[1]

CABINET -IN-CONFIDENCE
Copy No.

C A B I N E T

44

MI N U T E

Canberra, 23 May 1988

No. 11196
Submission No. 5790

Migration Program 1988-89

The Cabinet agreed that :(a)

the 1988-89 migration program be transitional,

pending consideration of the broad directions
set out by the Committee to Advise on
Australia's Immigration Policies (CAAIP);

(b)

a program with a firm ceiling of 140,000 for

1988-89 be as set out at Attachment B to the
Submission;

(c)

the program compose 35,000 family, 12,000

refugees and Special Humanitarian Program and a
contingency reserve of 2,000, 77,000 economic
(including 23,000 concessiona1 visas), and
14,000 Grant of Resident Status (GORS);

(d)

entry under Independent and Concessional

categories be restricted only to applicants
scoring highly overall and on employability;

... /2

This document is the property of the Australian Government and is not to be copied or reproduced

CABINET-IN-CONFIDENCE

[2]

CABINET-IN-CONFIDENCE

2.
No. 11196 (Cont'd)
(e)

the Refugee, Humanitarian and Assisted Movements

vote be held at the 1987-88 Budget level but the
purpose be varied to permit loan fund
contributions;

(f)

the Minister for Immigration, Local Government

and Ethnic Affairs make an announcement on
Friday 3 June along the lines of that at
Attachment A to the Submission; and

(g)

the Minister for Immigration, Local Government

and Ethnic Affairs consult with the Ministers
for Finance and Foreign Affairs and Trade about
relevant resource questions and offsetting
savings and that, if agreement cannot be
reached, the matter be referred back to the next
meeting of Cabinet.
The Cabinet noted that :-

2.
(a)

the proposals set out in sub-paragraph (d) above

will give a higher emphasis to the selection of
young, skilled and readily employable migrants
but affects applicants who can no longer achieve
this higher selection requirement;

(b)

the resulting projected net permanent gain after

allowing for GORS approvals, Trans Tasman flows
and emigration for 1988-89, is 130,000;

.. /3
This document is the property of the Australian Government and is not to be copied or reproduced

CABIN ET-1 N-CON Fl DENCE

[3]

CABIN ET-1 N-CON Fl DENCE

3.
No. 11196 (Cont'd)
(c)

the above proposals clean the slate of existing

caseload and allow room for manoeuvre to phase
in CAAIP recommendations later in the financial
year if endorsed by the Government;

(d)

the Ministers for Finance and Immigration, Local

Government and Ethnic Affairs consult further on
resource implications (including those for the
Department of Foreign Affairs and Trade),
particularly in light of the decision that the
program be subject to a firm ceiling rather than
a planning target (sub-paragraph l(a) above
refers), and report back to Cabinet if
necessary; and

(e)

the internal review system will have strict

regard to policy applicable at the time of
primary decision.

Secretary to Cabinet

This document is the property of the Australian Government and is not to be copied or reproduced

CABINET-IN-CONFIDENCE

[4]

CABINET-IN-CONFIDENCE
... -

t)O r.,

Submssion No."
~o .

.............. ~ .. ,_..

__

FOR CABINET

vvv
-
... ..... .

Copy

,_...,~5

Migration Program - 1988/89

Title

Hon Clyde Holding MP

Minister for Immigration, Local Government and Ethnic
Affairs
Arrangements for the migration intake for 1988/89 pending
Purpose/Issues
consideration of the report of the Committee to Advise on
Australia's Immigration Policies (CAAIP):
~~--~7. ~~(a) program level of 140,000 migrant, refugee and Special
'/~
Humanitarian Program (SHP) visas and Grant of
~
Resident Status (GORS) approvals;
maintain commitment to immediate family reunion and
international commitments;
continue the process of giving the intake a sharper
economic focus.

M inister

CD 9655 of 4 June 1987 set program at 120,000 for 1987/88,

25,000 for 1988/89, 130,000 for 1989/90. On 6 April
1988, Government announced increase in 1987/88 program to
132,000 to accommodate more business migrants and
Independent and Concessional (I&C) applicants while
suspending I&C processing except for those with high
employability profile.

Relation to
existing policy

Sensitivity /Criticism

Legislation
involved

~ency:

critical/significant
dates

nsultation:
M inisters/Depts
consulted

Is there
agreement?

Timing/handling of
announcement

Cost

CAAIP has stimulated.~desprer:u'l. r.nmmnn i t-v i nt:Arest and

expectations. Not all sections s~pport either increased
intake or implications of sharper economic focus.
Reduction in concessional visas will be criticised by
ethnic community leaders.
Nil.

I
I

Urgent: Decision needed for program planning and

Government Budget decisions.
Treasury; Finance (DOF); Prime Minister & Cabinet (PM&C);
Foreign Affairs & Trade (DFAT); Employment, Education &
Training (DEET); Industry, Technology & Commerce;
Industrial Relations (DIR); Attorney-General's;
Administrative Services.
No. Broad support for thrust of Submission with some
variation in option preferences. DIR, DEET wish increase
in domestic training. DOF, Treasury, PM&C disagree with
timing of resource decisions, DFAT flags overseas resource
issues. Refer Attachment G.
Announcement following decision. Refer
Attachment A.
FinYr(

88-

89

$7.445m (43 ASL)

Fin Yr (

89-

9\0

Fin Yr (

g o-

9)1

$6.485m (32.5 ASL) $6.33m (46.

AS

This document is the property of the Australian Government and is not to be copied or reproduced

CABINET-IN-CONFIDENCE

CABINET-IN-CONFIDENCE

[5]

BACKGROUND
The size and composition of the Migration Program are determined by
a mix of economic, social and demographic considerations. Current
policy is guided by the Prime Minister's directive of July 1987 to
continue to sharpen the Program's economic focus while maintaining
family reunion and humanitarian entry. Future policy directions
will come under scrutiny in the context of the report of CAAIP,
which I expect to table shortly. Given delays in the finalisation
of the report it has been necessary to develop a transitional
Program for 1988/89.
THE ISSUES
2.
The major issue is to set 1988/89 program arrangements. Such
arrangements should clean the slate on existing caseloads and
provide the Government with room to manoeuvre in its pending
consideration of CAAIP.
3.
Program Level: I propose a program level of 140,000 for 1988/89
to accommodate family reunion; maintain refugee and humanitarian
entry; meet essential skills demand through the Occupational Share
s~=tem (OSS) and Employer Nomination ~cneme (~N~j; provide for
increases to the Business Migration Program (BMP); and select those
I&C applicants already in the processing stream who meet a high
employability profile, ie have skills in demand. Proposed level and
composition of the 1988/89 program, compared with estimated program
outcome for 1987/88, is at Attachment B.
4.
I have not set a planning level beyond 1988/89, pending
Government consideration of CAAIP, which is likely to recommend
150,000 for each of the next three years 1988/89 to 1990/91.
5.
Family Migration: I propose to set the program at 35,000 visas
in 1988/89, in line with anticipated demand; this compares with
33,000 for 1987/88. Policy provides for virtually automatic entry
for spouses, dependent children and aged parents. CAAIP is likely
to recommend a continuation of policy with some minor adjustments.
6.
Refugees and SHP: On the basis of international assessments and
domestic factors, I propose to hold the program at a ceiling of
12,000 visas plus a 2,000 contingency reserve in 1988/89 and to
allow the option of reducing the proportion of refugee and funded
SHP places. I propose dealing with any concomitant increase in
unfunded entrants by varying the purpose of the Refugee,
Humanitarian and Assisted Movements vote to permit limited
contributions as appropriate towards international agency travel

CABINET-IN-CONFIDENCE

CABINET-IN-CONFIDENCE

[6]

loan funds. CAAIP is likely to recommend an increase in the intake

to 15,000 compared with an expected outcome of 11,200 in 1987/88.
Details are set out at Attachment c.
7.
Open Economic Migration: The remainder of the program comprises
the elements directed towards economic development needs (OSS, ENS,
BMP and !&C) and the special eligibility category. For 1988/89 I
propose to:
(a) increase ENS and OSS to 18,000 visas, compared with 17,000
expected for 1987/88, to allow targeting skilled migrants to meet
economic priorities, including the continued development of
negotiated agreements. This dovetails skilled migration with
domestic training efforts.
(b) further expand BMP to 12,000 visas, compared with an estimated
outcome of 8,000 for 1987/88, to tap the business expertise and
development capital coming forward and to maximise the benefits of
the new private sector processing arrangements;
(c) process I&C applications (ie the pipeline plus likely additions
to it during 1988/89, an estimated total of 262,500 persons) as
.Lol.l.uw;:;: 19,500 visa;:; u.s the balance of applicants who na.ve dlLt=dLi.y
received preliminary approval; 14,000 visas for those with a high
employability profile being processed up to preliminary approval
stage by June 1988 and 12,000 visas for 1988/89 applicants with a
similar profile; details, including affected source countries, at
Attachment D.
(d) retain the special eligibility category at 1,500 visas in
1988/89, the same as in the previous year, to accommodate a variety
of special interests not elsewhere provided for within the program.
8.
These arrangements will: continue to give the intake a sharper
economic focus by emphasising young, skilled and entrepreneurial
migrants; restrict entry to highest scoring I&C applicants
having a good employability profile (about 143,000 people who may
previously have been eligible for visas will therefore be rejected);
reduce concessional visas (refer to paragraph 13); and clear the
backlog for the possible introduction of new policy following
decisions on CAAIP, which is likely to recommend a consolidated
"open category" for economic migration and selection based on a
floating passmark. Fluctuations in demand necessitate an overhaul
of the points system.
9.
I anticipate, as a consequence of moves to clear the backlog, a
significant increase in the number of appeals. In order to minimise

CABINET-IN-CONFIDENCE

CABINET -IN-CONFIDENCE

[7]

the impact of this increase on the review system it is proposed to

re-emphasise to decision makers and reviewing officers the need to
have strict regard to Government policy. Additionally it is proposed
to make clear to officials and applicants alike that it is not
appropriate to use the internal review process to challenge the
policy applicable at the time of the primary decision. Despite
these measures, significant increases in review applications cannot
be ruled out. Given current obligations to provide review and
reduce processing times, there may be a need to reconsider the level
of resources for the review function, which has been reduced by 50
ASL in 1988/89 forward estimates.
10. Grant of Resident Status: Permanent residence may be granted to
temporary entrants already in Australia, predominantly on the basis
of family relationship. I propose to increase approvals in 1988/89
to 14,000, compared with an estimated outcome of 11,800 for 1987/88.
Legislated criteria determine approval levels, which tend to
increase as temporary entry numbers rise.
11. Trans Tasman: Under the Trans Tasman Travel Arrangement, New
Zealand (NZ) ~iLi~~~ s ~u 110 t need to acq~~re visas for travel to
Australia. Permanent arrivals of NZ citizens have increased from
10,601 in 1984/85 to 15,923 in 1986/87 and is estimated at 16,000 in
1987/88 and 1988/89. Details at Attachment E.
12. Permanent Departures from Australia: In 1988/89, the number of
permanent departures are projected to increase to about 24,400. The
projected net permanent gain for 1988/89 is 130,000. Details at
Attachment F.
OPTIONS
13. The most sensitive issue relates to the management of
applications in the I&C category to achieve the proposed intake.
Two options are :
a) to select those scoring well overall and highest on
employability: this is estimated to yield Independent visas and
Concessional visas in a ratio of 3:1, compared with a 1:3 ratio in
1987/88; or
b) to select those scoring highly overall and high on
employability: this is estimated to yield Independent visas and
Concessional visas in a ratio of 1:1.
While (a) is most closely targeted to economic requirements, the
cutback in the Concessional category is in my view far too great for

CABINET-IN-CONFIDENCE

CABINET-IN-CONFIDENCE

[8]

one year. There is a high level of community interest and there

would be a high political cost. I favour option (b) which would
still enhance significantly the economic contribution of the I&C
category without cutting so drastically into Concessional
applications. This option is also preferred by the Caucus Committee
on Immigration, Local Government and Ethnic Affairs. I intend
initially to select those scoring 80 and more points, plus those
scoring 75 points and the maximum 25 on the employability factor. I
will also be rejecting applicants scoring less than 75 points,
other than those scoring 70 and the maximum 25 on employability,
who will be held as a buffer for planning purposes. I do not
consider it appropriate to increase the program further just to
accommodate the pressures of the Concessional category.
RESOURCE IMPLICATIONS
14. Based on economic research, increasing the size of the
immigration program should, in time, reduce calls on the budget
through real growth and consequent revenue effects. On the outlays
side, increasing the size of the program by 20,000 places over that
approved in the 1987/88 budget con~ex~ and changing the basib uf
selection will have three key resource effects:
(a) additional resources will be required for post-arrival
services, in line with the formula increase agreed last year
including now some minor provision for accommodation, totalling
around $2.9m (13 ASL) in 1988/89, $4.3m (24 ASL) in 1989/90 and
$5.4m (43 ASL) in 1990/91;
(b) the migration program has increased from around 70,000 to
120,000 without supplementation of overseas administrative
resources. While an increase to 140,000 would be difficult to
absorb in the absence of computerised processing, it is clearly not
possible during a transition period. Accordingly, a very modest
increase of $1.255m per annum is proposed for the two year period to
1989/90 (covering 5 Australia-based staff and 25 Locally Engaged
Staff) until computer systems and procedures are fully operational
and the backlog has been eliminated; and
(c) the delivery of a migration program at specific levels is not
feasible, without causing unsustainable administrative pressures, in
the absence of a floating pass mark and concomitant computerised
processing and program management tools. If 1988/89 levels are to
be controlled, computer resource requirements would be $3.29m (25
ASL) in 1988/89 and $0.93m (3.5 ASL) in a full year. The higher
costs in 1988/89 reflect hardware and software establishment costs.

CABINET-IN-CONFIDENCE

[9]

CABINET-IN-CONFIDENCE
6

15.
(a)

(b)
(c)

(d)

(e)

RECOMMENDATIONS
I recommend that Cabinet:
agree that the 1988/89 migration program should be
transitional, pending consideration of the broad directions set
out by the Committee to Advise on Australia's Immigration
Policies (CAAIP);
agree to a program of 140,000 for 1988/89 as set out in
Attachment B;
agree to a composition of 35,000 family, 12,000 refugees and
Special Humanitarian Program and a contingency reserve of
2,000, 77,000 economic (including 23,000 concessional visas);
and 14,000 Grant of Resident Status (GORS);
agree to restrict entry under Independent and Concessional
categories only to applicants scoring highly overall and on
employability;
note that this will give a greater emphasis to the selection of
young, skilled and readily employable migrants but affects
applicants who can no longer achieve this higher selection
~cquirement;

(f)

(g)

(h)

(i)

(j)

(k)
(1)

note that the resulting projected net permanent gain after

allowing for GORS approvals, Trans Tasman flows and emigration
for 1988/89, is 130,000;
note that the recommendations clean the slate of existing
caseload and allow room for manoeuvre to phase in CAAIP
recommendations later in the financial year if endorsed by the
Government;
agree to additional resources of $7.445m (43 ASL), $6.485m
(32.5 ASL) and $6.33m (46.5 ASL) in 1988/89, 1989/90 and
1990/91 respectively;
note that there may be a need to bring forward a further
submission on resource implications for Review in the 1988/89
Budget context;
agree that the Refugee, Humanitarian and Assisted Movements
vote be held at the 1987/88 Budget level but the purpose be
varied to permit loan fund contributions;
note that the internal review system will have strict regard to
policy applicable at the time of primary decision; and
agree that I make an announcement along the lines of that at
Attachment A.

12

MA(; A~1NET-IN-CONFIDENCE

CLYDE HOLDING

CABINET -IN-CONFIDENCE
7

DRAFT NEWS RELEASE

NATIONAL INTERESTS

ATTACHMENT A

1988/89 MIGRATION PROGRAM TAILORED TO

1.
"Australia will select 140,000 new settlers during
1988-89 in a migration program both economic and
humanitarian in outlook", the Minister for Immigration,
Local Government and Ethnic Affairs, Mr Clyde Holding
announced today.
2.
"It provides the basis for any new directions that may
emerge from the Government's consideration of the FitzGerald
Report, tabled in Parliament on( .... date .... )", he said.
3.
''The policy has succeeded in being sensitive to
Australia's economy as well as to the genuine needs of
people.
4.
"There will be emphasis on bringing into Australia
skilled and entrepreneurial people to contribute to our
economy.
5.
"But, equally, Australia has compassion for those in
genuine need of sanctuary in our country and concern for the
reunification of close relatives in families".
6.
"It means an increase of 8,000 migrants over the
expanded figure of 132,000 for 1987-88", the Minister said.
7.
He said the 1988-89 program has been carefully tailored
to the national interest against the background of soaring
interest overseas, with migration inquiries now running at
around one and a quarter million a year.
8.
Family Migration: "The program will continue to provide
for relaxed entry for close family members, inclu~ing
spouses, dependent children and parents. 35,000 places have
been allocated. These provisions benefit both overseas-born
residents and many people born in Australia who marry
overseas or who have close family living overseas",
Mr Holding said.
9.
Refugee and Humanitarian Migration: "The Government has
reaffirmed its commitment to the global humanitarian and
refugee intake. This category is maintained at 12,000

CABINET-IN-CONFIDENCE

[10]

[11]

CABINET-IN-CONFIDENCE
8

ATTACHMENT A

places, as in recent years, while the regional refugee

allocations have been adjusted to respond to changing
circumstances around the world."
10. "A key feature of this part of the migration program is
its responsiveness to genuine need," Mr Holding emphasised.
For this reason we must retain places for genuine refugees,
and the Government's aim is to ensure that priority is given
to the most pressing humanitarian cases."
11. "Australia's refugee resettlement program is generous
and strongly complements our international aid program and
diplomatic initiatives. Resettlement is a vital measure,
but it it is not the only or always the best way to assist",
Mr Holding noted. ''Australia will continue to work closely
with the Office of the United Nations High Commissioner for
Refugees, the Intergovernmental Committee for Migration and
other humanitarian bodies in international efforts to meet
the needs of refugees."
12. Open Economic Migration: "Our Occupational Shares
System and Employer Nomination Scheme will remain in place
for 1988-89", Mr Holding said. "This will help ensure that
our skilled migration and domestic training efforts are
working together. 18,000 places have been allocated" .
13 . The Business Migration Program has seen a dramatic
increase over the past year from 3,500 persons to an outcome
of 8,000 persons .
14. "The investment and job creation potential of this
program is very significant for our economic development",
Mr Holding said. "The interest shown in the prog:r;am
overseas is sufficient to increase it to 12,000 for 1988-89.
Each principal applicant brings an average of $0.55 million
to Australia and their new ventures stimulate employment
growth . Australia can expect this program to stimulate a
business capital inflow of more than $1.5 billion in
1988/89."

CABINET-IN-CONFIDENCE

[12]

CABINET -IN-CONFIDENCE
9

.ATTACHMENT A

15. "The Independent and Concessional category of the

program will continue in 1988/89 with a focus on young,
skilled and employable migrants, many of whom may have
family in Australia", Mr Holding said.
16. "Concessional points are awarded in this category for
sponsored applicants who are the brothers, sisters, nephews,
nieces or non-dependent children of their sponsors, and the
bonus points for a citizen sponsor have been retained".
17. "This category provides for 45,500 places in 1988/89",
Mr Holding said. "Half the places will be for
Concessionals" .
18. "However, due to vigorous demand for places, only the
highest achieving applicants will be selected, rather than
all those who meet a fixed passmark. This will apply to
both current and new applicants, except in those cases where
preliminary approval has already been notified."
19. "While the Government regrets that many applicants will
be disappointed, Australia cannot afford to operate an
open-door policy. We have to look to the national interest
which is best met by selecting those with the most capacity
to make an early contribution to Australia's economic
development through an easy transition to the workforce."
20. "Migrants come to Australia as settlers, and settlement
assistance has for many years been a vital complement to
immigration. I am pleased to announce that next year the
Government will allocate an additional $2.9m and 13 staff
for settlement services".
21. "Immigration serves a mix of economic, humani~arian and
social objectives, "Mr Holding concluded. "Above all, the
program must be tailored to meet the national interest,
while treating sympathetically the claims of individuals".
22. Further details on categories of the migration program
are covered in paragraphs 23 to 44.

CABINET-IN-CONFIDENCE

[13]

CABINET-IN-CONFIDENCE
10

ATTACHMENT A

Family Migration: Expected outcome

1987/88 : 33,000;
Program
1988/89 : 35,000.
24. Allows for sponsorship of close family, principally
spouses, dependent children and parents. Selection criteria
are simple; mainly basic health and character requirements.
Other sub-categories include orphaned unmarried relatives,
fiancees, children for adoption, special need relatives,
aged close relatives and last remaining brothers, sisters,
and adult children. Sponsors, who in some cases must have
resided in Australia for two years, undertake to provide
accommodation and financial support as necessary.
25. This category responds to demand and the program is an
estimate of that demand. The planned figure may be
exceeded as required.
26. Refugee and Special Humanitarian Programs: Expected
outcome 1987/88 : 1i,200; Program 1988/89 : 12,000.
27. The programs are being maintained at 12,000 places, as
in recent years. The breakdown by region is anticipated to
be: Indochinese 5,200; East Europeans 2,300; Latin
Americans 2,000; Middle Easterners 1,600; Africans 200;
Others 100; and Unallocated 600.
28. The programs retain the flexibility to adjust to
developments through the year. As in previous years a
contingency reserve of 2,000 is available should an
unforeseen emergency situation arise requiring an Australian
resettlement response.
29. Government travel funding will continue to be available
for up to 7,000 persons. Passage assistance will . be
allocated on the basis of demonstrated humanitarian need.
30
Open Economic Migration: Occupational Shares System
(OSS): Expected outcome 1987/88 : 8,000; Program 1988/89
23.

8,000.

Applicants are selected to meet foreseeable short to

medium term skilled labour force needs. The Department of
Employment, Education and Training conducts an annual survey
and a schedule of occupations expected to be in shortage is
31.

CABINET -IN-CONFIDENCE

[14]

CABINET-IN-CONFIDENCE
"

11

ATTACHMENT A

produced with numerical limits or "shares" placed on the

number of migrants who may be selected in each occupation
Applicants must be under 45 years of age; and be allocated a
share; and have their qualifications recognised.
32. Employer Nomination Scheme (ENS): Expected outcome
1987/88 : 9,000; Program 1988/89 : 10,000.
33. The Scheme is designed to enable Australian employers
to seek highly skilled workers overseas when they have been
unable to fill their needs from the Australian labour market
or through their own training efforts. The Scheme will be
administered flexibly to ensure employers' genuine needs are
met. Applicants must be under 55 years of age; and be
nominated by an Australian employer; and have qualifications
and experience to match the advertised position.
34. Within the ENS, the concept of industry-wide negotiated
arrangements has been developed. Under these arrangements,
a 'share' or ceiling is allocated for a defined set of
occupations, but in contrast to OSS, the share is 'demand
driven' - that is, it is activated by employers seeking to
recruit from overseas under the ENS. Streamlined
administrative arrangements apply to the handling of
employer nominations lodged under such arrangements. In
particular, the usual requirements for labour-market testing
do not apply, as these matters are tested when arrangements
are negotiated.
35. Business Migration Program: Estimated outcome 1987/88
: 8,000; Program 1988/89 : 12,000.
36
Applicants must have a successful business bqckground
and intend to settle permanently in Australia and contribute
their expertise and capital to ventures that will benefit
Australia.
37. Independent and Concessional (I & C) Migration:
Expected outcome 1987/88 : 49,500; Program 1988/89 : 45,500.
38. This category aims to select young, skilled, educated
applicants who will make an early economic contribution
through easy transition to the workforce. Applicants are

CABINET-IN-CONFIDENCE

CABINET-IN-CONFIDENCE
12

ATTACHMENT A

assessed against a points system comprising factors of

employability, skills, education and age. Applicants may
score the maximum of 25 points for the employability factor,
if they are skilled in an occupation listed in the
"Designated Occupations List" which is revised periodically.
The maximum points available for each factor are as follows,
figures in brackets are lower scores available depending on
the individual circumstances of applicants:Employability
25 (20, 15, 5, O); Skills 20 (10, O); Education 20 (15, 10,
0); and Age 15 (10, 0).
39. Concessional points are awarded as follows:
(a) 10 points for sponsorship by a resident of Australia of
two years standing for non-dependent children, brothers and
sisters; and
(b) 5 points for sponsorship by a resident of Australia of
two years standing for nephews and nieces.
5 bonus points are available if the sponsor is an Australian
citizen.
40. The former selection mechanism for the I & C
categories, based on a fixed pass mark of 70, is replaced by
a flexible selection system which emphasises those scoring
highest overall and performing strongly on the employability
factor. Selection will target applicants scoring 80 or more
overall, or 75 overall and 25 on employability. Applicants
scoring less than 75, except those scoring 70 and 25 on
employability, will be rejected, while remaining
applications may be considered subject to the number of
available places.
41. Special Migration: Expected outcome 1987/88 : 1,500;
Program 1988/89 : 1,500.
42. Allows migration of applicants not eligible in other
categories where there is a social need or economic or
cultural benefit to Australia and comprises the following
elements: Trans Tasman Travel Arrangement for spouses and
dependents of migrating New Zealand citizens, who are
themselves not New Zealand citizens, (New Zealand citizens

CABINET-IN-CONFIDENCE

[15]

[16]

CABINET-IN-CONFIDENCE
13

. ATTACHMENT A

are exempt from visa requirements); self-supporting

retirees; special creative or sporting talents; former
Australian citizens and residents; and special abilities,
for those not eligible elsewhere but who have outstanding
abilities of obvious benefit to Australia.
43. Grant of Resident Status: Expected outcome 1987/88
11,800; Program 1988/89 : 14,000.
44. Allows for people temporarily in Australia to be
granted permission to reside permanently where the legal
requirements of the Migration Act (S6A(l)) and policy
requirements are met. Eligibility is for: spouses
(including de facto, dependent children and aged parents);
Ministerially recognised territorial asylees or refugees;
people who hold valid temporary entry permits, who are
authorised to work and whose continued stay would be
economically beneficial to Australia; and holders of valid
temporary entry permits who can demonstrate strong
compassionate or humanitarian reasons for remaining.

CABINET -IN-CONFIDENCE

[17]

CABINET-IN-CONFIDENCE
14
MIGRATION PROGRAM

ATTACHMENT B

'000 PERSONS

Category

1988/89

1987/88
Program

Estimated

Proposed

Outcome

Program

Family

33

33

35

Refugees &SHP

12

11.2

12

Contingency

2(a)

Open Economic

oss

ENS

10

BMP

3.5

12

Independent
Concessional
Special Eligibility
Total Visas
GORS
TOTAL

42

1.5

13

22.5

,jQ.J

23
1.5

1.5

109

120.2

126

11

11.8

14

120

132 (b)

140

(a)

Not included in 1987/88 program total.

(b)

Includes increase of 12,000 agreed for 1987/88 program at end

March.

CABINET-IN-CONFIDENCE

[18]

CABINET-IN-CONFIDENCE
ATTACHMENT C

15

REFUGEE AND SPECIAL HUMANITARIAN PROGRAM

1. The humanitarian program has two components: refugee

places and Special Humanitarian places (SHP).

Refugee

entry is governed by our international commitments.

The

SHP is a creation of our own humanitarian policies.

Program levels in recent years have been at the 12,000
mark (with an additional 2,000 places held in a
contingency reserve).
2. As noted in the body of the submission, CAAIP may
recommend an increase in humanitarian intake to 15,000.
Its position on maintaining a contingency reserve is
unclear at this time, but the 15,000 figure appears to
include

~~th

the reserve and those cases granted

humanitarian entry while in Australia.

It may prove

difficult to find sufficient numbers of deserving cases

to fill a program of 15,000, but it could be possible to
accomodate the increase if the program level were seen as
an absolute ceiling rather than an immutable target.
3. In advance of CAAIP no increase is requested.

The

suggested program of 12,000 plus a 2,000 contingency

reserve essentially maintains the intake at similar
levels as in recent years.

This is reasonable given

international resettlement demand and expected results in

1987/88.

The figure should be regarded as a ceiling.

Grant of Residence cases remain separate from the

program.
4. In pursuit of our broader policy objectives, I believe we
must continue our gradual disengagement in the
resettlement of Indochinese.

This recognises that the

majority of people leaving Vietnam today do not have

valid refugee claims.

Furthermore, our efforts to

CABINET-IN-CONFIDENCE

[19]

CABINET-IN-CONFIDENCE
ATTACHMENT C

16

overcome obstacles in our family migration from Vietnam

are now beginning to show success and we should expect
increased numbers under this program during the course of
the coming program year.
We have consistently argued
that normal migration through this channel is preferrable
to irregular boat departure from Vietnam.
5. In the 1987/88 program, some 5,900 places have been
allocated to Indochinese.

I would wish to see this

reduced to 5,200 in 1988/89.

I also wish to see a larger

proportion of Indochinese accepted under the Special

Humanitarian Program and not taken as refugees.

By

reducing the refugee component of the Indochinese

program, the way will be cleared for further
disengagement in coming years.

This is a key element of

6. In other areas of the world, a general stabilizing trend

in refugee movements is evident.

The situation in

Central America, however, remains volatile.

In-country

programs from El Salvador and Chile remain necessary,

though I believe we can terminate the special in-country
program for Poles,

just as special provisions for

Lebanese and Sri Lankans were terminated in 1987/88.

Deserving cases will continue to receive consideration,
of course.

In Eastern Europe we should expect new

caseloads, largely as a result of increased numbers of

people leaving the Soviet Union (eg Soviet Jews).

CABINET-IN-CONFIDENCE

[20]

CABINET-IN-CONFIDENCE
ATTACHMENT C

17

7. Though overall program numbers are not varied in 1988/89,

I propose that there be scope to reduce the refugee
component by up to 1000 places (or approximately 10 per
cent of the total program) and to transfer such places to
the SHP component.

During the current program year, my

predecessor obtained Cabinet approval for this

flexibility to a level of 20 per cent for the Indochinese
portion of the program.

This submission therefore is for

a funded component of some 7,000 out of 12,000 places,

similar to 1987/88, but presents 1,000 of these places as
notionally flexible.

I see this flexibility as crucial

to allow a proper response to developments in the field

during the course of the program year.

To maintain the

integrity of our humanitarian programs, it is important

that persons are selected under the categories which most
correctly reflect

i:.i1~

ucttu.ce uf Li1eir human ri1::1i1i..S

claims.
8. This proposed refugee/SHP flexibility has implications
for the way funds for travel assistance are applied.

do not propose a reduction to the overall funds available

under the travel assistance vote.

In 1987/88 this vote

stood at some $6.5 m, having been severely reduced in

1986/87, and currently provides travel assistance only to

persons accepted as refugees or under in-country SHP
programs.

As was indicated last year, this created

hardship for many of those accepted by Australia under

the (unfunded) global SHP category.

It is at the very

least necessary that Australia ensures persons accepted

on humanitarian grounds and requiring money for travel
have access to a loan on favourable terms.

CABINET-IN-CONFIDENCE

[21]

CABINET-IN-CONFIDENCE
18

ATTACHMENT C

9. The Intergovernmental Committee for Migration (ICM) is

well placed to provide interest free loans, and many
persons migrating to Australia already turn to ICM
funds.

Any reduction in the number of funded places will

increase the pressure on ICM to provide soft loans.

propose, therefore, that the purpose of the travel

assistance vote be broadened to permit, as appropriate,
the direction of a proportion of the funds to ICM,
earmarked specifically for travel loan assistance, should
the number of unfunded entrants increase.
ICM has
previously sought an Australian contribution to its loan
funds precisely to ensure its capacity to provide soft
loans to migrants continues.

CABINET-IN-CONFIDENCE

[22]

CABINET-IN-CONFIDENCE
19

ATTACHMENT C

PLANNED REFUGEE/SHP PROGRAM:

( i)

1987/88

DETAILED BREAKDOWN

funded
ref/SHP

unfunded
SHP

total
program

Indochinese
Eastern Europeans
Middle Easterners
Latin Americans
Africans
Others
Unallocated

3,820
1,100

2,080
900
1,100

S,900
2,000
1,600
1,77S
200
19S
330

1987/88 TOTAL

6,820

(ii)

1988/89

soo

1,22S
lSO
25

sso
so

170
330

anticipated
outcome
(pro rata)
6,210
2,166
1,066
l,S7S
120
43
20

S,l80
12,000
11,200
(plus 2,000 contingency reserve)

funded
ref/SHP

possible
funding
margin

unfunded
SHP

total
program

Indochinese
Eastern Europeans
Middle Easterners
Latin Americans
Africans
Others
Unallocated

2,800
900
500
l,SOO
lSO

400
100
200

2,000
1,300
1,100
300

100

300

200

5,200
2,300
1,600
2,000
200
100
600

1988/89 PROPOSED

6,000

so

so
so

s,ooo
1,000
12,000
(plus 2,000 contingency reserve)

CABINET.. IN-CONFIDENCE

[23]

CABINET -IN-CONFIDENCE

20

ATTACHMENT D

INDEPENDENT AND CONCESSIONAL <I & C> CATEGORY

1.

The Government announced on 6 April that because of the

strong increase in interest in migration to Australia the

program for 1987/88 was to be increased by 12,000 to 132,000.
Of this increase 7,500 is for the I & C category where
applications under active consideration (the pipeline> have been
increasing rapidly.
2.

In the I & C category <non-dependent children, brothers,

sisters, nephews and nieces and independent applicants) the

pipeline <comprised of about half Independent and half
Concessionals) is

llk.~.i..y

i..u :u~ ctLuui..

1..;2, 000 by

e :L ,~

June 1988,

growing to about 217,000 by June 1989 after allowing for an I &

C visa issue program in 1988/89 of 45,500.

Under existing

policy <applying just a 70 points pass mark> and allowing for

normal attrition rates, it is estimated that another 143,000
would normally have been eligible for visas.

Unless these

applicants are rejected they would represent a substantial visa

queue that would take at least two years to clear.
3.

In the meantime processing of applications not already at

preliminary approval stage has been suspended except for those

scoring the maximum points <25/25> under the employability
factor and who also achieve the current pass mark <70) under the
points test.

These applicants have a high employability

profile and accord with the Designated Occupations listed on the

advice of the Department of Employment, Education and Training.
4.

About 70 per cent of the I & C pipeline could be

expected to be visaed under the existing 70 points pass mark.

Under the option supported in the Cabinet Submission
Independents and Concessionals who would be visaed would each
make up about 9 per cent of the pipeline whilst the alternative
option would yield about 13 per cent and 5 per cent
respectively.

CABINET-IN-CONFIDENCE

[24]

CABINET-IN-CONFIDENCE

ATTACHMENT D

21

5.

There are significant differences in the profiles of the

Independent and Concessional components.

Independents receive

no concessional points and have to score highly on all factors

to reach the 70 points pass mark (they can score a maximum of
80).

Consequently those selected are generally young,

educated, skilled and assessed as of high employability in areas

most needed by the labour market.

As Figure 1 shows, their

skill profile is on a par with Skilled Labour and Employer

Nominee categories.

They are persons with the potential to

make the greatest economic contribution to Australia.

Table 1

highlights the difference in occupational structure of the two

components.
6.

Concessional applicants are generally less skilled and are

advantaged considerably in selection by the allocation of from 5

to 15 additional points, on the basis of the kinship
relationship with and the citizenship of the sponsor.
Concessionals thus have a maximum of from 85 to 95 points
available to them, depending on the sub-category.

They have

required the same 70 points pass mark as Independents.

Because

of the direct links with Australia via sponsors there are

significant ethnic community interests in this component.
7.

Persons visaed by source country under the Independent

category are shown at Table 2, under the

Concessio~al

shown at Table 3 and for I & C shown at Table 4.

categories

Table 3

indicates the source countries most likely to be directly

affected by a heavy curtailment of concessional visas.

Some of

these countries <UK, Malaysia, Hong Kong> also supply

significant numbers of Independent migrants.

Others

<Phillipines, Lebanon, Yugoslavia, South Africa, Fiji, India,

Chile, Egypt> provide relatively few Independent migrants and
will therefore experience a disproportionately heavy decline in
acceptances under the transitional arrangements proposed.

CABINET-IN-CON Fl 0 EN CE

[25]

CABINET-IN-CONFIDENCE

ATTACHMENT D

22

Table 1:

Proportion of I & C Principal Applicants scoring 70 or

more points by occupation

Occupation

Independent
%

Professional, technical, skilled <a>

Clerical, administrative <b>
Semi-skilled
Other
Total

Concessional
%

86.2
5.8
0.7
7.3

29.8
32.5
26.4
11.3

100.0

100.0

<a>

Includes those classified as professional, technical and

related workers, medical and para medical, engineering and
Qc~~u c~ , 0us~ness and c~rr~erce, other professionals,
skilled building, metal and electrical and other skilled.

<b>

Includes clerical, commercial and administrative workers

(e.g. clerks, typists, stenos, receptionists, sales people
and non-professional managers).

Source:

Department of Immigration, Local Government and

Ethnic Affairs <DILGEA), Migration Program Management
System (MPMS> based on worker codes of principal
applicants processed between July 1986 and October
1987.

CABINET-IN-CONFIDENCE

[26]

CABINET-IN-CONFIDENCE

ATTACHMENT D

23
Table 2:

Independent Category - Persons visaed by Source Country

COUNTRY/POST

1987-88 (Jul-Jan>

1986-87

UNITED KINGDOM
HONG KONG
MALAYSIA
IRELAND
DENMARK
U.S.A.
BRUNEI
SINGAPORE
PORTUGAL
GREECE
SWEDEN
SOUTH AFRICA
GERMANY, WEST
MAURITIUS
THAILAND
SRI LANKA
CANADA

Number

Per cent

Number

Per cent

2,859
211
79
220
129
136
<a>
(a>
103
(a>

61.0
4.5
1.7
4.7
2.8
2.9

3,530
542
408
405
220
217
173
157
153
134
115
110
110
110
110
107
102

44.6
6.8
5.2
5.1
2.8
2.7
2.2
2.0
1.9
1.7
1.5
1.4
1.4
1.4
1.4
1.4
1.3

2.2

\a J

70
<a>
<a>
<a>
(a>
<a>

1.5

OTHER

800

18.8

1,214

15.3

TOTAL

4,687

100.0

7,917

100.0

<a>

Less than 1.25%

(Source:

included in 'other'

DILGEA Migration Program Management System>

CABINET-IN-CONFIDENCE

[27]

CABINET-IN-CONFIDENCE

ATTACHMENT D
24

Table 3:

Concessional Categories - Persons Visaed by Source Country

COUNTRY/POST

1985-86 (a>
Number

Per cent

1,049
6,278
972
(b)
854
2,213
1,123
1,844
(b)
1,145
1,169
(b)
(b)
991
(b)
739
699
691
687
619

3.5
21.1
3.3

3.8
.. 3. 9

OTHER
TOTAL

PHILIPPINES
UNIT~D KINGDOM
) MALAYSIA
MAURITIUS
LEBANON (c)
HONG KONG
YUGOSLAVIA
SOUTH AFRICA
FIJI
INDIA
CIIILE
EGYPT
SINGAPORE
SRI LANKA
VIETNAM
CHINA
KOREA, SOUTH
ARGENTINA
CANADA
PORTUGAL

1986-87
Number

1987-88 (Jul-Jan>

Per cent

Number

Per cent

8.0
22.5
4.9
4.6
2.2
3.6
5.3
5.5

2.5
2.3
2.3
2.3
2.1

2,792
7,842
1,701
1,607
779
1,254
1,830
1,903
(b)
1,075
1,006
(b)
1,020
1,398
896
(b)
(b)
(b)
(b)
(b)

8,718

29.3

9,688

27.8

6,329

25.0

29,791

100.0

34,791

100.0

25,345

100.0

2.9
7.4
3.8
6.2

3.3

3.1

4,428
3,903
1,230
1.186
1,104
1,079
1,065
1,048
850
664
bjl

:.:::.~

619
619
590
(b)
(b)
(b)
(b)
(b)
(b)

2.9
4.0
2.6

17.5
15.4
4.9
4.7
4.4
4.3
4.2
4.1
3.4
2.6
2.5
2.4
2.4
2.3

(a)

Excludes Nephews & Nieces sub-category which was opened

from 1 July 1986.

<b>

Less than 2%

(C)

Processed through Damascus

<Source:

included in 'other'

DILGEA Migration Program Management System>

CABINET-IN-CONFIDENCE

[28]

CABINET -IN-CONFIDENCE

25
ATTACHMENT D
Table 4:
Country

Independent & Concessional Category - Persons Visaed by Source

NOTE:

<Source:

For 1985/86, excludes Independent and Nephews & Nieces

sub-categories which were opened from 1 July 1986.
<b>

Less than 2%

included in 'other'

<c>

Processed through Damascus

DILGEA, Migration Program Management System>

CABINET-IN-CONFIDENCE

[29]

CABINET-IN-CONFIDENCE
26

ATTACHMENT D

FIGURE 1

Skill Level of Intake

by Eligibility Category - 1986-87
% SKILLED(A)

501
40i
30

20
10
0
Famil~

Non Broth Neph Indep OSS

dep -ers -ews
chldn Sist Nie
-ers -ces

EHS Busin Ref NZ cits

-ess

(A) Prof,tech and skilled trades. Excludes stenographers, clerks and

(All persons, not just principal applicants )
Source: DILGER, Movements Data Base.

CABINET-IN-CONFIDENCE

t~pist~

[30]

CABINET-IN-CONFIDENCE
27

ATTACHMENT E

NEW ZEALAND CITIZEN PERMANENT ARRIVALS

Year ended 30 June

No.

1979

11,668

1980

14,275

1981

19,102

1982

12,923

1983

7,789

1984

6,640

1985

10,601

1986

15,185

1987

15,923

1988

16,000(a)

1989

16,000(a)

(a)

Estimate.

SOURCE:

Department of Immigration, Local Government and

Ethnic Affairs, Australian Immigration Consolidated
Statistics and unpublished figures.

CABINET-IN-CON Fl DEN CE

[31]

CABINET-IN-CONFIDENCE
28

ATTACHMENT F

PERMANENT DEPARTURES FROM AUSTRALIA

1.
On an annual basis the number of permanent departures has
fluctuated in recent years. Numbers peaked at 44,900 in 1972/73 but
have generally declined since then (figure 1). Over the last 10
years numbers have fluctuated around 20,000. In 1986/87 they
numbered 19,930 and estimates for 1987/88 are about the same.
Figure 1.

Permanent
departures,
Australia,
1961-87
Sources:
Department of
Immigration and
Ethnic affairs.
Australian
Immigration
Consolidated
Statistics No. 13.
1982and
UIIIJUUiiShed
statistics. and
Australian Bureau of
Statistics. Austalian
Demographic
Statistics.
September Quarter
1986.

rooo,

Other
resident
departures
Former
selller
departures

1961

1966

1971

1976

1981

1987

YeJr ended JO June

2.
Permanent departures are made up of former settlers and other
residents (primarily Australian-born). There is a relationship
between settler arrivals and former settlers departing: since the
1960s the latter have generally been between 15% and 20% of the
former two to three years previously. In recent years the lag
between arrival and departure has shortened to two years while the
departure rate has dropped from 19.5% in 1978/79 to about 14% in
1986/87. This can be attributed to the changing composition of the
intake.

CABINET-IN-CONFIDENCE

CABINET -IN-CONFIDENCE
29

[32]

ATTACHMENT F

3.
Rates of return migration vary markedly by birthplace group and
policy category. Lowest return rates are of people from Asia and in
the refugee category. Assuming a refugee intake of 12,000 and no
significant change to the birthplace composition of the intake, the
departure rate is estimated to be 15.5% in 1988/89. This, combined
with the increase in settler arrivals in recent years, is expected
to result in an increase in permanent departures to about 24,400 in
1988/89.
4.
Given these trends, the gain to Australia from net permanent
migration is somewhat less than the intake figure. In 1986/87 net
permanent gain was 103,717, representing the continuation of the
rise in net gain from 55,501 in 1983/84. In 1987/88 net permanent
gain is estimated at 128,000 with a further increase to 130,000 in
1988/89 assuming a total program figure of 140,000. These figures
include Grant of Resident Status approvals and net permanent gain
from New Zealaw.l L:.J..L..J..~eu Htuvt=uu:::ui...

CABINET-IN-CONFIDENCE

CABINET-IN-CONFIDENCE

[33]

30

ATTACHMENT G
CO-ORDINATION COMMENTS
Department of Employment, Education and Training
1.
The Department of Employment, Education and Training notes the
transitional nature of the proposed 1988/89 program and generally
agrees with the approach taken.
2.
In relation to the two options presented for the Independent
and Concessional (I&C) category, option (a) would be preferable on
labour market grounds, but the Department recognises the likelihood
of strong community reaction if that option were accepted. However,
option (b) would also result in a significant increase in the
economic contribution of the I&C category compared to that of recent
years, and is therefore supported. At the same time, the Department
considers the increasing emphasis on economic migration should also
be accompanied by measures to increase domes~1c ~raining activity.
The Department agrees with the retention of the Employer Nomination
Scheme and the Occupational Shares System as separate categories
within the program, pending the consideration of the CAAIP report.
3.
The Department notes the principal justification for the
increase in the overall program figure to 140,000 immigrants would
appear to be largely based on the need to clear the existing
backlog, and does not provide a guide to the ongoing program size.
It also notes with some concern the suggestion in paragraph 14(c)
that program levels in 1988/89 may not be controlled unless
additional computer resources are provided.
Treasury
4.
Treasury supports the thrust of the Submission, noting the
intention to maintain program flexibility (essential to a program
which provides greater emphasis to economic considerations) by the
retention of separate ENS and Business Migration Program categories.
Resources should, however not be allocated for computers or other
resources in anticipation of Government approval of CAAIP
recommendations. Such proposals, in any case, require Expenditure
Review Committee considerations.

CABINET-IN-CONFIDENCE

CABINET-IN-CONFIDENCE

[34]

31
ATTACHMENT G
Department of Industry, Technology and Commerce
5.
The Department of Industry, Technology and Commerce considers
that a higher intake to take advantage of the upsurge in the
popularity of Australia with independent, skilled or business
applicants would be preferable.
6.
The Department also favours option (a) in paragraph 13 (ie a
higher proportion of independents in the Independent and
Concessional category) to more closely align the Migration Program
with economic policies and the need to improve the skills base of
the Australian workforce.
Department of Industrial Relations
7.

The Department of Industrial Relations supports an increased

GC~~~~ic focus in the ~igration program by emphasising y~~~;,
skilled and entrepreneurial migrants. The Department considers
however, that the program should be matched by an increased domestic
training effort by industry (through mechanisms such as negotiated
agreements) to ensure the current migrant intake is not
unnecessarily maintained over the longer term. Given the proposed
expansion of the migration program, it is desirable that
consultation take place at an early stage with unions and employers
to ensure that the desired level of co-operation is achieved in
implementing the program and measures arising from CAAIP.
Department of Administrative Services
8.
The Department of Administrative Services has no comment on the
basis of the Department of Immigration, Local Government and Ethnic
Affairs' undertaking to locate additional staff so as not to incur
any significant office accommodation costs.
Department of Finance
9.
The Department of Finance questions the need for decisions to
be taken on this Submission ahead of the Budget new policy process,
noting that the figuring in the forward estimates (125,000 intake in

CABINET-IN-CONFIDENCE

CABINET-IN-CONFIDENCE

[35]

32
ATTACHMENT G
1988/89) and the recent decision for 1987/88 (132,000) provides
sufficient information for general planning purposes at this stage.
If, however, Ministers wish to take a decision now, Finance
considers that any additional resources should be treated as a first
charge on the portfolio's new policy allocation and that there
should be a clear expectation that offsetting savings will be
expected in that context. This should apply also to any resource
implications for the Review function foreshadowed in the Submission.
10. In relation to the size of the immigration program, Finance
does not accept that there is a clear case that an increase will
reduce calls on the budget over time; indeed, Finance is concerned
that an increase runs the risk of increasing calls on the budget in
the short term and increasing domestic demand when macro-economic
concerns require the opposite. The composition of the intake is of
greatest importance in both the short and longer term; in this
regard, FiD.u.u.::.s: .::c::.::;i.d.c:LS tt.~t , in line ~7i -+:h option (a) , a stronger
emphasis should be given to economic migration by selecting only
those migrants in the Concessional category achieving highest scores
on the employability criterion.

.)

11. Finance considers that a lower target than the proposed 140,000
should be set, but accepts that there may be a case for a small
increase in the level of the migration intake in 1988/89 (only) to
accommodate the backlog that has developed. It is concerned that
steps be taken to ensure that demand is managed so that the program
does not blow-out as has happened in each of the last two years. It
also considers that consideration should be given to substantially
increasing the level of migration fees to provide an improved
rationing device, and to offset cost pressures. Iri particular,
Finance considers that the increase in post-arrival services costs
should be met from increased revenue.
12. With regard to the additional funds sought for computer
systems, Finance considers that agreement to the proposal should be
subject to the identification of offsetting productivity gains
(savings).

CABINET-IN-CONFIDENCE

CABINET-IN-CONFIDENCE

[36]

33
ATTACHMENT G
Attorney-General's Department
13.

No comment.

Department of Prime Minister and Cabinet

14. The Department of Prime Minister and Cabinet, including the
Office of Multicultural Affairs, agrees with a 1988/89 migration
program of 140,000 and has no objection to the broad thrust of the
Submission about the appropriate balance between family reunion,
refugee and humanitarian and other categories. The Department
considers, however, that some recommendations are too pre-emptive of
the eventual outcome of the CAAIP report. In particular, the
Department considers that recommendations (c) in relation to the
creation of a new catch-all economic category, and (d) involve
potentially controversial matters on which the Government's resp r
to CAAIP should not be pre - judged. The Dcp~rtment of Pri~e Min~ sL ~
and Cabinet notes that most of the Department of Immigration, Local
Government and Ethnic Affairs' request for additional resources
(recommendation (h)) is based on an assumption about the outcome of
CAAIP. The Department considers that such resource questions cannot
be addressed until the Government's position on CAAIP has been
decided. It is recognised, however, that resource implications
flowing from an increased program do need to be addressed at that
time.
Department of Foreign Affairs and Trade
15. The Department of Foreign Affairs and Trade (DFAT) supports the
recommendations but notes that the compromise in relation to the
Independent and Concessional category will entail attendant domestic
financial cost. With regard to recommendation 15(h), DFAT is
concerned that costs incurred by this portfolio on behalf of the
Department of Immigration, Local Government and Ethnic Affairs'
(DILGEA) Australia-based staff posted overseas are not addressed.
Specifically, the Department is concerned about provision of the
cost of utilities at officers' residences and additional costs of
office services, including equipment, stationery and telephones. In

CABINET -IN-CONFIDENCE

[37]

CABINET-IN-CONFIDENCE
34

ATTACHMENT G
the absence of details about intended distribution of additional
staff, DFAT reserves its position in relation to possible additional
resources resulting from the proposed program's impact on individual
posts. Furthermore, DFAT is concerned about the possible effect
program changes may have on the work done at the posts where DILGEA
is not represented. Provision of additional Locally Engaged Staff
resources may be required if workloads increase.
16. The need for computing equipment and software at posts and for
international communications facilities is the subject of an
imminent review by the Information Exchange Steering Committee.
Issues relating to the compatibility of systems, provision of
communication and the disposition of existing DILGEA computers
should be considered by that review.

CABINET -IN-CONFIDENCE