Australian veterans who served at the Butterworth air base in Malaysia during a period of intense communist insurgency are voicing profound frustration over what they describe as a decades-long battle for official recognition of their service. Despite a recent tribunal finding acknowledging their deployment as 'non-warlike,' former Rifle Company Butterworth (RCB) soldiers lament ongoing government delays, fearing time is running out for many.

Deployed into a Volatile Environment

For veterans like Graeme Mickelberg, a platoon commander deployed in 1975, the memories of the Butterworth air base are anything but peaceful. Mr. Mickelberg, now residing on Queensland's Sunshine Coast, vividly recalls the palpable tension that permeated the region during the Second Malayan Emergency.

“There were attacks going on all around that part of Malaysia,” Mr. Mickelberg recounted. “Police were being killed by terrorists, and a strict curfew was in place for Malaysian citizens. Australian intelligence had assessed the base as a potential target, which was precisely why Rifle Company Butterworth was deployed.”

Between 1970 and 1989, approximately 9,000 Australian troops, typically on three-month rotations, were stationed at Butterworth. This period coincided with a communist insurgency, a continuation of the initial crisis from 1948 to 1960, which tragically claimed the lives of 39 Australian service personnel. Despite the evident dangers, the Australian Defence Force (ADF) has historically maintained that RCB's service during this second insurgency was "peacetime" in nature.

The Reality of Combat Readiness

Veterans vehemently dispute the "peacetime" classification. Mr. Mickelberg highlighted the rigorous training and operational readiness of the troops. “Everyone was trained in counter-insurgency warfare, the same type of tactics employed in Vietnam,” he explained. “We deployed with our weapons, were issued live ammunition, and had orders permitting us to use lethal force if the base came under attack.”

Indeed, a submission made by a Malaysian intelligence officer to a recent inquiry suggested that the sustained presence of armed Australian forces likely deterred potential attacks on the strategically important air base, underscoring the vital, if unacknowledged, role RCB played.

A Legacy of Secrecy and Delayed Justice

Stan Hannaford, who served as a machine gunner in Butterworth, pointed to the political climate of the era. He noted that then-Prime Minister Gough Whitlam's administration publicly framed the deployment of Australian infantry as routine training. “They [Malaysian forces] were fighting a war; they never had time to train with us,” Mr. Hannaford stated. “Whitlam had won an election by withdrawing troops from South Vietnam and abolishing national service. The last thing he wanted was to be seen deploying combat troops back into Southeast Asia, which led to significant secrecy around our mission.”

This secrecy, combined with a lack of acknowledgement upon their return, has fueled a relentless pursuit for justice. Mr. Hannaford has been instrumental in a group advocating for their deployment to be recognized as warlike service since the early 1990s.

Tribunal's Finding: A Partial Victory, Yet Stalled

In 2023, the Defence Honours and Awards Appeals Tribunal delivered a significant, albeit incomplete, victory for the veterans. Its inquiry concluded that RCB deployments between 1970 and 1989 were neither "peacetime" nor "warlike," but rather "non-warlike." While this finding means veterans do not meet the criteria for the Australian Active Service Medal, it does entitle them to more beneficial claims under the Veterans' Entitlements Act.

However, despite the tribunal’s recommendations, the veterans remain in limbo, waiting for the government to act. Mark Butler, a section commander of the Quick Reaction Force at Butterworth between 1977 and 1978, expressed profound frustration. “When we returned, there was no acknowledgement. It was specifically stated there was to be no publicity,” Mr. Butler recalled. “People have had that recommendation for around three years, and they are still sitting on their hands about it, which is not helping anyone. Our ranks grow thinner every year.”

'Delay, Deny Until We All Die'

The sentiment shared by many veterans is encapsulated in their protest banners: “Delay, deny until we all die.” Mr. Hannaford sadly noted that many of his comrades have already passed away during the protracted wait for recognition.

The urgency of the situation has garnered support from political figures. LNP Senator James McGrath, who advocated for the tribunal, publicly condemned the federal government’s inaction as “shameful.” “These men put their lives on the line so the rest of us can have a pretty good life, thank you very much, and yet the government then treats them so poorly,” Senator McGrath stated. “The minister just needs to make a decision. Three years is three years too long; these men are no spring chickens.”

Government Stance and Veterans' Resolve

Last December, the Minister for Veterans' Affairs, Matt Keogh, pledged to consign the "delay, deny, die" phrase to the "dustbin of history" when it came to support services, and recently announced equal access to health benefits for Vietnam War conscripts. However, direct action for Butterworth veterans remains pending.

A spokesperson for the Minister’s office acknowledged the significant contributions and sacrifices made by Rifle Company Butterworth veterans and their families. They confirmed that the government is "carefully considering the matter," noting that the tribunal's primary recommendations and further issues raised by veteran advocates impact a considerable number of veterans and different government departments, requiring "whole-of-government processes" for consideration.

For Graeme Mickelberg, such explanations offer little comfort. He asserts that Minister Keogh has a "moral responsibility to act." “If he thinks we’re going to give up, then he’s wrong,” Mr. Mickelberg declared. “I’ll be doing this until I die.” The veterans’ resolve remains unshakeable, even as they face the grim reality of dwindling numbers and the slow march of bureaucracy.