080607 HSG205 major assignment

This essay shall utilize analysis and examples drawn from the Bushfire Reconstruction and Recovery Authority (VBRRA) case study to illustrate the nature of contemporary Australian governance. The dominant role of government within this processes shall be discussed alongside the relationships it maintained with associated partners, networks, private firms, communities and citizens. The benefits and potential challenges presented to government by these relationships shall then be explored, followed by discussion regarding the relationships between government departments in the recovery process and the effects that good management coupled with the urgency generated by the crisis had upon the program. Some criticism of VBRRA shall then follow before the paper concludes that VBRRA effectively metagoverned this tragedy and illustrated governments role in contemporary Australian governance.

Black saturday was the most destructive bushfire in Australian history. The blaze claimed 173 lives, injured 500 and destroyed more than 2100 homes, leaving approximately 7000 Victorians homeless1. The destruction caused by this tragedy required the coordination of gargantuan aid and rebuilding projects , the largest such Australian effort undertaken since Cyclone Tracy decimated Darwin in 19742. However, the nature of government and governance have significantly transformed since this period, generated questions regarding governments ability to successfully coordinate such a collaborative undertaking.

Government traditionally maintained a monopoly on the governance process and administered through vertical implementation of unitary, hierarchical command chains3.

1 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (A): the challenge (Australia: The case
program,2011) 1

2 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (A): the challenge (Australia: The case
program,2011) 2

3Stephen Page

What's New about the New Public Management? Administrative Change in the Human Services In Public Administra-

tion Review 65:6 2005 p722

080607 HSG205 major assignment

During this era government maintained substantial stocks of infrastructure, personal and private business investments and ownerships4. This placed considerable constraint upon public resources and influenced the transformation towards contemporary governance5 Since the seventies, Australian government has been increasingly hollowed out by reforms influenced by New Public Management principles6. Government infrastructure was privatized and many traditional governance roles were outsources to external bodies in a bid to increase effectiveness and efficiency7. Additionally, governance has became more open to community consultation in an attempt to counter mounting dissatisfaction with a process increasingly seen as out of touch.8

Despite having shed or shared many of its traditional powers with other actors in the governance process, government remains the central figure in these arrangements due to a monopoly held on legitimate regulatory processes9. Governments regulatory powers have been extended in the era of new governance to strengthen ability to coordinate and manage a decentralized network of actors10. In addition to carrying out administrative and service provision duties government in this era is responsible for the task of metagovernance. Metagovernance is defined as the practices and procedures that secure governmental influence, command and control within governance regimes.11 Through this process government attempts to steer and control governance outcomes.12 The efforts undertaken by VBRRA illustrate the role of contemporary Australian government in governance. VBRRA
4 Jeremy Moon, The Australian public sector and new governance In Australian journal of public administration 1999, 58:2, p114. 5 Vivien Lowndes and Chris Skeltcher, The dynamics of multi-organizational partnerships: An analysis of changing modes of governance In Public administration 1998 76, p315.

6 Donald F Kettl, The global revolution in public management: Driving themes, missing links In Journal of policy analysis and management 199716:3, p447

7 Jon Pierre and Guy Peters, Conceptual and theoretical perspectives on governance in governance, politics and the state (London:
Macmillan press, 2000) 46

8 Brian W. Head, Community Engagement: Participation on Whose Terms? In Australian Journal of Political Science 2007, 42:3, p443 9 IBID 10IBID 11 Stephen Bell and Andrew Hindmoor, Rethinking Governance: The centrality of the state in modern society (Cambridge uni press,
Port Melbourne 2009) 46

12 Stephen Bell and Andrew Hindmoor, Rethinking Governance: The centrality of the state in modern society (Cambridge uni press,
Port Melbourne 2009) 47

080607 HSG205 major assignment

coordinated the contributions of associations such as the Red Cross13 and private contractors such as Grocon14 with the efforts undertaken by state actors such as the Victorian Department of Human Services (DHS)15and local councils16 into a cohesive and efficient recovery effort which avoided duplication and ensured that governments strategic goals were satisfied alongside the voiced preferences of the community who had been engaged in consultation17. Good governance has been strengthened by the inclusion of additional skills and resources sourced from external bodies. Although these entities has have gained influence upon the governance process, government remains the primary player because it can draw upon substantial resource reserves and regulatory powers.

Successful metagovernance requires coordination of a diverse range of relationships and networks formed across government departments, private and community sectors and consultations with citizens18. Each actor brings their own sources of bargaining power and objectives to the table and attempt to achieve their individual goals through compromise. The creation and preservation of relationships within the governance process by metagovernment is thus dependent upon governments integrity, openness and accountability as stakeholders must trust that decisions are made with consistently and transparency, according to clearly defined protocols19.Maintaining these relationships was a prime responsibility of VBRRA as it needed to ensure cooperation with these parties to achieve its goals.

13 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (A): the challenge (Australia: The case
program,2011) 4

14 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (B): rebuilding after the disaster (Australia: The
case program,2011) 4

15 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (A): the challenge (Australia: The case
program,2011) 6

16 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (A): the challenge (Australia: The case
program,2011) 4

17 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (B): rebuilding after the disaster (Australia: The
case program,2011) 3

18 Gerry Stoker, Governing as governance In International public management journal 2004, 7:3 p490 19 Australian public service commission: Building better governance 2007 < www.ag.gov.au/cca> accessed 18/5/2012 p19

080607 HSG205 major assignment

Relationships are initiated by governance with private sector groupings and individuals in order to secure expertise and resources that government lacks because of privatization and staff cut backs20. For example, VBRRA contracted out demolition work to the private firm Grocon21 and procured the services of a BHP executive who introduced the donating management system and supervised clean up and temporary village construction projects22. Government maintains firm control over these arrangements and actively monitors their progress as they are the actor ultimately held accountable for failed implementation23. Additionally, government maintains control by providing overall coordination24. Sorting through the inundation of offers from talented and capable individuals and organizations volunteering services to VBRRA became a job in itself.

Associations are formed with not for profit organizations and NGOS in a bid to obtain expertise whilst simultaneously cutting costs, reduce opposition to policies and make government appear less intrusive25. Whilst metagovernment must sympathize with the demands of associated partners in order to secure their compliance, government still maintains control of these networks through hierarchical control and bestowment of funding26. Relationships formed by VBRRA with groups such as the Red Cross and other charitable organizations granted governance extra sources of donated goods and volunteer workers experi-

20 Mark Bevir and David Richards, Decentring policy networks: A theoretical agenda In Public administration 2009 87:1 p3 21 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (B): rebuilding after the disaster (Australia: The
case program,2011) 1

22 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (B): rebuilding after the disaster (Australia: The
case program,2011) 2

23 Australian public service commission: Building better governance 2007 < www.ag.gov.au/cca> accessed 18/5/2012 p19 24 David Marsh, Network governance and public participation in policy making: Federal community cabinets in Australia In the journal of public
administration, 2012, 71:1 p15

25 Jon Pierre and Guy Peters, Conceptual and theoretical perspectives on governance in governance, politics and the state (London:
Macmillan press, 2000) 36

26 David Marsh, Network governance and public participation in policy making: Federal community cabinets in Australia In the journal of public
administration, 2012, 71:1 p16

080607 HSG205 major assignment

enced in working with traumatized victims27. BRRA metagoverned these arrangements to reduce wastage and coordinate the efforts with agency goals28.

Community engagement is initiated by governance in order to incorporate the wishes, opinions and knowledge of relevant communities in the policy formulation and implementation processes29. This may result in more effective policies and greater community satisfaction30. However, governance may ignore advice gained from such consultation due to conflicts with goals or opinions held by governance, despite the resultant decline in popularity31. VBRRA engaged with over 4000 residents in order to develop recovery plans in touch with the residents of the ravaged communities32. However VBRRA did not incorporate the views of each individual into its plans and maintained control of the consultancy process by stipulating guidelines and directions33.

Collaboration with communities and networks provide governance with a range of possibilities and challenges. By including these actors into the governance process, governance capabilities are often increased, as mentioned in the preceding paragraphs. However, gaining the benefits of these governance methods subject governance to a range of particular problems. Outsourcing is risky as as it exposes governance to potential implementation failures by which are felt by government as it is accountable34. In order to gain the cooperation of other parties governance may have to concede some goals. Commentators
27 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (A): the challenge (Australia: The case
program,2011) 4

28 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (B): rebuilding after the disaster (Australia: The
case program,2011) 4

29 Robart Lovan, Michael Murray and Ron Shaffer, Participatory governance planning, conflict mediation and public decision making in
civil society (England: Ashgate publishing 2004) 87

30 IBID 31 Jon Pierre and Guy Peters, Conceptual and theoretical perspectives on governance in governance, politics and the state (London:
Macmillan press, 2000) 32

32 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (B): rebuilding after the disaster (Australia: The
case program,2011) 3

33 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (B): rebuilding after the disaster (Australia: The
case program,2011) 5

34 Jeremy Moon, The Australian public sector and new governance In Australian journal of public administration 1999, 58:2, p.116.

080607 HSG205 major assignment

have argued that the overall power of government to steer is diminished as it is no longer operates in a relative vacuum but exists as one party amongst many networked actors35. These actors may compete rather than cooperative in order to obtain funding and have the potential to avoid hierarchical control in order to pursue their individual goals36. Even when parties cooperate, some question governments ability to coordinate these efforts into effective outcomes37. As well as being difficult, collaboration is a costly and time consuming process38.

Whilst consultation is credited with effective outcomes, it too presents potential challenges. Consultation is also difficult, costly and time consuming and exposes governance to ideas which may conflict with its own39. Views expressed in such processes may not be representative of the broader community as typically only certain groups tend to coordinate and vocalize their efforts and opinions40. Community engagement processes may be co opted or captured to suit the preferences of particular interests41. In addition to these dangers, it is argued that the process is biased towards the state and is therefore unable to produce effective outcomes in touch with community wishes42.

Despite these challenges, VBRRA was able to successfully collaborate with communities and associated networks. Aid networks cooperated with plans detailed by VBRRA and contributed positively to the recovery process without any major mishap, reducing the strain on government. The dire nature of such wicked circumstances may have contrib-

35 Mark Bevir and David Richards, Decentring policy networks: A theoretical agenda In Public administration 2009 87:1 p6 36 Gerry Stoker, Governing as governance In International public management journal 2004, 7:3 p441 37Mark Bevir and David Richards, Decentring policy networks: A theoretical agenda In Public administration 2009 87:1 p6 38 Scott E Robinson, A Decade of Treating Networks Seriously in Policy Studies Journal 2006, 34:4, p593. 39 Scott E Robinson, A Decade of Treating Networks Seriously in Policy Studies Journal 2006, 34:4, p594. 40 Allan Fenna, Explaining public policy: theoretical perspectives (Addison Wesley Longman, Melbourne 1998) 84 41 Brian W. Head, Community Engagement: Participation on Whose Terms? In Australian Journal of Political Science 2007, 42:3
p553

42 IBID

080607 HSG205 major assignment

uted to this compliance43. The views of communities were successfully incorporated into rebuilding plans which increased community satisfaction, although some individuals became disgruntled during the process due to perceived sluggish implementation44. This is likely due to unrealistic expectations, however.

Negative expectations regarding the typical chances of successful interdepartmental cooperation without conflict across different government bodies were refuted by the performance of VBRRA. Although tensions surfaced during interactions between VBRRA and DHS no major conflict occurred and smooth cooperation between these bodies was displayed during collaborative efforts to construct and maintain temporary housing45, mimicking the successful collaborations VBRRA had with other state agencies such as local councils and the military46. These collaborations resulted in successful outcomes. The success of these interdepartmental collaborations can largely be attributed to the urgent nature of the Victorian recovery effort and the resultant goodwill thus generated towards VBRRA47. Another critical factor relevant to these successful collaborations was the strong leadership and management exhibited within VBRRA. These efforts were headed by a diverse team of skillful administrators such as Christine Nixon, Jeff Rosewarne and Ben Hubbard, individuals with extensive backgrounds and skills to bring to the table48. The leadership displayed by these individuals helped ensure the vast array of activities were completed in cohesion, according to stipulated guidelines maintained by VBRRA.The recovery framework,VBRRA interim structure and the rebuilding together report all represent
43 Vivien Lowndes and Chris Skeltcher, The dynamics of multi-organizational partnerships: An analysis of changing modes of governance In Public administration 1998 76, p324.

44Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (B): rebuilding after the disaster (Australia: The
case program,2011) 3

45 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (B): rebuilding after the disaster (Australia: The
case program,2011) 2

46 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (A): the challenge (Australia: The case
program,2011) 3

47 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (A): the challenge (Australia: The case
program,2011) 4

48 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (B): rebuilding after the disaster (Australia: The
case program,2011) 1

080607 HSG205 major assignment

effective attempts undertaken by VBRRA to provide clear leadership and management to VBRRA employes, cross department collaborators and associated networks and private parties49. Additionally, managements usage of market based mechanisms in the assistance delivery and temporary shelter programs helped ensure efficient program implementation50. Decisions to fast track regular contracting procedures were risky but paid off in this instance with faster implementation51. Although VBRRA was not imbued with enabling legislation, goodwill towards the agency ensured that management had sufficient power to enforce guidelines and coordinate recovery efforts52.

The recovery effort was overwhelmingly successful and is an example of effective governance outcomes. However, several decisions made during the process require comment. The decision to not grant VBRRA status as a statutory authority was questionable considering the critical nature of its diverse tasks and the amount of external bodies it needed to coordinate and regulate. Additionally, quicker provision of relevant guidelines may have proven useful for concerned parties. For example, occupational health and safety policies were not developed for the first five months of the recovery process. The revolving door of management figures unable to complete the full project tenure represented a poor example of clear, coherent project management. Finally, whilst the community consultation was effectively managed, disillusionment regarding the scope of the recovery process in communities could have been avoided through clearer communication and the provision of additional information. Despite these concerns, the VBRRA case study stands as a rebuttal to arguments that contemporary Australian governance according to NPM principles has been weakened and rendered ineffective due to reduction in governments power. Govern-

49 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (B): rebuilding after the disaster (Australia: The
case program,2011) 7

50 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (B): rebuilding after the disaster (Australia: The
case program,2011) 2

51 Marinella Padula, The Victorian Bushfire Reconstruction and Recovery Authority (B): rebuilding after the disaster (Australia: The
case program,2011)

52 IBID

080607 HSG205 major assignment

ment still possessed sufficient capabilities to rapidly respond to the crisis and was strengthened by collaborations according to new governance strategies. It is unlikely that another other organization or institution possessed the legitimacy, goodwill, management experience and resources to smoothly metagovern such a diverse arrangement actors to such coherent and effective outcomes. The VBRRA case study illustrated a successful example of contemporary Australian governance and the manner in which government must now manage a network of relationships and steer their efforts in order to achieve desirable outcomes. The case study also illustrates how government has maintained its position as primary actor and social welfare provider through possession of legitimate, legislative authority. The effectiveness of new governance strategies such as contracting out government services, wider community consultation and market based mechanisms are also illustrated within the case study. However, the case study scant evidence of the competitive, counterproductive conflicts that often occur during cross departmental and organizational collaborations. The wicked nature of this problem and the cooperation that such urgency entailed was an important contributing factor to the smooth metagovernance of this situation. It is unlikely that government could have coordinated such a diverse range of actors without hiccups under regular circumstances. Nether-less, the work of VBRRA is a testament to how effectiveness of modern governance arrangements given the presence of actors can trust they will receive reciprocal treatment in an environment where motives to compete are lacking.

Referencelist

080607 HSG205 major assignment

10

Australian public service commission: Building better governance 2007 < www.ag.gov.au/cca> accessed 18/5/2012. Bell, Stephen and Hindmoor, Andrew Rethinking Governance: The centrality of the state in modern society Cambridge uni press: Port Melbourne, 2009. Bevir,MarkandRichards,david,Decentringpolicynetworks:AtheoreticalagendaInPublicadmin istration200987:1. Fenna, Allen, Explaining public policy: theoretical perspectives Addison Wesley Longman: Melbourne, 1998.

Head, Brian W, Community Engagement: Participation on Whose Terms? In Australian Journal of Political Science 2007, 42:3. Kettle, Donald F, The global revolution in public management: Driving themes, missing links In Journal of policy analysis and management 1997 16:3 Lovan, Robert, Murray, Michael and Shaffer, Ron, Participatory governance planning, conflict mediation and public decision making in civil society England: Ashgate publishing,2004. Lowndes, Vivien and Skeltcher, Chris, The dynamics of multi-organizational partnerships: An analysis of changing modes of governance In Public administration 1998 76. Marsh,David,Networkgovernanceandpublicparticipationinpolicymaking:Federalcommuni tycabinetsinAustraliaInthejournalofpublicadministration,2012,71:1. Moon, Jeremy, The Australian public sector and new governance In Australian journal of public administration 1999, 58:2 Padula, Marinella, The Victorian Bushfire Reconstruction and Recovery Authority (A): the challenge (Australia: The case program,2011). Padula, Marinella, The Victorian Bushfire Reconstruction and Recovery Authority (B): rebuilding after the disaster (Australia: The case program,2011). Page, Stephen What's New about the New Public Management? Administrative Change in the Human Services In Public Administration Review 65:6 2005. Pierre, John and and Peters,Guy, Conceptual and theoretical perspectives on governance in governance, politics and the state London: Macmillan press, 2000.

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Robinson, Scott E ,A Decade of Treating Networks Seriously in Policy Studies Journal 2006, 34:4. Stoker, Gerry, Governing as governance In International public management journal 2004, 7:3.