Delivering Policy Reform Anchoring Significant Reforms in Turbulent Times Delivering Policy Reform Anchoring Significant Reforms in Turbulent Times Edited by Evert A. Lindquist, Sam Vincent & John Wanna Published by ANU E Press The Australian National University Canberra ACT 0200, Australia Email: [email protected] This title is also available online at: http://epress.anu.edu.au National Library of Australia Cataloguing-in-Publication entry Author: Lindquist, Evert A. Title: Delivering policy reform [electronic resource] : anchoring significant reforms in turbulent times / Evert A. Lindquist, Sam Vincent, John Wanna. ISBN: 9781921862182 (pbk.) 9781921862199 (eBook) Series: ANZSOG series. Notes: Includes bibliographical references. Subjects: Policy sciences. Public administration. Other Authors/Contributors: Vincent, Sam. Wanna, John. Dewey Number: 320.6 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photocopying or otherwise, without the prior permission of the publisher. Cover design by ANU E Press Printed by Griffin Press Funding for this monograph series has been provided by the Australia and New Zealand School of Government Research Program. This edition © 2011 ANU E Press John Wanna, Series Editor Professor John Wanna holds the Sir John Bunting Chair of Public Administration at the Research School of Social Sciences at The Australian National University and is director of research for the Australia and New Zealand School of Government (ANZSOG). He is also Professor of Politics and Public Policy at Griffith University, and formerly principal researcher with the Centre for Australian Public Sector Management and the Key Centre for Ethics, Law, Justice and Governance at Griffith University. Professor Wanna has produced about 40 books including two national textbooks on policy and public management. He has produced a number of research-based studies on public management including: The Reality of Budget Reform in the OECD (2010); Comparing Westminster (2009); Westminster Legacies: Democracy and responsible government in Asia and the Pacific (2005); Yes Premier (2005); Controlling Public Expenditure (2003); From Accounting to Accountability (2001); and Managing Public Expenditure (2000). In 2009 Professor Wanna completed a study of service delivery in the Australian Government entitled Policy in Action: The challenge of service delivery. His most recent book, produced with Tracey Arklay, is The Ayes Have It: The history of the Queensland Parliament 1957–89 (2010), a major legislative study of historical significance. Professor Wanna has held many Australian Research Council grants over the years, but also conducts research independently and through ANZSOG. His research interests include Australian and comparative politics, public expenditure and budgeting, and government–business relations. His political commentary has appeared in The Australian, The Courier-Mail and The Canberra Times and on Sky News as well as ABC Radio and TV. The ANZSOG ANU E Press, which he edits, is now approaching 30 titles. See <http://epress. anu.edu.au/titles/anzsog.html> Contents Foreword . ix Contributors . xiii Part I. The reform challenge 1 . Delivering policy reform: making it happen, making it stick . 1 Evert A. Lindquist and John Wanna 2 . ‘Don’t waste the crisis’: the agenda for public-policy reforms in a turbulent world . 13 Aart de Geus 3 . Making reforms sustainable: lessons from the American policy reform experience . 27 Eric M. Patashnik Part II. National reform initiatives 4 . How to design and deliver reform that makes a real difference: what recent history has taught us as a nation . 43 Paul Kelly 5 . The ‘new responsibility model’ for New Zealand public-sector CEOs . 53 The Hon. Bill English 6 . A portent of things to come: lessons from a reforming minister . 65 The Hon. Lindsay Tanner 7 . The agenda for achieving a world-class public sector: making reforms that matter in the face of challenges . 75 Stephen Sedgwick 8 . Collaborative reform: lessons from the COAG Reform Council, 2008–2010 . 91 Mary Ann O’Loughlin 9 . Entrenching ‘Rogernomics’ in New Zealand: political and academic perspectives . 99 Jonathan Boston and Sir Roger Douglas 10 . Institutional renewal and reform: the challenge of the Commonwealth of Nations . 109 The Hon. Michael Kirby Part III. Tackling and anchoring reform initiatives 11 . Tackling cartels: lessons for making and entrenching reform . 123 William E. Kovacic 12 . The overhaul of Australian immigration practices, 2005–2010 . 131 Andrew Metcalfe 13 . Getting integrity reforms adopted internationally . 145 Jeremy Pope 14 . Sustaining water reform in Australia . 167 Ken Matthews 15 . Up in smoke: combating tobacco through legislative reform . 181 Rob Moodie 16 . Improving road safety: perspectives from Victoria’s Transport Accident Commission . 193 Janet Dore 17 . Epilogue: rules for reformers . 201 Paul ’t Hart Foreword This volume of essays had its origins in our thinking about the global financial crisis—when, in 2008, the major economic shock emerging out of the mortgage and financial sector in the United States swept around the world with disastrous consequences. High-risk sub-prime lending in the United States might have precipitated the crisis, but its full impacts affected almost every nation and every industry sector as banks collapsed, credit dried up, share markets and property markets fell spectacularly and government budgets took a big hit in deficit and debt levels. The crisis suddenly and unexpectedly posed a major threat to international and domestic policy settings. In Australia, we tended to see the crisis as a consequence of poorly regulated and badly managed markets that went spectacularly out of control. Professor Joseph Stiglitz, while recently in Australia, said that the phrase the ‘global financial crisis’ was a peculiarly Australian term invented to label the credit crunch as an exogenous shock. Indeed, we all know that the term was very carefully chosen by the Rudd Government as a way of describing the impact of the economic crisis on Australia, hinting at the fact that its origins, in their view, had nothing to do with anything happening in Australia. It is almost a unique label that we use in this part of the world to convey the impression we caught the infection from elsewhere. The global financial crisis, of course, gave rise to immediate policy challenges about how we anticipated the looming problems, how we chose to react to them, and what we actually did to alleviate the worst aspects of the crisis and in what order we did them. Now, as we start to come out of that global crisis, and with fairly good performance in this part of the world, we ask ourselves how appropriate the interventions were, how well they appear to have worked, and when we can expect to be ‘through the crisis’. But once the impact of the present crisis fades—if it does, as we hope—governments have to again think about their policy futures. How do we conceive of longer-term policy resilience; how can we enhance our capacities; how should we protect and reinvigorate our regulatory and assurance systems; how should we pursue strategically informed interventions; and which proactive programs are necessary to deal with future social, economic and environmental challenges? Thus, this volume concerns the conception and development of new policy regimes, including the creation of new policy responses to longstanding or emergent dilemmas. We are interested in exploring future needs and challenges and how we might better address them, asking what are the right policies to adopt to address current and future challenges? But in rising to meet these challenges, it is very important that we take a complete view—a ‘whole-of-policy’ approach; ix Delivering Policy Reform a longitudinal analysis of an entire policy trajectory or entire policy life cycle. This in turn involves working out not only how to bring about a particular reform, but also how to make it work, how to make it stick and how to anticipate its adaptation. Reform must be durable, dependable and defendable. Contributors to this collection assess policy from various vantage points: the processes of formulation and development, the administrative dimensions of implementation and delivery, the issues associated with evaluation and feedback. They also explore the types of problems that emerge within policy fields and program activities. These include not only some of the political obstacles that arise after reforms have been adopted, but also the obstacles that can actually stop policy from working, or sometimes, to be more positive, the political forces that build up and support that reform and its continuation, and perhaps trigger further reforms. They are generally asking what is happening with (and to) various policy reform scenarios and their specific program components? How do we assess what works effectively, what should be preserved or enhanced, what should be reversed or redesigned? The dimensions they explore are crucially concerned with the relationship between the current contours of the policy choices (the objective or intent, the design, the instruments and implementation and outcomes) and the problems they are meant to address. So, in this volume, we are analysing not just how to get a reform through Parliament or through the Government (the enactment phase), but also the whole life of the reform and the challenges that arise