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GOVERNMENT INVOLVEMENT IN NEW ZEALAND SPORT – SPORT POLICY, A CAUTIONARY TALE A thesis submitted in partial fulfilment of the requirements for the degree of Master of Sport and Leisure Studies at The University of Waikato by Hugh David Vincent Lawrence The University of Waikato 2008 Abstract Government involvement in New Zealand sport spans over 70 years from provisions of the Physical Welfare Act in 1937 to current provisions of the Sport and Recreation Act 2002. Thousands of volunteers in non-profit organisations continue to underpin New Zealand‟s sport system. It is axiomatic that sport defines part of what it means to be a New Zealander. Governments frequently use the rhetoric of community cohesion, national pride, life skills and public health benefits to justify its involvement. This thesis examines the impact of government intervention on the sport sector, its funding paradigms and the extent of sector engagement in a policy for sport. Through an examination of available government and sport sector records, and the author‟s own experience as a participant in events, the thesis recounts a sequence of five milestones for the New Zealand sport system and views them through a public management system lens. The passing of the Physical Welfare and Recreation Act in 1937, the establishment of a Ministry and Council for Recreation and Sport in 1973, the ministerial Sports Development Inquiry in 1984, the Prime Minister‟s Review of High Performance Sport in 1995 and the Sport, Fitness and Leisure Ministerial Taskforce. Government funding of sport now stands at around $100 million annually from small beginnings of $3,295 in 1945/1946, despite the absence of a comprehensive national policy for sport. By examining the chronology through a wider state sector lens, the thesis opens a window to the practical effect of public policy processes on ii matters of importance to the New Zealand sport sector and its voluntary sector foundations. This thesis also provides a rationale for revitalising the engagement between government and the New Zealand sport sector to meet the expectations of a modern state sector to meaningfully engage citizens and the non-government sector in the formation of policy and planning its implementation. iii Acknowledgements Putting into words, the accumulated thoughts from the experience of over 35 years in the New Zealand sport system required a good deal of impetus. No-one provided more encouragement to get this work started and to keep going when times got tough than Professor Bevan Grant. Your good humour, friendship and sound advice kept me going. Professor Douglas Booth forced me to think and write with greater rigour and discipline, and I thank him sincerely for that. My long-time friend Bob Stothart gave me heart when the task seemed too daunting as well as providing me with the benefit of his vast knowledge of New Zealand sport history and events in the corridors of power in Wellington. Barrie Truman continued to remind me of the importance of writing this material down before events are consigned to the distant and imperfect memories of a few. Others, too many to list, who played a part in events this study recounts, offered advice, recollections and insights along the way: thank you all. To the former Director of the Office for the Community and Voluntary Sector, Brenda Ratcliff, my heartfelt thanks for your support enabling me to undertake this work. The force was always with me. My privileged career in the New Zealand sport sector brought me into contact with many hundreds of athletes (beginner, club and elite), skilled coaches and dedicated sport administrators: mostly volunteers and all professional. You provide the inspiration for this work. I also placed this work in the context of the wider non-profit and public management sectors. Accordingly, I acknowledge the contribution to my thinking of many iv government and non-profit sector colleagues along the way. I would like to acknowledge, in particular, the kind support and commentary on my thinking from Katherine Baxter and Diana Suggate. Last but not least and on a personal level, I thank my wife Deb and daughter Imogen especially for tolerating this task in our family life. To my parents, Ralph and Bronwen, brothers Kingsley and Piers, and my older children Anna-Marie and Morgan, you provided the family spirit and motivation to get the job done. Hugh D V Lawrence Wellington, August 2008 v Table of Contents Abstract ............................................................................................................ ii Acknowledgements ......................................................................................... iv List of Abbreviations ....................................................................................... vii Chapter One - Introduction .............................................................................. 1 Chapter Two – 1937: A Physical Welfare Perspective ................................... 20 Chapter Three - 1973-1983: The Ministry and Council for Recreation and Sport .............................................................................................................. 44 Chapter Four – 1984: „Sport On The Move‟ ................................................... 69 Chapter Five – 1995: The Hillary Commission and the Prime Minister‟s Committee Review of High Performance Sport, „The Winning Way‟ .............. 93 Chapter Six – „Getting Set for an Active Nation‟ .......................................... 119 Chapter Seven - The Future for Sport NGO Participation in Sport Policy Development ................................................................................................ 144 Bibliography ................................................................................................. 153 Appendix A - New Zealand Ministers of Sport ............................................. 171 Appendix B - The New Zealand Council for Recreation and Sport .............. 172 Appendix C - The 2000 Taskforce ............................................................... 174 Appendix D - The Prime Minister‟s Committee to Review High Performance Sport ............................................................................................................ 175 Appendix E - The Restructured New Zealand Sports Foundation ............... 176 Appendix F – The Sport, Fitness and Leisure Ministerial Taskforce ............ 177 List of Tables Table 1: Government funding of Recreation and Sport 1945-1956 ................ 32 Table 2: New Zealand Elite Sport Stakeholders .......................................... 103 vi List of Figures Figure 1: Different forms of engagement with citizens ................................. 105 List of Abbreviations CAS Confederation of Australian Sport DIA Department of Internal Affairs GST Goods and Services Tax KRA Key Result Area LGB Lottery Grants Board NGO Non-Government Organisation NZAHPER New Zealand Association of Health Physical Education and Recreation NZOC New Zealand Olympic Committee NZOCGA New Zealand Olympic and Commonwealth Games Association NZSF New Zealand Sports Foundation OAG Office of the Auditor-General OCHR Office of the Clerk of the House of Representatives OTSP Office of Tourism and Sport PSC Public Service Commission Quango Quasi national (or non-) governmental association SPARC Sport and Recreation New Zealand SSC State Services Commission SOI Statement of Intent SRA Strategic Result Area vii Chapter One - Introduction Partnership suggests a personal relationship in which each partner knows who they are dealing with. The state, however, is impersonal and owes its very existence to assuming burdens and tasks that individuals cannot, and would not, assume for themselves. Caution should be exercised when partnering with the state. (Runciman, 2003, 12) My involvement in the New Zealand recreation and sport sector started in the early 1970s, as a volunteer coach, a volunteer administrator at local and national levels, a paid administrator and an unpaid board member. Over the years, my involvement included national and international activity, much of it still as a volunteer. Governments‟ funding for sport never seemed enough, strategies appeared as an imposition „from the top down‟, and many sport leader colleagues felt left out, without a say in the national sport system which so deeply affected their sports. I was, with others, a trenchant critic of the government‟s involvement in the sport sector. The phrase, “If I had my way…” started many conversations with colleagues in the sport sector about our views on improving government funding of sport. As sport administrators, we rarely examined our understanding of government policy. Our involvement in government-led processes only addressed the