BOOK REVIEWS

Book reviewed in this article:
ALF RATTIGAN, Industry Assistance: the inside story
B. HEAD(ed.), The Politics of Development in Australia
A. PATIENCE (ed.), The Bjelke-Petersen Premiership 1968–1983: Issues in Public Policy
DONALD C. ROWAT, The Ombudsman Plan: The Worldwide Spread of an Idea
P. R. HAY, J. HALLIGAN, J. WAR-HURST and B. COSTAR (eds), Essays on Victorian Politics
BEDE NAIRN, The 'Big Fella': Jack Lang and the Australian Labor Party 1891–1949
JIM HAGAN, Australian Trade Unionism in Documents
ALEXANDER KOUZMIN, J. R. NETHER-COTE, ROGER WETTENHALL (eds), Australian Commonwealth Administration 1983: Essays in Review
J. R. NETHERCOTE, ALEXANDER KOUZMIN, ROGER WETTENHALL (eds), Australian Commonwealth Administration 1984: Essays in Review     

Changing Agendas in Australian Indigenous Policy: Federalism,Competing Principles and Generational Dynamics

This paper identifies two periods of punctuated change in the content and style of Australian Indigenous policy in the last fifty years. It also identifies a third period in which attention to Indigenous policy was heightened through the nationalisation of land issues already well‐established on the agendas of sub‐national jurisdictions. The paper relates all three periods to the changing federal institutions of Australian Indigenous policy, with the Commonwealth slowly exploring its post‐1967 role as a national government in Indigenous affairs. In later sections, the paper identifies some more conceptual bases of changing policy agendas, through ideas of the competing principles of equality, choice and guardianship and the generational moral dynamics of Indigenous affairs.     

The Federation — What Makes It Work and What Should We Be Thinking About for the Future

The Australian Federation is unique. Like all federations there is a division of powers between the various levels of government. However, unlike almost all other federations, the Australian Federation requires the cooperation of the states and the Commonwealth in order to achieve their institutional functions. This federal system can properly be described as 'cooperative federalism'. An understanding of the role of the states within this federal system suggests an urgent need for major constitutional reform at the state level.     

Reviews

Book reviewed in this article:
From Hawke to Keating, Australian Commonwealth Administration, 1990–1993 Jenny Stewart (ed.)
The Second Keating Government, Australian Commonwealth Administration 1993–1996: Gwynneth Singleton (ed.)
Understanding Governance: Policy Networks, Governance, Reflexivity and Accountability R.A.W. Rhodes     

Not Centralisation but Decentralised Integration through Australia's National Mental Health Policy

This article challenges dominant perceptions of Commonwealth centralisation in Australia's federal system. While recognising the Commonwealth has entered a range of policy fields not anticipated by federal founders, it argues this does not equate to a generalised unidirectional and hierarchical orchestration of state/territory functions. The crucial case of mental health policy is presented as an alternative scenario in Australia's federal experience. Theoretically key challenges from the multi‐level governance literature are proffered against the centralisation thesis. These include queries about the origins of Commonwealth directives and assumptions of zero‐sum notions of state/territory autonomy. Brief empirical analysis highlights the role of the Commonwealth as a conduit of horizontal and vertical flows of knowledge through the national mental health policy agenda. Given disconnect and diversity between national ambitions and their realisation at state/territory level, it is argued better proceduralisation through bottom‐up peer dialogue and feedback present alternative routes towards decentralised integration.     

Women,Federalism and Women Friendly Policies

Australian women activists have never been enthusiastic about federalism because of its reputation as a system that restricts the scope of government and obstructs the path of progressive social change. Like their sisters in other countries, women's groups have sought collectivist solutions to economic and social problems. In the last couple of decades, however, orthodox ideas about the restrictive impact of federalism have been questioned. A revisionist view has emerged, which holds that the system sometimes facilitates the adoption of innovative policies and may lead to an expansion of the role of government. The revisionist perspective raises the question of whether women's groups have been wise to oppose federalism. This article examines relevant Canadian and Australian studies in order to test the validity of orthodox and revisionist perspectives and to draw conclusions about appropriate feminist approaches to federalism. The evidence is mixed. The main argument of this article is that, to the extent that we can distinguish its independent effect, federalism sometimes obstructs policy development and sometimes facilitates it. There are serious methodological problems involved in trying to isolate the impact of the federal variable from the many factors that influence policy, making generalisations precarious. Experience, therefore, offers little guidance to women's groups seeking to decide whether to support centralised or decentralised decision‐making structures. However, this study concludes that in the context of present Australian federal arrangements, women are more likely to achieve their aims when the Commonwealth government takes action, either alone or in cooperation with sub‐national jurisdictions.     

Testing the Policy Capacities of Budgetary Agencies: Lessons from Finance

The Commonwealth Department of Finance, together with the Treasury from which it was hived off in 1976, constitutes the central budgetary agency at the Australian federal level. For the purposes of this article, I identify Finance as a convenient working model of central budgetary agencies, at least in their traditional Australian incarnation. I accept that Finance is unlikely to be fully representative of all such Australian agencies, and I acknowledge that the federal government's annual budget is officially introduced into parliament by the Treasurer, and that the Treasury is deservedly regarded as the core budgetary agency. But my focus here is on Finance's special responsibility for the public management framework, and Finance's role in providing policy advice to government organisations on how to make the best use of budget funding. This article then presents the findings of a recent evaluation of selected policy-advising activities with the department.     

Too Many or Too Few? The Increase in Federal Ministerial Advisers 1972–1999

This paper examines recently published figures that show the increase in ministerial staff between 1972 and 1996 (Dunn 1997). A careful examination of the table in Dunn's book reveals it gives a misleading impression of the number of ministerial staff; the number of advisory staff to ministers; and the growth in advisory resources over the Hawke–Keating period. By re-analysing the figures the paper reveals the reality of the growth in advisory staff to ministers in 1972–1999. It provides an account of the number of staff providing policy and political advice to ministers in ministerial offices, rather than total staff numbers. It reveals advisory resources to ministers have grown significantly since the introduction of ministerial advisers in 1972. However, the growth in adviser numbers over the Hawke–Keating period was more modest than is suggested by Dunn's table. The paper provides the base data needed for a discussion of the increase in ministerial staff and whether there are too few or too many federal ministerial advisers.     

The Future of Renewable Energy in Australia: A Test for Cooperative Federalism?

In the context of the Australian federal system industry development will be influenced by the policies of each sphere of government. When announcing a set of policies in 1997 to develop the renewable energy industry the Australian federal government acknowledged the need for a cooperative approach between all governments and industry. The objective of this article is to analyse the government policies over the 1997–2007 period to promote the development of the renewable energy industry in Australia. The article highlights a number of factors that have served as barriers to the development of the industry. The research provides important insight into the difficulties associated with establishing cooperative national arrangements in areas of state government responsibility in the Australian federation. The lessons also inform the current debate on the policy initiatives needed to more effectively reduce greenhouse gas emissions from stationary energy from the increased availability of renewable energy .     

The Problems of Policy Coordination: The New Zealand Experience

The problems of coordinating the development and implementation of public policy are legion. While such problems are most commonly associated with large federal systems, they can arise with equal force and complexity in small, highly centralized, unitary states such as New Zealand. This article has four main purposes. First, it briefly surveys some of the recent literature on the nature of coordination and the mechanisms for enhancing policy coordination in government. Second, it outlines the nature and causes of the coordination difficulties that have been encountered in recent years in New Zealand. Third, it explores the various attempts which the Labour government (1984–90) and the National government (1990–present) have made to overcome these difficulties. Finally, the article considers some of the lessons which emerge from New Zealand's recent experience.     

THE IMPLEMENTATION OF A YOUTH UNEMPLOYMENT PROGRAM*

Abstract: This article reports on the implementation of youth policy. It examines the literature on policy implementation and finds the literature pessimistic, especially in regard to federal programs locally delivered. It then reports on the Participation and Equity Program as designed by the Australian federal government and as implemented in TAFE Colleges in Western Sydney. The article ends by suggesting a model by which implementation may be judged.     

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.     

Advising Australian Federal Governments: Assessing the Evolving Capacity and Role of the Australian Public Service

Internationally, there have been persistent complaints that the policy capacity of governments has declined. This critique is widely accepted, including in Australia, but for the most part, such claims are assertions, made without reference to empirical evidence and data. This introduction to the Special Issue examining the Policy Advisory Capacity of the Australian Public Service considers these assertions and proposes an approach and methodology to test the discourse of declining policy capacity in Australian federal government. It introduces six case studies from across the spectrum of the Commonwealth government's responsibilities. The Special Issue concludes with an article by Evert Lindquist and Anne Tiernan assessing the ability of the APS to support decision‐making through its policy advising functions and its preparedness to meet the challenges of 21st century governance.     

Non‐Departmental Public Bodies Under the Howard Governments1

There has been both continuity and change in the use of non‐departmental public bodies (NDPBs) during the Howard years. In terms of continuity, the statutory authority and its incorporated version, the statutory corporation (in whose development late 19th and early 20th century Australian governments played such an important part), have remained in wide use. In terms of change, however, two other NDPB forms offered some challenge to its popularity. The government‐owned company came to be a preferred form for government business enterprises (GBEs) and, more recently, for many other non‐commercial public activities as well. And the executive agency, first making its Australian appearance in 1999, seemed initially to be another significant challenger, but its numbers, never great, were soon cut back. The article examines these trends, relating them to several relevant systemic inquiries and policy changes, notably the Humphry review of the governance of GBEs, the final settlement (in 1997) of the package of financial management acts, the Uhrig inquiry of 2003 and the system‐challenging pressures that have followed it. Commonwealth participation in joint (Commonwealth/subnational and Commonwealth/private) activities is also noted, as is the lack of ‘fit’ of the Australian experience with international theorising about ‘agencification’. Finally, the article seeks to identify the leading figures within the Howard governments who have been directing both the changes and the continuities involved in these developments.     

BOOK REVIEWS

Book reviewed in this article:
Australia's Commonwealth Parliament 1901–1988: Ten Perspectives. By G. S. REID and MARTYN FORREST
Inside the Think Tank: Advising the Cabinet 1971–1983. By TESSA BLACKSTONE and WILLIAM PLOWDEN
Traditions of Liberalism: Essays on John Locke, Adam Smith and John Stuart Mill. Edited by KNUD HAAKONSSEN
A Guide to Commonwealth Government Information Sources. By JOHN COOK, NANCY LANE and MICHAEL PIGGOTT
The Federal Government 1983. By GREGORY P. JONES
The Federal Government 1984. By GREGORY P. JONES
The Federal Government 1985, 2 vols. By GREGORY P. JONES
The Federal Government 1986. By GREGORY P. JONES
The Federal Government 1987. By GREGORY P. JONES     

The Federal Structure of Australian Political Parties

Australian parties reflect the combination of British responsiblegovernment and elements of American federalism embodied in theconstitution. Despite considerable symmetry in party competitionfor all seven parliaments, party organizations must functionwithin electoral systems complicated by state differences andbicameralism. The extra-parliamentary federal organizations,which began as weak confederations, have gradually gained ascendancyover state parties, particularly within the Labor parties. Yetthis shift of power to national party organizations is lessmarked than the increase in Commonwealth government activities.Such developments have not made for complete Commonwealth dominationbut the intermeshing of state and federal responsibilities hasincreased the need for bargaining between the two planes ofgovernment and decreased the areas in which independent decisionsby either are possible. Frequent elections, in which federaland state issues can rarely be separated, strengthen these trendsand make bargaining between federal and state leaders withineach party as important as bargaining between governments.     

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.     

Making the Harder Yards: Environmental Policy Integration in Australia

Solutions to environmental problems such as climate change, biodiversity loss, and land and water resource degradation require long term integration of economic, social and environmental policies. This poses challenges to specialised, hierarchical public administration systems. The study reported here examined strategies, structures and processes to enable environmental policy integration in six Australian states and territories, and some federal arrangements. The study found that the most prominent success factors, barriers and gaps that affect environmental policy integration relate to leadership, long term embedding of environmental policy integration and implementation capacity. Factors deserving further research and policy attention include leadership, cultural change and capacity building; embedding sustainability in structures and processes; development of a long term evidence based approach; strengthening decentralised implementation arrangements; and evaluation of policy integration initiatives.     

EFFICIENCY AND EFFECTIVENESS: PROBLEMS OF ASSESSMENT

Abstract: The paper focuses on the Coombs Commission's recommendations on efficiency and effectiveness in the Commonwealth Public Service. The recommendations involve the allocation of organizational responsibility for efficiency and effectiveness to the Department of Prime Minister and Cabinet, the Public Service Board, Treasury and the Auditor-General and individual responsibility to the departmental manager through the establishment of a "Forward Estimating Budgetary" process. However the Commission has given little guidance in the matter of the technological tools which must be developed in order to secure its implementation.
The Commonwealth Public Service Board has developed over the last two years a program of Staff Utilization Reviews (S. U. Rs) as one of its management improvement programs. The paper canvases the technological aspects of efficiency and effectiveness drawing upon the development and operational experience of the S.U.R. program. It concludes that much resource-intensive work must be done before the Commission's recommendations can be implemented but Australian and overseas experience confirms the potential fruitfulness of that work.     

Party Government and the "Cohesive Power of Public Plunder"

We argue that party government in the U.S. House of Representatives rests on two pillars: the pursuit of policy goals and the disbursement of particularistic benefits. Existing theories of party government argue that the majority party in the House is often successful in biasing policy outcomes in its favor. In the process, it creates "policy losers" among its own members who nevertheless support their party on procedural votes. We posit that the majority party creates an incentive for even the policy losers to support a procedural coalition through judicious distribution of particularistic benefits that compensates policy losers at a rate commensurate with the policy losses that they suffer. We evaluate our theory empirically using the concept of "roll rates" in conjunction with federal domestic outlays data for the period 1983–96. We find that, within the majority party, policy losers are favored in the distribution of "pork barrel" spending throughout this period.