P. P. McGuinness, “THE CUSTOMER IS ALWAYS LAST,”
The Australian Financial Review, November 23, 1976, p. 4.

“Will the minister see what can be done to put a tariff on New Zealand horses in order to prevent them running faster than our home-produced horses?”

This question was asked in Federal Parliament on Melbourne Cup day by the Liberal member for Wakefield, South Australia, Mr Bert Kelly, satirising common Australian attitudes to the protection of industry.

Paddy McGuinness: The customer is always lastHowever, Mr Kelly’s wit was hopelessly outclassed by reality last week when a newly-formed group of Sydney prostitutes stated that they were worried that if prostitution were legalised, which they favour, there would be an influx of prostitutes from other States and overseas “and girls that have faithfully served the community for many years will face a lot of competition.”

Of course, Section 92 of the Constitution would prevent any barriers to entry of Melbourne prostitutes into the Sydney trade unless indeed the NSW Government were to license prostitutes and set up a Licensing Reduction Board, which, no doubt, would be concerned with progressively reducing the numbers operating in the central Sydney area and shifting licences to the outer suburbs.

Moreover, it would be possible to impose tariffs or import quotas on foreign prostitutes, or even maybe a language test.

In their concern to protect themselves against competition, the Sydney prostitutes were, of course, expressing a universal Australian attitude — that the customer always comes last.

It is an attitude that has reached its highest development in the activities of the various industry lobby groups, such as the Associated Chambers of Manufacturers of Australia, the Australian Confederation of Apparel Manufacturers, the Australian Industries Development Association, and a myriad of others.

These groups have adopted an approach which, essentially, boils down to the assertion that because they have entered upon a particular type of economic activity, for the most part manufacturing production, they should be guaranteed against competition from overseas producers, whether or not this competition is due to changing conditions of production and economic growth both in Australia and elsewhere.

And a prime target for attack by the protectionist lobbies has been the Industries Assistance Commission, which, in pursuit of its statutory obligations, subjects claims to continued and increased protection to scrutiny.

A recent example of the arguments put forward by the lobbyists was the annual report of the Australian Industries Development Association, delivered in Melbourne last week by Mr R. L. Stock, its president.

The AIDA has always been rather more sophisticated in its approach than other protectionist lobby groups, and has recognised the importance of rational argument as well as political pressure in advancing its case, so this report is of special interest.

This is even more the case since one of the basic propositions it puts forward is extremely significant.

This is expressed thus: “Among the question about protection … the most fundamental is — what amount of manufacturing industry is needed in order to provide a desirable level of employment in Australia?

“The test for protection is whether a particular industry is necessary to make up the required industrial structure.

“It is to these questions that the many parts of the government machinery involved in protection policies should be addressing their energies.”

Further, “a balanced and cohesive tariff structure will be possible only when protection is reviewed as a whole, in the one single operation …

“The Government should set the IAC the task of taking a total look at protection … it would be necessary for the IAC first to establish the employment required from the manufacturing sector as a whole, and within that, the contribution to employment available from manufacturing activities not requiring protection.

“In effect, the protected sector would be tailored to fill the gap.”

Now the proposition that it should be a fundamental element of any policy towards economic development in Australia, and policy towards the industrial structure, that some judgment should be made as to the desirable size of the manufacturing sector within the total economy is of great importance.

It is the greatest weakness of the report of the Jackson Committee on policies for development of manufacturing industry that it did not consider this question.

For, to a considerable extent, the size and composition of the Australian workforce for the rest of the century is known, as a result of the Borrie Inquiry’s work.

There is scope for variation as a result of net immigration, but the study of how the growing workforce will be employed is well under way, in the context of the Industry Assistance Commission’s IMPACT project on demographic and economic development.

It is perfectly sensible for the Government to decide that, over time, the workforce employed in manufacturing industry should not fall below, say, 25 per cent of the total workforce, or even increase.

Much depends on the rate of growth of employment which is likely in primary and tertiary industry.

And it is also perfectly sensible for the Government to achieve this by effectively redistributing income from other sectors of the economy to manufacturing industry by way of a tariff.

But where the AIDA annual report degenerates from such a proposition into propaganda is in jumping from such a general approach, which would involve a uniform rate of effective protection for manufacturing industry, to a demand that the IAC should cease its present investigations into particular tariffs and furthermore that it “would be required to identify the industries that we need.”

The IAC has, in fact, tended to adopt a uniform tariff approach, with its recommendations being just as likely to be towards increasing effective protection in low tariff industries as towards reducing it in exceptionally high tariff industries.

That is, far from setting out to destroy manufacturing industry, the IAC approach is to nudge manufacturing structure towards a more efficient form, within the protection of something approaching a uniform tariff system.

This would seem consistent with both the maintenance of a given proportion of total employment in the manufacturing sector and the maintenance of competition and free enterprise in the manufacturing sector.

It may be that the target level of the uniform tariff should be changed, even increased — that is a matter which ought to be discussed.

But the AIDA goes beyond the argument for maintaining or increasing the relative importance of the manufacturing workforce, and demands that the IAC should identify investment opportunities for it.

And, it is implied, once those opportunities have been identified and investment in the identified industries has been undertaken, the Government should guarantee the continued profitability of such investments.

Coming from a self-styled private enterprise group, this is a breath-taking proposition.

For if the Government is to identify investment opportunities and direct capital into them, and subsequently ensure that those capital investments will be ensured against loss, at the expense of the community, why should not those capital investments simply be made from the beginning by government-owned enterprises?

One good reason, of course, is that in the past government agencies such as the Australian Industries Development Corporation have demonstrated themselves to be decidedly bad at identifying profitable investment opportunities.

Yet the AIDA seems to believe that what the AIDC, with some supporters of the AIDA on its board, has failed to do on a relatively small scale, some other body will be able to do on a nation-wide scale, and that the benefits of this achievement should accrue to private investors, if it works, while the costs, if it should fail, should be borne by the community.