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CABINET IN ON Fl DEN E

o py N o

C A B I N E T M I N U T E

Canberra , 23 May 1988

No. 11195

Submiss ion No. 5799 Pro ces s i n g o f t h e R e p o r t o f t h e

Commit tee To Advise On A u s t r a l i a sImmigra t ion P o l i c i e s CAAIP)

The Ca b ine t a g re e d t h a t : -

a ) t h e R e p o r t o f t h e Committee To Advise On

A t l i I i t i P l i i CAAIP) b

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CABINET IN CONFIDENCE

2 .

No. 11195 ( C o n t d )

o f p o i n t s i n p a ra g ra p h 15 changed s o t h a t (b )

becomes ( a ) ; ( a ) becomes ( b ) ; ( d ) becomes ( c )

an d ( c ) ( w i t h t h e wo rd s c o n t i n u e t o d e l e t e d )

becomes ( d )

2 . The C a b i n e t n o t e d t h e i n t e n t i o n o f t h e M i n i s t e r

f o r I m m i g r a t i o n , Loca l Government and E t h n i c A f f a i r s ,

f o l l o w i n g C a b i n e t c o n s i d e r a t i o n o f a f u r t h e r S u b m is s io n

c o v e r i n g t h e I D C s p r o p o s a l s , t o make a s u b s t a n t i v e s t a t e m e n t

t o t h e P a r l i a m e n t b e f o r e t h e end o f t h e Budge t S i t t i n g s 1988

a b o u t t h e G o v e r n m e n t s r e s p o n s e t o t h e CAAIP r e p o r t , w i t h

l i l t i d d i i t t i t i t f l l i 1989

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CABINET IN CONFIDENCE5799

OR C BINETSubmission No ...

4.

- - c. . . . ;Copy No.

Title

Minister

Purpose/Issues

Relation toexisting policy

Sensitivity Criticism

PROCESSING OF THE REPORT OF THE COMMITTEE TO ADVISE ON

AUSTRALIA'S IMMIGRATION POLICIES (CAAIP>

Hon Clyde Hold ing MP, M i n i s t e r For I m m i g r a t i o n , Loca lGovernment and Et h n i c A f f a i r s

To s e e k C a b i n e t s a p p ro v a l o f p r o c e d u r e s f o r t h e f u r t h e rp r o c e s s i n g o f t h e CAAIP R e p o r t . (Cop ies o f t h e Repor t a r ea v a i l a b l e f rom t h e C a b i n e t O f f i c e ) .

e s t a b l i s h e d t o implement an e l e c t i o n commitment t oa b r o a d r e v i e w o f i m m i g r a t i o n p o l i c i e s .

Yes. The work o f CAAIP h a s a t t r a c t e d i n t e n s e p u b l i ci n t e r e s t . Some o f t s views and recommenda t ions may r a i s ec o n c e r n i n s e c t i o n s o f t h e community i n c l u d i n g i n p a r t i c u l a rt h e e t h n i c community.

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2

BACKGROUND

CAAIP was a sk e d t o . make a broad ex ami n a t i o n o f t h e p r i n c i p l e s

which s h o u l d s h a p e a l ong t e r m immig r a t ion p o l i c y f o r A u s t r a l i a ,

d e t e rmi n e t h e o b j e c t i v e s i n t e r ms o f t h e c ompos i t i on and l e v e l

o f a s u s t a i n a b l e program which a r a t i o n a l p o l i c y i mp l i ed and

a d d r e s s t h e a d m i n i s t r a t i v e and l e g i s l a t i v e mechanisms t h r ough

which program d e l i v e r y s h o u l d b e implemen ted . I t s r e s p o n s e t o

t h i s b r i e f ha s been t h e most f a r - r e a c h i n g r e v i e w o f p o l i c y i n

t h i s s p h e r e which ha s e v e r been u n d e r t ak en and a r e p o r t which

prov ides a benchmark a g a i n s t which we can t e s t t h e d ep t h o f

community o p i n i o n and t h o r o u g h l y rev i ew, and amend i n e c e s s a r y,

o u r c u r r e n t p o l i c y and t h e p ro ced u re s employed t o c a r r y i t o u t .CAAIP REPORT

2 . h ~ r e p o r t i s i n t h r e e volumes t h e r e p o r t p r o p e r c o v e r i n g

f i n d i n g s and recommendat ions , a volume c o n t a i n i n g commiss ioned

r e s e a r c h p a p e r s and a t h i r d which d e a l s w i t h model l e g i s l a t i o n .A good ove r v i e w o f t h e t h r u s t o f CAAIP . s f i n d i n g s can be

b i d f h i f h hi h

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CA81NET IN CONFIDENCE

5 . I s s u e s i n t h e s e c o n d c a t e g o r y a r e d e a l t w i t h i n t h e

r ema i n d e r o f t h e r e p o r t . The l a t t e r p a r t o f C h a p t e r 4 co v e r s

a r r an g emen t s f o r s e t t l e m e n t f a c i l i t a t i o n whi l e Ch ap t e r s 6 t o 8

d e a l w i t h t h e s e l e c t i o n o f m i g r a n t s t h e a d m i n i s t r a t i o n of t h e

program and e n a b l i n g l e g i s l a t i o n r e s p e c t i v e l y .POLICY IMPLICATIONS

6 . At t h i s e a r l y s t a g e I have n o t formed a v ie w on t h e m e r i t so f t h e r e p o r t as a whole much l e s s on any o f i t s many complex

and i n t e r d e p e n d e n t recommendat ions . I am co n ce rn ed , however,

t o e n s u r e t h a t p u b l i c d i s c u s s i o n o f t h e s e n s i t i v e m a t t e r s r a i s e d

i n t h e r e p o r t i s l a unc he d w i t h o u t d i v e r s i o n by s i d e i s s u e s and

p r o c e e d s on an i n f o r me d b a s i s . E q u a l l y i m p o r t a n t l y I wish t o

e n s u r e t h a t a sound p l a n i s a g r e e d t o p r o g r e s s a d i f f i c u l tp o l i c y r ev i ew t h ro u g h t h e Governm en t s own d e l i b e r a t i v e

p r o c e s s e s .

7 . I am co n ce rn ed t h a t t h e d e b a t e i s k e p t i n p e r s p e c t i v e . In

s p i t e o f some c r i t i c a l and a t t i mes emot ive l a ngua ge i n t h e

r e p o r t t h e r e a l i t y i s t h a t most of ou r p o l i c y i s n o t i n

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4

m u l t i c u l t u r a l i s m i s b a s e d and t h e need t o a f f i r m t h e s e i d e a l s a sp a r t o f o u r commitment t o i mmi g ra n t s t o t h i s c o u n t r y.

FURTHER PROCESSING

9 . The main m a t t e r r e q u i r i n g a d e c i s i o n a t t h i s t ime i s

w he the r t o p r oc e e d w i t h an e v a l u a t i o n o f p r o p o s a l s w i t h o u t

r e l e a s e o f t h e r e p o r t o r t o r e l e a s e t h e r e p o r t imme d ia t e ly

and m o n i t o r p u b l i c r e a c t i o n a s p a r t o f t h e e v a l u a t i o n

p r o c e s s .

10 . In v i e w o f t h e i n t e n s e and e mo t i v e community i n t e r e s t which

ha s a t t e n d e d t h e work o f t h e commi t t ee and t h e wide r a nge o f

i n t e r e s t s which a r e p o t e n t i a l l y a f f e c t e d b y o u r r e a c t i o n t o i t s

r e p o r t e t h n i c g r o u p s t r a d e u n i o n s e m p l o y e r o r g a n i s a t i o n s and

p r o f e s s i o n a l a s s o c i a t i o n s t o name b u t a few I b e l i e v e t h e r e i s

no q u e s t i o n t h a t t h e immedia t e r e l e a s e o f t h e r e p o r t i s t h e o n ly

c o u r s e t o a d o p t . T h i s w i l l a l s o g e n e r a t e t h e f e e d b a c k which

w i l l g u i d e us t o a b e t t e r d e c i s i o n and f a c i l i t a t e t h e wide

community c o n s u l t a t i o n which I b e l i e v e s h o u l d b e u n d e r t a k e n .

11 A d l l d b i l d ld h b

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5

p o l i c y d e a l t w i t h i n e a r l y s e c t i o n s o f t h e r e p o r t . This wouldbe c h a i r e d and s e r v i c e d by my Depar tment which would a l s o be

r e s p o n s i b l e f o r t h e m o n i t o r i n g o f p u b l i c r e a c t i o n t o t h e r e p o r t

Members would be drawn f rom t h e d ep a r t men t s o f PM C; DFAT;

Tr e a s u r y ; F i n a n c e ; DEET; DSS; DCSH and AGs w i t h r e p r e s e n t a t i o n

f rom o t h e r p o r t f o l i o s b e i n g co -op t ed a s r e q u i r e d f o r p a r t i c u l a r

i s s u e s .

14. The a d m i n i s t r a t i v e recommenda t ions c o n t a i n e d i n o t h e r

s e c t i o n s o f t h e r e p o r t a r e l a r g e l y m a t t e r s which

r e q u i r e s e t t l e m e n t o f a p o l i c y f ramework b e f o r e t h e y can be

e f f e c t i v e l y a d d r e s s e d . The c h o i c e o f d e t a i l e d s e l e c t i o n

methods f o r m i g r a n t s , f o r example, w i l l depend on p o l i c y on t h e

co mp o s i t i o n o f a program and probab ly on i t s g e n e r a l l e v e l .

A pa r t f rom t h e m a t t e r o f l e g i s l a t i o n , t h e s e i s s u e s a r e a l s o

l a r g e l y o f i n t e r n a l i n t e r e s t t o my p o r t f o l i o o r amenable t o

s e t t l e m e n t by agreement be tween M i n i s t e r s . I would t h e r e f o r e

s e e t h e s e m a t t e r s b e i n g managed b y my de p a r tme n t w i t h a view t o

s e t t l i n g as much a s p o s s i b l e b y t h e t ime t h e s t a t e m e n t i s made

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RECOMMENDATIONS

16 . I recommend t h a t C a b i n e t :

a> a g r e e t h a t t h e R e p o r t o f t h e Commit tee To Ad v i se On

A u s t r a l i a s I m m i g r a t i o n P o l i c i e s CAAIP> be r e l e a s e d i mme d i a t e l y

f o r p u b l i c comment , and t h a t I o r g a n i s e a p r o g r a m o f

c o n s u l t a t i o n s ;

b> a p p ro v e t h e e s t a b l i s h m e n t o f an i n t e r - d e p a r t m e n t a l

c o m m i t t e e IDC> t o a d v i s e i n t h e f i r s t i n s t a n c e o n p o l i c y

a s p e c t s o f t h e r e p o r t ;

c> n o t e my i n t e n t i o n t h a t , f o l l o w i n g C a b i n e t c o n s i d e r a t i o n o f

a f u r t h e r Su b m i s s i o n f rom me c o v e r i n g t h e IDC s p r o p o s a l s , I

would make a s u b s t a n t i v e s t a t e m e n t t o t h e P a r l i a m e n t b e f o r e t h e

end o f t h e Budge t S i t t i n g s 1988 a b o u t t h e Go v e r n m e n t s r e sponse

t o t h e CAAIP r e p o r t , w i t h l e g i s l a t i v e and a d m i n i s t r a t i v e a c t i o n

t o f o l l o w i n 1989 ; and

d> a g r e e t h a t I make a b r i e f s t a t e m e n t a l o n g t h e l i n e s o f t h e

d r a f t a t ATTACHMENT A when t a b l i n g t h e r e p o r t .

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TT CHMENT A

C IP REPORTDR FT T BLING ST TEMENT

For the information of Honourable Members, I t a b l e the Report ofthe Committee to Advise on A u s t r a l i a ' s Immigration P o l i c i e sCAAIP) e n t i t l e d Immig ra t ion - a Commitment t o Aus t ra l i a .

2. The Committee to Advise on A u s t r a l i a ' s Immigration P o l i c i e s

CAAIP) was es t ab l i shed by my predecessor, the Hen Michael JYoung, in September 1987, in response t o a commitment by theGovernment dur ing the l a s t e l e c t i o n s f o r a review of immigrationp o l i c i e s , including the po in t s system. There had been no majorreview of immigration p o l i c i e s fo r 10 years .3. The terms of reference asked the Committee to address a l lper t inen t matte rs inc lud ing in broad t e rms , the fol lowing:(a) the r e l a t ionsh ip between immigration and the economy,

inc lud ing the e ff e c t s on the labour market and economic

development;

(b) the r e l a t ionsh ip between immigration and A u s t r a l i a ' s so c i a land c u l t u r a l development as a m u l t i c u l t u r a l soc i e ty ;

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ATTACHMENT A

(d) bear in mind se t t lement exper iences i n so f a r as they arere l evan t to the framing of immigrat ion p o l i c i e s , not ing t h a tthe Government i s se p a r a t e l y developing a Nat iona l Agendafo r a Mu l t i c u l t u ra l A u s t r a l i a ; and

(e) undertake f u l l consu l t a t ion with i n t e r e s t e d p a r t i e s throughw r i t t e n and o ra l submissions and o the r appropria te means;

( f ) AND t o r epor t on:

i ) the guiding pr inc ip le s which should shapeA u s t r a li a s immigrat ion p o l i c i e s , looking ahead tothe end o f t h i s cen tury ;

i i ) the balance of objec t ives which should be

r e f l e c t ed in p o l i c i e s in terms of composi t ion andl eve l o f immigration; and

i i i ) admin i s t r a t ive and l e g i s l a t i v e mechanisms

necessary fo r t he implementat ion of immigrat ionpo l i c i e s .

5. The Committee was chai red by Dr Stephen FitzGerald , a

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10TT CHMENT A

pre-empting community discuss ion of the r epor t , I wish to say a tthe o u t se t t h a t the Government remains committed to ce r ta in bas icp r i n c i p l e s i n the development of i t s immigrat ion po l ic ie s .15. These are t h a t :(a) immigrat ion po l i cy w i l l remain non-discr iminatory in terms

of na t iona l o r e thn ic or ig in , race, sex o r re l ig ion ;

(b) immigrat ion po l i cy w i l l cont inue to be based on the na t iona li n t e r e s t

(c) economic considera t ions - including domest ic t r a i n in g andr e t r a in in g requirements - w i l l cont inue to fea tureprominent ly in any expansion of the immigration program;

(d) family migra t ion w i l l remain a v i t a l component;(e) po l i cy w i l l cont inue to t ake proper account of A us t r a l i a ' s

human resources .16. The Government's commitment to the fos te r ing and developmento f a mul t icu l tu ra l soc ie ty remains with in the Aust ra l ian cu l tu rea corners tone of i t s soc ia l j u s t i c e po l ic ie s and an importantelement o f i t s economic s t r a t e g y by crea t ing a cl imate in which

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TT CHMENT A

20. In commissioning t h i s review the Government was conscioust h a t there was a l eve l of concern in the community aboutimmigration p o l i c i e s numbers, composi t ion of the in take and the

immigrant s ro le in a changing Aust ra l ian soc ie ty.21 The Committee s repo r t i d e n t i f i e s many o f these concerns andse t s them in a broader na t iona l context .

22. We share the Committee s view t h a t immigrat ion should occupya cen t ra l place in na t iona l po l i cy fo rmula t ion and t h a t i t ses sen t i a l con t r ibu t ion to A u s t r a l i a s soc ia l and economicdevelopment should be more s t rong ly promoted.23. I t argues t h a t immigrat ion po l i cy must be fo r a l l

Aust ra l ians and must be in the mainstream of government

decis ion-making. That immigrat ion p o l i c i e s must be i d en t i f i edwith publ ic i n t e r e s t be based on a coheren t phi losophy and begiven a convincing ra t iona le .24. The repo r t i d e n t i f i e s t h i s ra t iona le as p r inc ip a l ly aneconomic one but one t h a t must be in harmony with soc ia l andhumanitarian objec t ives .

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C BINET IN ONFIDEN E

12TT CHMENT A

28. I t should a l so be noted t h a t , while the Committeeencountered widespread misunderstanding of the concept of

mult icu l tu ra l i sm, i t observed t h a t the need fo r mul t i cu l tu ra l i smought not to be disputed , and recognised a need to reaff i rm thei dea l s upon which mul t i c u l t u r a l i .sm i s based.29. The Government emphasises t h a t i t has made no dec i s ion in

r e l a t i o n to CAAIP s proposals . I t in tends t h a t a per iod o f someth ree months should be se t as ide fo r pub l ic eva lua t ion andcomment. During t h a t t ime S t a t e Governments, major e thn icbodies, the t rade union movement, key indust ry organ i sa t ions andAustra l ians with an i n t e r e s t in t h i s i ssue w i l l be able tocont r ibu te t h e i r views on the repo r t and the fu ture d i r e c t i o n of

immigration pol icy. My Department w i l l monitor and evaluate thecomments made, and repo r t to me. The Government w i l l a l soe s t a b l i s h an in te rdepar tmen ta l committee to commence anevaluat ion of the r e p o r t s proposa l s , and I have asked theNational Popula t ion Council to advise me on some of the importanti s sues t h a t a r i s e .

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C IP REPORT

E x e c u t i v e Summary

ATTACHMENT B

Ch ap t e r One. C e n t r a l I s s u e s i n Immi g ra t i o n Reform

I mmig r a t io n , worldwide , i s unde r p r e s s u r e . At p r e s e n t ,A u s t r a l ia s immig r a t ion p o l i c i e s a r e n o t managing t h ei n c r e a s i n g demand. Wi t h o u t i m m e d i a t e r e f o r m, c u r r e n ts e l e c t i o n mechanisms w i l l d e l i v e r many t e n s o f t hou sa nds o fi mmi g ra n t s more t h a n t h e p la n ne d immig r a t ion program.

Prob lems w i t h c u r r e n t immig r a t ion p o l i c i e s a r e n o tl i m i t e d t o t h e number s . Widespread m i s t r u s t and f a i l i n gc onse nsus t h r e a t e n community s u p p o r t o f i m m i g r a t i o n . Theprogram i s n o t i d e n t i f i e d i n t h e p u b l i c mind w i t h t h en a t i o n a l i n t e r e s t , and must be g i v e n a co n v i n c i n g r a t i o n a l e .

S e l e c t i o n methods need a s h a r p e r economic f o c u s , f o rt h e p u b l i c t o b e c o n v i n c e d t h a t t h e p r o g r a m . i s i nA u s t r a l ia s i n t e r e s t s . Withou t i t t h e c o r e p r i n c i p l e s o f

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ATTACHMENT B

Government sh ou ld move t o r e s t r i c t t h e n o n - s u r v i v a lb e n e f i t s and p r i v i l e g e s a v a i l a b l e t o n o n - c i t i z e n s .N o n - c i t i z e n s s h o u l d n o t be a b l e to . s p o n s o r immig r a n t s ,e x c e p t i n c e r t a i n c ompa ss io na t e c i r c u m s t a n c e s .

Immi g ra t i o n p o l i c y i s f o r a l l A u s t r a l i a n s n o t f o rs e c t i o n a l i n t e r e s t g r oup s . I t must n o t be a l low e d t o s l i d ei n t o t h e ma rg i n s o f governmen t d e c i s i o n - m a k i n g . I t must be~ t h e ma in s t r e a m.

c o h e r e n t p h i l o s o p h y o f immig r a t ion i s needed . Such ap h i l o s o p h y s h o u l d emphas i se t h e A u s t r a l i a n c o n t e x t o fimmig r a t ion and t h e commitment r e q u i r e d o f a l l A u s t r a l i a n st o A u s t r a l i a and i t s f u t u r e and a l l o w A u s t r a l i a n s t ou n d e r s t a n d how immig r a t io n a f f e c t s them now and i n t h ef u t u r e how t c a n c o n t r i b u t e t o a p o s i t i v e harmony o feconomic and s o c i a l b e n e f i t s t o a c u l t u r a l l y e n r i c h e dA u s t r a l i a t o ope nne s s , t o l e r a n c e and s o p h i s t i c a t i o n t oeconomic i n de p e n d e n c e , t o c r e a t i v i t y and t o a r a c i a l l yd i v e r s e harmonious community.

Cha p te r Two. Community Views and P e r s p e c t i v e s .

A u s t r a l i a n s want t o be h e a r d and t o b e i n fo rme d onimmig r a t ion m a t t e r s . The Commit tee h a s h ea rd and r e a d viewsr e p r e s e n t i n g h u n d re d s o f t h ousa n ds o f A u s t r a l i a n s and

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ATTACHMENT B

E n g l i s h l a n g u a g e emerged a s a n o t h e r c e n t r a l i s s u e o fc o n c e r n many p eo p l e a rg u i n g s t r o n g l y f o r i t s i n c l u s i o n i nt h e immig r a t ion s e l e c t i o n c r i t e r i a some o t h e r s a s s e r t i n gt h a t t s h o u l d n o t be p a r t o f s e l e c t i o n b u t shou ld be t h ef i r s t p r i o r i t y o f s e t t l e m e n t f a c i l i t a t i o n .

Cha p te r T h r e e . The Economic Focus and P o p u l a t i o n I s s u e s

The s h a r p e r economic fo c u s f o r which t h e Government has

c a l l e d i s t h e most c e n t r a l i s s u e i n immig r a t ion r e f o r m. Thec ompos i t i o n o f t h e immig r a t io n program and o f s k i l l l e v e l sa r e c r i t i c a l i f immig r a t ion i s t o c o n t r i b u t e t o enhancedeconomic p e r f o r ma nc e . The s k i l l s p r o f i l e o f some groups o fi mmi g ra n t s h a s f a l l e n . The median age i s r i s i n g .

Immi g ra t i o n c a n have a p o s i t i v e i mp a c t on economicgrowth and l i v i n s t a n d a r d s a l t h o u g h t c a nn o t work i ni s o l a t i o n f rom o t h e r economic p o l i c i e s . To g e t h e r w i t h t h e s ep o l i c i e s c a r e f u l l y fo rmu l a t ed t can c o n t r i b u t e t oimprovemen t i n t h e p r o d u c t i v i t y o f t h e w or k f o r c e andr e t a r d i n g o f t h e a g e i n g o f t h e p o p u l a t i o n .

The bu d ge t c o s t s o f immig r a t ion a r e r e l a t i v e l y low.

Bu t immig r a t io n a l o n e c a nno t be se e n as a s o l u t i o n t oi n d u s t r y d e v e l o p m e n t and e nv i r onme n ta l p r ob le ms no r can t

[ ]

CABINET CONFIDENCE[19]

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ATTACHMENT

Al t h o u g h s e t t l e m e n t p h i l o s o p h y i s much more welcomingt o d a y t h a n i t was 40 y e a r s ago , t h e community i s s t i l l n o tc o n v i n c e d we have i t r i g h t . The p h i l o s o p h y o fm u l t i c u l t u r a l i s m i s n o t w i d e l y u n d e r s t o o d , and t h eu n i n f o r m e d e n s u i n g d e b a t e i s damaging t h e c a u s e i t se e ks t os e r v e .

S e t t l e m e n t f a c i l i t a t i o n on a d a y - t o - d a y l e v e l must g iveo v e r r i d i n g p r i o r i t y t o En g l i s h t e a c h i n g , s k i l l s r e c o g n i t i o nand b r i d g i n g and u p g r a d i n g , s u p p o r t t o i m m i g r a n t women whoa r e o f t e n i s o l a t e d and d i s c r i m i n a t e d a g a i n s t , andt r a n s l a t i o n and i n t e r p r e t e r s e r v i c e s .

So t h a t o v e r s e a s - b o r n A u s t r a l i a n s a r e n o t t r e a t e d a se x c e p t i o n s f o r t h e r e s t o f t h e i r l i v e s , a l i n e o fd i s t i n c t i o n i n t h e d e l i v e r y o f s e r v i c e s must be drawnbe tween t h e f i r s t two y e a r s f o l l o w i n g immig r a t ion and l a t e rgovernment r e s p o n s i b i l i t i e s , when DILGEA s r e s p o n s i b i l i t ys h o u l d b e handed o v e r t o o t h e r a g e n c i e s .

The i m p o r t a n c e o f t h e f a m i l y and i m m i g r a n t n e t wo r k s andcommuni t i e s i n f a c i l i t a t i n g s e t t l e m e n t i s c r i t i c a l , ands h o u l d b e e n c o u ra g e d .

Al t h o u g h we have a more welcoming p h i l o s o p h y o fimmig r a t ion and b e t t e r s e t t l e m e n t f a c i l i t a t i o n s e r v i c e s ,

s t i l l

CABINET IN CONFIDENCE[20]

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ATTACID ENT

The program needs p e r s p e c t i v e p lann ing i na

10 y e a rt i me f r ame . Annual program s i z e t a r g e t s f o r t h e f i r s t t h r e ey e a r s and i n d i c a t i v e t a r g e t s f o r t h e n e x t seven y e a r s shou ldbe f o r m u l a t e d i n a d v a n c e .

The an n u a l t a r g e t f o r t h e y e a r s 1988/89 t o 1990/91s h o u l d be 150 000 , b eg i n n i n g h a l f way t h ro u g h 1988 /89 .Ta r g e t s f o r t h e f o l l o w i n g s e v e n y e a r s w i l l depend on s o c i a land economic c o n d i t i o n s .

C h a p t e r S i x . S e l e c t i o n .

S e l e c t i o n i n immig r a t ion i s ab o u t r a t i o n i n g andc h o o s i n g . T ha t means l i m i t i n g t h e numbers t o a v a i l a b l ep l a c e s a r i n u a l l y a nd , i n t h e a p p r o p r i a t e immig r a t ionc a t e g o r i e s , c hoo s in g i mmi g ra n t s i n A u s t r a l i a s n a t i o n a li n t e r e s t s .

The c u r r e n t p o i n t s t e s t i s s e r v i n g n e i t h e r o f t h e s eo b j e c t i v e s .

The Co mm i t te e s p r opose d sys tem has t h r e e c a t e g o r i e s ,F a mi l y I mmig r a t ion , Refugee and H uma n i t a r i a n and a new Openc a t e g o r y. The p r o pose d F a mi l y I mmig r a t ion c a t e g o r y has mucht h e same q u a l i f y i n g c r i t e r i a a s t h e c u r r e n t c a t e g o r y f o rc l o s e f a m i l y r e u n i o n < i . e . a s d i s t i n c t from e x te nde d


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ATTACHMENT B

C h a p t e r Seven.A d m i n i s t r a t i o n .

P o l i c y r e fo rm must be complemented by a d m i n i s t r a t i v ere fo rm. The new a d m i n i s t r a t i o n o f DILGEA has t h i s i n handb u t i n h e r i t s a s e r i o u s image problem.

A d m i n i s t r a t i v e r e fo rm i s needed i n t h e a r e a s o fs e l e c t i o n and t r a i n i n g o f s t a f f , c o n s u l t i n g and p l a n n i n gmechan i sms , r e s e a r c h , p u b l i c e d u c a t i o n and r e c o g n i t i o n o f

o v e r se a s q u a l i f i c a t i o n s .

S t a f f s e l e c t i o n and t r a i n i n g must be improved t o c r e a t ea more p r o f e s s i o n a l immigra t ion s e r v i c e . C o n s u l t i n g andp l a n n i n g mechanisms must b e r e l a t e d t o b r o a d n a t i o n a lo b j e c t i v e s and i n v o l v e t h e whole community.

A M i n i s te r s Committee on Im m ig ra t io n shou ld bee s t a b l i s h e d , wi t h a s u b s t a n t i v e r o l e i n p o l i c y f o r m u l a t i o n ,and a w e l l - r e s o u r c e d Bureau o f Im m ig ra t io n Resea r ch must bes e t up w i t h i n DILGEA

Fundamenta l t o a l l a s p e c t s o f r e fo rm i s communitye d u c a t i o n . The A u s t r a l i a n p u b l i c i s demanding t o be in formedon immigra t ion m a t t e r s . In fo rma t ion d i s t r i b u t i o n shou ld n o tbe l i m i t e d t o s p e c i f i c i n t e r e s t groups .


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D e f i n i t i o n s


CAAIP REPORT

RECOMMENDATIONS

CHAPTER ONE

ATTACHMENT C

1 . T ha t t h e A u s t r a l i a n Bureau o f S t a t i s t i c s d e f i n i t i o n o fA s i a be r e v i s e d t o e x c l u d e t h e c o u n t r i e s west o f I n d i a ,P a k i s t a n and A f g h a n i s t a n .

P h i l o sophy

2 . Tha t t h e Government a f f i r m i t s commitment t o immig r a t ionp o l i c i e s which a r e n o n - d i s c r i m i n a t o r y i n r e s p e c t o f n a t i o n a l

o r e t h n i c o r i g i n , r a c e , s ex o r r e l i g i o n , and t h a t t h i sp r i n c i p l e be a s s e r t e d i n a l l r e l e v a n t p u b l i s h e d i n f o r m a t i o n .

3 . Th a t t h e Government a f f i r m a commitment t o an immig r a t ionp h i l o s o p h y which w i l l p r odu c e a s we e n t e r t h e 2 1 s t c e n t u r ysuc h outcomes i n s o c i e t y a s a r e o u t l i n e d i n Cha p te r 1 o f t h eR e p o r t and t h a t i mmi g ra t i o n ph i lo sophy be f u r t h e r deve lopedand r e f i n e d on t h i s b a s i s and communicated b r o a d l y t o t h eA u s t r a l i a n community.

4 . T ha t i mmi g ra t i o n p o l i c i e s be de ve lo pe d i n t h e n a t i o n a l

CABINET JN CONFIDENCE[23]

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CABINET JN CONFIDENCE

2

ATTACHMENT

p r i n c i p l e s f o r immig r a t ion p o l i c i e s and t h a t t h e y bep u b l i c i s e d e x t e n s iv e l y i n t h e community.

i The A u s t r a l i a n Government a l o n e w i l l d e t e rmi n e whow i l l b e a d m i t t e d t o A u s t r a l i a c o n s i s t e n t w i t h laws

e n a c t e d by t h e F e d e r a l P a r l i a m e n t t o r e g u l a t ei mmi g ra t i o n .

i i Only an A u s t r a l i a n c i t i z e n o r h o l d e r o f a v a l i dr e s i d e n t v i s a h a s a r i g h t t o e n t e r A u s t r a l i a .

i i i Immi g ra t i o n p o l i c i e s w i l l be de te r mine d byA u s t r a l i a s n a t i o n a l i n t e r e s t s a s d e f i n e d by ma j o rgovernment p o l i c i e s and s t r a t e g i e s f o r A u s t r a l i a ss o c i a l , economic and c u l t u r a l deve lopmen t . P o l i c i e sw i l l se e k a harmony o f outcomes be tween economic ands o c i a l i n t e r e s t s .

i v . Immi g ra t i o n w i l l r e s p o n d t o t h e needs o f i n d i v i d u a l sb y upho ld in g c l o s e f ami l y r eu n i o n and h u m a n i t a r i a na s s i s t a n c e .


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ATTACHMENT C

x . I mmig r a t ion p o l i c i e s w i l l be d e t e r m i n e d andimplemented i n s u c h a way a s t o m a i n t a i n and p r o t e c t

_ h e h e a l t h s a f e t y and good o r d e r o f A u s t r a l i a ns o c i e t y .

CHAPTER THREE

T r a i n i n g / R e t r a i n i n g O b l i g a t i o n s

10 . T ha t i n t h e a d o p t i o n and i mp l emen t a t i o n o f any o f t h eme a s u re s p r opose d i n t h i s Re po r t f o r t h e s e l e c t i o n o f s k i l l e di m m i g r a n t s t h e r e s h o u l d be c o n c o m i t a n t m e a s u r e s i n c l u d i n gp a r t i c u l a r l y n e g o t i a t e d a r r a n g e m e n t s t o e n s u r e t h a t t h ecommitment and t h e o b l i g a t i o n o f employers and e d u c a t i o na u t h o r i t i e s t o t r a i n and r e t r a i n A u s t r a l i a n s a r e f u l l y andp r o p e r l y d i s c h a r g e d .

CHAPTER FOUR

S e t t l e m e n t F a c i l i t a t i o n

11 . T ha t t h e Depar tment a d o p t a s an o b j e c t i v e a s h i f t i n

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CHAPTER FIVE

Time f rame and Program S i z e

22. T ha t p l ~ n i n gbe i n t h e form o f a 10 y e a r r o l l i n g

f o r e c a s t . At any one t i me t h e r e s h o u l d be a f i x e d i n t a k e f o rt h e f i r s t t h r e e y e a r s w i t h an i n d i c a t i v e i n t a k e f o r t h ef o l l o w i n g se v e n y e a r s .

23. T ha t t h e r e be a program o f 150 000 p e r annum from 1988/89u n t i l 1990 /91 . U n t i l such t i me a s t h e changes t o immig r a t ionc a t e g o r i e s and s e l e c t i o n have been e f f e c t e d , t h e programs h o u l d be i n p ro r a t a t e rms . The f i r s t f u l l y e a r a t150 000 would be 198 9 /90 and t h i s would be main t a ined f o r1990 /91 .

24. T ha t u n t i l t h e Government a s s e s s e s t h a t t h a s t h eprogram r i g h t , more s u b s t a n t i a l i n c r e a s e s n o t be co n t emp l a t ed .

25. T ha t t h e i mmi g ra t i o n program i n t h e p e r i o d t o June 1991be c a r e f u l l y mo n i t o r ed t o a s s e s s w he the r t h e i n t r o d u c t i o n ofp e r s p e c t i v e p l a n n i n g improved s e l e c t i o n , < t h a t i s t h eemphas i s on y o u t h s k i l l and e n t r e p r e n e u r s h i p > , and b e t t e r

CABINET IN CONFIDENCE [27]

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5TT CHMENT C

Refu g ee and H u ma n i t a r i a n P ro g ram

29. T ha t t h e Refugee and H uma n i t a r i a n c a t e g o r y r e ma i n a s ah u m a n i t a r i a n p r o v i s i o n t o r e spo nd t o r e s e t t l e m e n t demandswhich a r i s e o v e r s e a s .

30 . T ha t two d i s t i n c t b u t complementa ry p rograms bee s t a b l i s h e d f o r r e f u g e e and h u m a n i t a r i a n c a s e s . One would bef o r p e o p l e i d e n t i f i e d by t h e A u s t r a l i a n Government a s ne e d in gr e s e t t l e m e n t on h u m a n i t a r i a n g r o unds . The o t h e r would be f o rh u m a n i t a r i a n cases i d e n t i f i e d b y community o r g a n i s a t i o n s w i t hi n t e r n a t i o n a l agency a f f i l i a t i o n s and wi th t h e c a p a c i t y t ov e r i f y suc h c a s e s and prov ide s e t t l e m e n t s u p p o r t . In a l lc a s e s t w i l l r e ma i n t h e r e s p o n s i b i l i t y o f t h e A u s t r a l i a nGovernment t o d e c i d e who w i l l be a c c e p t e d f o r r e s e t t l e m e n t i nA u s t r a l i a .

31 . T ha t i n 1988/89 t h e government and community programsnumber a t o t a l o f 15 000 p l a c e s i n which t h e r e s h o u l d be af l e x i b l e c o n t i n g e n c y f i g u r e . The s i z e o f t h e program s h o u l db e r e v i e w e d a f t e r one y e a r and t h e number o f p l a c e s r e duc e d i ft h e program has n o t been f i l l e d . The Government s h o u l d payt h e t r a v e l c o s t s t o A u s t r a l ia o f a t o t a l o f 7 500 p e o p l e o f


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ATTACHMENT C

Open C a t e g o r y

37 . T ha t s e l e c t i o n f o r t h e Open c a t e g o r y be b a se d on t h r e ef unda me n ta l e l e m e n t s :

a s e l f - a s s e s s m e n t , o r t h e a s s e s s m e n t by a p p l i c a n t s o ft h e i r p r o s p e c t s p r i o r t o fo rma l a s s e s s m e n t , ap r o c e s s which shou ld h e l p t o e l i m i n a t e f r i v o l o u sa p p l i c a t i o n s ;

b> s c o r i n g on t h e b a s i s o f f a c t o r s which r e f l e c tA u s t r a l ia s economic , demograph ic , s o c i a l andc u l t u r a l . i n t e r e s t s ;

c> an o r d e r o f m e r i t a p p ro a c h wh i c h , by t a k i n g t h e t o ps c o r e r s f rom around t h e w o r l d , s e l e c t s o n l y enought o meet t h e p ro p o s e d s i z e o f t h e program, r e p l a c i n gt h e p r e s e n t s y s t e m whereby e v e ry o n e who s c o r e s 70p o i n t s o r more i s e l ~ g i b l e

38 . T ha t a t a s k f o r c e c ompr i s in g r e l e v a n t g o v e r n m e n t ,e mp l o y e r and un ion r e p r e s e n t a t i v e s b e e s t a b l i s h e d t of a c i l i t a t e t h e i n t r o d u c t i o n o f n e g o t i a t e d a r r a nge me n t s .


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C B IN CONFIDENCE

27

TT CHMENT C

44. T ha t an e f f e c t i v e m o n i t o r i n g and a u d i t i n g sy s t e m bee s t a b l i s h e d t o c o v e r b o t h t h e i n v e s t m e n t o f funds b y b u s i n e s simmig r a n t s and t h e a c t i v i t i e s o f a c c r e d i t e d b u s i n e s si m m i g r a t i o n a g e n t s .

45. T ha ta

g r e a t e r emphas i s be p l a c e d on you th i n t h ei m m i g r a t i o n program n o t o n l y be c a use o f t h e demograph ica rgume n t b u t a l s o b e c a u se o f t h e dynamism and i n n o v a t i o nwhich y o u t h f u l i mmi g ra n t s c a n b r i n g t o t h i s c o u n t r y. Thea c t u a l p o i n t s a l l o c a t i o n f o r age s h o u l d b e d e t e rmi n ed on t h eb a s i s o f which age g roups have t h e most impa c t i n r educ ing t h emedian a g e o f t h e immigran t i n t a k e whi l e maximis ing s k i l ll e v e l s .

46. T ha t a p p l i c a n t s be a b l e t o s c o r e on t h e l a ng u a g e f a c t o re i t h e r by h a v i n g a knowledge o f E n g l i s h by b e i n g b i l i n g u a l o rm u l t i l i n g u a l o r b y b e i n g p r o f i c i e n t i n a l a ngua ge o f n a t i o n a li m p o r t a n c e f o r example t h e l a n gua ge o f a ma jo r t r a d i n gp a r t n e r .

47. T ha t t h e k i n s h i p f a c t o r g i v e more p o i n t s t o s i b l i n g sa d u l t c h i l d r e n n i e c e s and nephews p a r e n t s and g r a n d p a r e n t so f A u s t r a l i a n c i t i z e n s and fewer p o i n t s t o more d i s t a n t


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ATTACHMENT C

be a s s e s s e d i n t h e l i g h t o f economic and f a m i l y c i r c u m s t a n c e sand t a k i n g a c c o u n t o f t h e p u b l i c h e a l t h c o s t s i n v o l v e d i nt h e i r c a r e and t r e a t m e n t .

S e t t l e m e n t Assessmen t

51. T ha t t h e s e t t l e m e n t as s e s s men t be dropped f o r a l li mmi g ra t i o n c a t e g o r i e s .

E l i g i i l i t y f o r S p o n s o r s h i p

52. T ha t e n t i t l e m e n t t o s p o n s o r i m m i g r a n t s i n c l u d i n g t h r ou ght h e k i n s h i p f a c t o r i n t h e Open c a t e g o r y, be l i m i t e d t oA u s t r a l i a n c i t i z e n s , excep t i n i n s t a n c e s where t h o s e b e i n gs p o n s o r e d a r e s p o u s e s de pe nde n t c h i l d r e n o rr e f u g e e / h u m a n i t a r i a n c a s e s .

Nexus be tween Tempora r y and Pe rmanen t S ta y

53 . T ha t t h e c r i t e r i a whereby p e o p l e t e m p o r a r i l y i n A u s t r a l i aa r e a s s e s s e d f o r permanen t r e s i d e n c e be t h e same a s f o ri mmi g ra t i o n a p p l i c a n t s o v e r s e a s . A c c o r d i n g l y t h e p r a c t i c e o f


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ATTACHMENT C

i i > where t h e head o f t h e f a m i l y a n d / o r spouse s o r c h i l d r e na r e work ing and t h u s pa y ing t a x e s , t h e members o f t h eimmedia te f a m i l y accompanying p a r e n t s t o A u s t r a l i a shou ldhave t h e same a c c e s s t o e d u c a t i o n a s o t h e r A u s t r a l i a nt a x p a y e r s .

57. T ha t e a r l y s t e p s be t aken t o p r o t e c t t h e i n t e g r i t y o f t h et o t a l i mmi g ra t i o n program where t migh t be compromised by t h eu n i n t e n d e d c o n s e q u e n c e s o f o t h e r government p r og r a ms f o rexample b y c e r t a i n schemes f o r t e mpor a r y e n t r a n t s suc h ass t u d e n t s .

A u s t r a l i a and New Ze a l a n d : Immi g ra t i o n P o l i c i e s

58 . Th a t i n t h e l o n g e r t e r m s t e p s be t aken t o a l i g nA u s t r a l i a n and New Zealand immig r a t ion p o l i c i e s .

CHAPTER SEVEN

P r o f e s s i o n a l Immi g r a t i o n S e r v i c e

59 . Th a t t h e Depar tment r e c r u i t a g r e a t e r mix o f h i g h l yq u a l i f i e d s t a f f i n c l u d i n g demographers e c o n o m i s t s

CABINET IN CON Fl DEN E [32]

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3ATTACHMENT C

C o n s u l t i n g and P la n n ing

66. T ha t e v e r y two y e a r s t h e r e s h o u l d be an Immigra t ionO u t l o o k Conf e r e nc e s u p p o r t e d b y p r o f e s s i o n a l p a p e r s , .w i t h t h ef i r s t c o n f e r e n c e t o b e h e l d i n l a t e 1989.

Keeping t h e Community In formed

67. Th a t an i n t e g r a t e d and c o h e r e n t a p p ro a c h t o p u b l i ce d u c a t i o n b e u n d e r t ak en t o d i s p e l community m i s c o n c e p t i o n s .

D i s t r i b u t i o n o f S t a f f O v e rs e a s

68. T ha t t h e d i s t r i b u t i o n o f s t a f f o v e r s e a s b e r e l a t e d t o t h enumber o f immig r a t ion d e c i s i o n s l i k e l y t o be made a t e a c ho v e r s e a s p o s t a f t e r a p p l i c a n t s have been p r e - s e l e c t e d .

P r o v i d i n g B e t t e r S e r v i c e t o C l i e n t s

69. Th a t t h e r e be a comprehens ive r e v i e w o f r e c r u i t m e n t ,t r a i n i n g and s u p e r v i s i o n o f l o c a l l y engaged s t a f f , b u t t h a twhere p o s s i b l e and a p p r o p r i a t e , A u s t r a l i a n s l i v i n g o r

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32

CO ORDINATION COMMENT

PRIME MINISTER ND CABINET

TT CHMENT D

The D e p a r tm e n t o f t h e Pr ime M i n i s t e r and C a b i n e t s u p p o r t s t h e

r ecommenda t ions p r o p o s e d b y t h e M i n i s t e r .

COMMUNITY SERVICES ND HE LTH

2 . The D e p a r tm e n t o f Community S e r v i c e s and H e a l t h s u p p o r t s

t h e p r o c e d u r e p ro p o s e d by t h e M i n i s t e r f o r I m m i g r a t i o n , L o c a l

Go v ern men t and E t h n i c A f f a i r s f o r d e a l i n g w i t h t h e r e p o r t , and

t h e p ro p o s e d d e p a r t m e n t a l p a r t i c i p a t i o n on t h e IDC.SOCIAL SECURITY

3 . The D e p a r tm e n t o f S o c i a l S e c u r i t y s u p p o r t s t h e

r ecommenda t ions i n t h e d r a f t C a b i n e t S u b m i s s i o n . t r e c o g n i s e st h a t t h e t i m i n g o f t h e p e r i o d f o r c o n s u l t a t i o n i s l a r g e l y

d e t e r m i n e d b y t h e d e s i r e t o make a s u b s t a n t i v e s t a t e m e n t t o t h e

P a r l i a m e n t b e f o r e t h e end o f t h e Budge t s i t t i n g s .

N e v e r t h e l e s s , g i v e n t h e c o m p l e x i t y and b r e a d t h o f t h e i s s u e s t o

b e r e s o l v e d and t h e i n t e n s e p u b l i c i n t e r e s t i n t h e s e m a t t e r s , a


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ATTACHMENT D

33

t h e r e i s no i n d i c a t i o n o f t h a t i n t h e Ex ecu t i v e Summary.

F i n a l l y , DSS c o n s i d e r s t h a t some i s s u e s w i l l need v e r y c a r e f u la t t e n t i o n , e . g . t h e p r o p o s a l t o change t h e r o l e s o f t h e

M i n i s t e r , en fo rcemen t , e x t e r n a l r e v i e w and r e f u g e e s t a t u s

d e t e r m i n a t i o n p r o c e d u r e s a s w e l l a s t h e q u e s t i o n o f

d e t e r m i n a t i o n o f a p p l i c a t i o n s f o r permanen t r e s i d e n c e by pe op le

a l r e a d y i n A u s t r a l i a and i n c e n t i v e s t o become c i t i z e n s .

TREASURY

Tr e a s u r y s u p p o r t s t h e t h r u s t o f t h e recommendat ions . Given

t h e emphas i s o f t h e CAAIP r e p o r t on t h e r e l a t i o n s h i p be tween

i m m i g r a t i o n and t h e economy, i n c l u d i n g t h e e f f e c t s on t h e l abour

ma r ke t and economic de v e lo pme n t , i t would be a p p r o p r i a t e t o

r e f e r c o n s i d e r a t i o no f t h e s e a s p e c t s

a t l e a s t t ot h e

S t r u c t u r a lA d j u s t me n t Committee t o e n s u r e c o n s i s t e n c y w i t h i t s r e c e n t work on t h e l a b o u r ma r k e t and s k i l l s

fo rmat ion . In p a r t i c u l a r , i t would be a p p r o p r i a t e f o r t h e

p r opose d IDC t o r e p o r t t o t h e SAC on recommenda t ions r e l a t e d t o

t h e s e a r e a s . The same IDC, i a p p r o p r i a t e , c o u l d r e p o r t


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4

TT CHMENT D

i n t h e deve lopmen t o f any new p o i n t s sys t e m.

ATTORNEY-GENERAL'S

6 . W hi l s t t h e A t t o r n e y - G e n e r a l ' s Depar tment u n d e r s t a n d s t h e

n e e d f o r d i s s e m i n a t i o n o f t h e r e p o r t f o r p u b l i c comment, i t

b e l i e v e s t h a t i t would b e most i mp ru d e n t t o do so w i t h o u t t h e

Government c l e a r l y s t a t i n g i n t h e t a b l i n g s t a t e m e n t t h a t i t has

made no d e c i s i o n s on t h e recommenda t ions o f t h e Committee

r e l a t i n g t o t h e c r i m i n a l i s a t i o n o f t h e d e p o r t a t i o n p r o c e s s and

would n o t make t h o s e d e c i s i o n s . w i t h o u t f u l l c o n s u l t a t i o n w i t h

t h e S t a t e s and t h e N or th e r n Te r r i t o r y . As me n t i o n e d i n e a r l i e r

a d v i c e t o t h e Depar tment o f I mmig r a t ion , Loca l Government and

E t h n i c A f f a i r s , t h i s p r o p o s a l would add a s i g n i f i c a n t b u rd e n t ot h e S t a t e s and Te r r i t o r i e s M a g i s t r a t e s C o u r t s , a s w e l l as t o

t h e i r c o r r e c t i o n a l s e r v i c e s i n s t i t u t i o n s and would undoub te d ly

l e a d t o c l a i ms by them f o r i n c r e a s e d Commonwealth f und ing .

A d d i t i o n a l l y, i t would b e i mp ru d e n t t o l e a d t h e S t a t e s and

Te r r i t o r i e s t o b e l i e v e t h a t s u c h s i g n i f i c a n t a d d i t i o n a l b u rd e n s

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1988-89 cabinet paper 5799