Displaced Persons and the Politics of International Categorisation(s)

Between 1947 and 1952 170,000 Displaced Persons (DPs) arrived in Australia as International Refugee Organisation (IRO)‐sponsored refugees. This article sets out the international historical and political context for the migration of DPs to Australia, and interrogates the “bureaucratic labelling” inherent in the category “Displaced Persons”. The post‐war refugees were presented internationally as “Displaced Persons”, “refugees”, “political refugees” and eventually, in an effort to solve the population crisis, as potential “workers” and “migrants”. This article will describe the historical origin of the terms “Displaced Persons”, “refugees”, “political exiles” and “migrants”— terms which were, and continue to be, relevant and problematic.     

Separatism or Status‐Quo?: Indigenous Affairs from the Birth of Land Rights to the Death of ATSIC*

Unlike other settler societies, Australia has yet to recognise Indigenous peoples as “peoples” or “nations”. Despite this, we see something of a consensus emerging which suggests Indigenous “separatism” has been tried and failed in Australia, and it is time to revisit an integrationist approach in order to improve Indigenous peoples' socio‐economic position. This paper challenges the assumption that, beginning in the 1970s, Indigenous‐state relations have been characterised by the realisation of a separatist agenda. On the contrary, assessing three decades of Indigenous‐state relations reveals a consistent logic from the state which ultimately seeks to integrate Indigenous Australians, rather than recognise them as having a distinct — and separate — political identity. This logic reached its “natural” conclusion with the abolition of elected Indigenous political representation in 2005.     

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.     

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.     

“English Institutions and the Irish Race”: Race and Politics in Late Nineteenth‐Century Australia

During the 1880s there was fierce debate in colonial Australia and throughout the English‐speaking world about the functioning of increasingly democratic societies and especially who, in terms of race, class and gender, was qualified to participate in the political process. In this formative period of what later became known as the “White Australia policy”, minorities were under intense scrutiny and, within the settler population, the Catholic Irish were the most numerous minority. This paper discusses two controversial and widely‐reported 1881 articles by Melbourne writer, A.M. Topp. He argued strongly that the Celtic Irish were actually an “alien” race, fundamentally antithetical to English governance and morality. Mass Irish migration, in Topp's view, constituted a threat to the political stability and racial superiority of the whole English‐speaking world. Topp drew upon contemporary racial science and the works of leading intellectuals, but he was also influenced by political crises then occurring in the United Kingdom, the United States and Australia. Topp's articles, and the responses they elicited, highlight the complexities of race in colonial Australia by demonstrating that major racial differences were perceived by some to exist within what has often been portrayed as a largely homogenous “white” settler society.     

The Transformation of Australian Electoral Analysis: The Two‐Party Preferred Vote — Origins,Impacts, and Critics

Measuring party support in Australia by constructing a “two‐party preferred” vote has had a profound effect, not only on the way political scientists, journalists, and politicians understand electoral “swing” and predict electoral outcomes, but also on their understanding of the party system, their thinking about electoral fairness, and their views about which party or parties can legitimately claim government. This article traces the origins — the maternity as well as the paternity – of the “two‐party preferred”. It documents its spread from federal to state elections, even as voting systems in some states have switched from exhaustive preferential to optional preferential. It discusses its wide‐ranging impact, and its implications for notions of electoral fairness and the legitimacy of election outcomes. It evaluates various criticisms of the concept — technical, pragmatic, and conceptual. And it notes the implications for marginal seat campaigning of the commonly observed “uniform swing”— implications completely at odds with the idea that marginal seats matter.     

Rome and its Histories: a View from Australia

In this paper I trace the many debates about the past, and its relationship with the present and the future, that have eddied around Rome over the last two centuries. I spend quite a bit of time illustrating the Catholic line on the “eternal city” and on its contestation from, first, Italian nationalist and then more imperialist and Fascist expositions of “sites of memory” there. After “liberation” in 1944, there were new approaches to elucidating the city's meaning, headed by the “myth of Anti‐Fascism” and extending to a left terrorist reading by the Red Brigades. In recent years, “post‐fascism” has grown in importance in Italy's capital, especially as embodied by the mayor since 2008, Gianni Alemanno. These ideological and politically inspired reckonings of history have squared uneasily with the more popular comprehension of the place of the past, all the more given that Rome has been in rapid growth, first from within Italy and nowadays from across the globe. Specific urban groups, notably the city's Jews, have also read history in their own manner. In sum, Rome has not been a venue for a simple, two sided, “culture war”, as cliché assures us is our fate in Australia. Rather, as is also true here, Rome has proved a site of constant and multi‐fronted arguments about the meaning of history, as should be true of any serious democracy.     

“Team Australia”: Cartoonists Challenging Exclusionary Nationalist Discourse

In the context of the “war on terror”, Australian leaders announced that an increased threat of terrorist activity existed within Australia in 2014, which was generated by young people travelling to engage in military activity in the Middle East and returning “radicalised”. The prime minister at the time, Tony Abbott, called on Australians to rally together, in the face of such a threat, as “Team Australia”. This article analyses the responses by cartoonists to this call, focusing on the way the notion of Team Australia is portrayed as a challenge to core aspects of Australianness, such as mateship, multiculturalism and the “fair-go”. Frame analysis is used to explore how the cartoons connect with the broader populace and represent, challenge, reconstruct and rely on implicit and explicit understandings of Australianness. The cartoons frame Abbott’s Team Australia as exclusionary, unfair, politically elitist, anti-multicultural and “un-Australian”, even while pursuing a nationalist project.     

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.     

“No Colonial Baggage”: Imagining a Decolonised Australia-Africa Relations

As part of its strategy to win African votes for election to the UN Security Council (2008–12), Canberra sought to leverage its soft power potential by presenting Australia as having “no colonial baggage” in Africa while framing Australia as “a country from the Global North, located in the Global South,” and one that would “work with other small and middle powers.” Ultimately, the campaign was successful, including up to 50 of Africa's 54 countries voting for Australia. This paper considers this framing in the context of a shared but differentiated colonial history, including its contradictions, given that Australians fought several wars on African soil on behalf of the British Empire, supported white minority regimes and anti-communist movements on the continent, and maintained the white Australia policy until the 1970s. The paper deploys decoloniality theory to engage Australia's lack of a neat fit within a historicised articulation of a “coloniser-colonised” relationship between Europe and Africa. We show that, despite this lack of fit, Australia's relations with the countries of Africa reinforce long-standing of patterns of knowledge, power, and being associated with colonialism. Accordingly, the paper makes three recommendations for cooperation and innovative thinking in foreign policy and diaspora diplomacy between Africa and a more independent and multicultural Australia based on the “equality of being.”     

Third‐Party Campaigning and Issue‐Advertising in Australia

Large‐scale issue‐advertising by third parties appears to be increasing in Australia. This article analyses recent official data on political expenditure, and situates such campaigning in historical perspective with case studies of the bank nationalisation, Medibank, WorkChoices and mining tax campaigns. The success of the latter two campaigns illustrates the potential for well‐resourced sectors to employ what has traditionally been seen as an “outsider” tactic. The various drivers of the phenomenon are discussed, including evolving trends in political engagement and the media, and fluctuations in perceptions of governmental strength or weakness. The most distinctly Australian aspect of the phenomenon is the tendency in recent decades for governments and third parties to engage in a “call‐and‐response” cycle of issue‐advertising.     

Handout or Hand‐up: Ongoing Tensions in the Long History of Government Response to Drought in Australia

In 2014 the Coalition government announced a 320 million dollar package for drought‐hit farmers. In describing this initiative as a “hand‐up” not a “hand out” Prime Minister Tony Abbott encapsulated more than 150 years of tension over whether government drought response should be unconditional limited relief or conditional longer‐term assistance. This paper considers the long history of drought assistance in Australia as seen through government legislation, year books, newspapers and personal papers. It argues that despite changing political and social circumstances, contradictions in the approach to government drought response, as well as in public and personal reactions to those policies, have remained remarkably consistent. We further suggest that lack of consensus over the inherent nature of drought is not sufficient to explain the dilemma.     

“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.     

An Exercise in Police Co‐operation? The Origins of the Conference of Australian Police Commissioners

Research on police co‐operation has focused on international co‐operation and the challenges encountered on the path to a common Europe. Much less attention has been paid to historical challenges of police co‐operation within the boundaries of nation‐states with multiple police agencies. In this article we examine the origins of an institutional approach to the problems of policing within a federation. In Australia police commissioners of the various jurisdictions have been convening in a national forum for more than a century. This practice has its origins in late‐nineteenth century developments in criminal identification technologies such as Bertillonage and fingerprinting. The inaugural meeting of state police commissioners occurred in 1903 and after 1921 it became an annual event. In sum, we argue that the historical evidence from Australia suggests that the emergence of police co‐operation within national boundaries is likely to replicate the patterns observed in the development of international police co‐operation across the late nineteenth and early twentieth centuries.     

Moving Beyond 100 Years: The “WA Approach” to National Party Survival

Since its formation in 1913, the Western Australian branch of the National Party has faced many challenges to its survival. Electoral reform removing rural malapportionment in 2005 prompted changes in strategic direction, including abandoning coalition with the Liberal Party and creating a discrete image, branding and policy approach. Holding the balance of power after the 2008 election, the party adopted a post‐election bargaining strategy to secure ministries and funding for its “Royalties for Regions” policy. This “WA approach” is distinctive from amalgamation and coalition arrangements embraced elsewhere in Australia. This article updates progress of the strategy following state and federal elections in 2013 and finds that it has been a success measured by increased votes, seats and policy influence and expansion into regional Western Australia to displace Labor. However, its applicability to other branches of the National Party is likely to be limited.     

Australia and Scotland: the Evolution of a Long‐Distance Relationship1

Scotland's impact across the world undoubtedly stretched to the Antipodes particularly, but not only, in the colonial era. Under the “canopy of Empire”, Australia and Scotland were linked by migration, trade, capital movements and by cultural ties. But these were all two‐way ties. They did not simply colour the “Australian civilisation”. Rather there was a vital and shifting reciprocation between Scotland and Australia. The relationship between them has mainly been determined by their different economic trajectories. Today financial and skilled human capital move each way between the two countries with heightened velocity and efficiency. These flows, along with continuing cultural connections, enmesh two fully developed modern economies.     

Moving the Genocide Debate Beyond the History Wars*

The “History Wars” have paralysed the scholarly discussion on genocide in Australian history, because genocide is regarded as a politicized concept that distorts historical understanding. Both the public sphere and much historiography continue to regard genocide as a synonym for the Holocaust, framing public discussion of genocide in Australia as well as discouraging historians from engaging with the international comparative literature on colonial genocides. This article aims to stimulate reflection on these issues by explaining the origin and meaning of the term in intellectual and legal history. It suggests that thinking of genocide as a form of extreme counter‐insurgency helps us comprehend how colonial violence unfolds. Finally, it highlights some potential limitations of the concept in understanding the Indigenous experience of colonial genocide, before suggesting how historians can deploy it in the service of scholarship rather than “History Wars”.     

From Missionary to Ministerial Adviser: Constance Duncan and Australia‐Japan Relations 1922‐1947

The contribution of A. Constance Duncan (1896‐1970) to Australia‐Japan relations has been overlooked in mainstream historiography. This article examines her role in the development of these relations from 1922 to 1947. She was one of the few women to be accepted into the elite inner‐circle of intellectuals influencing Australian foreign policy during this period. In 1922 she embarked on a career in Japan as a missionary, or “foreign secretary”, for the Young Women's Christian Association. She returned to Australia in 1933 and took up a position with the Bureau of Social and International Affairs. Her familiarity with Japanese culture and society, together with an abiding interest in promoting world peace, led naturally to her participation in the world of international relations at a time of heightened interest in the Asia‐Pacific region and Japan in particular. She was part of an intellectual movement that considered an educated Australian public to be of paramount importance in future Australia‐Japan relations and international relations generally. This article traces her activities and examines her influence in the educational field and on Australian foreign policy‐making.     

“Then in 1915”: Eric Bogle’s “And the Band Played Waltzing Matilda”

The anti-war song “And the Band Played Waltzing Matilda” has become a cultural icon in Australia, and elsewhere has been recorded over 130 times in 10 different languages. The song was written in 1971 by Eric Bogle, a Scottish immigrant to Australia, who has penned more than 250 powerful compositions, which, among other things, focus on the failure of history to impress upon youth the futility of war. Appropriately, Bogle was named Australian Humanist of the Year in 2001 for capturing “the ethos of humanism through his perceptive and individualistic songwriting with its exposure of racism, bigotry, warmongering and injustice of all kinds”. Additionally, he was awarded the United Nations Peace Medal (1986), and was made Member of the Order of Australia (1987). This article asks why a song written by a Scot in Australia, fifty-six years after the Dardanelles campaign, feels as if it has “always existed. That it belongs to culture and country”. It questions what the appeal imbued within the lyrics of those five short verses might be and recounts the story behind the creation of what Pete Seeger referred to as “one of the world’s greatest songs”. Through interviews with the writer, and an examination of the relevant historiography, this article presents a study of “the most potent ballad of the age”. It also examines what Bogle meant when he said that it was a song that “came into its time”.