The Whitlam government was the federal executive government of Australia led by Prime Minister Gough Whitlam of the Australian Labor Party. The government commenced when Labor defeated the McMahon government at the 1972 federal election, ending a record 23 years of continuous Coalition government. It was terminated by Governor-General Sir John Kerr following the 1975 constitutional crisis and was succeeded by the Fraser government—the sole occasion in Australian history when an elected federal government was dismissed by the governor-general.
The Whitlam government was highly controversial during its short tenure but achieved some major reforms. Formal relations with China were established, conscription laws were repealed, all remaining Australian forces were withdrawn from the Vietnam War, universal healthcare was introduced and some remaining discriminatory provisions of the White Australia policy were abolished. Tertiary education fees were abolished. However, these and other ambitious reforms corresponded to a crisis: "By mid-1975, inflation hit 17.6 per cent and wage rises hit 32.9 per cent. The economy boomed in 1973 and the first half of '74, but then suffered a severe recession." The Whitlam government was re-elected for a second term at the 1974 double-dissolution election but, following the dismissal, was heavily defeated by the new Fraser government in the 1975 election.
Background The Australian Labor Party had entered opposition in 1949, following the loss of the Chifley government to the Robert Menzies-led Liberal-Country Party Coalition. The Coalition then governed continuously for 23 years. Gough Whitlam became deputy leader of the Labor Party in 1960, and Arthur Calwell subsequently retired as leader in 1967 following Labor's poor result in the 1966 election. Whitlam was elected party leader in April 1967, with Lance Barnard as deputy leader. Labor reduced the Gorton government's majority and came within 4 seats of government in the 1969 election. Whitlam then led the Labor Party to victory against the McMahon government at the 1972 election.
First term
Duumvirate Whitlam took office with a majority in the House of Representatives, but without control of the Senate (elected in 1967 and 1970). The Senate at that time consisted of ten members from each of the six states, elected by proportional representation. The ALP parliamentary caucus chose the ministers, but Whitlam was allowed to assign portfolios. A caucus meeting could not be held until after the final results came in on 15 December. In the meantime, it was expected that McMahon would remain caretaker prime minister. Whitlam, however, was unwilling to wait that long. On 5 December, once Labor's win was secure, Whitlam had the governor-general, Sir Paul Hasluck, swear him in as prime minister and Labor's deputy leader, Lance Barnard, as deputy prime minister. The two men held 27 portfolios between them during the two weeks before a full cabinet could be determined.
During the two weeks the so-called "duumvirate" held office, Whitlam sought to fulfill those campaign promises that did not require legislation.Hocking, Jenny. "Gough Whitlam: His Time". Melbourne University Publishing. 2012 pp 19-25 Whitlam ordered negotiations to establish full relations with the People's Republic of China, and broke those with Taiwan. Legislation allowed the Minister for Defence to grant exemptions from conscription. Barnard held this office, and exempted everyone. Seven men were at that time incarcerated for refusing conscription; Whitlam arranged for their freedom. The Whitlam government in its first days re-opened the equal pay case pending before the Commonwealth Conciliation and Arbitration Commission led by Sydney barrister Mary Gaudron, and appointed a woman, Elizabeth Evatt, as presidential member of the commission.Hocking, Jenny. "Gough Whitlam: His Time". Melbourne University Publishing. 2012 pp 20 Whitlam and Barnard eliminated sales tax on contraceptive pills, announced major grants for the arts, and appointed an interim schools commission. The duumvirate barred racially discriminatory sport teams from Australia, and instructed the Australian delegation at the United Nations to vote in favour of sanctions on apartheid South Africa and Rhodesia. It also ordered home all remaining Australian troops in Vietnam, though most (including all conscripts) had been withdrawn by McMahon.
According to Whitlam speechwriter Graham Freudenberg, the duumvirate was a success, as it showed that the Labor government could manipulate the machinery of government, despite its long absence from office. However, Freudenberg noted that the rapid pace and public excitement caused by the duumvirate's actions caused the Opposition to be wary of giving Labor too easy a time, and led to one post mortem verdict on the Whitlam government, "We did too much too soon."
Enacting an agenda The McMahon government had consisted of 27 ministers, twelve of whom comprised the Cabinet. In the run-up to the election, the Labor caucus had decided that should the party take power, all 27 ministers were to be Cabinet members. Intense canvassing took place among ALP parliamentarians as the duumvirate did its work, and on 18 December the caucus elected the Cabinet. The results were generally acceptable to Whitlam, and within three hours, he had announced the portfolios of the cabinet members. To give himself greater control over the Cabinet, in January 1973 Whitlam established five cabinet committees (with the members appointed by himself, not the caucus) and took full control of the cabinet agenda.
During its time in office, the Whitlam government embarked on an ambitious program of social reform in keeping with the promise of change that the ALP campaign emphasised. As noted by one historian, "Labor’s extensive reforms during its first term in office were the high water mark of Australian postwar social democracy." On coming to office, the Whitlam government granted federal public servants paid maternity leave, a thirty-six-and-a-quarter-hour workweek, large wage rises and four weeks annual leave. Free tertiary education was introduced, together with a universal health care system and a sole parent pension. Laws were also passed providing for equal pay for women and national land rights, divorce laws were made more liberal, and legislation against racial discrimination was introduced. In addition, the principle of equal pay was extended, occupational health and safety was improved, annual leave loading was introduced, trade union education was established, four weeks of annual leave was achieved as a national standard, military conscription was abolished and Australian troops were withdrawn from Vietnam, a separate ministry responsible for Aboriginal affairs was established, controls on foreign ownership of Australian resources were put in place, laws against sexual discrimination were passed, maternity leave and benefits for single mothers were extended, an attempt was made to democratise the electoral system through the introduction of one-vote-one-value, and a Community Health Program was introduced. The social services were also significantly expanded, with big improvements in the real value of social security payments, spending on housing quadrupled, education outlays doubled, and federal health expenditure rising by 20% A Department of Aboriginal Affairs was also established, while Australia's first federal legislation on human rights, the environment and heritage was initiated.
The Women's Electoral Lobby, founded in 1972, had helped Whitlam win government. In 1973, Elizabeth Reid was appointed the world's first adviser on women's affairs to a head of government. Through Reid's work in this role, the government took a greater role in the protection of women and increasing their rights; and, through the 1974 establishment and later recommendations of a Royal Commission on Human Relationships, a feminist reform agenda was put on the agenda for future action by the government. Among other reforms, the Whitlam government introduced three months' paid maternity leave, along with a week's paid paternity leave, for public servants, as well as the Supporting Mother's Benefit, in 1973.
A significant amount of legislation was passed altogether from 1972 to 1975, with 221 acts passed by parliament in 1973 alone, while the welfare state was significantly extended. Public spending was raised significantly, with the 1973 budget quadrupling spending on housing, tripling outlays on urban development, and doubling spending on education.The Death of Social Democracy Political Consequences in the 21st Century By Ashley Lavelle, 2016, P.58 Through initiatives such as the Australian Assistance Plan and the Regional Employment Development scheme, employment opportunities were expanded and funds allocated towards improving services and amenities in deprived areas, as characterised by the construction of new health centres, community houses, legal services, footpaths, sewers, streetlights, and public libraries.
In 1978, one observer praised the Australian Assistance Plan for generating "much more general acceptance of the concepts of welfare for the community and local participation. Moreover, a great deal had actually happened. During the year 1975-76, 1408 grants for community welfare projects were approved by the Social Security Department. A detailed list of AAP projects includes projects relating to citizens' advice bureaus, community centres, and resource centres, projects to aid families, women, children, young people, the aged, the handicapped, migrants and the needy. It would be difficult to refute the conclusion that the sum of $6.6 million granted to Regional Councils of Social Development in 1975-76 promoted a very large amount of constructive welfare activity because it was spent in support of local and often voluntary efforts".
Broadcast and television licence fees were abolished, while a wide range of new benefits were introduced, such as a handicapped child's allowance, a special orphan's pension, and the Supporting Mothers Benefit. Rates of sickness and unemployment benefits were increased to bring them in line with other social security benefits, while funding was provided for child care, women's refuges, and community health programs. The means test for pensioners over the age of seventy-five was abolished in 1973, and in 1975 the means test was abolished for all pensioners over the age of seventy. As a result of the welfare measures undertaken by the Whitlam government, social expenditures as a percentage of GDP rose from 12.5% to 17.6% during its time in office.
Needs-based funding for schools was implemented, spending on technical colleges (including the construction of residential accommodation for students) was significantly increased, and special initiatives for the handicapped, Indigenous Australians, and isolated children were introduced. Farmers benefited from tariff cuts and additional markets established by the Whitlam government's trade and diplomatic initiatives, together with higher spending on regional education and health, rural research, and other upgraded country facilities. A number of measures were also undertaken to enhance women's rights. International conventions on equal pay, discrimination, and the political rights of women were ratified. New health centres and many women's refuges were established throughout Australia, together with a pre-school and child care program which catered for 100,000 children.