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C A B I N E T
44
MI N U T E
No. 11195
Submission No. 5799
(b)
(c)
... /2
T his d ocu m ent is the property of the A ustra lian Government and is not to be copied or reprod u ced
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2.
No. 11195 (Cont'd)
of points in paragraph 15 changed so that (b)
becomes (a);
Secretary to Cabinet
This document is the property of the Australian Government and is not to be copied or reproduced
[3]
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5799
Submission No ....
.......
. 4;)c:::
Copy No.
-
. ~. .
FOR CABINET
Title
Minister
Purpose/Issues
Relation to
existing policy
Sensitivity /Criticism
Legislation
involved
jency:
\..., (ical/significant
dates
sultation:
Ministers/Depts
consulted
Is there
agreement?
Timing/handling of
announcement
Cost
87 -
nil
88 )
Fin Yr (
88 -
89 )
Fin Yr (
nil
This document is the property of the Australian Government and is not to be copied or reproduced
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nil
90 )
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BACKGROUND
CAAIP was asked to . make a broad examination of the principles
which should shape a long term immigration policy for Australia,
determine the objectives in terms of the composition and level
of a sustainable program which a rational policy implied and
address the administrative and legislative mechanisms through
which program delivery should be implemented.
Its response to
this brief has been the most far-reaching review of policy in
this sphere which has ever been undertaken and a report which
provides a benchmark against which we can test the depth of
community opinion and thoroughly review, and amend if necessary,
our current policy and the procedures employed to carry it out.
CAAIP REPORT
2. Th~ report is in three volumes - the report proper covering
findings and recommendations, a volume containing commissioned
research papers and a third which deals with model legislation.
A good overview of the thrust of CAAIP .'s findings can be
obtained from the executive summary of the report which appears
at ATTACHMENT B and the summary of recommendations at
ATTACHMENT C.
3.
In line with the span of its terms of reference, the
coverage of the report is wide-ranging.
The issues addressed,
however, fall into two broad categories: (a) matters of
principle which should set the economic and social framework for
the determination of a sustainable migration program which would
attract general community support and <b> matters of procedure
which relate to the administration of a rational program and the
legislative authority required to put it into effect.
4.
Issues in the first category are dealt with ~n the earlier
chapters of the report.
Chapters 1 and 2 and part of Chapter 4
cover the major issues relating to immigration, the principles
and guidelines on which policies should be based and community
attitudes to these questions which CAAIP tested extensively in
the course of its inquiry.
Chapters 3 and 5 address the more
technical issues of the economic and demographic focus of
immigration policy and the translation of these factors into
concrete proposals on the composition and level of a migration
program.
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5.
I am concerned, however,
In
a general
Despite
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has attended the work of the committee and the wide range of
interests which are potentially affected by our reaction to its
report - ethnic groups, trade unions, employer organisations and
professional associations to name but a few - I believe there is
no question that the immediate release of the report is the only
course to adopt.
r~port
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This would
sections of the report <see para 5> are largely matters which
require settlement of a policy framework before they can be
effectively addressed.
The choice of detailed selection
methods for migrants, for example, will depend on policy on the
composition of a program and probably on its general level.
Apart from the matter of legislation, these issues are also
largely of internal interest to my portfolio or amenable to
settlement by agreement between Ministers.
I would therefore
preliminary work, but clearly could not report before the end of
the community response period.
basis:
(a)
<b>
IDC
(C)
<d>
t~
Sittings
(e)
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RECOMMENDATIONS
16.
<a>
20 May 1988
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Clyde Holding
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ATTACHMENT A
CAAIP REPORT
DRAFT TABLING STATEMENT
For the information of Honourable Members, I table the Report of
the Committee to Advise on Australia's Immigration Policies
(CAAIP) entitled "Immigration- a Commitment to Australia".
2.
The Committee to Advise on Australia's Immigration Policies
(CAAIP) was established by my predecessor, the Hen Michael J
Young, in September 1987, in response to a commitment by the
Government during the last elections for a review of immigration
policies, including the points system. There had been no major
review of immigration policies for 10 years.
3.
The terms of reference asked the Committee to address all
pertinent matters including in broad terms, the following:
(a) the relationship between immigration and the economy,
including the effects on the labour market and economic
development;
(b) the relationship between immigration and Australia's social
and cultural development as a multicultural society;
(c) the relationship between immigration and key population
issues;
(d) the overall capacity of Australia to receive significant - - immigration intakes; and
(e) the relationship between immigration policies including
compliance, and the administrative and legislative processes
involved.
4.
In carrying out its work, the Committee was asked to:
(a) have regard to the principles that Australia's immigration
policies are non-discriminatory in respect of national or
ethnic origin, race, sex and religion and that it is a
sovereign right of the Australian Government to determine
who should enter;
(b) have regard to Australia's continuing commitment to play its
part in providing international humanitarian assistance to
those in need;
(c) note that the Government has ruled out an amnesty for
__ illegal immigrants;
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ATTACHMENT A
(d) bear in mind settlement experiences insofar as they are
relevant to the framing of immigration policies, noting that
the Government is separately developing a National Agenda
for a Multicultural Australia; and
(e) undertake full consultation with interested parties through
written and oral submissions and other appropriate means;
(f) AND to report on:
(i)
the guiding principles which should shape
Australia's immigration policies, looking ahead to
the end of this century;
(ii)
the balance of objectives which should be
reflected in policies in terms of composition and
level of immigration; and
(iii)
administrative and legislative mechanisms
necessary for the implementation of immigration
policies.
5.
The Committee was chaired by Dr Stephen FitzGerald, a
well-known academic and businessman, our first Ambassador to
China, currently a consultant on relations and trade with China,
Chairman of the Asian Studies council and a member of the
Advisory Council on Languages and Multicultural Education.
Members of the Committee included Mr Tony Bonnici A.M., Melbourne
barrister and Chairman of the Victorian Ethnic Communities
Council; Professor Helen Hughes, Professor of Economics and
Executive Director of the National Centre for Development
Studies, Australian National University; Mr Jim Hullick,
Secretary-General of the South Australian Local Government
Association; Mr Alan Matheson, Ethnic Liaison Officer with the
Australian Council of Trade Unions; Dr Alessandra . Pucci, Managing
Director of Australian Monoclonal Development Pty Ltd, QANTAS
businesswoman of the Year 1985. The Secretary to the Committee
was Mr Peter Eyles, then a senior official with the Department of
Immigration, Local Government and Ethnic Affairs.
6.
CAAIP submitted its final report in May 1988. The report
consists of three volumes. Volume I is the report proper. It
consists of eight chapters and makes 73 recommendations.
Volumes II and III are the companion volumes. Volume II contains
reports of the 14 consultancies commissioned by the Committee as
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ATTACHMENT A
Volume III includes
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ATTACHMENT A
pre-empting community discussion of the report, I wish to say at
the outset that the Government remains committed to certain basic
principles in the development of its immigration policies .
15. These are that:
(a) immigration policy will remain non-discriminatory in terms
of national or ethnic origin, race, sex or religion;
(b) immigration policy will continue to be based on the national
interest;
(c) economic considerations - including domestic training and
retraining requirements - will continue to feature
prominently in any expansion of the immigration program;
(d) family migration will remain a vital component;
(e) policy will continue to take proper account of Australia's
human resources.
16. The Government's commitment to the fostering and development
of a multicultural society remains within the Australian culture
a cornerstone of its social justice policies and an important
element of its economic strategy by creating a climate in which
we can make full and effective use of all our human resources,
irrespective of linguistic and cultural background. It is thus
an essential domestic policy to complement our non-discriminatory
immigration policy.
17. There are many elements of the Committee's report which
offer constructive opportunities for debate.
18. For example, the Government remains concerned that so many
permanent residents fail to take up the option of citizenship.
We believe that citizenship is a legitimate expression of
national commitment and wish to provide positive encouragement to
immigrants to take up Australian citizenship. We would welcome
community views on this question.
19. The report raises a wide range of other issues which provide
legitimate ground for debate and discussion. This includes a
"Model Migration Bill" which contains radical proposals in
relation to the role of the Minister, enforcement, external
review and determination of refugee status procedures. The
policy and administrative implications of these proposals are
substantial. They require careful examination and appropriate
consultation, especially with State G~vernments on all matters
raised in the report which affect their functions.
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ATTACHMENT A
20. In commissioning this review the Government was conscious
that there was a level of concern in the community about
immigration policies, numbers, composition of the intake and the
immigrant's role in a changing Australian society.
21 . The Committee's report identifies many of these concerns and
sets them in a broader national context.
22. We share the Committee's view that immigration should occupy
a central place in national policy formulation and that its
essential contribution to Australia's social and economic
development should be more strongly promoted.
23. It argues that immigration policy must be for all
Australians and must be in the mainstream of government
decision-making. That immigration policies must be identified
with public interest, be based on a coherent philosophy and be
given a convincing rationale.
24. The report identifies this rationale as principally an
economic one but one that must be in harmony with social and
humanitarian objectives.
25. Immigration in itself cannot be a tool for economic
adjustment. Its value is that it can contribute to structural
adjustment by having a positive impact on economic growth and
living standards, contributing to improvements in productivity
and maintaining an appropriate balance in the age profile of the
community.
26. Arising from this, the Committee argues for a sharper
economic focus through an increase in the size of the program to
accommodate a larger new Open category where the selection
process would favour skilled, entrepreneurial and youthful
immigrants. Language skills and kinship or other . links with
Australia would also weigh in selection. Procedures and barriers
in the labour market which discourage skilled immigrants from
fulfilling their potential must also be removed.
27. The report also makes recommendations in regard to
settlement policy, the administration of the program and
proposals for new legislative requirements.
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ATTACHMENT A
28. It should also be noted that, while the Committee
encountered widespread misunderstanding of the concept of
multiculturalism, it observed that the need for multiculturalism
ought not to be disputed, and recognised a need to reaffirm the
ideals upon which mul ticul turali.sm is based.
29. The Government emphasises that it has made no decision in
relation to CAAIP's proposals. It intends that a period of some
three months should be set aside for public evaluation and
comment. During that time State Governments, major ethnic
bodies, the trade union movement, key industry organisations and
Australians with an interest in this issue will be able to
contribute their views on the report and the future direction of
immigration policy. My Department will monitor and evaluate the
comments made, and report to me. The Government will also
establish an interdepartmental committee to commence an
evaluation of the report's proposals, and I have asked the
National Population Council to advise me on some of the important
issues that arise.
30. Following on these processes, I shall put to Cabinet my
recommendations regard~ng the report, with the intention that I
would announce the Government's decisions on the main policy
issues during the forthcoming Budget Sittings. At that time I
would also indicate the Government's attitude towards the
Committee's proposals for legislative and administrative change,
and a timetable for implementation of agreed reforms.
31. The Committee has undertaken a far-reaching review of our
immigration policies and programs. Its proposals deserve, and
will receive, thorough and careful consideration. As the
timetable I have announced makes clear, there will be neither
rush to decide nor unnecessary delay. I might mention here that,
for planning purposes, I must shortly be in a position to
announce the Government's proposals for the 1988/89 immigration
intake. Clearly there will be only very limited opportunity to
take account of the Committee's proposals, many of which would
require a significant lead time if they were to be implemented.
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ATTACHMENT A
32. I wish to express the Government's thanks to the members of
the Committee for this signific~nt and forthright report which
may well be considered as the most far-reaching review of
Australia's immigration policies ever undertaken. I commend the
CAAIP report for the consideration of the House. I present the
following paper:
"Immigration - A Commitment to Australia" - Report of the
Committee to Advise on Australia's Immigration Policies Ministerial Statement, 26 May 1988.
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ATTACHMENT B
CAAIP REPORT
Executive Summary
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ATTACHMENT B
Government should move to restrict the non-survival
benefits and privileges available to non-citizens.
Non-citizens should not be able to. sponsor immigrants,
except in certain compassionate circumstances.
Immigration policy is for all Australians, not for
sectional interest groups. It must not be allowed to slide
into the margins of government decision-making. It must be
~n the mainstream.
A coherent philosophy of immigration is needed. Such a
philosophy should emphasise the Australian context of
immigration and the commitment required of all Australians
to Australia and its future, and allow Australians to
understand how immigration affects them now and in the
future, how it can contribute to a positive harmony of
economic and social benefits, to a culturally enriched
Australia, to openness, tolerance and sophistication, to
economic independence, to creativity, and to a racially
diverse, harmonious community.
Chapter Two. Community Views and Perspectives.
Australians want to be heard and to be informed on
immigration matters. The Committee has heard and read views
representing hundreds of thousands of Australians, and
commissioned three independent studies of community
attitudes towards immigration. We have taken them into
account in formulating the recommendations of this Report.
Major issues of concern to the community included
immigration numbers, composition of the intake and the
immigrant's role in changing Australian society. Race did
not come through as a major concern, although the Committee
recognised it as an issue attracting widespread publicity,
and one requiring attention.
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ATTACHMENT B
English language emerged as another central issue of
concern, many people arguing strongly for its inclusion in
the immigration selection criteria, some others asserting
that it should not be part of selection but should be the
first priority of settlement facilitation.
Chapter Three. The Economic Focus and Population Issues
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ATTACHMENT B
Although settlement philosophy is much more welcoming
today than it was 40 years ago, the community is still not
convinced we have it right. The philosophy of
multiculturalism is not widely understood, and the
uninformed ensuing debate is damaging the cause it seeks to
serve.
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ATTACID1ENT B
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ATTACHMENT B
Chapter Seven. Administration.
Policy reform must be complemented by administrative
reform. The new administration of DILGEA has this in hand
but inherits a serious image problem.
Administrative .reform is needed in the areas of
selection and training of staff, consulting and planning
mechanisms, research, public education and recognition of
overseas . qualifications.
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ATTACHMENT C
CAAIP REPORT
RECOMMENDATIONS
CHAPTER ONE
Definitions
1.
That the Australian Bureau of Statistics' definition of
Asia be revised to exclude the countries west of India,
Pakistan and Afghanistan.
Philosophy
2.
That the Government affirm its commitment to immigration
policies which are non-discriminatory in respect of national
or ethnic origin, race, sex or religion, and that this
principle be asserted in all relevant published information.
3.
That the Government affirm a commitment to an immigration
philosophy which will produce as we enter the 21st century
such outcomes in society as are outlined in Chapter 1 of the
Report, and that immigration philosophy be further developed
and refined on this basis and communicated broadly to the
Australian community.
4.
That immigration policies be developed in the national
interest and for all Australians, and that in the philosophy
of immigration emphasis is given to Australia, the Australian
identity and commitment to Australia.
5.
That immigration be dealt with centrally, to ensure that
it is brought properly within the mainstream of government
deliberations and dealt with as an aspect of mainstream
policy. making and strategic thinking on important economic and
social issues.
6.
That the principle whereby immigration policies are not
determined by bilateral relations be reaffirmed, and that we
should continue to pursue our international obligations and
humanitarian objectives through the established international
networks.
7.
That immigration not be used to ease the economic or
political problems of particular countries or communities,
recognising, however, that refugee policies and programs may
be based on an assessment of the situation in a particular
country.
8.
That government develop and explain to the public a
rationale for immigration, proceeding from the philosophy
outlined in this Report and .addressing the contribution of
immig_ration to national economic and social objectives and the
link between the two, and the national and international
context in which immigration takes place.
9.
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ATTACHMENT C
ii.
v.
vi.
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ATTACHMENT C
x.
Training/Retraining Obligations
10. That in the adoption and implementation of any of the
measures proposed in this Report for the selection of skilled
immigrants, there should be concomitant measures, including
particularly negotiated arrangements, to ensure that the
commitment and the obligation of employers and education
authorities to train and retrain Australians are fully and
properly discharged.
CHAPTER FOUR
Settlement Facilitation
11. That the Department adopt as an objective a shift in
priority in settlement services to those who have been here
for less than two years, and that the needs of immigrants who
have been here for more than two years become the
responsibility of other service delivery and appropriate
policy departments: Social Security; Health and Community
Services; Employment, Education and Training; Industry,
Technology and Commerce; and Industrial Relations.
12. That in public spending, priority be given to four areas
which the Committee identifies as critical to the settlement
process:
English, skills recognition and bridging and
upgrading, support for women immigrants and interpreting and
translation services.
13. That responsibility for adult immigrant edu~at:ion b"e
transferred to the Department of Employment, Education and
Training for immigrants who have been in Australia for more
than two years.
14. That much greater use be made of distance learning for
the teaching of English, in particular by making maximum use
of the Special Broadcasting Service <radio and television>,
including provision of funding for new SBS programs, which
should also be offered for use by the ABC and on non
prime-time commercial television in regional areas.
15. That resources be made available to allow for 12 months
of intensive English - as a Second Language for every immigrant
child who has the need.
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ATTACHMENT C
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ATTACHMENT C
CHAPTER FIVE
Time frame and Program Size
22. That pla~ning be in the form of a 10 year rolling
forecast. At any one time there should be a fixed intake for
the first three years with an indicative intake for the
following seven years.
23. That there be a program of 150 000 per annum from 1988/89
until 1990/91.
Until such time as the changes to immigration
categories and selection have been effected, the program
should be in pro rata terms. The first full year at
150 000 would be 1989/90, and this would be maintained for
1990/91.
24. That until the Government assesses that it has the
program right, more substantial increases not be contemplated.
25. That the immigration program in the period to June 1991
be carefully monitored to assess whether the introduction of
perspective planning, improved selection, <that is the
emphasis on youth, skill and entrepreneurship>, and better
targeted post-arrival services, has increased the impact of
immigration on economic growth and improved Australia's
capacity to absorb immigrants.
26. That the composition of the program for the three years
from 1988/89 <beginning in January 1989> to 1990/91 be as
follows:
i>
,/
Immigration Categories
27. That the immigration program consist of three categories:
Family Immigration, Refugee and Humanitarian, and Open.
Family Immi g ration
28. That the Family Immigration Category be expanded to cover
grandparents of Australian citizens, 55 years of age or older,
that the job offer requirement be dropped for parents 55 years
of age and over, and that parents under 55 be processed in the
Open category.
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ATTACHMENT C
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ATTACHMENT C
Open Category
37. That selection for the Open category be based on three
fundamental elements:
a)
b>
c>
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ATTACHMENT C
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ATTACHMENT C
i>
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ATTACHMENT C
ii>
Immigration Policies
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ATTACHMENT C
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ATTACHMENT C
CHAPTER EIGHT
Model Migration Bill
73. That a draft Bill, drawing on the Committee's model, be
introduced into Parliament as soon as possible to replace the
existing Migration Act.
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ATTACHMENT D
CO-ORDINATION COMMENT
PRIME MINISTER AND CABINET
"The Department of the Prime Minister and Cabinet supports the
recommendations proposed by the Minister."
COMMUNITY SERVICES AND HEALTH
2.
It recognises
Past
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33
Given
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ATTACHMENT D
in the development of any new points system."
ATTORNEY-GENERAL'S
6.
As mentioned in earlier
The
submission."
FOREIGN AFFAIRS AND TRADE
8.
with information
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