“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.     

Gaining Greater Access to Western European Decision‐Makers: a Motive for Australian Membership of the OECD

In weighing Britain's decision to seek membership of the European Economic Community Australian scholars have focussed attention on its adverse impact on Anglo‐Australian and EU‐Australian relations, and the emphasis that Australia thereafter placed upon economic relations with Asia. This article identifies a consequence of Britain's decision which has largely escaped attention: the part it played in stimulating Australia's successful 1969 application for membership of the Organisation for Economic Cooperation and Development. Although Australia's interest in the increased access to West European decision‐makers that the OECD would provide dates to the latter 1940s and 1950s, the British application for membership of the EEC added particular weight to those arguing that Australia should seek OECD membership. It led to an extension of Australian activities in Western Europe which was not extinguished by the growing emphasis on relations with the Asian region.     

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.     

“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.”     

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.     

“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.     

Many Voices,One Ambition: Local Government,Post-War Reconstruction and Northern Development in Australia

Established in 1944, the North Queensland Local Government Association made an impact on post-war reconstruction and northern development in Australia. The association modernised infrastructure and improved social conditions in Queensland's north, as well as launching an influential publicity campaign to promote a massive northern development scheme. In an era when federal proposals for developing Australia's northern regions often struggled to make a convincing case for Commonwealth investment, these were significant contributions to nation-building. Putting substance before parochialism, the association fostered cooperation among municipal authorities and patiently lobbied the Queensland government. But some members complained that their region was part of a “neglected north” and called for a more assertive campaign. By the late 1950s, having developed regional infrastructure, grown in confidence, and looking for new challenges, the association shifted its lobbying to target the Commonwealth government. The change led to the “People the North” publicity campaign, which influenced federal northern development policy. This article analyses the campaigns led by the North Queensland Local Government Association in the twenty years after 1944. It illuminates a neglected part of Australia's political history: the contribution of regional political voices from Australia's north to nation-building projects such as post-war reconstruction and northern development.     

Post‐War Reconstruction and the New World Order: The Origins Of Gough Whitlam's Democratic Citizen*

Gough Whitlam's father was one of Australia's most significant public servants. Deputy Crown Solicitor and Crown Solicitor at a time of great constitutional and international change, Frederick Whitlam maintained an unusually advanced perspective on the use of international instruments to protect rights and to expand powers of nationhood. Gough Whitlam's war‐time experiences in the Air Force, in particular during the referendum campaign to expand Commonwealth Powers to aid post‐war reconstruction, cemented these aspects as central to his developing notions of democratic citizenship. In his 1973 Sir Robert Garran Memorial lecture, fourteen years after his father had delivered the inaugural oration, Gough Whitlam acknowledged the influence of his father as a “great public servant” committed to public service and the developing institutions of internationalism: “I am Australia's first Prime Minister with that particular background”. This paper explores “that particular background”. I have never wavered from my fundamental belief that until the national government became involved in great matters like schools and cities, this nation would never fulfil its real capabilities. ¹ 1 E.G. Whitlam, Sir Robert Garran Memorial Oration, “Australian Public Administration under a Labor Government”, Royal Australian Institute of Public Administration, 12 November 1973, < http://www.whitlam.org/collection/1973/ > accessed 31 October 2006.
     

Decolonising Australia's International Relations? A Critical Introduction

Australia's international relations (IR) discipline has a deep colonial history, but has never been through a conscious process of decolonisation. Although discussions of decolonising IR have taken place elsewhere, the discussion in Australia is in its infancy. This collection examines the possibilities for decolonising Australia's IR in the present moment, looking at its teaching practice, its research, its styles of analysis, and its relationship with Australian foreign policy. We consider what is particular to Australia's settler colonial context, what is achievable, and what is not. The collection also seeks to develop a new style of anti-colonial foreign policy analysis in Australia, looking at the relationship between colonisation, settlement, and foreign policy. In this introduction, we first look over debates on decolonisation elsewhere in the field. We then examine the historical background of Australia's IR discipline, and look at Australian Indigenous diplomacy, to consider what is specific to Australia's context. We conclude by looking over the contributions of the papers in this collection, and consider what a decolonised Australian IR might look like. Ultimately, we argue that any process of decolonisation will be extremely difficult, and that decolonisation in Australian IR should be perceived as an ongoing struggle, rather than an endpoint in itself.     

Noel Pearson's Role in the Northern Territory Intervention: Radical Centrist or Polarising Partisan?

Noel Pearson is one of Australia's most prominent and influential Aboriginal intellectuals. This article examines a major idea in his writing: the “quest for a radical centre”. Through the concept of the radical centre, Pearson articulates both his desire to transcend existing policy paradigms and an ethics of partisanship which emphasizes the importance of listening to and negotiating with one's political adversaries. Pearson's development of this concept is explored in light of the role Pearson has played as leading advocate for Indigenous welfare reform, and especially his pivotal contribution to the public debate over the introduction of the Northern Territory Emergency Response Intervention by the Howard government in 2007.     

Falling Foul of Section 44(i): Australian's Dual Citizenship Saga and the Problems of Institutional Inertia and “Drift”

Australia's “dual citizenship” crisis erupted in 2017 when several elected members of the federal parliament discovered that they were ineligible to sit because their dual citizenship status meant that they were in breach of s 44 (i) of the Australian constitution. The controversy has had enormous political consequences, prematurely ending several political careers and confirming that millions of Australians are ineligible to sit in the federal parliament because they hold dual citizenship. It has raised important questions about the contemporary relevance of s 44 (i) for multicultural, trans-national Australia, given its association with singular, racialized (British-colonial) notions of identity, allegiance and belonging. Using a historical institutionalist approach, and associated concepts of policy “drift”, I demonstrate the inevitability of the recent controversy, given decades of government inertia and both unintentional and purposeful non-decision-making on s 44, despite repeated expert warnings about its risks. I reflect upon the possible interests and ideological biases that have compelled political leaders’ resistance to proposals to decisively fix the constitutional anomaly by holding a popular referendum. I argue these failures have left Australia vulnerable to ongoing political instability and raise considerable concerns about its democratic quality.     

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.     

“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.     

The “Middle Power” Concept in Australian Foreign Policy

During the early 1990s, the Hawke and Keating Labor governments promoted Australia's diplomatic credentials as an activist and independent middle power. Labor claimed that by acting as a middle power Australia was constructing a novel diplomatic response to the challenges of the post-Cold War world. But a closer reading of the official foreign policy record since 1945 reveals that previous conservative governments have also taken a similar view of Australia's place and position on the international stage. This essay traces the historical evolution of the middle power concept in Australian foreign policy and concludes with an assessment of the Howard government's more recent reluctance to use this label and its implications for Australia's future middle power credentials. Although its use has waxed and waned in official policy discourse and it is more commonly associated with Labor governments, the middle power concept itself and the general diplomatic style it conveys have been one of the most durable and consistent elements of Australia's diplomatic practice.     

Never Say Never: Considerations about the Possibility of Australia Acquiring Nuclear Weapons

Abstract

Australia's decision to sign the Nuclear Nonproliferation Treaty and forego the acquisition of nuclear weapons was taken on medium-term strategic grounds. While similar circumstances prevail today, it is possible to identify three conditions for the acquisition of nuclear weapons by Australia to be a credible option: the existence of a major threat to Australia; a loss of confidence in US guarantees; and allied acquiescence to an Australian nuclear program. These conditions interact with Australia's relationship with Indonesia and the technological and industrial feasibility of “tactical” and “strategic” nuclear weapons postures, respectively. The only Australian nuclear posture that does not lack credibility in light of all these factors is the use of “tactical” weapons to deter major landings on the Australian mainland.     

Remembering the family home: emotions,belonging, and migrant men in multicultural Australia

Abstract

The article opens a space in which to discuss migrant men's emotions and their engagement with family life. It focuses on Australia's Goan community to explore the fluidity of ethnic identity and its relation to remembered family and childhood. The article suggests a “family” that is not only a domestic home but is constituted across both time and space. The men's memories of their childhood and family life prior to arrival in Australia are central to their constitution of self within Australia. These memories provide the men with the emotional means to contest their positioning in Australia's multicultural framework. The men's memories of childhood are experienced beyond domestic and multicultural spaces, making remembered families an important part of their work lives and sense of success in Australia.     

Civilisation: A Concept and its Uses in Australian Public Discourse

This article examines the concept of civilisation in Australian public discourse, focussing on some recent political uses. Rhetoric defending Australia's traditional attachment to Western civilisation has focussed on three themes — the role of the British heritage in Australian public life, the moral foundations of Australia's “Judeo‐Christian” belief system, and the rational principles of the Enlightenment. Although the language of civilisation is not confined to centre‐right political discourse, it has been most vocal among conservative‐leaning commentators. This article highlights examples of civilisation and its uses in the contemporary Australian context and attempts to give meaning to civilisation in light of debates about Australian history and national identity. I argue in the course of this article that civilisation is differentiated from culture, and that the culture‐civilisation distinction correlates with left‐right political leanings.     

Settler Colonial Strategic Culture: Australia,AUKUS, and the Anglosphere

Australia's history as a settler colony within the British Empire fundamentally shapes its sense of security within the Indo-Pacific region. Australia has consistently looked outside of its region for security and sought partners on the explicit basis of political, cultural, and ethnic similarity. What role does Australia's history play in shaping its foreign policy? We argue that these choices in foreign policy are inextricable from Australia's history as a settler colony on the farthest reaches of the British Empire. The AUKUS Agreement (AUKUS) is an example of how Australia operates to preserve racial hegemony in the face of non-white threat — real or perceived. This research utilises critical discourse analysis to interrogate elite-level discourse around AUKUS to ascertain the dominant narratives that inform its creation, the issues it seeks to address in Australian security policy, how it is structured by historical narratives of security, and how it functions to structure those narratives going forward. This article seeks to participate in the growing push to decolonise International Relations by illuminating the way Australia is ontologically and epistemologically invested in the preservation of racial hegemony.     

Re‐evaluating Australia's “Cooperative Security” in Cambodia

Australia's role in resolving the conflict in Cambodia has been described as a triumph of cooperative security that achieved a balance between principles and pragmatism. The pursuit of cooperative security is a familiar theme in discussions of Australian diplomacy during the 1990s, yet there has been little scholarly consideration of whether this accurately captures the nature of Australian foreign policy at the time. This article explains Australia's conflict resolution role in Cambodia using an alternative, neoclassical realist framework. Specifically I demonstrate that expectations of reciprocity meant that Australia, when negotiating for peace in Cambodia, preferred bilateral over multilateral diplomacy. Secondly, Australia actively sought to lead the Cambodian peace‐keeping operation to enhance its regional security credentials. Finally, building closer ties with Vietnam was an important, often overlooked policy outcome.     

DIALOGUE WITH THE WEST

Abstract

This portrayal of China by one of the most respected intellectuals ever to emerge from the shadowy labyrinth of the American diplomatic establishment mirrors twenty years of concentrated work by American China scholars. Not every China expert would accept all of Kennan's assumptions or express them in such strident form. Yet over the last two decades the China profession has evolved a style of thought, a mode of asking questions, which has largely substantiated such views in both the public and scholarly worlds. The majority of China watchers have pleaded for “tolerance” and “patience” towards the People's Republic as she gradually learns, aided by a flexible American containment policy, to “adjust” to the “international community of nations” and the “rationalizing” qualities implicit in the “modernization” process. While protesting against certain aspects of America's foreign policy toward China, however, their thought and work has reinforced, at times deepened, the ideological justifications that support America's role in Asia and her attitudes towards China.