Australia Consults 1997: Views on the Three-Tier System

(Contributed by Mark Drummond of the Abolish the States Collective.)

Australia Consults 1997 was a joint initiative of the National Australia Day Council and the Australian Local Government Association, with the support of Telstra, Principal Sponsor of the National Australia Day Council. Howard Glenn was National Director of this event.

The event is reported in the publication titled:

The Big Conversation – Australian Communities' views on:

• The Centenary of Federation

• Possible changes to the Head of State

• Reconciliation between indigenous and other Australians

(published by the National Australia Day Council, Haymarket, NSW, 1997)

Australia Consults 1997 involved 126 community forums held on or around Australia Day 1997, involving 138 local councils. Forums were generally advertised to the whole community and one had over three hundred participants, with average attendances being around 25 to 30 citizens.

These forums specifically sought views under three headings:

• The Centenary of Federation

• Possible changes to the Head of State

• Reconciliation between indigenous and other Australians

Virtually all Forums as recorded in 'The big Conversation ...' supported a strengthened role for local government and constitutional recognition of local government. And approximately half of the 126 Forums explicitly supported, or at least explored, possible improvements to our system of government though the abolition of state governments and/or moving to a two sphere system comprising just national/federal and local/regional governments, or at least some significant improvement to our present three tier system. This is highly significant when it is noted that the Forums were designed principally to obtain responses on:

• The Centenary of Federation;

• Possible changes to the Head of State, and

• Reconciliation between indigenous and other Australians.

Lowermost below are extracts from 63 of the 126 Australia Consults 1997 Forums, most of which show direct support for the abolition of state governments or some similar reform of our three sphere system of government. Some extracts are included here because they appear to provide significant lessons to those who support the idea of abolishing state governments and moving to an improved system of government.

The 63 forums quoted were from states and territories as follows:

SA 10 of 12 reported (83%)
NT 4 of 5 reported (80%)
WA 7 of 11 reported (64%)
TAS 4 of 7 reported (57%)
VIC 6 of 13 reported (46%)
NSW 28 of 62 reported (45%)
QLD 4 of 15 reported (27%)
ACT 0 of 1 reported (0%)
TOTAL: 63 of 126 reported (50%)

So much for the theory that abolishing state governments is just a Sydney-Melbourne-Canberra thing!

The 63 extracts now follow in alphabetical order:

Adelaide, SA: (p. 14)

Abolition of State boundaries and the middle (State) tier of government.

Alice springs, NT: (p. 16)

We would like to see the formal process for any constitutional change to consider other issues such as ... abolition of State governments (ie. 2 tiered structure of Government).

Armadale, Dumaresq, Guyra, Uralla and Walcha, NSW:

The need to have constitutional reform on the basis of one entity as Australia for Australians with no emphasis on states. (p. 19)...

The need to remove state boundaries with Local Government to be constitutionally recognised in association with the Federal Government. (p. 21)

Atherton, QLD: (p. 21)

There was a view presented that the federal Government and Local Government was extremely important, but that the State Government was not as vital for Australia's needs.

Bathurst, NSW: (p. 23)

We would like to see the formal process for any constitutional change to consider other issues such as removing one tier of Government in Australia.

Burnside, SA: (p. 37)

There is a good argument to get rid of one level of government.

Campaspe, VIC: (p. 41)

We would like to see the formal process for any constitutional change to consider other issues including those which affect Local Government such as ... the role of State Governments.

Canterbury, NSW: (p. 42)

[In response to the question] How would you like to see the role of Local government evolve in the lead up to 2001?

* too much bureaucracy, one level of government should be abolished (State) and replaced by regional Councils.

Carnarvon, WA: (p. 45)

Increase the power of Local Government, if necessary at the expense of the state.

Cobar, NSW: (p. 47)

We would like to see the formal process for any constitutional change to consider other issues ... including those which affect Local Government such as absorbing the role and objectives of the State Government to create two tiers of Government – Federal and Local.

Cootamundra, NSW: (p. 52)

Local Government, as the first sphere of participatory democracy, should be involved in the process of constitutional reform and should be recognised constitutionally, with the States to be abolished.

Corowa, NSW: (p. 57)

We would like to see the formal process for any constitutional change to consider other issues such as the need for State governments as it is felt that taking into account Australia's population we are over governed.

Crows Nest, QLD: (p. 57)

We would like to see the formal process for any constitutional change to consider other issues such as the size and number of Local government. It is preferred that there be no more than 6,000 people per Council. It is felt that the public would be less likely to have the perception that they are being over governed if they feel that they are able to have some effect on their particular environment. councils of this preferred size allow this to occur.

Darebin, VIC: (p. 60)

Local government, as the first sphere of participatory democracy, could be involved in the process of constitutional reform by:

* state government abolished (cost factors and others)
* Rationalise the level of governance in Australia, preferably by removing state government and expanding the role of local/regional government

Darwin, NT: (p. 61)

Another theme was political representation and whether we are over governed. The overriding view was that we need smaller governments, whether it is bigger Local Government and strong federalism or whether it is the abolition of central control and regional and Local Government are strengthened.

Dungog, NSW: (pp. 64-65)

We would like to see the formal process for any constitutional change to consider other issues such as ... the overlapping of powers and functions between the Federal Government and the states, including those which affect Local Government such as: constitutional recognition, a strengthened role without amalgamations [and] increased efficiency and personalised services.

Flinders Island, TAS: (p. 67)

We would like to see the formal process for any constitutional change to consider other issues such as ... the three tiers of government.

Forbes, NSW: (p. 68)

* Local Government is a voice of the community and leads the local community and therefore, does not have sufficient recognition.
* Local government is the most important level of Government, as it is closer to people.
* Local government should be strengthened.
* Local government is very important and must be protected.

George Town, TAS: (p. 70)

Local government, as the first tier of participatory democracy, could be involved in the process of constitutional reform by [assessing] the role and functions of State government and hosting consultation forums.

Glen Innes, NSW: (pp. 71-72)

Australian States

This matter was not listed for discussion in the Australia Consults forum, but as there was quite a bit of interest in the subject, it was decided to also record the group viewpoints.

It was suggested by some that Australia is an over-governed country.

Would a federal government with regional, instead of State government areas work better?

Most at the meeting agreed that there is a breakdown of the present States system.

Three options emerged:

* A centralised system i.e. a Federal Government but no states – would this make problems worse, given Australia's geography and varied needs of different areas of the nation?
* More States – or would this just breed more problems and complicate matters?
* National government combined with regional governments – perhaps this would better serve [the] individual needs of various regions.
* It was agreed that whatever system is in place, that individual identities of areas should be maintained.

Greater Taree, NSW: (p. 76)

[In response to the question] How would you like to see the role of Local government evolve in the lead up to 2001?

* Local Government recognised in the constitution;
* Abolition of State Governments;
* Local Government areas enlarged and Local government recognised in the constitution;
* Less control over Local Government by State Governments;
*Local Government to have fixed percentage of tax revenue enshrined in the constitution;
* Abolition of Local Government;
* More community consultation on priorities;
* Referendum on community priorities;
* Ward system representation;
* Amalgamation of Local Government bodies;
* Constitutional recognition for Local Government and more autonomy for Local Government.

Griffith, NSW: (p. 78)

We would like to see the formal process for any constitutional change to consider other issues such as the role of State Governments, including those which affect Local government such as having a greater say or input.

Hawkesbury, NSW:

Focus on a policy to re-unify States. (p. 79)

Encourage respect for the role of Local government by reducing the role of the State in control over this grass roots level of government. (p. 80)

Develop systems for accountability, appropriate representation, etc, in Local Government. (p. 80)

Hinchinbrook, QLD: (p. 83)

Amalgamation of Councils should only be by referendum.

Hobart, Brighton, Glenorchy, Clarence, Kingborough, TAS: (pp. 84-85)

Australians are keen to debate these issues but require specific information on:

* The future existence of states;
* The States' role in unifying Australia;
* A review of the power of both State and Local Government;
* The expansion of Local Government Regions;
* Issues of Regional Equity;
* The redistribution of roles of all three levels of government;
* The position of Local government with regard to finances and economics;
* Easy access to Local government services;
* Retaining its position as the first tier of government with ready access to the people to whom it is answerable.

Hobsons Bay, VIC: (p. 86)

Australians are keen to debate these issues but require specific information on the existing State and Commonwealth constitutions and alternative models of governance.

Hunters Hill, NSW: (p. 87)

We would like to see the formal process for any constitutional change to consider other issues, including those which affect Local Government such as review the power of Local Government so that State and Federal powers do not override Local Government.

Jerilderie, NSW: (p. 89)

We would like to see the formal process for any constitutional change to consider other issues such as re-defining the powers conferred on the States and the Commonwealth, with particular reference as to what is in the National interest, and the removal of Border Anomalies, including those which affect Local government such as recognition of Local government within the Constitution together with defining the Powers conferred on Local Government.

Kalgoorlie/Boulder, WA: (p.90)

In any consideration of constitutional reform the role of State Governments and the expansion of regional organisations should be considered. The model with the Federal Government providing the legislative and monetary resources direct to Local Government through regional networks would recognise the expertise and ability of this sphere of government particularly with both State and Federal Governments devolving more responsibility to Local Government.

Kangaroo Island, SA: (p. 91)

We would like to see the formal process for any constitutional change to consider other issues such as ... a review of the requirements of all levels of government.

Kingaroy, QLD: (p. 93)

Rather than adopt one method only of public consultation, all avenues should be explored. community meetings could appoint a representative to a national convention and as well, a process similar to the current one of Australia consults could be undertaken, concerning specific questions. However, the method most favoured is the preparation and circulation of a questionnaire which every Australian is encouraged to complete. Local government can also play a role in the process by considering and prepar[ing] questions at district Local government Association Conference and at State Conferences.

Kununurra (Shire of Wyndham-East Kimberley), WA: (p. 96)

[In response to the question] How would you like to see the role of Local government evolve in the lead up to 2001?

* Local government should be promoted upwards with a wider role encompassing the British system for the distribution of services, infrastructure, law, order, education, and health along with a greater control of funding and revenue to enable Local Government to govern its own affairs locally.
* A decentralisation in decision making from Federal and State Governments to Local government and Communities.

Ku-ring-gai, NSW: (p. 97)

Local Government, as the first sphere of participatory democracy, could be involved in the process of constitutional reform by encouraging greater cohesion and consultation between other tiers of government, involving schools, holding mini conventions/forums in local halls and involving elected members.

Launceston, TAS: (p. 99)

[In response to the question] How would you like to see the role of Local government evolve in the lead up to 2001?

* As centres for the dissemination of and the collection of data and the establishment of discussion committees throughout their areas;
* A conduit to enable unfiltered local views to pass to national level;
* Encourage and educate people to rethink the role of Local Government, not just a service provider but as part of a collaborative and holistic approach in caring for communities;
* Initially a questionnaire to every household for ideas then from that instigate a convention to formally adopt the majority views for implementation.

Lucindale, SA: (p. 103)

We would like to see the formal process for any constitutional change to consider other issues, including those which affect Local Government such as community services such as education, health, drainage, roads, country fire service and road safety.

Mingenew, WA: (p. 109)

* Recognition needs to be made of the export earning value per capita in rural and remote Australia as in comparison to that of the larger metropolitan areas.
* Celebrating the centenary of federation should focus upon ... Development and recognition of true regional areas.

Mitcham, SA: (p. 111)

... changes in the voting system should give an equal vote to everyone.

Moree Plains, NSW: (p. 115)

... one of the ways in which our community can contribute to the centenary of Federation is to develop a new State in northern NSW. In order for this to happen we must unite.

Munno Para, SA: (p. 116)

We would like to see the formal process for any constitutional change to consider other issues such as ... the possibility of introducing a two tier system of government (Local and Federal).

Narrandera, NSW: (p. 119)

Local government as the first sphere of participatory democracy could be involved in the process of constitutional reform by promoting regionalism to match commonalities already existing eg Riverina, Illawarra etc.

Narromine, NSW: (p. 121)

Local government, as the first sphere of participatory democracy, could be involved in the process of constitutional reform by

* no forced changes to boundaries ie amalgamations of Local Government areas to take place at this stage;
* Do away with State Governments – move to two tiered Government ie Local Government and Federal Government.

Newcastle, NSW: (p. 123)

Local government, as the first sphere of participatory democracy, could be involved in the process of constitutional reform by holding more public forums (like Australia consults), more workshops and seminars, by regionalising and abolishing State Government, and by becoming more business-like.

Noarlunga, SA: (p. 123)

We would like to see the formal process for any constitutional change to consider the following questions:

* is there a need for three tiers of government in Australia?
* should one tier of government be abolished?

North Midlands, VIC: (p. 124)

We would like to see the formal process for any constitutional change to consider other issues such as recognition of Local Government in Federal constitution – there must be a re-defining of roles/responsibilities of Federal/State and Local Government.

Palmerston, NT: (p. 127)

We would like to see the formal process for any constitutional change to consider other issues such as the reduction of the three spheres of government to two spheres, namely National and Regional.

Parkes, NSW: (p. 128)

We would like to see the formal process for any constitutional change to consider other issues such as ... possible dissolution of State governments to provide two tiered level of government and the possible creation of regional government with increased power and responsibility; and/or the advent of mergers of local Council authorities.

Parramatta City, NSW: (p. 130)

[In response to the question] How would you like to see the role of Local government evolve in the lead up to 2001?

* Role of Councils and size of Councils to be reviewed;
* Let people decide the areas of Local Government they want to belong to.

Penrith, NSW: (p. 132)

We would like to see the formal process for any constitutional change to consider other issues such as..., including those which affect local government such as giving it greater recognition as the third tier of government, one which best knows the specific needs of its own local community. Local government, as the first sphere of participatory democracy, could be involved in the process of constitutional reform by being given greater powers, strength and autonomy to assist communities at a grass roots level.

Richmond River, NSW: (p. 134)

We would like to see the formal process for any constitutional change to consider other issues such as citizen initiated legislation, a general overview of the relevance of the current constitution and that the constitution should clearly reflect our participation in the global context, including those which affect Local government such as grass root, democratic, participatory government and to recognise the community's social needs in the light of economic rationalism. Local Government, as the first sphere of participatory democracy, could be involved in the process of constitutional reform by being recognised in the Constitution.

Salisbury, SA: (pp. 135-136)

* Politicians are isolated from everyday life.
* There is a need for real community consultation.
* When the Constitution was framed a particular relationship between new Commonwealth Government and Old was investigated. States have sovereign power. Should we readdress the balance of power?
* Recognise that if we have three spheres of government, the issue of funding needs to be addressed. If the Federal sphere holds all the cards how can the other two spheres work? How will they be funded?

Sandstone, WA: (p. 137)

We would like to see the formal process for any constitutional change to consider other issues such as ... Local government being over ridden by State and Federal Governments.

South Gippsland, VIC: (p. 137)

We would like to see the formal process for any constitutional change to consider issues affecting Local government such as a referendum to ascertain opinions. Local Government, as the first sphere of participatory democracy, could be involved in the process of constitutional reform by enhancement of Local Government and abolishing State Governments ie 2 tier system in preference to 3 tier.

Stonnington, VIC: (p. 141)

[In response to the question] How would you like to see the role of Local government evolve in the lead up to 2001?

* Amalgamation has led to loss of control by individuals at grass roots – people should not lose contact with Council.
* More contact and discussion – ratepayers excludes youth – even those who vote have little control.
* Expand Local Government in 2001 – so much depends on the Constitution being changed – if possible remove the states and have only Federal and Local Government – Local government should be included in the Commonwealth rather than an adjunct of the State government.

Temora, NSW: (p. 143)

We would like to see the formal process for any constitutional change to consider other issues such as the abolition of the Senate, a change in the present structure of the three tiers of government and a greater constitutional recognition of Local Government.

Tenterfield, NSW: (p. 144)

We would like to see the formal process for any constitutional change to consider other issues such as ... consideration of the elimination of one tier of government.

Timber Creek, NT: (p. 145)

We would like to see the formal process for any constitutional change to consider other issues such as equal state territory representation ...

Wakefield Plains, SA: (pp. 146-147)

[In response to the question] How would you like to see the role of Local government evolve in the lead up to 2001?

* Possible creation of regional Councils or authorities which could see the removal of State Government.
* Future role for strengthened Local Government.
* Local Government is already gaining responsibility for functions previously handled by State Government.
* Culture of Local Government must change (particularly to work smarter, changed work practises, etc) to be equipped to deal with increased role.
* Increase accountability of elected members through increased payments to encourage their self development.
* Recognition of Local Government constitutionally.
* Increased grant funding to help evolution by broadening revenue base, ie. grant direct to Local Government not through State Government.

Wanneroo, WA: (p. 148)

We would like to see the formal process for any constitutional change to consider other issues which affect Local Government such as the formation of regional governments in the place of State and Local governments and the constitutional recognition of Local/Regional Government.

Warringah, NSW: (p. 148)

We would like to see the formal process for any constitutional change to consider other issues which affect Local Government such as over-government and the possibility of reducing three levels of government to two.

Wentworth, NSW: (p. 149)

We also do not believe very much in State boundaries, they are an unfortunate line on a map which do not affect local lives, but affect business.

Willunga, SA: (p. 151)

[Under the heading of 'Issues for Constitutional Reform'] Stronger district representation even if State Government cease to exist.

Wyndham (Shire of Wyndham – East Kimberley), WA: (p. 153)

... one of the ways in which our community can contribute to the Centenary of Federation is to abolish state boundaries/retention of state boundaries. In order for this to happen we must improve the consultation process, have an understanding of the framework of Government and question whether we want to change, have a referendum for changes and promote alternatives.

...We would like to see the formal process for any constitutional change to consider other issues such as, the abolition or retention of states including those which affect Local Government such as the changing/retention of the regional framework.

Yarrowlumla & Queanbeyan, NSW: (pp. 154-155)

* Recognition of Local Government – empowerment Nation Day;
* Restructure the political system – move to a two tier system;
* Funding direct to service deliverer.

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