Being a Good Senior Manager in Indigenous Community Governance: Working with Public Purpose and Private Benefit

This article seeks to understand the role of being a senior manager in Indigenous community governance, particularly though not exclusively in remote Aboriginal communities. It argues against the tendency of would‐be reformers of Indigenous community governance to focus on the competence and ethical qualities of those who occupy these roles and asks instead how can isolated managerialism in Indigenous community governance be overcome? The article begins with an overview of Ralph Folds' analysis of relations between Pintupi settlements and the larger Australian polity. While taking much from Folds' analysis, the article argues that ultimately he relies too heavily on the idea of antithetical worldviews across the settlement interface, on a problematic distinction between the official and private uses of publicly allocated resources and on too idealist a view of the Australian state. The article argues that the state's allocation of public resources inevitably involves a flow of private benefits and that public purposes and private benefits are not different phenomena, but rather different perspectives on state action. In contrast to Folds' idealism about the state, the article outlines a more thoroughly realist or materialist analysis of being a good senior manager in Indigenous community governance. In its concluding section, the article makes some suggestions for overcoming isolated managerialism in Indigenous community governance oganisations.     

National Policy‐Making in Indigenous Affairs: Blueprint for an Indigenous Review Council

This article examines the dearth of any representative Indigenous role in national Indigenous affairs policy‐making and suggests a remedy. After making the case for a specific Indigenous place in national policy‐making, the article considers the reasons for the failure of the Aboriginal and Torres Strait Islander Commission (ATSIC), the body that filled this brief for a decade and a half. The article then considers three possible ways of ensuring an Indigenous role in the policy‐making process: a replacement for ATSIC with specific policy powers; set seats for Indigenous representatives in federal parliament; and the creation of a new elected body whose role would be to review Indigenous affairs legislation. The article concludes that the latter proposal in particular is worth trialling as it would ensure a significant Indigenous voice in national policy‐making while learning from the mistakes that led to ATSIC's demise.     

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.     

What Makes an Aboriginal Council Successful? Case Studies of Aboriginal Community Government Performance in Far North Queensland

Indigenous community governments are at the frontline of current efforts to ‘close the gap’ between Indigenous and non‐Indigenous living standards. Yet there is little empirical evidence about successful performance by these organisations and considerable scepticism about whether introduced Western governance models can ever be viable in Indigenous communities. To identify the governance attributes that contribute to successful performance, case studies were conducted at three Aboriginal councils in far north Queensland. The untested assumptions in current notions of ‘good governance’ were examined. Currently accepted good governance principles and practices were investigated to ascertain their actual causal relationship with council performance. The research further identified key contextual, historical and cultural factors that are important in shaping successful or unsuccessful governance. Practical strategies are suggested for policy‐makers and Indigenous leaders to build the performance of Indigenous community governments.     

If you like the alternative vote (a.k.a. the instant runoff), then you ought to know about the Coombs rule

We consider four factors relevant to picking a voting rule to be used to select a single candidate from among a set of choices: (1) avoidance of Condorcet losers, (2) choice of Condorcet winners, (3) resistance to manipulability via strategic voting, (4) simplicity. However, we do not try to evaluate all voting rules that might be used to select a single alternative. Rather, our focus is restricted to a comparison between a rule which, under the name ‘instant runoff,’ has recently been pushed by electoral reformers in the US to replace plurality-based elections, and which has been advocated for use in plural societies as a means of mitigating ethnic conflict; and another similar rule, the ‘Coombs rule.’ In both rules, voters are required to rank order candidates. Using the instant runoff, the candidate with the fewest first place votes is eliminated; while under the Coombs rule, the candidate with the most last place votes is eliminated. The instant runoff is familiar to electoral system specialists under the name ‘alternative vote’ (i.e., the single transferable vote restricted to choice of a single candidate). The Coombs rule has gone virtually unmentioned in the electoral systems literature (see, however, Chamberlin et al., 1984). Rather than considering the properties of these two rules in the abstract, we evaluate them in the politically realistic situations where voters are posited to have (at least on balance) single-peaked preferences over alternatives. Evaluating the two rules under this assumption, we argue that the Coombs rule is directly comparable in that Coombs is always as good as AV with respect to two of our four criteria and it is clearly superior to AV with respect to one of the four criteria, namely criterion (2), and is potentially inferior only with respect to criterion (3). Key to this argument are two new propositions. The first new result shows that, under the posited assumption, for four alternatives or fewer, AV is always as likely or more likely to select the Condorcet winner than plurality. The second new result shows that, under the same assumptions, the Coombs rule will always select the Condorcet winner regardless of the number of alternatives.     

Between Two Worlds: Indigenous Leaders Exercising Influence and Working across Boundaries

Although there has been considerable commentary and debate relating to Indigenous political leadership, less attention has been given to the emergence of Indigenous leaders working to improve Indigenous prospects from within the worlds of community development, management, and administration. Based on in‐depth interviews with a cohort of emerging Indigenous leaders in these situations, we found that these leaders are producing their own style of leadership, drawing on their Indigenous identity as a resource, while negotiating the policy and other demands of white Australia. The style of leadership that is emerging has its own distinctive attributes, being more relationally based than is the norm. We suggest that these differences have an important cultural dimension, but also relate to the strategic and tactical challenges of managing ‘two‐ways’. We conclude that these characteristics may be difficult to recognise and reward in organisations where leadership is conceptualised in more instrumental terms.     

Indigenous institutions and local government in the Torres Strait

The relationships between local governments and Indigenous institutions in Australia are unstudied, despite both being oriented to the local level. Related research focuses on the performance of Indigenous local governments, Indigenous forms of governance and its relation to local government, relations between local governments and Indigenous communities, and the intercultural dynamics of Indigenous and Western governance frameworks in local governments. This article presents the findings of a study that examines relations between local governments and Indigenous institutions in the Torres Strait, a relationship that is framed by s. 9(3) of the Local Government Act 2009 (Qld) (LGA) that allows local governments to ‘take account of Aboriginal tradition and Island custom’. A framework adapted from health-related studies, consisting of three alternative policy approaches—mainstreaming, indigenisation, and hybridisation—is used in this study to characterise relationships between local governments and Indigenous institutions. Kinship and country, two important Indigenous institutions, are marginalised in Queensland's mainstream system of local government, which in turn creates obstacles for Aboriginal and Torres Strait Islander people from participating and engaging in local government processes.

Points for practitioners

• Government that does not recognise the institutions which are fundamental to how Indigenous people govern will marginalise them from power.
• Indigenous institutions are legitimate actors whose voice must be considered within mainstreaming discussions.
• Representation within indigenous institutions influences local government relations.

     

The importance of industry compliance in improving advertising self‐regulatory processes

As the most visible element of the marketing communications mix, advertising has had its critics and, given the choice, developed countries usually select a self‐regulatory approach to deal with unacceptable advertising. The recent breakdown of one of the world's longest established advertising self‐regulatory programmes in Australia has reopened the 20‐year old debate that has taken place in the leading academic and business journals concerned with enhancing understanding of such regulatory systems. This paper focuses on the activity of code enforcement in improving the effectiveness of advertising self‐regulatory frameworks. The key findings of an Australian study, where its scheme has recently failed, are presented and discussed in this context and a key concept is developed. Copyright © 2003 Henry Stewart Publications     

The single‐issue party thesis: Extreme right parties and the immigration issue

This article examines the single‐issue party thesis for the specific case of contemporary extreme right parties (ERPs) and the immigration issue. I define the single‐issue party as (1) having an electorate with no particular social structure; (2) being supported predominantly on the basis of one single issue; (3) lacking an ideological programme; and (4) addressing only one all‐encompassing issue. On the basis of a comprehensive analysis of electoral studies and party literature the single‐issue party thesis is rejected on all counts. At best, immigration has been a catalyst for most ERPs in certain periods of time. Their ideology and broader programe will keep ERPs in the political arena for some time to come, even in the unlikely event that immigration would cease to be an important political issue.     

Reinventing the Governance of Public Finances in Remote Indigenous Australia

The economies of remote Indigenous settlements are dominated by public finances. The current system of governing public finance is highly saturated, fragmented and centralised, and this has a corrosive effect on local governance capability. The political accountability of leaders to their constituents is weakened in favour of an administrative accountability ‘upwards’ to higher authorities. New Public Management reforms have promoted administrative deconcentration, over political devolution, and this has been accompanied by an influx of public servants, Non‐Government Organisations (NGOs) and private contractors, and a decline in Indigenous organisations and local government. The end result in many settlements is a marked disengagement of Indigenous people in their own governance. There is evidence of considerable political capabilities existing within local government electorates. Decentralised financing arrangements can be used to catalyse these capabilities and then address deficits in administrative and technical performance.     

Evidence and Contestation in the Indigenous Policy Domain: Voice,Ideology and Institutional Inequality

There is a tension in the evidence‐based policy paradigm as it concerns Aboriginal and Torres Strait Islander people, particularly with regard to their standing as evidence providers. Aboriginal people in Australia have primarily been seen as a ‘problem to be solved’ and racialised views of Aboriginal competence have allowed for past policy, now recognised as harmful, to be justified as being ‘for their own good’. This article considers some of the complexities of the evidence‐based policy paradigm as it applies to the Indigenous policy domain, arguing that in such a turbulent field the use of evidence is inevitably ideological and selective. The article concludes that, in light of persistent institutional inequalities, including Aboriginal and Torres Strait Islander voices and perspectives in genuine dialogue about policy is the only way to navigate this difficult terrain with any chance of success.     

Recognition as if sovereigns? A procedural understanding of indigenous self-determination

In the last two decades we have witnessed a growing global acknowledgement of indigenous rights – manifested in the 2007 UN Declaration on the Rights of Indigenous Peoples – challenging the traditional nation-state-centred understanding of political rights and democracy. In this paper, the author argues that indigenous self-determination is to be understood as a way to level the balance of power between indigenous peoples and the nation-states in which they live. Without a solid legal foundation for indigenous peoples to define self-determination in their own languages and to negotiate the conditions of their relation with the nation-states on their own terms, the colonial past (and present) of violent conquest and domination might continue. Indigenous peoples' right to self-determination ought in this perspective to imply recognition of indigenous peoples as having a standing equal to nation-states, i.e. as if they were sovereigns. What self-determination means in political practice would thus be the outcome of negotiations between two (or more) equal political entities. In this way, the right to self-determination has to be interpreted procedurally rather than substantially.     

Book Reviews

Books reviewed in this article: Refining Regulatory Regimes: Utilities in Europe David Cohen and Adrienne Heritier (eds) Civil Service Reform in the United States: Personnel Policy and Politics at the Subnational Level J. Edward Kellough and Lloyd G. Nigro (eds) Measuring Corruption Charles Sampford, Arthur Shacklock, Carmel Connors and Fredrick Galtung (eds) Francis De Groot. Irish Fascist. Australian Legend Andrew Moore Recognising Aboriginal Title: The Mabo Case and Indigenous Resistance to English‐Settler Colonialism Peter Russell     

A multilevel puzzle: Migrants’ voting rights in national and local elections

How does international migration impact the composition of the demos? Constitutional doctrines and democratic theories suggest contrasting responses: an insular one excludes both non‐citizen immigrants and citizen‐emigrants; a deterritorialised one includes all citizens wherever they reside; a postnational one includes all residents and only these. This article argues that none of these predicted responses represents the dominant pattern of democratic adaptation, which is instead a level‐specific expansion of the national franchise to include non‐resident citizens and of the local franchise to include non‐citizen residents. This is demonstrated by analysing an original dataset on voting rights in 31 European and 22 American countries, and outlining a level‐sensitive normative theory of citizenship that provides support for this pattern as well as a critical benchmark for current franchise policies. The findings can be summarised in two inductive generalisations: (1) Voting rights today no longer depend on residence at the national level and on citizenship of the respective state at the local level; (2) Voting rights do, however, generally depend on citizenship of the respective state at the national level and on residence at the local level. In the article, these are called the patterns of franchise ‘expansion’ and ‘containment’. The former supports the idea of widespread level‐specific expansion of the franchise and refutes the insular view of the demos. The latter signals corresponding level‐specific restrictions, which defeats over‐generalised versions of deterritorialised or postnational conceptions of the demos. In order to test how robust this finding is, cases are analysed where the dominant patterns of expansion have been resisted and where unexpected expansion has occurred. With regard to the former, the article identifies constitutional and political obstacles to voting rights expansion in particular countries. With regard to the latter, the article shows that even where national voting rights have been extended to non‐citizen residents, containment remains strong through indirect links to citizenship.     

Who Learns from What in Policy Diffusion Processes?

The idea that policy makers in different states or countries may learn from one another has fascinated scholars for a long time, but little systematic evidence has been produced so far. This article improves our understanding of this elusive argument by distinguishing between the policy and political consequences of reforms and by emphasizing the conditional nature of learning processes. Using a directed dyadic approach and multilevel methods, the analysis of unemployment benefits retrenchment in OECD countries demonstrates that policy makers learn selectively from the experience of others. Right governments tend to be more sensitive to information on the electoral consequences of reforms, while left governments are more likely to be influenced by their policy effects.     

Government with a Cast of Dozens: Policy Capacity Risks and Policy Work in the Northern Territory

There are a number challenges to maintaining high‐quality policy capacity in sparsely populated areas such as Australia's Northern Territory (e.g. natural resource dependent economy, prominence of Indigenous issues, provision of local services). Moreover, the Territory government has recently been undergoing a host of public sector changes. This paper utilises survey methodologies of policy workers that were recently developed in Canada and examines nine risk factors to policy work. A survey of 119 policy workers in the Northern Territory was conducted in 2013. The analysis examined four key policy‐work areas (policy activities, barriers, areas for improved policy capacity, nature of change in work environment). The survey findings offer some practical insights for managers. Formal policy‐work training is recognised as critical. Policy capacity may be increased through better inter‐departmental (and potentially inter‐governmental) cooperation and information sharing, more opportunities to engage with non‐governmental stakeholders, and more opportunities for those leaving the full‐time Northern Territory policy workforce to continue to contribute. From a conceptual point of view, the extent to which ‘policy capacity’ as commonly conceived in the literature is applicable to contexts, such as Australia's Northern Territory, warrants further examination.     

Accountability and Joined‐up Government

The Coombs Royal Commission identified a range of issues relating to the coordination of services. While there has been renewed interest over the last five years in the UK, Canada and Australia in initiatives that support joined‐up and cross‐cutting government, there has been only limited work to address the potential recognised by the Commission for these initiatives to result in unclear accountabilities. This paper reviews accountability approaches to joined‐up government and identifies that while the sharing of accountability for outcomes has emerged quietly over the past 25 years, joining‐up initiatives are demanding a clearer articulation of causal relationships regarding the sharing of outcomes and a fuller consideration of the multiple relationships in the partnership arrangements involved.     

Jürgen Habermas's Theory of Cosmopolitanism

In this paper we explore the sustained and multifaceted attempt of Jürgen Habermas to reconstruct Kant's theory of cosmopolitan right for our own times. In a series of articles written in the post‐1989 period, Habermas has argued that the challenge posed both by the catastrophes of the twentieth century, and by social forces of globalization, has given new impetus to the idea of cosmopolitan justice that Kant first expressed. He recognizes that today we cannot simply repeat Kant's eighteenth‐century vision: that if we are to grapple with the complexities of present‐day problems, it is necessary to iron out certain inconsistencies in Kant's thinking, radicalize it where its break from the old order of nation‐states is incomplete, socialize it so as to draw out the connections between perpetual peace and social justice, and modernize it so as to comprehend the “differences both in global situation and conceptual framework that now separate us from him.” ¹ 1 Karl‐Otto Apel, “Kant's Toward Perpetual Peace as historical prognosis from the point of view of moral duty,” in James Bohman and Matthias Lutz‐Bachmann, eds., Perpetual Peace: Essays on Kant's Cosmopolitan Ideal (Cambridge, MA: MIT Press 1997), 87. Jürgen Habermas, “Kant's Idea of Perpetual Peace, with the Benefit of Two Hundred Years Hindsight,” ibid., 113–53; and in Jürgen Habermas, The Inclusion of the Other: Studies in Political Theory (Cambridge, MA: MIT Press, 1998), 165–202. His basic intuition, however, is that Kant's idea of cosmopolitan right is as relevant to our times as it was to Kant's own. If it was Kant's achievement to formulate the idea of cosmopolitanism in a modern philosophical form, Habermas takes up the challenge posed by Karl‐Otto Apel: to “think with Kant against Kant” in reconstructing this idea. What follows is a critical assessment of Habermas's response to this challenge. We focus here on the dilemmas he faces in grounding his normative commitment to cosmopolitan politics and in reconciling his cosmopolitanism with the national framework in which he developed his ideas of constitutional patriotism and deliberative democracy.     

Inequality and the Dynamics of Public Opinion: The Self‐Reinforcing Link Between Economic Inequality and Mass Preferences

This article assesses the influence of income inequality on the public's policy mood. Recent work has produced divergent perspectives on the relationship between inequality, public opinion, and government redistribution. One group of scholars suggests that unequal representation of different income groups reproduces inequality as politicians respond to the preferences of the rich. Another group of scholars pays relatively little attention to distributional outcomes but shows that government is generally just as responsive to the poor as to the rich. Utilizing theoretical insights from comparative political economy and time‐series data from 1952 to 2006, supplemented with cross‐sectional analysis where appropriate, we show that economic inequality is, in fact, self‐reinforcing, but that this is fully consistent with the idea that government tends to respond equally to rich and poor in its policy enactments.     

The Ethical Deficit of the United Kingdom's Proposed Universal Credit: Pimping the Precariat?

Universal Credit is a proposed means‐tested cash benefit scheme in the UK that will serve, inter alia, to top‐up the wages of low‐paid workers. This article will argue first, that the moral justification for the scheme that is offered by the UK government is specious; second that the reconfiguration of existing wage top‐ups may be counterproductive and will in any event do little, if anything, to promote the work ethic; third, that the new scheme will not relieve but add to the injustices borne by the ‘precariat’ (the workers engaged in low‐paid precarious employment); finally, that far from having a justifiable moral purpose, Universal Credit is ethically flawed.