Te Mata O Te Tau Tribal/State Interface in Service Provision Huia Tomlins Jahnke Te Uru Maraurau

Seminar Aims To provide feedback on doctoral research To provide feedback on doctoral research To focus on state/iwi interface based on the concrete experiences of 3 iwi organisations that demonstrates To focus on state/iwi interface based on the concrete experiences of 3 iwi organisations that demonstrates a) the power & persistence of colonial discourse manifest in systems and processes of internal colonisation b)Some practices involved in the ‘art of government’ that shape, mobilise and work through iwi aspirations central to the organisations in this study.

Research Question What are the characteristics and distinguishing features of tribal service providers?

Method Qualitative – grounded theory Qualitative – grounded theory Grounded in Maori /tribal philosophical traditions Grounded in Maori /tribal philosophical traditions Integrative approach to theory and literature Integrative approach to theory and literature (Maori / tribal/ indigenous / western) (Maori / tribal/ indigenous / western)

Participants 3 tribal organisations – Te Runanga o Raukawa health services; Ngati Kahungunu Iwi Incorporated Social services; Te Taiwhenua o Heretaunga social services 3 tribal organisations – Te Runanga o Raukawa health services; Ngati Kahungunu Iwi Incorporated Social services; Te Taiwhenua o Heretaunga social services 30 participants 30 participants

Ngati Kahungunu

Internal colonisation (Taiaiake Alfred, 1999: Ward Churchill, 1996) Historical processes by which structures of political power and control have been constructed and imposed Historical processes by which structures of political power and control have been constructed and imposed Constructed institutions with corresponding techniques of government that ‘incorporate’ or ‘domesticate’ indigenous societies Constructed institutions with corresponding techniques of government that ‘incorporate’ or ‘domesticate’ indigenous societies

3 emergent themes Analytics of government & participant perceptions of the state Analytics of government & participant perceptions of the state Tensions at the intersection of Maori/Pakeha relations Tensions at the intersection of Maori/Pakeha relations Multiple strategies in the art of resistance Multiple strategies in the art of resistance

Analytics of government (Mitchell Dean, 1999) A framework for interrogating ‘theories of state’ A framework for interrogating ‘theories of state’ Based on 3 assumptions Based on 3 assumptions

Discourses on government - an integral part of the ACTIVITIES of government

Government achieved through ‘regimes of practice’ For example - those who exercise power (manager, bureaucrats, politicians) - those who are governed (workers, consumers, Maori, iwi, job seeker, whanau, good citizen).

Distribution and divisions of power & authority analysed as assemblages Bureaucratic & administrative routines Bureaucratic & administrative routines Technologies of recording, presenting & information transfer Technologies of recording, presenting & information transfer Programmes & knowledge that present a field to be governed Programmes & knowledge that present a field to be governed Agencies that practices of government require Agencies that practices of government require

Key objectives of the state… Health, happiness, wealth & welfare of the population Health, happiness, wealth & welfare of the population

Exclusionary & alienating dimensions of indigenous experience Well represented in subgroups that undermine the welfare & life of the population Well represented in subgroups that undermine the welfare & life of the population (the criminal, the addicted, the mentally ill…) Well represented in pastoral domain (social services, health services, special education services….)

Subgroups & a language of social categories Uneducated Uneducated Unhealthy Unhealthy Unemployed Unemployed Underprivileged Underprivileged Associated with risk (alcohol abuse, gambling, injury, domestic violence) Associated with risk (alcohol abuse, gambling, injury, domestic violence) Related to economic life-styles - Disadvantaged family - Substandard housing - Low socio-economic households - Unskilled labour

Subgroups synonymous with indigeneity Knowledge of Maori deprivation documented in statistical fields Knowledge of Maori deprivation documented in statistical fields - Income distribution figures - Unemployment data - Morbidity statistics - Rates of imprisonment - Educational attainment

Fields of data Utilised for social policy formation by the state Utilised for social policy formation by the state Justified by iwi for greater say in welfare & promote greater participation in social service delivery Justified by iwi for greater say in welfare & promote greater participation in social service delivery

Maori perceptions of state policies Narrowly fixed & restrictive Narrowly fixed & restrictive - Designed for majority - Pragmatic interpretations required to fit Maori needs - ‘Subscriber ‘top down’ approach

Disjuncture between state policies, Maori identified need & appropriate services 3 Institutional Regimes of Practice 3 Institutional Regimes of Practice Government rhetoric - Evident in policy documents: Government rhetoric - Evident in policy documents: - Vocabularies of intention (working in partnership; working with Maori; consulting with iwi) - Implanted among stated purposes and objectives of government policy (e g TEC Working with Maori document )

Regime of practice ”…a second regime of practice is located within mechanisms that contribute to maintaining state authority through contradictory ‘politics of illusion’. (p165) ”…a second regime of practice is located within mechanisms that contribute to maintaining state authority through contradictory ‘politics of illusion’. (p165) Fields of Maori morbidity stats (heart/lung disease/asthma/diabetes) v’s contradictory action in practice Fields of Maori morbidity stats (heart/lung disease/asthma/diabetes) v’s contradictory action in practice Trojan horse effects & kaupapa Maori Trojan horse effects & kaupapa Maori

Regime of practice Exclusionary tactics Exclusionary tactics - Lack of consultation &/or consultation processes - Consultation ‘after the fact’… - Effects are inappropriate or assimilatory policies - Policy designs subscribe to a uniform ‘one size fits all’

Impact of technologies of government Constrain iwi service provision Constrain iwi service provision Manifest in regulatory practices, imposed structures & bureaucracy, legislative instruments Manifest in regulatory practices, imposed structures & bureaucracy, legislative instruments Conformity to regulatory practices highly expensive Conformity to regulatory practices highly expensive excessive administration outputs & bureaucracy impaired the ability to focus on providing adequate services (time, energy and expense). excessive administration outputs & bureaucracy impaired the ability to focus on providing adequate services (time, energy and expense).

Impact of technologies of govt Regulatory and legislative instruments Regulatory and legislative instruments - where most facets of work tightly controlled by legislation (mental health act; nurses act; medicines act; etc)

Work environment - increased bureaucracy & admin - high workload & associated stress levels, - pressures of persistent scrutiny by the organisation & community - constantly justifying professional practice with little support - Flexibility traded for compliance

Maori /non-Maori relations Appropriated frameworks Appropriated frameworks Politics of compromise Politics of compromise Strategies of difference Strategies of difference

Appropriated frameworks within iwi organisations Workers & bosses management structure Workers & bosses management structure an impediment to appropriate delivery an impediment to appropriate delivery Complying to faulty measures Complying to faulty measures Overlooking cultural factors to meet contractual requirements Overlooking cultural factors to meet contractual requirements

Politics of compromise Incorporated societies Incorporated societies -vulnerable to state directives -questions of identity and iwi membership -iwi register their members -names held in census data

Strategies of difference Politics of justification against western ignorance Politics of justification against western ignorance - explain, validate, rationalise & defend cultural ideas, habits, ideas, patterns and worldviews

Politics of justification Positionality (an individuals location or situation to another place or person, or their condition of advantage or social position) Positionality (an individuals location or situation to another place or person, or their condition of advantage or social position) - As leaders - Tribal members - Qualified experts

Non-Maori insecurity, anxiety & outrage Maori providers as illegitimate competitors for state funding & service provision Maori providers as illegitimate competitors for state funding & service provision Linked to an ‘Epistemology of ignorance’ Linked to an ‘Epistemology of ignorance’ “…a particular pattern of localized and global cognitive dysfunctions…produci ng the ironic outcome that whites will in general be unable to understand the world they themselves have made” (Mills, 1997)

Art of Resistance Multiple strategies – forms, spaces, sites, acts, cultures, communities Multiple strategies – forms, spaces, sites, acts, cultures, communities

Strategies of resistance Processes of mobilisation Processes of mobilisation Assumptions of agency Assumptions of agency Countering rationalities of the state Countering rationalities of the state

Knowing the enemy Know who we can count on Surveillance, close watching, scrutiny, reconnaissance as deliberate actions

Knowledge of the inside Accrued through experience of working inside state institutions Accrued through experience of working inside state institutions Information sharing Information sharing Knowing state & institutional processes Knowing state & institutional processes Access & participation in professional organisations Access & participation in professional organisations

Tuning into politics Securing the visibility of the runanga Securing the visibility of the runanga -attending meetings -sitting on key committees -board membership -attending courses Maintaining an informed voice Maintaining an informed voice