Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press bureaucratic impediments anddelays etal, (Barnsley 2015). The tobaccoindustry of massmedia campaigns. All ofthesewere politicaland subjectedtoidentifiable agenda; namely elimination oftobaccodisplays, smoke-free public areas andfunding on thepolitical, non–government healthorganisation(NGO)and community areas oftobaccocontrol evidence-informed in three important reform inaction, andin a few instancesthwarted action. Inthe1990sand2000sthere were 1997 to2010. inthelate1990sfollowedThe renaissance ofreform decadesof world intheperiod in someareas oftobaccocontrol reform policyandlegislation Tasmania hasapopulationoffewer than500,000 people, yet itled andthe Introduction not establisheduntil2013. in Tasmania andarguesprogress thatevidence-based ontobacco control resource allocationwas smoking risk; anddelays causedby thetobacco industry. This study analyses thepoliticalsituation smoking politicians; of perception alack of priority regarding thescientific research evidenceabout crony capitalism; theconservative ideologyof ‘white male’ politicians; cognitive of dissonance community education, massmediacampaignsandcessationprogrammes. Key impedimentswere Despite this, Tasmania laggedinothercrucial areas, theallocationof particularly resources for Tasmania led in several areas of tobacco control legislation reform in the period 1997 to 2010. control policy: Cronyism andcognitive dissonance, To citethisarticle: Barnsley, K, Walters, EH, Wood-Baker, R(2017)Political barriers toevidence- without further permissionprovided theoriginalwithout further isattributed. work The derivative donotneedtobe works Print ISSN17442648• Online ISSN17442656•https://doi.org/10.1332/174426416X14615120637063 key words Tobaccokey words control •crony •female policy politicians capitalism•evidence-based based tobacco control policy: Cronyism andcognitive dissonance, a Tasmanian casestudy, Evidence &Policy, vol 13no2, 343–64, DOI: 10.1332/174426416X14615120637063 Political barriers tobacco toevidence-based Richard Wood-Baker,[email protected] Evidence &Policy •vol 13•no2343–64©Policy Press 2017•#EVPOL permits adaptation, alteration, reproduction anddistribution for non-commercial use, NonCommercial 4.0 license (http://creativecommons.org/licenses/by-nc/4.0/) which NonCommercial 4.0license(http://creativecommons.org/licenses/by-nc/4.0/) E Haydn Walters, [email protected] This article isdistributed under the termsofThis article the Creative Commons Attribution- Accepted for publication08March 2016•First publishedonline24 April 2016 Kathryn Barnsley, [email protected] a Tasmanian casestudy University of Tasmania,University Australia research licensed onthesameterms. 343

Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press firm establishment of evidence–based progressfirm on thesemeasures. and cognitive dissonance, conjunctionwas slow acritical to emergetoenable the how these influencedtobaccocontrol in Tasmania. Itarguesthatbecauseofcronyism (Crowley, 2003). and thethird politicalparty, theGreens, hasplayed apivotal role in Tasmanian politics Tasmanian multi-member electorate system also allows to be elected, minor parties The upper-houseLegislative Councilreviews legislation, andcanamendbills. The and thegovernment iselectedby thelower Houseof Assembly (Parliament, 2015). the USA, and the Conservatives in the UK). There are two Houses of Parliament, in theUSA, andLabourintheUK)Liberals(similartoRepublicans in onpoliticiansandtheircloseadvisers.influence ofindustry These differences between policydomains require analysisofpower politicsandthe been way such as smoke-free ahead of reforms areas in public places (Barnsley, 2011). control, aspublic opinionhas, withtheexceptionofsmokers themselves, always opinion’. Yet in thishasnotheldtrue inthearea oftobacco Australian jurisdictions that Head (2013)alsoarticulated ‘policy-making inthereal world islinked topublic from of sources. an array and corrections, about policyareas such ascrime Writing observed there hasbeenincreased contestabilityintheprovision ofinformation taking much oftheiradvicefrom thegovernment bureaucracy. As Head(2013) has needed political will, albeit in the context of politicians in Australia conventionally Tasmania. Effective tobaccocontrol requires expenditure onall these. To achieve this tobacco control services, massmediacampaignsandcessationsupport suchasQuit public placesandwork, adequateallocationoffundingfor andfinallyasapriority were toreduce oreliminatetobaccoadvertising, displays atpointofsale, smoking in of urgencyregarding thescientific research evidence. hospital fundingasapriority. Additionally, there was orsense alackofunderstanding politicians, including a rejection ofpreventive measures and anemphasisonacute and profit ratherthanpublic health; theclassiccognitive dissonanceofsmoking based onlibertarianism, individualism andbeliefsin ‘choice’; abiastowards retailers impediments were politicalcronyism; theconservative ideology ofsomepoliticians, and itsfront organisationswere inthesedelaying leadinstigators tactics. Further material, reviews internal ofprogrammes, reports, notesandmemoranda. These meetings, copiesofemailsand correspondence, briefing somelimitedministerial by NGOs. government Internal working documentsprovided includedminutes of ParksIndustry and Water, Treasury andFinance, andPremier andCabinet. from: legislation Freedom ofInformation HealthandHumanServices, Primary Documents relating totobaccocontrol were and soughtviaRighttoInformation conducted, usingdocumentationobtainedfrom sources various for1997to2010. words andtheiradvisers. andactionsofpoliticalactors A qualitative dataanalysiswas document analysiswas undertaken. There isconsiderable evidence onrecord about toevidence-basedTo tobaccopolicy in thebarriers Tasmania, clarify aforensic Method This study reports onthepoliticalcircumstancesThis studyreports times, thatexistedatvarious and There are two in majorpoliticalparties Tasmania, Labor (equivalent totheDemocrats The initiatives thatshouldhave been put inplaceonthehealthagendaatthistime Some documents, such as minutes of meetings, and details of funding, were provided Kathryn Barnsley etal 344 Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press 2004) ofthestature ofthoseidentified by Ballard in andNSW. Victoria considered, but noevidence was foundofsignificantpolicyentrepreneurs (Ballard, The role ofpolicy entrepreneurs, anotherkey outlinedby factor Kingdon, was • • • tobeopensimultaneously:opportunity agenda-setting processes outlined by Kingdon rely on three policy windows of emphasisonagenda-settingandknowledge-transfer.particular Inpublic healththe been conductedinPoland (Balwicki, 2015)andIndia(Rao, 2015). extracted from microfiche atthe Tasmanian StateLibrary, thencopied. from theState Archives office, and newspaper reports from the1960sto1980s Documents madeavailable from earlierpublished studiesincludedafileand records (Legacy Library). The Legacydocumentswere searched using thekeyword ‘Tasmania’. newspaper reports, government websites documentwebsites andtobaccoindustry analysed manually. Grey literature searches included published government reports, pay, tobaccocompanies’ behaviour and Treasury. Otherdocumentswere and sorted of smoking, funding by political party the tobacco industry, sport, taxation, teachers’ of codingincludedtherole ofcabinet, childsmoking, arguments, civil liberties costs unacceptability, statebudget, tobaccoactionplan, vending machines. set A further pro-smoking arguments, mentionsofresearch evidence, smokingcessation, social smuggling, kidsincars, licensing, litigation, passive smoking, pregnant women, prisons, advertising, asthma, committees, corruption, ashtray dirty awards, FCTC, fire deaths, themes whichincluded: funding, children, smoke free areas, legislation, addiction, state.is aforestry Iterative codingwas used, firstly by individual ororganisation, then as there were many thousandsofirrelevant references tosmoke andfires, as Tasmania NVivo.using QSRInternational The key words ‘smoke’ and ‘smoking’ were notused Microsoft Word, searched for ‘tobacco’ terms, examined, sorted, recorded andanalysed proceedings, ofparliamentary transcripts 1997to2010were fortheperiod copiedinto the trailofpolicymakingtobecaptured. documentsandHansards, Digital whichare tobacco control policy, andcompared over andscrutinised toenable thetimeperiod documents were read andexaminedforrelevance totheprocesses ofdeveloping details decades ofdeception(Proctor, 2011). Stanton anti-tobacco expert Californian the misuseof science. NProctor’s Robert monumental book ‘Golden Holocaust’ a wealth influenceongovernments, ofliterature documentingtobaccoindustry and arguments andtolobby (Francey againstany andChapman, reforms 2000). There is health effects of tobacco,the detrimental and engaged researchers to back up their Throughout deniedevidence of the1990s andintothe2000stobaccoindustry The tobacco industry, cronyism andpoliticaldonations Results The theoretical framework usedforthisresearch isthatofKingdon(1995)with Larger scalestudiesoftobaccopolicyprocesses, usingsimilardocumentation, have to be precursors toprogressto beprecursors (Mannheimer, 2007). between the politicians,a lack of boundaries civil servants and advocates; appear onthewayagreement forward recognition thataproblem exists Political barriers tobacco toevidence-based control policy 345 Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press public places. There were in allstatesasthetobacco impedimentsto such reforms government andconflictsof interest inIndia(Rao, 2015)and Poland (Balwicki, 2015). other significantcountries, including overt excessive influenceon tobaccoindustry to theUSA, and it seemsthateven very recently similarproblems alsoexistedin but thisisnotconfined tosmalleconomies. Macey (2014)arguesthatitisathreat Crony insuchanenvironment capitalismcanflourish andhas donesoin Tasmania, process by business interests: ‘Crony capitalism’ by asdescribed Aligica, ofthepolitical isessentiallyacorruption history, anditseemsasthoughtoday itisontherise’ (Macey, 2014). and he puts forward the notion that ‘Crony capitalism has ebbed and flowed inour Jonathanlegal expert Macey isconvinced that ‘crony capitalism’ inhiscountry, isrife and economies(Aligica compared toemerging countries Tarko, 2014). UnitedStates jurisdictions, although and Aligica Tarko arguethatittakes in differentwealthy forms patronage’ (Hay, 1976). This isnotuniqueto Tasmania ofmany andisacharacteristic Tasmanian economy as hasbeenmanipulatedby whathasbeendescribed ‘bureaucratic of transparency inthegovernment-business relationship’ becauseitisbasedaround animbalanceofpower‘… prone tocorruption andlack business groups. crony Beresford described capitalisminthe Tasmanian contextas, weaknesses intheeconomy whichmake thepoliticalsystemvulnerable topowerful 1999; Rogers, 1997a). Crony capitalismin Tasmania by structural ischaracterised the government (LegacyLibrary, todisallow ofthelegislation parts 1999b; Hansard, and privately attacked individual public servants, aswell astakinglegalactionagainst politicaldonations(seeFigure 1).strategic andtheirassociatespublicly The industry Australian Hotels Association (AHA)andretailers todothis, andmakingsubstantial major legislative reforms, collaborating with like-minded organisations such as the et al, 2007). In Tasmania lobbiedhard againstalltheproposed thetobaccoindustry and denialoftheadverse healtheffectsofpassive smokinghascontinued (Thomson to silencehim(LandmanandGlantz, 2009). Misuseofhealthresearch by politicians and Balbach, 2000; HilamoandGlantz, 2014), hard tried andthetobaccoindustry Glantz hasdevoted many years deception(Glantz torelentlessly exposingindustry Tasmania was inlockstepwithother Australian statesin eliminating smokingin Macey definescrony capitalismas: or socialdemocraticform). and (Aligica Tarko, 2014). challengestodemocraticmarketimportant capitalism(beitintheneoliberal world.the contemporary As such, itmayasoneofthe most beemerging that it has a real potential for expansion, consolidation, and relevance in phenomenon, a polymorphic, elusive but powerful reality. Its features suggest seeking’ orjustavague, ethicallychargedlabel. Itdesignatesasuigeneris … ‘crony capitalism’ isnotjustaredundant term, a mere substitutefor ‘rent similar. (Macey, 2014) have beendisplacedby notionsofcronyism orkleptocracysomething succeeding in business. Where crony capitalism exists, notions of meritocracy government favors of everyday is part protocol life and a necessary for … an economic and political environment and obtaining in which pursuing Kathryn Barnsley etal 346 (Beresford, 2010). The small Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press donations isadditionalevidence ofthecronyism existingin Tasmania. industry, and have always for so doing. the major parties criticised The extent of these (Bolger and Arndt, 2012). The Greens have never received donationsfrom thetobacco that tobaccowas being ‘singled out’, andthatalcoholgamingwere justasbad this move was defeatedintheLegislative Council, were whosemembers concerned to preventto legislate to political parties, donations by the tobacco industry however 2003), andtheLiberalsdidlikewise in2013. In2012theLaborgovernment moved concerns, donationsin2004(Rose, andfinallyceasedacceptingtobaccoindustry 2003; Dearlove etal, 2002). The Laborgovernment eventually acted, despitethese and delayed implementationoftobaccocontrol measures. (Stevenson, 2000; Rose, argued that their businesses would be decimated, which also influenced government, and alcohol industries, about bans on smoking in their premises, concerned falsely donations were madeinelectionyears tobothmajorparties. The affiliatedgaming Australian LaborParty (ALP), but thisdidnotapplytotheGreens. Again, larger through the1990sand2000s, asithadformany decades, toboththeLiberalsand control from etal, theseniordecision-makers (Barnsley 2015). did notaccord withtheevidence; unclearaccountabilityandindifference totobacco andprocessstructural problems withinthepublic sector; asetofculturalbeliefsthat and thistooeffectivelyfailed in Tasmania.failure toprovide The evidence was dueto responsible forproviding andtheparliament, toministers evidence-based information above, conspired toreduce evidence transfertothepoliticaldomain. Bureaucrats are Act 1997, forcing thegovernment toamendthelegislation. also issuedalegalchallengeagainstthetobaccoguidelinesunderPublic Health 1999a; BialousandGlantz, 2002; andMartin, Harper 2002). The tobaccoindustry controlling indoortobaccosmoke, asthey haddoneintheUSA(LegacyLibrary, the Australian standard sothatairconditioningcouldbeseenasan effective way of hadinfiltratedthiscommitteeand wereThe tobaccoindustries attemptingtoalter 1999commentingonadraftventilationFebruary andairconditioningstandard. comments (LegacyLibrary, 1999b). DrBicevskis wrote toStandards Australia in forhis by the tobacco industry singled out forcriticism particularly ‘intemperate’ ofHealth,Senior MedicalOfficerintheDepartment Bicevskis DrMartin was ofbureaucratic organisationsandintimidatedpoliticians.undermining Tasmania‘s campaignedagainstsuchreforms,and hospitalityindustries engagedinsubversive as members oftheLoweras members Houseof Assembly, of office. ashe hadasix-year term House Legislative Council, McKay was notsubjecttothesame electoralpressures andretailersas industry ofdeath’‘sellers (Hansard, 1997a). As amemberoftheUpper McKay was strongly anti-smoking, andasanex-smoker, hereferredtothetobacco in fewer smoking areas, targetinghotelsandrestaurants (Dally, particularly 1998). thatthegovernment wouldin mediastories ifself-regulation didnotresult legislate the development ofthePublic HealthBill1996, thehospitalityindustry and warned Legislative Councilinthe1990s. McKay issuedaDiscussionPaper associated with places camefrom aLiberalHealthMinister, HonPeter McKay, amemberofthe to regulate smoke-free hintsof adetermination The first areas inpublic and work Cronyism andthe Australian Hotels Association (AHA) Political continued tothemainpoliticalparties donationsby thetobaccoindustry ofthetobaccoindustry,All theefforts asoutlined andtheimpedimentsitengineered Political barriers tobacco toevidence-based control policy 347 Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press on placinganti-smokingresources ontheagendaasapriority. legislative reform, but we foundnoevidence ofinfluenceonallocationfunds, nor by Sabatier(1988), were in keeping extremely important governments on track with stateinfirst Australiatodoso. Advocacy coalitions, suchastheframework outlined from successive Premiers, insmoke-free managedin2006tobring areas inpubs, the considerable advocacy andpublic pressure from ofopposition healthgroups andinface subsequent stateHealthMinisters, Judith Jackson andDavid Llewellyn, with Leesong as his chief of staff, continuing the tradition of cronyism. Despite this, When LennonbecamePremier in2004, heemployed former AHA chiefDaniel to bansmokinginhotels. Paul Lennontoldthemediain1998: tothe1998election,prior whichpromised thatthegovernment would notlegislate wasunderstanding signedby LennononbehalfoftheLaborParty andthe AHA influence over , asthe key Laborpolitician. Indeed, amemorandumof the tobaccoindustry, through itsassociationwiththe AHA, their andinparticular implementation ofsmoke-free in areas legislation Tasmania to canbeattributed Labor leaderPaul Lennonwas notsocircumspect. The responsibility fordelays in hotel industry. than many HealthMinisters, andtomaintainhisdistancefrom thetobaccoand This meant he was able and more to be more outspoken courageous in his reforms Carter, LiberalHealthMinister Roger Groom this period signedweak 1991)During censured by a Tasmanian Royal (LegacyLibrary, Commissiononcorruption 1993a; tohavecorrespondence a ‘good relationship’ executives, withtobaccoindustry andwas no inroads ontobaccocontrol. Premier RobinGray was inPhilipMorris reported supportive ofbigtobaccoand, from apart bigtaxincreases ontheproduct, attempted interests (Barnsley, 2011). Incontrast, theLiberalGray Government ofthe1980swas the 1970swas destroyed becauseofitsactionsinopposingBritish inpart Tobacco in Tasmania over thishasvaried time. Indeed, theLiberalBethuneGovernment of traditionally had close ties, as cronyism, classifiable with the tobacco industry, although (Millstone and Van Zwanenberg, 2007). Liberalgovernments in Australia have protecting public hazards. healthfrom food-borne Neitherobjective was met meet two objectives’, contradictory promoting farmers’ economicinterests and policymakers dealing with madcow disease (BSE)were expected to ‘simultaneously at play,other factors question. is an important In the UK it has been argued that high enoughonthepoliticalagenda’. Mannheimer (2007)says,‘The problem seemstobethatpublic healthisnotprioritized of placingtobaccocontrol onthepublic agendaisaproblem inmany countries. As Recognition ofthetobaccoproblem, assetoutby Kingdon(1995), andtheissue Indifference ofgovernments to tobacco asapriority The events andrelevant politiciansare listedinchronological order in Table 1. However, continuing in the tradition ofcronyism in Tasmania (Barnsley, 2011), Whether this almost universal lack of priority isideological,Whether thisalmostuniversal lackofpriority orwhetherthere are will notbebanned, but self-regulation willcontinue. (Dally, 1998) full. Italsoincludes: Nosaleofalcoholinsupermarkets. Smokinginhotels would… theLabor-AHAmemorandumofunderstanding behonoured in Kathryn Barnsley etal 348 Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press nor for failing to prioritise tobacco control. toprioritise nor forfailing their budgets, toprovide forfailing adequate fundingfortobaccocontrol measures, 1999a). Reasons were never given by successive ministers, beyond the pressures of stage tohonourallofitselection promises. This has funding forQuit, andshereplied, ‘… theGovernment isnotinapositionatthis the Government was goingtohonouranelection promise toprovide additional 2010). In1999DrMadill, aLiberal, questionedthe ALP MinisterJackson onwhether recorded Tasmania’s toprovide failure adequate funding(AMAand ACOSH, 2000– Health (ACOSH) state minister on tobacco control, to the worst performing regularly Australian Medical Association (AMA)and Australian CouncilonSmokingand funding (Editor, 1998; Rogers, 1997b). The annual ‘Dirty Ashtray’ awarded by the thegovernmentHealth groupsregularly fornotproviding criticised suchsufficient tobacco control, andmediacampaigns. services forcessationsupport particularly The LaborParty (ALP), wheninoffice, failedtoexpendsufficientfundson also substantially in2004compared to preceding years (Rose, 2005; Whinnett, 2004). were,the Liberalsfrom tobaccoandhospitalityindustries notsurprisingly, decreased clubs; atthatpointthe AHA toldtheLiberalsthatallcontactwas over. Donationsto when theLiberals, underhisleadership, abanonsmokinginpubsand supported reasons fordislikingtobaccosmoking, andprecipitated asplitwiththe AHA in2004 in2005,(1996–present) strongly bansonsmokinginprisons supported haspersonal targeting ofchildren. ReneHiddingMemberoftheHouse Assembly (MHA) . Brett thetobaccoindustry’sWhitely mademany speechespillorying industry, includingBrett Whiteley, DrFrankMadill(amedicalpractitioner)and ontobaccoproductsnational healthwarnings (LegacyLibrary, 1993b). in representations to the WA State Premier, Court, to upgrade efforts to torpedo federalLiberalmember forBass,former Warwick Smith, assistedthetobaccoindustry self-regulation withthetobaccocompanies, agreements (LegacyLibrary, 1989), and Source:ElectoralCommission Australia 15,000 Figure 1: Donationsto Tasmanian by tobacco companiesby politicalparties year 10,000 20,000 25,000 5,000 However, someindividual LiberalMPshave shown distinctantipathy tothetobacco $ 0 1998/1999 5,500 Labor officiallyceasedacceptingdonationsfromtobaccocompaniesJanuary2004, 15,100 Political barriers tobacco toevidence-based control policy 2000/2001 6,500 Liber 0 als officiall 2001/2002 Election years1998, 6,000 5,000 y Liber ceasedacce al Pa 2002/2003 rt 7,000 y 349 00 p 2002, tin Labor Pa g donationsfrom 2004/2005 2006, 4,000 rt y 2010, had tobedeferred’ (Hansard, 2010/2011 2014 22,000 Au g 00 ust 2013. 2011/2012 5,000 11,000 2013/2014 0 Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press (2014) suggests that immorality is one of the factors likely to trigger public likely attention. totrigger (2014) suggests thatimmoralityisoneofthe factors change, and why so many of the public ignore politicians and members it, Marshall views ofpoliticianstoregard as thetobaccoindustry ‘immoral’. onclimate Writing has beeneffective over time ingalvanising public opinion, as well asinfluencingthe behaviourExposure (Glantzand Balbach, ofunscrupulous by theindustry 2000, 369) Proctor Robert (2011)pointsout: anti-tobacco expert common amongstpro-smoking advocates around theworld. Leadingcontemporary anti-smokingjuggernaut’.‘Neo-fascist (Hansard, 1994, September) These epithetsare the Liberal Party. engaged in name-calling and insults,These backbenchers such as the (Liberal), Bacon(Labor)andLennon(Labor), andsmoker mainlyin backbenchers exception. Indeed, thestrongest were opponentsofreform smokingPremiers, Gray compared tonon-smokingministers,tobacco reforms Labor’s Judith Jackson was an book onthetheory. Whilst smokingpoliticiansin Tasmania hadapoorrecord on the posterchildforcognitive dissonance’ sinceitwas discussedinFestinger’s (1962) rooms,in theirparty cabinetorinParliamentarydebates. Smokinghaslong ‘been have ofsmoking, lessrationalbeliefsabouttherisks andactspeakaccordingly quit, or have attempt. had a failed that smoking politicians It is therefore not surprising smokers’ perceptions can change depending on whether or not they have recently In a large study conducted across several countries, Fotuhi et al (2013) found that are lower by thanisunderstood thosewhodonotsmoke orwhohave quitsmoking. Smokers generallyreinforce theirbehaviour, rationaliseit, andbelieve thattherisks Cognitive dissonance–smokingpoliticians advice bureaucrats are influenced by whatthey willaccept. thinktheirpoliticalleaders considerations(75%)’. acceptability ofdecisions(80%)andby short-term studied, ‘… policymakingisdriven by considerations(83%), budgetary by thepolitical referred tothescientificliterature inherspeeches(Hansard, 2007). Ruth Forrest, midwife, aLegislative Councillorandformer whohasconsistently have mentionedresearch intheirspeeches. There are multiple examples, including et al, 2015). However, someofthepoliticiansfrom andindependents minorparties et al, 2007). They tendtorely oninternal, (Zardo dataorconsultantreports experiential funding (Tasmanian Tobacco Action Plan, 2011–2015). and the CommonwealthHealth Minister Michelle O’Byrne allocated adequate ofGovernmentthe failure todecrease these rates(Hansard, 2009). Finallyin2013 need toachieve changeinsmokingrates, andyet claimedtobeather ‘wits’ end’ at put fundinginplace, althoughseemedunaware thatitwas inadequatetomeetthe minister was clearlyunable toanswer thequestionadequately. Sheclaimedtohave Lara Giddingsatlengthaboutfundingfortobaccocontrol programmes, andthe Head, inan Australian study(Headetal, 2014), alsoobserves thatamongststateofficials Policymakers rarely read ‘… traditional, academic, peer-reviewed literature’ (Nutley Similarly, in2009Greens MHACassieO’ConnorquestionedtheHealthMinister have-no-fun crowd. puritanical obsession ofnanny-state naysayers,the priggish abackwater ofthemeddling, world where noonehasany fun. Tobacco prevention ismadetolooklike want… chargesthatnico-nazisandtobaccofascists tojackbootusintoa Kathryn Barnsley etal 350 In giving In giving Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press 2008–2011 2004–2008 1998–2004 1996–1998 1992–1996 1989–1992 1982–1989 1981–1982 1977–1981 1975–1977 1972–1975 1969–1972 1958–1969 Years 1958–2015 Table 1: Tasmania – Tobacco reforms by politicalparty, Premier andMinisterfor Health Bartlett, David #Lennon, Paul cancer 2004) (died lung *Bacon, Jim Rundle, Tony Groom, Ray Field, Michael *Gray, Robin , Lowe, Doug Neilson, Bill Reece, Eric Angus Bethune, Reece, Eric Premier Political barriers tobacco toevidence-based control policy (2006–2010) Giddings, Lara (2002–2006) Llewellyn, David (1998–2002) *Jackson, Judy (1996–1998) McKay, Peter (1992–1996) Roger Groom White, John (1986–1989) Groom, Roger (1982–1986) Cleary, John (1980–1981) James, Gill (1977–1980) Barnard, Michael (1974–1976) Farquhar, Hedley (1972–1974) Foster, Alan road safety) (very reformist on Abbott, Nigel (1964–1969) Everett, Mervyn Health Minister 351 2010) from April included (Greens Labor Labor Labor support with Green minority Liberal –in Liberal Labor/Green Liberal Labor Labor Labor Labor Centre Party Liberal/ Labor government Parties in 2007 trebling of tobacco control funding reduction 2007; insize of POS kids; fruit-flavoured cigs banned; Ban onsmokingincars with ban 2005; pubsmokingban2006 Nightclub andgaming smoking limited pubbans2001 workplaces, eatingareas, andsome First indoorarea smoke-free laws, areas discussion paperonsmoke-free banned ‘lying’ by tobacco industry; point of sale, raised smokingage, tobacco displays andmarketingat Health Act 1997; first inroads on First smokingrestrictions; Public Established Quit No tobacco reforms 1991) failed bribery attempt(Carter Commissioner inrelation toa ‘improper conduct’ by aRoyal and found tohave engaged in the tobacco industryasafriend, Ref?] ); Gray was regarded by DJ, Groom &Francis [isthisa four tobacco companies)(Bacon, regulation –with of advertising (Groom signedadealonself- funds tosmokingprevention to 100%, butdidnotallocate Massively increased tobacco taxes Tobacco Excise introduced No substantialreforms No substantialreforms failed andwas repealed Tobacco taxintroduced, butit bribery (seeBarnsley, 2011) due totobacco industry–probably Drafted atobacco tax, lostoffice No tobacco control initiatives Tobacco control initiatives Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press populations and reported that: populations andreported andDunlap,change denialistviews (McCright 2011). Palmer (2003)alsostudiedUS significance ofthedominanteliteconservative climate whitemalesinendorsing health problems, includingclimatechangeandsmoking. identifiesthe McCright white males, whoare inpositionsofpower, perceive inidentifiedpublic lessrisk most are male, around 80%, onlyslightlyover varying studied. theperiod Conservative and thisisreflected inState Parliament. In Tasmania, allstatepoliticiansare whiteand initiated by femaleministers. Tasmania hasaculturallyvery homogeneous population, smoking hascomefrom conservative men, have whilemany ofthereforms been Most oftheoppositionin Tasmanian Parliament tostrengthening laws restricting male’ Conservative ‘white effect oflimited riskperception references. is evident in Hansard, transcripts, from this and many other Acute awareness ofatleastafew politiciansoftheimmoralbehaviour oftheindustry by thetobaccoindustry: Labor MHAPeter Patmore (Hansard, thathehadbeenthreatened 1997b)reported research by UMRResearch by was PhilipMorris’. underwritten a very expensive packageandCDforparliamentarians, information ‘… andsome was hadpaidthe disturbedbythatthetobaccoindustry thefact AHA toproduce Member oftheLegislative Council(MLC)Cathy Edwards (Hansard, 2001)saidshe #Smoker –quitwhilst inoffice. * Smoker. present 2014– 2011–2014 sociopolitical factors. tobelow –is explained, risks of whitemales judging atleast inpart, by These findingssuggestedthat the ‘whitemale’ effect–thatis, a preponderance becausetheirworldview ininstitutionsandauthorities.risk isoneoftrust … whitemalestendtoperceive healthandtechnology hazards ashaving low tochildren,living andselldrugs threatened me. those doubtswent straightoutthedoorwhenthesepeoplewholiefora Now, MrSpeaker, ifIever thisbill, hadany doubts aboutnotsupporting , Giddings, Lara Ferguson, Michael (2010–2014) O’Byrne, Michelle Kathryn Barnsley etal 352 Liberal Labor/Green completed Ban onsmokinginprisons smoking inprisons commenced Children’s Commissioner; banon Generation referred tothe for Tobacco-Freeproposal education campaigns(2013); evidence-informed to undertake allocation of sufficient resources of outdoorsmokingbans; first tobacconists 2012; extension at point-of-sale 2011and Elimination of tobacco displays Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press agenda, slowing andrefusing toallocateadequateresources. reform of tobacco smoking has been a key to gain traction on the political in failing factor ability ofconservative male Tasmanian politicianstoperceive andaccepttherisks advocacy andaspolicyentrepreneurs) in by Ballard. asdescribed Victoria The restricted and aprogressive socialestablishment (Ballard, 2004)(withphysicians prominent in inadequate economicfoundation. traditionsinSydney,This contrastswithlibertarian Council, apowerful Treasury bureaucracy, crony capitalismandanintractable Greens presence, ahomogeneous population, andindependentLegislative aformidable times.issues and at particular Tasmania’s political landscape is complicated by a strong influential, have asbothmajorparties beenlabelledasconservative onparticular of conservatism in Tasmanian politicswas examinedbut notfoundtobeparticularly female Premier, atbothfederalandstatelevels. andfemale healthministers The idea at a unique conjunction in time, when there Minister, was a female federal Prime Adequate fundingfortobaccocontrol was finallyachieved in Tasmania onlyin2013, to tobaccocontrol measures, andmoves to establish aHealthPromotion Foundation, There were many discussionsabouthypothecation ofbusiness franchise feesandtaxes increase atthesametimeasteachers’ occurred pay rise. Fieldwent ontosay: revenue anything to reduce thataddiction’. withoutoffering Furthermore, the revenue out, ‘… theGovernment haschosentoexploitanaddictioninorder toincrease its to over $50 million, but as Labor member Michael Field (Hansard, 1993) pointed the LiberalGovernment hadincreased tobaccofranchisefee revenue from $34million declared invalid by in1997(James, theHighCourt 1997; Hansard, 1996). In1992–93 was inthemedia(Editor, abandonedaftermuch satire andhilarity 1974a, 1974b). send themoney to Treasury. wasThis ofcourse totallyimpracticalandtheinitiative provisionsbizarre that required and individual purchasersoftobaccotofilloutforms the HighCourt, where itwas foundtobeflawed, though valid, and redrafted with publicity couldjeopardise re-election (NAA, 1974–75). The feewas challengedin election inMay 1974, inwhich Tasmanian seatswould andbad marginal becrucial foranadditional$15million,in return becausefederalLaborwas an abouttoface in particular Treasurer BillHayden, laterpersuaded Tasmania toabandonthistax, to make Tasmania independentoftheGrantsCommission. The federalgovernment, who lostpower soonaftertheseevents, MinisterGough andthePrime Whitlam, 1973 was adebacle, ofapeculiardealbetween aspart LaborPremier, Reece, Eric business franchisefee, followed laterby otherstates. However, theinitialattemptin (NAA, 1974–75). Tasmania was state to attempt to impose such a tobacco the first was notaboutreducing smokingrates. Ratheritwas purely a revenue-raising measure significanttobacco taxation was in1973,The first reform but in reality the motivation ontobaccoExpenditure control –impediments anddelays Business franchisefeeswere re-introduced in Tasmania in the 1980s, but finally pay rise. (Hansard, 1993) was brought inandtheincrease intobacco (sic)isdirectly related totheir this becausethey thinkthey have beenscapegoated by thatthistax thefact receivedteachers their pay rise. I know many are teachers quite bitter about … theGovernment announcedthisrevenue measure theday afterthe Political barriers tobacco toevidence-based control policy 353 Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press party inpoweratstateandfederalparty levels Figure 2: $(AUD) millionspentby Tasmanians ontobacco 1985to2011, by government andpolitical latter hasledtocontinuing highsmokingrates: has beenusedtooffsetlack of resources allocatedtotobaccocontrol, andthatthe funding allocation. a revenue stream fortobaccocontrol, lives failure andthis historic oninlimited commitment even afterthetaxwas removed. Tasmania was never able togainsuch in discernible and Victoria West Australia, whichmaintainedthatsamelevel offunding revenuedid undertake earmarking fortobaccocontrol andhealthmeasures, isstill Commonwealth. However, thelegacyofhypothecated taxationinstateswhich States cannolongerraiserevenue from tobacco, asitiscontrolled by the etal,(Barnsley 2015): not always by well their bureaucrats. informed Within the Tasmanian bureaucracy (Hansard,used forotherpurposes 1993). Furthermore, government were ministers (Hansard, 1998; Hansard, 1996). The business franchise fee in Tasmania was always hypothecated to tobaccocontrol, to the ideaasa referring ‘hypothecation disease’ wasDepartment able tointimidatetheGovernment, andprevented therevenue being time, but never adequatelyfunded. In Tasmania, thepowerful headofthe Treasury Borland etal, 2009). A HealthPromotion Foundation was established forashort similar tothe successful onewhichhadbeenestablished in (Hansard 1996;Victoria $ Millions 120 – 140 – 160 – 100 – 40 – 60 – 80 – The health bureaucracy (Taylor, 2010)has openly acknowledged thatlegislation government agencies. the ‘rescue’ culture, andpassive andactive from obstruction several key lack of programmes, evidence-informed inparticular ‘belief’ of primacy included a close relationship between governments and the tobacco industry, and never reaching anoutcomeorauthoritative decision. Cultural barriers ‘consultation’, topolicyproposals contributed foractionbeing ‘jammed up’ Confused accountabilityandcomplexprocesses andexcessive internal 1983-1991 HawkeLabor F

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2007-.... Sep-2007 May-2008 Jan-2009 Labor Sep-12009 May-2010 Jan-2011 Sep-2011 Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press track of retailer locations, to ensure that retailers were of changes to kept informed has stillnotbeen enactedinseveral otherstates, whichenables governments tokeep Licensing ofretailersin1999 was asignificant reform, anotherearlyinitiative which Licensing ofretailers (Tasmanian Tobacco Action Plan, 2013). which hascontinued tohave adevastating andexpenditures effectonhealthservices hospitals’.to run treatment overThis was aclassiccaseofprioritising prevention, increased smokingeducationfundingaside, saying theGovernment neededmoney education (Rogers, 1997b), ‘Health MinisterPeter McKay thecallfor brushed Australian Medical Association callformore money tobespentonanti-smoking did notallocatesufficient fundingtotobaccocontrol, andin1997 in responseto the Fraser Government (MacCallum, 2013). Despitehisstrong legislative reforms, McKay south’ –asmoker, federalmemberandaminister(but notincabinet)the former Hodgman. asthe The latter was knownjournalists toCanberra ‘mouth from the thestaunchlypro-businessin particular Tony Benneworth, BobCheekandMichael toensure thatdisplayslegislation were totallyremoved. eliminated in2007attheinitiative oftheLegislative Council, which amendedthe they were legally challengedby thetobaccoindustry. Tobacco displays were finally and insubsequentyears progressively tightened, includingremoving loopholesafter minded strong politiciansandbureaucrats, Peter particularly McKay andMarkJacobs, measures in1997wererestriction enactedby acadre ofcommittedindependent- was latertobecomeleaderoftheLiberalsin2001–02. Nevertheless, theinitialdisplay intheparliamentandelsewheremock healthcampaigners (Hansard, 1994). Cheek new, nor unique to Tasmania, and the terms ‘fascists’ and ‘nazis’ were epithets used to forthetobaccoindustry’.‘apologist Taunting isnot oftobaccocontrol reformers bureaucrat’. The AMA andCancerCouncilcalledLiberalmemberBobCheekan of death’, responded (Pos, andtheindustry 1997)by callingDrJacobs an ‘overzealous McKay. McKayandretailers by callingthem enragedthetobaccoindustry ‘peddlers of theDirector ofPublic Health, DrMarkJacobs, andtheHealthMinister, Peter matchensued,public slanging culminatinginthe retailerscallingforthedismissal to dealwiththisproposal andwhippedupfearinretailers. name-calling A vitriolic to replace conventional advertising asitdisappeared. actedswiftly The tobaccoindustry hadexpandedtohugesizesknowntobacco industry as ‘power walls’ (Dewhirst, 2004) of cigarette displaysrestriction at point of sale (Laugesen et al, 2000), which the where The nextreform Tasmania didlead Australia, andtheworld, was inthe Point ofsale tobacco display restrictions McKay was plaguedby from oppositiontohisreforms hisown Liberalbackbench, (Taylor, 2010) smoking rate in Australia, hasnotdecreasedsince2001[emphasisadded]. which smoking ratesandthisisthemainreasonwhy Tasmania hasthesecondhighest jurisdictions. onitsown Legislation however isnotsufficientto reduce clinical interventions, atthelevel particularly provided by other Australian to compensateforalackofresources available forhealtheducationand Tasmania hasalways hadstrong tobaccocontrolbut thisislargely legislation Political barriers tobacco toevidence-based control policy 355 Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press ensure thehighrateofcompliance99%(Tasmanian Tobacco Action Plan, 2013). are allocatedtoenforcement administration(Hansard, 1999b)whichhashelpedto isself-funding, mechanismisthat theregime important asfeesobtainedfrom retailers legislation, anddisplay andtomonitorcompliancewithsalesminors restrictions. An and Lodge, 2003; Studlar, 2002; 2007; DuinaandKurzer, 2004; Farquharson, 2003). tobacco control iscommon, (James inEnglish-speakingjurisdictions particularly relationships withkey decision makers. influence was strong enoughto overcome thoseties, andtoestablish their own close between politicians, public servants andadvocates, nevertheless thetobaccoindustry Tasmania. Although thethird precursorwas present, that is, boundaries alackofrigid onthewayexists andagreement forward (Mannheimer, 2007), were lackingin (1995), thatwe ofthispaper, quoteatthebeginning that is, recognition thataproblem funds fortobaccocontrol intothe2000s. to levy business franchisefeesontobacco, Tasmania continued toallocateinsufficient the budget process inthe1980sand1990s meantthatafterthestateslostright tobacco. Sixth, toembedhypothecated thefailure taxationtotobaccocontrol into the ‘conservative whitemale’ effectledtoless awarenessrisks associatedwith ofthe dissonance ofsmokingpoliticianswhowere disinterested intobaccocontrol. Fifth, was toplacetobaccoontheagendaasapriority. failure was Fourth thecognitive case, possible (Barnsley, overt corruption 2011; Hay, 1976). The third impediment There isconsiderable recent evidence ofcronyism, andinatleastonehistoric todistancethemselveswas thatpoliticiansfailed from thefact thetobaccoindustry. governmentswhich proscribed from dealingwiththeindustry. The secondobstacle WHO Framework Convention on Tobacco Control (FCTC)adopting 5,Article demonstrated throughout theworld (WHO, 2009), andisthemainreason forthe itself. obstacle The first was theactionoftobaccoindustry Thishasbeen What were thepolitical impediments to evidence-based tobaccocontrol in Tasmania? Discussion not resource allocation(see Table 1). governments, whichhaspositively affectedthepaceofanti-tobaccolegislation, but LiberalorLaborminority timessincethelate1980sGreensvarious supported often haveparties elected (Tasmanian members Parliamentary Library, 2015). At democratic, governments but regularly leadstominority beingelected, assmaller system fortheHouseof Assembly andmulti-member and electoratesisvery fair to take upmeasures ofreform, ortoallocatefunding. Tasmania’s Hare Clarkvoting individual health minister,of the particular as well as their ability to convince Cabinet tobacco control seemtorelate topersonalities, withinthemajorparties andinterests approach over thedecadesof1990sand2000s. Variations ofcommitmentto implementation istheGreens, intheir asboththeLaborandLiberalParties varied with animpeccable andconsistenttrackrecord ontobaccocontrol and reforms There was ontheway nopoliticalagreement forward. The onlypoliticalparty Greens consistently reformist As Studlar and others haveAs Studlar and others established, ‘lesson-drawing’ in across jurisdictions Two framework forasuccessfulreform oftheprecursors outlinedby Kingdon Kathryn Barnsley etal 356 Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press of revenue totobaccocontrol. every government ofany from suchhypothecation politicalpersuasion undertaking pleas from many backbenchpoliticians. A powerful Treasury prevented Department such taxes, sometimescalled ‘excises’, was never directed totobaccocontrol, despite finally overthrown inthelate1990s.by theHighCourt The revenue obtainedfrom inbriefly Tasmania inthe1970s, were abandoned, and resumed inthe1980s, and marketing thatwas alsoneeded. pressure, but they were not powerful enough to influence the funding for social able tointroduce legislative measures tocontrol tobaccoagainstthetideofindustry were,the reformers of public opinion with and the active support health organisations, questioned thesealliances, andwere abouttobaccosmoking. concerned Eventually delayed legislative reforms. However, this was counterbalancedby politicianswho hotel industry, includinggamingvenues, aswell astobaccoretailers, significantly and allwere whitemales. These closerelationships between many politicians, the anditsfront organisations.ties withthetobaccoindustry Many ofthesewere smokers as recently as2013, government. totheirelectionasthecurrent justprior The lastidentifiable recorded donationtotheLiberals direct tobaccoindustry was gained anawareness ofthetoxic anditslobbyists. nature ofthetobaccoindustry politicians, inmore recent particularly years whenthecommunity andpoliticians and Martin,used front its agenda (Harper organisations to pursue 2002), and pressure wasreform inthepipeline(Figure 1). hasalsostrategically The tobaccoindustry attimeswhenanelectionwasmajor parties abouttobeheldoratobaccocontrol statute law (Hansard,the principle 2000)andmadelargepoliticaldonationstothe engaged inunethicalbehaviour (Hansard, 1997b), undertaken legalactionagainst politics (Barnsley, 2011; Hay, 1976), lobbiedpoliticians(LegacyLibrary, 1993a, 1993b), hasinterfered in thetobaccoindustry ofthe21stcentury into thefirst years Tasmanian contaminated by thetobaccoindustry. From aslongagothe1960sandcontinuing evidence. Healthministers, andseniorbureaucrats Premiers remained thekey players. policy change, nordidthey have thepower toconvince governments toactonthe tobacco control, yet thesepeoplewere able toimplement notmajorinfluencers ofparliamentwereindependent members aware oftheevidence around effective these impedimentsitisclearthatmany individual politiciansfrom and allparties andmore motivated,better-informed but lesspowerful, politicalfigures. Despite resources, or directed it be spent elsewhere. of the They confounded the bestefforts Treasury Department, were notconvinced, andeitheropposedtheallocationof cabinet officialsandthe inthepublic service,key advisers suchastheheadof political players was never atoppriority. A successionofstatePremiers, powerful (Barnsley,the tobaccoindustry 2011). unfriendly Tasmanian Liberalgovernment lostofficeduetopoliticalinterference by so itwas abrave stepforasmallstatetotake. Inthe1970s, aprogressive tobacco- et al, 2000). There were precedents forthislegislative few otherinternational action, control legislation, suchastheremoval oftobaccodisplays atpoint-of-sale(Laugesen Tasmania hasled Australia, andinsomecases theworld, insomeareas oftobacco Taxation, orlatertitled ‘business franchisefees’, ontobaccosalescommenced A number ofsenior Tasmanian politicianshave hadbrazenandunapologetic close The environment forknowledge transferin Tasmanian politicalculture was Awareness andrecognition oftobaccosmokingasaproblem by themostpowerful Political barriers tobacco toevidence-based control policy 357 Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press industry throughindustry socialinteractions withexecutives, affectedtobacco-control policies, conservative stanceofPremiers, andtoalesser extenttheinfluenceof the tobacco findings of the WHO (2009). In Australia, Hooker and Chapman found that the control. study is consistent with these case studies andalsowith the The current interference was inpreventingtobacco industry important intobacco policyreform already mentioned, usingsimilarmethodsofdocument examination, alsofoundthat these elementsandNutley etal(2007)provided athorough guidetothediscussion. Canadian, haveAustralian andUKwriters recorded acomprehensive examinationof knowledge utilisation, the ‘two communities’ concept andevidence-agenda mapping. and evidence-basedon evidence-informed policy transfer, knowledge transfer, conservative malepoliticians, case. orifitismere coincidenceinthisparticular female politicians, inpositionsofpower, are more likely tofollow evidence than policy researchers shouldexaminethequestionofwhetheragroupprogressive of progressive was femaleleaders inpower. Therefore, itisrecommended thatpublic mass whenacritical toanexplanationofwhy suddenlyoccurred contribute reforms ‘risk’ compared tomales, propensity andtheirgreater touseresearch evidence, might crony capitalism, coupledwithfemalepoliticians’ awareness greater ofpublic health on the Tamar (Beresford, 2015). fromThe exclusionoffemaleleaders thebastionsof leadertostitchupadeal tobuild acontentiouspulpmill industry with aforestry comment, unlike suchasPaul maleleaders Lennon, dinedpublicly whofamously withoutexcitingsalacious withcaptainsofindustry could notgooutalonetodinners risk-averse (Esarey andSchwindt-Bayer, 2015). A femalepoliticalleaderin Tasmania liberal democracies, therefore lesslikely tobecaptured by industry, andare alsomore arepolitical leaders generallylesslikely tobeengagedin ‘cronyism’ in andcorruption evidence’ (Oliver et al, 2014; Brownson et al, 2011). that female It is worth considering have indeedalsoindicatedthatfemalepolicymakers are ‘more likely touseresearch in championed plainpackaging Australia (Chapman, 2011). Someprevious studies sufficient fundingin2013. Similarly, it wasfederalHealthMinisterNicola Roxon who political level provided ashort ‘window ofopportunity’ andallocationof forreform However, atastateand itbecameevident thatauniqueconjunctionoffemale leaders evidence foranalysiswasbecause thesamedepthofdocumentary notavailable. sufficient resources tothe tobacco-control effort. This was notconsidered indepth conjunction ofprogressive nationallyandlocallythatfinallyprovided femaleleaders a discovery madeafterthemainstudyhadbeencompleted. This was thatitwas a andresourceas anobstacletoreform allocation. the ‘conservative whitemale’risk perception, effectofimpaired continually operated occasions. Amongst politicians the ‘cognitive dissonance’ ofsmokers, characteristic and many otherpoliticiansthatthiswas factor, indeedacrucial andthey saidsoonmany and effectiveness ofmassmediacampaigns, althoughthere was an awareness amongst thekey The bureaucracy sufficientlyoftheimportance didnotinform ministers hospitals in1999. Tobacco smokingnever rose tothetopofgovernment agenda. identifiedonwhich tospendmoney,priority suchasthe1993teachers’rise, pay or major impedimentto reducing smokingrates in Tasmania. There was always another evidence-based massmediacampaigns, services, andcessationofsupport was the The two casestudiesconductedinIndia (Rao, 2015) andPoland (Balwicki, 2015), limitation of our analysis,A further due to space constraints, is the extensive literature studywasOne ofthelimitationsthiscurrent alessthanfullconsiderationof Thus, thecontinuing inthe2000stoallocatesufficient failure resources to Kathryn Barnsley etal 358 Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press engage the imagination ofpoliticiansandthecommunity.engage theimagination without abandoningtheneedtoconsiderevidence, but whichwould beable to ‘high-level’ ideascouldtake thetobaccocontrol root environment, andtransform (WCTOH, 2015) mighttake centre stage in tobacco control. It could be that such 2015), whichwas by endorsed the2015 World Conference on Tobacco orHealth such asthetobacco-free generation proposal (Berrick, 2013; Walters andBarnsley, tobacco-control policy. Maybe ‘charismatic’ and ‘chameleonic’ ideas(Fafard, 2015), arguesthatpoliticianshavestudy certainly proved toevidence–based tobeabarrier torationaldecisionmaking.(2013) says thatpoliticshasbeenportrayed asabarrier Our generated through public healthresearch thattravel intopublic health policy’. Smith evidence haslimitedtractionin policydebatesand, ‘… itistheideasandconcepts control policy, ratherthanrelying onthetransferofevidence. Smith(2013)foundthat timesovervarious thedecadesby Premiers withvery closetiestoindustry. unprepared toupsetthesepowerful interest groups. were Bothpoliticalparties ledat many maleLaborpoliticianswere andsmallbusiness, leaders closetoindustry and individualistic approaches, andprepared toblame smokers fortheirown fate, while politics in Tasmania. SomeLiberalswere highlycivil, andsympatheticto libertarian tobacco control thanthepersonalities, cronyism, andunderlyingcharacteristic of differencesIdeological between proved themajorpoliticalparties in lessimportant subjected by opponentstoabuse, name-calling, insultsandcallsfortheirresignation. health minister and public servants in the late 1990s reforming and early 2000s were was metwithfierce resistance from the retailer lobby andthetobaccoindustry. The were effective (Hooker atachieving andChapman,reform 2006). and they alsofoundthatminorparties, women, members andparty backbenchers of what actionswould be effective in reducing smoking rates; a refusal by Treasury were smokers; compoundedby them ofthebureaucracy afailure toadequatelyinform programmes, was essentiallyaproduct ofthecognitive dissonanceofkey who leaders tobacco control measures, suchasmass mediacampaignsandcessationsupport both sociallyandeconomically.from whichitisstill suffering educational initiatives, causingalageffectin reducing smoking ratesinthisstate, successive governments’ toallocateresources failures toevidence-based public of insightful, andsociallyprogressive determined decisionmakers, were offset by a number ofareas thatwere pushedthrough againsttheoddsby asmallnumber unencumberedable by toinitiatereform strong andsocialtiestoindustry. personal appear toberarewhoare femaleleaders outsidethecronyism culture, andtherefore tochallengespowerful groups. industry has actedasabarrier The onlyexceptions Beresford by (2010; writers asdescribed forestry 2015) and Flanagan (2004; 2007), and has beenembeddedin Tasmanian politicalculture, includingalcohol, gamingand to engagewithbigtobaccoanditsassociatedfront organisations. Crony capitalism from theinfluenceoftobaccoindustry, andthewillingnessofseniorpoliticians slowing legislative intobaccocontrolMost factors reforms in Tasmania have stemmed Conclusion Perhaps forin-depthconsiderationoftherole ofideasintobacco thetimeisright Tasmania’s pushtobanadvertising anddisplays oftobaccoproducts atpoint-of-sale The unwillingnessof Tasmanian politiciansto allocate resources toevidence-based The major world-leading legislative in reforms Tasmania in tobacco control in Political barriers tobacco toevidence-based control policy 359 Delivered by Ingenta IP : 192.168.39.211 On: Sun, 26 Sep 2021 02:09:04 Copyright The Policy Press Dally, S, 1998, Hotel licencebantoboostindustry, Mercury, , October2 Crowley, CM, 2003, of the and rise The rise : The state election of Chapman, S, 2011, plain packaging,Why fears thetobaccoindustry MedicalJournal Carter, WJ,1991, Brownson, RC, Dodson, EA, Stamatakis, KA, Casey, CM, Elliott, MB, Luke, DA, 2011, Borland, R, Winstanley, M, Reading, D, 2009, toinstitutionalizeresources Legislation Bolger, R, Arndt, D, 2012, Tobacco donationplandefeated, Examiner, November 15, Bialous, SA, Glantz, SA, 2002, ASHRAE Standard 62: Tobacco industry’s influence Berrick, AJ, 2013, The tobacco-free generationproposal, Tobacco Control22, i22–i26 Beresford, Q, 2015, andfall ofgunns,The rise Sydney: NewSouth Publishing Beresford, Q, 2010, Corporations, government and development: The case of Barnsley, K, Walters, H, Wood-Baker, R, 2015, toevidence- Bureaucratic barriers Barnsley, K, 2011, Crony capitalism or corruption? case of British The curious Tobacco Balwicki, L, Stoklosa, M, Balwicka-Szczyrba, M, Tomczak, W, 2015, Tobacco Ballard, J, 2004, The politics oftobaccocontrol in Australia: template?, International AMA and ACOSH, Annual Dirty Ashtray Awards 2000to2010, https://ama.com.au Aligica, PD, Tarko, V, 2014,References Crony capitalism: Rentseeking, institutionsandideology, for evidence-based policymakingare formidable. torelyingofapurely onthesingle-mindedpursuit rationalbasis is thatthe barriers andmindsofpoliticans.exciting ideasable toengagethehearts Tasmanian experience unique sociocultural position as conservative white males with strong ties to industry. a real senseofthelevel thattobaccosmokingposestosocietyduetheir ofrisk governments to challenge the tight financial hegemony of Treasury; and a lackof to considerhypothecation oftobaccotaxes, ofsuccessive coupledwithafailure 2002, EnvironmentalPolitics 12, 1, 233–40 of Australia work/21057636?selectedversion=NBD11073818 House of Assembly andothermatters, Government Printer, http://trove.nla.gov.au/ policy makers, NationalCancerInstitute 103, 306–16 oncancerpreventionCommunicating evidence-based information tostate-level for tobaccocontrol: The 1987 Victorian Tobacco Act, Addiction 104,10, 1623–29 www.examiner.com.au/story/1124208/tobacco-donation-plan-defeated over nationalventilation standards, Tobacco Control11, 4, 315–28 in institutional corruption Tasmania, Australian ofPoliticalScience45, Journal 2, 209–25 Health 3, 6–15 based tobaccocontrol policy: A Tasmanian case study, ofPublic Universal Journal Association 58, 2 and a Tasmanian Government, andproceedings, papers Tasmanian Research Historical early/2015/09/28/tobaccocontrol-2015-052582.short practices,industry Tobacco, Control interference withtobaccocontrolindustry policiesinPoland: Legalaspectsand Cambridge, MA: Harvard University Press, 89–113 in Feldman, EA, Bayer, R(eds), Unfiltered: conflicts over tobaccopolicyandpublic health, Kyklos 67, 2, 156-76 Future advocates fortobaccocontrol policiesshouldperhapsalsolooktonovel and 195, 5, 255 Report oftheRoyalReport amemberofthe Commissionintoanattempttobribe Kathryn Barnsley etal

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