Vol 90 Issue 1 JAN–MAR 2019

Follow the Desire Lines Remaking Australia including: Prof Rafael Calvo | Dr Johan Lidberg | Dr Ken Gannicott | Dr Zareh Ghazarian & more

The Distortion of Gonski 2.0: Ethics in AI: the Public Sphere: A controlled flight Technology at the Media ownership into terrain crossroads How to subscribe Subscribe and pay online at www.aips.net.au/aq-magazine/subscribe The subscription period is based on the calendar year: January to December – 4 issues per annum. Back copies will be forwarded.

Rates include GST. *GST does not apply on overseas subscriptions. Subscription Rates Postage included in rate. Airmail used for overseas distribution. AQ Individual and schools subscription $28 AQ Individuals (Overseas) $38* Organisations (Australia) $132 Individual Digital Subscription $14.99 Organisations (Overseas – Asia & Oceania) $145* (through www.pocketmags.com.au) Organisations (Overseas – Other than Asia) $165* AIPS Membership includes AQ subscription $88 AIPS Membership Overseas includes AQ subscription $110* AQ CONTENTS Vol 90 Issue 1 JAN–MAR 2019 3 21 33

12 32 38 Please see article Please placements : S C R E D I T E I MAG

3 21 33 Follow the desire lines: Gonski 2.0: Technology at the Remaking Australia A controlled flight into terrain crossroads Louise Tarrant Dr Ken Gannicott Prof Rafael A. Calvo AND John C. Havens

12 32 38 The distortion of the Book Review Young people, political Australian public sphere: Degrowth in the Suburbs: knowledge and the Media ownership concentration A Radical Urban Imaginary future of Australian in Australia Review by: Dr Amanda McLeod democracy Assoc Prof Johan Lidberg Dr Zareh Ghazarian and Dr Jacqueline Laughland-Booÿ 44 References

COVER IMAGE: istockphoto

JAN–MAR 2019 AUSTRALIAN QUARTERLY 1 AQ a word Australian Quarterly f there is a nobility within the capitalist project, it is that the whole edifice is built on aspiration. It teaches that the aspirations of the individual will benefit the majority; the greatest benefit arises from everyone striving for themselves. Editor: Grant Mills Yet it teaches us nothing about hope. In fact, hope seems incompatible with this model – it is a pale flicker on its own. Assistant Editor: I Stephen Burke Hope is not aspiration, nor is it optimism. Optimism deals with possible realities; it is the Design and production: light of our everyday. Hope, by contrast, exceeds all rationale, it is buoyant in the face of Art Graphic Design, Canberra history or circumstance, it enables us to see into the future and to envision the impossible. Printing: Other than this loss of long-term vision, there is another problem with aspiration being the Newstyle Printing, Adelaide underpinning human driver of our economies. If we become focused on the achievement of Subscriptions: short-term advances in our material or social status, we also become subservient to their www.aips.net.au/aq-magazine/ counterpoints – having something taken away, being reduced. subscribe This is why so many political fear tactics relate to having something stolen; jobs, culture, your enquiries to: hard-earned taxes. Stephen Burke, General Manager, The transformative power of hope so rarely bares its head in out polity anymore – the election AIPS, of Obama, and before that Kevin ’07 being among the rare examples. And, as so many people PO Box M145, wake up to the illusion that aspiration does not automatically equal success and happiness, Missenden Road NSW 2050 Australia this attendant lack of hope leads to disenchantment with the political system, and social Phone: +61 (02) 9036 9995 systems at large… Fax: +61 (02) 9036 9960 Email: [email protected] This is a very forward-focused AQ. We look at how we can restore hope and refresh trust in Website: www.aips.net.au/ the systems we rely on, whether it’s the media, the government or the education system. aq-magazine/ Facebook: www.facebook.com/ Leading the charge, Louise Tarrant asks the question, ‘If you woke up in the Australia of your AQAustralianQuarterly dreams, what would it look like?’ – and finds that hope doesn’t lie too far below the surface. ISSN 1443-3605 We also look at modern civics education and the issues around lowering the voting age, and AQ (Australian Quarterly) is published how we can best prepare young Australians to engage with their democracy. by the Australian Institute of Policy We explore the setting of ethical frameworks around the technologies of the future, the effect and Science. of media concentration on our lives, and the need for evidence-based decisions in education This project is supported by the reform. Commonwealth Government through a grant-in-aid administered I hope you enjoy. Grant Mills by the Department of Finance and Deregulation. Editor-at-large ACN 000 025 507

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2 AUSTRALIAN QUARTERLY JAN–MAR 2019 Follow the ARTICLE BY: Louise Tarrant

he key to our future Desire Lines will lie in our capacity to envision this shared future. Visionary thinking Remaking Australia – the imagination and expressionT of the possible – provides a We live in an extraordinary moment. In the face of potentially vehicle to engage, explore, critique and massive environmental and social crisis lies opportunity discover. These visions help us create new stories about who we want to be. for reinvention and transformation. Like falling dominoes, This article canvases some of the segments of our society are admitting that business as usual is barriers that have held back this conver- no longer the answer. sation in Australia but also highlights two new visions coming from within A new Australian story is waiting to be told but whose story our civic core that seek to rewrite will it be, and what will it look like? that story.

image: © Alex Proimos-Wiki

JAN–MAR 2019 AUSTRALIAN QUARTERLY 3 Follow the desire lines – Remaking Australia

Desire Lines are variously known as social trails, pathways of desire, renegade passages or pirate paths.

Desire Lines discovered Desire Lines are variously known Desire Lines mapped as social trails, pathways of desire, Engaging people in discussions It’s Friday night renegade passages or pirate paths. They about their concerns and aspirations – a are the tracks honed into the landscape The crowd tumbles out of Sydney’s mapping of the desire lines – enables by people voting with their feet to football stadium new and old ambitions to emerge. The create an alternate path to their desired power and honesty of such stories, Friends and strangers rub shoulders destination. A lovely metaphor for the rooted as they are in people’s lived Soft murmurs permeate the night air – expression of untrammelled public will. experience and deepest desires, cannot They tell us much about human goals re-lived, near misses critiqued be underestimated. To the left of the Exit sits a lonely folly behaviour, practical living and communal preferences. As Jane Jacobs, – an aesthetically beautiful but empty Australia reMADE a leading campaigner for people- pedestrian bridge centred urban planning, wrote in 1958: In a neoliberal context – where Testament to a planned environment “[t]here is no logic that can be superim- people’s humanity is constrained to devoid of common sense posed on the city; people make it, and it being market actors, whose life choices require us to ‘maximise our utility’ and Instead, to a person, fans turn right is to them, not buildings, that we must 1 where the exercise of citizenry is said – to tread the well-honed desire line fit our plans.” This was, in its day, a radical notion to be through consumer choice – it stretching across the grass and if you were to substitute ‘society’ seems highly subversive yet liberating With a shared wry smile as we step onto for city and ‘markets’ for buildings, or to instead solicit, acknowledge and give this communally created path, we join transpose First Nations having a Voice voice to people’s desires. the mini rebellion forged by thousands over their own lives, it is just as apt This is the backdrop to the devel- opment of a story that rejects that before us. today. “competition is the only legitimate organising principle for human activity.”2 This story instead advocates for an Australia where love, respect and compassion is central – a place where people and planet come first. It has been through mapping the desire lines of a diverse cross section of Australians that the vision, Australia reMADE: Creating the Best Version of Us, has emerged .3 The roots of this project began 3 years ago4 when a loose grouping of civil society leaders and activists came together to start a conversation about

image: © Alex Proimos-Wiki

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IMAGE: © hiroaki maeda-Flickr

the future. We recognised the truth in Naomi Klein’s urging “to do more than draw a line in the sand and say ‘no more’”.5 We had to move from sitting in resistance to embracing transformation. We also understood that this needed to be a shared and inclusive endeavour. In 2017 we embarked upon an engagement project6 to test the ideas and sentiments that kept recurring in our gatherings and to hear what else might be missing. We had conversations with over 200 organisations, commu- nities and individuals, asking them, ‘Imagine you have woken up in the Australia of your dreams. What is it like?’ The invitation to talk was meet with both excitement and some trepidation. This felt like a long overdue invitation – where people had just been waiting… waiting for the opportunity to be part of a conversation about the future. At first people struggled to find the words to describe their desires and concerns, yet in the course of conversation they invariably grew in confidence and excitement. It felt like hope was just sitting below the surface – just waiting to be primed. What emerged was an amazing convergence of thoughts and feelings across circumstance and geography. This wasn’t a conventional political narrative – it was warm and human, resilient and rebellious, grand and everyday. Rooted in lived experiences but lit with possibility.

Imagine you have woken up in the Australia of your dreams. What is it like?

JAN–MAR 2019 AUSTRALIAN QUARTERLY 5 Follow the desire lines – Remaking Australia

The Uluru Statement from the Heart emerged from that Convention at Uluru. It is an extraordinary document – full of beauty, pain, grace and conviction.

people. This was a truly remarkable When Desire Lines converge exercise. Spanning geographies, languages, cultures and histories “The expression of the desire for a 10 this process sought to find common better way of being or of living” is ground. known as utopian thinking. It has a long It represented a critical turning point and honoured tradition, reaching back for First Nations people in developing to Plato’s Republic (c.380BC) and Thomas their own agreed agenda and path More’s Utopia (1516). But regardless of forward. This culminated in the first genre or period, utopian thought has Australian First Nations Constitutional variously tried to grapple with the big Convention in May 2017 – the 50th questions: anniversary of the 1967 constitutional • What constitutes a good life? referendum. • What does a better world look like? It was time for something very • How best do we live in harmony with The resulting vision rests upon nine different. It came off years of being each other and the planet? equally important and connected pillars: spoken for, of undelivered promises, of Times of rupture, transition or 1. A First People celebrated at the empty symbolic gestures. As Megan instability tend to elicit, or sharpen, very heart of what it means to be Davis summed it up: “our people are a conversation about the future and Australian getting old. Too many bark petitions, about alternatives. These alternatives 2. A natural world for now and the too many statements.”8 might be incremental in scope or future The Uluru Statement from the Heart9 transformational in the systemic change 3. An economy for the people emerged from that Convention at Uluru. sought. Much depends on the level of 4. A society where all contributions It is an extraordinary document – full of entrenched control exercised by those count and every job has dignity beauty, pain, grace and conviction. It is supporting the status quo and the 5. A diversity of people living an invitation from First Nations people level of organisation, momentum and side-by-side to non-indigenous Australians to listen, ambition of those seeking change. It is 6. A country of flourishing communities hear and walk with them in their quest about both the power of ideas and the 7. A new dawn for women for Voice, Treaty, Truth. power behind the ideas. 8. A thriving democracy It calls for a First Nations Voice to the Utopian representations of ‘other 9. A proud contributor to a just world Australia Parliament, enshrined in the worlds and other ways’ seemed to Constitution. A Makarrata Commission reach their zenith in the latter part The Uluru Statement from – a ‘peace making process’ for truth of the 1800s as major industrial and the Heart telling and agreement making. And economic changes in the western ultimately, keeping faith with the world generated significant upheaval, Over the course of 2016-17, the theme of the statement, “a better future and in turn, major unrest and ideo- Referendum Council7 conducted 13 for our children based on justice and logical debate. For example, Looking regional dialogues with First Nations self-determination”. Backwards 2000-188711, probably the

image: © Michael Coghlan-Flickr

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image: © Sam Hood

most prominent socialist utopian Desire Lines unpacked novel in the US in the late 1800s, sold 1 Anti-utopians argue that utopias, million copies in multiple countries and particularly blueprint utopias, invariably languages and is said to have spawned some 40 alternate ‘utopias’ in response. lead to totalitarianism whilst others In Australia in the 1890s, a prominent relegate utopias to being ‘wishful group of Victorian radicals coalesced thinking’ or ‘castles in the clouds’. around the labour newspaper, Tocsin. Often the opposition to utopian They developed a magnificent political thought comes from more conservative agenda that, amongst its 74 points, curi- forces and those with most to lose if any ously called for “65. A Free Hansard” in change to the status quo were to occur. addition to “26. Abolition of Laws which But the derisory or dismissive stance place Women… at a disadvantage as on big vision thinking can come also compared with the Man”, “61. To Bring from within the ranks of those seeking People Nearer to Art and Art Nearer to change. For them, the pressure to focus the People” and “68. Abolition of Class on the immediate and tangible seems Privilege”.12 too overwhelming. This paper eventually morphed into Yet as Ernst Bloch in his famous Times of rupture, the newspaper of the Victorian Labor The Principle of Hope trilogy (1954-9) reminds us, “all freedom movements are transition or instability Party. 14 Reflecting a significant diminution in guided by utopian aspirations.” tend to elicit, or sharpen, But visions are more than one- the contest of ideas, and the growing a conversation about climate crisis confronting civilisation, dimensional documents – they are as it is notable that the later years of the much method as they are plan – they the future and about are vehicles of, and for, social change. 20th century saw a dearth of utopian alternatives. proposals compared with the slew of Visions can inspire, educate, critique, dystopian futures featured in film, art motivate and unify. and literature. British Sociologist Krishan Kumar When Desire Lines are muted writing in 2010 bemoaned this circum- So if visions are so important why has stance: “The loss of utopia – if only for there been such a dearth of them in the time being – must nevertheless be Australia until now? a cause for regret. For over four hundred A large part of it has to do with the years it was one of the main vehicles for times in which we live. TINA – There the expression of hopes, aspirations and Is No Alternative – has been the schemes of humanity. It was a principal overarching political narrative for the way of attempting to tame the future.”13 last forty years. Its dominance has

The derisory or dismissive stance on big vision thinking can come also from within the ranks of those seeking change. For them, the pressure to focus on the immediate and tangible seems too overwhelming.

JAN–MAR 2019 AUSTRALIAN QUARTERLY 7 Australia reMADE

A24 has auspiced the Australia reMADE project. Secretariat members are: Cassandra Goldie (ACOSS), David Ritter (Greenpeace), Kelly OShanassy (ACF), Paul been strengthened by the demise of is constantly challenged. Cultural Oosting (GetUp!), Ann Porcino communist states and the discrediting leaders and intellectuals are demonised (RPR Consulting), Archie Law of a socialist alternative; the inter- and marginalised. History is ignored (Sydney Peace Foundation) and nalisation of the neoliberal politic by or re-written – à la the culture wars Louise Tarrant (Chair). Engagement social democratic parties; the pace of and John Howard’s black armband of Co-ordinator is Millie Rooney. global economic restructuring; and the history. The media has provided the During 2018 UTS student interns centrality of fear, crisis or loss in many cheer squad, thought police, and at Aphroditi Zafiropoulos, Emilia social movement responses. times, firing squad for much of this Wynn and Hollie Cheung undertook In addition, there has been a clear silencing. background research for A24 on agenda prosecuted by the wealthy and As activist journalist Laurie Penny matters relevant to Australia reMADE ‘big end of town’ pursuing economic vividly reminds us: “It is difficult to think including research on utopian self-interest to undermine and silence clearly about a better world when thought and hope. opposition. Political capture has been you’re trying to protect your soft parts 15 key to its success. from heavy boots.” Show your support for the Vision by Consequently, dissent has been reading and endorsing it at: characterised variously as thuggery or New Desire Lines forged www.australiaremade.org elitism. Workers and their unions are However, the whole point of desire demonised, attacked and circumscribed lines is that they emerge unexpectedly while civil society’s right to advocate and often against the dictates of formal

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structures and processes around them. has shifted. Growing inequality in Leonard Cohen reminds us in his economic security and political power, seminal work, Anthem: and the ever-looming impacts of devastating climate change, are biting Ring the bells hard into public (ring the bells) consciousness. that still can ring Community Forget your frustration at the perfect offering There is a failure of political There is a crack leaders to engage crack in honestly and in everything everything boldly with them (there is a crack (there is a about the future is in everything) deepening. That's how the crack in Overseas, light gets in16 everything) Occupy, Sanders, Corby, Podemos, Despite That's how the even Brexit and The Uluru Statement the seeming light gets in Trump herald a omnipresence of departure. Sacred from the Heart is a TINA, the cracks cows no longer in neoliberalism seem so sacred. perfect example of First and attendant Orthodoxies are being challenged and conservative politics have begun to alternative views and visions are being show. Indeed, the Great Recession of promulgated. Nations people giving 2008 wasn’t just a crack but rather a Suddenly the future is being rupture in people’s faith in market-first contested. up on politicians and economics. But as Milton Friedman, one In Australia, a failure of political of the key architects of the neoliberal leadership to indeed listen, learn and forging their own project, was want to say: “when the lead on the big issues of the day has time came that you had to change” as required people to step up and begin preferred pathway. it did in the 1970s “there was an alter- their own conversations and begin to native [neoliberalism] ready there to be create new shared desire lines rooted in picked up.”17 community. Unfortunately, in 2008 an alternative The Uluru Statement from the Heart wasn’t honed and ready. But since is a perfect example of First Nations then some confluence of factors people giving up on politicians and

image: © Mark Roy-Flickr

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Statement from the Heart is addressed to the Australian people, rather than political leaders, it is now up to a united community to champion this call. The same dissonance between community desires and political leadership also underpins the Australia reMADE statement. Here, community consensus underlying this statement puts ‘people and planet’ before the political orthodoxy of ‘economy first’. This is entirely consistent with Rebeca Huntley’s research findings in her recent book Still Lucky: Why you should feel forging their own preferred pathway. As optimistic about Australia and its people, What is emerging Megan David described it, “[c]ontem- which found “[w]e remain a society porary democracies like ours are inept where the values of egalitarianism, ‘the at producing meaningful processes of are desire lines fair go’, still mean something”20 and public will formation beyond the ballot that Australians still see “the economy box. When confronted with genuinely is a means to an end… and the end is outside the deliberative processes, especially those wellbeing.”21 that threaten the status quo, those What is emerging are desire lines inured to the system are often baffled formal political outside the formal political channels. and dismissive.”18 Unfortunate but true. When Desire Lines become channels. Despite the fact that in a most historic act our First Nations people orthodoxy stood together and spoke with one The question is: can such visions take voice, their call for Voice Treaty Truth root and create new orthodoxies? was immediately closed down by Twice, major changes have occurred conservative political leaders. Yet we in Australia’s settings in the last fifty also know from polling more than 60% years. of Australians are supportive of the The first came when Gough Whitlam initiative19 – even with a hostile prime magisterially declared in 1972: “Men and minister. women of Australia! The decision we A historic moment of possibility will make for our country on December was missed but given that the Uluru 2 is a choice between the past and the

image: © roawrzz-DeviantArt

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The challenge is to build ‘the traffic’ along those desire lines such that they become embedded in new formal structures and ways of working – a new common sense.

future, between the habits and fears of Bregman likens its rise to a relay race wings for a long time – honing their the past and the demands of the future. “with think tanks passing the baton to ideas, building the capacities required There are moments in history when the journalists, who handed it off to politi- to win, keeping unity and focus on whole fate and future of nations can cians. Running the anchor leg were their ambition and not losing faith that be decided by a single change was possible. decision. For Australia, So the release of these two wonderful this is such a time. It’s visions, the Uluru Statement from the time.”22 Heart and Australia reMADE, do not mean job done! The challenge is to Memorable words and build ‘the traffic’ along those desire lines an election manifesto such that they become embedded spanning 47 pages and in new formal structures and ways of 200 promises – from working – a new common sense. soaring emotional appeal At stake is the future of our country to bringing sewage and whether it will be one borne in to the 60% of suburbs justice and self-determination for our without. All with the First Nations and whether people and purpose “to recreate this planet reside at its core. At this point, nation”.23 people are forging these desire lines Bizarrely, one of the across the community waiting for best testaments to this formal politics to catch-on and catch-up ambition and legacy that a new future is required. A future comes from the radical right think tank, two of the most powerful leaders in (as foreseen in Australia reMADE) where IPA whose website attests: the western World, Ronald Reagan and “we are unified and uplifted as a nation, Margaret Thatcher.”24 And changed the we are compassionate, we make sure No prime minister changed Australia world it has. we all have a place.” more than Gough Whitlam…..He enacted an Both these aspirants waited in the Let’s hope they don’t take too long. AQ ambitious cultural agenda that continues to shape Australia to this day. AUTHOR: The other example is the Neoliberal Louise Tarrant is Chair of the A24 Secretariat. A lifelong unionist, project itself. Although it didn’t begin Louise was formerly National Secretary of the union United Voice life as a public facing vision intended to and currently serves on the Board of Greenpeace Australia Pacific inspire mass movements, it was none- and CANA (Climate Action Network Australia). theless a vision with a purpose – and powerful big-money backing. Rutger

JAN–MAR 2019 AUSTRALIAN QUARTERLY 11 The distortion of the Australian public sphere: Media ownership concentration in Australia

They say News Corp staff can feel when Rupert Murdoch is in ARTICLE BY: Associate Professor Johan Lidberg town. The 88-year-old chairman of News Corp has achieved a his article will not resort mythical status in Australia and around the globe. He is the to News Corp bashing, because the problem is maker and breaker of prime ministers, his latest scalp that far greater than just one of Malcolm Turnbull. His company also embodies the societal company. But there are a fewT useful case studies emanating from problem with media ownership concentration. News Corp that I’ll return to. The wider

image: © EdSteinink.com

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Australian politicians, from both major parties, have yet again failed to play the role of the honest broker between market forces and the public interest.

problem is a structural and regulatory the birth of radio followed by TV, but publisher of The Age, was a leader issue where Australian politicians, from they all pale in comparison with the in online news in the early 2000s. both major parties, have yet again failed birth of the internet within which the They had a clear edge compared to to play the role of the honest broker world wide web (www) exists. The their competitors and the choice of between market forces and the public online/digital disruption was, and still embracing online. Eric Beecher, then interest. is, immense and it caught most legacy a senior editor at Fairfax, was commis- Australia is not alone in having a media companies off guard. sioned by the Fairfax board to look into concentrated media market. We can see I saw my first web page in 1992. It is the future. The future Beecher saw was similar patterns emerging both in the forever burned into my memory. It was online and digital. Yet, in spite of his US and in some parts of Europe.1 But the official web page of the US White advice, the Fairfax board decided to Australia stands out as one of the most House. The second page my early tech- stay with and prioritise the hard copy concentrated media markets in the nology adopter colleague showed me newspaper.3 The rest is history. world and this increasing concentration was a fake US White House page – an For Australia the second pivotal has been happening for some time.2 ominous sign of what the www would moment arrived in 2006. The then- Then there is the question of why it also offer in the future. communications minister, Helen appears to be speeding up. It took until the mid-to-end 1990s Coonan (Liberal), engineered (heavily until media companies started to lobbied by the big media owners) Background explore the potential of publishing media regulation ownership reforms online. Here we find pivotal moment that allowed for increased ownership We could program our Tardis to revisit one: most publishers made news across media platforms. Blogs were the various technological disruptions that available for free. Possibly the dumbest flavour of the day and one of her driving have led to, first, media expansion and business decision since (a quick internet arguments for the reforms was that then concentration, eg. offset printing, search later) Western Union passed the internet allowed citizen journalists, on the offer of buying the telephone for instance via blogs, to publish and patent in 1876 for US$ 100,000. contribute to media diversity. What were the legacy media That argument was as flawed companies thinking when offering then as it is today. Here is the reason: What were the legacy their quite expensively produced producing independent public interest media companies content for free? Probably that the journalism that meaningfully holds www was a bit of passing fad and that power to account is time consuming thinking when offering in a best-case scenario publishing and expensive. Citizen journalists have their quite expensively online would attract audiences to the day jobs. Very few of them contribute real stories printed with ink on paper in original reporting to the public sphere. produced content for huge printing presses that rumbled in This is not a critique of citizen jour- free? Probably that the basements of newspaper houses. nalists (CJ), there are some really good In Australia, we have our own worst things with CJs – like diminishing the the www was a bit of media business decision. Fairfax, publication gate-keeping role of legacy passing fad.

image: © Johnny Silvercloud-Flickr

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This takes us to where we are today with the Nine – Fairfax merger (or more correctly takeover, as the Fairfax name will disappear).

media, but they do not add to media Australian Consumer and Competition Daily do not have the resources to plurality in a meaningful way. Commission (ACCC) recently waived fight defamation battles or challenge Fast forward to October 2017, and the through the deal acknowledging that court suppression orders. They do then-Turnbull government re-hashes it would lead to less competition. But good journalism, but don’t have the Coonan’s, still flawed, arguments for not significantly less, which means the funding clout needed to be a proper loosening media ownership restrictions takeover can go ahead. complement to the remaining big four further allowing for ownership across all Disappointingly, the ACCC also fell media companies. It is highly likely we’ll media platforms by the same company. into the flawed Coonan argument trap, see more mergers and takeovers after This takes us to where we are displaying a surprising naïvety about this ruling. today with the Nine – Fairfax merger how the Australian media market The diagram below illustrates how (or more correctly takeover, as the works.4 One major issue is that the new a handful of owners dominate the Fairfax name will disappear). The players, such as Crikey and The New Australian media market before the

Source: the Australian Communication and Media Authority. Current as of October 2016.

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Nine – Fairfax deal. Multiple studies have clearly shown that Australia has one of the most concentrated media markets in the world. This is most aptly illustrated by the fact that the four major commercial media players, News Corp Australia, and Facebook debacle, and Google Fairfax Media, Seven West Media and chose the red or the blue pill. being part of the global mass surveil- APN News and Media accounted for Remember the German political lance dragnet): Facebook CEO Mark more than 90 per cent of the revenue philosopher Jurgen Habermas? His Zuckerberg wants to connect the world in the industry in the 2015-16 financial main contributions to public discourse to make it a better place. So, Facebook year.5 are his thoughts on the public sphere. is helping African countries to connect The third watershed moment is In a nutshell, Habermas defined the to the internet the rise, rise and rise of the big three: public sphere as via satellite and Facebook, Google and Amazon. Not part of social life wifi technology, in recorded history have we seen such where citizens bypassing more global dominance of any company in come together expensive fibre the media sector, or any sector for that voluntarily and cable roll News Corp Australia, matter. You only have to look once at (freely) to outs. Sounds Fairfax Media, Seven the advertisement revenue charts, the discuss the like a win-win. profits of the big three, and how they West Media and APN issues of the The problem have spread around the world, to realise News and Media day in order to is: the citizens that this is where the future big issue influence policy in these coun- accounted for more lies in terms of concentration. and politics. We tries, to a great News Corp shrinks into an ant than 90 per cent of would probably extent, access compared to the three. How on earth the revenue in the call it public the internet via did we let this happen? Well, again, our political partici- one interface – industry. elected representatives were asleep at pation today. Facebook. They the wheel or did not understand the In order for get the www potential market power of the three. the public according to Culpable too are people like me and sphere to Zuckerberg. my colleagues, we could have been function clearer on where things were going and effectively its participants need to focused our research more on this to Consequences have equal access to quality, unspun sound the alarm. This is where it gets a bit dystopian. information and facts. This is of course Consider one chilling example But fear not, there is light at the bottom a utopian notion even at the best of (apart from the Cambridge Analytica of the rabbit hole, depending on if we times (and there are a lot of other

This is where it gets a bit dystopian. But fear not, there is light at the bottom of the rabbit hole, depending on if we chose the red or the blue pill.

JAN–MAR 2019 AUSTRALIAN QUARTERLY 15 The Distortion of the Australian Public Sphere

The Murdoch editor clones can then be trusted to run lobbying campaigns like the ones on weaker and weaker media ownership regulations.

critiques of public sphere theory that sector, indeed all actors in society that trusted to run lobbying campaigns I cannot fit into this piece), but it is exercise power). Media ownership like the ones on weaker and weaker nonetheless a model that allows us to concentration threatens this contract media ownership regulations, which analyse the consequences of media and its delicate balance. is lucrative for News Corp as it allows ownership concentration. Let us use News Corp as a case study. the company to expand and buy Media and journalism play a vital role There have been several studies done more and more of the Australian and in supplying the public sphere with on the way Rupert Murdoch influences global news media market. the fuel it needs: information that is in his editors. One of the most powerful 2) When all News Corp’s outlets in the public interest in order for citizens research projects is by David McKnight.7 multiple countries run the same to be self-governing. For this to work, He synthesised Murdoch’s influence and editorial and news reporting line, events need to be reported as fairly access to political leaders in Australia, their influence is immense. One and neutrally as far as possible. Some the UK and the US. There are two main potent example of this was the refer to this as a sort of social contract takeaways from this study. lead up to the 2003 Iraq war when between media/journalism audiences 1) Murdoch uses journalism to gain all Murdoch media spoke as one in and the media owners.6 commercial advantages. This is done support of the war. When the case for You – the publishers – deliver inde- via hiring editors who think like war proved to be null and void as no pendent and integrity-strong stories him, meaning that there is no need weapons of mass destructions were holding power to account and we – the for explicit instructions regarding found, some media companies, like audience – buy your product and back content and editorial direction. the New York Times, apologised to the you up when you are under pressure If an editor loses the ability to think public for its lack of critical reporting.8 from the powers we have asked you to like Murdoch, he/she is replaced. The Not so News Corp. hold to account (politics, the corporate Murdoch editor clones can then be The second example is the ongoing

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The sensible political middle is increasingly empty as citizens desert it for the partisan trenches. It may sound boring, but the middle is where we make progress.

issue of climate change. In spite of compromises and mutual respect for repeated and overwhelming global different points of view. scientific consensus on man-made One of the elements of journalism, climate change, the Murdoch media according to Kovach and Rosenstiel, is continues to publish misinformation, that ‘it must provide a forum for public half-truths and sometimes outright criticism and compromise’.10 At the lies on the issue. A prominent case in moment, the hyper-partisan, mainly point here is the News Corp coverage opinion-driven, journalism produced by of the coral bleaching of the Great some sections of the Australian media is Barrier Reef.9 failing this element The above completely and examples have thus fuelling caused a serious partisan and at and lasting So, what can times hate and in this partisan ideological war? distortion of the fear-driven politics. This leads to the core consequence of public sphere in and should be Agreeing to media ownership concentration – the Australia. This has disagree and risk is greater for partisan ideological lead to the bitter done? Well, it respecting other divides to form in society when fuelled divisions between points of view, by media outlets that have made it progressives that while in good ain’t rocket part of their business model to publish desperately want faith striving heavily opinionated content instead of to act on climate for workable striving for compromise via respectful change and that compromises to science. democratic behaviour. overwhelmingly form policies is voted for same the hallmark of The way ahead sex marriage, mature liberal being opposed by a small, but very democracies. The ideological trench- So, what can and should be done? loud, conservative faction amplified by like political warfare we are currently Well, it ain’t rocket science. Most of the News Corp media. witnessing in the USA, and to a lesser solutions have already been suggested This is exemplified by the attempt extent in Australia, is the polar opposite to, and canvassed by, the 2017 Senate to turn Sky News into a version of Fox to mature democratic behaviour. Inquiry into the Future of Public News in Australia. This is very serious Part of the blame for this situation Interest Journalism.11 Below I cover, in because it means that the sensible must be squarely put on some media my assessment, the most viable and political middle is increasingly empty outlets producing journalism that urgent proposals. In the interest of as citizens desert it for the partisan is, in effect, anti-mature democratic transparency and disclosure, I co-wrote trenches. It may sound boring, but the behaviour. I keep asking myself – where and edited one of the submissions to middle is where we make progress via does all the ill will and hate come from the inquiry.

IMAGE: © Morguefile

JAN–MAR 2019 AUSTRALIAN QUARTERLY 17 The Distortion of the Australian Public Sphere

The total ABC funding has been lowered by $254 million since 2014 – a 25 per cent cut of the total ABC budget.

Public broadcasting While commercial media is figuring out the future business models for journalism (and it will be a combination of models), public broadcasters are the most important repository for public interest, in-depth journalism. It is therefore crucial that they are properly funded to do their job. Under the current and previous government in Australia the opposite is true. In spite of former prime minister Tony Abbott promising no cuts to the Australian Broadcasting Corporation (ABC) or Special Broadcasting Services (SBS) on election eve 201312, two consecutive coalition government have cut $101 million dollars per year in ABC funding since 201413. In the last 2018-19 federal budget a further $84 million was cut and if you include not-renewed targeted grants, such as one for news gathering, the total ABC funding has been lowered by $254 million14 since 2014 – a 25 per cent cut of the total ABC budget. This should be restored as soon as possible and funding should again be coupled to the consumer price index. Re-funding the ABC is the most powerful antidote to the distortion of the Australian public sphere as the ABC is bound by its charter to offer national forums for respectful public debate – the opposite to Sky News after 6 pm.15 This should not be a difficult political

18 AUSTRALIAN QUARTERLY JAN–MAR 2019 The Distortion of the Australian Public Sphere

decision to make. Opinion polling There are already models that could be unequivocally shows that while public adapted for Australian purposes. trust in other media outlets is falling, the Several European countries have ABC still enjoys very high trust levels.16 various forms of taxpayer funding for The ABC board and the appointment media outlets, predominantly news- process of board members needs papers, to avoid the one-paper town to be (as it once was) removed from scenarios that is the unfortunate case in government and handled by a neutral several Australian cities. These funding body. The recent debacles exposing schemes have been around for a long the former chair person Justin Milne as time and are now more needed than The fate of the ABC is not only doing the bidding of the government ever. So there is no need to re-invent trying to influence editorial decisions the wheel – assess the existing models a matter for Australia. Across and the sacking of journalists, clearly and adapt versions that work in the illustrates why this is an urgent change. Australian media landscape.18 the globe there are currently only Furthermore, the fate of the ABC is Re-regulate media ownership between 11-15 independent not only a matter for Australia. Across the globe there are currently only The market and its inherent compe- (from government and the tition is, in most cases, a force for good between 11-15 independent (from corporate sector) properly funded government and the corporate sector) and drives innovation. But in certain properly funded public broadcasters. areas leaving it to the market is a really public broadcasters. The total number varies depending on bad idea. Heavy public utilities such as what you classify as proper funding. But power grids, natural gas infrastructure if we use the ABC as a benchmark, it is and water infrastructure are some closer to 11 than 15.17 examples. Given these low numbers, if an entity In the case of privatising utilities, the journalism. Therefore, if we leave it only like the ABC is diminished, so is inde- private operators drove each other out to the market, media diversity will keep pendent in-depth journalism globally. of the market until there were one or shrinking until we only have a handful, two operators left – close to the same if that, of owners and publishers left. Government support for public as was the case when they were state Such is the logic of the media market, interest media owned. Then they didn’t spend enough and therefore ownership needs to be Following on from the ABC funding on maintenance to increase profit re-regulated to protect public interest flows the argument that if we fund margins. journalism long-term. public broadcasters with tax money, We’re seeing a similar scenario in There are several other sources of why not other media outlets as well? domestic and global media companies. income for media companies. We are A good question that was thoroughly They compete, buy or merge to seeing an increase in subscriptions for canvassed in the senate inquiry into increase their margins. Profit is the publications such as The Guardian (and the future of public interest journalism. driver, not delivering public interest Guardian Australia), The New York Times

JAN–MAR 2019 AUSTRALIAN QUARTERLY 19 The Distortion of the Australian Public Sphere

The Junction is published by the Journalism Education and Research Association Australia and features the best stories from journalism students across Australia.

(and the NYT Australian edition). This programs to both produce stories and in combination with crowd sourcing collaborate with and teach journalism funding for major reporting themes students. Several submissions to the could be one potent future business senate inquiry suggested that altruistic model for journalism. funding of public interest journalism Another suggestion that is getting should be tax exempt. That makes a lot increased traction is for Facebook and of sense. It certainly works in the US. Google to pay for stories from media The other role for universities is outlets that are shared and published already, I am very pleased to report, on their platforms. How this can be happening. On October 24, 2018 a new done is unclear. But there is no doubt online nationwide publication was that publishers need to think care- launched. The Junction20 is published by fully before they put all their eggs in the Journalism Education and Research one basket and abandon their own Association Australia and features the publication vehicles to publish only best stories from journalism students on social media platforms that they do across Australia. not control. We have already seen what The founding universities are small changes to the Facebook and eleven, but we know from the project Google algorithms can do to traffic and UniPollWatch (UPW), which covered the advertising revenue.19 2016 federal election, that many more A role for universities will join. The UPW 2016 project involved Another suggestion Submissions to the senate inquiry 26 universities, close to 600 students raised possible roles for universities and produced almost 800 stories from that is getting in countering media concentration. most federal electorates. The reasoning went that universities The main value add of UPW is that it increased traction are independent from faction as far covers the electorates down to a very as possible and could therefore serve local level in a way that legacy media as a base for independent journalists. don’t have the resources or will to do. In is for Facebook and This would be connected to altruistic 2018, The Junction hosted the UPW VIC funding from the private sector. This state election. The adventure continues. Google to pay for funding avenue is not well established So, there is hope. And here’s a in Australia, but it is worth exploring. thought. Chip in. Subscribe to as many stories from media Investigative journalists could, for quality media outlets as possible. From instance, be seconded to journalism little things… AQ outlets that are shared and published AUTHOR: Johan Lidberg is an Associate Professor in the School of on their platforms. Media, Film and Journalism at Monash University and the Director of the Master of Journalism.

20 AUSTRALIAN QUARTERLY JAN–MAR 2019 Gonski 2.0: A Controlled Flight into Terrain

There are many reasons why aircraft crash and burn. Often the explanation lies in a combination of mechanical problem and response by the flight crew. One of the most baffling types of crash is a controlled flight into terrain. This occurs when an aircraft not experiencing any mechanical problem, and under complete control by the pilot, is flown into the ground. The latest Gonski Report (Through Growth to Achievement, Report of the Review to Achieve Educational Excellence in Australian Schools, and inevitably christened Gonski 2.0) provides a spectacular example of a crash and burn after flying straight into terrain.

ARTICLE BY: Dr Ken Gannicott

he release of the Gonski 2.0 report in early 2018 Gonski 2.0: provoked a chorus of crit- icism, much of it derisive, itemising the reliance on platitudesT and clichés and its failure to A controlled flight address the terms of reference in any meaningful way. Particularly baffling is that the Review into terrain was established with everything in working order. It had just one job, which was to provide advice on how funding should be used to improve

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Australia’s poor academic achievement is neither fake news nor mere politicking over funding.

student achievement. It was in the but it would be rash to conclude that renewed impetus for checking whether blissful position of not needing to argue Gonski 2.0 has been shelved and can be Gonski 2.0 was on the right track for the case for extra funding because safely left to collect dust. improved achievement by our schools. $24.5 billion over ten years had already The Australian Curriculum, We start by summarising the worrisome been committed by government. The Assessment and Reporting Authority levels of student performance that ‘pilot’ enjoyed enviable public esteem. (ACARA) has started work on a provided the rationale for Gonski 2.0. And, not least, there is now an extensive proposed new curriculum that We then review the international literature, drawing on evidence from appears heavily influenced by Gonski evidence on school performance and high-performing countries, on the 2.0. Agreement on a new method of follow this by asking whether Gonski 2.0 policies required for improved educa- funding Catholic and independent was consistent with that evidence. tional performance. schools has prompted Opposition What, as they say, could possibly go promises of an additional $15 billion Australia’s school performance: wrong? for public schools, but these ‘funding same old story but a fresh Then-Minister Simon Birmingham wars’ have been unaccompanied by any perspective promised that the Gonski recommen- evidence that the money will promote dations would be implemented. Little better performance. Australia’s poor academic of substance has happened since then, These developments provide achievement is neither fake news nor

Fig 1: Years of schooling: How does Australia compare?

SOURCE: Calculated from data in World Bank, The Human Capital Project, Table A.1.

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Fig 2: Harmonised test scores

mere politicking over funding. It is a well-known story that has been given fresh and dramatic reinforcement in new work from the World Bank.1 We see from Figure 1 that in quantitative terms Australia is performing well. An Australian child can expect to complete 13.8 years of schooling by his/her eighteenth birthday. This quantity of schooling is higher than would be predicted for our income level and it puts us well into the top rank of countries. The story becomes less benign when we turn to the issue of how much our children learn in school. A major feature of the World Bank’s recent work is the production of a globally comparable database of learning outcomes. Conversion factors are used to put the SOURCE: World Bank, The Human Capital Project, Table A.1. considerable number of international and regional assessment tests on a common, or harmonised, scale.2 Figure and can reasonably be regarded as a achievement tests, the amount of 2 shows these harmonised scores for proxy for learning outcomes. effective schooling drops to only 11.6 the same sample as Figure 1. We can see that, in contrast to its Whether we look at learning in mainly years, a learning gap of 2.2 years. This high quantitative rank, Australia’s perfor- educational, social or economic terms of is equivalent to saying that Australian mance in the quality of learning puts it human capital and future productivity, students lose more than 2 years of scarcely better than middle of the pack. there is not much point in sitting behind learning due to the inadequate quality Australia’s position in a league table of a school desk if learning falls short. We of their schooling, effectively learning assessment scores may be of no great can directly measure this by combining less than students in Asia and Europe, importance in itself. No one suggests Figures 1 and 2 to estimate expected despite similar years of education. that standardised assessments such as years of learning-adjusted school. Severe practical consequences follow PISA fully measure the multiple aspects From Figure 1, children in Australia from the disparity between our quan- of learning outcomes. Psychometrically- can expect to complete 13.8 years titative and qualitative performance. designed achievement tests have, of schooling. When adjusted for There is clear evidence that learning however, become very sophisticated relative performance on international outcomes, as measured by such tests,

Australian students lose more than 2 years of learning due to the inadequate quality of their schooling.

JAN–MAR 2019 AUSTRALIAN QUARTERLY 23 matter substantially for economic analysis drawing upon the massive PISA learning with very effective teachers, well-being.3 database. Six key issues make up this compared with 0.5 years with poorly core evidence. performing teachers. In short, for The sources of performance 1. Effective teachers. Teachers are the pupils from a low socio-economic improvement most important factor by which background the difference between policy makers can directly improve a good teacher and a bad teacher is a There is no mystery about the factors student achievement. Today, all whole year’s learning. conducive to better educational perfor- teachers in OECD countries are qual- 2. Adaptive Instruction. Terminology mance. Since the ‘effective schools’ ified, but just like any other occupa- varies, but the basic concept is direct literature of the 1980s, there has been tional group there is a distribution of instruction, sometimes called explicit a steady accumulation of evidence effectiveness. The difference between teaching. With explicit teaching, the drawing upon international experience good and bad teachers is very large. teacher shows students what to of “what works”. There is no uniquely On UK evidence, during one year with do and how to do it. Recognising correct recipe, but a core of agreed a very effective maths teacher, pupils that learning is a cumulative and performance evidence has emerged. gain 40% more in their learning than systematic process, it decides the This evidence is widely accessible, they would with a poorly performing learning intentions and success whether it is pathbreaking academic teacher.5 The effects of high-quality criteria, demonstrates them, and eval- work on the importance of cognitive teaching are especially significant uates if students understand what skills by Hanushek and Woessmann, for pupils from disadvantaged they have been told. To this basic management insights from consultants backgrounds. Over a school year, concept must be added whole class McKinsey & Co, or the OECD’s statistical these pupils gain 1.5 years’ worth of teaching, which self-evidently means

For pupils from a low socio-economic background the difference between a good teacher and a bad teacher is a whole year’s learning.

24 AUSTRALIAN QUARTERLY JAN–MAR 2019 Gonski 2.0: A Controlled Flight into Terrain

image: © Simon Fraser University Collaborative practices between teachers within and across schools are important features of many high-performing schooling systems.

that a teacher teaches an entire class with high educational performance feedback (formative assessment) to of children at one and the same time. and high economic growth, down to the student. Whole class teaching is typically sub-Saharan Africa with low scores 6. Collaboration: Collaborative prac- delivered through direct instruction. on each measure, there is a clear tices between teachers within and Adaptive instruction describes the and consistent correlation between across schools are important features process of incorporating individual mastery of basic cognitive skills and of many high-performing schooling help into explicit/whole class educational/economic performance. systems. In countries such as Finland teaching when a student has diffi- 4. High expectations: High expecta- and Japan teachers are encouraged culties understanding a topic or task. tions are linked with higher perfor- to work together, through joint Kirschner, Sweller and Clark insist that mance. Most teachers would assert lesson planning, observing each “the empirical research [supporting that they already have high expecta- other’s lessons, and helping each explicit teaching is] overwhelming tions of their students, but research other improve. In China, teaching and and unambiguous.”6 This conclusion is demonstrates that in practice there is development teams, or JiaoYanZu, confirmed in OECD’s list of 38 factors a wide range of attitudes. A persistent work together within and across associated with science performance research finding is that students from schools to plan how the curriculum on the 2015 PISA tests: adaptive disadvantaged backgrounds may will be taught, to share learning, and instruction and direct instruction rank achieve less than their potential due observe each other’s practice. second and third on that list. to low expectations of their ability. 3. The importance of cognitive skills. 5. Measurement of effective learning Performance evidence in a Parents have always known that basic and feedback: Continuing data- nutshell skills are crucial, and economists driven analysis, assessment and have long known that a country’s evaluation often underpin school These core factors are not separate development is connected to the performance. They are critical in items on a shopping list: they overlap skills of its workers. The problem is monitoring the impact of policy and reinforce each other. The NSW that we did not have research-based and they provide a basis for teacher Centre for Education Statistics and evidence about the contribution of basic cognitive skills. There was, understandably, a tendency to think that raising enrolment rates or keeping children in school for longer would be sufficient. Recent research has filled that gap. Evidence from Hanushek and Woessmann (a precursor to the World Bank’s work on the Human Capital Index cited earlier) is both clear and highly influential.7 From East Asia,

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The core performance factors and their interaction should have provided baseline evidence for Gonski 2.0, but virtually no such evidence appears in the report.

Evaluation points out that providing integrated and coherent model of understanding. timely and effective feedback to education. It is a model consisting of 2. Lockstep delivery of the year-level students (item 5 above) is another objective achievement standards, high based curriculum makes it difficult element of explicit teaching (item 2). expectations of all students, a focus on to develop teaching programs for Focusing students’ attention on the cognitive skills, and explicit teaching students who are above or below task at hand and the way they are by effective and collaborating teachers year-level expectations. Australian processing that task are two effective using direct and adaptive instruction. students from low socio-economic types of direct feedback. It is a model grounded in the interna- backgrounds are less likely to have Similarly, being explicit about the tional evidence and experience. growth mindsets, that is, a belief they learning goals of a lesson and the can succeed if they work hard. At criteria for success (item 2) gives high Performance evidence and the the other end of the spectrum, some expectations (item 4) a concrete form Gonski approach students may not be challenged that students can understand and aim enough. for. As a further example, the literature The core performance factors and 3. Many students in our schools are not indicates that teachers are more likely to their interaction should have provided realising their full potential because baseline evidence for Gonski 2.0, but our school system prevents teachers virtually no such from putting individualised growth- evidence appears focused teaching and learning into in the report. practice. Instead of at 4. Therefore (so the argument runs) least reviewing Australia should move from a year- the evidence, based curriculum to a curriculum Gonski makes expressed as learning progressions the extraordinary independent of year or age. Instead claim (page ix) of content and achievement make effective use of student data (item that there is “a standards, Australia would adopt a 5) when working collaboratively (item lack of research-based evidence on structured roadmap of long-term 6) than when working alone. what works best in education”. The learning progress. No doubt, some highly effective consequence is that in place of a judi- 5. To support this, a new online teachers (item 1) are born teachers, but cious discussion of the international formative assessment system would many more can be trained to become evidence, Gonski 2.0 offers a model give teachers the tools with which to effective by adopting better peda- in which (to paraphrase the line of identify individual learning growth. gogical practices (item 2) or learning argument): 6. Shifts in technology and jobs are from their colleagues (item 6). 1. The major constraint is the rigidity changing the balance of the skills our Once we allow for such interac- of curriculum delivery because all students need to develop, so there tions, it becomes clear that the students receive the same fixed should be increased emphasis on core performance factors offer an year-level diet of knowledge, skill and general capabilities in the curriculum.

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Some of this argument is incon- testable. It has long been understood that socio-economic differences have a major bearing on academic performance. Teaching a class of widely differing abilities is very demanding. These strengths acknowledged, for the most part the Gonski model is either wrong or not supported by any evidence. That evidence is unambiguous: whereas adaptive and direct instruction rank near the top in their measured impact Teachers and pedagogy on educational effectiveness, inquiry-based teaching ranks Aside from much verbiage (“teachers near the bottom. deserve greater recognition and higher esteem”) Gonski has little to say about the role of teachers or pedagogy in themselves making meaning. Guided adequately cater to each student's explaining Australia’s low performance. inquiry may set parameters for class different learning needs”. Whole- Despite extensive international activity, but the essence is that students class direct instruction has been the evidence about the role of teachers and are actively involved, often through dominant style in most Asian countries, pedagogy, the report does not explore small-group activity, in constructing and a major feature from East Asian test the issue of alternative approaches their own understanding and learning. results is that they do not in general to teaching. This leaves the report advocating a gee-whiz technological It might be thought that a small have the long tail of non-performing fix for the assessment system, but group, student-centred approach was students seen in so many other nowhere outlining the pedagogical ideally suited to engaging groups of countries. approaches to be used for the ensuing varying abilities in a class, thereby The spectacular results achieved by interventions. extracting maximum performance. Noel Pearson with direction instruction This is a serious omission, because in Nothing could be further from the for indigenous students is entirely this country we persist with a teaching truth. Inquiry-based learning ranks near consistent with the international approach that is known to be inef- the bottom (34th out of 38) of OECD’s evidence. That evidence is unam- fective. For many years inquiry-based performance-enhancing factors, and in biguous: whereas adaptive and direct teaching has been the predominant fact has a strong negative association instruction rank near the top in their approach in Australia’s schools. with performance scores. measured impact on educational effec- Inquiry learning is a constructivist, Gonski is simply wrong in asserting tiveness, inquiry-based teaching ranks student-centred approach, with the that “it is impractical to expect that near the bottom. teacher as facilitator and the students the same curriculum content can There is abundant evidence that

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Children cannot learn to be critical thinkers until they have actually learned something to think about.

socio-economic (dis)advantage is a major determinant of educational performance. But hand-wringing about social disadvantage achieves nothing. There is not much that any of us can do to change our parents, and planned policy changes in socio-economic structure take years to materialise. Direct and adaptive instruction are effective means of doing something about the problem – indeed, on OECD’s ranking they are by far the most important means of doing something useful to overcome social disadvantage. Mention direct instruction in any faculty of education and the tea-room will erupt as though you are advo- cating a return to Dotheboys Hall and Wackford Squeers. With direct and adaptive direct instruction ranking second and third in OECD’s list of 38 factors associated with science performance, we are long past the time for a grown-up discussion of explicit instruction in Australia. General capabilities The recommendation to emphasise general capabilities rather than specific cognitive skills is back to the future with a vengeance. In 2013, the Draft National Curriculum had to be rewritten because it consisted largely of unsupported rhetoric about general capabilities and cross-curriculum themes.8 It was not difficult to see that a

image: © Stuart Pilbrow-Flickr

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image: © Brisbane City Council-Flickr

national curriculum which filtered had a reputation for academic excel- our students’ achievement. maths, science and literacy subjects lence, but the system is not known for through a perspective of general encouraging critical thinking processes. A new system of formative capabilities would not come close to Singapore now wants to produce more assessment giving our students the necessary level well-rounded students. of achievement. Zombie-like, general Crucially, this will not be at the There is convincing evidence that capabilities have risen from the dead expense of continued high perfor- data-driven assessment and feedback in Gonski 2.0, with claims that “general mance in specific subjects: in some are vital for student performance. There capabilities need to be at the core of grades students “will be exposed to can of course be too much testing as our curriculum” (page 38). new subjects and/or higher content well as too little. There are indications No sensible person wants an rigour and expectation”.10 Despite that Australian parents welcome both education system that lacks, say, the these requirements, students will have the diagnostic information about their study of history, or which pays no more time for self-directed thinking child and the school performance attention to wider personal devel- and to “develop 21st century compe- data provided by NAPLAN, but there is opment in drama, music and art. The tencies” because constant debate. importance of critical and creative a substantial The United States thinking, personal and social capability, reduction in the and Israel have and ethical understanding are well number of school- reduced the amount understood. That much accepted, based assessments There is of testing and, as we there is unambiguous evidence (cited and high-stakes convincing have seen, Singapore is following suit from earlier as item 3) that what counts for examinations will evidence that our long-term wellbeing is high perfor- make available 2019. The problem mance in the mainstream subject areas. much class time data-driven is not so much the Subject content knowledge is some- presently taken up assessment frequency of testing times dismissed as rote learning and set with cramming for and feedback as such: the dilemma in opposition to critical thinking, but the tests. are vital is that assessments often do double duty, general capabilities need to build upon This careful for student specific subject knowledge, not replace balancing of partly as formative it. Critical thinking processes depend on assessments, performance. assessment for each some knowledge of the topic. Schwartz specific subjects student but also as has pointed out, waspishly but accu- and general high-stakes perfor- rately, that “children cannot learn to be capabilities, taken mance indicators for critical thinkers until they have actually from a position of each school. learned something to think about”.9 great educational strength, is a far cry It follows that the frequency of assess- This is exactly the approach taken by from waffle about giving general capa- ments should depend on a judicious Singapore in its recently announced bilities pride of place in the Australian appraisal of the evidence, so it is extraor- reform package. Singapore has long curriculum. Doing so will further reduce dinary that Gonski proposed a new and

It is extraordinary that Gonski proposed a new and more elaborate formative assessment tool based on no evidence at all.

JAN–MAR 2019 AUSTRALIAN QUARTERLY 29 more elaborate formative assessment Comparisons are further complicated learning progressions, to diagnose a tool based on no evidence at all. This because assessment scales are non- student's current level of knowledge, new tool would switch from NAPLAN’s linear: in general, students show greater skill and understanding, [and] to identify measurement of achievement to meas- increases in scores in earlier rather than the next steps in learning to achieve uring a student’s learning progression, later years of schooling. Comparing the the next stage in growth”, has good or growth. relative progress of different groups of entertainment value. It is, for the most There is not a shred of evidence that students can be misleading unless we part, fantasy. the rigidity of curriculum delivery is know the starting point for each group. It goes without saying that a student the major explanation of low academic There are ways to solve these technical who is not academically gifted but who performance and that assessment issues. It has become standard in the is doing his/her damnedest to make geared to more flexible learning research literature to measure student progress needs to be encouraged and progressions will fix the problem. progress by converting assessment supported. This is quite different from Gonski 2.0 nowhere poses, let alone scores to equivalent years of progress. The substituting progress for objective answers, the question why many Asian Grattan Institute has used this technique attainment standards across the entire and European countries operate a tradi- with NAPLAN data, but a glance at the system. Learning progressions can be tional curriculum based on year-by-year technical calculations demonstrates characterised as a proposal to supplant assessment, yet score in the top 10 on that this is indeed a research tool.11 Its the 2015 PISA. interpretation needs more statistical objective standards of attainment with Putting ‘snapshot’ achievement data finesse than the average school teacher the notion of the personal best. online is one thing. Assessment of or parent is likely to possess. And, like Nowhere in the report is there any growth, or learning progressions, for most statistical calculations, it works recognition of the paradox that a the entire curriculum is quite another. well when we compare groups, whereas focus on relative progress can worsen Having it useable by teachers is yet measurement errors limit its applicability measured performance. Relative another. Assessment scales can be to individual students. measures can lead you not to expect hard to interpret: if Year 5 students in The Gonski vision of teachers arriving enough of your students by accepting a one school score 50 scale points below in the classroom and jumping nimbly ceiling on achievement that is far below students in another school, this means online to look up curriculum-wide what is possible. Low expectations then very little to most teachers or parents. “achievement data calibrated against become self-fulfilling.

Learning progressions can be characterised as a proposal to supplant objective standards of attainment with the notion of the personal best.

30 AUSTRALIAN QUARTERLY JAN–MAR 2019 Gonski 2.0: A Controlled Flight into Terrain

Gonski 2.0 has unwittingly revealed that most State departments of education remain “devoted to education fads long since discarded in other countries”.

Salvaging the wreckage of formative assessment all appear to full-time equivalent teachers in be based on State submissions. Australia. Annual entry into the So where does the Government go This is where the single, best recom- profession varies, but between 2016 from here? A further lengthy inquiry is mendation from Gonski 2.0 comes in. and 2017 an additional 5,600 were probably not the answer. Perhaps we A research and evidence institute to employed. Improvement in teaching could seek world’s best-practice by provide practical advice for teachers, methods, such as adaptive instruction holding a competition. That sounds school leaders and decision makers or phonics for reading, will be pain- flippant, but the marketing slogan to drive better practice should be fully slow if we rely on changes to writes itself: "We sought the world's implemented as urgently as possible. It what is taught in pre-service teacher best for the architecture of the Opera should be at the national level. education. Without major investment in House and got one of the great It is clear from the report that we professional development for existing buildings of the 20th century; now we cannot rely on State-based administra- teachers, it will take many years for want the best educational architecture tions to develop the necessary policies proven better ways of teaching to for the new century". for evidence-based performance percolate through the system. One vital issue needs to be improvement. At State level, only the Australia already offers a wide variety considered in any future review of the NSW Centre for Education Statistics of professional development courses, allocation of school funding. Gonski and Evaluation ‘has form’. The model but survey evidence indicates that 2.0 seems to have depended heavily could be the Productivity Commission Australian teachers are less likely than on submissions from the State depart- in Canberra, whose recommendations teachers elsewhere to report favourably ments of education, with many of its are not always accepted but which has on the classroom benefits. From the proposals apparently originating in a reputation for analytical, evidence- variety of courses offered, it seems likely the State administrations. It is entirely based work. that much professional development proper that State thinking should figure Finally, barely tackled in the Review in Australia lacks focus and has little prominently, but the problem lies in is the question of how we actually relevance to the core business of perfor- what is revealed about that thinking. deliver programs for performance mance-oriented classroom teaching. As Hewett has noted, Gonski 2.0 has improvement. It’s clear from the core An important element of the unwittingly revealed that most State performance factors that improvements additional expenditure promised departments of education remain must be made at the school level, with by Canberra should be a reform of “devoted to education fads long a focus on teachers and pedagogy. professional development, making since discarded in other countries”.12 That much is obvious, but there is an such development the umbrella Proposals for general capabilities, arithmetic ‘wrinkle’. for updating existing teachers on learning progressions and a new system In 2017 there were some 282,000 adaptive instruction, collaboration with colleagues, the importance of cognitive skills, phonics, classroom management, AUTHOR: and inculcating evidence-based Ken Gannicott was previously Professor of Education at Wollongong approaches. AQ University. He now works as a consultant and has undertaken many international assignments. An economist by training, he has long been interested in relationships between funding and outcomes in education. He remains optimistic that in Australia we will learn that simply increasing public money for education will do nothing to improve our deplorable performance record. We have to take an evi- dence-based view of value for money.

JAN–MAR 2019 AUSTRALIAN QUARTERLY 31 AQ Book Review

Degrowth in the Suburbs: A Radical Urban Imaginary by Dr Samuel Alexander and Prof Brendan Gleeson Review by: Dr Amanda McLeod [email protected] | www.historicalperspectives.com.au

here is a sense of urgency within the pages of Degrowth in the Suburbs: A Radical Urban Imaginary – as well there should. Capitalism and its enthusiastic bedfellow, neoliberalism, have failed to deliver the good life. Global warming, climate change, global poverty and deforestation are not problems of future imaginings. They are here now and if we are to survive, let alone prosper, we mustT deal with them. At its tipping point, climate change becomes a ‘wicked problem’, a crisis that can no longer be mitigated but must be adapted to. This book provides a comprehensive blueprint for change. In their critique of the growth economy, the writers do not seek to move away from the city and its suburbs to live an idyllic life on the land. The solution to the problem of overproduction, for Alexander and Gleeson, is not to be found in the regions or in rural locales. Rather, this beautifully written manifesto offers a forward- looking solution to the problem – a reform, if you like, of the place where most of us live: suburbia. The answer to the problem of overconsumption and unfettered growth is ‘degrowth’ – a planned contraction of overgrown economies. Evocative and eloquent are not words usually associated with economic writing. Woven within its almost Interested in reading lyrical prose, Degrowth in the Suburbs offers a serious critique of neoliberalism and the growth economy. more about the theory of It does more than just provide a critique. This book is an invitation to rethink, rework and redo the suburbs. This book does not just tell us what to do but also tells us how to do it. It debunks ‘techno-optimism’ – the ‘degrowth’? belief that technology will solve all energy and environmental problems. Alternatively, Alexander and Sam Alexander contributed to AQ’s 2018 Gleeson argue for a low-carbon city, based on ‘degrowth, solidarity, and sufficiency’. Special Edition on Post-Capitalism. This book is far from pessimistic about the future. Nor is it naïvely optimistic. Rather, one of its major You can still purchase digital versions strengths is that it is firmly rooted in reality. The book claims to be an imaginary, but it offers solid and of the Special Edition through Zinio or practical measures to counter the failings of the growth economy. It is imaginary in its vision – a reworked PocketMags suburbia that has moved away from the growth model of accumulation to one of inclusion, liberation and www.aips.net.au/aq-magazine/subscribe sustainability. The book covers the practical side of degrowth as well as its philosophical underpinnings. It aims to make sufficiency – the politics of enough – central to the transformation of cities. The solution will not be top- down, though it needs political will to support it. The solution to the failings of the growth economy will be bottom up. It will come from the people who call the suburbs home. Degrowth in the Suburbs: A Radical The messages contained in this book will not be easy to adopt but they are certainly worth pursuing. Urban Imaginary is available now Degrowth in the Suburbs is an important book and one that should be read by anyone who wants to live through Palgrave Macmillan as a lightly, purposefully and prosperously. Politicians and any other proponents of neoliberalism should read it hardcover or eBook: too. It will change minds. www.palgrave.com/us/book/9789811321306 In order to change the system the authors encourage us to ‘raise hell’. This is precisely what they have done in ISBN 978-981-13-2130-6 this book and what we should do too. AQ Technology at the crossroads Engineers pride ourselves on solving problems. But what happens when we don’t know the questions? We are great at minimising one cost function, and maximising another. But what if those are the wrong functions to measure? As our technologies change society, these dilemmas make us consider our values, ethical frameworks, and the design methodologies that can genuinely decrease harm and increase wellbeing.

ARTICLE BY: Prof Rafael A. Calvo and John C. Havens

The Good Life At Risk

he board room was already full when I walked in. Someone walked out to get an extra chair while I heard the round of intro- ductions.T I knew most of the academics in the room, but did not know much about their interest in the fourth indus- trial revolution or in engineering ethics, the theme of our meeting.

image: © Keiichi matsuda

JAN–MAR 2019 AUSTRALIAN QUARTERLY 33 Technology at the crossroads

Technologies were reshaping the concept of what constitutes a good life. They were redefining work, basic emotions, and even volition.

The specific goal of the meeting was what manufacturing would look like in In all these cases, technologies were to prepare a response to Australia’s 10 years. reshaping the concept of what consti- Human Rights Commissioner, who was Then there was a biomedical tutes a good life. They were redefining seeking comments on their human engineer who described how brain work, basic emotions, and even volition. rights and technology issues paper.1 stimulation could be used to supress These are not ‘academic’ questions, they Technologies, like the ones we were the excretion of adrenaline and have daily consequences to citizens, about to discuss, impinge on our therefore supress the fear response that and to engineers like us. perceived rights2, for example around stops soldiers from going into a battle- Technologies are designed to shape privacy, free speech, workplace tech- field (the same emotion that many of us what we spend time on, and the nologies and government surveillance. were feeling). outcome was that we spent one billion Not everyone talked. Some were Then it was my turn to describe human hours watching Youtube videos probably asked to be there by their how social networks have been used in 2017, millions of hours sharing selfies managers, but the majority felt a sense by companies and governments to and making lip-sync videos on musical. of urgency uncommon in academics. manipulate the attention of people ly. Technologies are transforming, or Most of us explained what brought like us, both pushing their commercial altogether eliminating jobs (according us there. There was a manufacturing and political agendas. How companies to some, 800M jobs will disappear by researcher who explained how 3D like Cambridge Analytica were risking 20303). printing was being taken to an indus- the core democratic values of the No human activity is safe from trial level and they could not predict enlightenment. disruption: even caring for others could

How far should we go? eonhard-Flickr © Gerd L © Gerd : E I MAG

34 AUSTRALIAN QUARTERLY JAN–MAR 2019 Technology at the crossroads

be the purview of robots (consider that the hedonic pleasures offered by the What has become increasingly clear in Japan 80% of the elderly will be taken market economy? Or should they be is that the definitions of ‘good’ and ‘bad’ care of by robots – in 20204). designed to support what Aristotle are more complicated than we could As reflective professionals and engi- called the eudaimonic life, where expect. Anyone only looking at today’s neers we should be asking, is this the the good life consists of achieving media would think that moral norms sort of world we want? potentials? vary amongst age groups, political I think the academic who called the When I (Rafael) wrote Positive parties, even genders. So what are the meeting, a world leader in robotics, did computing: Technologies for wellbeing universal values that should drive our not expect the general sense of unease and human flourishing, we could already technology design? many of us had. He told the story of a see technologies having positive and public panel where he discussed his negative effects on the human psyche. Reframing Design in the Age of vision for the future, together with a We discussed a new discipline of how The Algorithm journalist and a philosopher. At the technologies could (and should) be beginning of the event the host asked designed to support psychological One way to answer this question is the audience how many thought that wellbeing. That is still the case. through open, multidisciplinary and AI would make the world a better place. Design engineers cannot leave to multistakeholder debate. This is what Roughly ½ raised their hands. An hour chance the unintended impact of the Institute of Electrical and Electronic into the event, when the three speakers technologies. In the same way that we Engineers (IEEE) have been doing had presented their arguments they design products to be safe and respect since 2016 in relation to the ethics of asked again. This time only twenty our physical health, we need to design autonomous and intelligent systems. percent raised their hands. them so they respect our psychological IEEE is the largest professional organi- My colleague thought it had been health, and that of our environment. sation of its kind. Over 420,000 engi- his fault – a poor presentation of the Engineers are often stereotyped as neers from 160 countries are members benefits. But I was there and knew he naïve technophiles. Of course some who go to IEEE conferences, participate had done an excellent job presenting are, but the actual perspectives of most in forums, read (and write) articles in its his views. Could it be that it was not engineers do not reflect this attitude. many journals. him, but us, (engineers in general) who Colleagues from around the world are The IEEE Global Initiative on Ethics of do not have a compelling description expressing their concerns, questioning of ‘the good life’? Could it be that our long-standing ideas, and raising vision of what technology can provide alarms. did no longer satisfy people’s ideas of In such situations it may seem Anyone only looking at what they want? easy to despair, but we can also find As technologies become part of our strength in numbers with a growing today’s media would think lives, their implicit values (including that awareness that emerging technologies that moral norms vary of their designers) raise moral dilemmas. require a new level of due diligence to Should technology be designed to protect and increase the wellbeing of amongst age groups, political drive us away from pain and towards humanity at large. parties, even genders. So what are the universal values that should drive our technology design?

JAN–MAR 2019 AUSTRALIAN QUARTERLY 35 Technology at the crossroads

Should guidelines be narrow and strict, bordering regulations, or should they be broad and an instrument for critical thinking?

Autonomous and Intelligent Systems5 wish to join. In this process entrepre- (A/IS) was launched in April of 2016 to neurs, psychologists, sociologists and move beyond paranoia, or the uncritical philosophers are sharing their expertise admiration, of autonomous and intel- with other engineers, data scientists ligent technologies. Its goal is to align and engineering stakeholders moving technology development and use with the overall work from ‘principles to ethical values, advancing innovation in practice’. a way that truly serves humanity while The IEEE Global Initiative has several diminishing fear in the process. outputs including the creation and Ethically Aligned The IEEE Global Initiative also aims iteration of a body of work known to incorporate ethical aspects and as Ethically Aligned Design: A Vision Design Version 1 values relating to human well-being for Prioritizing Human Well-Being with in ways that may not automatically be Autonomous and Intelligent Systems and You can download Ethically Aligned considered in the current design and the identification of multidimensional Design version 1 at manufacture of A/IS technologies. indicators of wellbeing. Ethically Aligned http://bit.ly/EADv17 This is why the Mission Statement of Design (EAD) is a Creative Commons The IEEE Global Initiative is, “to ensure document so any organisation can every stakeholder involved in the design utilise it as an immediate and pragmatic You can also see an overview of the and development of autonomous and resource. document at intelligent systems is educated, trained, Version 1 was released in 2016; http://bit.ly/EADv1-summary8 and empowered to prioritize ethical Version 2 was released in 2017; both considerations so that these technologies versions were released as Requests for are advanced for the benefit of humanity.” Input and received over five hundred By training all engineers or manufac- pages of aggregate feedback. Ethically turers to utilise applied ethical frame- Aligned Design, First Edition will be Ethically Aligned works (or what is often called, “values- released in early 2019 and will feature based design”) before projects are sent over one hundred top A/IS Issues and Design Version 2 to be developed, progress will not be pragmatic Recommendations. measured only in terms of materialistic It was created by over three hundred You can download Ethically Aligned criteria but can include the intentional global experts in A/IS and another Design Version 2 at prioritisation of individual, community, seven hundred Initiative members were http://bit.ly/EADv29 and societal flourishing as measured by able to review it so that EAD can be the both subjective and objective criteria. ‘go-to’ resource to help technologists You can also see an overview of the The discussions of the IEEE Global and policy makers prioritise ethical Initiative and the IEEE P7000™ Standards considerations in A/IS. document at Working Groups that it inspired,6 are Of course, the IEEE is not alone. Other http://bit.ly/EADv2-summary10 open to the public or any experts who initiatives include the Ada Lovelace

Image: © Cdbrice00-wiki

36 AUSTRALIAN QUARTERLY JAN–MAR 2019 Technology at the crossroads

AUTHOR: Rafael Calvo is Professor at the University of Sydney, and Future Fellow of the Australian Research Council. He is Director of the Wellbeing Technology Lab that focuses on the design of systems that support wellbeing in areas of mental health, medicine and education. Rafael is co-author of over 200 publications, including “Positive Computing” (MIT Press, 2014) and co-Editor of the Oxford Handbook of Affective Computing. www.rafael-calvo.com @rafael_a_calvo

Institute, The Leverhulme Centre for the Future of Intelligence, The Future of Humanity Institute, the AI Now AUTHOR: Research Institute, and many more. John C. Havens is Executive Director of The IEEE Global Initiative on Ethics Companies are also acknowledging of Autonomous and Intelligent Systems and The Council on Extended Intelligence (CXI). He is the author of the books, Heartificial Intelligence: some of the issues: John Giannandrea Embracing Our Humanity To Maximize Machines and Hacking Happiness: (who leads AI at Apple), Mustafa Why Your Personal Data Counts and How Tracking it Can Change the World. Suleyman (co-founder of DeepMind), www.johnchavens.com @johnchavens Satya Nadella CEO of Microsoft have, for example, acknowledged the risk of bias in AI systems. Achieving consensus about what are consult the public) producing their It is expected that these guidelines the important issues is hard. Achieving own reports and research. Some are will be used in engineering curricula consensus on how to address them industry based, others more academic. worldwide, and by other professional would seem impossible. Even the form Consumer or civil society groups are organisations. This will affect what that guidelines should take is contro- also joining the fray, including The we expect from future graduates and versial. Our work in IEEE has seen many European Consumer Organisation the way they go about their work. heated discussions. Should guidelines (BEUC) and AlgorithmWatch. Another way of influencing professional be narrow and strict, bordering regula- practices is through the certification tions, or should they be broad and an The Good Life, Reengineered of AI systems (similar to the ISO quality instrument for critical thinking? Engineers, and those designing Multiple approaches are probably standards accreditation), an initiative technologies, need to move beyond needed. For example, the IEEE has also that IEEE will be developing in 2019. the traditional method of design to deal established the Ethics Certification And we are not naïve: these discus- with the new realities facing humans Program for Autonomous and sions may lead to regulation that limits in the algorithmic age. And we are Intelligent Systems (ECPAIS)11 dealing what the major tech companies, those beginning that critical work. We are with transparency, accountability and that shape our lives, can do. But we are working with others across disciplinary, reduction of algorithmic bias. at a crossroads, and such transformation cultural and political boundaries. Some groups are top down, with will need a new social contract. The engineering community, through a small group of ‘experts’ (who may IEEE and other professional organisa- Society is struggling to decide which tions, will continue to develop these way to go, and with a renewed focus guidelines in consultation with the on defining risk as the elements that broader community. The development keep us from realising our values or full of such guidelines will have impact in at potential, engineers can help minimise least two areas: education and profes- risk and increase wellbeing for the © IT U Pictures-Flickr

sional standards. future. AQ e: i mag

JAN–MAR 2019 AUSTRALIAN QUARTERLY 37 Young People and the Future of Australian Democracy

ARTICLE BY: Dr Zareh Ghazarian and Young people, political Dr Jacqueline Laughland-Booÿ knowledge and the future et irrespective of the age at which they are able to vote, a young of Australian democracy person must understand the Australian system of politicsY and its electoral system to be prepared to confidently participate in Recently, Western Australian Greens Senator, Jordon Steele- the democratic process. The current John, introduced a bill to Federal Parliament that proposed problem is that many young Australians may not possess such knowledge. voluntary voting rights be granted to Australians aged 16 and In 1973, the voting age in Australia 17. This has prompted a flurry of debate about whether or not a was lowered from 21 to 18. The decision 16-year-old is ready for this responsibility. to reduce the age of franchise received

IMAGE: © Takver-Flickr

38 AUSTRALIAN QUARTERLY JAN–MAR 2019 Young People and the Future of Australian Democracy

What is the Commonwealth Electoral Amendment (Lowering Voting Age and Increasing Voter Participation) Bill 2018?

This bill proposes to: 1) Lower the minimum (non-compulsory) voting age in Australian federal elections and referenda from 18 to 16 years 2) Allow 14 and 15 year olds to be added to the electoral roll 3) Provide for 16 and 17 year olds to be included in the certified list of voters (but not to be given a penalty notice if they do not vote) 4) Enable an eligible voter, who is not yet on the electoral roll or enrolled at their correct address, to cast a provisional vote on election day.

RIGHT: Western Australian Greens Senator, Jordon Steele-John. © Australian Greens © Australian : E I MAG

bipartisan support and reflected the Current day supporters of further tonic to cure a sense of alienation broad mood of the electorate. The argu- reducing the voting age in Australia some young people experience with ments at the time centred around the have argued that today’s 16 and 17 politics. If the voting age were lowered fact that 18 year olds were able to drive, year olds are politically literate. They then parties will make greater efforts marry, work, pay taxes, and serve in the are, after all, ‘digital natives’, who have to advance the interests of younger armed forces, so should therefore have a vast source of political information at Australians. a say in who was running the country.1 their fingertips. It is also thought that it There is, however, reason to be Those who supported lowering is better to politically engage citizens cautious. Research suggests that the voting age to 18 also presented when they are younger.3 The family and 16-year-old Australians are unlikely to young Australians as being quantifiably educational networks young people be politically informed. There is also different from previous generations. As also have at this time of their life, help evidence pointing to the possibility Opposition Leader Billy Snedden put ‘socialise them into the practice of that lowering the voting age would it, young Australians in the 1970s were voting at elections’.4 This means that not necessarily increase political ‘better informed, better able to judge, young people could be given extra participation of young people.5 For more confident in their judgements, support whilst engaging with the elec- example, international experience more critical in their appraisals, and on toral process for the first time. reminds us that inconsistencies across more mature terms with society around Proponents for change also argue jurisdictions and schools in preparing them’.2 that lowering the voting age is the young people to vote may result in

In 1973, the voting age in Australia was lowered from 21 to 18.

JAN–MAR 2019 AUSTRALIAN QUARTERLY 39 Young People and the Future of Australian Democracy

Young people themselves are also less than enthusiastic about allowing 16 year olds the right to vote.

patchy participation rates.6 Young people themselves are also less than enthusiastic about allowing 16 year olds Do young people think the the right to vote. Critics have also argued that those under 18 do not have the experience to voting age should be lowered? be able to make an informed political choice. For some commentators, the The Social Futures and Life Pathways Project is an ongoing longitudinal study of young fact that many young people lived with people from Queensland, Australia.16 Also known as ‘Our Lives’, it is following a single their parents and had yet to take on aged cohort of young Australians as they progress from adolescence and into adulthood. the responsibilities of adulthood was The project commenced in 2006 when the cohort were 12–13 years old and were in their grounds to keep the voting age at 18.7 first year of secondary school. To date, six waves of quantitative data collection have been Further concerns about the completed with the most recent survey being carried out in 2017. legislation extend to its potential to undermine compulsory voting, which In 2013, the Our Lives cohort were aged 18-19 years old and were voting at their first federal was introduced for federal elections in election. At this time, the Wave 4 Our Lives survey was administered to the group. One 1924.8 Rather than rely on the Australian question asked of the cohort was whether they thought the voting age should be lowered Electoral Commission, a statutory from 18 to 16. authority, to get people out to vote, As their responses indicate, irrespective of education, background, or political affiliation the parties and candidates would have to overwhelming majority felt that the voting age should stay at 18. find ways to mobilise voters under 18. While this in itself is not problematic, it has the potential to shift campaigning 1% methods towards modes seen in the USA or other systems that use non-compulsory voting. Parties would therefore have to balance the policy 24% 3% demands of the broader electorate with Definitely stay at 18 targeting the population of younger Probably stay at 18 voters. There is also a view that the Greens Probably lowered to 16 and Labor stand to benefit from a 72% 9 Definitely lowered to 16 lowering of the voting age. This is predicated on the assumption that young voters tend to be more socially progressive and would support left- of-centre candidates. The evidence,

Source: Our Lives Wave 4, 2013. Percentage of Our Lives participants who thought the voting age should stay at 18 or be lowered to 16 (n=2,173).

40 AUSTRALIAN QUARTERLY JAN–MAR 2019 Young People and the Future of Australian Democracy

however, suggests otherwise. In our teaching young people about civics research on the voting strategies of first and citizenship has varied across the time voters in Australia, we found that states. It is within this context that many weigh up the suite of proposals successive national governments have before deciding sought to equip young Australians with whom to vote for, including economic, welfare The assumption that young voters tend to be more socially and social policies. In doing so, the progressive and would support left-of-centre candidates. voting choices of young people The evidence, however, suggests otherwise. broadly replicated the voting patterns of the electorate.10 Irrespective of whether or not the knowledge about their civic rights and voting age is lowered, more needs to be responsibilities since the 1980s. done to prepare our young people for One of the most significant attempts the responsibility of voting. to implement a national approach to While family is an important source building political literacy was made of political socialisation, the job of by the Keating Government in 1994. ensuring that young people have the Following consultations with the functional knowledge they need to community and educators, the Civics confidently participate in the electoral Expert Group outlined its findings in process lies with the schooling system. a report handed to the government. This is the best place to provide all Amongst the recommendations, the young Australians access to accurate report proposed that all young people information about how the system receive civics education throughout the 11 works and to provide the knowledge compulsory years of schooling. they need to be empowered citizens. Although the Keating Government welcomed the report it could not Civics and citizenship fully act on its recommendations as it lost the 1996 election. The incoming education in Australian schools Howard-led Coalition, however, also As Australia is a federation, states had a desire to increase the political are responsible for administering literacy of young Australians. In 1998, education. This has meant that the government introduced the

JAN–MAR 2019 AUSTRALIAN QUARTERLY 41 Young People and the Future of Australian Democracy

A democracy operates best when its citizens understand their nation’s system of government and its democratic processes.

Government. It seeks to provide standard, which is a point on a scale educators with tools to teach young that represents what has been deemed Australians about democracy and civic as a challenging, but reasonable, expec- participation. tation of student achievement for their Currently, the civics and citizenship year level.13 The most recent NAP-CC curriculum begins in Year 3 by providing tests were carried out in 2016. There is currently no students with a broad introduction The 2016 results show that the compulsory national civics to values and principles. The program proficiency rate for Year 6 students has and citizenship curriculum continues in each year level through consistently been over 50 per cent and for Year 11 and 12 students. primary and secondary schools and rose to its highest rate of 55 per cent Instead, students must enrol concludes in Year 10. By that stage in the latest round. The results for Year in an elective unit such as Legal students are expected to have a more 10 students, however, has been more Studies or Australian Politics (if nuanced understanding of how the volatile and has never reached 50 per they are offered by their school), in parliamentary and judicial systems work cent. The strongest result was in 2010 their final years of high school if they as well as how they may participate in when 49 per cent of Year 10 students wish to learn more about their national democratic processes.12 reached the proficiency level, but since system of politics and government. Since 2004, the National Assessment then the results have fallen. The 2016 Program – Civics and Citizenship Year 10 performance was the lowest on (NAP-CC) has sampled Year 6 and record at just 38 per cent. Year 10 students every three years in This is a concerning result as it order to measure their knowledge shows that young Australians who Discovering Democracy program, which about subjects including Australian are approaching voting age may not implemented many of the themes government and democratic processes. have the functional knowledge to identified by the Civics Expert Group The test identifies the percentage of confidently participate in Australian report including teaching young people students who achieve the proficient democratic processes. the rights and responsibilities of citi- zenship, as well as how the Australian system of politics and government was Year 6 percentage of students at or Year 10 percentage of students at structured. Year More recently, the goal of preparing above proficiency standard or above proficiency standard young Australians to be active and informed citizens was incorporated into 2004 50% 39% the redesigned national curriculum. Known as the Australian Curriculum: 2007 53% 42% Civics and Citizenship, this was intro- 2010 52% 49% duced during the time of the Gillard 2013 52% 44% 2016 55% 38%

Table 1: Year 6 and Year 10 achievement on the National Assessment Program – Civics and Citizenship14

Image: © Madeleine Holland - Flickr

42 AUSTRALIAN QUARTERLY JAN–MAR 2019 Young People and the Future of Australian Democracy

The strength of Australian democracy therefore lies in whether or not the Australian citizenry understands how the political system works, rather than the voting age.

The future of Australian programs have often lacked uniformity democracy as states have implemented reforms at different rates and times. The question of whether individuals The ending of the compulsory civics possess sufficient knowledge about and citizenship curriculum at Year 10 politics and government to participate is also limiting what young Australians young people’s understanding of effectively in the electoral process is know about their rights and responsi- Australian politics and government. This an important issue in advanced liberal bilities. While they do encounter many would provide greater confidence to democracies. According to normative core themes in early years of schooling, school leavers about their civic rights theory, a democracy operates best students need to consolidate this and responsibilities. when its citizens understand their knowledge prior to leaving secondary In sum, conversations about a nation’s system of government and its school. Opportunities exist to do so. person’s capacity to vote responsibly in democratic processes. Many schools run life skills classes Australia should not just be about age. Those with higher levels of political for students in Year 11 and 12, where It should be about knowledge. The literacy are better able to understand they are taught about issues such as only way young people will ever be how decisions are made, better resilience, safe consumption of alcohol, able to contribute to the Australian equipped to select candidates that and reproductive health. Within this democratic process is if they are advance their aspirations, and have the framework, short courses could be provided with the knowledge and skills capacity to make sense of the political delivered to refresh and crystallise to do so confidently. AQ debate. Moreover, citizens who know how a political system is structured and functions are better able to hold decision makers accountable and cast AUTHOR: their vote with confidence.15 Dr Zareh Ghazarian is a Senior Lecturer in Politics and The strength of Australian democracy International Relations in the School of Social Sciences at therefore lies in whether or not the Monash University, Australia. His research and teaching inter- Australian citizenry understands how ests include political parties, public policy and civic education. @zarehghazarian the political system works, rather than the voting age. There have been concerted efforts by state and national governments to provide Australians with political AUTHOR: knowledge, especially through the Dr Jacqueline Laughland-Booÿ is a Research Fellow in the education system. The fact that the Office of the Deputy Vice-Chancellor (Education) at Australian states have retained the constitutional Catholic University, and an Adjunct Research Fellow in the power over the realm of education, School of Social Sciences at Monash University. She is a however, has meant that national researcher with the Social Futures and Life Pathways Project. Her research interests are in the fields of life course studies and political sociology. www.ourlives.org.au

ImAge: © JJ Harrison-Wiki

JAN–MAR 2019 AUSTRALIAN QUARTERLY 43 References

Follow the desire lines – Remaking Australia 5 https://theconversation.com/factcheck-is-australias-level- 11 Peter Goss and Julie Sonnemann, Widening gaps: What NAPLAN of-media-ownership-concentration-one-of-the-highest-in-the- tells us about student progress, Grattan Institute, 2016. 1 “Downtown is for People” by Jane Jacobs, 1958 http://fortune. world-68437 12 Jennifer Hewett, “Gonski 2.0 won't help schools”, Australian com/2011/09/18/downtown-is-for-people-fortune-classic-1958/ 6 https://www.penguinrandomhouse.com/books/95291/ Financial Review, 30 April 2018. 2 “Neoliberalism: the idea that swallowed the world” the-elements-of-journalism-by-bill-kovach-and-tom-rosen- by Stephen Metcalf, 18 August 2017 https:// stiel/9780609504314 Technology at the crossroads www.theguardian.com/news/2017/aug/18/ 7 https://www.allenandunwin.com/browse/ 1 https://tech.humanrights.gov.au/consultation neoliberalism-the-idea-that-changed-the-world books/general-books/current-affairs-politics/ 2 https://rafaelacalvo.files.wordpress.com/2018/10/digrights- 3 https://www.australiaremade.org/ Rupert-Murdoch-David-McKnight-9781742373522 ozchi18-final.pdf 4 The first meeting of the auspicing group of Australia reMADE met 8 https://www.nytimes.com/2004/05/26/world/from-the-editors- on April 24, 2015 – hence the name A24. the-times-and-iraq.html 3 https://www.bbc.com/news/world-us-canada-42170100 5 No is Not Enough by Naomi Klein, Penguin Books, June 2017 9 https://www.theguardian.com/environment/2016/apr/21/ 4 http://www.meti.go.jp/english/press/2015/pdf/0123_01b.pdf 6 A guiding group of Greenpeace, Australian Conservation scientists-resort-to-advertising-to-get-great-barrier-reef-crisis-in- 5 https://protect-au.mimecast.com/s/3nx5C3Q8Z2FwNqq1sgIT4T? Foundation, National Union of Workers, CPSU, GetUp!, ACOSS, queensland-paper domain=standards.ieee.org Action Aid and Oxfam, together with advisory support from 10 https://www.penguinrandomhouse.com/books/95291/ 6 https://ethicsinaction.ieee.org/#set-the-standard the National Congress of Australia’s First Peoples, auspiced the the-elements-of-journalism-by-bill-kovach-and-tom-rosen- 7 http://standards.ieee.org/develop/indconn/ec/ead_v1.pdf Engagement Project. stiel/9780609504314 8 http://standards.ieee.org/develop/indconn/ec/ead_brochure.pdf 7 The Referendum Council’s job was to advise the the Prime 11 https://www.aph.gov.au/Parliamentary_Business/ 9 http://standards.ieee.org/develop/indconn/ec/auto_sys_form. 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Hegemonic Alternatives” by Simon Booth and Verity Burgmann, findings/7641-media-net-trust-june-2018-201806260239 Social Alternatives Voc. 26 No. 1 First Quarter, 2007 (27-8) 17 https://www.aph.gov.au/Parliamentary_Business/ 3 Chou, M. and Pruitt, L. 2018 ‘Let’s give 16-year-olds the right 13 “The Ends of Utopia” by Krishan Kumar, New Literary History, Vol 41, Committees/Senate/Future_of_Public_Interest_Journalism/ to vote – they’re more than ready’, Australian Broadcasting No 3 (Summer 2010) (564) PublicInterestJournalism/Submissions Corporation, 18 September, available online: https://www.abc. 14 “Imagining the end of capitalism: ‘the practical-political value of 18 https://www.aph.gov.au/Parliamentary_Business/ net.au/news/2018-09-18/16-year-old-australians-should-have- utopian thinking’ for the climate movement” by Verity Burgmann. Committees/Senate/Future_of_Public_Interest_Journalism/ the-right-to-vote/10241852, accessed 19 September 2018. 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New Statesman, https://www.newstatesman.com/politics/ 20 http://junctionjournalism.com/ 6 Mycock, A. and Tonge, J. 2018 ‘Votes for 16-year-olds should be feminism/2015/12/utopia-now-why-there-s-never-been-more- based on wider evidence, not just a need for participation’, The urgent-time-dream-better-world Gonski 2.0: A Controlled Flight into Terrain Conversation, 2 February, available online: https://theconver- 16 https://genius.com/Leonard-cohen-anthem-lyrics sation.com/votes-for-16-year-olds-should-be-based-on-wider- 1 World Bank, The Human Capital Project, World Bank, 17 https://www.monbiot.com/2016/04/15/the-zombie-doctrine/ evidence-not-just-a-need-for-participation-90898, accessed 19 Washington, DC., https://openknowledge.worldbank.org/ 18 Can We Yet Be Heard? Megan Davis https://www.abc.net.au/ September 2018. handle/10986/30498, 2018; World Bank, World Development religion/the-uluru-statement-from-heart-one-year-on-can-a-first- 7 Barnes, T. 2016 ‘Giving 16-year-olds the vote would be an insult Report 2018: Learning to Realize Education’s Promise, Washington, nations-v/10094678 to democracy’, Australian Broadcsating Corporation, 17 February, DC: World Bank. 19 https://www.theguardian.com/australia-news/2017/oct/30/ available online: https://www.abc.net.au/news/2016-02-17/ 2 Patrinos H. and Angrist N., Global Dataset on Educational Quality: most-australians-support-indigenous-voice-to-parliament-plan- barnes-lowering-the-voting-age/7176234, accessed 19 October a Review and Update (2000-2017), Policy Research Working Paper that-turnbull-rejected 2018. 8592, World Bank, Washington DC, 2018. 20 Rebecca Huntleys recent book Still Lucky: Why you should feel 3 eric A. 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The Distortion of the Australian Public Sphere - Keep Getting Better, McKinsey & Co., 2010. 5 Sutton Trust, Improving the Impact of Teachers on Pupil 11 Civics Expert Group 1994 Whereas the People…Civics and Media Ownership Concentration in Australia Achievement in the UK – Interim Findings, 2011. Citizenship Education, Australian Government Publishing Service, 1 https://www.aph.gov.au/Parliamentary_Business/ 6 Paul A. Kirschner, John Sweller and Richard E. Clark, “Why minimal Canberra. Committees/Senate/Future_of_Public_Interest_Journalism/ guidance during instruction does not work: an analysis of the 12 Australian Curriculum, Assessment and Reporting Authority PublicInterestJournalism/Submissions failure of constructivist, discovery, problem-based, experiential 2012 The Shape of the Australian Curriculum: Civics and Citizenship, 2 https://theconversation.com/factcheck-is-australias-level- and inquiry-based teaching”, Educational Psychologist 41:2, 2006. ACARA, Sydney. of-media-ownership-concentration-one-of-the-highest-in-the- 7 See the sources listed in endnotes 3 and 4. 13 Fraillon, J., Gebhardt, E., Nixon, J., Ockwell, L., Friedman, T., Robins, world-68437 8 Donnelly, K. & Wiltshire, K. (2014). Review of the Australian M., McAndrew, M. 2017 NAP Sample Assessment: Civics and 3 https://www.abc.net.au/radio/melbourne/programs/mornings/ Curriculum. Australian Government Department of Education. Citizenship Report Years 6 and 10, 2016, ACARA, Sydney, p.20. former-fairfax-editor-warned-print-newspaper-decline- Canberra: ACT. 14 Ibid, p. xv, xvii. years-ago/8496378 9 Steven Schwartz, quoted in “Shift to ‘radical’ curriculum”, The 15 Delli Carpini, M.X. 2000 ‘In search of the informed citizen: 4 https://www.crikey.com.au/2018/11/09/ Weekend Australian, 15-16 September 2018. What Americans know about politics and why it matters’, The nine-fairfax-deal-approved/ 10 Ministry of Education, Singapore, Press Release, Learn for Life, preparing Communication Review, vol. 4, no. 1, pp. 129-64. our students to excel beyond exam results, 28 September 2018. 16 www.ourlives.org.au

Follow the desire lines – Remaking Australia If you woke up in the Australia of your dream, what would it look like? We live in an extraordinary moment. In the face of potentially massive environmental and social crisis lies opportunity for reinvention and transformation. Like falling dominoes, segments of our society are admitting that business as usual is no longer the answer. Our future will lie in our capacity to envision a shared future. Visionary thinking provides a vehicle to engage, explore, critique and discover. These visions help us create new stories about who we want to be. Louise Tarrant

The distortion of the Australian public sphere Australia stands out as one of the most concentrated media markets in the world and this increasing concentration has been happening for some time. Media and journalism play a vital role in supplying the public sphere with the fuel it needs: information that is in the public interest in order for citizens to be self-governing. And as is being seen in Australia and elsewhere, when the media options narrow, then the sensible political centre is readily abandoned for the partisan fringe. So what can (and should) be done? Well, it’s not rocket science… Johan Lidberg

Gonski 2.0: A controlled flight into terrain The Review that lead to the Gonski 2.0 report was established with everything in working order. It had just one job, which was to provide advice on how funding should be used to improve student achievement. It was in the blissful position of not needing to argue the case for extra funding because $24.5 billion had already been committed. David Gonski enjoyed enviable public esteem. And there is now an extensive literature, drawing on evidence from high-performing countries, on the policies required for improved educational performance. What, as they say, could possibly go wrong? Ken Gannicott

Young people, political knowledge and the future of Australian democracy Once again the question of voting age has been raised in public discussion. In a world of disenfranchised voters and disillusioned citizens, have we been failing to provide our children with a civics education that engages them with the system? Please see article Please placements : S In which case the question becomes, not whether 16-year-olds should be allowed to

C R E D I T vote, but is our society doing enough to prepare them to vote?

E I MAG Zareh Ghazarian and Jacqueline Laughland-Booÿ