Foreign affairs and immigration

The election of the Whitlam Government was a turning point in Australia's international outlook. The Whitlam Government moved quickly to re-shape Australia's foreign relations. It sought to abandon the relics of the colonialism and Australia's hostile, fearful and suspicious stance towards its own region. The arrival of the Whitlam Government marked a new period of involvement, amity and goodwill between Australia and its neighbours in the Asia-Pacific region. Cold War paranoia gave way to constructive engagement. The most profound example of this was the Whitlam Government's decision to establish diplomatic relations with China. Whitlam sought to reforge Australia's reputation in the international community, as an enlightened, independent and constructive player in world affairs.

The denunciation of Australia's history of racial prejudice was central to this. Accordingly, the vestiges of the White Australia Policy were removed, and the concept of a multicultural Australian society became government policy for the first time.

Granted independence to Papua New Guinea

Gough Whitlam was a strong advocate for decolonisation. Accordingly, he promoted self-government and eventually, full independence for Papua New Guinea. The Australian government had administered Papua since 1906, and New Guinea since 1919.

Once the Whitlam Government was elected, this commitment was swiftly implemented. Self-government began on December 1, 1973. From that time, the functions of government were progressively transferred from the Australian Government to the Papua New Guinea administration, led by Chief Minister and later Prime Minister Michael Somare.

Full independence came on September 16, 1975. In introducing legislation to the Australian parliament to grant Papua New Guinea's independence, Whitlam commented⁵⁹:

'By an extraordinary twist of history, Australia, herself once a colony, became one of the world's last colonial powers. By this legislation, we not only divest ourselves of the last significant colony in the world, but we divest ourselves of our own colonial heritage. It should never be forgotten that in making our own former colony independent, we as Australians enhance our own independence. Australia was never truly free until Papua New Guinea became truly free'.

Established diplomatic relations with China

In 1971, as Opposition Leader, Whitlam had taken a political gamble in visiting China for talks with senior politicians in the Chinese government (including Premier Zhou Enlai) to discuss the terms on which recognition might take place. Given the influence of cold war fears over Australian politics that still prevailed at this time, it was a politically risky venture, and one for which he received some criticism as being damaging to Australia's alliance with the United States, which did not have diplomatic relations with China. Whitlam's bold initiative was vindicated when it was revealed that just as Whitlam's ALP delegation was leaving Beijing, US National Security Adviser Henry Kissinger was arriving to arrange President Nixon's visit to China.⁶⁰

Within three weeks of taking office, the Whitlam Government had negotiated an agreement with the People's Republic of China to establish diplomatic relations between that country and Australia. This move marked a radical shift in Australia's outlook on the world, and its region.⁶¹ For decades, Australia had looked to China with distrust, anxiety and paranoia.⁶² The Whitlam Government's establishment of diplomatic relations allowed a mature cultural, social and economic relationship to develop.⁶³

To learn more about this significant change in Australia's foreign policy, see our online exhibition Whitlam and China.

Withdrew Australia's remaining troops from Vietnam

Whitlam and the Labor Party had been critical of Australia's involvement in the Vietnam War, and the conscription of troops associated with it for many years. As Opposition leader, he described the war as "disastrous and deluded."⁶⁴ Whitlam advocated a negotiated peace settlement, and the de-escalation of the conflict.

The Vietnam War was one of the most the divisive issues in Australian society in the 20th century. The conscription of soldiers as young as 20 years old to support Australia's military involvement was similarly controversial.

Speaking against the war, Whitlam said that not only was the violence and horror of the war putting a heavy toll on the people of Vietnam, Australia's involvement in it was against its own foreign policy interests.

In his 1969 election policy speech, Whitlam argued that:

"The sole purpose of Australia's participation in the civil war in Vietnam was to keep United States military forces involved on the mainland of Asia. The sole achievement of that war—the sole consequence of the devastation of an entire country, the destruction of a proud and civilised nation, the loss of over 300 Australian lives, the political destruction of one of the strongest presidents in America's history, the near disruption of the American political system—has been to hasten, to make certain, that American withdrawal from our region which our participation was supposed to delay or prevent. Australian arms remain undimmed; but Australian policy has never suffered so total and unrelieved a defeat."⁶⁵

The process of withdrawal had effectively begun in 1970 when Prime Minister Gorton announced that the 8th Battalion of the Royal Australian Regiment would not be replaced at the end of its tour of duty, and his successor, William McMahon subsequently announced additional troop withdrawals.⁶⁶ Whitlam had been vehemently opposed the escalation of the war, Australia's involvement in it, and the conscription enacted to sustain it throughout the 1960s.

On its seventh day in power, the Whitlam Government announced the withdrawal of Australia's remaining troops, which were designated as 'military advisers'.⁶⁷ The Government officially ended Australia's involvement in the war on January 11, 1973 when Governor General Paul Hasluck issued an official proclamation formally ending hostilities.⁶⁸ The eleven year conflict had been the longest in Australian military history.⁶⁹ 60,000 Australians had served during the Vietnam War. 521 were killed, and 3,129 had been wounded.⁷⁰

Reorientated Australia's relationship with Asia

The election of the Whitlam Government marked a turning point in Australia's relationship with Asia. Australia's outlook on Asia until this time had been characterised by its security fears in the Cold War environment. The Whitlam government sought to engage with Asia on terms other than Cold War security concerns, and involve Australia in its region in a deeper, broader way. In his 1969 election policy speech, he state that Australia is not "'the policeman on the beat', we are not 'the sheriff', we are not 'part of the posse'. We see Australia as a good neighbour."⁷¹

In power, his government increased diplomatic engagement with Asian nations, establishing diplomatic relations with the People's Republic of China, the Democratic Republic of Vietnam and the Democratic People's Republic of Korea.⁷² Whitlam initiated a dialogue partnership with the Association of South East Asian Nations (ASEAN) and pledged Australian financial assistance to its development program^.73

Whitlam himself visited many nations in the region during his Prime Ministership, including China, Japan, Indonesia, India, Malaysia, Laos, Singapore, the Philippines, Thailand, Fiji, Papua New Guinea, and Burma.⁷⁴

One of the greatest impediments to deeper engagement with Asia was Australia's history of racial prejudice. Whitlam sought to improve Australia's standing in the region by removing the vestiges of the White Australia Policy in immigration program, by ratifying the Convention on the Elimination of Racial Discrimination and by actively combating racial prejudice within Australia itself.⁷⁵ These measures were intended to dispel the impression of Australia as a society with prejudices and hostilities towards the people of the Asia-Pacific region.

For Whitlam, there were both moral and practical imperatives to this position. Whitlam saw it as morally reprehensible that Australia should practice racism in its official policies toward its own indigenous population, or non-white migrants who sought to start a new life in here. Whitlam argued that if Australia was to criticise racism in other countries, it needed to confront, and overcome racial prejudice within its own borders. There was also the practical imperative that Australia more closely integrate itself with its own region – an objective that would remain unachievable whilst it continued to discriminate against the people of neighbouring nations. Whitlam later wrote that "it was the concern of my Government that Australia should show a clean face to the world in terms of racial matters."⁷⁶

Increased foreign aid spending The Whitlam Government created the Australian Development Assistance Agency (the ADAA) as an organisation dedicated to funding development projects around the world.⁷⁷ The ADAA was the predecessor of the present-day AusAID. Australia's expenditure on aid was raised from $220 million in 1972/73 to $350 million in 1975/76.⁷⁸ Most of this development assistance was directed towards nations in the Asia-Pacific region, with a particular emphasis on Papua New Guinea.⁷⁹		Abolished the White Australia Policy Although many aspects of the White Australia Policy had been removed in the years prior to the election of the Whitlam Government, discriminatory measures in immigration remained. Certain privileges and advantages were given to white or British migrants, and denied to others. The Whitlam Government acted to remove this discrimination. Before the election of the Whitlam Government, the Assisted Passage Migration Scheme, which provided financial assistance to new migrants, discriminated against immigrants on the basis of their ethnicity. The Whitlam Government extended the scheme to include immigrants of any ethnicity.⁸⁰ Eligibility for citizenship was made more equitable. Before the Whitlam Government passed the Australian Citizenship Act 1973, migrants from non-Commonwealth nations had to reside in Australia for five years before they were eligible for citizenship, whereas Commonwealth migrants could qualify after one year of residing in Australia.⁸¹ The Whitlam Government's legislation meant that all immigrants, regardless of their origin, were eligible after three years' residence in Australia.⁸²
		Improved support services for immigrants Multicultural radio stations and telephone translation services were introduced to provide improved support for new migrants once they arrived in Australia.⁸³ The Whitlam Government also provided additional educational support for migrant children, with additional teachers, learning spaces, and specialised classes for new migrants at school.⁸⁴ Migrant education centres were established in most state capitals and multilingual welfare officers were employed to assist migrants to access social services.⁸⁵
Introduced the policy of multiculturalism The Whitlam Government was responsible for the introduction of the official policy of multiculturalism, whereby government policies would encourage the notion that cultural differences within society should be accepted and celebrated.⁸⁶ The first expressions of this policy were the introduction of new translation services for migrants, the establishment of multicultural radio services, and the incorporation of multiculturalism into health, welfare and education policy.⁸⁷ Immigration Minister Al Grassby was an enthusiastic advocate of the principles of multiculturalism, passionately arguing for the benefits of cultural diversity and the importance of social harmony and tolerance^.88
		Fought atmospheric nuclear testing in the Pacific Throughout the 1960s and 1970s, the French government conducted atmospheric nuclear tests at sites in French Polynesia. The fallout spread throughout the region, to the extent that background radiation in Australia increased by 2% during this time.⁸⁹ The Whitlam Government strongly opposed this atmospheric nuclear testing because of its impact on human health, and the fact that it violated a resolution of the United National General Assembly.⁹⁰ On May 9, 1973, the Australian and New Zealand governments took France to the International Court of Justice, seeking an injunction against further testing.⁹¹ On June 22, the injunction was granted.⁹² Despite this interim order, the French Government continued atmospheric testing, but gave notice that it would cease these tests in 1974.
Took a stand against apartheid The 1971 tour of Australia by the South African rugby team – the Springboks - had resulted in large protests in Australian cities, and prompted a boycott from six Australian players, who refused to play against a racially selected team.⁹³ When Ansett and Trans Australia Airlines announced that they would not fly the team, Prime Minister McMahon said that he would deploy the Royal Australian Air Force to carry them instead.⁹⁴ Whitlam argued that by allowing racially selected teams to visit, Australia was allowing itself to be used in the legitimation of 'immoral policies' in South Africa.⁹⁵ In its first week in office, the Whitlam Government decided that racially selected sporting teams from South Africa would not be allowed to enter, or transit through Australia.⁹⁶ This ban was maintained by all subsequent Australian governments until the collapse of the apartheid regime in 1994.⁹⁷
		Negotiated the Nippon-Australia Relations Agreement with Japan It had long been the desire of the Japanese Government to conclude a treaty of friendship, commerce and navigation with Australia, however the Liberal-Country Party government which preceded Whitlam's had resisted the idea.⁹⁸ For a number of decades, the relationship had stagnated, and had become very narrowly focussed on trade issues.⁹⁹ Whitlam and Japanese Prime Minister Kakuei Tanaka agreed in principle to the treaty in late 1973, allowing negotiations to begin.¹⁰⁰ The treaty that resulted from these talks was significant because it provided the clearest articulation of the importance of the bilateral relationship, and mapped how it would be broadened and deepened in the future.¹⁰¹ It established a basis of goodwill that was necessary for the further development of the economic partnership.¹⁰² The Fraser Government sustained the Whitlam Government's efforts to conclude the agreement, and the NARA treaty was signed June 1976.¹⁰³ Whitlam acknowledged Fraser's continued commitment but wryly commented that 'it is more important to be the father than the midwife'^.104
Engaged with the United Nations and signed a range of multilateral agreements The Whitlam Government signed and ratified a number of significant multilateral treaties, conventions and covenants, a number of which had been left unsigned or unratified by the Australian Government for many years. Numbering over 130, they included the: 1973 Convention on International Trade in Endangered Species of Wild Fauna and Flora International Convention on the Prevention of Marine Pollution by Dumping of Wastes and Other Matter 1972 UNESCO World Heritage Convention Treaty on the Non-Proliferation of Nuclear Weapons 1953 Covenant on the Political Rights of Women 1954 Convention relating to the Status of Stateless Persons 1961 Convention on the Reduction of Statelessness 1966 International Covenant on Economic, Social and Cultural Rights 1966 International Convention on the Elimination of All Forms of Racial Discrimination 1967 Protocol relating to the Status of Refugees ILO Convention No 86—Contracts of Employment (Indigenous Workers) Convention, 1974 ILO Convention No 87—Freedom of Association and Protection of the Right to Organise, 1948 ILO Convention No 98—Right to Organise and to Bargain Collectively, 1949 ILO Convention No 100 – Equal Remuneration, 1951 ILO Convention No 107 – Indigenous and Tribal Populations ILO Convention No 111—Discrimination (Employment and Occupation), 1958 ILO Convention No 131—Minimum Wage Fixing, 1970 The Whitlam Government brought a new emphasis to United Nations processes, and engaged with the organisation more deeply than previous governments. It was under the Whitlam Government, for instance, that Australia first made contributions to United Nations funds to support education and other development programs in Africa.¹⁰⁵ To read more about Whitlam's commitment to international law, governance and diplomacy, read The Hon. Michael Kirby's address Whitlam as Internationalist.

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