I am a Senior Lecturer at the Strategic and Defence Studies Centre, Australian National University.
My latest books are:
Carr, A & Ball, D. eds. A National Asset: 50 years of the Strategic & Defence Studies Centre, Canberra: ANU Press, 2016.
Carr, A & Wallis, J. eds. Asia-Pacific Security: An Introduction, Washington D.C: Georgetown University Press, 2016.
Carr, A. Winning the Peace: Australia’s campaign to change the Asia-Pacific, Melbourne: Melbourne University Press, 2015.
Selected recent journal articles are:
Carr, A. ‘Issues in Australian Foreign Policy: January to June 2016’, Australian Journal of Politics and History, 62(4), 592-607, 2016.
Carr, A. ‘The politics of the 2016 Defence White Paper’, Security Challenges, 12 (1), 1-17, 2016.
Carr, A. ‘The Engagement pendulum: Australia’s alternating approach to irregular migration’, Journal of Australian Studies, 40(3), 319-336, 2016.
Carr, A & Baldino, D. ‘Defence Diplomacy and the ADF: Smokescreen or strategy’, Australian Journal of International Affairs 70 (2), 139-158, 2016.
My full academic C.V and links to other papers can be found on the publications page.
My teaching includes:
Australian Strategic Policy – Masters Unit, Australian National University.
Australia’s Strategic & Defence Policy – Masters Unit, Australian Command and Staff College.
Research Supervision – PhD, Masters Sub-Thesis, Honours levels. Topics for supervision include: Middle Powers, Australian security and defence policy, Asia-Pacific Security.
The Black War: Fear, Sex and Resistance in Tasmania by Nicholas Clements
The Black War is the name given to the conflict between the indigenous population of Tasmania and their conflict with the European settlers. It ran from around 1824 to 1831 and represents both the largest military operation on Australian soil and a brutal guerrilla conflict. It also featured fear, lust, paranoia and despair on both sides.
The most striking feature of this book is that every chapter is equally divided between telling the story of Whites and Blacks. This clever device allows Clements’ to explore, explain and ultimately sympathise with both sides.
Lest anyone be confused, or willing to believe indulgent lies, the moral scales are heavily weighted in one direction. The Tasmanian aborigines lived for 33’000 years on this remote island, yet survived barely 30 more after white colonialists arrived. They faced not only the destruction of their lives, but also their cultures, their way of life. The final years must have been as miserable as any people have lived, in the face of a relentless and ever strengthening opponent.
Engaging the neighbours: Australia and ASEAN since 1974 by Frank Frost
Engaging the Neighbours: is the definitive history of Australia’s attempts to work with and through ASEAN. An institution often mocked for its style, but which has been critical for the security and prosperity of the region.
Australians often describe their nation as facing a choice between its security and economic partners. Yet as Frank Frost details, for everything but the risk of a major power attack on Australia, ASEAN is Australia’s main security partner. Whether the issue is regional conflicts, keeping the major powers from competing in Southeast Asia, irregular migration, drug smuggling or terrorism, ASEAN has been the vehicle for Australia to find security in Asia and with Asia.
At times, Australia has been the ‘odd man in’, pushing for change in a way the rest of the region was not comfortable with. Sometimes our patience has been rewarded, such as with Australian contributions on the Cambodian peace accords or the creation of APEC. At other times, such as Kevin Rudd’s ill-fated Asia-Pacific Community proposal, the divergence has been a source of embarrassment for Canberra.
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Why the future is workless by Tim Dunlop
It’s 9:29pm on a Friday night. I’ve had dinner, watched a movie, and finished a glass of wine. And yet two minutes ago, I sat down at my computer and checked my work email.
Everywhere we look, computers are changing the face of work. We are plugging them into existing machines so they can drive themselves. We are custom building machines to enable them to manufacture everything from iPods to houses. And mere software itself is replacing human workers, spitting out stock reports or providing medical advice.
According to Tim Dunlop, there are three ways we as a society are responding to this change. The ‘Business as usual’ school of thought recognises the change, sees there’s a profit to be made from it, and hopes that our historical experience —where machines create as many jobs as they consume— will hold. The ‘Back to the future’ school by contrast pines for the industrial era, rails against ‘neoliberalism’, and want protectionism and a large welfare state to manage the disruption.
Neither is that attractive or coherent as a world view. Instead, argues Dunlop the future needs to be ‘Workless’. In this engaging and accessible book, Dunlop argues that we need to fundamentally re-think how society is organised if we are to manage and indeed benefit from the radical changes occurring in who does the labour of our society.
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You may not know the author of Game Plan, Ross Babbage, but you know his work. The ‘Defence of Australia’ policy was built by many hands, but in the words of Des Ball, Babbage was the ‘conceptual leader’. In ‘Game Plan: The case for a new Australian grand strategy’, Dr Babbage signals his view that defending Australia now requires a new set of overseas hands, primarily from the United States.
Babbage’s strategic evolution has been a long time coming. His PhD thesis, dozens of papers, chapters and books such as the widely acclaimed ‘Rethinking Australia’s Defence’ and ‘A Coast Too Long: Defending Australia Beyond the 1990s’ were key contributions to the development of Australian defence policy from the 1970s to the early 2000s.
To be sure, the US alliance was always a vital part of this policy. It was ‘self-reliance’ not ‘independence’. But the weight was on Australia to show that it was up to the task of its protecting its front yard. While Paul Dibb, Richard Brabin-Smith and others fleshed out the force structure details, Babbage, Ball and others drove the conceptual debates, along with bouncing around the Northern Territory identifying how the terrain could be protected and the best technology for doing so.
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In the field of ‘big-picture’ books by journalists about Australian politics, Paul Kelly is the hall of famer who still rightly claims attention. But the rising star is George Megalogenis.
Megageorge as he is widely known has recently produced two important books. The Longest Decade told the counter-narrative story of the similarities between Paul Keating and John Howard. So good was it that I believe Paul Kelly paid it the ultimate compliment by trying to write the same tale in his own The March of Patriots. Megalogenis then returned the favour by retelling the story of Kelly’s The End of Certainty, examining and advocating for the liberalisation of the Australian economy in The Australia Moment.
In Australia’s Second Chance Megalogenis has again set out for new territory, arguing that Australia’s prosperity and success depends not just on being an open country economically but an open country for migrants. The book shows that Australia was and always has been a nation defined by migration. This, alongside the question of population is a central element of the nation’s success.
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A few weeks ago, Australia’s Minister for Arts gave a lovely little speech about books and politicians as writers. In it he said:
“The current crop of my Federal Parliamentary colleagues has produced a superabundance of books. Admittedly, most belong either to the category of rather dull and worthy policy blueprints for Australia’s future, of the kind rising backbenchers are wont to write to advertise their intellectual wares; or memoirs of the “where did it all go so wrong – it certainly wasn’t my fault” variety”.
Given the timing, I suspect Brandis had Two Futures in mind with this line. For all the proliferation of blame sharing memoirs —particularly from the previous government— there are very few real policy blueprints around. Mark Latham made his name by writing them, and Cory Bernardi has tried the same — though I regret reading the former, and won’t read the latter.
Two Futures by Clare O’Neil and Tim Watts is therefore to be welcomed as a relatively rare break from the pack. Both were elected in 2013, but are already well regarded by insiders. Their book justifies that by trying to think through six big issues Australia must manage: Democracy, Inequality, Technology, Climate, (Economic) Growth, and The World.
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One lesson I have come to learn in my brief time in academia is that it is not wise to just try and write ‘about’ a subject, with the hope the argument or insights will come later. There’s often a pressure to contribute your name to the current debates, but unless you really have something to say, the result is often more generic, less engaging and less memorable than you’d hope.
This was my surprising reaction to Coral Bell’s Dependent Ally: A Study in Australian Foreign Policy. Widely regarded as the classic work on the alliance, I got the feeling reading it that Bell wanted to write about the alliance (having done so indirectly for much of her career), but didn’t really have anything urgent to say.
The title of the book suggests a demonstration of Australia’s reliance on the UK and US. That is a theme, but it’s assumed as much as argued. Typical of Bell though, this book contains an original take on the issue. Rather than identify the cause of Australia’s dependence in a psychological need for security as the Left argues, Bell places it in the global lot of middle powers in a hierarchical world. Australia contributes to the global balance of power via its connection to the large states.
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Bob Carr’s central complaint during his time as Foreign Minister (my review of his Diary here) was not the travel, food or company, but a lack of time. 18 months was too short to do anything he moaned. Percy Spender had just 16 months and was the most influential Australian Foreign Minister of the 20th century.
Spender is something of a forgotten figure in Australian history. This is partly because his time at the top was so short, but also because his story runs against the dominant narrative of his era. We think of the Menzies reign as British, cautious and somewhat lethargic. Spender was none of these things.
In this highly readable — albeit academic — biography, David Lowe illuminates a figure who is brash, bold and innovative. Spender was willing to take risks, worked at racehorse pace (often managing a federal parliamentary seat and significant caseload at the NSW bar) and challenged many of the fundamental ideas of his time.
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Like most of my generation I grew up watching Bush Tucker Man. A fun show, with a serious purpose: working out how do defend Australia. While Les Hiddins was the khaki front man, it was the geek squad like Ross Babbage who made the idea a reality.
It might seem a simple idea ‘design your forces to defend the country’ but putting it into practice requires a lot of thought. Especially in a country as big and diverse as Australia. While Hiddins looked at gathering ‘tucker’, Babbage and others looked at the tides, winds, bridges, population centres, and tried to work out how they could help national strategy and force structure.
It is strange to some today, but during the Cold War Australians held a real fear of invasion. We’ve largely discarded that concern now (See the Lowy Poll 2015), but by reading books like this, you can see how authentic such concerns were.
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Many reasons have been offered for why the Rudd-Gillard-Rudd government fell short, but fundamentally I believe it came down to a failure of governance. They had smart, capable people, there were good ideas and policies and no shortage of hard work. But they couldn’t put it together in a sustained or effective fashion.
‘No Minister: So you want to be a chief of staff’ helps show exactly what that means. To be clear, Behm’s purpose is not to explain what went wrong, but rather try and show how to make government work, at least from within a single Minister’s office. Behm spends much of the book explaining how he set about his task as Greg Combet’s Chief of Staff, and how he thinks about issues of leadership, management, and building an efficient, trusting, value-driven team.
Behm’s position in the Minister for Climate Change’s office was always something of an oddity around Canberra. As Allan reveals early on, the intention had been for Combet to take over the Defence Portfolio, hence bringing in the ‘bow-tied assassin’* who offered a deep knowledge of the Defence organisation, the public service and a fine strategic mind.
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We have become a nation of Two Australia’s. But the divide is not based on class, skin colour, or wealth (per say) but on how close to the CBD you live. Those in close enjoy access to good jobs, access to good services, high house values, higher levels of gender equality at work and lower work-life balance issues. Those further out suffer in all these areas.
This is a fantastic, if scary book. It combines several of the biggest issues of modern Australian life, and shows how they are centrally connected to our cities, and how we are comprehensively failing to address them.
The argument begins by noting that while the knowledge-economy was thought to have enabled us to all work ‘anywhere, anytime’, in fact it has pushed us towards the CBD. Where manufacturing let people live in the suburbs near the big plants, today’s economy forces everyone to head to a central point. So much so that 80% of Australia’s economy now occurs on 0.2% of our land.
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I’m delighted to announce the release of my next book, ‘Winning the Peace: Australia’s campaign to change the Asia-Pacific‘, published by Melbourne University Press.
Winning the Peace seeks to explore and explain how Australian governments, during the modern period of Australia’s engagement with Asia (from 1983 till today), have attempted to use their defence and foreign policies to shape the region. While there were certainly times of tension during this period, such as the spikes around the end of the Cold War and during the early years of the War on Terror, the region has been largely defined by peace. Because of this peace and thanks to Australia’s relative size as a ‘middle power’, the government’s attempt to change how other states act and think was not sought through the deployment or use of force but through military and diplomatic engagement and persuasion.
Australia’s smaller size meant it had to be strategic in its efforts. It had to determine which changes were priorities, it had to re-organise and develop its resources, it had to deploy them effectively and efficiently, and it had to be able to sustain the effort in the face of competition and rejection. This book focuses on the three main ‘campaigns’ the Australian government has undertaken since the early 1980s to reshape the Asia-Pacific in pursuit of its national interests.
Table of contents
2 Conceptual Framework
3 History of Australian Foreign and Defence Policy
4 Australia and Irregular Migration
5 Australia and Weapons of Mass Destruction
6 Australia and Trade Liberalisation
7 Can Middle Powers Promote Norms?
Where to buy the book?
To mark the launch, I’ll be writing some guest posts on The Lowy Interpreter blog, and having a launch at Parliament House. Full details will be published here shortly.
In (yet another) back down, the Rudd Government recently abandoned its call for a bill of rights. Instead it is introducing a ‘Human Rights test’ for all legislation, leading to much rejoicing by many liberal and conservative Australians (which I’m labeling here right wing, with left wing liberals tending to support Rudd’s -original- push for a Bill of Rights as I do). Yet their joy is somewhat surprising given that the Australian Right wing tend to define themselves (rhetorically at least) by their desire to restrict the reach & power of government and encourage individual freedom. Which is exactly what a bill of rights is designed to do, hence its position at the heart of the US constitution, the most liberal document in history.
Andrew Norton helpfully tries to explain this apparent contradiction in a good post over at his blog:
In a democratic system, classical liberals will tend to be more sceptical than social democrats and the median voter of actual and proposed regulation by the state. But I don’t think this is inconsistent with believing that classical liberal freedoms should be achieved within the persuasion-based, evolutionary and open democratic system. Even within a pro-freedom perspective individual rights and freedoms can conflict – let alone all the conflicts with other values that people hold – and there is little reason to believe (as many opponents of bills of rights have argued) that courts will do a better job of deciding on the trade-offs than democratic politics.
a distinction can be drawn between an in-principle opposition to constitutionalising some rights and a tactical judgment that the bill of rights we would end up with would not support the classical liberal conception of individual freedom. I think this does help explain the lack of enthusiasm for bills of rights among classical liberals, even where they might support constitutionalising a limited list of rights or freedoms. Aided by the various UN treaties, the concept of ‘human rights’ has expanded way beyond what classical liberals have ever supported, to make them the basis for big rather than small government.
While the arguments about risking giving too much power to the courts are valid, and one should always be skeptical if modern politicians can reach the wisdom of political philosophers such as Jefferson & Adam’s, Norton’s comments still seem to me somewhat partisan. His main concern seems the content of a Rudd/Gillard(or Abbott?) introduced Bill of Rights, rather than the concept as such. That it is, had a classical liberal Prime Minister introduced a bill of rights, I expect he would be significantly more inclined to support it. Which leaves me wondering why none on the right are proposing to write their own Bill of Rights?
There’s two good reasons they should: First, if there was a right wing version on offer, the debate would shift from the rhetoric of angry partisans (like this) towards debating which principles and the specifics. A debate about how to code a protection of free speech, or whether the government can compulsory acquire private land would be a useful debate.
Second, if those on the right support the concept (as opposed to their concerns over Rudd’s specific version) then now is the time to propose an alternative. The campaign for a Coalition government to implement economic liberalism didn’t just spring from nowhere in 1996, but was pushed & argued over throughout the 1980’s and maintained until the time was right (whilst critically giving support to the ALP Government when it agreed with this approach). With Joe Hockey the likely candidate to take over the Liberal Party once they lose the upcoming election, liberals have a good chance to gain a leader who will at least listen to their views. Assuming the ALP stay in office for another two terms, by 2016 a Coalition Government could win office and pledge to implement a Bill of Rights which has been around for 5-6 years in public debate (removing the fear factor) whilst adhering to a strict ‘negative’ set of limits on government/society, rather than the more left wing desirer for positive rights to food/shelter/support etc.
I believe a Bill of Rights has a fundamental worth, that will unite people of all political philosophies across the left and right. Guaranteeing free speech, restrictions on discrimination, and basic rights of people who fall under the watch of the security apparatus of the state would help ensure that the ‘democracy of manners’ which rules Australia does so within confines that do not trample over the individual. For those of a liberal persuasion, both the Howard and Rudd governments have infringed individual freedom and shown little concern about doing so, in economic, social and security area’s. There are legitimate concerns about increasing court influence to deal with, however the High Court has already involved itself in these issues (such as ABC v Lange 1997 on free speech). A carefully constructed negative set of rights could infact help clarify what the public want, rather than allowing the much freer interpretation available today where lawyers and judges can draw on all constitutional and legislative documents.
Having an alternate proposal (while a lot of work) would increase the quality of the debate, let those on the right set the terms of what a bill of right should be (helping dispatch poor/unworkable ideas such as a right to an income) and far more than any comparison with UN treaties, let Australians debate and define the basic freedoms we as a people insist on for a good society. Given the move to presidential prime ministers, increasingly invasive technology options for the government and centralising federalism, sitting back and hoping all will be ok is not a sensible option.
Last night on the ABC’s Q and A program, the usefulness of Gallipoli as a foundational story of Australia came up repeatedly. Many correctly noted that it is a story which is difficult for migrant Australians or even those born since 1970 to identify with. Everyone knows the strikes against the ANZAC story, they were all male, white, invading a country we had no significant animosity towards, it was a losing effort, and we were forced to undertake it by generals who cared little for our soldiers’ safety. Yet the panel members seemed to both acknowledge this, and see nothing in our history that could replace it. Peter FitzSimons even flat out asked a lady which peacetime heros she would like to replace the ANZACs/soldiers, suggesting only that another fight such as Kokoda could replace it. What surprised me is that no one brought up the story of Eureka, whose appeal is clear in the way Australian organisations from the extreme left through to the far, far right have claimed the flag as their own.
Most should know the basic story. Individual miners during the Gold Rush in Victoria became slowly more outraged and eventually rebelled at the increasing taxation (without representation) on their basic mining rights, along with their inability to vote & restrictions on private property in the face of government and police control. In early November 1854 the miners formed the Ballarat Reform League demanding among other things: full manhood suffrage (though excluding Aborigines), abolition of the property qualifications for members of parliament, payment of members of parliament, voting by secret ballot; short term parliaments; equal electoral districts; abolition of diggers’ and storekeepers’ licenses and reform of administration of the gold fields. All are core Australian values, and some that (such as paying parliamentarians and having secret ballots) ideas that Australia can claim as its own contributions to democratic practice and theory worldwide.
After a number of acts of provocation on both sides, the miners gathered on Bakery hill to protest & concerned about attack formed a stockade. At dawn on 3 December 1854, the military attacked, killing 22 and ending the stockade within minutes. But the colonial government finally recognised the miners concerns and changes began to filter down, protecting their rights and restricting the power of local authorities to infringe on individual rights of the miners.
Compared to Gallipoli, Eureka has something for every Australian. Those involved were fighting for a individual rights to conduct free enterprise (in effect they were self-employed small businesspeople), they banded together in solidarity to demand fair working conditions, they were democratic and seeking fair representation & capable administration, they were a very multicultural and multiracial audience (though the Chinese were absent race relations were decent at Eureka) and many women were strongly involved. It was also an episode thoroughly invested in republicanism, a strain of political thought that stretches back to the Greeks and the Romans and insists on diffused power, encouragement of civic virtues and civic education and which informs much of the practice and values of Australian democracy.
Many have previously advocated for Eureka to take a higher place in our history and national story. H.V Evatt (a hero of our current Prime Minister) said Australian democracy was born at Eureka and Prime Ministers such as diverse as Menzies, Chifley and Whitlam all used it heavily in their speeches. Mark Twain even called it the ‘finest thing in Australian History’. And, even the latest ALP candidate for Fraser, Andrew Leigh, contributed to a 2004 book called Imagining Australia which also calls for its revival as the basic story of Australian identity.
Much work would be required to remind Australians of the story, and to extricate it from its claimed position by militant unionists and racist nationalists. But it represents a story all modern Australians can find much to appreciate and find unity with. It deserves to be remembered and re-enter the national debate.