Daniel Hanna

Total Page:16

File Type:pdf, Size:1020Kb

Daniel Hanna 1 Publicans, Presbyterians and Policy: An institutionalist analysis of alcohol control policies in Australia and New Zealand 1900-2010 by Daniel Joseph Hanna – BA (Hons.) ANU School of Social Sciences Submitted in fulfilment of the requirements for the degree of Doctor of Philosophy in Political Science University of Tasmania, February 2016 2 Abstract Alcohol has been heavily regulated around the world for many centuries. Today there are at least as many approaches to alcohol control policies as there are nation states. Despite this policy variation, little research has focused on the forces that have shaped alcohol regulation. Australia and New Zealand had divergent approaches to alcohol regulation despite geographic, cultural, and demographic similarities. Through their histories, alcohol regulations were also heavily debated issues of public importance. Despite this, there has been little or no comparative research which seeks to systematically describe and explain alcohol control policies in the antipodes. This thesis seeks to address this gap in the scholarly literature by providing a detailed historical account of the trajectory of alcohol control policies in Australia and New Zealand and, using the tools of historical institutionalism, proceeds to present an explanation of policy divergence between the cases. This research focused on the influence of institutions in shaping policy paths and divergence in alcohol controls. The institutions assessed included mid-level political institutions (division of powers, parliamentary structure and practice, constitutional arrangements, and the judiciary) and, consistent with the work of some historical institutionalists and political scientists (such as Lowi), the influence of policy legacies. The approach incorporated a comparative, historical assessment of alcohol control policies (dependent variable) and ideas, actors and institutions (independent variables) over a long time period (1900-2010) to identify divergence and its causes. The research found that in 2010 the alcohol control policies in Australia and New Zealand were less similar than in 1900. This divergence became pronounced after World War One when Australian controls followed a path of incremental change, while New Zealand followed a different path with two brief periods of significant change (World War One and the late 1980s) and rigid stability in between. The divergence was evident in availability controls and other policy tools, including: taxation, drink-driving countermeasures, treatment, advertising controls, and national alcohol policies. Australian alcohol policies were consistent with the incremental change path identified by March and Olsen (1989), whereas New Zealand’s diverged after World War One when they followed a different path of rapid and dramatic change at critical junctures followed by “locked-in” rigid stability; consistent with the path identified by Collier and Collier (1991). 3 The cause of alcohol control policy divergence could be largely explained by institutional variables. Australia and New Zealand had similar cultures, policy actors and exposure to ideas throughout the period. These factors were less significant in shaping the policy divergence. The influential institutions were twofold. The first was divergent political institutions that concentrated power in New Zealand and dispersed it in Australia (especially the federal division of powers), allowing New Zealand governments a greater capacity to intervene in the economy and society and to make significant policy changes. The second was divergent legacies from policy decisions at points in time. For much of the period, policy legacies were more powerful than political institutions in driving divergence. This was demonstrated after New Zealand introduced the General Licensing Poll from 1918, which shaped rigid stability compared to Australia. This was despite political institutions that provided greater opportunity for New Zealand Governments to implement policy changes, a demonstration of the influence of policy legacies. The industry and temperance movement were effective in influencing alcohol control policies when they worked together through a “Presbyterian and Publican” coalition. They were less effective when they worked alone or were divided. The key determinant of whether actors would work in coalition or competition was the feedback from policy legacies. This research confirmed many findings of historical institutionalists and those of Theodore Lowi regarding the important role of policy legacies. The interplay between political institutions and policy legacies were the major drivers of alcohol control policy divergence from 1900 to 2010. 4 Table of Contents Chapter Page 1 – Introduction 9 2 – Theory and Method 17 3 – Alcohol policy context 62 4 – Alcohol policy in Australia 98 5 – Explaining the trajectory of alcohol policy in Australia 132 6 – Alcohol policy in New Zealand 169 7 – Explaining the trajectory of alcohol policy in New Zealand 198 8 – Comparative evaluation and discussion 240 9 – Conclusion 314 Appendix 1 – Local Option and related matters in each Australian 322 State Appendix 2 – Availability Controls in Australia 335 Bibliography 339 5 List of Tables and Charts Table/Chart Page Table 1 – Liquor Referenda in Australian States 1900-2010 146 Table 2 – Liquor Royal Commissions in Australian States 1900- 148 2010 Table 3 – Policy divergence: Australia and New Zealand (alcohol 243 taxation) Table 4 – Policy divergence: Australia and New Zealand 246 (availability controls) Table 5 – Policy divergence: Australia and New Zealand (drink- 256 driving) Table 6 – Policy divergence: Australia and New Zealand (alcohol 259 treatment) Table 7 – Policy divergence: Australia and New Zealand 260 (advertising controls) Table 8 – Policy divergence: Australia and New Zealand (national 263 alcohol policy) Table 9 – Explanations of the factors that mediated key points of 266 divergence in Australian and New Zealand alcohol controls 1900- 2010 Chart 1 – Alcohol Control Policy in Australia and New Zealand 304 1900-2010 6 List of Acronyms AA Alcoholics Anonymous AAB Australian Association of Brewers ABV alcohol by volume – strength of an alcoholic beverage, expressed as a percentage AFADD Australian Foundation for Alcohol and Drug Dependence AHA Australian Hotels Association ALAC Alcoholic Liquor Advisory Council, later the Alcohol Advisory Council ALSA Australian Liquor Stores Association AMA Australian Medical Association AMSAD Australian Medical Society on Alcohol and Drugs ASEAN Association of South East Asian Nations BAC blood alcohol concentration BRIC Brazil, Russia, India and China BYO bring your own (alcohol), a permit for which allows diners to bring their own alcohol to consume on the premises CPI consumer price index DALY disability adjusted life years DLA District Licensing Agency DSICA Distilled Spirits Industry Council of Australia EU European Union FPP First Past the Post GATT General Agreement on Tariffs and Trade GDP gross domestic product GST Goods and Services Tax HI historical institutionalism ICAP International Center for Alcohol Policies – an industry think tank IMF International Monetary Fund LCC Licensing Control Commission LLA Liquor Licensing Authority LVA Licensed Victuallers Association LWA Living with Alcohol program MCDS Ministerial Council on Drug Strategy 7 MLDA minimum legal drinking age MMP mixed member proportional representation MP Member of Parliament NABIC National Alcoholic Beverages Industry Council NAS National Alcohol Strategy NCADA National Campaign against Drug Abuse NCP National Competition Policy NDARC National Drug and Alcohol Research Centre NDP National Drug Policy NDRI National Drug Research Institute NDS National Drug Strategy NHMRC National Health and Medical Research Council NSA National Society on Alcoholism NSAD New Zealand Society on Alcohol and Drug Dependence NSW New South Wales NT Northern Territory NZ New Zealand OECD Organisation for Economic Co-operation and Development QLD Queensland RACP Royal Australasian College of Physicians RBT random breath testing RTD ready to drink – mixes of alcoholic and non-alcoholic beverages SA South Australia UK United Kingdom VAADA Victorian Alcohol and Drug Association WA Western Australia WCTU Womens Christian Temperance Union WET Wine Equalisation Tax WFA Winemakers Federation of Australia WHO World Health Organisation 8 Declaration of Originality and Authority of Access Declaration of Originality This thesis contains no material which has been accepted for a degree or diploma by the University or any other institution, except by way of background information and duly acknowledged in the thesis, and to the best of my knowledge and belief no material previously published or written by another person except where due acknowledgment is made in the text of the thesis, nor does the thesis contain any material that infringes copyright. 9th February 2016 ………………………… ………………… Daniel Joseph Hanna Date Authority of Access This thesis may be made available for loan and limited copying and communication in accordance with the Copyright Act 1968. 9th February 2016 ………………………… …………….. Daniel Joseph Hanna Date 9 Chapter 1 Introduction In December 1918, in the shadow of the Great War, New Zealand’s parliamentarians gathered in Wellington to vote on an important piece of legislation. The Bill was to introduce a national referendum on Prohibition or State Control of the liquor trade in conjunction with each General Election, known as the General Licensing
Recommended publications
  • Register of Pecuniary and Other Specified Interests of Members of Parliament: Summary of Annual Returns As at 31 January 2015
    J. 7 Register of Pecuniary and Other Specified Interests of Members of Parliament: Summary of annual returns as at 31 January 2015 Fifty-first Parliament Presented to the House of Representatives pursuant to Appendix B of the Standing Orders of the House of Representatives REGISTER OF PECUNIARY AND OTHER SPECIFIED INTERESTS OF MEMBERS OF PARLIAMENT: SUMMARY OF ANNUAL RETURNS J. 7 2 REGISTER OF PECUNIARY AND OTHER SPECIFIED INTERESTS OF MEMBERS OF PARLIAMENT: SUMMARY OF ANNUAL RETURNS J. 7 MISTER SPEAKER I have the honour to provide to you, pursuant to clause 18(3) of Appendix B of the Standing Orders of the House of Representatives, a copy of the summary booklet containing a fair and accurate description of the information contained in the Register of Pecuniary and Other Specified Interests of Members of Parliament, as at 31 January 2015. Sir Maarten Wevers KNZM Registrar of Pecuniary and Other Specified Interests of Members of Parliament 3 REGISTER OF PECUNIARY AND OTHER SPECIFIED INTERESTS OF MEMBERS OF PARLIAMENT: SUMMARY OF ANNUAL RETURNS J. 7 Introduction Since 2006, members of Parliament have been required to register a range of pecuniary and certain specified personal interests as set out in clauses 5 to 8 of Appendix B of the Standing Orders of the House of Representatives. The interests that are required to be registered are listed below. Items 1 to 9 provide a ‘snapshot’ or stock of pecuniary and specified interests of members as at 31 January 2015. Items 10 to 13 identify a flow of members’ interests for the twelve month period beginning at the date of the previous annual return.
    [Show full text]
  • Download Download
    Volume 11 – Issue 2 – May 2015 Global Development in the Twenty-first Century Predictive Analytics for Policy and Practice: Ross Garnaut 3 reflections from the criminal justice system with commentaries by Tim Hughes 37 Gary Hawke 15 Decentralisation: does the New Zealand Economic Policy, External and Internal, local government system measure up? and Public Policy Mike Reid 45 Grant M. Scobie 20 Growing Community Housing: challenges Commentary on ‘Global Development for government policy and community providers in the Twenty-first Century’ Richard Norman and Bernard Teahan 54 Geoff Bertram 23 Protecting the Rights of Future Generations: Garnaut versus Piketty: are constitutional mechanisms an answer? inequality in the coming century Jonathan Boston and Thomas Stuart 60 The Inequality Debate: the neglected role Governance of National Parks at the of residential sorting Crossroads: New Zealand’s silent reform Philip S. Morrison 72 Valentina Dinica 26 Editorial Note This issue of Policy Quarterly leads with a stimulating Second, despite the available scientific evidence, contribution by the distinguished Australian economist, political resistance to concerted mitigation efforts Professor Ross Garnaut. Professor Garnaut was remains strong in some countries. In the US, many Volume 11 – Issue 2 – May 2015 the 2015 Sir Frank Holmes Fellow in Public Policy, influential Republicans continue to live in denial, with Policy Quarterly (PQ) is targeted at readers hosted by the Institute for Governance and Policy the Chair of the Senate’s Committee on Environment in the public sector, including politicians and Studies in the School of Government at Victoria and Public Works, Jim Inhofe, maintaining that their staff, public servants and a wide variety of University of Wellington.
    [Show full text]
  • Investing in New Zealand — Is the Grass Greener?
    Property | international opportunities Investing in New Zealand — is the grass greener? 40 Property | international opportunities Investing in New Zealand — is the grass greener? The advantages of investing in New Zealand are clear: no stamp duty, strong rental demand and enormous potential for capital growth. But how easy is it to buy property in New Zealand? And is it worth the hassle of managing a foreign property? ew Zealand offers an attractive 1996). According to the New Zealand lifestyle, with clean air, close- Property Investors Federation, Nknit communities and thriving around 170,000 investors own 400,000 metropolitan centres set against a of these properties. backdrop of sprawling landscapes. Unemployment rates are steady With a growing population and at a low 3.8%, which, together with increasing rental demand, the country strong domestic demand and foreign is attracting Australian investors in investment, has been underpinning a droves; in regional areas, at least, strong economy. Australians are proving to be the The Reserve Bank of New Zealand is dominant force in the property market. increasing cash rates to try and dampen “We had a number of Australian growth – most recently, and largely investors, when the market was down unexpectedly, in June this year – but it six or seven months ago, coming into has had little effect so far. the market and buying in our provincial “I think it’s too early to see the effect towns,” says Murray Cleland, president of the interest rate rises we’ve had of the Real Estate Institute of New this year,” Cleland says. “The housing Zealand (REINZ).
    [Show full text]
  • Draft PICT Paper
    The Development of Learning Regions in New Zealand: an ICT perspective By Janet Mary Toland A thesis submitted to the Victoria University of Wellington in fulfilment of the requirements for the degree of Doctor of Philosophy in Information Systems Victoria University of Wellington 2010 ABSTRACT The term “Learning Region” is used to identify a region which is innovative, economically successful, and inhabited by citizens who are active members of their local community. Such regions are characterised by strong links between local businesses, community groups, and education providers. Within a regional area interaction and exchange of information is easier and cheaper than in a national or international context. The success of an individual organisation is directly related to the quality of information available locally. Information technology can be an important tool in improving the flow of knowledge between the stakeholders within a region. The study examines the role that information and communication technologies (ICTs) play in the development of learning regions in New Zealand, and how they can be used to improve the quality of information flows both within the region itself, and between the region and the outside world. In particular the research considers what contribution ICTs make to organisational learning and innovation. Historical methods are used to build up a picture of the significant changes that have taken place within two contrasting regions of New Zealand between 1985 and 2005. The two selected regions are Southland and Wellington. Data was collected by searching regional newspapers, and conducting interviews with key figures in each region. A “6- I”framework of the “ideal” features of a learning region was developed from the literature review and this was used to analyse the data.
    [Show full text]