Chapter 4 - Public diplomacy in Australia
4.1
The previous chapter traced recent developments in international
relations and found that overseas governments attach great significance to
public diplomacy and are increasingly devoting more resources to promote their
country's image abroad. Against this background, the committee provides an
overview of Australia's public diplomacy activities. In this chapter, it
considers Australia's level of awareness of public diplomacy and the activities
it undertakes to build an international reputation.
Awareness of public diplomacy in Australia
4.2
Some commentators in Australia are acutely aware of the importance of
public diplomacy to Australia. A former diplomat, Mr Kirk Coningham, believed
that public diplomacy 'particularly in the global village as it stands right
now, will do far more to ensure Australia's future wellbeing and future
security than traditional diplomacy'. He explained:
If we cannot maintain a neutral to positive stance on a government’s
sense of cooperation with Australia then we will fail...So it [public diplomacy]
really does matter—not just in a tree-hugging, feeling good about ourselves
sense. It matters in achieving our international objectives, because that is in
some ways subordinate to how people feel about Australia, whether it be neutral
or positive. If it is negative then we are not going to be able to achieve our
objectives.[1]
4.3
The Australian Government recognises the significant place that public
diplomacy has in Australia's foreign policy. In its White Paper, In the National
Interest, the government stated:
In its multilateral strategies, as in its regional and bilateral
efforts, Australia's international reputation is itself a factor in our
capacity to advance Australian interests. An international reputation as a
responsible, constructive and practical country is an important foreign policy
asset.[2]
4.4
Despite the recognition given by some Australians and by the government
to the role of public diplomacy in Australia's foreign policy, little has been
written on this matter domestically. Indeed, the paucity of material on public
diplomacy in Australia and the confusion surrounding the use of the term has
been one of the most striking features of this inquiry. For example, Dr Pauline
Kerr from the Asia-Pacific College of Diplomacy, ANU, observed that 'it is
quite noticeable when looking through the diplomatic literature that public
diplomacy really is not a topic that Australian academics find all that
interesting'.[3]
The Royal Melbourne Institute of Technology (RMIT) also observed that there is
'a real absence of discourse about public diplomacy in Australia outside
Government circles'.[4]
Indeed, a research project being conducted in the Crawford School of Economics
and Government and research underway in the Asia-Pacific College of Diplomacy
are the exceptions.[5]
Dr Pauline Kerr noted that generally the scholarly research that is
done on public diplomacy comes from Europe and Britain. She is showing the committee a publication from the
Clingendael Netherlands Institute of International Relations as an example of
the material that the institute regularly produces on public diplomacy. (Committee
Hansard, 11 April 2007, p. 9)
4.5
Australia's lack of interest in public diplomacy is evident when
compared with the growing body of literature on public diplomacy produced
overseas and at recent international conferences and seminars discussing all
aspects of public diplomacy.[6]
Furthermore, Australia is not among the countries such as the US, the UK and Canada
whose public diplomacy has undergone comprehensive and independent review.[7]
Dr Yusaku Horiuchi and Mr Trevor Wilson, who attended the committee's roundtable, are currently engaged in a research
project on public diplomacy. (Committee Hansard, 11
April 2007, p. 8)
4.6
Not only is there an absence of serious discussion on public diplomacy
in Australia but the very term appears to have little currency even among those
who may be practicing public diplomacy. Mr Jacob Townsend from the Australian
Strategic Policy Institute, cited the white paper, Protecting Australia
Against Terrorism, which listed the four components of Australia's
approach to terrorism. He noted that prevention, preparedness, response
and recovery were identified but that public diplomacy was not listed in the
prevention section. He concluded:
Counter-radicalisation is a long-term prevention technique. This
is a long war so it seems to me that we need to put two and two together and
include that in our counter-terrorism strategy.[8]
4.7
Dr Julie Wells, RMIT University, noted that public diplomacy is 'not a
term that is well understood by the people we would expect to be the
government's partners in the project'.[9]
She informed the committee that, when she mentioned RMIT's submission on public
diplomacy to the head of the University's alumni office, she was asked 'what's
public diplomacy?' Dr Wells pointed out that Australia has not had explicit
dialogue involving leaders of universities about public diplomacy.[10]
4.8
The Centre for Democratic Institutions provides another example of the
lack of awareness of relevant individuals and organisations to their place in Australia's
overarching public diplomacy framework. When asked whether the Centre saw
itself as a formal contributor to Australia's public diplomacy processes,
Dr Benjamin Reilly, Director, replied that he had not thought about it in
terms of public diplomacy until the inquiry encouraged him to do so. On
reflection, he believed that, although independent of government or DFAT, the
work of the centre is 'part of Australia's international public diplomacy
efforts'. He noted that most of the countries and individuals the centre works
with have 'great difficulty distinguishing one Australian agency from another'
and added:
I think the fact that we have a very strong regional focus,
particularly on the South Pacific, East Timor and Indonesia, which are all
regions of enormous importance to Australia, heightens that. And I think the
fact that we work not just with the formal institutions of Australian politics,
such as the parliament and parliamentarians, but also with organisations like
political parties, which are in a slightly different category, means that we do
have an important role to play there.[11]
4.9
During the course of this inquiry, the committee learnt first-hand of the
lack of interest in public diplomacy and the confusion surrounding its meaning.
Its call for submissions received a poor response even from government
departments or agencies actively engaged in public diplomacy. Clearly, public
diplomacy is not a term commonly used or understood in Australia. Furthermore,
and of some concern, it would seem that Australia is not actively involved in
the international conversation about public diplomacy.
4.10
This lack of interest in, or awareness of, public diplomacy does not mean
that Australia is not actively engaged in public diplomacy. The following
section provides an outline of the public diplomacy activities undertaken by
government departments and agencies in Australia and some of the more
significant government-funded programs. It is not intended to provide a
comprehensive account of Australia's programs but rather to indicate the number
and diversity of the government's public diplomacy activities.
Public diplomacy activities
4.11
The Department of Foreign Affairs and Trade (DFAT) submission stated
that the department, particularly its Images of Australia Branch (IAB), has primary
responsibility for implementing Australia’s public and cultural diplomacy
programs to advance Australia's foreign and trade policy objectives. Its programs
aim to create positive perceptions towards Australia and to ensure that Australia's
international image is 'contemporary, dynamic and positive'.[12]
Dr Lachlan Strahan, Assistant Secretary, IAB, informed the committee that
public diplomacy:
...spans an extremely wide range of activities. It is everything
from integrated promotions, where we will work with other agencies to do a
promotion of Australia encompassing culture, business and politics, all the way
through to quite specific targeted activities, such as what we might do on
nonproliferation.[13]
4.12
The outline given below groups DFAT's public diplomacy programs under
general headings and provides just a small sample of its public diplomacy
activities. A detailed listing and description of the various programs can be
found in DFAT's submission.[14]
Bilateral foundations, councils and institutes
4.13
DFAT explained that the department provides secretariats for, and
cooperates with, nine bilateral foundations, councils and institutes (FCIs).
The FCIs 'promote people-to-people links and accurate, contemporary images of Australia
in support of the Government’s foreign and trade policy goals'.[15]
They operate both in Australia and abroad to shape perceptions of Australia
held by individuals and organisations overseas. As DFAT explained:
FCI projects are expected to foster perceptions of contemporary Australia
as scientifically, technologically and educationally advanced, economically
enterprising and culturally diverse. FCI activities are required to build
networks and contacts, influence opinion-makers and facilitate exchange of
knowledge.[16]
4.14
The first FCI, the Australia–Japan Foundation, was created as a
statutory body under the Australia–Japan Foundation Act 1976. Since
then, the following FCIs have been established: Australia–China Council,
Australia–India Council, Australia–Indonesia Institute, Australia–Korea Foundation,
Council on Australia–Latin America Relations, Council for Australian–Arab
Relations, Australia–Malaysia Institute and Australia–Thailand Institute.[17]
The committee uses the Australia-China Council to indicate the range and type
of public diplomacy activities that the FCIs undertake.
4.15
The three major themes in the activities supported by the Australia–China
Council link with public diplomacy: encouraging Australian knowledge of and
interest in China; encouraging Chinese knowledge of and interest in Australia;
and broadening and deepening bilateral contact and exchange. The Council has a
number of programs to advance these goals, such as the Year in China Program
and Australian Studies Program. It has initiated projects such as the Young
Business and Professional Scholars Program. The Council stated that in
2005-2006, it funded around sixty separate projects and several hundred
individuals. Ms Dinah Dysart, Deputy Chair of the Council, informed the committee
that the Council gives preference to:
...projects that project Australia as an innovative,
multicultural, open and liberal society and that offers prospects of long-term
institutional links and continuing exchanges.[18]
4.16
The Council emphasised the importance of alumni organisations and
people-to-people contacts in increasing public diplomacy and positive attitudes
toward Australia.
Culture
4.17
DFAT funds the Australia International Cultural Council (AICC), Australia’s
peak consultative group for the promotion of Australian culture overseas. Its
membership includes 'representatives from government, the arts and cultural
community and business with a common interest in more effective international
showcasing of Australian arts and culture'. [19]
4.18
According to DFAT, the AICC is one of the government’s most important
cultural diplomacy tools. Its aims include producing a wide range of high
quality cultural products to project a positive image and to encourage greater
understanding of Australia. The Council also promotes Australian cultural
exports and facilitates links between institutions to encourage longer-term
cooperation. The Council is also involved in the International Cultural Visits
Program and the Cultural Relations Discretionary Grants.[20]
- The International Cultural Visits (ICV) Program organises visits
to Australia by senior and influential arts representatives and cultural media
from a range of countries. It promotes awareness of the diversity and
excellence of Australian cultural product, enhances links and networks, and
improves commercial opportunities for the Australian arts industry.[21]
- The Cultural Relations Discretionary Grant (CRDG) program,
provides ad hoc funding to individuals and organisations that project a
modern image of Australia abroad through cultural activity.[22]
4.19
Further examples of cultural public diplomacy outlined in DFAT's
submission are the touring exhibitions, including the Embassy Roadshow, a
package of contemporary Australian films and documentaries, Indigenous Arts
Program, the Australian Visual Arts Touring Program, and the Australian Fine
Music Touring Program.[23]
Environment
4.20
DFAT is also active in environmental matters. It informed the inquiry
that it:
... uses a range of PD tools to support Australia’s international
advocacy on environment issues and to promote Australia’s strong credentials as
a country committed to addressing environmental matters, including climate
change, biodiversity conservation and whales conservation.[24]
4.21
Speeches, workshops and public relations campaigns are used to inform
international audiences of Australian policies on the environment. In January
2006, the department initiated Asia-Pacific Partnership (AP6), a 'key element
of Australia’s international climate change effort, focusing on practical
technology-based initiatives'.[25]
Major events and expositions
4.22
DFAT coordinates Australia's participation in or supports major events
such as the Commonwealth Games or World Expos.[26]
Humanitarian
4.23
In its submission, DFAT stated that it 'uses public diplomacy to help
shape positive international opinion regarding Australia’s human rights
credentials and to promote human rights fields of endeavour where Australia has
a distinctive international reputation'.[27]
4.24
DFAT uses funding administered by AusAID for organising various
activities, including visits of foreign officials and NGOs to Australia for discussion
on the role of human rights in Australia’s foreign policy.
4.25
According to DFAT, the 'diplomacy of the deed’, in this case Australia’s
response to disasters and emergencies overseas, 'augments our image as a good
international citizen, committed to assisting other nations regardless of
religious, ethnic and political considerations'. A good example of this was the
response to the Boxing Day Tsunami.[28]
DFAT stated that:
[s]uch efforts have a particularly enduring PD outcome because
they are motivated by humanitarian considerations and are ascribed a level of
integrity which sets them apart from any other PD program. Emergency relief
efforts underline the shared interests and values which bind Australia and
other societies, including in the Muslim world, together.[29]
4.26
Other examples of Australia's efforts in the field of human rights are
hosting or participating in forums such as the Anti-violence against Women
and Children Act in Manila and addressing child trafficking and labour
issues in conjunction with a cultural program in Hanoi.[30]
Media
4.27
In Australia, DFAT's International Media Centre in Sydney runs an
International Media Visits program and liaises with the Foreign Correspondents
Association to generate informed international media coverage on Australia.
Under the International Media Visits program, senior international journalists
and commentators are invited to Australia to participate in tailored programs
focused on particular issues and to meet a wide range of people from ministers
to business leaders and academics. [31]
Australia Network is a television service to the Asia Pacific
region. It delivers 'high quality and contemporary programming in education,
arts, culture and drama', as well as an independent news and current affairs
service. Radio Australia is another media outlet providing news and other
programs in the region.[32]
4.28
Overseas, DFAT posts monitor coverage of Australia in the local press
and report on emerging or contentious issues. They also run information and
public affairs campaigns to influence official perceptions and the public image
of Australia.[33]
Publications
4.29
DFAT develops publications for specific bilateral, regional and thematic
public diplomacy purposes.[34]
Defence/Military
4.30
DFAT uses public diplomacy in relation to military or defence matters,
for example in the fight against terrorism or to promote Australia's commitment
to arms control and counter-proliferation. It provides support to regional
governments in their efforts to combat terrorism. [35]
Sports
4.31
DFAT regarded sports diplomacy as:
an important facet of [its] PD efforts, taking advantage of Australia’s
international reputation for sporting excellence. Like culture, sport acts as a
neutral bridge between Australia and other countries, facilitating the
communication of PD messages in a subtle and less overtly political way. [36]
4.32
Some examples of sporting events which contributed to public diplomacy
were the Prime Minister's XV (rugby union) match during the Australia-Japan
Year of Exchange in 2006, and the Commonwealth Games.
Trade
4.33
DFAT is involved in various projects, including the organisation of APEC
2007, for which DFAT coordinates a whole-of-government communications and
outreach strategy. DFAT stated that it is addressing the 'considerable Chinese
sensitivities' in Australia’s free trade agreement (FTA) negotiations with China,
including misconceptions about potential harm to some of China’s industries.[37]
Other departments and agencies
4.34
Many government departments and agencies contribute to Australia's
public diplomacy even though their primary responsibility may not be public
diplomacy. An outline of the programs of some of these agencies is provided
below.
Department of Defence
4.35
The Department of Defence submission outlined the various Defence
activities that promote understanding and awareness of Australia. Defence
activities, such as ship visits at Australian and foreign ports, often generate
media coverage, as do community outreach and humanitarian assistance programs,
emergency evacuations and search and rescue operations carried out by the
Australian Defence Force (ADF). For example, Defence mentioned in its
submission ADF's contribution to humanitarian assistance operations such as
Operations Sumatra Assist and Pakistan Assist. Defence noted, however, that:
Although the deployment (Operation Sumatra Assist) was directed
at providing humanitarian relief, it also made a positive impression on public
perceptions of Australia both locally and more widely within Indonesia.[38]
4.36
Further programs include the Defence Cooperation Program (DCP) that, according
to the Department of Defence:
...provides significant support to regional security forces in the
areas of strategic planning, education and training, command and control,
infrastructure, counter-terrorism, communications and logistics support.[39]
Invest Australia
4.37
Invest Australia is the Australian Government's inward investment
agency. Its mission is to attract 'productive foreign direct investment into Australia
to support sustainable industry growth and development' through promoting Australia
as an internationally competitive investment destination.[40]
We try to work with other government agencies to make sure that
there is a consistent approach to portraying Australia as an investment
destination that is consistent with the other images of Australia in the public
domain as a tourism and trade destination, for example.[41]
4.38
Invest Australia noted that its public diplomacy efforts involve:
...increasing its international presence through a range of
international promotional activities including public relations activity, a
global advertising campaign, attendance at key events and a multilingual
website.[42]
4.39
Like several other departments and agencies, Invest Australia does not
distinguish between public diplomacy and promotional activities. Mr Barry Jones,
Invest Australia, stated that he thought Invest Australia would argue that 'you
could consider all of our general promotional activities as being public
diplomacy'.[43]
4.40
Invest Australia participates in various inter-departmental committees,
including the Committee on Marketing, Information and Communications
Technologies for Australia and the Committee for Public Diplomacy. Further,
Invest Australia is involved in running media relations programs such as a Visiting
Journalists' Program (VJP), and liaising with the Foreign Correspondents'
Association (FCA), with tailored programs comprising ministerial interviews and
interviews with business and investment organisations.
4.41
Invest Australia reported having developed an Australians Abroad
pilot program 'to increase positive public diplomacy within the international
business community':
A key strategy of the program is to educate and encourage endorsement,
word-of-mouth marketing and reinforcement of key messages by influential
Australian business leaders based in key international markets.[44]
4.42
Invest Australia reported that it chairs the National Investment
Marketing Group (NIMG) that is used for coordinating the national investment
marketing effort between the States and Territories and the Australian
Government.
AusAID
4.43
According to AusAID, the objective of Australia's overseas aid program
is to assist developing countries reduce poverty and achieve sustainable
development in line with Australia's national interest. It stated that public
diplomacy plays a key role in its activities and is used for:
...strengthening engagement in international and multilateral fora
to facilitate advocacy of regional issues, research and development of
guidelines regarding protection of vulnerable populations in humanitarian
situations, and identifying and integrating lessons learned from the 2004 Indian
Ocean tsunami into enhanced humanitarian response mechanisms.[45]
4.44
AusAID's public diplomacy efforts are incorporated in the program
management and delivery, that is, through aid programs or disaster relief
missions such as the Boxing Day tsunami or the Regional Assistance Mission to Solomon
Islands. It also contributes to Australia's public diplomacy, through
educational assistance, including the Australian Leadership Awards Fellowships
Program that has the aim of supporting and strengthening long-lasting ties to Australia.[46]
4.45
Communicating with the public in Australia and in partner countries is a
priority. AusAID admits, however, that although its aid program enjoys a high
degree of awareness and support in Australia and amongst the key stakeholders,
'this is not necessarily reflected in awareness levels amongst the broader population'
in recipient countries.[47]
4.46
In answering the question about how AusAID's public diplomacy funding of
$4.57 million is spent, Ms Jenny Da Rin, Director, Media and Parliamentary
Services, AusAID, explained that:
Out of those funds we fund our global education program...internet
presence and the management of that and our photo library. We fund our media
activities...promotional activities and events, media launches and things like
that. We fund our media monitoring services. We also fund our stakeholder
engagement activities, which include domestic and international activities...We
fund our publications, including Focus magazine. We fund our post and
public affairs support. That includes things like in-country newsletters,
in-country websites, graphic design and that sort of work.[48]
Department of Agriculture, Fisheries and Forestry
4.47
The Department of Agriculture, Fisheries and Forestry (DAFF) stated that
it closely cooperates with the Department of Foreign Affairs and Trade to
advance a whole-of-government approach to public diplomacy. It participates in
a number of inter-departmental committees (IDCs), including addressing matters
relating to border security and quarantine.[49]
4.48
DAFF's public diplomacy efforts fall into three categories: market
access and reputation, including negotiations; biosecurity; and emergency
preparedness. To reinforce biosecurity, DAFF has developed brochures in 15
different languages, and the same information is also displayed on its website
and on the websites of Australian embassies. Further, DAFF noted that:
...quarantine messages are developed and required, under
Australian law, to be broadcast on all international airlines and cruise lines
into Australia; [and] prominent messages are displayed at international arrival
terminals.[50]
Department of Education, Science and Training
4.49
The Department of Education, Science and Training (DEST) reported that international
education is gaining increasing recognition for the significant role it plays
in contributing to Australia’s global engagement and the perception of
Australia around the world, and thus contributing to Australia's public
diplomacy efforts.
4.50
Its Study in Australia program operates as an umbrella brand for
the promotion of Australian education internationally. An independent
evaluation of the brand found that the brand is well-recognised, being the
third strongest national education brand globally behind those of the United
States and the United Kingdom.[51]
4.51
Australian Education International (AEI), the international arm of DEST,
implements promotional activities such as familiarisation visits to Australia
for senior officials, education leaders, journalists etc., organises public
lectures, research symposia and support for international alumni networks.[52]
Its media releases are distributed directly to international media outlets and through
DFAT and Austrade.[53]
DEST noted that:
Student and academic mobility and exchange are seen to provide
the basis for friendship, mutual respect and understanding, just as education
is the key to prosperity, security and peace in the Asia-Pacific region and
beyond.[54]
4.52
The department has several programs that pursue these goals. Endeavour
Program brings high achievers from around the world to Australia for study,
research, vocational training or professional development. Australian
Scholarships initiative combines relevant aspects of AusAID and DEST
education programmes in the Asia-Pacific under a single umbrella.[55]
DEST explained that through an awardee network, the Australian Scholarships
and the Endeavour Program will develop enduring linkages with former participants/awardees
ensuring that influential and strategic relationships with Australia are
maintained.[56]
4.53
Scientific projects with international partners and collaboration
through international fora provide an opportunity for Australia to raise
international awareness of its expertise. Like cultural or sports diplomacy:
[s]cientific collaboration often provides an opportunity to
establish or strengthen relations that may be otherwise under-developed or
sensitive.[57]
4.54
Some examples of such projects and programs in the field of science
include the tsunami monitoring and early warning system and the Asia-Pacific
Partnership on Clean Development and Climate Change.
Australian Broadcasting Corporation
4.55
In February 2007, a restructure of the Australian Broadcasting
Corporation (ABC) created ABC International.[58]
ABC International consists of Radio Australia and Australia Network (formerly
ABC AsiaPacific).[59]
According to the ABC, it is 'a major player in how our nation is represented
offshore, in terms of television, radio and online'.[60]
It stated that its functions are to 'encourage awareness of Australia and an
international understanding of Australian attitudes on world affairs', and
[through ABC Radio] 'connect audiences in Asia and the Pacific through programs
that complement and enrich their lives and foster an informed dialogue'.[61]
4.56
In order to reach their target audience, ABC broadcasts radio programs in
seven languages and has a radio and/or television presence in around 40
countries. Its regular weekly audiences are estimated at some 20 million, and
its multilingual website had over 18 million page views in the last year.[62]
It informed the committee that:
A key to Radio Australia’s success and growing audiences in
recent years has been its ability to directly engage with Asian and Pacific
broadcasting partners and audiences in their own languages and in response to
their needs and interests.
...
Radio Australia’s...approach builds on a long established
reputation for credibility and independent coverage but also relies on resident
linguistic and cultural expertise
...
Through content exchange, dialogue and interactivity, RA seeks a
more equitable and long term relationship with the region and audiences.[63]
4.57
Radio Australia also has a role as an educator. It has developed a new
vocational English series English for Tourism and English for
Business.[64]
4.58
In line with promoting good governance and democratic values as part of
public diplomacy, Radio Australia noted that it is an active participant in 'the
development of a competent and independent media in Asia and the Pacific'.[65]
It delivers training and technical support to its partners, and works together
with AusAID to foster more open media in the Asia-Pacific region.[66]
The ABC actively fosters international relationships with public
broadcasters and a range of media-related organisations. These include ABC
participation in policy and regulatory forums, membership of peer organisations
(for example, the Asia-Pacific Broadcasting Union), the delivery of formal
capacity-building assistance to public broadcasters (especially in Asia and the
Pacific) and the provision of informal collegiate support to fellow public
broadcasters.[67]
4.59
Australia Network is the Australian television service to the Asia
Pacific region operated by the ABC under contract to DFAT. The aims of the
service are in line with the Australian Government's public diplomacy policy.
That is, Australia Network is to:
- provide a credible, reliable and independent voice in the region;
- present...a 'window' on Australia and Australian perspectives on
the world; project images and perceptions of Australia in an independent
impartial manner;
- foster public understanding of Australia, its people and its
strategic and economic interests, and
- raise awareness in the region of Australia’s economic and trade
capabilities, including in the education and tourism industries.[68]
Australian Sports Commission
4.60
Mr Greg Nance, Director, National Sports Programs, noted the Australian
Sports Commission's (ASC) long involvement in public diplomacy. He advised the
committee that:
the public diplomacy aspect has always been alive and well with
the commission. Any activity undertaken with another developing country has
always had that element to it, be it involving athletes in the environment here
in Australia or sending experts into those countries.[69]
4.61
Sport is used as a public diplomacy and developmental tool because:
...sport is such a neutral thing. It does not divide people but
generally brings them together no matter what level you engage at.[70]
4.62
The ASC efforts have ranged from organised sports events to initiatives
such as the sport for development or the Australian Sports Outreach
Program that the ASC delivers in cooperation with or for AusAID. The sport
for development program has evolved from the early initiatives focused on
the elite level:
[A]lthough noteworthy for their ability to expose individuals to
the benefits of the Australian sports system, [the earlier ASC's overseas
activities] lacked any real depth and sustainability in building capacity in
the countries involved.[71]
4.63
The sport for development program, however, uses sport for
individual and institutional development that, in turn, contributes to the
development of the society as a whole. The program provides public diplomacy
benefits to Australia. Mr Greg Nance said:
Sport for development, rather than developing sport...is where you
are not developing sport for sport’s sake but using sport as a tool to create
better communities in the areas that you are working in. You are creating
better communities through the people or the infrastructure or just the playing
of sport. There are health outcomes, social outcomes and personal outcomes for
the people involved.[72]
4.64
According to Mr Nance, all ASC work is public diplomacy due to the
'fairly good and neutral story' that requires little promotion.[73]
Australian Film Commission
4.65
The Australian Film Commission (AFC) is an Australian Government agency
operating under the Commonwealth Film Program (Department of Communications,
Information Technology and the Arts). Through the National Film and Sound
Archive, the AFC collects, documents, preserves and provides access to Australia's
screen and sound heritage. The AFC is the major collector and analyst of data
about the industry. It informs opinion, outlook and policy about the
audiovisual industries and screen content in Australia.[74]
4.66
The AFC outlined the importance of its work in delivering significant public
diplomacy outcomes for Australia through 'informing and influencing foreign
public perception of Australia, its culture and people'.[75]
Film, television and digital content has played a central role
in establishing an international profile for Australia and its culture...Australian
film and television programs are ambassadors for this country around the world.[76]
4.67
The Commission stated that most of its public diplomacy objectives occur
through its membership of the Australia International Cultural Council (AICC):
The AICC’s strategy is to project a broad and diverse image of Australia
which advances our foreign and trade policy interests and promotes and enhances
the export of Australian cultural products.[77]
4.68
The AFC noted its involvement in the promotion of Australia internationally
through the AICC. One of the initiatives, Embassy Roadshow, showcases
Australian films through Australian diplomatic missions overseas. Other AFC activities
include Australian film festivals, tours, and gifts. The government's ‘World
Class Australian Film Industry’ policy provides funding for the AFC to support
the creation of Australian film festivals and events internationally.[78]
4.69
According to the AFC, it participates in a number of international film
and television festivals to promote the Australian audiovisual industry
overseas. It operates stands or offices at key international markets and
festivals and stages special networking events for Australian practitioners.[79]
4.70
The AFC further noted its assistance to the government on diplomatic
matters, for example by selecting and sourcing a list of iconic Australian
films to be provided as gifts to the twenty national leaders attending the Asia-Pacific
Economic Cooperation meeting in Sydney late 2007.[80]
Australia Council for the Arts
4.71
The Australia Council for the Arts (Australia Council) is the Australian
Government's arts funding and advisory body. It provides over 1,700 grants each
year to artists and arts organisations. Australia's major performing arts
companies are supported through funding partnerships with the Australia Council
and the State governments. The Australia Council also supports strategies to
develop new markets in Australia and internationally.[81]
4.72
In line with the Australian Film Commission, the Australia Council
emphasised the importance of arts and culture to the promotion of Australia and
Australian culture and values internationally.
There is a burgeoning international interest in Australian arts
and culture that has been driven, and has continued to drive, many major
Australian export successes. These successes have actively and meaningfully
complemented and enhanced Australia’s diplomatic efforts in profiling our
strong, independent national identity.[82]
4.73
In cooperation with other operators in the field, the Australia Council
supports activities such as tours of exhibitions and performing arts projects
and international visitors’ programs. According to the submission,
international activities can create new relationships and public diplomacy
opportunities.
4.74
Further, Australia Council activities and initiatives include OzArts
Online, briefings to DFAT officers, participation in DFAT's International
Cultural Visitors Scheme and establishing locally-based Arts Market
Development Officer/Program Managers positions in target regions (Japan, UK, Berlin).[83]
In past years, artsaustralia berlin 2002 and 2003 programs as well as a
similar program in the UK, Undergrowth Australian Arts UK, have been
established to promote contemporary Australian arts in the European markets.[84]
Museums Australia
4.75
Museums Australia (MA) was created in 1994, joining together the Museums
Association of Australia, the Art Museums Association of Australia and the
Museums Education Association of Australia.[85]
It has 749 institutional members (museum or gallery members) and more than 1000
individual members across all states and territories.[86]
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According to Museums Australia, 'public diplomacy abroad relies on
presentation of Australian culture in all its diversity to represent Australia
as a distinctive society and nation to the world'.[87]
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In its submission to the inquiry, Museums Australia indicated that the
nation-wide museums/galleries sector in Australia offers a great variety of
human-capital resources, developed professional expertise and performance, that
'could be tapped and "harvested" towards diplomatic objectives in
Australia's cultural policy internationally'.[88]
There also exists within the sector 'a huge range of unique collections
resources around which so much of our national cultural heritage achievements
can be built interpretatively'.[89]
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Ms Erica Billington Sanders, Executive Director, Museums Australia, Victoria
Branch, would like to include galleries, museums, science centres, botanical
gardens and national parks as public diplomacy tools. She argued:
The people and professionals involved with it are looking after Australia’s
cultural heritage. They have the stories of Australia’s culture, they have the
networks that capture and present a current and past Australian culture, and
they are professionals in presenting and interpreting Australian culture, which
is very useful in public diplomacy.[90]
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In line with other cultural/art organisations, Museums Australia
emphasised the value that art institutions in Australia can offer in building trust
and stable social institutions through their expertise in cultural debate and
diverse interpretation. These 'useful socio-cultural' skills:
...could be promoted at a cultural exchange level, drawing in
institutions and people working in the cultural heritage sector broadly in
other countries.[91]
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According to Museums Australia, these skills are often of interest in
other countries—especially those countries of highly significant interest to Australia’s
foreign affairs interests in the Asia-Pacific region. They 'convey a lot
subliminally about underpinning Australian social attitudes and cultural life'.[92]
National Gallery of Victoria and Art Gallery of Western Australia
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In their submissions to the inquiry, the National Gallery of Victoria
and the Art Gallery of Western Australia noted their roles in promoting
cultural diplomacy via Australian cultural assets. This is carried out mainly
through bringing international exhibitions to Australia or taking Australian
art overseas, or through individual contacts and participation in international
cultural fora.
Preliminary assessments of Australia's public diplomacy activities and
programs
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The range of public diplomacy activities undertaken by Australians is
diverse and extensive. Although public diplomacy is not a popular topic of
conversation in Australia and the government's public diplomacy activities are
not well understood by Australians in general, Australia does conduct many and
varied programs and engages in a wide range of activities that clearly
contribute to Australia's international reputation. The sheer number of
activities is evidence that the Australian Government is very conscious of the
importance of public diplomacy.
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Despite the impressive list of agencies engaged in public diplomacy and
the activities they undertake to promote Australia's reputation abroad, a
number of witnesses questioned the effectiveness of the programs. Ms Jennifer McGregor,
Director, Asialink Arts, was of the view that 'perhaps the whole is not as
great as the sum of the parts in our public diplomacy'.[93]
Mr Chris Freeman, a public affairs practitioner and former DFAT officer, was
not convinced that over the last 30 or 40 years Australia had ever reached its
'full potential in the effectiveness' of its public diplomacy programs. In
brief, he observed that a lot of emphasis is placed on the importance of public
diplomacy but Australia no longer has the kinds of resources it used to have:
that Australia 'no longer [has] the capacity to undertake sustained long-term
multimedia communication strategies'.[94]
Mr Kirk Coningham, another former DFAT officer, agreed with this view. He
asserted that 'very little has been achieved in terms of hard-nosed public
diplomacy' in the past decade.[95]
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In the second part of this report, the committee looks more closely at
this criticism of Australia's public diplomacy and considers in detail the
nature and conduct of Australia's public diplomacy programs.
Part 2
The committee in Part 1 of the report highlighted the
growing importance attributed to public diplomacy and the increasing pressure
on countries to devote more resources to promoting their reputation abroad. It
noted that currently, Australians do not have a high level of interest in, or
awareness of, Australia's public diplomacy. They are not particularly engaged
in the international discussion on public diplomacy. Even so, the committee
compiled a list of public diplomacy activities that clearly demonstrates the
large number of programs and activities that contribute to Australia's public
diplomacy. The list of activities, however, does not indicate how well or
effectively they are planned, managed and delivered.
In the second part of this report, the committee examines the
range of public diplomacy activities undertaken by Australian entities to
ascertain whether Australia is using public diplomacy effectively.
Firstly, the committee considers the main difficulties facing Australia's
public diplomacy. It examines in detail how well Australia is meeting the
challenge of making itself understood and recognised by the rest of the world
in ways that serve Australia's long-term foreign policy objectives.
The committee then looks at the coherence, credibility and
consistency of Australia's public diplomacy messages and the dialogue and
understanding that underpins the network of relations between Australia and
other countries. In subsequent chapters, the committee considers the
coordination of public diplomacy activities, the extent to which the government
takes advantage of opportunities to strengthen links with foreign countries;
the training and qualifications of those responsible for Australia's public
diplomacy; the evaluation of public diplomacy programs and the funding
available for these programs.
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