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Studies from Papua New Guinea / Edited by R Policy Making and Implementation:Ê Studies from Papua New Guinea Policy Making and Implementation:Ê Studies from Papua New Guinea EDITEDB YR .J.MA Y State, Society and Governance in Melanesia Program in association with the National Research Institute, Papua New Guinea Studies in State and Society in the Pacific, No. 5 Published by ANU E Press The Australian National University Canberra ACT 0200, Australia Email: [email protected] This title is also available online at: http://epress.anu.edu.au/policy_making_citation.html National Library of Australia Cataloguing-in-Publication entry Title: Policy making and implementation : studies from Papua New Guinea / edited by R. J. May. ISBN: 9781921536687 (pbk.) 9781921536694 (pdf) Notes: Includes index. Subjects: Policy sciences. Papua New Guinea--Politics and government. Other Authors/Contributors: May, R. J. (Ronald James), 1939- Dewey Number: 320.609953 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photocopying or otherwise, without the prior permission of the publisher. Cover design by ANU E Press Printed by University Printing Services, ANU This edition © 2009 ANU E Press Table of Contents Acknowledgements vii Contributors ix Glossary xiii Chapter 1. Introduction 1 R. J. May Chapter 2. Explaining Public Sector Reform Failure: Papua New Guinea 9 1975–2001 Mark Turner and David Kavanamur Chapter 3. Public Sector Reform Since 2001 27 R. J. May Part 1. Sectoral Studies Chapter 4. Economic Policy Making 41 Satish Chand and Charles Yala Chapter 5. Policy Making in Agriculture 57 Bob McKillop, R. Michael Bourke and Valentine Kambori Chapter 6. A Short History of Mineral Development Policies in 75 Papua New Guinea, 1979-2002 Colin Filer and Benedict Imbun Chapter 7. Policy Making in Health 117 Jane Thomason and Pascoe Kase Chapter 8. Formulating and Implementing Education Policy 131 Richard Guy Chapter 9. Lands Policy 155 Tony Power and Oswald Tolopa Chapter 10. Environment and Conservation Policy and Implementation 165 David Mowbray and John Duguman Chapter 11. Forest Sector Policy Making and Implementation 187 Hartmut Holzknecht and Martin Golman Chapter 12. Policy Making on Decentralization 203 R. J. May v Chapter 13. Thirty Years of Law and Order Policy and Practice: 233 Trying To Do ‘Too Much, Too Badly, With Too Little’? Sinclair Dinnen Chapter 14. Policy Making in Defence 261 James Laki and R. J. May Chapter 15. Women, Policy Making and Development 281 Anne Dickson-Waiko Chapter 16. Foreign Policy Making 299 Edward P. Wolfers and Bill Dihm Part 2. Policy Case Studies Chapter 17. The 1997-98 Drought in Papua New Guinea: 325 Failure of Policy or Triumph of the Citizenry? Bryant J. Allen and R. Michael Bourke Chapter 18. Privatization Policy in Papua New Guinea 345 Timothy Curtin Chapter 19. Policy Making on AIDS, to 2000 369 John Ballard and Clement Malau Index 379 vi Acknowledgements The two workshops with which this project was initiated were supported by AusAID, whose assistance is gratefully acknowledged. The second workshop, in Port Moresby, was held in collaboration with the Papua New Guinea Research Institute. Subsequently, in the process of chasing up authors, and editing and formatting for publication, I have been ably assisted by Allison Ley, Sue Rider and Helen Marshall. Finally, in what has been a long gestation process, I am indebted to the various authors who, while in some cases a little slow to produce, have shown great tolerance and collegiality. vii Contributors Bryant Allen is a Senior Fellow in the Department of Human Geography and Convenor of the Division of Society and Environment, Research School of Pacific and Asian Studies at The Australian National University. He was formerly a senior lecturer at the University of Papua New Guinea. John Ballard is a Visiting Fellow in the Gender Relations Centre, Research School of Pacific and Asian Studies at The Australian National University. He was formerly Professor of Administrative Studies at the University of Papua New Guinea. Michael Bourke is an Adjunct Senior Fellow in the Land Management Group, Department of Human Geography, Research School of Pacific and Asian Studies at The Australian National University. He was formerly Principal Horticulturalist in the Department of Primary Industry in Papua New Guinea. Satish Chand is Associate Professor at the Crawford School of Economics and Government at The Australian National University. Tim Curtin is a member of the Emeritus Faculty of The Australian National University. He was formerly a World Bank adviser in the Papua New Guinea Treasury. Anne Dickson-Waiko is a Senior Lecturer in the Department of History at the University of Papua New Guinea. William Dihm is Director of the National Coordinating Office for Bougainville Affairs, Department of the Prime Minister and National Executive Council. He was formerly Secretary of the Papua New Guinea Department of Foreign Affairs (and Trade). Sinclair Dinnen is a Senior Fellow in the State, Society and Governance in Melanesia Program, Research School of Pacific and Asian Studies at The Australian National University. He formerly taught in the Law Faculty at the University of Papua New Guinea, and was Head of the Crime Studies Division of the Papua New Guinea National Research Institute and Law and Justice Adviser to the government of Papua New Guinea. John Duguman is a Senior Lecturer in the Division of Environmental Science at the University of Papua New Guinea. Colin Filer is Convenor of the Resource Management in Asia-Pacific Program, Research School of Pacific and Asian Studies at The Australian National University. He was formerly Associate Professor in the Department of Anthropology and Sociology at the University of Papua New Guinea and Head of the Social and Environmental Studies Division of the Papua New Guinea National Research Institute. ix Policy Making and Implementation: Studies from Papua New Guinea Martin Golman was, at the time of writing, a Divisional Manager with the Papua New Guinea National Forest Authority. Richard Guy was, at the time of writing, the Head of the Education Studies Division of the Papua New Guinea National Research Institute. Hartmut Holzknecht is a Visiting Fellow in the Resource Management in Asia-Pacific Program, Research School of Pacific and Asian Studies at The Australian National University. He was formerly Director of the Morobe Province Research Centre and Provincial Planner in the Morobe Provincial Government. Ben Imbun is a Senior Lecturer in the School of Management, University of Western Sydney. He was formerly Deputy Executive Dean of the School of Business Administration at the University of Papua New Guinea. Valentine Kambori was, at the time of writing, Director General of the National Agricultural Research Institute of Papua New Guinea. He has also served as Secretary to the Department of National Planning and Monitoring. Pascoe Kase is Director, Policy and Planning in the Papua New Guinea Department of Health. David Kavanamur is a Senior Lecturer in the School of Business Administration at the University of Papua New Guinea. James Laki was, at the time of writing, a Lieutenant Colonel in the Papua New Guinea Defence Force, on secondment as Head of the Political and Legal Studies Division of the Papua New Guinea National Research Institute. He is currently a private consultant. Clement Malau was, at the time of writing, Director of the Papua New Guinea National AIDS Council. He later served as Project Director for the Burnet Institute's Pacific Regional HIV/AIDS Project, before being appointed as Secretary to the Papua New Guinea Department of Health. Ronald May is an Emeritus Fellow of The Australian National University and Senior Associate of the State, Society and Governance in Melanesia Program, Research School of Pacific and Asian Studies at The Australian National University. He was formerly Director of the Institute of Applied Social and Economic Research (now the National Research Institute, to which he is currently an adviser). Bob McKillop is a Sydney-based consultant. He was formerly an agricultural extension officer in Papua New Guinea and has undertaken consultancies for the Department of Primary Industry. David Mowbray is Associate Professor of Environmental Science at the University of Papua New Guinea. x Contributors Tony Power is Managing Director, Sago Industries Ltd. He was formerly Provincial Planner in the East Sepik Provincial Government. Jane Thomason is a health policy analyst and consultant, and CEO of JTA International. She has undertaken health policy consultancies in Papua New Guinea. Oswald Tolopa is Director, Policy Division in the Papua New Guinea Department of Lands and Physical Planning. Mark Turner is a Professor in the Centre for Research in Public Sector Management, School of Business and Management, University of Canberra. He formerly taught at the Papua New Guinea College of Public Administration. Edward Wolfers is Professor of Politics at the University of Wollongong. He has served for a number of years as Adviser, Governance and Constitutional, to the Papua New Guinea Department of the Prime Minister and National Executive Council and Consultant to the Department of Foreign Affairs. Charles Yala was, at the time of writing, Senior Research Fellow in the Economics Division of the Papua New Guinea National Research Institute. He is currently a Visiting Fellow in the Crawford School of Economics and Government
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