This article investigates Australia’s relationship with the ‘Territory Papua New Guinea’ (TPNG) (today’s Papua New Guinea, PNG) to, in turn, shed light on why non-great powers seek to establish or maintain spheres of influence. Constellations where strong states wield exclusive control, or ‘predominant influence’, over external geographical space or smaller states, are frequently referred to as ‘spheres of influence’ (Bull 2002, 314; Kaufman 1976, 11; Keal 1983, 15; Resnick 2022, 566), which, despite its wide use in political discourse is an under-researched and ‘essentially contested concept’ in International Relations (IR) literature (Costa Buranelli 2018, 380). The phenomenon has competing conceptualisations, but this article defines spheres of influence as ‘hierarchical constellations characterised by practices of exclusion and control’ (Jackson 2020, 257). Despite suffering from under-theorisation (Etzioni 2015, 118; Hast 2014, 1; Jackson 2020, 255), it is quite well-established in the IR literature that great powers engage in sphere-of-influence practices and policies. Different traditions emphasise different things. In the constructivist tradition, for instance, ‘spheres of influence’ are considered a part of ‘great power identity’ (Murray 2019, 63–64; Recchia 2020, 515; Zala 2020). But upon closer scrutiny, this picture is somewhat incomplete. There are other states, not belonging to the category of ‘(self-identified) great powers’ which also articulate a desire to have some degree of exclusive control over adjacent external geographical space and pursue such policies.
Although there are disagreements regarding what type of country Australia is (Fern 2020), it has been identified as a ‘middle power’ by both scholars (Beeson 2011; Harijanto 2024; Widmaier 2019) and its own leaders (see Albanese 2024). Concomitantly, some of its leaders have also expressed views of its neighbouring region as Australia’s ‘patch’ (John Howard, quoted in McDougall 2019); an Australian sphere of influence (White 2019). There are two tensions one must keep in mind concerning Australia and spheres of influence. First, there is the one between the identification as a ‘middle power’ and the notion of spheres of influence. Second, there is the tension between Australia’s self-professed liberal principles and the notion of spheres of influence. These tensions have implications for two major IR schools of thought: constructivism and liberalism. Australia is a vocal advocate of the liberal (US-led) international order. Canberra frequently takes a stand in favour of a rules-based system and the self-determination of small states. However, as will be illustrated in a subsequent section, there is a parallel tendency in Australian foreign policy, as it simultaneously asserts that it has a special role in the region, the South Pacific, when it comes to maintaining order and its national interests.
Based on these insights, this article problematises the notion that a ‘sphere of influence’ primarily is an attribute for (self-identified) ‘great powers’. In problematising this ‘conventional wisdom’, the article sets out to address the following research problem: why do states which do not identify as great powers pursue spheres of influence in their geographical vicinity? To address this research problem the article investigates the case of Australia, seeking to answer the question: what explains Australian policy towards TPNG in the 1960s? By utilising digitalised archival material from Australia’s Department of Foreign Affairs and Trade (henceforth ‘DFAT’), this article explores Australia’s view on TPNG/PNG which gained its recognition as independent and de facto self-determination from Australia in 1975 (Denoon 2012, 4–5). The period covered is from 1966 to 1969, and I use thematic analysis to establish prevailing perceptions.
The large schools of thought in IR simplify spheres of influence to the extent that they risk giving inadequate accounts of the phenomenon. Instead, I argue that an ‘actor-centric foreign policy’ approach is a more beneficial way of analysing spheres of influence and states’ motivations for establishing them. Importantly, however, the article does not analyse foreign policy outcomes per se. Instead, it focuses on what Gideon Rose calls the ‘intervening variables’; a state government’s perception of its surroundings and the origin of these (1998, 157–161), which in turn inform the government’s foreign policy.
The article’s study unearths that several actors within the Australian government perceived the maintenance of Australian exclusiveness over PNG as central to the national defence. These findings lead the article to suggest that Australia’s experiences from the world wars contributed to specific perceptions of PNG that subsequently were applied to the context of the Cold War. However, the article also shows that within the same foreign policy establishment, there was a wide range of perceptions of the strategic environment, informing different policy preferences. From this, a wider theoretical suggestion is derived: states, regardless of their (self-perceived) ‘identity’, pursue spheres of influence depending on the prevailing perceptions of and meaning ascribed to their strategic environment as shaped by previous experiences. The main contribution, outside the purely empirical, is that the article problematises the utility of the structural IR schools of thought in understanding why and how states seek to establish spheres of influence. Instead, it suggests an actor-centric to understand and explain this phenomenon of states seeking to establish and/or maintain exclusivity over geographical space external to their territory.