Te Mata O Te TauTe Mata O Te Tau

Tribal/State Interface in Tribal/State Interface in Service ProvisionService Provision

Huia Tomlins JahnkeHuia Tomlins JahnkeTe Uru MaraurauTe Uru Maraurau

Seminar AimsSeminar Aims To provide feedback on doctoral researchTo provide feedback on doctoral research

To focus on state/iwi interface based on the concrete To focus on state/iwi interface based on the concrete experiences of 3 iwi organisations that demonstrates experiences of 3 iwi organisations that demonstrates

a) the power & persistence of colonial discourse a) the power & persistence of colonial discourse manifest in systems and processes of internal manifest in systems and processes of internal colonisationcolonisation

b)b) Some practices involved in the ‘art of government’ Some practices involved in the ‘art of government’ that shape, mobilise and work through iwi that shape, mobilise and work through iwi aspirations central to the organisations in this study. aspirations central to the organisations in this study.

Research QuestionResearch Question

What are the characteristics What are the characteristics and distinguishing features of and distinguishing features of

tribal service providers?tribal service providers?

MethodMethod

Qualitative – grounded theoryQualitative – grounded theory

Grounded in Maori /tribal Grounded in Maori /tribal philosophical traditionsphilosophical traditions

Integrative approach to theory and Integrative approach to theory and literatureliterature

(Maori / tribal/ indigenous / western)(Maori / tribal/ indigenous / western)

ParticipantsParticipants

3 tribal organisations – Te Runanga o 3 tribal organisations – Te Runanga o Raukawa health services; Ngati Raukawa health services; Ngati Kahungunu Iwi Incorporated Social Kahungunu Iwi Incorporated Social services; Te Taiwhenua o Heretaunga services; Te Taiwhenua o Heretaunga social servicessocial services

30 participants30 participants

Ngati Kahungunu Ngati Kahungunu

Internal colonisationInternal colonisation(Taiaiake Alfred, 1999: Ward Churchill, 1996)(Taiaiake Alfred, 1999: Ward Churchill, 1996)

Historical processes by which Historical processes by which structures of political power and structures of political power and control have been constructed and control have been constructed and imposedimposed

Constructed institutions with Constructed institutions with corresponding techniques of corresponding techniques of government that ‘incorporate’ or government that ‘incorporate’ or ‘domesticate’ indigenous societies‘domesticate’ indigenous societies

3 emergent themes3 emergent themes

Analytics of government & Analytics of government & participant perceptions of the stateparticipant perceptions of the state

Tensions at the intersection of Tensions at the intersection of Maori/Pakeha relationsMaori/Pakeha relations

Multiple strategies in the art of Multiple strategies in the art of resistanceresistance

Analytics of governmentAnalytics of government(Mitchell Dean, 1999)(Mitchell Dean, 1999)

A framework for interrogating A framework for interrogating ‘theories of state’‘theories of state’

Based on 3 assumptionsBased on 3 assumptions

Discourses on governmentDiscourses on government

- an integral part of an integral part of the ACTIVITIES of the ACTIVITIES of governmentgovernment

Government achieved through Government achieved through ‘regimes of practice’‘regimes of practice’

For example For example

- those who exercise those who exercise power (manager, power (manager, bureaucrats, politicians) bureaucrats, politicians)

- those who are governed those who are governed (workers, consumers, (workers, consumers, Maori, iwi, job seeker, Maori, iwi, job seeker, whanau, good citizen).whanau, good citizen).

Distribution and divisions of power & Distribution and divisions of power & authority analysed as assemblagesauthority analysed as assemblages

Bureaucratic & Bureaucratic & administrative routinesadministrative routines

Technologies of Technologies of recording, presenting & recording, presenting & information transferinformation transfer

Programmes & Programmes & knowledge that present knowledge that present a field to be governeda field to be governed

Agencies that practices Agencies that practices of government requireof government require

Key objectives of the state…Key objectives of the state…

Health, happiness, Health, happiness, wealth & welfare of wealth & welfare of the populationthe population

Exclusionary & alienating dimensions of Exclusionary & alienating dimensions of indigenous experienceindigenous experience

Well represented in Well represented in subgroups that subgroups that undermine the undermine the welfare & life of the welfare & life of the populationpopulation

(the criminal, the (the criminal, the addicted, the addicted, the mentally ill…)mentally ill…)

Well represented in Well represented in pastoral domainpastoral domain

(social services, (social services, health services, health services, special education special education services….)services….)

Subgroups & a language of social Subgroups & a language of social categoriescategories

UneducatedUneducated Unhealthy Unhealthy UnemployedUnemployed UnderprivilegedUnderprivileged

Associated with Associated with risk (alcohol abuse, risk (alcohol abuse, gambling, injury, gambling, injury, domestic violence) domestic violence)

Related to economic Related to economic life-styles life-styles

- Disadvantaged Disadvantaged familyfamily

- Substandard Substandard housinghousing

- Low socio-economic Low socio-economic householdshouseholds

- Unskilled labourUnskilled labour

Subgroups synonymous with Subgroups synonymous with indigeneityindigeneity

Knowledge of Maori Knowledge of Maori deprivation deprivation documented in documented in statistical fieldsstatistical fields

- Income distribution Income distribution figuresfigures

- Unemployment dataUnemployment data- Morbidity statisticsMorbidity statistics- Rates of Rates of

imprisonmentimprisonment- Educational Educational

attainmentattainment

Fields of dataFields of data

Utilised for social Utilised for social policy formation by policy formation by the statethe state

Justified by iwi for Justified by iwi for greater say in greater say in welfare & promote welfare & promote greater participation greater participation in social service in social service deliverydelivery

Maori perceptions of state policiesMaori perceptions of state policies

Narrowly fixed & Narrowly fixed & restrictiverestrictive

- Designed for majorityDesigned for majority

- Pragmatic Pragmatic interpretations interpretations required to fit Maori required to fit Maori needsneeds

- ‘‘Subscriber driven’ @ Subscriber driven’ @ ‘top down’ approach‘top down’ approach

Disjuncture between state policies, Maori Disjuncture between state policies, Maori identified need & appropriate servicesidentified need & appropriate services

3 Institutional Regimes of Practice 3 Institutional Regimes of Practice Government rhetoric - Evident in policy Government rhetoric - Evident in policy

documents: documents:

- Vocabularies of intention (working in Vocabularies of intention (working in partnership; working with Maori; partnership; working with Maori; consulting with iwi)consulting with iwi)

- Implanted among stated purposes and Implanted among stated purposes and objectives of government policy (e g TEC objectives of government policy (e g TEC Working with Maori document 2004-07)Working with Maori document 2004-07)

Regime of practiceRegime of practice

”…”…a second regime of practice is located a second regime of practice is located within mechanisms that contribute to within mechanisms that contribute to maintaining state authority through maintaining state authority through contradictory ‘politics of illusion’. (p165)contradictory ‘politics of illusion’. (p165)

Fields of Maori morbidity stats (heart/lung Fields of Maori morbidity stats (heart/lung disease/asthma/diabetes) v’s contradictory disease/asthma/diabetes) v’s contradictory action in practiceaction in practice

Trojan horse effects & kaupapa MaoriTrojan horse effects & kaupapa Maori

Regime of practiceRegime of practice

Exclusionary tacticsExclusionary tactics- Lack of consultation &/or Lack of consultation &/or

consultation processesconsultation processes- Consultation ‘after the fact’…Consultation ‘after the fact’…- Effects are inappropriate or Effects are inappropriate or

assimilatory policiesassimilatory policies- Policy designs subscribe to a uniform Policy designs subscribe to a uniform

‘one size fits all’‘one size fits all’

Impact of technologies of Impact of technologies of governmentgovernment

Constrain iwi service provisionConstrain iwi service provision

Manifest in regulatory practices, imposed Manifest in regulatory practices, imposed structures & bureaucracy, legislative structures & bureaucracy, legislative instrumentsinstruments

Conformity to regulatory practices highly Conformity to regulatory practices highly expensiveexpensive

excessive administration outputs & excessive administration outputs & bureaucracy impaired the ability to focus on bureaucracy impaired the ability to focus on providing adequate services (time, energy providing adequate services (time, energy and expense).and expense).

Impact of technologies of govtImpact of technologies of govt

Regulatory and legislative Regulatory and legislative instrumentsinstruments

- where most facets of work tightly where most facets of work tightly controlled by legislation (mental controlled by legislation (mental health act; nurses act; medicines act; health act; nurses act; medicines act; etc)etc)

Work environmentWork environment

- increased bureaucracy & increased bureaucracy & adminadmin

- high workload & associated high workload & associated stress levels,stress levels,

- pressures of persistent pressures of persistent

scrutiny by the organisation & scrutiny by the organisation & communitycommunity

- constantly justifying constantly justifying professional practice with professional practice with little supportlittle support

- Flexibility traded for Flexibility traded for compliancecompliance

Maori /non-Maori relationsMaori /non-Maori relations

Appropriated Appropriated frameworksframeworks

Politics of Politics of compromisecompromise

Strategies of Strategies of differencedifference

Appropriated frameworks within iwi Appropriated frameworks within iwi organisationsorganisations

Workers & bosses Workers & bosses management management structurestructure

an impediment to an impediment to appropriate deliveryappropriate delivery

Complying to faulty Complying to faulty measuresmeasures

Overlooking cultural Overlooking cultural factors to meet factors to meet contractual contractual requirementsrequirements

Politics of compromisePolitics of compromise

Incorporated Incorporated societiessocieties

-vulnerable to state -vulnerable to state directivesdirectives

-questions of identity -questions of identity and iwi membershipand iwi membership

-iwi register their -iwi register their membersmembers

-names held in census -names held in census datadata

Strategies of differenceStrategies of difference

Politics of Politics of justification against justification against western ignorancewestern ignorance

- explain, validate, - explain, validate, rationalise & rationalise & defend cultural defend cultural ideas, habits, ideas, habits, ideas, patterns and ideas, patterns and worldviews worldviews

Politics of justificationPolitics of justification

Positionality (an Positionality (an individuals location or individuals location or situation to another situation to another place or person, or place or person, or their condition of their condition of advantage or social advantage or social position) position)

- As leadersAs leaders- Tribal membersTribal members- Qualified expertsQualified experts

Non-Maori insecurity, Non-Maori insecurity, anxiety & outrageanxiety & outrage

Maori providers as Maori providers as illegitimate illegitimate competitors for competitors for state funding & state funding & service provisionservice provision

Linked to an Linked to an ‘Epistemology of ‘Epistemology of ignorance’ignorance’

“…“…a particular a particular pattern of localized pattern of localized and global cognitive and global cognitive dysfunctions…dysfunctions…producing the ironic producing the ironic outcome that whites outcome that whites will in general be will in general be unable to understand unable to understand the world they the world they themselves have themselves have made” (Mills, 1997)made” (Mills, 1997)

Art of ResistanceArt of Resistance

Multiple strategies Multiple strategies – forms, spaces, – forms, spaces, sites, acts, sites, acts, cultures, cultures, communities communities

Strategies of resistanceStrategies of resistance

Processes of Processes of mobilisationmobilisation

Assumptions of Assumptions of agencyagency

Countering Countering rationalities of the rationalities of the statestate

Knowing the enemyKnowing the enemy

Know who we can Know who we can count oncount on

Surveillance, close Surveillance, close watching, scrutiny, watching, scrutiny, reconnaissance as reconnaissance as deliberate actionsdeliberate actions

Knowledge of the insideKnowledge of the inside

Accrued through Accrued through experience of experience of working inside state working inside state institutionsinstitutions

Information sharingInformation sharing Knowing state & Knowing state &

institutional institutional processesprocesses

Access & Access & participation in participation in professional professional organisationsorganisations

Tuning into politicsTuning into politics

Securing the Securing the visibility of the visibility of the runangarunanga

-attending meetings-attending meetings-sitting on key -sitting on key

committeescommittees-board membership-board membership-attending courses-attending courses

Maintaining an Maintaining an informed voice informed voice