The Council for the Australian Federation: A New Structure of Australian Federalism

In October 2006, state premiers and territory chief ministers gathered in Melbourne for the first meeting of the Council for the Australian Federation (CAF). This little‐heralded event marked the beginning of the first formalised structure for state and territory only collaboration since Federation. This article describes the genesis and creation of this new structural response to ongoing state concerns about the trend to an increasingly centralised pattern of Commonwealth‐state relations. It identifies the intended functions of the Council, which include: acting as a mechanism for coordinating approaches to negotiations with the Commonwealth; operating as a clearing house for policy ideas in Australia and internationally; harmonising regulatory frameworks; and developing improvements to service delivery in areas of state responsibility. Informed by interviews with key players involved with its establishment and documentary sources, this article assesses CAF's performance during its first 18 months of operation. It explores the hopes and aspirations of key CAF stakeholders, and some of the issues that have confronted the fledgling organisation. Personnel changes among the cohort of state and territory leaders, and the election of a federal Labor government in November 2007 have altered the dynamics of CAF. The article argues that CAF's emergence is an attempt by sub‐national governments to develop new capacity and leverage to address the asymmetries that characterise contemporary Australian federalism. However, there are questions about CAF's future, particularly about state and territory governments' capacity to pursue collaborative agendas given the pace and scope of Kevin Rudd's ‘new federalism’ reforms and the demands it is placing on their policy and administrative systems.     

Comparative Climate Change Policy and Federalism: An Overview

This commentary provides an overview of the four papers in this issue of Review of Policy Research on the politics of climate change. The papers all address in one way or another aspects of how federal‐type systems are dealing with the collective action and multilevel governance issues of climate change policy. The comparative study of federal systems provides insight into how domestic authority is so often overlapping and divided when dealing with greenhouse gas emissions and climate change. Federal arrangements offer a rich array of norms, institutions, and practices for tackling these problems. Federal systems grapple continuously with the kinds of issues that are the most intractable in the climate change case, such as overcoming interregional differences of interests and values. A common federal feature is competition among subnational governments and between them and national or federated governments over climate change policy, which has been especially significant in the United States and in Canada in the relative absence of national action––although soberingly, the whole is as yet nowhere near as great as the sum of the parts. More significant, but rarer is the achievement of tighter coordination in federal systems achieved through intergovernmental co‐decision, as seen in the European Community and Australia. This has been accomplished in large part due to a consensus among all intergovernmental parties on the nature of the problem and congruence with the existing international regime, characteristics missing in the North American context.     

Federalism,Physicians, and Public Policy: A Comparison of Health Care Reform in Canada and Brazil

Abstract

This article uses comparative historical analysis to explore physicians’ involvement in health care reform in Canada and Brazil. Drawing on historical institutionalism, the analysis stresses how, beyond partisanship, physicians build consensus around and promote specific policy ideas, and how federal institutions shape physicians’ mobilization. In both countries, physicians’ mobilization shaped the emergence of universal health care coverage, but in quite different ways, because of the differing federal institutions. Although the Brazilian medical lobby was far more heterogeneous than the Canadian profession, one faction was able to mobilize at the local level to pursue policy ideas favorable to universal health coverage.     

The Malaise of Federalism: Comparative Reflections on Commonwealth–State Relations

The High Court's decision in the ‘Work Choices’ case expanding further the scope of the Commonwealth's enumerated powers is the latest reminder of the highly centralised nature of Australian federalism. The division of powers traditionally forming the essence of a federal system has become increasingly difficult to discern and the roles and responsibilities of the two levels of government have become entangled. While for a good part of Australia's history divided jurisdiction was deplored as an obstacle to progress in government, today the decay of the system is most likely to be lamented. Discussion of options for reform presupposes an understanding of the forces that have led to the present condition. This article examines the Australian experience in a broader comparative and historical perspective and suggests that those forces are endemic and substantial.     

Public Management Reform: Competing Drivers of Change

Public management reforms often are portrayed as part of a global wave of change, and all organizational change is interpreted within a single reform paradigm that is rooted in economics and market–based principles. Reforms outside this paradigm go unnoticed. This article examines the assertion that different drivers of change competing with the dominant focus of management discourse remain present and influence the direction of reform. It presents three alternative drivers of change rooted in normative values and provides evidence of their relevance from three national cases. Normative influences are reflected in a stream of activities occurring within the same time period in different civil service systems. The direction of public management practice cannot be seen as fully determined by any one approach to government reform or as traveling in only one direction. Understanding the balance among competing drivers of change is a key to interpreting both contemporary and future administrative reform.     

Federalism, Political Structure, and Public Policy in the United States and Canada

Two of the three large countries on the North American continent—the United States and Canada—share a number of similarities that often make it difficult for the untrained observer to differentiate between the two nations. On the surface, the two are structured similarly as federal systems that, by definition, exhibit shared power between the national government and provincial or state political entities.Although there are other important social and economic characteristics of the two countries that help explain differences in policy processes and outcomes, it is the contention of this article that one gets the clearest sense of what Elazar has called thinking federal by utilizing an analytical approach that joins questions related to federalism with some conceptual frameworks of the public policy field. Two frameworks undergird the argument in this article—the Lowi typology of different types of policies and Deil Wright's typology of different models that describe the American inter-governmental system.In both countries, policies must be sensitive to the greater interdependencies between units of government as well as to linkages between policy areas. The mechanisms or instrumentalities for dealing with policy issues are intrinsically complex. It is also clear that the intergovernmental networks that exist in both the U.S. and Canada are composed of an array of actors. The differing political structures of the systems do impact the types of intergovernmental policies that have emerged in the two countries. The executive dominance so imbedded in Canadian governments has contributed to their ability to adopt and implement certain controversial redistributive policies, such as a national health insurance program. By contrast, the fragmentation of the U.S. system makes redistributive policies more difficult.     

Federalism in Africa: Origins,Operation and (In)Significance

Abstract

Recent years have seen major advances in the comparative study of federalism and a growing literature on decentralization in Africa, but there has been surprisingly little systematic comparison of African federalism. This article explains several commonalities in the origins and operation of Africa's three main federal states: Ethiopia, Nigeria and South Africa. Each country used ‘holding-together’ federalism in order to accommodate ethnic pluralism. Each country—especially Ethiopia and South Africa—also experienced several key centripetal forces: dominant governing parties, top-down state administration and high degrees of fiscal centralism. Federalism mattered in offering accommodative decentralization, but in its operation subnational governments have limited autonomy because of these interlocking centralizing features. This African variant of federalism can have certain salutary features, even as it precludes the possibility of many of the theorized advantages of federalism that are predicated on real subnational autonomy.     

The Future of Belgian Federalism: An Analysis of Party Preferences

This article studies the political discourses regarding the future of Belgian federalism since the year 2000. Analysing party manifestos, it intends to identify patterns of preferences about the long-term evolution of Belgian institutions and the distribution of competences. The quantitative and qualitative analysis shows that the systemic duality of Belgian federalism largely explains the preferences of political actors: French-speaking parties overall oppose the broad state reform that the Dutch-speaking parties collectively support. Yet, each party has a specific position on the decentralization cleavage and a vision of Belgian federalism that cannot be reduced to its linguistic affiliation.     

Beyond the Blame Game: Political Strategies for State Funding Reform

There is growing concern that intergovernmental financial relations in the Australian federation are becoming increasingly acrimonious and dysfunctional. This paper argues that it is necessary to analyse State funding as a whole, including the critical relationship between State‐level taxation and its reform and the broader Commonwealth Grants Commission regime, if we are to establish a system of State funding which is financially sustainable, promotes economic efficiency and is broadly congruent with established norms of Australian federalism. Above all, based on international experience, we argue Commonwealth leadership is required to achieve this goal. We conclude with a case study concerning resource taxation which demonstrates how the Commonwealth could provide leadership using a ‘bundled’ approach to policy reform. It is argued that such an approach has the potential to alleviate wider intergovernmental conflicts which currently afflict Australian federalism.     

Indian Federalism and Democracy: The Growing Salience of Diversity-claims Over Equality-claims in Comparative and Indian Perspective

This article introduces a conceptual distinction between diversity-claims and equality-claims in order to reflect critically on the relation between federalism and democracy in India, which is not adequately problematized and somewhat neglected. Federalism and democracy suggest two different problematics, but in India democracy has often played second fiddle to the claims of diversity. As a result, India's success as a federation has not been paralleled by its record as a democracy in terms of its equality functions. Since the article engages with the issue of accommodation of diversity in the wake of federation-building, and the relation between federalism and democracy, critical references are made to the relevant theoretical literature in order to point out federalism's new problematic and its pitfalls. With the Indian case as a major illustration, it is shown here that the institutional arrangements and governing practices have overwhelmingly been given priority to meet the claims of diversity to the relative neglect of equality-claims.     

The Family Support Act of 1988: Federalism, Developmental Policy, and Welfare Reform

Revising the usual distinction between developmental and redistributivepolicies, I suggest that state and federal governments eachseek programs they believe will help them gain their developmentalgoals. But there is little consensus on the types of welfareprograms that actually do create economic development. Stateand federal participants in welfare reform consequently promotethe kind of federal arrangements that are likely to producethe policies they favor. The developmental politics of the FamilySupport Act of 1988 are shown through five main reform issues:child support; national minimum benefits; transitional benefits;welfare for families having both parents present; and education,training, and employment programs.     

States on Steroids: The Intergovernmental Odyssey of American Climate Policy

Climate change has conventionally been framed as an issue that would be addressed by an international regime established through negotiation among nation‐states. The experience of policy development in the decade following the signing of the Kyoto Protocol indicates that climate change also needs to be examined as a challenge of multilevel governance. The increasingly central role of state governments in American climate policy formation squares with recent experience in other Western democracies that share authority across governmental levels. This paper examines the American experience, considering factors that have contributed to a state‐centric policy process and using that body of experience to assess competing strategic choices faced by individual states based on their mix of emission trends and policy adoption rates. In turn, the collective state experience allows for consideration of the varied political feasibility of competing climate policy tools that remain under active review in subnational, national, and international contexts. The paper concludes with a set of scenarios that explore different ways in which a state‐centric system may be integrated with expanding involvement at the national level.     

How to not speak the ‘F‐word’: Federalism between mirage and imperative in the euro crisis

The recent financial and debt crisis has resuscitated the debate about European federalism – a theme that seemed not to have survived the painful constitutional adventure that ended with the ratification of the Lisbon Treaty in 2009. With the adoption of significant policy and institutional measures for tightening macroeconomic and budgetary coordination (including a constitutionally enshrined debt brake), the reforms of the monetary union have undisputedly brought the European Union further on the path towards an ever closer union. In an era where EU integration has been increasingly politicised, and Euroscepticism has been on the rise and exploited by anti‐system parties, national leaders have to face a political hiatus and respond to increased needs for symbolic and discursive legitimation of further federalisation. This is all the more crucial for French and German leaders who have brokered the main decisions during the crisis of the eurozone. Against this background, the purpose of this article is not to assess whether, or to what extent, the recent reforms of economic and monetary union have made the EU more federal. Rather, the purpose is to tackle the following puzzle: How have EU leaders legitimised the deepening of federal integration in a context where support for more European federalism is at its lowest? To elucidate this, a lexicographic discourse analysis is conducted based on all speeches held by the German Chancellor Merkel and the two French Presidents Sarkozy and Hollande, previous to, or after European summits from early 2010 until the spring of 2013. The findings indicate that federalism is both taboo and pervasive in French and German leaders' discourse. The paradox is barely apparent, though. While the ‘F‐word’ is rarely spoken aloud, two distinctive visions co‐exist in the French and German discourse. The coming of age of a political union through constitutional federalism is pictured as ineluctable, yet as a distant mirage out of reach of today's decision makers. At the same time, the deepening of functional federalism in order to cope with economic interdependence is a ubiquitous imperative that justifies further integration. The persisting gap between the constitutional and the functional vision of European federalism has crucial implications. Insofar as the Union is held responsible for not delivering successful economic policy, political leaders will fail to legitimise both functional and constitutional federalism.     

Public Sector Reform, Intergovernmental Relations and the Future of Australian Federalism

Recent developments in the reform of intergovernmental relations have been influenced by contemporary models of public sector reform. Their systematic application to intergovernmental administration, in particular the manner in which jointly funded and managed programs are organised, may have profound and unanticipated effects on the federal system. When viewed in the context of a recent history of collaborative policymaking between political executives, the possibility that new forms of intergovernmental joint policy-making and program management might become the norm poses serious challenges to federal traditions of dual government. Arm's length and collaborative forms of joint decision making are contrasted as ideal types, and then used to analyse two case studies in collaborative intergovernmental decision-making — National Competition Policy and the National Training Agreement. It is concluded that the system-wide implications are profound if they are part of a broader trend, but caution is expressed about the powers of inertia and resistance in traditional forms of federal politics.     

Federalism and Decentralization in Sub-Saharan Africa: Five Patterns of Evolution

Abstract

The 1990s were marked by democratic reforms throughout Sub-Saharan Africa. This went in tandem with decentralization reforms which either created or strengthened subnational levels of government. More than twenty years later it seems everywhere to the south of the Sahara there is a gap between the institutional/constitutional blueprints introducing the reforms and the facts on the ground. Understanding and explaining this gap in the workings of federalism and decentralization is important to both theorists and practitioners. This article proposes five benchmarks in order to map out the evolutionary patterns of the last two decades: a) symmetrical recentralization; b) differentiated performance; c) legitimizing traditional authority structures and indigenous conflict resolution; d) politicization of local conflicts over land, water, and other natural resources; and e) federal extinction.     

国企改革30年的纷争焦点与深化改革的取向

我国国企改革伴随着激烈的理论争论走过了30年。2003年以后,我国新的国资管理体制逐步建立,国企调整改革的取向也发生了明显变化——向关键领域集中,整合重组,做强做大。由于地方国企与央企差异很大,特别是二者的战略地位完全不同,因此,其调整改革取向应当有很大差异。要使地方国企与央企沿着合理的差异化取向调整改革,就应当正确认识和调整国务院国资委的定位、合理确定地方国资委的地位、正确处理地方国资委与国务院国资委的关系。     

Elements of Successful Change: The Service Tasmania Experience to Public Sector Reform

For Tasmanians accessing Government services has traditionally required visits to various Lead Agency locations, as service delivery was fragmented and bureaucratic. The Tasmanian Government adopted a customer‐focused approach implementing ‘Service Tasmania’ a One‐Stop‐Shop service delivery concept. This paper investigates what led to the success of this public service reform and in particular what change management practices were applied during the change effort. Ten common factors of successful change have been identified in the literature; these are explored determining their relevance throughout this initiative. Data were collected with semi‐structured interviews conducted with 63 staff plus senior management. Data were analysed using a grounded theory approach and open coding was applied during the first pass through the data to reach the initial codes identifying critical terms and generic key issues. Findings confirm that several management interventions were necessary to address resistance and conflict issues and keep the government reform project on track.     

我国社会管理体制的历史变迁与深化改革

与经济、政治体制改革相适应,我国社会管理体制改革经过了高度一元化社会管控阶段、传统管理体制逐步解体、残补模式和现代社会治理四个阶段的变迁,并在管理理念、管理目标、管理主体、管理体制机制和管理方式等方面呈现出规律性的演进特征。按照新型社会管理体制模式的要求,深化社会管理体制改革必须在凝聚社会共识、转变政府职能、发育社会组织、创新运行机制、完善社区管理等方面实现突破。     

Explaining Institutional Change: Policy Areas,Outside Options,and the Bretton Woods Institutions

I propose and test a theoretical framework that explains institutional change in international relations. Like firms in markets, international institutions are affected by the underlying characteristics of their policy areas. Some policy areas are prone to produce institutions facing relatively little competition, limiting the outside options of member states and impeding redistributive change. In comparison, institutions facing severe competition will quickly reflect changes in underlying state interests and power. To test the theory empirically, I exploit common features of the Bretton Woods institutions—the International Monetary Fund and World Bank—to isolate the effect of variation in policy area characteristics. The empirical tests show that, despite having identical membership and internal rules, bargaining outcomes in the Bretton Woods institutions have diverged sharply and in accordance with the theory.