Tonga’s unique political structure helps ensure its foreign partnerships are among the region’s most stable. King Tupou VI is ultimately responsible for Tonga’s agreements and foreign partnerships and his son, Crown Prince Tupouto’a ‘Ulukalala, is also Minister for Defence and Minister for Foreign Affairs. Regardless of any potential alternative opinions within Tonga, the royal family will likely continue to view Australia and New Zealand as its primary security partners, but some space will be allowed for other partners.
Tonga is frequently cited as the only Pacific island nation to have not been colonised. While that may be an oversimplification of the region’s complicated and diverse history, Tonga certainly prides itself on maintaining its monarchy, with the Tupou family reigning since 1845. Tonga is one of only three Pacific island countries to have a military. His Majesty’s Armed Forces (HMAF) comprises up to 600 personnel and includes a land force, maritime force and air wing. The air wing has two aircraft for surveillance, search and rescue, though they are rarely used and may even be inactive.
In the region, HMAF has contributed to several peacekeeping and stability operations. Globally, Tongan forces have participated alongside Western partners in several wars dating back to World War I. Prior to becoming king, King Tupou VI was lieutenant-commander of the defence force, commanded the Australian-gifted Pacific Patrol Boat VOEA Pangai, and led Tonga’s contributions to peacekeeping operations in Bougainville.
The Tongan police force has over 500 personnel and is currently led by Australian Geoff Turner as police commissioner. Approved by King Tupou VI, Turner began his three-year term in May and follows Australian Shane McLennan and three New Zealand commissioners before that. Under an Australian commissioner, the Tongan police force has engaged in more training and exchanges with Australia and developed capabilities for countering transnational crime and the rising drug problem plaguing the region.
The diagram below gives an overview of Tonga’s key security partners and the types of support they provide to its security forces. The icons don’t reflect the full scale of assistance. For example, support could involve a single event with a specific outcome or a comprehensive, ongoing support package.
Australia’s security support to Tonga is underpinned by the Tonga-Australia Policing Partnership program and the Defence Cooperation Program. Australia has provided vehicles, including five all-terrain trucks known as unimogs in 2018; maritime security assistance, including two guardian-class patrol boats; training and infrastructure upgrades; as well as humanitarian aid. Some future security cooperation, including training and equipment has been outlined in the Australia – Kingdom of Tonga Development Partnership Plan 2024-2029.
China offered to provide training, vehicles and infrastructure to Tonga’s police ahead of the country hosting the 2024 Pacific Islands Forum Leaders’ Summit. While the offer of infrastructure was declined, the Tongan police force did receive vehicles and training. China has previously provided non-lethal equipment to HMAF and in 2008 promised an aircraft that didn’t eventuate.
Japan has delivered maritime security assistance and training to HMAF as well as humanitarian aid. Japan has also supported upgrades of the domestic wharf in Nuku’alofa.
New Zealand is working on a new statement of partnership with Tonga and has provided Tongan security forces with vehicles, infrastructure support—including the HMAF leadership centre—training, equipment and weapons.
The United States and Tonga signed a status of forces agreement in 1992. The US has cooperated with Tonga on maritime security, and the Nevada National Guard has a State Partnership Program with Tonga for training and humanitarian purposes. Several other countries, such as Britain, India and France, have also supported Tonga with equipment and humanitarian assistance. Israel has also previously provided HMAF with assault rifles.
When China’s offer of significant security support was partially rejected by the Tongan police force before the 2024 leaders’ summit, then police commissioner McLennan suggested the police would only allow China to provide assistance or embed officers if they provided help that wasn’t already available. This decision would have almost certainly been made with the broader approval of the King, but the statement was vague enough to allow flexibility in future scenarios.
Additionally, Australia and New Zealand are not immune to Tongan criticism. A leaked document from Tonga’s Ministry of Foreign Affairs showed that the country thought Australia and New Zealand had overreacted to Chinese activities in Solomon Islands and were ‘far removed from Pacific realities’ and ‘echoed the condescending rhetoric that [the Pacific], unfortunately, see too often from ANZ leadership.’ In those instances, it’s important for Australia and New Zealand to highlight the risks associated with certain activities, rather than focusing on expressing general concern.
Tonga has not publicly outlined any significant growth or development plans to foreign partners for its security forces in the coming years. But its security forces will likely continue to focus on delivering humanitarian aid and disaster relief, and countering illegal fishing, transnational crime and maritime violations.
Australia should work more closely with Tonga’s security sector to identify emerging and growing security threats to the region, including transnational crime, cyber crime, climate change and online harms such as scams, disinformation and exploitation material which contribute to family violence. HMAF’s participation in the potentially expanding Pacific Response Group could be a major point of greater cooperation and training, as will be the Tongan police force’s participation in the Pacific Policing Initiative.
ASPI’s Friends to all: Competing for Pacific security partnerships series can be found here.