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Chapter
23 - Australia in the Asia-Pacific region pp. 537-560
Chapter DOI: http://dx.doi.org/10.1017/CHO9781107445758.056
Cambridge University Press
23
In 1872 the colonies of Australia were connected to the British imperial cable
network and by the time of Federation England was 100 minutes away from
Australia, and 80 minutes from China. Although these technological developments made the world smaller, the new nation communicated with Asia and
the Paciic region through the British network. This imperial arrangement
was symbolic of a general pattern that continued well into the twentieth
century.
Positioned within the British and then the US sphere, a full Australian
engagement with the Asian region was slow.1 There were individuals who
sought to build a speciically Australian relationship with the countries
of Asia, especially in periods of heightened regional consciousness. The
mid-1930s with the world economic crisis and the continued rise of
Japan was one such period. The years immediately following World War
2 constituted another. A third occurred in the late 1980s, when the scale
of Northeast Asias economic potential became apparent. For most of the
twentieth century, however, Australians who were concerned about the
wider world concentrated on their imperial relationships. Richard Casey, a
future Minister of External Afairs, observed in 1928 that information about
Asia was vague, muddled and defective.2 Even when faced with the Japanese
threat in the 1930s, there was little community interest in Asian afairs, and a
lack of interest in foreign relations generally.3
Although Australian universities created specialist expertise on the Asian
region in the second half of the twentieth century, this seldom reached
1 Michael Wesley, There Goes the Neighbourhood: Australia and the Rise of Asia (Sydney:
UNSW Press, 2011), pp. 19.
2 Quoted in Shannon Smith, Towards Diplomatic Representation, in David Goldsworthy
(ed.), Facing North: A Century of Australian Engagement with Asia. Volume 1, 1901 to the 1970s
(Melbourne University Press, 2001), p. 62.
3 Ibid., p. 63.
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policy. Australia had no diplomatic missions of its own until 1940, when
legations to the United States, China and Japan were established: its oicial information was gathered through the British Foreign Oice and the
Royal Navy. Most countries in the region were under European, American
or Japanese rule. As a result, apart from Tokyo, the centres of power for
Asia and the Paciic were London, Paris, The Hague, Washington and
Berlin.
Alfred Deakin, who held oice for much of the irst decade, was pivotal
in developing regional policy for the newly federated nation. He was a
regionalist in the sense that his policies were strongly inluenced by Australias
geographical location,8 but he was exceptional in also taking a genuine
interest in India and other Asian countries and civilisations. His nationalism
was conceptualised and structuredin racialised terms,9 with citizens rights
extending only to the British race.10 While racialised nation-state building was
common at the time,11 the Australian project was marked by its determined
exclusion of people from neighbouring Asia and the Paciic. Attempting to
establish a new, British nation on the periphery of a populous region, Deakin
and other Australian leaders sought more restrictive immigration laws than
Britain favoured. The Immigration Restriction Act and the Paciic Islands Labourers
Act passed by the irst Commonwealth parliament were commonly referred
to as the white Australia policy, a policy that characterised Australia in the rest
of the region even after it had been overturned in the 1960s and 1970s.12
Its regional location also led Australia to diverge from the British
government in defence policy. Londons strategic priority at the beginning
of the century was the rising power of Germany, and it viewed Japan as a
potential strategic ally and trade partner. The British hoped that the emergent
Asian power would check Russias southern advance, and the Anglo-Japanese
Alliance of 1902 allowed Britain to withdraw most of its Paciic naval force
to Europe. In contrast, Australians tended to see the Japanese empire as a
security threat and Londons policy caused alarm, especially after Japans
defeat of Russia in 1905. Australian perceptions of an inadequate imperial
8 Tomoko Akami, The Liberal Dilemma: Internationalism and the Institute of Paciic
Relations in the USA, Australia and Japan, 19191942, PhD thesis, ANU, 1996, p. 119.
9 Marilyn Lake and Henry Reynolds, Drawing the Global Colour Line: White Mens Countries
and the Question of Racial Equality (Melbourne University Press, 2008), p. 156.
10 John Docker, Can the Centre Hold?: Conceptions of State 18901925, in Sydney
Labour History Group (ed.), What Rough Beast?: The State and Social Order in Australian
History (Sydney: George Allen & Unwin, 1982), p. 61.
11 Lake and Reynolds, Drawing the Global Colour Line, p. 4.
12 David Dutton, A British Outpost in the Paciic, in Goldsworthy (ed.), Facing North, p. 32.
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defence system in the region led Deakin to seek support from the United
States another emerging Paciic power and the Great White Fleet was
given a warm welcome when it visited Australia in 1908. In the following
year the government began forming the Royal Australian Navy (RAN), the
irst navy of a British Dominion.
While regionally minded Australians tended to view Asia in terms of
threat, some saw the Paciic as a legitimate Australian sphere of inl uence,
an aspiration that has been described as Australian imperialism.13 Worried
about French and German advances, Deakin and his fellow colonial politicians had called from the 1880s for an Australasian Monroe Doctrine for
the South Paciic.14 They demanded the British state annex not only the
Fiji islands, but also New Guinea, the New Hebrides and the Solomon
Islands.15 Like the Meiji state in Northeast Asia in the same period, the new
Commonwealth of Australia viewed the islands of the south-west Paciic
as a potential security bufer zone. Control of Papua was taken over from
Britain in 1902, and it became an Australian territory in 1906. Australian
imperial aspirations were pursued, however, within the framework of the
British Empire.16 In Deakins view, just as Australians considered British
imperial interests to be their own, so colonial interests ought to be considered and felt to be Imperial interests.17 He therefore expected the Royal
Navy to protect Australia in the Paciic.18
Some also viewed Asia as a market. The State governments and Australian
producers sought to export pastoral and agricultural products before
Federation, and they continued to do so in the new century. New South Wales
sent a trade commissioner to Kobe in 1903 and dominated the wool trade with
Japan in the following decades. Other States sent agents to Shanghai, Hong
Kong, Manila, Singapore and Java.19 As strategic and commercial interests
grew, so did the realisation of a need for greater knowledge of the region.
In 1909 the federal government set up a small naval intelligence unit, which
13 Roger C. Thompson, Australian Imperialism in the Paciic: The Expansionist Era, 18201920
(Melbourne University Press, 1980).
14 Neville Meaney (ed.), Australia and the World: A Documentary History from the 1870s to the
1970s (Melbourne: Longman Cheshire, 1985), pp. 549, 634.
15 Meaney, The Search for Security in the Paciic, pp. 1722.
16 Gordon Greenwood and Charles Grimshaw (eds), Documents on Australian International
Afairs 19011918 (Melbourne: Thomas Nelson, 1977), pp. 434.
17 Meaney (ed.), Australia and the World, p. 84.
18 Adam Hughes Henry, Independent Nation: The Evolution of Australian Foreign Policy
19011946 (Darwin: Charles Darwin University Press, 2010), p. 1.
19 Tweedie, Trading Partners, pp. 3650.
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perspective: Latham referred not to the Far East but the Near East.45 Third,
it ran counter to the League of Nations decision of 1933 to reject Japans
post-1931 claims in Manchuria. In exchange, Latham sought to safeguard
Australias interests in the Paciic by obtaining a guarantee from the Japanese
government not to fortify its own Paciic mandates. The government used
the mission to promote its appeasement policy and Australian newspapers
presented largely pro-Japan views, expressing a degree of admiration for the
countrys industrialisation and social reforms, and contrasting these with the
disorder in China.
Fourth, the mission suggested the Lyons governments non-compliance
with imperial trade preference policy, which had been decided at the British
Empire Economic Conference at Ottawa in 1932. Still recovering from the
Depression, Australia sought additional markets and saw them in Asia. The
mission, which visited Japan, the Dutch East Indies, Malaya and China,
resulted in the appointments of trade commissioners to Shanghai, Tokyo
and Batavia in 1935. A proposed bilateral trade treaty with Japan did not materialise, however.46 Rather, after the Lyons government increased restrictions
on non-Empire imports in 1936, Japan cut its imports of Australian wool.
Members of the IPR and AIIA argued strongly against this Australian policy
of trade diversion and had some success in changing public sentiment.47 In
1938 the economist John Crawford even put forward an innovative idea of
economic appeasement of Japan and collective agreement on trade as an
alternative security policy.48
In developing regional policies independently from Britain, the
Lyons government expanded its diplomatic capacity, creating a separate
Department for External Afairs in 1935. In coordination with the Japanese
Ambassador in Britain, Lyons also proposed a non-aggression pact among
the Paciic powers in 1937.49 After this proposal failed, his government decided
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1920s and 1930s, these specialists focused more on contemporary afairs than
was usual among Oriental Studies scholars in Europe.58
The role Australia itself might play in Asias radical transition was given
sharp attention in the immediate post-war period. In certain ways Australia
mattered more then than subsequently. As a war victor, and with a centurys
experience of developing modern legal, political and educational institutions, Australia was a country of substance, while most people in Asia were
in the early stages of postcolonial state building or still locked in struggle
with the old colonial powers. Japan was devastated and under Allied occupation; war was developing in Korea; in exchange-rate terms Australia had an
economy no smaller than Chinas. What we are claiming now, the Minister
for External Afairs, H.V. Evatt, declared in a conident tone, is a primary
and principal responsibility in determining the future of the particular region
in which we live.59 There was a strong belief that Australia had to oppose the
Indonesian claim to Dutch New Guinea, a vital defence bufer.60 Eggleston
contemplated Australia extend[ing] her control over the whole of New
Guinea, the Solomons and New Hebrides and, if France would make a deal,
New Caledonia. He also suggested that Australia promote a concert of
powers to ensure post-war regional stability.61
Eggleston considered that the collectivism inl uential in his country
could be an advantage to Australias Asian relations. There are already
signs, he observed in 1947, that Asian people feel far more ainity with the
social philosophy of Australia than to the school of rugged individualism
presumably associated with the United States.62 The inl uential Sinologist C.P.
FitzGerald believed Australians had enough memory of their own colonial
past to feel sympathy rather than antagonism to the nations of Asia who have
recently become self-governing.63 In John Burtons view, the countries of Asia
wanted technical and administrative advice but did not feel like turning to
the one-time colonial power French, Dutch, British nor do they wish too
close a connection with United States private enterprise. They saw Australia
as a country which has inheritance from the West without being a colonial
58 Anthony Milner, Approaching Asia, and Asian Studies, in Australia, Asian Studies
Review, 23, 2 (1999): 193203.
59 Quoted in Hugo Wolfsohn, Foreign Policy, in Peter Coleman (ed.) Australian
Civilization: A Symposium (Melbourne: Cheshire, 1963), p. 233.
60 Crawford (ed), Ourselves and the Paciic, p. 269.
61 Osmond, Frederic Egleston, pp. 224, 240.
62 Ibid., p. 297.
63 C.P. FitzGerald, Australia and Asia, in Gordon Greenwood and Norman Harper (eds),
Australia in World Afairs 19501955 (Melbourne: F.W. Cheshire, 1957), p. 201.
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allies, but when the Coalition won oice at the end of 1949 the new Minister
of External Afairs, Percy Spender, took up the challenge of forging an
Australian role in the region. He was central in establishing ANZUS and also
in launching the Colombo Plan, which was designed to foster closer relations
with the new Asian members of the British Commonwealth and promote
political stability.69 By 1951 the United States joined the Plan and soon became
the largest donor as the scheme reached well beyond the Commonwealth to
become an instrument for winning hearts and minds in the Cold War.
In the words of Spenders successor, Richard Casey, ANZUS gave
Australia close and re-assuring association with American planning and
policy-making; but it also meant Australian relations with the Asian region
were to a large extent shaped and limited by Cold War imperatives.70 The
Korean and Vietnam military commitments illustrated this clearly as did
Australias continued support for the containment of China. In 1954 Australia
signed the treaty establishing the South East Asia Treaty Organisation
(SEATO), along with the United States, New Zealand, France, Britain,
Pakistan, the Philippines and Thailand a grouping of countries that would
not win the approval of the emerging nationalist forces in the region (including Indonesia) and was explicitly opposed to China.
It is incorrect to view Australia in these years as merely following Britain
or the United States. Just as Australia encouraged these powers to be wary of
Japan in the early twentieth century, so from the early 1960s the government
urged American military action in Indochina, seeing this as enhancing
Australian security.71 The Australian government also favoured what the
chiefs of staf called a forward defence strategy that would provide strength
in depth for Australia,72 and sent approximately 50,000 Australian troops
to Vietnam from 1965 to 1972 (with some 500 killed and 3,000 wounded).
Although the communists were victorious, some Australians argued that
making a stand in Vietnam gave other states in Southeast Asia the respite to
gain strength. Other commentators, such as the former diplomat Gregory
Clark, believed that the Australian leadership including the Department of
External Afairs was poorly prepared to understand political developments
in the Asian region.73
69 Giford, The Cold War across Asia, pp. 1734.
70 W.J. Hudson, Casey (Oxford University Press, 1986), p. 242.
71 David Lee and Moreen Dee, Southeast Asian Conl icts, in Goldsworthy (ed.), Facing
North, p. 282.
72 Ibid.
73 Gregory Clark, In Fear of China (Melbourne: Lansdowne, 1967).
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The Vietnam War did help to stimulate a wider public debate in Australia
about the countrys relationship with the region. Jim Cairns, a leading member of the Labor Party and an eloquent opponent of Australias
involvement in the Vietnam War, complained that for Australians living
in al uence-induced comfort under the physical and psychological wing of
the United States Asia remained foreign and not understood. Although
new forces were emerging in the region, Cairns insisted that Australia
could ind a way to live with Asia.74 On the other side of politics, Prime
Minister Harold Holt sought to promote a greater public consciousness of
Australias Asian context, and to lift Australias proile in the region itself.
His moves to dismantle the white Australia policy were designed to further
these aims.
Other conservative leaders pressing for stronger Australian engagement
with the Asian region in the Cold War years included Casey, the Minister for
External Afairs from 1951 to 1960. Having initially urged diplomatic recognition of China, he became an active diplomat, expressing respect for Asian
aspirations and expanding Australias diplomatic representation. His widely
read Friends and Neighbours argued that although Australia was a European
community, Australians were nevertheless living alongside and working
with Asia.75 Casey urged a forgiving policy toward Japan, and in 1957 the
powerful Minister for Trade, John McEwen, took the brave step of signing
a trade agreement with that former enemy. McEwen recalled that in setting
out to convince the government and the Australian public that the Japanese
could be trusted, he had taken my political life in my hands.76 By the late
1960s some 26 per cent of Australian exports were going to Japan, and only
11 per cent to Britain. In the early 1950s, 8 per cent had gone to Japan and
36 per cent to Britain.
Some public commentators argued for a more independent Australian
role in the region. Macmahon Ball said that while Australians in the past
had not needed to be actively concerned with how the peoples of East Asia
reacted to our policy, today we can only ignore their attitude at our peril.
The antagonism of one or two countries in South-East Asia, he pointed
out in 1961, would hardly matter much to the United States; it might matter
74 J.F. Cairns, Living with Asia (Melbourne: Lansdowne, 1965), pp. 2, 81.
75 R.G. Casey, Friends and Neighbours: Australia and the World (Melbourne: Cheshire, 1954),
p. 16; Werner Levi, Australias Outlook on Asia (East Lansing: Michigan State University
Press, 1958), ch. 12.
76 Peter Golding, Black Jack McEwen: Political Gladiator (Melbourne University Press,
1996), p. 192.
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diference was removed from government policy; and then the Fraser
government (197583) took the decisive practical step of admitting some
76,000 Indochinese refugees.81
Australia also moderated its image as a colonial power with the granting
of independence to Papua New Guinea in 1975. Although Australia had
been responsible for developing its institutions and society since 1920,
the independent state tended to be politically unstable, with a weak and
dependent economy, secessionist movements, corruption and other problems.
Far from disclaiming any continuing responsibility, Paul Keating relected that
as prime minister, I probably spent more time dealing with the complex,
psychologically sensitive bilateral relationship with Papua New Guinea than
with any other relationship, apart from Indonesia.82 As one specialist on Asian
relations observed in 1991, the leverage of Australia in foreign afairs, or the
credibility of Australia in foreign afairs, is substantially diminished if there is
a mess in Melanesia.83
A further consequence of the decline of imperial protection was a revision
of Australian defence thinking. In place of forward defence, the Fraser and
then the Hawke government (198391) stressed the need for greater defence
self-reliance, and gave stronger emphasis to countries of primary strategic
interest to Australia. There was debate about how far into the Asian region
this area should reach.84 The inl uential Dibb Report (1986) argued the need
to recognise that the archipelago to the north is the area from or through
which a military threat to Australia could most easily be posed.85 Another
response was greater engagement with regional security processes seen as
opportunities to draw Australia into conidence-building measures such as
collaborative military training and strategic discussions. Australia had tried
without success to establish a non-communist Asia and Paciic Council
81 Moreen Dee and Frank Frost, Indochina, in Peter Edwards and David Goldsworthy
(eds), Facing North: A Century of Australian Engagement with Asia. Volume 2: 1970s to 2000
(Melbourne University Press, 2003), p. 196; Goldsworthy et al., Reorientation, in
Goldsworthy (ed.), Facing North, p. 329.
82 Paul Keating, Engagement: Australia Faces the Asia-Paciic (Sydney: Macmillan, 2000),
p. 205.
83 Ross Garnaut, quoted in Graeme Dobell, Australia Finds Home: The Choices and Chances
of an Asia Paciic Journey (Sydney: ABC Books, 2000), p. 150.
84 Roderic Pitty, Strategic Engagement, in Edwards and Goldsworthy (eds), Facing
North, pp. 527.
85 Paul Dibb, Review of Australias Defence Capabilities: A Report to the Minister of Defence
(Canberra: AGPS, 1986), p. 4; Garry Smith, Australias Political Relationships with
Asia, in Mark McGillivray and Gary Smith (eds), Australia and Asia (Oxford University
Press, 1997), pp. 10912.
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in the 1960s to deal with external threats from Indochina and to provide
a framework for more widespread cooperation.86 In 1974 Australia became a
Dialogue Partner of the Association of Southeast Asian Nations (ASEAN),
the more successful regional grouping that has gradually incorporated every
country in Southeast Asia. Then, in the late 1980s and early 1990s, as the Cold
War came to a close, Australia was active in building the ASEAN Regional
Forum, a security dialogue bringing together ASEAN and the Northeast
Asian states of China, Japan and South Korea with other interested countries, including the United States. In 1992 Australian security specialists joined
Asian, New Zealand and North American colleagues in a meeting in Seoul
in order to determine ways to promote regional security cooperation; this
led to the formation of the Council for Security Cooperation in the Asia
Paciic.87
In economic relations a new direction was also determined, in reaction
to the extraordinary economic growth in Japan and other countries in East
Asia. By the end of the 1980s Australia had an economy less than a quarter
the size of Chinas; it had been three-quarters the size in 1965. The igures for
Japan were approximately an eighth and a ifth.88 The basis for an Australian
response had been established in 1956 with a BritishAustralian trade
agreement, which ended the preferential tarifs that had limited Australias
capacity to expand trade with Asia. In 198891 the Hawke government noted
the continued failure to take advantage of the global economic shift to Asia,
and took the dramatic step of unilateral tarif reductions, speciically to
encourage trade lows with partners in the geographic region.89
Building regional economic institutions was another strategy. In 1980
John Crawford was central in initiating the Paciic Economic Cooperation
Council, which sought to promote a Paciic community. This community,
also strongly supported by Japan, was to encourage economic
liberalisation and be open to all the countries of the Paciic, including the
United States and Canada.90 In 1989 Prime Minister Hawke proposed a
86 Amitav Acharya, Whose Ideas Matter? Agency and Power in Asian Regionalism (Ithaca:
Cornell University Press, 2009), p. 82.
87 Desmond Ball and Kwa Chong Guan (eds), Assessing Track 2 Diplomacy in the Asia-Paciic
Region: A CSCAP Reader (Singapore: Rajaratnam School of International Studies, 2010).
88 Ross Garnaut, Australia and the Northeast Asian Ascendency (Canberra: AGPS, 1989), p. 4.
89 Tweedie, Trading Partners, p. 200; Ross Garnaut, Social Democracy in Australias Asian
Future (Canberra: Asia Paciic Press, 2001), p. 52.
90 Roderic Pitty, Regional Economic Co-operation, in Edwards and Goldsworthy
(eds), Facing North, 2003, pp. 1417; Stuart Harris, Policy Networks and Economic
Cooperation: Policy Coordination in the Asia-Paciic Region, Paciic Review, 7, 4 (1994):
38195.
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had joined an Asian organisation where the United States was not a player.
Both the USA and Russia, however, eventually joined in 2011.94
Mahathir had been hostile but perceptive. In the decades following
the Nixon Guam statement positive initiatives had been taken to change
Australias immigration policies, defence posture and economic ties with the
Asian region. Australia had also seen the importance of creating institutional
structures to promote regional cooperation. The efort, however, had always
been to build Australia into a US-oriented Asia-Paciic rather than an Asian
entity, conveying to some an Australian reluctance to engage directly with
the societies of Asia itself.
The observation would apply to the majority of Australians, but not all. A
small number, for instance, had been engaging culturally over a long period:
the architect Hardy Wilson, composer Peggy Glanville-Hicks, poet Harold
Stewart, painter Ian Fairweather and novelist Christopher Koch had not
merely invoked Asian themes but had responded creatively to the new aesthetic perspectives and artistic styles they encountered.95 Other Australians
had begun to open up the identity dimension of Australias relationship with
the Asian region. A 1968 conference asked if Australia was a part of Asia:
one answer, however, was that Australia did not share common social institutions, religious attitudes, or styles of political behaviour with most Asian
countries. The Australian National Universitys Wang Gungwu reported
that he had never met the Asian who ever thought of Australia as part of
Asia,96 and Melbourne Universitys Sibnarayan Ray said the only country
that remotely compares with the Australian situation is Israel in the Arab
world.97
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Stephen FitzGerald, Is Australia an Asian Country? (Sydney: Allen & Unwin, 1997), p. 4.
Garnaut, Australia and the Northeast Asian Ascendancy.
Milner, The Rhetoric of Asia, p. 33.
Greg Sheridan, Living with Dragons: Australia Confronts Its Asian Destiny (Sydney: Allen
& Unwin, 1995), p. 18.
102 John Passmore, Europe in the Paciic, Quadrant, 36, 9 (1992): 910.
103 F. Rawdon Dalrymple, East and West from Down Under (Austin: Edward A. Clark
Center for Australian Studies, University of Texas, 1992).
104 Hugh Mackay, A National Identity? Wait and See, in Joan Beaumont (ed.), Where
to Now? Australias Identity in the Nineties (Sydney: Federation Press, 1993), pp. 1225.
On the efects of Hansonism, see James Cotton and John Ravenhill, Australia in
World Afairs 19962000, in James Cotton and John Ravenhill (eds), The National
Interest in the Global Era: Australia in World Afairs 19962000 (Oxford University Press,
2001), pp. 67.
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113 Pamela Hansford, The Impossible Aesthetic: Asia and Australian Visual Arts, in
Maryanne Dever (ed), Australia and Asia: Cultural Transactions (Honolulu: University
of Hawaii Press, 1997), pp. 89.
114 John Ingleson (ed.), Asia in Australian Higher Education (Sydney: Asian Studies Council,
University of New South Wales, 1989), p. 33.
115 Garnaut, Australia and the Northeast Asian Ascendancy, pp. 304, 317.
116 Australia in the Asian Century: White Paper (Canberra: Australia in the Asian Century
Task Force, 2012).
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