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The 2007 Policy Platform of the Australian Labor Party (ALP) asserted that ‘Labor will pursue new and innovative measures designed to foster greater participation and engagement of the Australian population in the political process’ (cited in Manwaring 2010). It seemed that Labor was following a trend that many authors have identified as a move from government to governance— more specifically to ‘network governance’,1 in which governments encourage greater participation, especially by ‘expert citizens’ (see Bang 2005), in policy making, recognising that they can at best steer, not row (see Osborne and Gaebler 1992). Indeed, as Martinetto (2003:593) contends, this idea has taken on a ‘semblance of orthodoxy’. In this chapter, we examine two major initiatives taken by the Rudd government that were designed to deliver on this platform promise: the 2020 Summit and the Community Cabinets initiative. Our aim is to assess both the extent to which these initiatives marked a genuine move towards greater participation and, more broadly, whether they reflect a move towards network governance. We begin, however, with a brief discussion of the literature on governance that we use to frame this chapter.

Citizen-centred policy making under Rudd: network governance in the shadow of hierarchy?