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Federalism and Australia's National Health and Health Insurance System1 ANALYSIS OF MANAGEMENT PRACTICE Federalism and Australia’s National Health and Health Insurance System1 A Podger2 Abstract While health reform in Australia has been marked by There is a long history of Commonwealth involvement piecemeal, incremental changes, the overall trend to in health, and future reform should build on that increasing Commonwealth involvement has not been rather than try to reverse direction. While critical of accidental or driven by power-hungry centralists: it the proposals from the Commission of Audit and in the has been shaped by broader national and international 2014 Budget, the lecture welcomed the more pragmatic developments including technological change and the approaches that seemed to be emerging from the maturing of our nation and its place internationally, and Federalism Review discussion papers and contributions by a widespread desire for a national universal health from some Premiers which could promote more sensible insurance system. In many respects the Australian measures to improve both the effectiveness and the health system performs well, but the emerging financial sustainability of Australia’s health and health challenges demand a more integrated, patient-oriented insurance system. system. This is likely to require a further shift towards The Commonwealth’s new political leadership in 2015 the Commonwealth in terms of financial responsibility, seemed interested in such measures and in moving as the national insurer. But it also requires close away from the Abbott Government’s approach. But the cooperation with the States, who could play a firmer role legacy of that approach severely damaged the Turnbull in service delivery and in supporting regional planning Government in the 2016 federal election as it gave and coordination. The likelihood of sharing overall traction to Labor’s ‘Mediscare’ campaign. In addition responsibility for the health system also suggests there to resetting the federalism debate as it affects health, is a need to involve the States more fully in processes for the Turnbull Government now needs to articulate the setting national policies. principles of Medicare and to clarify the role of the This article draws heavily on a lecture presented at private sector, including private health insurance, in the Australian National University in October 2015. It Australia’s universal health insurance system. Labor also includes an overview of Australia’s evolving federal needs to address more honestly the role of the private sector and develop a more coherent policy itself. arrangements and the context within which the current Federalism Review is being conducted. It suggests Abbreviations: COAG – Council of Australian Australia will not return to ‘coordinate federalism’ with Governments; NHHRC – National Health and Hospitals clearly distinct responsibilities, and that greater priority Reform Commission; PHI – Private Health Insurance; should be given to improving how we manage shared VFI – Vertical Fiscal Imbalance. responsibilities. Key words: Medicare; federalism; health insurance; health outcomes; roles and responsibilities; coordinated care; private health insurance. Andrew Podger 1 This article draws heavily on the 2015 Australian National University – Honorary Professor of Public Policy Order of Australia Association Lecture delivered at ANU on 12 October 2015. Australian National University 2 Canberra, Autralian Capital Territory, Australia Andrew Podger is Honorary Professor of Public Policy at ANU and a former Secretary of the Australian Department of Health and Aged Correspondence: Care. He also conducted a review of the delivery of health and aged [email protected] care services for Prime Minister John Howard in 2005. He was the author of feature articles on health reform in the first two issues of APJHM. 28 Asia Pacific Journal of Health Management 2016; 11: 3 Federalism and Australia’s National Health and Health Insurance System Background uses the reverse arrangement to achieve the same end: it The future of Australia’s federal system, and in particular specifies the powers of the provinces leaving the rest to how it deals with health and health insurance, is an issue the national government. Germany has a rather different that would benefit from less ideological debate and more approach where most policy responsibility lies with the informed public discussion and engagement focused on national government but most administrative responsibility health outcomes. Perhaps Australia’s relatively new political lies with the states (or Bundeslander). leadership will be more willing than in the recent past to These descriptions, however, greatly simplify the institutional promote such public engagement despite the complexity arrangements involved including the design of the and sensitivity of the issues involved. legislature, the structure and authority of the judiciary, the Federalism and the subsidiarity principle administrative arrangements and the inter-governmental The subsidiarity principle emerged in Europe in the middle machinery. The institutional arrangements reflect each country’s history, geography and culture. The descriptions ages as the Catholic Church grappled with managing its also fail to reveal the dynamic nature of any federal system vast empire. In essence, the principle is that responsibilities as it adjusts to changing social, economic and technological should be managed at the lowest or most local level where circumstances. the public interests concerned are shared. Higher level intervention may only be justified if there are genuine The Australian federation interests beyond the local community to be considered. A Our federation was forged out of the history of separate corollary of the principle often mentioned in debates today British colonial settlements each operating under delegated is that each level of government should be responsible British authority in a huge country with immense distances for the revenues needed to pay for its responsibilities, or between capitals. Despite the geography, there was and vertical fiscal balance (VFI), though this corollary comes remains a remarkable degree of homogeneity amongst at the expense of preventing horizontal fiscal equity – the the non-Indigenous populations of the States. Under the capacity to redistribute revenue from rich localities to poor Constitution, until 1967, the Indigenous population was ones. seen as a matter for the States and the federation was not The subsidiarity principle has several benefits including driven by the need to assuage any other different ethnic responsiveness to local conditions and preferences, a check or religious or language groups, or by vast differences in on central power and potential efficiency gains as each local income and wealth. community weighs up the costs and benefits of government. This may help to explain why the Australian Senate, unlike Federal systems differ from decentralised government in the Canadian Senate, never operated as a States house that the sub-national governments have sovereignty and but, from the beginning, operated on a party basis. Party not just delegated authority. Thus they apply the principle of distinctions have always been seen as more significant than subsidiarity in a way that involves much more autonomy state differences. including the making of laws and the power to negotiate The steady accretion of power to the Commonwealth with other governments including the national government, over the twentieth century may also be explained in part rather than be ruled or over-ruled by the centre. by the considerable homogeneity of the population. There are many forms of federations. Ours was originally More important, I suspect, has been changing social and a ‘coordinate federation’ where responsibilities are economic circumstances driven in part by technological distinguished and each government is able to exercise change. A large part of the shift has come through High sovereignty over its areas of responsibility. This was Court decisions and some federalists, of course, complain done in Australia with minimalist powers given to the that excessive judicial adventurism was involved. Yet it is Commonwealth, the outcome of the negotiations amongst important to remember that in every case the Court was the six colonies anxious not to cede too many of their required to decide on constitutionality in the context of how powers to the new fledgling national government. The to manage a particular and difficult public policy matter. States retained almost all of their broad ranging powers That the answer tended mostly to involve a wider definition under their own constitutions, but any law they pass that is of Commonwealth power does not signify a centralist High inconsistent with a Commonwealth law (under the powers Court so much as the nature of the policy matters involved specified in its Constitution) is invalid. In effect, all the and the changing social, economic and technological other powers remain with the States. Canada’s constitution context in which they had to be managed. Asia Pacific Journal of Health Management 2016; 11: 3 27 Federalism and Australia’s National Health and Health Insurance System The Australian experience of increasing national power options that would shift some responsibilities further to the is not unique, though it has gone further than in many Commonwealth. Most importantly, they give a great deal of other federations. Most developed nations now face attention to the challenge of better
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