2019–2023place to deliver on the Government’s OUR CUSTOMERS
expectations in the future. The Ministry also
supports the Defence Force to efficiently The Ministry’s work programme is often
deliver on Government’s expectations. determined directly by Ministerial and Cabinet
decisions. The overarching strategy for us is
THE NATIONAL SECURITY SECTOR the Government’s Strategic Defence Policy
The Ministry is a lead policy agency in the Statement 2018, with subsequent detail about
national security sector. Sector agencies are the capabilities to deliver on this policy
expected by Government to operate in a statement set out in the Defence Capability
consistently integrated way. This is to achieve: Plan 2019 and Defence Capital Plan.
coherent and consistent advice to Our customers are:
Ministers on national security, foreign The Government: With the New Zealand
policy, intelligence and defence issues Defence Force, we deliver the people,
the maximum whole of sector performance relationships, policies and capabilities to
from the available resources meet the Government’s policy objectives.
the ability to adapt quickly to changes in The Minister of Defence: The Minister is
the strategic and security environment, the customer for reviews and advice that
including sudden changes that may occur test and demonstrate Defence’s
without warning performance, capability and management
of risks.
improved attraction, development and
retention of skilled people, by providing Users of Defence Platforms: We deliver
career pathways across the agencies that safe, effective systems and equipment that
work on national security issues, as well as can be used to deliver a defence capability
with other sectors. for New Zealand.
STATEMENT OF INTENT 2019–2023 17VOTE DEFENCE over four years for new accommodation
following the loss of Defence House in the
The Ministry delivers its work through three 2016 Kaikoura Earthquake.
departmental appropriations, and operates a
Crown capital appropriation on behalf of the CROWN CAPITAL APPROPRIATION
Minister of Defence for its work procuring FOR DELIVERING MILITARY
major military equipment. CAPABILITIES
DEPARTMENTAL APPROPRIATION Crown funding for the delivery of defence
capabilities is allocated after Cabinet approval
As part of Budget 2019, the Ministry received
of business cases for the specific projects.
additional operating funding of $8.4 million
$25m
$20m $9m Management of Defence Capabilities
$15m
$9m Policy Advice and Related Outputs
$10m
$5m
$2m Audit and Assessment of Performance
$0m
2015/16 2016/17 2017/18 2018/19 2019/20
Figure 4: The Ministry's departmental expenditure
$800m
$700m $410m Air Surveillance Maritime Patrol
$600m
$138m Maritime Sustainment Capability
$500m
$90m Anzac Frigate Systems Upgrade
$400m
$300m $31m Network Enabled Army - Trache 1
$200m
$25m Dive and Hydrographic Vessel
$100m
$50m Other projects
$0m
Figure 5: The Ministry's non-departmental expenditure on delivering Defence capabilities
18 STATEMENT OF INTENT 2019–2023disproportionately affect open societies
THE DEFENCE OPERATING and weak states, and are forces for
ENVIRONMENT disorder.
Defence operates in a dynamic environment. As the international-rules based order – the
The quality of the Ministry’s performance over foundation of our security – comes under
the next four years will depend on how well it pressure, New Zealand will also face
responds to challenges that are both external intensifying disruptors closer to home. Climate
and internal to the Ministry, some of which may change, transnational organised crime, and
arise without warning. resource competition, will disrupt our
neighbourhood, including our extensive
To be successful, the Ministry must:
maritime area, in complex and compounding
understand and advise on changes and ways.
trends in the security environment Pacific Island countries are confronting
support the New Zealand Defence Force intensifying challenges from the combination of
to carry out its roles and tasks complex disruptors, and will likely require
increased levels of assistance, including
contribute to the work of the national
operations beyond humanitarian assistance
security sector.
and disaster relief.
NEW ZEALAND’S SECURITY Supporting stability in the Asia-Pacific, from
ENVIRONMENT countering violent extremism in Southeast Asia
to the de-nuclearisation of North Korea, will
New Zealand is navigating an increasingly
increase in importance.
complex and dynamic international security
environment. We will face compounding As challenges to the international rules-based
challenges of a scope and magnitude not order intensify it will remain in New Zealand’s
previously imagined in our neighbourhood. vital interest to act in support of this order.
While there may be noteworthy effects on While we will conduct some missions on our
New Zealand’s interests from singular own, most New Zealand Defence Force
developments, New Zealand’s security outlook deployments will be undertaken alongside
may be shaped most powerfully by a other government agencies and our
combination of forces increasing pressure on international partners.
the international rules-based order, which will
New Zealand has a strong international
play out in newly potent ways close to home.
reputation as a valued, credible defence
The three key forces, and their dynamic partner. Our international partnerships are vital
intersections, pressuring the order are: to enabling the realisation of our interests, the
promotion of our values and the safeguarding
states pursuing greater influence in ways
of our sovereignty in a complex and changing
that challenge international norms and at
world.
times the sovereignty of small states
It is therefore critical for the Defence Force to
challenges to open societies that threaten
maintain and develop capabilities that support
those states’ willingness to champion the
effectively operating with others. This involves
rules-based order, and
developing complementary capabilities as
complex disruptors – including an array of appropriate, ensuring mutual familiarity
impacts from climate change, technologies (developed through personnel exchanges and
changing the nature of conflict, extremist exercising), and the compatibility of
ideologies, national and regional tensions, communications and command and control
and transnational organised crime – that systems. Interoperability is key to
STATEMENT OF INTENT 2019–2023 19New Zealand’s strong international reputation to be prepared to respond to increased threats
as a valued, credible defence partner and ally manifesting in and through both space and
to Australia. cyber space.
The domains of cyber and space bring both Defence will have to act in new ways and at
vulnerabilities and opportunities. Increased use new levels to protect New Zealand’s values
of cyber and space capabilities could enhance and interests.
Defence’s operational effectiveness and
efficiency, but the Defence Force will also need
20 STATEMENT OF INTENT 2019–20233
OUR STRATEGIC DIRECTION
●●●●
STATEMENT OF INTENT 2019–2023 21THE MINISTRY’S STRATEGY
The Ministry’s strategy summarises how the New Zealand’s role on the world stage and the
work we do will contribute to a safe, secure contribution defence and security makes to
and resilient New Zealand. It shows the international trade and the domestic economy.
connections between:
This will have resulted in greater support for
the key things that need to be in place for the Ministry’s work to maintain and grow
Defence to succeed government to government defence
relationships. These relationships will be
the Ministry’s priorities for delivering and
viewed and managed as an important part of
strengthening these
the total relationship with New Zealand’s trade,
how the Ministry of Defence contributes to economic and security partners.
New Zealand’s security and wellbeing.
The Ministry will have achieved its goal of
Our strategy draws from our Four Year being recognised as an international exemplar
Excellence Horizon that describes where we for defence capability management. Defence’s
would like to be in three to four years’ time. transformation of defence capability
Achieving this will enable the delivery of our management will be complete and embedded.
long-term system outcomes. Defence capability projects will be delivering
on time, to budget, and to quality standards.
WHAT WILL SUCCESS LOOK Defence’s in-use capabilities will faithfully
reflect Government’s portfolio choices and the
LIKE IN FOUR YEARS?
defence capability it intended New Zealand to
The Ministry will be seen as an active and have.
influential lead agency within an external and
This performance will be sustained through a
security sector that provides coherent,
culture and organisational systems that
collective advice on New Zealand’s defence
measure performance and benefits, and which
and security interests and choices in a
drive continuous improvement.
dynamic strategic environment. It will do this
through the depth of its relationships and The Ministry’s values and operating model are
partnerships, the high quality of its strategic embedded as its way of working. Increased
assessments and advice, and the consistently capability and capacity has translated into
high standards it meets in delivering the resilience and performance. The Ministry’s
Government’s major defence investments. people use ‘clear rules and good tools’. They
experience strong support for their
The Ministry will be known and respected for
development and careers.
the way it partners with others to amplify its
influence well beyond its size. This will be The Ministry will lead its sector in attracting
exemplified in the formal and informal people with diverse backgrounds and
arrangements with the New Zealand Defence perspectives. Its diversity and inclusive
Force for capability management. It will extend behaviours will help it to be adaptable, respond
to relationships with the wider sector, central quickly to changes in its environment, and
agencies, academia and defence industry. reinforce its reputation for transparency and
ethical behaviour.
The Ministry will be highly regarded for its
understanding of security and defence in a
changing world, and it will have grown the
value New Zealand obtains from government
to government defence relations. Its efforts will
have shaped stakeholders’ understanding of
22 STATEMENT OF INTENT 2019–202323
STATEMENT OF INTENT 2019–2023
THE MINISTRY’S STRATEGY SUMMARISEDOUR STRATEGIC PRIORITIES
The Ministry has five strategic priorities against 1.
a challenge that would test its ability to deliver. Defence anticipates the
dynamic security
These have been developed in consultation
environment and
with our partners and stakeholders.
contributes to a stronger
The Ministry’s achievements are often through national security sector
influence and over the longer term. As such,
our measures involve an element of
judgement. We will chart our progress against
our Four Year Excellence Horizon.
2.
The Ministry is focused on implementing the Our Defence
Government’s policy direction and strategy for engagement and support
Defence – particularly the roles and tasks for for deployments enhances
the Defence Force articulated in the Strategic New Zealand’s
Defence Policy Statement 2018. This is
security and
other interests
primarily delivered through priorities 1–3.
To ensure the effective delivery of the
significant forward programme of defence
capability projects, Defence operates an
enhanced Capability Management System to 3.
Defence delivers
deliver on the programme of investment
capability that
decisions in the Defence Capability Plan 2019.
balances policy,
The embedding and operation of this is funding and
reflected in priorities 3 and 4: requirements
Priority 5 underpins the way that the Ministry
works across all areas of its activity.
4.
Defence successfully
delivers and sustains
systemic improvement
5.
Defence is open,
transparent, accessible
and trusted
24 STATEMENT OF INTENT 2019–2023DEFENCE ANTICIPATES THE DYNAMIC SECURITY
1 ENVIRONMENT AND CONTRIBUTES TO A STRONGER NATIONAL
SECURITY SECTOR
The Government’s defence policy is articulated and
effectively implemented
High quality assessments of the strategic environment and
policy advice across Defence’s contributions to the
community, nation and world
What is the Ministry seeking
to deliver? Assessments that inform and influence the work of the
broader national security sector
Collaboration with the sector on national security policies
A formal comprehensive assessment of defence policy, if
requested by Ministers
Defence advice anticipates and prepares the Government to
How will we know we’ve respond to developments in the security environment
been successful? Defence assessments inform new and emerging areas of
Defence policy and capability
In partnership with the Defence Force, the Ministry articulates
and implements the Government’s defence policy
The Ministry produces regular defence assessments,
including Strategic Defence Assessments, and informs
strategic decision-making, focusing on new and evolving
areas of Defence policy
What will we achieve from The Ministry works with partners in the national security and
this work? intelligence community
Working with the Defence Force and other sector partners,
the Ministry produces a suite of future-focused Defence
Planning Scenarios to inform capability decisions
The Ministry works with sector partners to develop policy,
including in new and emerging areas of national security and
defence policy
Implementing the Government’s policy Statement, which sets out the Government’s
for Defence priorities and principal task expectations for the
The Ministry works in partnership with the Defence Force.
Defence Force and other partner agencies to Policy implementation related to international
implement the Government’s policy for engagement and deployments is discussed
Defence. This includes undertaking initiatives under priority 2. Policy implementation in
arising from the 2018 Strategic Defence Policy respect of defence capability, particularly under
STATEMENT OF INTENT 2019–2023 25the Defence Capability Plan, is discussed
under priority 3.
In addition, the Ministry is working with the
Defence Force to analyse and provide advice
on its plan for the regeneration of the Defence
estate, and undertake work to better
understand its personnel portfolio.
Advice on the strategic outlook and
assessment
Work on major five-yearly Ministry-led Defence
Assessments is being augmented by a cycle of
smaller, more focused assessments on
emerging issues. More regular Defence
Assessments will also be produced to inform
decision makers of significant changes to the
overall international environment, incorporating
results of the more focused work where they
are relevant. This approach ensures that
Defence is better able to keep pace with
changes in the international strategic
environment and their possible implications for Additional work on the security
New Zealand’s national security interests, implications of climate change and a
Defence policy and the capabilities required by framework for lifting Defence’s
the Defence Force to fulfil its roles and tasks. approach to the Pacific in the context
Details arising from this work will be reflected of the Pacific Reset have
in the Ministry’s annual report. demonstrated Ministry leadership on
The Ministry will work with partners, both key strategic issues and provided
domestically and internationally, to ensure it is models for other agencies’
well-placed to provide ongoing advice on the consideration of how they will give
strategic environment and the appropriateness effect to Government policy.
of policy settings, capability and funding. This
advice will be able to be provided within short
timeframes. The Ministry’s leadership role in
Collaboration with the sector on
Defence Assessments and Defence White
national security policies
Papers means it is well-placed to contribute to
a range of policy initiatives led by agencies The Ministry will work closely with security
across the wider intelligence and security sector partners to leverage the collective
sector, from space policy to maritime and capability in order to meet new and evolving
security challenges. It will also work with sector
cyber security.
partners to develop policy in new national
The Ministry is working with the Defence security and defence areas. This will ensure
Force, and other partner agencies as appropriate capability is being developed to
appropriate, to produce Defence planning meet New Zealand’s long term needs, and that
scenarios for a range of New Zealand Defence the sector is working together effectively and
Force roles. These will support Defence efficiently, without unnecessary duplication.
Force’s planning activities, including for
capability development and contingency
planning.
26 STATEMENT OF INTENT 2019–2023The areas of focus for sector work reflect the shaped the national security sector’s view of
key Government priorities for Defence, New Zealand’s strategic environment through
including areas where whole-of-government its model of three forces shaping the
activity is ramping up – such as space and international rules-based order, the foundation
cyber policy issues. In 2018/19 the Ministry of our security.
assumed a leadership role in the Combined
Additional work on the security implications of
Space Operations Initiative, and is working
climate change and a framework for lifting
closely with a range of New Zealand
Defence’s approach to the Pacific in the
government agencies to build space capability
context of the Pacific Reset have
and expertise.
demonstrated Ministry leadership on key
The Ministry has put forward sector-leading strategic issues and provided models for other
policy work, including the Strategic Defence agencies’ consideration of how they will give
Policy Statement 2018, which has significantly effect to Government policy.
STATEMENT OF INTENT 2019–2023 27OUR DEFENCE ENGAGEMENT AND SUPPORT FOR
2 DEPLOYMENTS ENHANCES NEW ZEALAND’S SECURITY AND
OTHER INTERESTS
International defence engagement activities that support
broader defence, security and foreign policy objectives, and
maximise the value to New Zealand
What is the Ministry seeking
to deliver? Advice to Government on the deployment of New Zealand’s
defence personnel and assets that supports broader defence,
security and foreign policy objectives, and maximises the
value to New Zealand
The International Defence Engagement Strategy is
implemented. It is reviewed every two years or earlier as
How will we know we’ve required
been successful?
Deployment advice is comprehensive and enables the
Government to make choices
Working with the Defence Force, the Ministry conducts
international defence engagement in accordance with
priorities established in the International Defence
Engagement Strategy, including implementing initiatives set
out in the country and regional strategies
The Ministry uses the Strategy to guide priorities for
Ministerial and other senior-level travel within Defence. The
Ministry’s support includes comprehensive briefing and visit
management
New Zealand is well-represented by the Ministry at bilateral
defence talks, in regional fora and at major international
What will we achieve from defence conferences. New Zealand’s interests are advanced
this work?
The Ministry continues to work with the Defence Force and
other agencies to review and update the Strategy every two
years or earlier as required
Working with the Defence Force and other agencies, the
Ministry provides timely, robust and influential joint advice to
Government on existing mandates and/or consider new
deployment mandates
Working with the Defence Force, the Ministry monitors
deployments and provides updated advice to the Minister in
the event of substantive changes to the mission or
environment
28 STATEMENT OF INTENT 2019–2023International engagement and determine where and how the Ministry and
deployments Defence Force should focus resources that
The Ministry works with the Defence Force to contribute to international defence
shape New Zealand’s relationships with foreign engagement, to maximise the value to
militaries and security organisations. We New Zealand.
provide advice to Government and direction on Drawing from the Strategic Defence Policy
international defence relationships to maximise Statement 2018, the Strategy prioritises
New Zealand’s security and broader interests. New Zealand’s international defence
Having a network of strong international relationships and determines likely initiatives to
relationships serves to protect and advance maintain and develop our defence
New Zealand’s interests. engagement.
In line with this, the Ministry’s role in managing The Strategy ensures defence relationships
the full spectrum of international defence policy are appropriately prioritised, support broader
is growing. defence, security and foreign policy objectives,
and inform decision-making.
The Enduring Objectives of Representing New Zealand and
International Defence advancing our security interests on the
Engagement international stage
The Ministry has a role in representing
Shape the strategic environment
New Zealand at bilateral, regional and
to meet New Zealand’s interests multilateral engagements. Major engagement
Enhance New Zealand’s activities include:
reputation and profile as a supporting the Minister of Defence’s
valued and responsible international travel programme and hosting
information partner visitors to New Zealand
Contribute to regional and global supporting the international engagement
peace, security, and stability in activities of the Secretary of Defence,
Chief of Defence Force and tier-two
order to support an international
Defence leadership
environment, which promotes
New Zealand’s prosperity annual or biennial bilateral defence
dialogues with New Zealand’s defence
partners
active involvement in regional fora, such
New Zealand’s international defence as the South Pacific Defence Ministers’
engagement Meeting and the ASEAN Defence
Working with the Defence Force, the Ministry Ministers’ Meeting Plus
has developed an overarching International
attending major international defence
Defence Engagement Strategy, which is
conferences.
reviewed and updated every two years or
earlier as required.
The purpose of the Strategy is to:
identify and prioritise the international
defence relationships that add value to
New Zealand
STATEMENT OF INTENT 2019–2023 29The policy behind deployments concern is always the safety and security of
New Zealand has eight operational overseas Defence Force personnel deployed overseas.
deployments of Defence Force personnel The Ministry engages closely with counterparts
across a range of countries and regions, in from New Zealand’s likeminded countries on
addition to providing support for activities in all possible deployment activities. Whether
Antarctica. Each of these deployments is New Zealand will deploy, under what
mandated by Cabinet, usually for up to two conditions and level of commitment, is decided
years. by the Government of the day. The number,
New Zealand Defence Force personnel are frequency and variety of international security
deployed on major peace support operations, challenges necessitating an international
maritime security, logistics, training missions military response is on the rise and becoming
and into headquarters positions around the more complex. The Ministry, therefore, expects
world. the role for policy advice in this space to
continue to grow.
The advice to Government on deployments is
all-encompassing. It considers a wide range of The mandates for all current deployments will
issues, from the overarching political and expire during the period of this Statement of
security environment to the more specific Intent and, where an extension is proposed,
question of how the Defence Force could best the Ministry will prepare advice to Government
contribute to a particular mission. A central on this.
Deployment Mandate Expiry
Date
UN Command & Military Aug 2019
Armistice Commission (Korea)
UN Mission in South Sudan Jul 2020
Iraq Jun 2020
Maritime Security and Stability Jun 2020
Operations
UN Truce Supervision Sept 2020
Organisation (Golan Heights)
Multinational Force and Sept 2020
Observers (Egypt/Sinai)
Afghanistan Dec 2020
Operation Gallant Phoenix Dec 2020
(Jordan)
Figure 6: Current NZDF deployments (including Antarctica logistics support and NZDF’s capacity-building Mutual
Assistance Programme work in the Pacific and Southeast Asia)
30 STATEMENT OF INTENT 2019–2023DEFENCE DELIVERS CAPABILITY THAT BALANCES POLICY,
3 FUNDING AND REQUIREMENTS
Advice to Government on capability investment options in
accordance with the agreed Defence Capability Plan
What is the Ministry seeking
to deliver? Major capability projects
Enhanced portfolio, programme and project management
The Defence Capability Plan enables the Government to
make investment choices
How will we know we’ve Capability projects are delivered to schedule, cost and quality
been successful? standards
Improved capability management performance, as shown in
Defence’s Investor Confidence Rating grade
The Ministry implements the Government’s Defence
Capability Plan 2019, including annual reports to Cabinet on
delivery of the Plan
Projects operate in accordance with the standards, guidance
and practices of the Capability Management Framework
Portfolio and project management is strengthened
What will we achieve from Effective governance operates at the portfolio and project
this work? level
Systems and infrastructure are more aligned and integrated
Engagement is improved with Defence industry and there is
greater New Zealand industry involvement in Defence
procurement
Integrated Project Teams enhance collaboration and delivery
Improved Whole of Life costings
THE DEFENCE CAPABILITY PLAN policy intentions, outlined in the Strategic
2019 Defence Policy Statement 2018.
The signalled investments maintain the
In June 2019, the Government published the
$20 billion programme of capital investment
Defence Capability Plan 2019. The Plan sets
out to 2030, while improving the overall ability
out the indicative planned investments in the
of the Defence Force to respond to the
Defence Force out to 2030, as well as
strategic environment.
identifying potential investments to be made
after 2030. Delivering on these investments will Taken alongside recent commitments, the Plan
provide the Defence Force with the capabilities provides for the replacement and regeneration
required to give effect to the Government’s of all major defence capabilities. Indicative
STATEMENT OF INTENT 2019–2023 31investments planned for commitment between The Plan is focused on:
2030 and 2035 have been included to allow for
increasing New Zealand’s capacity to
considered, long-term planning for the Defence
respond to challenges in the Pacific
Force’s future needs. These capabilities will be
reassessed ahead of a 2022 Defence White sustaining the Defence Force’s presence
Paper. in the community
The timing and description, and cost of enhancing air surveillance capabilities
individual capability investments in the Plan
preserving the Southern Ocean and
are indicative, and subject to approval by
New Zealand’s marine living resources
Cabinet. Investment intentions are subject to
individual business cases justifying the maintaining New Zealand’s high-value air
investment, and funding being available capabilities
through the budget process, taking into
extending the life of the Anzac frigates
account other government priorities.
replacing the maritime helicopter fleet.
Figure 7: Planned investment in NZDF out to 2035 provided for in the Defence Capability Plan 2019
32 STATEMENT OF INTENT 2019–2023Once in a generation investments in The defence capabilities forecast in the new
defence capability Defence Capability Plan will be more
The investment in new military capability sophisticated than the decades old platforms,
required over the next 15 years will be the systems and equipment they replace, with
largest in more than three generations. The different support requirements over their
decision to acquire the P-8A Poseidon lifetime.
maritime patrol aircraft to replace the These new and complex capabilities will offer
Defence’s Force’s aging P-3K2 Orion fleet was New Zealand Industry opportunities – primarily
the first of several major platform replacement as part of a support supply chain.
decisions required before 2030. The second, a
The Defence Capability Plan 2019 builds on
decision to replace the C-130 Hercules tactical
the robust and transparent methodology
air transport fleet, will be taken during the
previously used for the 2013 Defence Midpoint
period covered by this Statement of Intent, with
Rebalancing Review and Defence White Paper
the Government agreeing that a price be
2016 to identify viable and fully costed options
sought through the US Foreign Military Sales
process for the C-130J-30 Super Hercules. for Ministers on investment in New Zealand
Defence Force capabilities. It assesses the
To realise the full value of previous upgrades value of military capabilities in meeting policy
to the Anzac frigates, as well as the current objectives, alongside identifying and costing
Frigate Systems Upgrade and intended possible military options. This methodology
communications systems upgrade, the Plan supports decision-makers to consider the
provides that the frigates’ expected service life relative value of military capabilities and
will be extended past 2030. This decision has indicative capital and operating funding tracks
been supported by independent analysis of the over a 15 to 20 year period to deliver a
vessels, which has demonstrated that they are sustainable and coherent defence force.
supportable for a greater period of time than Defence has continued to enhance and
previously anticipated. strengthen the analytical tools employed,
These upgrades will be completed in the early including the use of scenarios to assess future
2020s, at which point the ANZAC frigates will capability requirements.
provide a greater capability to the Defence Defence’s Long Term Investment Plan
Force than at any time since their introduction includes more detail on this, and this detail
in the 1990s. feeds into the Investor Confidence Rating for
Defence.
STATEMENT OF INTENT 2019–2023 33DEFENCE SUCCESSFULLY DELIVERS AND SUSTAINS
4 SYSTEMIC IMPROVEMENT
Partnership with the New Zealand Defence Force delivers
improved outcomes for both agencies, and improved services
to Government
Sustainable operations with contemporary organisational
What is the Ministry seeking practices, systems and policies, with a highly engaged and
to deliver? participative culture
An organisation that develops its people and offers them a
career in a national security workforce
A relevant and targeted programme of assessments and
audits that has impact
The new Capability Management System is embedded and
demonstrated through improved project performance
New Zealand is recognised as an international exemplar in
defence capability management
A high quality, professional workforce is demonstrated in the
level of engagement with key stakeholders and international
How will we know we’ve
partners
been successful?
A culture of high performance, innovation and continuous
improvement is demonstrated through Reviews and staff
engagement surveys
Assessments and audits assist improvements across key
areas of Defence, with a majority of recommendations
adopted
The Ministry systematically embeds partnership-building skills
and practices
The Ministry embeds the new ways of working articulated in
the enhanced Capability Management System
The Ministry reviews Defence performance under a work
What will we achieve from
programme approved by the Minister of Defence and when
this work?
directed by the Minister
The Ministry takes part in new sector initiatives to develop
people collectively
Ministry successfully manages the move to new office
arrangements in the Bowen State Building
34 STATEMENT OF INTENT 2019–2023The Defence Capability Management 2018 Review remained relevant, with the
System DCCAP continuing to instil a strong risk
The Defence Capability Change Action management culture across both the Ministry
Programme (DCCAP) was established in 2015 and Defence Force in the management of
as a joint programme between the Ministry and major capability acquisitions.
Defence Force to create a scalable and In 2018, the Treasury-sponsored Investor
resilient Capability Management System that is Confidence Rating Index assessment raised
capable of delivering an expanding portfolio of the rating from B to A for major Defence
complex projects. capability management. This has also
The 2018 Review of Defence Procurement reaffirmed that the investment in the Ministry
Policies and Practices for Major Capability since 2015 has resulted in a significant uplift in
Projects by Sir Brian Roche concluded that the project and programme management
DCCAP has addressed the structural, performance.
operations and information deficiencies of the The focus of our work is now is on embedding
previous system; and the new Capability the lift in performance. In addition, Defence is
Management System now provides decision improving the maturity of its portfolio,
makers with a strong level of confidence and programme and project management (using
assurance to support informed decision- the P3M3 tool), as well as benefits
making. The follow-up Review delivered in management and project delivery.
June 2019 found that the findings from the
Figure 8: An overview of the enhanced Defence Capability Management System
STATEMENT OF INTENT 2019–2023 35Embedding partnership in Defence the Defence Force. It will also enable
The relationship with the Defence Force is the collaboration in delivering advice on Defence
most important of a number of partnership policy, Defence Force deployments, and
relationships the Ministry has. The Ministry military capability.
describes its focus as to ‘be a valued partner, The Ministry is working with the Defence Force
with an influential voice’. as it leads the establishment of these facilities.
For Defence to succeed, both agencies need In addition, the Ministry is supported by a
to achieve their strategic objectives. The range of all-of-government tools provided by
Ministry has recognised this in describing a the government’s functional leads, including
Greatest Challenge that tests the outcome use of the common web platform for the
from the Ministry achieving its five strategic Ministry’s website, the Government Electronic
priorities. This is that: Tender Service and benefits from all-of-
government procurement contracts.
Defence has the people, relationships, Reviewing Defence Activities
policies and combat capabilities to The Ministry carries out assessments and
respond to concurrent and diverse audits to assist improvements across key
security challenges. areas for Defence. This role is mandated under
the Defence Act.
The Ministry has established a strong culture- A work programme is proposed for approval by
shaping programme to make sure it recruits the Minister of Defence. This comprises topics
and develops the attitudes and behaviours that that align with strategic risks to Defence, and is
foster partnered ways of working. focused on the performance of system-level
functions or core capabilities that support
Partnering is embedded into all layers of the
Government objectives. Each assessment or
enhanced Capability Management System. A
audit aims to provide findings, insights and
foundation to the new way of working under
recommendations that can be used to support
the enhanced system is the behaviours that
continuous improvement. The Minister of
support effective relationships between the two
Defence may also direct that reviews be
agencies.
carried out.
A sustainable, contemporary Ministry
of Defence
The Ministry has implemented modern, fit for
purpose policies that are appropriate for its
increased number of staff. The focus over the
coming years will be to embed and update
these to ensure they remain contemporary and
best practice.
In October 2019 the Ministry will move to new
shared accommodation in Defence House
(the upgraded Bowen State Building). This
building has been built to meet the specialised
security and sustainment requirements of the
Defence agencies and other related agencies.
Through this the Ministry will continue to
leverage economies of scale from co-locating
and sharing IT, security and other services with
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