Welfare in the Future -
Authors: Gunders Lisa 
Published: October 2020

On 29 September 1999, Senator Jocelyn Newman, the Australian Government's Minister for Family and Community Services, delivered a controversial address to the National Press Club in Canberra. The delivery had been delayed a week and it was widely rumoured that the Minister had been forced to remove some of the more controversial proposals (see Senate Question Time on 29 September, for instance). The speech, entitled "The Future of Welfare in the 21st Century", announced plans to tackle a supposed trend towards welfare dependency by creating an "active" rather than a "passive" welfare system set within the Government's policy of "Mutual Obligation": a system that focusses on "capacity and ability" (Newman para. 42) and "what people can do" rather than what they can't do (para. 44). This article, however, questions whether the welfare system projected for the future will be enabling for those who use it, or whether income-based social divisions will become further entrenched.
Since taking government in 1996, the Coalition's policies have included privatisation of previously government-run utilities and services and restructuring of the economy and industrial relations to assure Australia's place in 'globalisation'. Restructuring the welfare system is but the next step. Speeches such as this one are typically part of the process by which governments expound their 'vision' for the future, announce policy directions and generate public feedback and, had the speech not been delayed a week, it would normally have attracted considerably less attention. However, with the approaching 'end of the millennium' and increasing evidence that economic restructuring and globalisation are not benefiting everyone, debates about the integration of social and economic policies have been a concern for politicians, press and policy-makers for some time (see for instance reporting of the "Australia Unlimited" Conference). While party polling may indicate support for reform (McGregor 28) there is also a perception that society is becoming a "meaner" place (Dickens 22-3).
My method derives from the work of Teun A. van Dijk on ideological analysis. He maintains that ideologies function to co-ordinate the activities and thinking of group members so that the group's interests are protected and their goals realised (24). Our social identity is formed in part by our membership of particular groups. In talk and writing we promote the interests of our group by highlighting the positive things our group (the ingroup) has done and minimising or mitigating the negative things. Conversely, we highlight the negative aspects of those not in our group (the outgroup) and minimise their positive aspects (van Dijk 33). This type of analysis is designed to uncover group ideologies (26), not personal positions, and so when I attribute something to "the Minister" it is in her position as member of a group with social and political power whose interests are served by particular social and economic policies. I do not attribute it to Jocelyn Newman personally.
At the most obvious level, the Minister constructs the Government as ingroup and the Opposition as outgroup. She does this by highlighting the achievements of her government while highlighting the failures of the Opposition. For instance, paragraph six says:
... the Howard Government has embarked upon a range of challenging and difficult policy agenda. We have reformed the tax system, so that it supports our new economic and social structures -- not those of the 1930s. We have reformed workplace relations in this country so that it supports the flexible and productive workplaces needed to provide jobs. As a result of our sound economic management, we have enjoyed strong, non-inflationary economic growth with low interest rates, and high employment growth. This is all the more remarkable when considered in the context of the Asian economic crisis.
By contrast, she says: "the Opposition has failed to support responsible economic policy" and implies that their policies amount to "empty promises" which would be damaging if carried through (para. 11).
There is ingroup/outgroup definition at a more subtle level also. The Minister uses "we" in paragraphs three to five to refer to a broad coalition of Government and community and presents the Government's own interests as being the interests of the broader group, thereby implying that they are really only one interest group when it comes to social and economic policy. Paragraph six reinforces this by showing that "we" (the community) have benefitted from the reforms that "we" (the Government) have embarked upon. This blurring of group boundaries between Government and community is also a way of shifting responsibility as I shall show shortly below.
Before that, it is informative to look at the way welfare recipients are classified. They are not described as doing anything positive. The exception is "older women who have spent their lives caring for others" (para. 35), but who are then characterised as "uncertain" and "discouraged" (para. 35). Caring for others (generally undervalued in our individualistic society) is to be seen as a limited-time option only, with work being the ultimate goal (para. 48-53).
Passivity and dependency are both devalued in our society -- praise is generally reserved for people who are active while "economic security and independence" (para. 9) are assumed to be everyone's goals. In the speech, however, people receiving welfare payments are defined in terms of: the welfare they receive (e.g. 53, 46, 39, 29, etc); their lack of income (e.g. 46, 15, etc.); their lack of paid work (e.g. 24, 25, 26,31, 33, 35, etc.); their age (e.g. 19, 23, 29, 35, 36, etc.); their family responsibilities (e.g. 24, 25, 26, 27, 35, etc); or their disabilities (e.g. 38, 39, 40, etc.). Even the words used are passive rather than active: "people on passive welfare assistance" rather than an active verb like "claiming" or even "receiving". Again, "no adult in paid work" (para. 24), "out of paid work" (para. 25), and "worklessness" (para. 26) are all attributes implying passivity. If she had used instead the expression 'non-working' it would at least imply the possibility of working, which is active.
The term dependency commonly has associations with childhood and addiction which partly carry over to the term "welfare dependency" used by the Minister to describe the state of those receiving income support. These people may still be part of the community (para. 31), but they are contrasted with the community proper: the taxpayers (para. 19) and "hard working men and women of this country" who underwrite them (para. 32).
The new welfare system places people receiving income support under obligation. They are expected to "help themselves" (para. 12, 13, 20), contribute to the economy and society (para. 12, 13), and "use every opportunity to become self-supporting" (para. 19). It becomes clear that the obligation on these people is to do whatever they can to get themselves into sufficient paid work so that they no longer need income support. The specified social contribution is minimal (para. 18, 48, 47, 37, 50). The duty of the responsible citizen is primarily economic -- to get a self-supporting job (para. 29-30).
As we have seen, then, the ingroup consists of the Government and those members of the community who have benefited from the Government's economic reforms. The outgroup consists of those people who, due to low wages or unemployment, are dependent on income support -- i.e. those who have not benefitted from the Government's economic reforms.
I now want to return to the matter of responsibility and the blurred boundaries between Government and community referred to above. The policies, reforms and initiatives are credited to the government (para. 15, 16, and 19 for example), but the responsibilities lie with "the community" and "the individual" (para. 17). "The community" is not a clearly defined entity, yet the Minister says that it "must and should provide income support" for those who cannot get a job despite their best efforts in the case of a genuine failure of the labour market (para. 31) -- a situation she has already claimed does not exist (para. 6).
Throughout the sections on "People with disabilities" and "Parenting Payment", the Minister uses "we" inclusively (Government and community) when talking about what should be done for 'them' and non-inclusively (Government only) when talking about specific programs (50). The effect, as mentioned above, is to assert that the interests of one are the interests of both, but also to transfer the responsibility for doing something for 'them' to the broader community group. Together with the statement that "the community needs to think carefully and thoroughly" about "our" approach to income support and assistance (38), this blurring of boundaries prepares for the announcement of a Reference Group to "guide the development of a comprehensive Green Paper on welfare reform" (54). This "high-level" group will be "seeking submissions from interest groups and the broader community" (56), but the terms of reference and ultimate policies will be set by the government. I would suggest that "we" is used strategically in this speech to create in ordinary community members a sense of inclusion, ownership and responsibility for policies in which they ultimately will have little say. But by transferring the sense of responsibility in this way, the government removes from itself total responsibility when those policies fail.
Will welfare in the coming years really be about enabling people to develop their capacities? I would suggest this is not possible while the people concerned are still conceptualised in terms of passivity and deficiency, and are regarded as not being part of 'our' group, not sharing 'our' interests. Rather, this speech projects a future where those who are self-supporting are encouraged to assume a position of superiority to those who are not, while their own interests are subsumed in the economic and social agendas of the Government. This speech also suggests a society where the only capacity that counts is the capacity to earn an income and people's responsibility to one another is limited to these terms. It seems clear that while the Government will continue to set the rules, it will continue to shirk provision of services, instead handing that responsibility to an ill-defined "community" and increasing the community's sense that those who receive welfare are somehow responsible for their own situation because they have not accepted their "responsibility" and "obligation" to help themselves. Is an economically driven, socially divided society what we want to create as we enter a new century?

References

"Australia Unlimited." Special Liftout. Weekend Australian 8-9 May 1999.
Department of Family and Community Services. "Reference Group on Welfare Reform: Request for Public Submissions." Weekend Australian 23-4 Oct. 1999: 19.
Dickens, Barry. "The Price of Kindness on Mean Streets." Weekend Australian 1-2 Jan. 2000: Review 22-23.
McGregor, Richard. "Operation Dole Bludger." Weekend Australian 28-9 Aug. 1999: Focus 28.
Newman, Jocelyn. "The Future of Welfare in the 21st Century." National Press Club, Canberra. 29 Sep. 1999. 10 Jan. 2000 <http://www.facs.gov.au/internet/newman.nsf/v1/sdiscusswelfare.htm>.
Shanahan, Dennis. "Jobless Put Straight to Work." Australian 17 Dec. 1999: 1.
Van Dijk, Teun A. "Opinions and Ideologies in the Press." Approaches to Media Discourse. Ed. Allan Bell and Peter Garrett. Oxford: Blackwell, 1998. 21-63.

Citation reference for this article
MLA style:

Lisa Gunders. "Welfare in the Future -- What Kind of Society?." M/C: A Journal of Media and Culture 2.9 (2000). [your date of access] <http://www.uq.edu.au/mc/0001/welfare.php>.

Chicago style:

Lisa Gunders, "Welfare in the Future -- What Kind of Society?," M/C: A Journal of Media and Culture 2, no. 9 (2000), <http://www.uq.edu.au/mc/0001/welfare.php> ([your date of access]).

APA style:

Lisa Gunders. (2000) Welfare in the future -- what kind of society?. M/C: A Journal of Media and Culture 2(9). <http://www.uq.edu.au/mc/0001/welfare.php> ([your date of access]).