Challenges and Controversies in the Protection of Archaeological Resources

Abstract

I think the following paper by S. Alan Skinner is important in two ways. First, it shows how, in the United States, if an archeological contractor wishes to take issue with an agency's procurement policies, he or she can use standard federal government protestation procedures to do so. Most of us are unfamiliar with these procedures, and Skinner's paper provides a valuable primer for those who may have to use them in the future. Second, I. think Skinner's paper is important for its demonstration of a distinction between procurement problems that can be effectively addressed through case-by-case protestation and those that cannot. Note that in Skinner's case, the Comptroller General did not comment on the archeologists' concern about curation capabilities and, perhaps even more significantly, did not deal with the agency's policy of awarding contracts based largely on cost, without solicitation or evaluation of research proposals. I doubt if the Comptroller's failure to fully consider these matters resulted from any deficiency in the case presented by Skinner and his colleagues. These issues are never likely to be considered by the Comptroller, I believe, because they are professional in nature, and it is not the Comptroller's business to settle professional disputes.

All this is not to suggest that archeologists should not challenge agencies that fail to ensure proper curation or that select archeological contractors primarily on the basis of bid. Such policies should be challenged at all possible levels, and the fact that our challenges are not always (or even often) effective will not detract from the documentary record of professional objection that will thus be constructed. Such a documentary record will be vital if really effective action—probably through the Congress—is ever to take place.

What I do suggest is that, by documenting the failure of the Comptroller General to reach the issues of broadest importance to archeologists in his case, Skinner has outlined a challenge to the authorities responsible for managing the federal historic preservation system. The Advisory Council on Historic Preservation and the Secretary of the Interior are explicitly charged with consultation with other federal agencies to ensure that their policies effectively contribute to the preservation of historic places and archeological data. Contracting policies that result in low-quality research or impermanent preservation of data and collections are legitimate targets for the historic preservation authorities, and should be vigorously attacked. Actions like the one taken by Skinner and his colleagues will help the federal authorities to launch and sustain such an attack.     

Use of E-procurement in Local Authorities' Purchasing and Its Effects on Local Economies: Evidence from Cumbria,UK

In the past decade, there has been an increasing interest shown by the Government and Local Authorities in issues concerning the implementation of new technologies and means of communication in the public administration. Several operations have been moved online, including some significant purchasing functions and procedures. Electronic procurement, or e-procurement, indicates the use of electronic tools or practices during each stage of the purchasing process. E-procurement is seen as a powerful instrument to achieve efficiency and cash savings. While e-procurement helps public sector bodies to achieve their budget targets, it also increases the level of competition among public sector suppliers. This may influence the level of economic activity generated at local levels and potentially reduce the level of business provided to local firms. In the worst case, this situation could produce a knock-on effect especially in peripheral and remote areas, where the public sector is often the major purchaser. This paper focuses on the significance of e-procuring and e-tendering practices among Local Authorities in Cumbria, North-West England. The paper explores how the tendency to use e-procurement may vary among public sector suppliers with regard to business characteristics such as size, headquarter location and sector of activities. In addition, the author investigates the suppliers' ability to deal with e-procurement practices and procedure, and examines how e-buying and e-tendering in the public sector affects Local Authorities' patterns of spend.     

Legitimacy and Public Policy: Seeing Beyond Effectiveness,Efficiency, and Performance

Studies of failure typically assess public policies through the lenses of effectiveness, efficiency, and performance. Here I wish to propose a further dimension to the evaluation and assessment of policy failure—legitimacy. The substantive elements of public policies and the procedural steps taken by authoritative decision makers during the policy cycle affect the perception of policy legitimacy held by both stakeholders and the public. In substantive terms, policy content should align with the dominant attitudes of the affected policy community and, ideally, the broader public. Procedurally, factors such as policy incubation, the emotive appeals deployed to gain support for an initiative, and the processes of stakeholder engagement shape the legitimacy of public policies and the governments who promote them. This argument is based on a comparison of education reform in two Canadian provinces during the 1990s. Governments in Alberta and Ontario pursued common agendas of education reform, but while Alberta achieved success, the Ontario government experienced a series of setbacks and lost the support of education stakeholders and the public. The root of Ontario's failures lies in the realm of legitimacy. These findings highlight the fact that the strategies used for enacting policy change may fail to bring about the necessary consensus among societal actors to sustain a new policy direction and calls attention to our need to better understand how governments can achieve meaningful public participation while still achieving legislative success in an efficient fashion.     

Trade agreements and the myth of policy constraint in Australia

In this paper, I challenge the conventional view that trade agreements act as a major constraint on Australia’s industry policy options. Through a comparison with South Korea – a country with similar trade obligations to Australia – I find that the Australian government retains significant room to move in the industry policy sphere. However, Australian policy-makers appear far less willing than their foreign counterparts to use that space. To explain Australia’s comparative industry policy in-activism, I move beyond broad-brush explanations centred on ‘liberal ideology’ to explore the ideational, institutional and structural obstacles to the pursuit of a more proactive industry policy approach on the part of Australian policy-makers.     

Can Australia save the world? The limits and possibilities of middle power diplomacy

Australian policymakers have always harboured a desire to ‘punch above their weight’. On occasions they have succeeded. At a time when Australia's strategic, economic and environmental future is inextricably bound up with that of its immediate neighbours and the wider world, there are compelling reasons for hoping that they still can. This paper explores some of the most important aspects of Australian foreign policy during the Rudd era and asks whether the Australian government can play a constructive—even an exemplary—role in finding solutions for some of the planet's most pressing problems.     

CONFOUNDING INFLUENCES, UNINTENDED IMPACTS, AND GROWTH MANAGEMENT POLICIES

This study demonstrates the relationship among inputs, indirect effects, and intended and unanticipated consequences in determining the content and scope of growth management policies in three California cities. It shows that while a short time frame obfuscates a number of policy impacts, local policymakers can achieve policy objectives if they are aware of and utilize options that are available to them during the implementation process. The study suggests that despite the very real constraints imposed by state legislation and weak regional governments, local governments can more effectively deal with externalities by adopting complementary city-county policies and negotiating priorities.     

Questions of deception: contested understandings of the polls on WMD,political leaders and governments in Australia,Britain and the United States

The weapons of mass destruction (WMD) Saddam Hussein was said to possess were central to the justification the Australian Prime Minister gave for Australia's decision to go to war in Iraq. When no WMD materialised, poll data suggested that the public felt misled. But the same data suggested that support for both the government and the Prime Minister was unaffected. Among critics of the war, this generated a moral panic about Australian democracy and the Australian public—its commitment to the end justifying the means, its failure to receive a lead from the Labor Party, its widespread apathy. It also led to an intense debate about why the charge of not telling the truth had weakened public support for Blair and Bush but not for Howard. This article explores the concerns expressed by critics of the war in the face of polling that suggested that Australians were prepared to support a government and its leader that had misled them—deliberately or otherwise. It raises questions about the contrasts drawn between polled opinion in Australia, Britain and the United States. And it argues that the differences in the pattern of opinion across the three countries were not marked and that what had cost governments support were views about how the war was going, not the failure to find WMD.     

Protecting Tasmanian Aborigines: American and Queensland Influences on the Cape Barren Island Reserve Act, 1912

Early twentieth-century Tasmanian discourses about racial difference reflected trans-imperial connections between England, its colonies, and the United States. This globalised discourse and ideological interconnectedness in turn produced recognisably and intentionally similar policies, although historians bounded by the interests of later nation-states have tended to overlook this. Tasmania's Cape Barren Island Reserve Act 1912 exemplifies how a particular colony's ideology and policy, while attuned to local conditions and particularities, was nonetheless a product of an international framework for regulating the colonised. This legislation was demonstrably modelled on Aboriginal protection legislation passed in the Australian state of Queensland in 1897 and has significant commonalities with the Dawes Act passed in the United States in 1887 to provide for the subdivision of Indian reservations. In Australian historiography, the fact that Tasmania had an Aboriginal reserve and enacted Aboriginal protection legislation has been under-appreciated and even denied. This article redresses these omissions. It also contributes towards redressing the myopic focus on nation and/or colony that has, until recent years, left Australian historiography devoid of a full appreciation of colonial dependence on, and contributions to, a global discourse of race.     

The 1949 federal election: A reinterpretation

The 1949 federal election in Australia is widely regarded as one of Australia's most significant elections. This election ended eight years of ALP government and began a long period of unbroken rule by Liberal‐Country Party governments. Surprisingly, very little has been written about the 1949 election although various authors have addressed themselves to the question of why the Chifley government lost in December 1949. The orthodox interpretation is that Chifley's defeat in 1949 was to do with the issues of ‘bank nationalisation’ and ‘communism’. In this article, I offer a reinterpretation of the connection between political issues and voting behaviour in the 1949 election. Following the theory of Fiorina that voters tend to make their decision on the basis of how a party fares in handling problems in the past, I argue that the Australian electorate in 1949 responded negatively to Chifley's handling of the general economy and his policies on two crises in 1949 — the national coal strike and the dollar crisis.     

Waste Not Want Not? Australia and the Politics of High-level Nuclear Waste

During 1999 and 2000, Australian governments rejected a proposal put forward by Pangea Resources to place an international high-level radioactive waste repository somewhere on the Australian continent. The decision was marked by tensions between competing political objectives, and was driven partly by an unusual alliance between pro-uranium mining governments and anti-nuclear non-government organisations (NGOs). The article begins by placing Australia's current nuclear policies in historical context, focusing on the stances taken by the major political parties. The second section briefly describes the Pangea proposal and the Australian response. The third section considers why Australia might have reacted differently. The fourth section critically reviews some of the reasons why the Pangea proposal elicited such hostility. Finally, the article discusses key policy barriers to the proposal, concluding that these are unlikely to disappear and that as a result Pangea and any other similar organisations would have little chance of pursuing their objectives in Australia.     

From forward defence to self‐reliance: Changes and continuities in Australian defence policy 1965–90

This paper shows that the focus of Australia's ‘declared’ defence policy has oscillated between local and regional defence, whereas its ‘operational’ policy—the views contained in internal planning and guidance documents—has taken a mid‐course, focusing on defending Australia's northern approaches. Australia's two policy domains coincided briefly in the mid‐1980s but have since diverged as we have again begun to emphasise regional defence. This shift could signal the end of ‘defence self‐reliance’. While representing a setback for the Hawke government, such a result is necessary as Australia's ‘operational’ policy is flawed and in need of replacement The danger is that, as in the past, Australian governments and their advisers will continue to adjust their rhetoric rather than their real policies to our changing circumstances.     

Effects of Economic and Environmental Reform on the Diffusion of Cleaner Coal Technology in China

Despite the urgent need to address severe air pollution problems caused by China's coal consumption, diffusion of cleaner coal technologies (CCTs) has been slow. This contribution utilizes the fragmented authoritarianism model to explain this slow diffusion by examining the structure of bureaucratic decision making and changes in incentives that have accompanied fiscal decentralization and enterprise deregulation. Case studies on the diffusion of two CCTs — flue gas desulphurization (FGD) and coal washing — highlight challenges of environmental policy design and implementation during the economic reforms of the past decade. Enterprises had little incentive to adopt FGD when central government agencies disagreed on promoting the technology and local agencies did not rigorously enforce national air pollution control policies. For washed coal, production slowed when coal pricing reform and coal industry restructuring were not co‐ordinated with environmental policies. Further promotion of CCTs in China requires changes in incentive structures for local governments and enterprises, as well as enhanced policy co‐ordination among central government agencies.     

Policy attributes shape climate policy support

Understanding how preferences for public policy instruments shape policy support helps policymakers to design policies that begin to tackle large-scale and complex problems, such as climate change. Climate change policies generate both local and global costs and benefits, which affect the public's policy preferences. In this article we investigate the role of perceived conditional cooperation and distributive concerns on climate policy attitude formation. We identify a range of climate policies and test public opinion for adoption of these policies at different scales of government. The important theoretical distinction is the scale-driven distributional nature of policy costs and benefits as well as concerns regarding the cooperation of other actors. We use data from Sweden and a conjoint experimental design where we vary level of government, type of policy, and the targeted group. We find evidence that people support policies when costs are shared broadly. We also find that support for climate policy is conditional on expected policy adoption by other units of government at various scales. This implies that unpopular climate policies might be more popular if the funding structure of the policy allows for binding policy and that the cost-sharing is taking place at higher levels of government.     

When Policy Goes Wrong: The Problem of Transmitted Risk

Why do policies fail? There are many answers to this question, and many ways of answering it. In this paper, we use the tools of policy framing and systems thinking to investigate two recent Australian examples of public policy failure, each involving a different policy milieu and time-span. We show that, in both these cases, unintended consequences arose because governments lost control of the implementation process while remaining politically accountable for the outcomes. We develop the concept of transmitted risk to show how this occurred. We argue that governments expose themselves to this kind of risk when they make policy decisions involving a combination of excessive incentives and poorly controlled third parties.     

Intrastate federalism in Australia

The article applies a distinction often used in the study of Canadian federalism—intra‐versus interstate federalism—to the Australian federal system. The intrastate federalism model focuses on the representation of state, regional and local interests directly within central government institutions. On the surface the model appears to have little applicability to Australia. However, the examination of selected Commonwealth institutions and arenas, primarily the cabinet and party system, indicates that intrastate practices may in fact be much more pronounced in Australia than what is generally supposed. There are networks of influence at work outside the confines of standard intergovernmental arenas, networks that at times can be used to advantage by state governments or by state or local interests, at other times by the Commonwealth to enhance centralised control or even to undermine the status of state governments as legitimate actors within the Australian federal system.     

Governance,Policy Innovation,and Local Economic Development in North Carolina

This article examines the extent to which local governments in North Carolina embrace innovation in their economic development activities. The study makes a distinctive theoretical contribution by examining the relationship between innovation in how economic development policies are administered and implemented (using concepts associated with governance and NPM), and innovation in what is substantively done (policy innovation). An analysis of the results from a statewide survey of local governments in North Carolina finds that certain governance/management variables are significant determinants of economic development policy innovation. An implication of this finding is that new ways of doing economic development may go hand‐in‐hand with new ways of governing and managing. Many of the governance/management variables are also positively associated with the use of a greater number of traditional economic development strategies and tools. This suggests that local governments may find it helpful to be innovative in how they implement economic development irrespective of the substantive policy orientation of particular strategies and tools.     

Constraints on Local Welfare Discretion in an Era of Second‐Order Devolution

Under devolution, state and local governments are expected to use the greater authority granted to them to design new and innovative programs that are tailored to local needs. Existing research on the devolution of welfare programs has reported substantial variation in the policies adopted by states in the wake of welfare reform. However, under second‐order devolution, local governments also gained discretion over welfare services. Some have argued that, while devolution should increase flexibility, local governments face constraints that limit their functional discretion. Using California as an example, I assess whether there is variation in the service priorities adopted by local governments and whether these priorities translate to frontline practices. I show differences in the service priorities of local governments; however, these priorities are not associated with differences in sanctioning or time‐limit exemptions. Thus, while local governments may formally adopt different priorities, state and federal policy choices, as well as client characteristics, may restrict priorities from translating into differences in caseworker behavior.     

Australian foreign policy and news media: national identity and the sale of uranium to India and China

This article explores the utility of a constructivist-media communications approach to understanding the production of national identity in Australia through a case study of the Australian Labor Party's 2011 decision to allow uranium sales to India. The decision came at a time when Australian foreign policy, political debate and news media discourse were increasingly concerned with India and China, as ‘rising’ superpowers whose prominence offered opportunities for economic prosperity even as it undermined settled regional power balances. This article finds that, rather than a matter of rational strategy, the decision was made in a context of considerable anxiety about the ‘Asian century’ as the Australian public, politicians and policymakers struggled to comprehend geopolitical change. It further argues that the constructivist project in international relations can benefit from engaging with insights from media and communications methodologies and by taking a less hierarchical approach to ‘elite’ and ‘non-elite’ discursive agency.     

Transnational environmental obligations: locating new spaces of accountability in a post-Westphalian global order

The growth of transnational environmental harm is not only leading to new obligations between states, it is also recasting democratic accountability for the crossboundary environmental performance of public and private actors. Informed by pragmatist ideas on public discourse, I propose a conceptual schema for understanding the moral geography of these new transnational environmental obligations: they mark out non-territorial spaces of public communication delimited according to moral precepts of harm prevention, inclusiveness and impartiality. I outline how the recognition of transnational affected publics is reconstituting and rescaling environmental accountability within international regimes of harm prevention and liability. The critical geopolitical challenge in institutionalizing non-territorial domains of environmental accountability will be the mapping and empowerment of transnational affected publics.     

The Receiving End of Reform: Everyday Responses to Neoliberalisation in Southeastern Mexico

Abstract: This article builds upon the literature on neoliberalism and environment as well as studies on community forestry by examining the creative accommodations that rural producers have made in navigating Mexico's neoliberal turn. In contrast to previous work that emphasizes macro‐level processes (eg privatization of public natural resources) and local resistance, I employ Bourdieu's theory of practice to examine the symbolic and material dimensions of local responses to neoliberal policy reform. Drawing on research from nine communities in the state of Quintana Roo, I argue that local producers have accommodated neoliberal policies and programs by adopting hybrid logics, property regimes, forms of organization, and modes of exchange. Moreover, I contend that these creative responses constitute elements of a longstanding “culture of accommodation” to institutional change that predates Mexico's neoliberal reforms.