“Rediscovery”, “Reinvigoration” and “Redefinition” in Perpetuity: Australian Engagement with India 1983–2011

For the past twenty‐five years Australia's bilateral relationship with India has been typified by an ongoing process of “rediscovery”, irrespective of whether Labor or Liberal administrations have steered foreign policy. This article explores the reasons why this might be the case by analysing Australia's foreign policy approaches to India spanning the period 1983 to 2011. It interrogates various Labor and Liberal strategies that have been mobilised to “reinvigorate” the relationship and searches for reasons why they have only been partially successful in strengthening Australia's rapport with India. The authors draw upon discussions with strategic affairs editors of India's major daily newspapers and current affairs journals to gain insights into Indian impressions of Australia from a political and foreign policy perspective.     

“A Good‐Will Ship”: The Light Cruiser Köln Visits Rabaul (1933)

The concept of loyalty still holds a central space in many histories about New Guinean‐Australian relations, especially during the Second World War, and translates into demands by Australians that New Guineans recognize Australia's political system as “the best”. In this article about the visit of the first German navy cruiser to New Guinea after the First World War, I tell a story not about loyalties, but about contesting colonial claims, namely Australia's insistence on “loyalty”, and Germany's demand for a “return” of her colony. The visit of Köln in 1933 raises questions such as: How did Germans and Australians negotiate living together in the Mandated Territory of New Guinea? How were divisions, grief, tensions, and hostilities after the First World War dealt with? What separated them, what united them, and what role did New Guineans play in this complex relationship?     

“Super” Debates within the Antipodes? Explaining Differing New Zealand and Australian Retirement Policies in the late Twentieth Century

As others have shown, for much of the twentieth century, “although to different degrees in different periods and to different degrees in the two countries”, New Zealand and Australia shared a peculiar approach to social protection internationally. In particular, Francis Castles has published widely on the Antipodean “wage earners’ welfare state”. He has also shown, however, that New Zealand and Australia took quite dissimilar paths in refurbishing each welfare state in the last two decades of the twentieth century, significantly over superannuation. Most commentators attribute the distinction to dominant political personalities. New Zealand's Robert Muldoon's “election bribe” in 1975, meant a compulsory paid‐work based superannuation system, akin to the one Australia came to develop, was replaced by a universal pension scheme. Australia's Paul Keating implemented the compulsory Australian superannuation scheme in 1992 confirming the trajectory begun in the 1970s. In this paper I put the spotlight on the 1970s corporatism and Australasian industrial cultures to explain the varying New Zealand and Australian superannuation pathways. Such an approach emphasizes multilayered historicity, agency and contingency outside leadership‐driven models. It points to variance and its limits rather than convergence, despite, and because of, common origins and welfare foundations.     

State vs Federal Government in the “Barmaids” Case: Regulating Australia's Second World War Home Front

Australia's National Security Act of 1939 authorised the federal government to make emergency regulations “for securing the public safety and defence of the Commonwealth [of Australia]”. Further, it instructed the government to decide for itself what might be “necessary or convenient” for the “more effectual prosecution of the present war”. 1 This article examines the authorisation of the civilian leadership through one set of emergency regulations, the National Security (Women's Employment) Regulations, and analyses their functioning through one operational decision, the decision to permit women to serve in South Australian hotel bars with the intention of releasing male bar workers for essential industrial or military employment. Managing the home front proved complex. Sectional interests continued to jockey for positions of influence, even in war conditions. In this case, the state of South Australia sought to protect its “rights” against federal control of employment: a contest fuelled by an ideological squabble about what were then known as “barmaids”. I argue that Australia's centrally‐determined national war goals were undermined by its federal sovereignty‐distribution mechanism, which allowed sub‐national elements such as South Australia to impede national policy, and conclude that even with extensive defence powers to draw on, the federal government's war goals were obstructed by non‐war interests.     

Strategic Othering: Framing Lebanese Migration and Fraser's “Mistake”

Australian Minister for Immigration and Border Protection, Peter Dutton, has framed the mid‐1970s immigration of Lebanese affected by civil war as Prime Minister Malcolm Fraser's “mistake”. His remarks sparked controversy in the parliament and the media. The issue became a contest of frames between the Murdoch media, which supported the Minister's “mistake” frame and argued his right to “tell the truth”, and the Fairfax media, which viewed the Minister as being “racist” for “scapegoating” the Lebanese community. Along with archival documents, this article examines the context and coverage of the Minister's remarks, noting that the frames presented in the media “indexed” those adopted amongst political elites, while failing to re‐examine the historical record. This case study demonstrates the power of framing and the media's tendency to accept rather than challenge frames used by those in the political contest, with the result that errors in the representation of history were never corrected. This article draws on framing theory and indexing theory and concludes that the “mistake” frame for the Lebanese feeds into narratives that serve to “other” Muslim and Arab groups, fanning fears and mobilising a discourse of Islamophobia around the exclusion of “undesirable” immigrants on the basis of “cultural fit”.     

“Dished like a dinner” by the Victorians? The 1899 Seat of Government Compact and its Repercussions in the early Australian Commonwealth

At a “secret” conference in January‐February 1899, the premiers of the Australian colonies agreed on an amendment to the draft Commonwealth Constitution Bill to grant New South Wales the permanent seat of government in the Australian federation. One of the conditions placed on that concession, however, was that Melbourne would initially host the Commonwealth parliament. Spanning the decade from that agreement to the Commonwealth parliament's selection in 1908 of Canberra as the site for the permanent federal capital, this paper shows that the compact on the seat of government provoked powerful resentments in New South Wales and especially Sydney because of the political and material advantages it was seen to have conferred on Melbourne. While the paper argues that resentment was actuated by residual anti‐federal sentiment and regional chauvinism, it also suggests that hosting the legislature did promote Victoria's pre‐eminence in the early Commonwealth and had enduring effects on the nation. In doing so, it speaks to the shaping influence of place and distance in Australian history.     

Australia's “War on Terror” Discourse

Australia's “War on Terror” Discourse. By Kathleen Gleeson (Ashgate Publishing Company: Surrey, 2014). ISBN: 9781472419859. £65.00 (hb).     

Partisan Pork‐Barrel,Independents and Electoral Advantage: Australia's Regional Partnerships Program in 2004

This article, building on previous research into earlier Australian pork‐barrel schemes, uses data from Australia's Regional Partnerships Program (RPP), and its apportioning of $104 million in constituency‐level grants in 2003–4, to explore the distinctive logic of parliamentary pork‐barrel politics. Results show that the Liberal‐Nationals Coalition's distribution of these funds was consistent with three electoral priorities — to reward its own MPs and show voters that the government “can deliver”; to provide vote‐winning assets in the Coalition's most marginal seats, where even small vote gain can make the difference between victory and defeat; and to try to re‐establish its credibility at the local level in regional seats that had proven vulnerable to inroads made by Independent candidates.     

The Australian Citizenship Test: Process and Rhetoric

In late 2007, Australia's relatively liberal citizenship eligibility requirements were modified, ostensibly to improve the value of citizenship by restricting access to it. A key change involved the introduction of a citizenship test. This article tracks its development and implementation. We challenge claims of overwhelming support for the test, explore the discourses around the “Australian values” being tested, and outline the process by which the legislation was enacted (during which a number of principles of parliamentary democracy were compromised). Using evidence from politicians' speeches, we argue the citizenship test served to re‐direct the Australian imagination away from a nascent “multicultural” identity, back to one redolent of the times of the “White Australia Policy”, confidently celebrating connections with an Anglo‐Saxon heritage, the European Enlightenment, and Judeo‐Christian roots. As such it was a key aspect of the 1996–2007 Howard Government's retreat from multiculturalism.     

“Characteristically Generous”? Australian Responses to Refugees Prior to 1951

When Australia pledged to accept 15,000 Jewish refugees from Europe in 1938, it was applauded by the London Times as “a characteristically generous contribution” and an example for others. Australia's reputation for generous humanitarianism was solidified after the war when it absorbed more than 180,000 of Europe's Displaced Persons and committed to international human rights instruments designed to protect refugees and asylum seekers. This reputation has been used to both defend and critique the nation's contemporary responses to asylum seekers. Recent Australian Prime Ministers have invoked Australia's proud record of refugee resettlement to deflect criticism of their tough border control policies, policies which critics charge repudiate the nation's humanitarian traditions. This article critically reviews the history of Australia's responses to refugees and asylum seekers prior to 1951 and demonstrates that contemporary border control policies are neither a deviation from, nor defence of, a proud humanitarian record. Rather, they embody the migration management approach to refugees that provided impetus for Federation in 1901, governed Australia's response to the Jewish refugee crisis in the 1930s, and shaped its conditional acceptance of the Displaced Persons and the position it adopted in the drafting of the United Nations Convention Relating to the Status of Refugees in 1951.     

Leadership: Arthur Calwell and the Post‐War Immigration Program*

Arthur Calwell was the major architect of Australia's successful post‐war migration program that laid the demographic, economic and cultural foundations of contemporary society. In public memory, however, Calwell is now mostly associated with the White Australia policy, which aimed to preserve Australia as a white, British‐Australian society by severely restricting Asian immigration. This article assesses Calwell's leadership of the immigration program, his impact and his legacy. It identifies three distinct, often irreconcilable leadership characteristics, defined in terms of him as “innovative policy‐maker’, “political broker” and “agitator”. This focus on leadership challenges the one‐dimensional view of Calwell that exists in Australian political historiography. It is also intended to extend our engagement with leadership studies and illuminate the role leadership plays in political decision‐making, especially sensitive portfolios like immigration.     

Book Reviews

Book reviewed in this article: “Rats and Revolutionaries”: The Labour Movement in Australia and New Zealand 1890–1940. By James Bennett John Curtin: Guide to Archives of Australia's Prime Ministers. By David Black and Lesley Wallace Ten Pound Poms: Australia's Invisible Migrants. By A. James Hammerton and Alistair Thomson Freud in the Antipodes: A Cultural History of Psychoanalysis in Australia. By Joy Damousi Terms of Trust: Arguments over Ethics in Australian Government. By John Uhr A Trial Separation: Australia and the Decolonisation of Papua New Guinea By Donald Denoon An Indonesian Frontier: Acehnese and Other Histories of Sumatra. By Anthony Reid Vestiges of the Colonial Empire in France: Monuments, Museums and Colonial Memories. By Robert Aldrich     

Robert Manne's Wilfred Burchett: The Uses and Abuses of Biography

Robert Manne numbers amongst Australia's most influential public intellectuals. Though his politics have moved leftwards, Manne remains critical of the left's so‐called neo‐Stalinist interpretation of Cold War history. Of particular concern is the left's defence of the radical Australian journalist, Wilfred Burchett, who was widely regarded as a communist propagandist and traitor. Manne's 1985 Quadrant essay, “The Fortunes of Wilfred Burchett: A New Assessment”, lent considerable academic weight to this view. Though Manne has since acknowledged some errors, he still maintains that Burchett was a communist “hack” and traitor. But Manne's argument remains selectively based and erroneous. It uncritically accepts security‐based intelligence, while sidestepping the abuse of Burchett's civil liberties by Liberal governments. Manne uses and abuses Burchett's life to push his ideological agenda about Stalinism's evils.     

Australian Reporting of the Indonesian Killings of 1965–66: The Media as the “First Rough Draft of History”

This article examines Australian press coverage of the Indonesian killings of 1965–66, and considers its legacy for the historical consciousness of events in Indonesia. The Indonesian killings of 1965–66 occurred on Australia's doorstep, at a time when the Cold War dominated the front pages of Australian newspapers. By examining articles from one of Australia's leading newspapers, The Sydney Morning Herald, we show that press coverage of the killings was both limited and distorted. Comments made by correspondents reporting from Indonesia at the time suggest reasons why this was the case. In the rush to write a “first rough draft of history”, the killings in Indonesia were treated as background to the story of leadership change in Jakarta and the defeat of Communism.     

The Reappraisal of the White Australia Policy against the Background of a Changing Asia, 1945–67*

This paper is concerned with the way in which Australian policy‐makers approached the problem of “White Australia” in the years 1945–67. It makes extensive use of original archival material to show how Australia's increasing engagement with Asia in the 1950s and 1960s exercised a direct influence on officials within the Department of Immigration. In response to Australia's changing geopolitical circumstances and the international community's increasing hostility towards racism during this period, Immigration Department officials persuaded the government to introduce a series of piecemeal adjustments which were specifically designed to placate Asian and world opinion. Although cautious, these changes nevertheless involved a corresponding reassessment of the policy's racial assumptions. By accepting in the late 1960s that certain Asians were capable of being integrated into the Australian community, policymakers had discarded the previously inviolable belief that all non‐Europeans were unassimilable by virtue of their race. The White Australia Policy, though not entirely defunct by the end of the decade, was nevertheless crumbling under the weight of Australia's new circumstances.     

The Failures of Neo‐Liberal State Building in Iraq: Assessing Australia's Post‐Conflict Reconstruction and Development Initiatives

This article examines Australia's post‐conflict reconstruction and development initiatives in Iraq following the intervention of 2003. Overall, it finds that Australia privileged the neo‐liberal model of post‐conflict state building by investing in projects that would enhance the capacity of the new Iraqi state, its key institutions and the private sector towards the imposition of a liberal democracy and a free‐market economy. To demonstrate, this article documents the failures of the Australian government's stated aims to “support agriculture” and “support vulnerable populations” via interviews conducted in Iraq with rural farmers and tribal members and those working in, or the beneficiaries of, Iraq's disability sector. It concludes by noting that such failures are not only indicative of the inadequacy of the neo‐liberal state building model, but also that these failures point the way forward for future post‐conflict reconstruction and development projects which ought to be premised on a genuine and sustained commitment to addressing the needs of those made most vulnerable by war and regime change.     

“a carefully weighed plan with adequate safeguards for us”: Economic Policy and the Coordination of Australian-US Approaches to Japanese Aggression, 1939-41

The historical narrative of Australia's foreign and defence policy-making during the Pacific War tends to foreground the years 1941–42, characterising them as the turning point when the government realised that Britain alone could no longer protect Australia's regional security interests and turned to the United States of America for its salvation. This article makes a contribution to the alternative view, arguing that Australia was looking to the US well before Prime Minister John Curtin's famous “looks to America” proclamation. It does so with a focus on Australia's thinking and policy towards the engagement of the US in the years 1939-41, arguing that the coordination of its economic policy with the US, rather than seeking insight into high-level strategic planning, offered the nation the greatest opportunity to tie its security interests in the Asia-Pacific region with those of the US. In exploring the role of economic policy in Australia's preparation for war, this article offers new insight into the maturation of Australia's foreign policy apparatus.     

The Fraser Government's “Uranium Decision” and the Foundations of Australian Non‐Proliferation Policy: A Reappraisal*

The Fraser era represents a defining moment in Australia's approach to the issues of uranium exports and non‐proliferation policy. In contrast to some well‐established positions in the literature, this essay argues that the Fraser government's August 1977 decision to approve the export of uranium was framed not only by domestic political considerations stemming from the Ranger Environmental Inquiry but also by important international factors. In particular, I argue that the non‐proliferation initiatives of the Carter administration presented the Fraser government with an opportunity to portray the export of Australian uranium as means to strengthen the non‐proliferation regime and enhance Australia's influence.     

Party unity and presidential dominance: parliamentary development in the fourth republic of Ghana

Political power in contemporary sub-Saharan Africa is often portrayed as being highly informal and heavily personalised. The assumption that personalised politics is how ‘Africa works’ has led to the neglect of the study of Africa's formal institutions, including parliaments. This article assesses the position of the Parliament of Ghana under the Fourth Republic. It displays evidence suggesting that over successive parliamentary terms parliamentary committees became increasingly adept at handling legislation, and inputting into the policy process. It also shows that the parliament was increasingly able to oversee the implementation of legislation. Although the findings of hitherto undocumented progress represent a valuable nuance, the argument that the parliament became increasingly able to input into the legislative process says exactly that; while the parliament became increasingly capable of amending legislation rarely was this witnessed. The article argues that parliamentary development in Ghana has been a function of three interacting structural factors: the constitution; unified government since 1992; and political party unity. The strong partisan identities of legislators from the two major political parties – the New Patriotic Party (NPP) and National Democratic Congress (NDC) – provide the executive with extra leverage to control the parliament. Throughout the Ghanaian parliament is juxtaposed with the Kenyan National Assembly. More substantially, the article seeks to force a revision of the dominant narrative that generalises African party systems as fluid and fragmented, and African political parties as lacking any recognisable internal cohesion or ideology.