Australian Multiculturalism for a New Century: Towards Inclusiveness
2 Australian multiculturalism: towards inclusiveness
2.1 The continuing importance of multiculturalism
The Council supports the view that an important measure by which a civilisation should be judged is its treatment of minorities.
It could be argued that the welcome and assistance Australia’s governments and people have given to new settlers, including refugees, reflect our commitment to such a principle: because it is the right thing to do and because the values of justice and equity are deeply embedded in our democratic principles.
These new settlers, in return, have contributed greatly to Australian society, often in the face of major difficulties.
The combined goodwill of all has been crucial in the evolution of our harmonious multicultural society which is a major achievement of Australian democracy.
The dramatic changes in the ethnic and cultural composition of Australia that have occurred in the space of the most recent one and a half generations are equivalent in magnitude to those wrought in Canada over three generations, and over more than six generations in the United States.
Moreover, this transformation has occurred with a high level of tolerance and good humour, and without serious rancour.
By any measure, Australia is a very successful multicultural society, and has frequently drawn praise both domestically and overseas as a model of such a society.
A wide range of multicultural policies and programs have been enacted over the past twenty-five years and Australia’s social, administrative and legal infrastructure has adjusted to the needs and potential of an increasingly diverse community.
Some programs have been initiated by the Commonwealth Government, others by State, Territory and Local Governments.
The education sector, business and unions have also contributed. Much has happened among social, cultural and religious groups and in the wider community because most people have become comfortable with the fact that their daily lives now routinely involve meeting and dealing with people from different backgrounds.
The continuing social harmony of our community owes much to these combined efforts.
Australian society is built upon a comprehensive social infrastructure of laws, institutions and traditions.
While many of the core elements have been in place for over a century, it has evolved considerably in recent decades, and continues to evolve.
Government involvement in the development of Australia started from the beginning of permanent European settlement. The lack of private capital saw, for instance, the colonial governments build railways, open banks and provide support to industry.
In the twentieth century, governments have continued to make massive investments in infrastructure such as roads, schools, hospitals, power generation, water supply, airlines, telecommunications and many other aspects of our economy.
But, equally importantly, Australian governments have long provided social welfare services and funding as an expression of the Australian ethos of justice.
Many government instrumentalities have been, or are now being, privatised. But, whether in the private or public sector, Australia’s social infrastructure continues to be among the fairest and most comprehensive in the world.
It is clearly for the whole community and, subject to the eligibility criteria of the particular programs, provides us all with services and financial support.
These include: subsidies to industry; drought relief to farmers; income support to the needy; medical help for the sick; education for our children; and much more.
Similarly, it is also our social infrastructure that provides a range of settlement services for migrants - again subject to the various eligibility criteria of the programs.
Government policy and expenditure are also used to deliver benefits to particular segments of the community.
For instance, public funds provide a wide range of allowances and rebates to individual and corporate taxpayers; telecommunications and postal costs are equalised for the whole community; roads, bridges and other parts of the physical infrastructure are built and repaired; and a whole range of commercial activities is regulated for the public good.
While this directly benefits some individuals and groups more than others, it is justified on both equity and efficiency grounds.
Multicultural policy has a direct interest in ensuring that all government programs are alert to the issues that arise because of our cultural diversity.
Such issues, therefore, must be considered in the design and delivery of the vast majority of programs that operate under our social infrastructure.
The Council notes that, while a great deal of progress has been made in recent decades in adapting this infrastructure so that it can better meet the needs of Australia’s multicultural population, this effort needs to be maintained as a priority and continually updated to address changing requirements.
Many Australians and institutions of our society have undergone major attitudinal changes - from seeing diversity as a problem to recognising it as a defining characteristic of modern Australia and appreciating its benefits. This transition is, however, incomplete.
This is why the major focus of this report is on achieving a more inclusive phase of multiculturalism that seeks to embrace and be embraced by all Australians, and highlights and seeks to maximise the dividends of our diversity.
The 1989 National Agenda for a Multicultural Australia stated that 'the challenges of a multicultural society do not simply resolve themselves.
Government action - in the form of multicultural policies - is needed in certain areas to promote social harmony, to ensure a fair go and to harness our human resources in the most productive way for Australia’s future’.
The Council believes this is as valid today as then. Australia is, and will always be, a multicultural society, irrespective of our immigration intake, and multiculturalism remains an important means of addressing the challenges and opportunities of our cultural diversity.
For all the reasons detailed above, the Council recommends continued government support for Australian multiculturalism as a fundamental requirement and opportunity arising out of the cultural diversity of Australian society, and that this commitment be reflected in all government policies.
2.2 The meaning of multiculturalism
The Council’s terms of reference require it to consider issues raised by the terminology of multicultural policy, of which the terms 'multicultural’ and 'multiculturalism’ are the most important.*
This is an important matter because the words used, and the way they are used, when discussing issues of race, ethnicity and culture, have a major impact on the way these issues are understood and on community attitudes to them.
* Issues raised by the terminology of multicultural policy are covered through this report. See Appendix E for information.
The adjective 'multicultural’ is frequently used to mean 'multi-ethnic’ or 'culturally diverse’, and there would appear to be little disagreement in the community that this is an appropriate word to describe Australian society.
The Council is, however, aware that the noun 'multiculturalism’, which denotes an active public policy, appears to generate stronger reactions, both positive and negative, than the adjective 'multicultural’.
Among the questions asked in the Council’s Issues Paper Multicultural Australia: The Way Forward was: 'Is multiculturalism an appropriate term to describe a policy for managing cultural diversity, or has it outlived its usefulness?
If the latter, what alternative term would you suggest?’
The answers provided were quite polarised and some submissions reflected a major misunderstanding of the meaning of the term 'multiculturalism’ as it is used in public policy.
Most saw it positively, as a policy that delivers significant benefits to Australia and is needed to ensure justice and equity for all Australians.
On the other hand, some submissions suggested that multiculturalism applies only to migrants from a non-English-speaking background and seems to deny Australian culture.
A number criticised what they perceived as overemphasis on the rights of particular groups without stressing their corresponding obligations.
A few went so far as to say that multiculturalism influences the scale of the immigration program and the ethnic origin of migrants, and is threatening community harmony in Australia.
There is also a perception that certain people are able to escape criticism about their views or behaviour because of their ethnicity or background.
Further, those who had a problem with the term also tended to question the value and criticise the content of multicultural policy, while those who supported the continuing use of the term tended to support the policy.
Accordingly, the Council believes that changing the name of the policy may not necessarily result in greater acceptance of it.
Those who oppose multiculturalism would probably continue to oppose it under a different name.
Alternative terms that have been suggested include: diversity; cultural diversity; human diversity; unity in diversity; Australia’s diverse culture; multicultural citizenship; or cosmopolitan Australia.
It has also been suggested that 'multiculturalism’ could be used in conjunction with a slogan, such as: One People, Many Cultures; Many Peoples, One Australia; Many Peoples, One Community; All for Australia; or For All Australians - Developing our New Nationhood.
Having considered the above suggestions, the Council believes, however, that the term 'multiculturalism’ has served the Australian community well and best describes our positive acceptance of the reality and significance of our cultural diversity and the proactive approach to addressing the challenges and opportunities arising from it.
The Council also notes that opinion polls indicate a high level of support for multiculturalism (see Question and Answer box).
While the term has drawn criticism from some segments of the community, and this is reflected in some of the submissions the Council has received, the Council believes there is no alternative noun that would work better.
Also, any alternative term would soon attract similar criticism from those critical of the term or policy of multiculturalism. For all these reasons the Council recommends the retention of the term 'multiculturalism’.
Further, in order to recognise that our implementation of multiculturalism is unique and reflects Australia’s diverse heritage, history, democracy, culture and identity, it recommends that the prefix 'Australian’ be used whenever appropriate.
The Council acknowledges the challenge arising from the wide differences in understanding of the meaning of the term 'multiculturalism’, particularly between those who are positive and those who are negative about multicultural policy.
The Council believes that to achieve the objective set out in its terms of reference of 'ensuring that cultural diversity is a unifying force for Australia’, it is essential that there is clarity in the understanding and use of the term 'multiculturalism’.
The Council therefore recommends the adoption of the following definition of multiculturalism:
Australian multiculturalism is a term which recognises and celebrates Australia’s cultural diversity. It accepts and respects the right of all Australians to express and share their individual cultural heritage within an overriding commitment to Australia and the basic structures and values of Australian democracy. It also refers to the strategies, policies and programs that are designed to:
- make our administrative, social and economic infrastructure more responsive to the rights, obligations and needs of our culturally diverse population;
- promote social harmony among the different cultural groups in our society;
- optimise the benefits of our cultural diversity for all Australians.
While Australian multiculturalism values and celebrates diversity, it is not an 'anything goes’ concept since it is built on core societal values of mutual respect, tolerance and harmony, the rule of law and our democratic principles and institutions. It is also based on an overriding commitment to Australia.
The Council recommends that the above definition of Australian multiculturalism be clearly explained through a communication strategy that is designed to reach as many individuals and groups of the Australian community as possible.
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