Chapter 1 - Introduction and conduct of the inquiry
Referral of the inquiry
1.1
On 7 November 2006, the Senate referred the matter of the nature and
conduct of Australia’s public diplomacy to the committee for inquiry. The committee
was to report by 29 March 2007. On 27 February, the Senate granted an extension
to the committee's reporting date to 12 June 2007 which was extended further to
9 August and then to 16 August 2007.
Timing of the inquiry
1.2
This is the first inquiry conducted into Australia's public diplomacy by
an Australian parliamentary committee. Although parliamentary committees have
not considered Australia's public diplomacy programs as a distinct subject, some
have recently inquired into Australia's relations with particular countries or
regional organisations. For example the Foreign Affairs, Defence and Trade
References Committee has examined APEC, and Australia's relations with Japan
and China. The Joint Standing Committee on Foreign Affairs, Defence and Trade
has also examined Australia's relations with specific countries, including the Republic
of Korea and Malaysia. It is currently looking at Australia's relations with India.
During the course of such inquiries, the committees have considered some aspects
of Australia's public diplomacy.
1.3
Over recent years, however, public diplomacy has attracted growing
attention. Many international commentators have noted its increasing
significance with some asserting that public diplomacy 'matters more than ever'
and should 'not be the poor relation of mainstream diplomacy'.[1]
For example, in 1998 an advisory panel called for US public diplomacy to be
moved from the sidelines to the core of diplomacy.[2]
Commentators argue that public diplomacy can 'no longer be seen as an add-on to
the rest of diplomacy—it has to be seen as a central activity which is played
out across many dimensions and with many partners'.[3]
Recently, Professor Jan Melissen, Netherlands Institute of International
Relations (Clingendael), referred to the frenzy surrounding public diplomacy[4]
and suggested that it was 'the hottest topic under discussion in the world's
diplomatic services':
Ministries of Foreign Affairs (MFAs) in all corners of the world
pay more and more attention to their countries’ reputation overseas, from Chile
to Japan and from Canada to Indonesia. The discourse about ‘PD’ extends much
beyond the world of diplomacy: not only diplomats but also academics,
university students in international relations and even those who are targeted
by the public diplomacy of states take an interest in this subject matter.[5]
1.4
In comparison to the interest in, and discussion on, public diplomacy
overseas, the discourse on public diplomacy in Australia is silent. Indeed, a
literature search on public diplomacy in Australia reveals a limited amount of
work.
1.5
In light of the growing international recognition given to public
diplomacy throughout the world, the committee believes that it is timely to
review Australia's public diplomacy programs.
Terms of reference
1.6
Under the terms of reference, the committee is to inquire into the
nature and conduct of Australia’s public diplomacy, with particular reference
to:
- the extent and effectiveness of current public diplomacy programs and activities
in achieving the objectives of the Australian Government;
- the opportunities for enhancing public diplomacy both in Australia and overseas;
- the effectiveness of and possible need to reform administrative
arrangements relating to the conduct of public diplomacy within and between
Commonwealth agencies and where relevant, the agencies of state governments;
and
- the need and opportunities for expanding levels of funding for Australia’s
public diplomacy programs, including opportunities for funding within the private
sector.
Conduct of the inquiry
1.7
The committee advertised the terms of reference in the Australian
in November 2006 and on a number of occasions before the closing date for
receipt of submissions in mid-February 2007. The committee also wrote directly
to a range of people and organisations including government departments and
agencies, academics, cultural and sporting organisations inviting written
submissions. The low response to the committee's call for submissions led to a
second round of invitations and more advertising.
1.8
It should be noted, in particular, that some important government
agencies such as Austrade and Tourism Australia did not make a submission. A
number of other key departments had to be invited more than once before they lodged
a written submission. All agencies invited to present oral evidence before the committee
accepted the invitation.
Submissions
1.9
The committee received 31 public submissions which are listed at
Appendix 1. It also placed on notice a number of questions to witnesses,
the bulk of which were directed to the Department of Foreign Affairs and Trade
(DFAT). The answers to DFAT questions have been published on the committee's
website.
Public hearings
1.10
The committee conducted five public hearings in Canberra, Melbourne and Sydney.
It also held a roundtable on 11 April in Canberra at which eight specialist
teachers, researchers or practitioners of public diplomacy appeared before the committee
and discussed a broad range of topics related to Australia's public diplomacy.
1.11
A list of the committee’s public hearings, together with the names of
witnesses who appeared, is at Appendix 2.
Participants in the
Roundtable on public diplomacy which was held in Parliament House, Canberra, on 11 April 2007.
Structure of the report
1.12
The report is divided into two parts. In the first part, the committee examines
the definition of public diplomacy. It considers the growing body of
international literature on public diplomacy and the difficulties countries
have in using public diplomacy to pursue their foreign policy objectives. Against
the background of international developments in public diplomacy, the committee
then provides an overview of Australia's public diplomacy including a
description of public diplomacy activities funded or sponsored by the
Australian Government.
1.13
The second part of the report provides a detailed examination of the
many aspects of Australia's public diplomacy to determine its effectiveness and
to identify opportunities to enhance it. The committee looks at:
- the challenges facing Australia to be seen and heard on the world
stage;
- the effectiveness of Australia's public diplomacy in terms of:
-
the coherence, consistency and credibility of its message;
- the network of relationships and communication systems that form
the bedrock of public diplomacy;
-
the coordination of public diplomacy activities—between government
departments and agencies and non-state entities including non-government
organisations (NGOs);
-
the training and qualifications of those responsible for the
government's public diplomacy programs;
- the use of technology;
- the evaluation of Australia's public diplomacy programs; and
- the funding available for, and resources devoted to, Australia's
public diplomacy activities.
1.14
In concluding the report, the committee looks at the opportunities for
improving Australia's public diplomacy. It draws together the main themes
developed in the report and makes its findings and recommendations.
Acknowledgments
1.15
The committee thanks all those who contributed to the inquiry by making
submissions, providing additional information or appearing before it to give
evidence.
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