From Pressure to Participation: The Role of Queensland Shelter. Maree Janine Stanley BA, Cert. Ed, MGPP A thesis submitted for the degree of Doctor of Philosophy at The University of Queensland in 2015 School of Historical & Philosophical Inquiry Abstract Political support for the inclusion of social policy advocacy groups in the development of public policy is underpinned by a broad belief in the right of citizens to participate in or at least contribute to government decision making. Governments and state agencies consult widely on social issues when they see accountability and transparency as politically attractive, a form of both useful advice and risk management. While scholars have theorised on the benefits of non-state participation, empirical research on the role of policy advocacy groups in the development of Australian public policy is limited. This thesis examines the role of Queensland Shelter Inc., a state based social housing policy peak, in the development of Queensland social housing policy (1987-2012). While consultation processes are open and inclusive of a wide range of stakeholders, participation remains restricted to a select few. Why are some interest groups able to directly participate in the development of public policy while others are only consulted or even ignored? The influence of Queensland Shelter over housing policy has fluctuated over its twenty-five year history. Three factors were examined in relation to this oscillation: the organisational capacity of Queensland Shelter, the willingness of the housing ministry to engage and the broader political context. While the main focus of the study is to assess and analyse shifts in the relationship between Queensland Shelter and the state housing ministry, attention is also given to the connections between Queensland Shelter and other stakeholders, including the bureaucracy, other policy advocacy groups and the Australian federal government. These connections were found to be important factors in the ability to develop close working relationships with decision makers. Shelter’s changing role and its capacity to participate in the development of social housing policy are examined through documents and semi-structured interviews with former politicians, senior public servants, Shelter staff and board members, and other key players within the Queensland social housing sector. Throughout the period covered in this research, the Queensland housing ministry remained in a position of authority, at times enabling Queensland Shelter to participate and at other times shutting them out. While the capacity of Queensland Shelter to provide policy advice has expanded over the past twenty- five years, the willingness of the state housing ministry to engage with this organisation continues to wax and wane, a product of both the minister at the time and the overall approach of the political party in power. ii Declaration by author This thesis is composed of my original work, and contains no material previously published or written by another person except where due reference has been made in the text. I have clearly stated the contribution by others to jointly-authored works that I have included in my thesis. I have clearly stated the contribution of others to my thesis as a whole, including statistical assistance, survey design, data analysis, significant technical procedures, professional editorial advice, and any other original research work used or reported in my thesis. The content of my thesis is the result of work I have carried out since the commencement of my research higher degree candidature and does not include a substantial part of work that has been submitted to qualify for the award of any other degree or diploma in any university or other tertiary institution. I have clearly stated which parts of my thesis, if any, have been submitted to qualify for another award. I acknowledge that an electronic copy of my thesis must be lodged with the University Library and, subject to the policy and procedures of The University of Queensland, the thesis be made available for research and study in accordance with the Copyright Act 1968 unless a period of embargo has been approved by the Dean of the Graduate School. I acknowledge that copyright of all material contained in my thesis resides with the copyright holder(s) of that material. Where appropriate I have obtained copyright permission from the copyright holder to reproduce material in this thesis. iii Publications during candidature Peer-reviewed articles Stanley, Maree. “Jacaranda.” Queensland Historical Atlas http://www.qhatlas.com.au/jacaranda, 2013. Miller, Danielle and Maree Stanley. “Interviewing the interviewers: difference, knowledge sharing, and cohesion within the Queensland speaks interviewing team.” The Oral History Review 39, no. 1 (2012): 61-82. Conference papers Stanley, Maree. “The phase out of sheep mulesing by 2010: metagovernance by a non- state actor?” Paper presented at ‘Defence of politics’: Political Studies Association annual international conference. Belfast, 3-5 April 2012. Miller, Danielle and Maree Stanley. “Interviewing the interviewers: A study of the Queensland Speaks oral history project.” Paper presented at Queensland Speaks Symposium. St. Lucia, 3 November 2011. Other publications Stanley, Maree. “Have I heard you correctly? Reflecting on strengthening commercial skill.” Arts for all Queenslanders strategy blog. Queensland Government. www.arts.qld.gov.au/blog/index.php/have-i-heard-you-correctly-reflecting-on- strengthening-commercial-skill/, 30 July 2014. Stanley, Maree. “Push or Pull?” Arts for all Queenslanders strategy blog. Queensland Government. www.arts.qld.gov.au/blog/index.php/push-or-pull/, 5 June 2014. Stanley, Maree. “Living solo in Queensland”. Shelter quarterly, Brisbane: Queensland Shelter, 2012. Stanley, Maree. “Expo '88 and the origins of the Rental Bond Board.” Queensland Shelter 2012 Yearbook. Brisbane: Queensland Shelter, 2012. iv Stanley, Maree. “All aboard: the value in inclusive planning in Queensland.” Shelter Quarterly. Brisbane: Queensland Shelter, 2012. Stanley, Maree. “Peaks and influence.” The Queensland Shelter 2011 Year Book. Brisbane: Queensland Shelter, 2011. v Publications included in this thesis No publications included. Contributions by others to the thesis No contributions by others. Statement of parts of the thesis submitted to qualify for the award of another degree None. vi Acknowledgements I am extremely grateful for the generosity of all those who I interviewed: Queensland Shelter members - past and present, members of the social housing sector, Department of Housing staff and former housing ministers, who made time to speak with me and allowed me to record their reflections. Without their contributions this research would not have been possible. I have drawn my own conclusions from their testimony and other documentation. Any mistakes made are my own. I sincerely thank my supervisors, Professor Peter Spearritt and Professor Andrew Hindmoor for their guidance, support, wisdom and unfailing enthusiasm during my candidature. I would also like to thank colleagues at the Centre for the Government of Queensland, in particular Dr Marion Stell, Dr Danielle Miller and Dr Chris Salisbury, for their interest, advice and engagement in this research. It has been a unique opportunity to study, think and write for a prolonged period, for which I am extremely grateful. I thank the Centre for the Government of Queensland for financial support in the form of an APAI scholarship. I wish to also acknowledge the support, love and care received throughout from Craig, Lauren and Lachlan. I hope that the four of us can travel together very soon. vii Keywords interest group politics, interest group typology, Queensland politics, Queensland Shelter, social housing, oral history, Queensland government, not-for-profit sector, non-state participation Australian and New Zealand Standard Research Classifications (ANZSRC) ANZSRC code: 210303 Australian History (excl. Aboriginal and Torres Strait Islander History) 50% ANZSRC code: 160510 Public Policy, 25% ANZSRC code: 160512 Social Policy 25% Fields of Research (FoR) Classification FoR code: 1605, Policy and Administration 50% FoR code: 2103, Historical Studies, 50% viii Table of Contents List of Abbreviations .......................................................................................................... xii Introduction .......................................................................................................................... 1 Chapter One: Persuading government: pressure to advocacy ......................................... 13 Chapter Two: Insider typology: why insider status remains a privileged position .............. 33 Chapter Three: Study of Shelter: voluntary outfit to policy peak ....................................... 51 Chapter Four: Casting a shadow of disadvantage across the sunshine state................... 89 Chapter Five: A brick wall: Shelter on the outside (1987-89) .......................................... 101 Chapter Six: An open door: Shelter and the Goss Government (1989-96) ..................... 111 Chapter Seven: On the periphery (1996-98) ................................................................... 123 Chapter Eight: Shelter on the inside (1998-07) ............................................................... 143 Chapter Nine: The voice of reason: from inside to outside (2007-12) ............................. 171 Conclusion ......................................................................................................................