MIGRATION ACTION
Vol XV, Number 1 February, 1 993 BROTHERHOOD OF ST. LAURENCE 67 BRUNSWICK STREET FITZROY VICTORIA 3065
The 1 9 9 3 Federal Elections
THE BATTLEGROUND OVER IMMIGRATION New books from EMC's Bookshop
B 5 9 0 W ho Do You Think You Are? Second generation immigrant women in Austral Edited by Karen Herne, Joanne Travagla and Elizabeth W e iss. Woman's Redress Press, 1952 Price: $ 1 4 .9 5
B 5 8 9 Australia's Italians: Culture and Community in a Changing Society Edited by Stephen Castles, Caroline Alcorso, Gaetano Rando, Ellie Vasta. Allen and Unwin, 1992 Price: $ 19.95
B588 Immigrants and the Australian Labour Market: The Experience of Three Recessions By Robert Ackland and Lynne S W illia m s with Anthony Marshall, BIR/AGPS, 1992 Price: $ 9 .9 5
B 5 8 7 Children of Immigrants: Issues of Poverty and Disadvantage Edited by Janet Taylor, Helen MacDonald, Brotherhood of St Laurence, BIR/AGPS, 1992 Price: $ 1 4 .9 5
B 5 8 6 Community Languages: The Australian Experience By Michael Clyne, 1991 Price: $ 2 9 .9 5
B585 Racial Harassment By Greta Bird (ed) 1992 Price: $ 1 7.00
B 5 8 4 Settlement Needs of Small Newly Arrived Ethnic Groups By James Jupp, Andrea McRobbie and Barry York, 1 991 Price: $1 6 .9 5
B583 Asian Entrepreneurs in Australia: Ethnic Small Business in the Indian and Chinese Communities of Brisbane and Sydney By Constance Lever-Tracey, David Ip, Jim Kitay, Irene Phillips and Noel Tracey, 1991 Price: $ 1 6 .9 5
B582 Homeland By George Papaellinas (ed), 1991 Price: $ 16.95
Purchases from fhe EMC Bookshop may be made by phoning (03) 416 0044 /
MIGRATION ACTION
______C o n f e n f s______
VOL XV NUMBER 1, FEBRUARY 1993 Editorial ISSN: 0311-3760 The battleground over immigration ...... 2
Migration Action is Labor's new multicultural agenda, PaulKeating ...... 3 published by the Ecumenica The Coalition election agenda on immigration, Migration Centre, John Hew son...... 6 1 2 5 Leicester Street, Fitzroy, Victoria, Australia, 3065 Democrats approach issue as a total look at population, John Coulter ...... 1 1 Tel: (03)416 0 0 4 4 Fax: (03)416 1827 Gerry Hand's record and policies, Gerry Hand...... 1 4
EMC is a non-government agency which, through its welfare, educational, project and Coalition immigration and ethnic affairs policy, community work fosters the development of Philip Ruddock...... 1 6 Australia as a multicultural society. The centre has been working with migrants since 1962. Its work is diversified, from community service The federal election and Australia's ethnic and development to social action and communities, Victor Rebikoff...... 2 0 community education. Within a framework o f ensuring equal access and rights for all in Australian society, EMC Election '9 3 : Perspectives for immigration and provides counselling services and community multiculturalism, Stephen C astles...... 24 development activities to a number o f ethnic communities, both established and newly arrived. Four priorities for a new government, EMC also initiates research towards an Bishop Michael Challen...... 2 9 understanding o f a range o f issues, and promotes change where necessary. EMC operates a Documentation Centre Immigration, multiculturalism and the 1993 comprising a library, a bookshop and federal election, Colin Rubenstein ...... 33 publishing house, formerly the Clearing House on Migration Issues (CHOMI). This is a unique information centre on migrant, refugee and Immigration issues and the 1993 election, ethnic issues. The library holds over 40,000 documents and 250 periodicals which are used Robert Birrell ...... 3 9 by students, teachers, government departments, community organisations and others seeking up-to- date information or undertaking research. Media Watch...... 42
Editorial Committee: Tony Pensabene, Robert M ister, Tonina Gucciardo and Dr Robert Doyle
Editing, design and production: Shane Scanlan M ed ia TIO N Printing: Printgraphics
It is not the intention of this journal to reflect the opinion of either the staff or the committee of EM C . In many matters this would be difficult to ascertain, nor do the editors think it desirable. The aim of the journal is to be informative and stimulat ing through its various articles, suggestions and comments.
SU B SC R IP TIO N RATES: (per volume of 3 issues) As from January 1 9 9 3 — $ 3 6 .0 0 (individuals) — $ 4 5 .0 0 (institutions) — $ 5 0 .0 0 (abroad) — Single issue: $ 1 5 .0 0 .
FEBRUARY 1993 Editorial igration Action
I he battleground over immigration his issue of Migration Action is devoted solely to Harsh conditions are set on entry into the countiy, the March 13 federal elections. particularly for close relatives, restrictions are placed T or proposed on new arrivals’ eligibility to social All the major political parties have contributed to security and other entitlements and user pays this issue. Contributions have been prepared by the principles applied to special services to non-English Prime Minister, the Hon Paul Keating, and Leaders of speaking residents. the Coalition and the Australian Democrats (the Hon Sure, we have a recession and the country needs to Dr John Hewson and Senator Dr John Coulter tighten its belt. But the political parties’ approach to respectively). The Federal Minister for Immigration immigration lacks tolerance, fairness and justice - (the Hon Gerry Hand) and Shadow Minister (the Hon characteristics one tends to association with the Philip Ruddock) have also contributed to this issue. Australian way of life. As well, Migration Action has asked a number of The other predominate approach that is evident in community leaders and thinkers to comment on the federal politics is how issues relating to settlement federal elections — Victor Rebikoff (FECCA), Bishop and ethnic affairs have become irrelevant or non Challen, Professor Castles, Drs Rubenstein and Birrell. political issues. The politics of the 1970s and early Their contributions ensure that this issue of Migration 1980s were focused on post-arrival services and Action is the most timely and comprehensive election programs, the need to improve services and to ensure coverage of immigration and ethnic affairs ever access and equity. undertaken in Australia. The great initiatives in ethnic affairs - in media, From an editor’s point of view, I must say that the language services, settlement, legal and labour market current election debate over immigration is program — came during the post-Galbally years. depressing at the extreme. The ethnic affairs policies of the 1990s appear to be Immigration appears to have became the captive of barren of innovation, imagination and vision. And the the Treasury and economic ministries of Government. 1993 election campaign reflects how services to Both the Government and Opposition parties are ethnic communities have become a marginal issue. committed to reductions in immigration numbers. Lets hope that the next Government will restore the Rather than accepting immigrants as valuable players balance of debate and policy initiatives between in Australian society, the politics of economic immigration and ethnic affairs. rationalism prevails. Our next issue of Migration Action will examine the situation facing migrant youth in Australia. Tony Pensabene Chairperson
2 FEBRUARY 1993 Labor's new multicultural agenda
dynamism. It has made Australia more outward looking and more worldly. And even more importantly, has made us more tolerant. There have been three distinct phases in Australia’s post-war response to its immigrants. The first phase was characterised by an expectation that immigrants would fit into the dominant Anglo-Australian culture. The second was characterised by the encouragement By Paul Keating MP, of tolerance and respect for diversity, and the effort to Prime Minister, ensure access and equity regardless of ethnic origin. And this effort will continue. obody now doubts that Australia is a But we now have the beginnings o f a third phase - a multicultural society. Demographically, phase which emphasises the benefits of our diversity. multiculturalism is a descriptive fact. N W e now must take advantage of the potentially huge But it is a shallow reading o f our history and national economic asset which multiculturalism geography to suggest that this means we cannot be represents. one nation. The term “multicultural” was first used in The inspiration for this third phase is the perception the United States in 1941 as a global concept to that two things must be brought together: counter the excesses of nationalism. It stood for diversity within unity then; it stands for maximising □ The need for a still more competitive and the benefits and opportunities presented by the diversified economy with a strong export base; diversity in one nation now. and Our special identity as a nation comes very much □ The cultural affinities Australians have with from the fact that we are derivative o f no single virtually all the countries with whom we want to heritage. Our identity reflects a unique weaving do business. together of diverse cultural and historical experiences, These affinities might be likened to having and some fundamental democratic and practical representatives in the field who, through their values, including the ability to accept people for who understanding of our customers’ culture, language and what they are. It also reflects how we have come and preferences, can increase our competitive edge. together to make the most o f this unique country, in So many Australians know intimately the languages, what has become a very dynamic part of the world. consumer preferences, business practices and market In the past decade and a half Australia’s policies of opportunities of the countries they or their forebears cultural pluralism have been among the most come from. Many maintain business links - innovative and creative in the world. They have also independently and through ethnic chambers of been the hallmark of a decent and far-sighted society. commerce. Many have the skills to produce the In a world very often afflicted by ethnic and cultural goods the world wants but Australia has not tension, bitterness and bloodshed, Australia stands traditionally produced. Many have been critical in among those few countries which actually relish their technological transfer to Australia. diversity. Under the umbrella of an overall These Australians represent connections to some of commitment to the nation and its uniting values and the most promising international markets - Asia, the institutions, a society of great richness and variety and Middle East, Eastern Europe - as well as more remarkable harmony has evolved here. traditional ones. Australia, a society with few hang-ups about its I know that these Australians are keen to make their identity as multicultural, and one which has contribution to Australia’s prosperity by exploiting experience of managing its diversity, may have some those links, those skills, that knowledge. We should lessons for the world. Our rich, diverse and tolerant not as a nation be slow to make the most of these society is, in fact, the envy of the world. opportunities. Immigration is a central fact of this country’s history. During my visits to Asia last year, I stressed our It has been a major source of our energy and country’s capacity and willingness to change. I said
FEBRUARY 1993 0
there, as I have said in various forums in Australia - ignore the diversity of our workforce when the proof of our capacity to change is in the change considering work place reform. We cannot waste the we have already made, particularly in terms of the potential talent locked away in those with overseas way we do business and trade. training and experience. In the 1950s, only one-quarter of our exports were Through the National Office of Overseas Skills sold to non-English speaking countries. Today, over Recognition, the Government is seeking a more three-quarters o f our trade is with non-English efficient system which allows for full use of existing speaking countries. Moreover, our fastest growing skills. And, in the interests of both fairness and export markets over the past four years have all been economic efficiency, the Government has taken in non-English speaking countries - principally, but further measures to assist those job seekers whose by no means only, in Asia. lack of functional English is impeding their In the next decade income levels in Asia will rise employment prospects. As part of the Employment dramatically. The potential market for Australian Package, an additional $55 million has been allocated goods will grow in direct proportion. The challenge over the next three years so that all registered job for Australian business is to develop export and seekers without functional English can be referred to international business plans that take account of these English as Second Language classes. This will assist new markets. In this regard, it is important to approximately 48,000 job seekers. remember that, although w e are dealing with Central to the Labor Government’s micro-economic countries which are very different, they are not reform agenda - and to our national prosperity - is “foreign” to all Australians. the determination to revolutionise vocational training To increase awareness of the opportunities offered by based on key competencies. Australians from non- Australia’s diversity amongst the business community, English speaking backgrounds and the value of the I launched an outstandingly important Conference languages they speak cannot and will not be ignored called Productive Diversity in Melbourne last October. in this process. That Conference generated significant and genuine In order to tap the full potential of Australia’s interest amongst Australian businesses and, as a diversity, we must continue to pursue fairness - a consequence, follow-up workshops are being practical fairness which has its roots in the best of organised with industry in May of this year. Australia’s political traditions. It has been extended to My Government, through the Office of Multicultural our diverse society with innovative results, as it has Affairs, continues to pursue a number of other come up against a collection of practical difficulties initiatives to assist our business and trade sectors to and prospects no other society has encountered and maximise these opportunities for increasing our addressed in quite the same way. exports. These include: Australia’s access and equity strategy was initiated by □ Piloting and evaluating a program, in conjunction the Labor Government in 1985 and has fairness and with New South Wales TAFE, to train exporters opportunity at its roots. It is designed to remove and sales representatives in selling to Asian and those barriers - of race, culture, language or religion - Middle-Eastern countries. which may impede some Australians from access to services and entitlements provided by Government □ Developing a management training package for and which may prevent Australia from benefiting management consultants and business advisers, from their talents. which will integrate multicultural issues into mainstream training packages. A major evaluation of the Commonwealth’s access □ Creating from ethnic chambers of commerce and and equity strategy, which I launched in November other agencies a supportive national network for last year, confirmed that there had been real progress small and medium sized businesses. toward ensuring that our programs are available to all Australians, regardless of language, race, culture and □ Setting up a program to place overseas-trained religion. But a lot more can be done, particularly to professionals into Australian businesses. enhance access and equity regionally and for □ Sponsoring a consultancy group which provides Aboriginal Australians. The evaluation put forward 43 cultural, linguistic and market expertise to recommendations, all of which were endorsed by the companies. Government, and I have asked all Commonwealth □ Making the Government’s Bilingual Consultants agencies to implement the new access and equity Network commercially available to companies regime with vigour. wishing to test products/advertising etc amongst Australia’s access and equity strategy is a major and ethnic communities in Australia before moving unique achievement which the world is now looking into export markets. at copying. Its approach has been practical, a matter But the opportunities go beyond exports. They of making sure that programs get to all Australians by concern productivity and efficiency. We cannot working on the way they are designed and delivered,
4 FEBRUARY 1993 f
rather than of establishing an elaborate system of I think we can encourage the process of nation rights - as other societies have done with rather less building by, amongst other things, encouraging the success. idea of Australian citizenship. Australian citizenship Ethnic radio is another important element in the with its attendant rights and obligations is part of the Government’s strategy of enabling those from non- glue which binds this nation and its citizens. With this English speaking backgrounds (particularly older in mind, my Government will shortly introduce into residents, women and newly arrived migrants) to Parliament a new Oath of Allegiance. This means participate in the life of Australia. that, in future, people seeking to become Australian citizens will pledge loyalty to Australia and its people, The Government is now establishing a second SBS its democratic beliefs, rights and liberties and the rule radio network in Melbourne and Sydney and of law. extending the service to Perth, Adelaide, Brisbane, Darwin, Canberra and Hobart. For the first time, Yet there is more to be drawn from the implications Australia will have a national ethnic broadcasting of the multicultural facts of Australian life. I have ' network to complement SBS TV. The Government identified the trade possibilities and the need to will continue to support SBS and where possible reassess our national identity - for ourselves and in expand its services as part of its commitment to the world - as well as the importance of maintaining ensure that all Australians have a chance to play a part peaceful and productive community relations by in our society. expanding the application o f access and equity principles. There are other issues which bear upon Although far from perfect, Australia has done English language training, participation and remarkably well against international standards in the productivity; and on managing in a culturally and extent to which diverse communities live alongside linguistically diverse workplace. There are also each other with mutual acceptance and a respect for opportunities to improve the ways diverse the rules of the democratic game. Indeed we have communities communicate with Government and done sufficiently well that we can identify our mutual other major institutions. All of these are part of tolerance, our management of diversity, our Labor’s multicultural agenda. multiculturalism - or whatever we choose to call it - as an enduring characteristic of the quality of life in I am very confident about the future of Australia and Australia, or of what we might call, the Australian one of the principal reasons for my confidence is our way. proven capacity in recent years to adapt and meet new challenges. The Labor Government stands ready The commonsense principles of the Labor to listen to members of the Australian community, Government’s national agenda for a multicultural whatever their cultural heritage or ethnic background, Australia - principles for managing diversity — show to ensure that we all reap the benefits of our that achievement in social cohesion has not been diversity, ffl sheer accident. The Government and an active community have each contributed in a way unique in the world. The principles of the agenda stress the right to cultural identity, the wealth that can come from diversity, and the justice of treating all Australians of whatever background, as Australians. The national agenda made it clear, above all, that a diverse society can and will reflect a commitment to national unity, to the nation’s interests and to its democratic institutions. To reinforce this commitment to national unity, we must continue to develop the special Australian identity. We need a strong national identity at home to give us more strength of purpose. We need it abroad to leave no-one in any doubt about who we are and what we stand for.
FEBRUARY 1993 5 One of the earliest statements I made after becoming Leader of the Opposition two and a half years ago Hewson's was to call for a full and open debate on national issues that for too long had been mired in political posturing and too easily categorised as impossible to change. agenda on My strongly held view then, and even more so now, is that in the worst economic circumstances for more than sixty years and in a world which is moving inexorably towards greater and greater economic immigration* interdependence, Australia has no choice but to face up to its very vulnerable situation and to commit itself to a reform agenda that will restore a competitive economy and rising standards of living. In calling for such a debate, I specifically identified immigration policy and the need for a national debate devoid of arrogance, prejudice and ignorance - a debate in which myth is clearly differentiated from fact, and emotion from reason. Let me say at the outset that I believe the role which the Coalition Parties have played over recent years in stimulating and focussing community debate on n the past two years, Australia has endured the immigration policy has been a very effective, consequences of its worst recession for more than responsible and constructive one. Isixty years. This reality has changed the lives of Our purpose has been very clear. millions of Australians. It has driven unemployment We have not fudged what we see as critically numbers to record levels. It has bankrupted important issues about the level of the migrant intake, thousands of businesses. It has destroyed the the integrity of the administration of Australia’s livelihoods of hundreds of thousands of Australian migration program, settlement arrangements for new families. migrants, the concept of a multicultural Australia, and It has undermined confidence in the future and much more. aggravated a range of social problems in Australia. W e have also sought to go beyond the debate over But if there is any positive side at all to this failure of numbers and to focus on the rationale for the economic policy, it has been that community development of Australia’s migration program in the attention has turned to the need for structural changes years ahead. across a whole range of taxation, labour market, We have addressed these issues responsibly, on their infrastructure and other issues. merits, and in the context of Australia’s current Immigration policy has not been immune from that precarious economic circumstances. community debate. Long-established practices have We believe our honest activism has created very real needed to be defended. The size and composition of political pressures on the Government and has had a the immigration program has been more extensively significant impact on recent changes in the direction and publicly scrutinised. These processes have been of the Governments immigration policy - particularly necessary, desirable and, on the whole, constructive. in areas such as the provision of social security It is very appropriate, therefore, that some of the key benefits, the administration of refugee policy, and the research papers presented at this Conference focus on relevance of English language proficiency. the correlation between the migration program and I want to take the opportunity to reiterate the vital the state of the Australian labour market, and on the core principles which have underpinned the net cost impact of the migration program on approach of the Coalition Parties to immigration Commonwealth, State and Local Governments. policy over the past two and a half years, and which But the forces of change in the Australian community will inspire the policy direction of a Coalition go well beyond the hardships inflicted by the Government on immigration issues. recession. First, the Coalition Parties, whether in Government or Opposition, are committed to equal treatment and equal opportunity for all * Adapted from the address to the Bureau o f Immigration Research, Second National Immigration Outlook Australians regardless of race, colour, religion Conference or country of origin. h 6 FEBRUARY 1993 /
That commitment is unconditional and it is backlog of 21,700 applications as of last month, has irreversible. been a disgrace for too long. Discrimination on the basis of a person’s race, colour, The abuses of spouse/de facto/fiancee migration religion or country of origin has no place in Australian arrangements have been too extensive for too long. life or law. And the policies of a Coalition The old Business Migration Program was subject to Government will be unambiguously committed to inefficiencies and abuse for a long period of time. that objective - in immigration and in every other And the number of illegal migrants - estimated by the aspect of public policy. Government at 78,000 people but in our view We have always believed that immigration has been probably closer to 120,000 - remains a chronic one of the great nation-building influences in the problem. development of Australia. The Coalition Parties have focussed consistently on We believe that a well-planned, efficiently these and other areas of inefficient administration in administered and non-discriminatory immigration the immigration program. program is fundamental to Australia’s national We recognise that, in response to political and economic and social development and to our community pressures, the Government has moved in international standing. some areas to streamline procedures, to limit abuses One of the great strengths of Australian society is its and to amend some selection criteria. We welcome multicultural character. That reality has enriched our these reforms. country in all aspects of our national life. It has also But they constitute only the beginning of a long road made us a more tolerant and better country. back from the loopholes and administrative In Government and Opposition, the Coalition Parties inefficiencies in the migration program that became have had a consistent and deeply held view (flat entrenched for too long. skilled migration, the reunion of immediate family, They are reforms that are necessary and long and the recognition of special refugee and other overdue. But they only begin to address the humanitarian claims are all essential elements of an problems, and the reforms need to be accelerated and overall immigration program. expanded. A second basic perspective on immigration Put simply, a situation was allowed to develop in issues is our view that the integrity of Australia’s which Australia’s immigration program lacked both immigration program has been eroded over realism and effective controls. recent years by the Government’s inefficient administration. A major reform process is called for to restore credibility and administrative efficiency. A start has As a result, we believe that public confidence in the been made but the necessary sense of urgency is program has been seriously diminished. lacking. Over recent years, unrealistic numerical targets for the A Coalition Government will deliver both an effective migration program have been pursued with greater reform agenda and a sense of urgency in its priority than consistency in migrant entry criteria. implementation. There has been inadequate and ineffective correlation A third point of principle for the Coalition between the skills of prospective migrants and the Parties in our approach to immigration policy is state of the Australian labour market. our commitment to put Australia’s interests first This situation developed largely as a result of the at the same time as we take proper account of abandonment of the occupational shares scheme in our international responsibilities. the points test where emphasis was placed on recruiting for skills in areas where there were Over the long term, as Australia’s economic prospects shortages and where employment opportunities improve under policies which the Coalition is now existed. advocating, w e firmly believe that an expanding migrant intake will contribute to our national But the failings of the immigration program over development. recent years have gone beyond the balance given to relevant skills. One of the great lessons of Australia’s post-war history is that, in an expanding economy, a high level The problems afflicting low skill, non-English of migration is a major economic and social benefit. speaking migrants were allowed to drift for far too long. The Migration Regulations remain complex and But we are equally firm in our belief that, in subject to significant delay. Australia’s current economic circumstances, an immediate and substantial short-term reduction in the The system of assurances of support for extended number of migrants coming to Australia is the only family members proved ineffective for too long. responsible course of action. The administration of the refugee program, with a
FEBRUARY 1993 7 0
In terms of historical experience, the recent size o f the In the case of some national groups, the migration program represents a higher intake than in unemployment rate over the past year has been as previous recessions of lesser magnitude than the high as 70 per cent. current one. In the recession of the early 1960s, for In this context, it is also relevant to note the paper example, the net migration gain fell to between prepared by Robert Ackland and Lynne Williams on 58,000 and 68,000. In the recession of 1982-83, it fell Immigrants and the Australian Labour Market: the to around 54,000. By contrast, the net gain in 1991-92 Experience o f Three Recessions. was more than 78,000 - and that figure still They produce some compelling evidence in support understates net immigration. of their conclusion that, in recessions such as the Unless the Government makes a clear decision on the current one, immigrants to Australia from non-English future status of the Chinese nationals on four year speaking backgrounds suffer higher job loss and temporary entry permits, an additional 20,000 relatively higher increases in unemployment rates migrants and their dependants could be added to the than other immigrants from English-speaking net outcome. backgrounds, and higher than those born in Australia. We have consistently made it clear that a reduced The study also shows how immigrants, and migrant intake is not, in itself, any solution to particularly those from non-English speaking Australia’s current economic difficulties. backgrounds, are relatively disadvantaged during the Those difficulties will only be overcome by a recovery phase o f a recession. coherent policy of reform that addresses Australia’s In Australia’s current economic circumstances, it is fundamental economic weaknesses. also true that the migrants whom Australia most needs It is that objective which underpins the integrated - migrants who are younger, better educated, English- reform agenda set out in Fightback! speaking, more highly and more relevantly skilled, But, the fact of life is that the current level of and more employable - are applying in significantly migration is not in Australia’s interests at the present reduced numbers to come to Australia. time and it is not in the interests of many new In these circumstances, the Coalition Parties have migrants themselves. made it clear that w e are not prepared to compromise In the context of the worst economic circumstances migrant entry criteria just to meet fixed numerical for sixty years, Australia’s capacity to successfully targets. settle large numbers of new migrants is significantly By contrast, what we have done over the past two reduced. Far too many new migrants to Australia over and a half years is to set down a detailed set of recent years have arrived with high hopes, only to be reforms which we believe are desirable and necessary disillusioned by long periods of unemployment or in in their own right, and which will have the effect of receipt of social security benefits. dramatically reducing the migrant intake until the In July this year, the Liberal Party’s National Australian economy can properly accommodate a Convention became a Jobs Forum, an attempt to significant increase in numbers. assess at first hand the economic and social We have called for more effective labour market consequences of the recession and to clearly identify testing of prospective migrants in relation to the what needs to be done. points system to ensure not only a higher proportion One very powerful statement at our Jobs Forum came of skilled migrants, but also a higher proportion of from Mohan Amuradha, a highly qualified civil migrants with skills relevant to Australia’s current and engineer with extensive practical experience in India future labour market requirements. who emigrated to Australia last year. Mr Amuradha We have called for greater weight to be given to told our Jobs Forum how he resigned his job in India English language proficiency including among and how he was told by officials that jobs were migrants in the concessional family reunion category available for him in Australia. He went on to tell of his - a call which the Government has now taken up. life on the dole in Australia, how he felt “almost We have called for tougher bona fides testing in the humiliated” in receiving government benefits that he preferential family reunion category, and particularly described as “a sophisticated style of begging” which in the spouse/de facto/fiancee entry which currently he and his family found “demoralising”. constitutes about 30 per cent of the total migrant The story of Mohan Amuradha is the story of far too intake. many disillusioned migrants to Australia over recent In that context, w e have called for spouses married years. overseas to be subject to the same requirements as It is the story, in particular, o f newly arrived migrants those which now apply to on-shore applicants - among whom unemployment rates have averaged 35 namely, a two year provisional migrant status and per cent since 1991 compared with a 1986-1990 stricter requirements for de factos in terms of longer average of 15 per cent. co-domicile arrangements.
8 FEBRUARY 1993 f
We have called for social security benefits not to be We have been very concerned, however, about the extended to future migrants during their first two delays in processing of refugee applications and the years in Australia (except those with refugee or widespread inefficiencies in the refugee humanitarian entry status or those in exceptional determination system. circumstances) - a call to which the Government has We believe that a case-by-case assessment of all responded with a similar exemption, but only for a six refugee applications is the only genuinely fair and month period. compassionate means of addressing the issue. We have called for all applications for refugee or The backlog of over 20,000 cases has seriously humanitarian entry to be determined on a case-by- undermined Australia’s capacity to assist genuine case basis, including the approximately 20,000 refugees in a timely and consistent manner. Chinese students to whom the Australian Government Accordingly, w e have called for a number of has granted de facto permanent residence. corrective measures including redeploying staff and In making these and other calls for reform, the resources to the refugee determination system, Coalition Parties have consistently and deliberately requiring leave before further appeal of contested refrained from setting fixed targets for our first year in applications is permitted, limiting the scope for government. appeals, and ensuring that applications are processed And we will not be getting into the business from expeditiously and fairly. Opposition of setting fixed targets to be implemented The Government is gradually adopting some of these in Government. measures but there is a need for urgent and But we believe that our reforms will have an coordinated action to restore Australia’s credibility in immediate and dramatic short-term impact in this area. reducing the overall size of the migration program. An important test case of the Government’s new found resolve in reforming the refugee determination Furthermore, a Coalition Government will not system will be its response to the recent report of the significantly increase the migrant intake until there are Joint Standing Committee on Migration Regulations. A dear signs - including a significant and sustained bipartisan majority of the committee supported an improvement in unemployment and other indicators overturning of the current discriminatory policy in such as foreign debt - to demonstrate that the favour of Chinese nationals who were in Australia Australian economy is expanding in a sustainable way prior to the Tiananmen Square massacre in 1989. The which can effectively accommodate an increased majority report recommended in favour of a case-by level of migration. case assessment of all applications for refugee and In this context, I have noted that a Research Paper by humanitarian status. Mr Will Foster titled Macroeconomic Effects o f Change The Coalition Parties have always opposed the special in the Size and Composition o f Australia’s Migrant “permanent temporary” status created for those Intake. Chinese nationals in 1990 by the then Prime Minister, I do not wish to endorse the accuracy of Mr Foster’s Mr Hawke — a policy later endorsed by the current scenarios for the future of the migration program, nor Prime Minister, Mr Keating. in particular the scenario he attributes to the Coalition Like all other applicants for refugee or humanitarian Parties. Nor do I wish to endorse some of the general status, those Chinese nationals in Australia with a conclusions which the paper puts forward. genuine fear of persecution should be provided with But it is relevant to note some of the outcomes which appropriate protection. Mr Foster’s data produces in terms of the favourable But the provision of blanket protection, irrespective correlation between a lower migrant intake and the of individual claims, is discriminatory and unfair to short and long-term effects on unemployment, other applicants. foreign debt, exports, imports, and GDP. The Prime Minister needs to respond to the Joint A fourth principle which a Coalition Committee report as a matter of urgency. He needs to Government will bring to immigration policy do so to end the current uncertainty. relates to refugee and humanitarian entry. But more generally, he needs to do so in order to We have made it clear that the refugee/humanitarian restore non-discriminatory criteria as the basis of a component of the migration program, with its consistent and principled Australian refugee policy. humanitarian purposes, should be considered as A fifth principle of the Coalition’s approach to distinct from the rest of the migration program, with immigration policy concerns the new priority its essentially economic and social purposes. we wish to give to the relevance and The Coalition Parties have a proud record in this area significance of Australian citizenship. which we will continue to uphold. In particular, we The present law - the 1948 Citizenship Act - is will continue to fulfil our responsibilities under deficient in that it contains no clear statement of the United Nations and other international agreements.
FEBRUARY 1993 9 0
rights and responsibilities of citizenship. We support the right of all Australians to express and We want to encourage all Australians in a positive share their individual cultural heritage. We support way to become citizens by making citizenship more the right o f all Australians to equality of treatment and relevant and more easily understood. opportunity. And w e are committed to maintaining, developing and utilising effectively the skills and We are about specifying and reaffirming rights, not talents of all Australians. diminishing them. We recognise the aspirations of migrant families to We are about raising the profile and significance of participate fully in Australia’s national life. citizenship. We will provide a range of incentives and support for We believe that the residency requirement before a them through the policies and initiatives outlined in grant of citizenship is possible should be extended Fightback! from a period of two years to four years. Such a period would serve to place an appropriate premium Within the context of an overriding and unifying on the privilege of citizenship. commitment to Australia, the Coalition Parties are also committed to programs that will strengthen a We also believe that a basic competence in English multicultural society. should be a requirement for all grants of citizenship except for aged people over 60. That is why we are committed to maintaining a full range of settlement services for new migrants, We believe that the entitlement to sponsor immigrants developing the Ethnic Schools Program, encouraging should be limited to Australian citizens, except in proficiency in English, supporting community-based cases where those being sponsored are in the schools, facilitating second language skills, ensuring preferential category or have refugee/humanitarian that prompt recognition is given to overseas status. qualifications which equate with Australian standards, We believe that citizenship classes prior to the grant and working to give migrant women, migrant families of citizenship could focus on the key facts of and aged migrants more genuine equality of Australia’s history, the symbolism and relevance of opportunity. our flag, the words of the National Anthem, and the What w e oppose, however, is the attempt by rights and obligations of being an Australian citizen. governments, such as the Federal Labor Government We believe that the scope for dual citizenship should over recent years, to use the label of be extended. “multiculturalism” as a means of secretly allocating We also believe there is much to recommend the money during the lead-up to an election, as proposal put forward by the FitzGerald Report that at happened prior to the 1990 Federal election, in the citizenship ceremonies new citizens should make a hope of winning particular votes in particular declaration to respect fundamental institutions and marginal seats. principles of Australian society. W e condemn that approach, which politicises The declaration could reaffirm an overriding and multicultural programs, as the politics of division - unifying commitment to Australia. and we will continue to reject it. And I am sure that It could specify that the right to express one’s own most migrants would similarly reject the demeaning culture and beliefs involves a reciprocal responsibility notion that their vote could be bought in such an to accept the right of others to express their views and opportunistic way. values. We have always been committed to strengthening the It could also signify respect and acceptance of the real foundations o f a multicultural Australia - and we principle of non-discrimination on the basis of race, will continue to be committed to that objective.® colour, religion, or national or ethnic origin. All these initiatives could usefully serve the objective of making citizenship a more significant and meaningful symbol in Australia’s national way of life. Finally, I wish to refer briefly to a sixth principle underpinning the Coalition’s approach to immigration policy generally and to multicultural policies in particular. The Coalition Parties remain firmly committed to a multicultural Australia. W e recognise the historic scale of the contribution which migrants have made, and continue to make, to the development of Australia’s economic, cultural and social life. to 10 FEBRUARY 1993 /
Democrats approach issue as a total look at population
migrant communities than assistance with the By Senator John common language — a tool which will assist them in their everyday lives? Migrants from non- Coulter, Leader of English speaking backgrounds traditionally fill the Australian jobs in industries such as motor vehicles, textiles Democrats and and steel. These are the very industries where Spokesperson on structural change and job losses have been the most severe. English skills are increasingly Population and important in redeploying workers laid o ff in such Immigration industries and helping new arrivals fin d work ...” Clearly, it is not in the interests of Australia or the y colleague, Senator Sid Spindler, Australian migrants themselves to have any stumbling block, Democrats senator from Victoria, said in his financial or otherwise, in learning English. We are MFirst Speech on 22 August 22 1990: also disturbed by the low participation of women in “If I were asked to identify Australia’s most English language training compared with men and significant achievement, I would not hesitate to fear this legislation will drive participation rates of nominate the essentially cohesive and women even lower. We recognise that part o f the harmonious multicultural society which is problem relates to child-care and hope that child-care evolving daily with contributions from people can be provided in future to ensure all migrant who came here from 140 different countries. ” women have access to English-language training. This Senator Spindler, in speaking to a number of is part of our broader policy o f commitment to a migration Bills in the Senate late last year, added: publicly-funded, accessible and equitable education system for all Australians, regardless of their sex, age, “That multicultural society depends on two race, religion or cultural or economic background. principles: first, the practical tolerance and support enabling all the nationalities to maintain Senator Sowada went on to say in her speech on this their links with their cultural background; and Bill: secondly ... the assistance in achieving fu ll “It has been shown that State Budgets bear the participation in the social, cultural, economic brunt o f immigration program costs and that the and political life o f the nation. ” States are not adequately compensated by the Multiculturalism Commonwealth fo r this. This was most recently borne out by Professor Russell Matthews, an Since their inception in 1977, the Australian expert on public finance, at the recent Second Democrats have supported a policy of National Outlook Conference in Sydney. If we multiculturalism in Australia. We support publicly and support the principle of providing immigrants legislatively the two principles on which a with sufficient resources so that they can fully multicultural society depends: the right of people integrate into Australian society, then there are from all nationalities to maintain links with their only two solutions: firstly to increase funding to national background, and the right to participate fully the states fo r ESI teaching and other services or, in the life of Australia. For instance, on the first point, secondly, to reduce the number o f immigrants, we applauded the establishment of SBS and ethnic particidarly those from non-English speaki?ig radio and have fought against proposed cuts in their backgrounds, to fit what can be afforded. funding, and we support the maintenance of the Obviously some balance is required. ” preferential family reunion program. On the second point, w e opposed the Immigration (Education) Size of immigration program Charge Bill 1992 introduced last year which allowed Which leads us on to the question of what size the charging of fees for the training of adult migrants immigration program can Australia afford? Australian in the English language. Senator Karin Sowada who Democrat policy says unequivocally “Migration to holds the portfolio of Education for the Australian Australia since the last war has tremendously enriched Democrats in speaking to the Bill in December, said: our national culture”. No-one can deny that, but in the “What could be a more basic need amongst our past year or so unemployment rates amongst new
FEBRUARY 1993 1 1 0
arrivals has crept up to alarming levels at a time of system on which Adelaide depends for its backup very high national unemployment. We must weigh watersupply. We have seen the rundown and the cultural advantages of the immigration program salinisation of aquifers underlying the city of Perth on against other factors, namely the economic and which its water supply depends. environmental costs. We must ask ourselves honestly All these things indicate that if the present population whether w e now need an immigration program at all. of this country continues to make the demands on the The Australian Democrats believe the answer is yes, environment which it currently does, the environment but there is a strong case for further reduction of the will not be sustainable. We are already, in terms of program and restriction largely to its humanitarian sustainability, an overpopulated country. This is why component. w e must have a national population policy. W e need To try and determine the size of an immigration to work out what level o f resource use we can program, however, without having in place a national maintain in the long-term in this country. W e need to population policy, is a nonsense. The National determine the level of pollution consequent upon the Population Council (NPC) was set up by former Prime exploitation and disposal of those resources. Having Minister Bob Hawke and announced with much worked out that level per capita, we must work out fanfare at the first National Immigration Outlook what size population is consistent with that, ensuring Conference in Melbourne in 1990. A year ago with a worthwhile and viable life-style for our descendants. less fanfare it published its recommendations, a Future generations surely have a right to enjoy a primary one being that the Federal Government quality of life which we have come to enjoy. Indeed determine a National Population Policy for Australia. intergenerational equity is a major plank in the It also recommended a change from a Minister and a Ecologically Sustainable Development (ESD) process Department of Immigration to a Minister and to which the Federal Government pays lip service but, Department of Population. The NPC recognised that regrettably, little more. population was the primary issue and that an The Australian Democrats in no sense blame migrants immigration policy should fit within it. While the NPC for the environmental damage which has occurred in did not recommend that there be an “optimum this country. If the increase in population causes population” for Australia, per se, there was a clear environmental problems, it is the Government which message that immigration could not be treated in has caused the population increase by pursuing a isolation. Australia since 1947 has had an immigration program of population increase through immigration. policy but never as a nation developed a population policy. And now, over a year since the NPC released Stable Australian population its findings, w e appear no closer to developing one. The second major plank o f our immigration policy, The two main planks in the Australian Democrat therefore, that the population be stabilised, is a first policy on immigration and population are: step along the path to achieving sustainability. Despite our fertility rate having fallen below □ We should have a population consistent with an replacement levels, the large cohort of women still in ecologically sustainable economy, and their child-bearing years will ensure the population □ We should seek to stabilise Australia’s would still grow to around 20 million people even if population. there were no immigration from now on. The level Ecologically sustainable economy would eventually fall back to 17 million, but it would do so slowly over a hundred years. If we maintained An ecologically sustainable economy does not net migration of 50,000 (immigration minus depend on population alone, of course. The size of a emigration) and fertility stayed the same, then we population is, however, a major component of the would eventually stabilise in the second half of next impact o f that population on the environment. If century at around 24 million or so. By bringing the resource use per capita and technology stay about the annual immigrant intake down to 80,000 this year, the same, then a doubling of the population will double Federal Government is nearly down to a level which the impact on the environment. And in terms of would lead to stabilisation, given that emigration is sustainability, it should be manifest to everybody that somewhat more than 20,000 annually. I believe, the pattern of development in Australia is not however, that it is in the nation’s interest to achieve sustainable in the long run. We are degrading the stabilisation more quickly, and while I am not averse ability of our land to produce food; we have to public policy which would reduce the number of increasing soil erosion; w e have increasing children per family from the current 1.8 to say, 1.6,1 salinisation; and we are decreasing the ability of this believe w e could reduce the gross immigration intake country’s water supply to meet even the needs of the to 50,000 without cutting into the humanitarian current population. We have seen our water supplies program. become increasingly polluted. W e have seen the spread of blue-green algae into the Murray-Darling
12 FEBRUARY 1993 /
0
Immigration outcome here two, three, even five years. It is neither in the nation’s interest nor in that of the migrants themselves Let us then look at how cuts could be made in the that we allow in so many people for whom we cannot program. One area should not be cut but indeed guarantee a job. increased. That is the refugee/special category which is currently 12,000. The Refugee Council argues for The independent category, or skilled migration 20,000 and I believe that is reasonable. Unfortunately, program, currently brings in 23,000 people annually. given the magnitude of the refugee program in the Not until recently has there been any attempt to world, even that will barely make an impact. But we match this program with labour market needs. The do have international obligations to take in refugees assumption has been that all skills are good, and yet and w e must abide by them. Early this year the we have gone from having a shortage of engineers in Minister for Immigration, Mr Hand, announced the this country less than 10 years ago to one where there separation of the humanitarian component of the are 9000 unemployed engineers, many of them immigration program, namely refugees and special immigrants who have come with the best will in the categories, from the,remainder. This we applaud, for world to this country believing their skills were it differentiates between the two purposes of the needed. And now there are only three skills in immigration program, namely the fulfilment of our Australia where there is a shortage - therapeutic international obligations and that which is purely in radiographers, high school maths teachers and high the national interest. school Japanese teachers. The lack of co-ordination between Government industry, education, training Even if we increase the refugee component of our and immigration policies over the past four decades is intake as I believe we should, the number of refugees a national disgrace. We have depended for far too in the world is so large and growing so rapidly, we long on our immigration program to supply the skills are still not going to make a significant dent in the for running a modem industrial society. In recent problem. The Australian Democrats believe that years, industry restructuring and streamlining has Australia must substantially increase its foreign aid caused displacement of countless migrant workers, program and target that increased aid specifically yet right through the 1980s the Federal Government towards the causes of people becoming refugees. I continued to bring in hundreds o f thousands of more was disturbed to note on a Couchman program in people. Once again, it is not the migrant’s fault, but June last year on ABC television all the people on the that of Government policy. program, irrespective of their country of origin, stated that in coming to Australia as refugees they had lost Conclusion their identity; they had moved into a foreign culture; So, increasing the number of refugees, maintaining they had lost their birth certificate or marriage preferential family reunion and significantly cutting certificate. They said that just about everything that the skilled program and concessional family reunion, had made them a person was lost upon being moved would leave us with a gross intake o f around 50,000 to a foreign country, and they had great difficulty in annually. establishing a new identity in Australia. Given this, it I believe this would be a level which we could afford is not enough to increase our refugee intake - we in terms of provision of adequate ESL teaching, social must do all we can to address the political, economic welfare for new arrivals, and proper counselling for and environmental causes of people becoming those who need it, particularly those who have refugees, and this means an increase in the foreign undergone trauma. It would be a level that would not aid budget to at least that recommended by the UN - necessarily lead to an ecologically sustainable 0.7 per cent of GDP. economy, but certainly give some hope of achieving The Australian Democrats would tend to put Family one in that it eventually would lead to stabilisation of Reunion in the humanitarian category and argue the population, assuming fertility remained the same. strongly for its maintenance, at least for the It would allow the proper planning of cities and preferential sector. How can anyone argue against provision o f infrastructure. It will give us time to genuine spouses or dependent children? And as for reduce our per capita demand on the environment parents, we believe the Government’s “balance of and achieve a society which might be a model for the family” rule is perfectly reasonable. But I believe the rest of the world. ■ Concessional Family Reunion Program is one that can and should be cut despite our recognition that for many immigrant groups, the extended family is Postscript: Where numbers are mentioned, this is a valued that aunts may be valued as much as mothers, personal view as Australian Democrat party policy or cousins as much as brothers. Unfortunately it is this does not mention numbers, either with respect to the category which is responsible for the alarmingly high total intake or refugee and other categories. unemployment statistics in some migrant groups, not only for new arrivals, but for those who have been
FEBRUARY 1993 13 0
□ Carefully weighs these commitments against the current economic climate and the best interest of Labor's record the nation when setting the annual migration program; and □ Believes that the 1992-93 Migration Program of 80,000 places reflects the balance between of achievement meeting the nation’s international humanitarian commitments. Refugee and humanitarian — the Labor Government: By Gerry Hand □ Has a strong commitment to refugees and a long MP, Minister for and proud record of humanitarian assistance; Immigration, Local □ Continues to respond to turbulent world events Government and and increased number of refugees and displaced Ethnic Affairs persons with flexibility; □ Created the Special Assistance Category and put ustralia has long had a strong and diverse in place special arrangements for Eastern multicultural society. It is important to Europeans in 1992; Aremember that migration to Australia did not □ Further strengthened Australia’s humanitarian begin in the post World War II era, it began with the commitment in 1993 by separating the refugee arrival o f the First Fleet some 205 years ago. Since and humanitarian categories from the regular that time, there has been successive waves of migration program; migration from various parts of the world. □ Increased the 1992-93 refugee and humanitarian Migration — the Labor Government: program by 2000 to 12,000 places; and □ Is committed to ensuring that Australia retains the □ Established a framework for better co-ordination right to protect and control its borders, and the of Government agencies responsible for the right to determine who shall enter and remain in delivery of Australia’s international humanitarian Australia; responses. □ Has established a fair and consistent framework, Settlement — the Labor Government: set in legislation, for all migration decision-making; □ Has a strong commitment to providing programs □ Has reviewed and refined all decision-making and services to allow migrants to quickly and procedures and has established a fairer and more successfully take their rightful place in Australian comprehensive two-tiered system for the review society and to make their contribution to the of migration decisions; nation; □ Has tightened controls over illegal immigrants □ Is committed, through the National Office of through a trebling of compliance staff, upgrading Overseas Skills Recognition, to fully utilising the computer systems and sanctions on employers skills, training and talents of migrant workers; who engage illegals instead of Australian workers; □ Established a 14-member Settlement Advisory Committee to assist in the better planning, design □ Has set regulations for migration agents with and delivery of settlement services; compulsory registration, a code of conduct and a registration board; □ Established mechanisms to improve the co ordination of programs and services across all □ Has replaced the former Business Migration levels of government, through the development Program with the Business Skills category, with of the National Integrated Settlement Strategy, more safeguards and potential for employment thus eliminating the duplication of services; registration; and □ Expanded the Grant-in-Aid program, allocating □ Has toughened penalties for contrived marriages/ $3.4 million in 1992-93 to 132 community de facto relationships as a means of organisations, to provide settlement assistance circumventing migration laws. and better access to mainstream services; Migration program □ Increased assistance to migrant resource centres; — the Labor Government: and □ Has a strong commitment to the family, skill, □ Improved and expanded translating and refugee and humanitarian components of the interpreting services. migration program;
Hf 14 FEBRUARY 1993 /
ESL - the Labor Government: Consultation □ Believes English proficiency and access to English — the Labor Government: language tuition are the keys to successful □ Continues to undertake extensive consultation settlement and participation in the community; with community groups and organisations; and □ Has committed an additional $27.5 million to □ Established the Bilingual Consultative Network, adult ESL programs in 1992-93 resulting in better the NESB Women Council, the Settlement targeting o f incoming migrants and jobseekers; Advisory Council and the National Advisory □ Has, for the first time, set in legislation an Council on Skills recognition. entitlement to English language tuition o f 510 Community relations hours (up from an average of 370 hours); — the Labor Government: □ Introduced fees for some categories of migrants from 1 January 1993 - fees are in line with □ Developed the Community Relations Strategy, Commonwealth user charging policies and take and a series o f pilot programs, to promote into account capacity to pay; and understanding and acceptance of the ethnic diversity and richness of the Australian culture □ Has exempted migrants in the refugee, humanitarian and preferential family categories, and its society. as well as current permanent residents who are Business, employment and training registered jobseekers or who hold a health care — the Labor Government: card, from the fees. □ Is committed to promote the strength for Australia Citizenship of the business and trading skills of migrants, — the Labor Government: including their connections with our trading □ Is committed to the introduction of legislation to partners; replace the old oath of allegiance with a pledge □ Is committed to ensure that the Australian of commitment as a citizen of the country of workforce has every opportunity to participate in Australia; and the current economic reforms and industry restructuring designed to make Australia more □ Is committed to the introduction of legislation internationally competitive; and which will define citizenship as a common bond involving reciprocal rights and obligations uniting □ Has allocated $105 million for English language all Australians. tuition over the next four years to assist non- English speaking jobseekers access these Cost recovery opportunities. — the Labor Government: Women — the Labor Government: □ Introduced a cost recovery mechanism for □ Launched “Women: Shaping and Sharing the processing applications and for some services - Future”, setting a new national agenda for women fees are in line with Commonwealth user charging for the years 1993 - 2000; policy and take into account capacity to pay. □ Provided safeguards for women from overseas Multiculturalism who marry Australians and become victims of It is time to acknowledge the richness of our society, domestic violence; and the strength of our diversity and the benefits of □ Expanded the Women At Risk program which immigration. Australia has an unprecedented targets refugee and other women in vulnerable opportunity to build upon the economic, cultural and situations. linguistic resources of a multicultural Australia and to use the skills and talents of people from other cultures Arts, sport and recreation for our national benefit. — the Labor Government: Access and equity □ Is committed to the development of arts, sport — the Labor Government: and recreation programs which reflect and promote the richness and diversity of Australian □ Remains committed to the principles of access society. and equity - introduced in 1985 - that all Australians should have equal access to, and Media — the Labor Government: equity within, all Government services; and □ Funded traineeships, workshops and special □ Establish mechanisms to allow migrants better programs through SBS and ABC networks; and access to mainstream programs and services such □ Expanded the SBS television network beyond as ethnic aged care, child care, health and social Melbourne and Sydney and introduced a second security. frequency in Sydney and Melbourne. 13
FEBRUARY 1993 15 0 The Coalition's reform program
This does not reflect a lack of commitment to a continuing immigration program, nor does it reflect a devaluation of our commitment to a multicultural Australia. By Philip Ruddock What it does reflect is a realistic appraisal of MP, Shadow Australia’s ability to successfully settle a large number Minister for of new migrants in the middle of the worst recession Immigration and in sixty years. Ethnic Affairs This does not mean that we believe that a reduction in the program will solve Australia’s economic he Coalition’s immigration program recognises problems, nor does it mean that w e believe that the enormous contribution migrants have made, immigration has caused those problems. But w e must T and continue to make to the economic and recognise that in order to keep benefiting from our cultural life of Australia, but it also recognises that our ethnic diversity, w e must ensure that we have the capacity to settle successfully a large number of new capacity to integrate, over time, the people who do migrants, during the worst economic recession in arrive here to settle. W e must consolidate the gains sixty years, is significantly reduced. we have made and build upon them. Our program will produce a sustainable outcome There is a dearth of employment and investment determined by the non-discriminatory application of opportunities, even for the most qualified of new qualifying criteria designed to meet the national migrants, in the current recessionary climate. interest. Such a program will regain the support of the The unemployment figures amongst migrants who wider community and assure families in Australia that arrived since the beginning of last year are alarming. their relatives will be given equal opportunity to Amongst some groups the unemployment rate is as apply for migration without fear of favour. high as 70 per cent and the average of all groups is The Labor Government’s program, on the other hand, 35.4 per cent. has been neither fair nor in the national interest. It has The human, social and financial costs which arise as a been characterised by a series of “boom/bust” cycles consequence of such high rates of unemployment are which has left the Australian community questioning enormous and will damage community relations if the purpose and benefits of the program, and leaving allowed to persist for any length of time. many migrants to pay the price in terms of high unemployment, social dislocation and poverty. In a study on immigrant workers commissioned by the BIR, the authors concluded that during a time of All of the policies of the Liberal and National Parties economic contraction and rapid structural adjustment, are based upon respect for the value of each fewer training opportunities suggest that NESB individual. W e are totally committed to equal immigrants will be less able to adapt fast enough to treatment and equal opportunity for all Australians changes in enterprises and the economy. As regardless of race, colour, creed or country of origin economic restructuring continues in Australia, there is within the framework of a just and tolerant society. a strong likelihood that NESB immigrants will The Liberal and National Parties assert, without continue to contribute disproportionately to structural qualification, that it must be the role of the elected unemployment. government, acting on behalf of and with the support The Coalition has made it clear that we will not of the whole community, to make the final and compromise migrant entry criteria just to meet fixed absolute decisions on who will or will not be granted numerical targets. In the context of these proposed entry to Australia on a temporary or permanent basis. reforms, we have consistently and deliberately This means that any government must reserve the refrained from setting fixed targets for our first year in right from time to time to vary and alter policy, government. including adjustments to the size and composition of Against this background, the Liberal/National the immigration program in response to changing Government will: requirements. The immigration program □ Reduce immigration in the short term, recognising that during times of recession and Reforms to the immigration program itself, as budgetary constraints, our capacity to successfully proposed by the Coalition, will result in a significant settle large numbers of new migrants is reduction to the program. significantly reduced;
16 FEBRUARY 1993 /
□ Increase immigration in the longer term when resources are utilised effectively. economic indicators point to a stronger economy; The Coalition is committed to maintaining the full □ Not be constrained at the present time by range of settlement services for new migrants; consideration of optimum population issues in including the further development of the Ethnic the setting o f immigration planning levels; Schools Program, encouraging proficiency in English, □ Select people for immigration to Australia as supporting community-based schools, facilitating individuals, regardless of race, religion or country second language skills, ensuring that prompt of origin; recognition is given to overseas qualifications which equate with Australian standards, and working to give □ Assess the individual’s suitability as a migrant j migrant women, migrant families and aged migrants according to the contribution that person can more genuine equality of opportunity. make to the current and future needs of Australia; Unless public policy measures are targeted to human □ Focus Australia’s migrant intake by approving resources development and greater utilisation of migrants who have skills and qualifications most existing, but unrecognised qualifications, many appropriate to Australia’s labour market migrants will continue to have dim employment and requirements; income prospects in the emerging economy. □ Continue a responsible program of immediate It irresponsible and against the national interest not to family reunion and refugee settlement and make utilise fully the skills and talents of migrants in provision for people with the need for special Australia. This means better application of resources assistance; to language programs, including teaching English as a □ Restrict social security benefits to migrants who second language as well as translator and interpreter have been here for two years or less, with the services. exception of refugees and humanitarian claimants The Coalition has been very critical of changes to the and those people with whose countries we have Adult Migrant English Program, arguing instead for a reciprocal arrangements. There will be access to fundamental review of English language tuition. The support for those in exceptional changed Coalition’s approach would be to co-ordinate all circumstances; English language programs under one □ Constrain access of illegal entrants to welfare, Commonwealth authority and to utilise the AMEP health and legal benefits; model to achieve an efficient and effective service. □ Strengthen citizenship provisions and strongly Whilst cost recovery would be pursued by the encourage new residents to acquire Australian Coalition, it would not be at the expense of effecting citizenship; fundamental reform to ensure that English language □ Expect migrants to respect the institutions and tuition is available to all who have a need for it. principles which are basic to Australian society; The Coalition will continue to support Grant-in-Aid □ Continue to encourage respect for Australia’s schemes to community-based groups offering services cultural diversity; in welfare, education and family support, with □ place greater emphasis on the recognition of emphasis being given to those groups demonstrating skills and qualifications of settlers; greatest need and servicing the most recently arrived □ Ensure that migrant women, migrant families and settlers. aged migrants are given a greater equality of The use of general community based services which opportunity; and are responsive to the needs of all Australians, □ Maintain objection in principle to any amnesty for especially minority groups, is the most desirable form illegal entrants to ensure that the integrity of the of support to enable migrants to participate equitably. immigration program is maintained. A planned and monitored process for such services will be necessary for the objective to be achieved. Decisions about these changes to the immigration program have been influenced by the depth and Family reunion endurance of the present recession; the effects of We understand and acknowledge that family support industry restructuring which require increased skill is a significant factor in the ease of settlement. and language requirement; community concerns Immediate family members will continue to gain entry about high levels of unemployment; and the effect of as they have traditionally. Entry in the preferential the recession on the ability to provide effective family reunion category will therefore remain. settlement services. However, there has been significant documented Settlement program s abuse in the spouse and de-facto component of the During a period of declining revenue and increasing family reunion program and a Liberal/National party demands on the budgets of all levels of government, Government would introduce a number of measures it is crucial to ensure that Australia’s rich human to stem that abuse.
FEBRUARY 1993 17 The situation however with extended family — independent retirees to settle in Australia where they brothers, sisters, nieces, nephews and so on — has have sufficient means of self-support and a capacity always been different. to maintain such support. The usual health, character Concessional family entry needs to be properly tested and settlement testing will still be required. to allow entry of the better educated, more highly The refugee program qualified and experienced and hence more The Coalition has re-affirmed its commitment not to employable people. Evidence has shown that many reduce the refugee component of the program, but to entrants in this category have a low skills level and assess Australia’s response to refugee re-settlement little English language competency. Their domination against need in the context of our ability to assist. in the unemployment figures is testimony to the Government’s relaxation of tests for extended family Australia has an outstanding record in fulfilling its reunion applicants. international humanitarian commitments within the global community. The Coalition will incorporate entry criteria which has a clear labour market focus. The number of refugees and displaced persons around the world at the present time is staggering. Sponsorship of entrants in the Concessional Family War, famine, natural disaster, human rights abuses reunion category by Australian citizens will maintain and grinding poverty in many countries has resulted preference for younger entrants with additional in the mass movement of people not witnessed since benefits for those who have settled in remote and the post war period. regional areas. Australia’s response to such an unprecedented crisis, Skilled migration however, is limited by its economic capacity to The focus of Australia’s future is on economic provide assistance. viability, competitiveness and industrial adjustment. In the context of economic restraints, the thmst of our Our immigration program must also reflect this focus. global refugee program will be to offer the most The greater the proportion of economically effective and efficient form of aid and settlement. independent migrants who are young, educated, Australia has a range of options available to assist employable and entrepreneurial, the greater will be people or groups who are suffering hardship or facing our opportunity for expanding markets, investment persecution. These options include humanitarian and employment. assistance, development projects and support for The selection of migrants in these areas will mainly refugee settlement, in either second countries or depend on the migrant’s ability to make a Australia. contribution to our society shortly after their arrival. We will continue to offer settlement opportunities and The skills, business and professional standards of meet our responsibilities once a program is applicants for immigration will be equated with commenced. However, refugee settlement will form a Australian standards and Australia’s labour market flexible and separate program. requirements. Australia has been subject, in recent years, to an Employer Nomination sponsorships will be continued unprecedented number of on-shore asylum claims. but more stringently tested and include a requirement From an average of about 500 claims per year in the for a binding two-year contract for both employers early to mid eighties, the number has risen and employees. substantially. The current backlog numbers about Business migrants and investors seeking to gain 20,000, largely composed of claims from nationals of residency in Australia will have to demonstrate the the Peoples Republic of China who arrived here after benefits of their proposals to the economy and the the Tienanmen Square massacre in June 1989. These veracity of their financial arrangements. A Liberal/ people arrived through special “pipelining” provisions National Government will look at ways in which we which did not require the testing of bona-fides. can expand the scope of the migration program to Australia can expect to have to process approximately facilitate entry of independent investors without 5,000 asylum claims per year once the backlog has compromising the principles of our immigration cleared. It is cmcial, therefore, to ensure that we put policy. in place a refugee determination process which is Skilled immigration will coincide with the practical both fair and expeditious. employment and training programs for Australians outlined in our Youth Affairs Policy and our Immigration and population Employment and Training Policy. Immigration is not The Coalition believes that an expanded immigration an alternative to training Australians, particularly policy, in the context of a vital and expanding young Australians. economy, is necessary for Australia’s future. In this We will continue to provide opportunities for context, arguments about the impact of the
V, 18 FEBRUARY 1993 f
population on the environment need to be W e will also ensure that the processes of acquisition considered. and awarding of citizenship are strengthened to There has been an enormous amount of research and ensure that intending citizens understand more fully inquiry into the question of a population policy for the meaning of their commitment to Australia. Australia and the outcomes of this research indicates A National Citizenship Council will be convened to that the concept of an optimum population has not pursue this objective. been a useful tool for policy makers to date. The current requirement for basic competence in Most environmental “problems” point to past policy English will be extended to cover all applicants failures which can be removed by making appropriate except for aged people over 60. changes. In the absence of changes, costs will W e will also pursue policies to resolve dual accumulate even with zero immigration. citizenship problems, particularly in relation to the Available evidence thus suggests that, over the long current disadvantage experienced by Australian term, Australia can support higher levels of citizens who wish to accept the citizenship rights of population, with proper infrastructure, environmental another country. and resource planning. Illegal entrants Thus it seems there are no relevant arguments which require an optimum population target for Australia be Australia’s immigration program permits entry established at this time. through categories designed to meet the needs of the labour market, for refugee and humanitarian needs The Coalition accepts that any target is sufficiently and for the reunification of families. This is codified in high such that present and future levels of regulations and backed up by an enforcement regime. immigration do not need to be constrained by consideration of optimum population issues. The Migration Regulations set out criteria for entry in each of these programs which include health, Citizenship settlement and character checks, procedures for It is not the intention of a future Liberal/National qualifications assessment, English language capacity Government to force residents into accepting in some categories and so on. citizenship, but to encourage them to recognise that The presence of a large number of illegal entrants in there are both responsibilities and benefits attached to Australia at the present time makes a mockery of making that final commitment. those procedures and calls into question the The Coalition believes that the fundamental strengths sovereign right of the Government of the day to of our cultural diversity ought to be recognised and determine who shall and shall not enter Australia for preserved within an overarching framework of permanent settlement. common values. The program’s integrity will be restored by a Liberal/ In order to achieve this, the Coalition has proposed National party Government by closing off the incorporation of a statement which spells out opportunities for abuse. Access by prohibited non clearly the rights and obligations of citizenship during citizens to welfare, legal and health benefits will be the citizenship ceremony. constrained. Such a declaration could reaffirm an overriding and Conclusion unifying commitment to Australia; it could specify that the right to express one’s own culture and beliefs The Coalition’s reforms will restore integrity and involves a reciprocal responsibility to accept the right confidence in Australia’s immigration program while achieving reductions in the overall intake. A reduction of others to express their views and values. It could however, will not fix our economic problems. also signify respect and acceptance of the principles Fundamental structural reform is essential. The of non-discrimination on the basis of race, sex, colour, religion or national or ethnic origin. Coalition is firmly of the view that the comprehensive reform package contained in Fightback! will allow us A clear and unambiguous statement about the rights to build upon our multicultural strengths and permit, and obligations of citizenship in the context of a in the longer term, a larger immigration program culturally diverse society, will ensure that we can backed by adequate and appropriate settlement and build productively and fairly upon our unique education services, training and re-training heritage. programs. □ When compared with most countries, Australia’s current citizenship requirements are one of the least rigorous. It is therefore our intention to change the citizenship laws of Australia, and from that date, to require that migrants will be eligible for citizenship after four years residency.
FEBRUARY 1993 19 played a role in past Federal elections and both the Government and Opposition have supported such The federal issues in their own way, but to varying degrees. As the peak national organisation for ethnic communities, FECCA wishes to make it quite clear that it seeks a non-partisan approach to the very election and issues that it stands for. The Federation calls for a return to non-partisan support for multicultural and immigration issues. Ultimately, Australian’s of diverse cultural and ethnic Australia's backgrounds will consider these issues on their merits. National and international scenarios ethnic The national and international scenarios that confront Australia in 1993 are significantly different from those before us, even as recently as the March 1990 election. At the national level there are the serious communities issues of unemployment, the restructuring o f industry, balance of payment deficits, and micro-economic reform, among others to consider. At the international level, we are faced with By Victor increasingly complex economic and political Rebikoff, Chairperson scenarios. As new trading blocks are formed and of the Federation of discussions continue about tariff protection versus free trade, the internationalisation of the global Ethnic Communities' economy continues unabated, with a significant Councils of impact on Australia. The trend to significant global Australia Inc. population movements has increased, often in response to political instability and tensions and natural and environmental disasters. At the same time, he 1993 Federal Election comes at a most the manner in which Australia as an immigrant important time for Australia’s ethnic communities. T More importantly, they are not only members of destination nation, carries out its immigration ethnic communities, but they are Australians from program will be viewed with considerable interest, particularly by its neighbours in the Asian-Pacific area. diverse cultural and linguistic backgrounds who live in every State and Territory and in every Australian The proliferation of new independent States and the electorate. As such, the Federation of Ethnic continuation of unrest in many areas of the world has Communities’ Councils of Australia Inc. (FECCA) the led to a rather fragile global community, in which peak national organisation established in 1979, Australia must continue to play a part. Australia is represents the concerns and interests people of uniquely placed to play an international role, diverse cultural and ethnic backgrounds. The particularly in the area of developing, promoting and Federation, through its Constituent members, the implementing peaceful solutions to conflict situations. eight State and Territory Ethnic Communities’ So how will these national and international scenarios Councils (ECC) and in turn through their membership, impact on the 1993 Federal election? Clearly, the especially their member organisations, is a non-party former will take precedence. This, whilst fully political organisation, and acts to fulfil its role as an understandable is perhaps a little regrettable, since it effective advocate and policy analyst. This role doesn’t acknowledge the inextricability of the two. demands that it is forward looking and proactive in We will never again be able to fully delineate the the complex economic, social and political arenas of national and international dimensions of our the 1990s. economic, and to some extent social, well-being. The This article attempts to objectively highlight some of Federation is mindful, particularly in the area of both the mainstream and multicultural issues facing immigration, that whilst Australia alone as a sovereign those Australians of ethnic background in this most nation has the right to determine who shall be significant election. There are specific and generic permitted to reside here, international realities have a issues that face ethnic communities in this election - significant impact in this area. this article will attempt to spotlight them. So what are the key issues before ethnic communities Both immigration and multicultural issues have in this 1993 election? Basically they fit under two
Vi 20 FEBRUARY 1993 /
distinct but related headings, namely immigration and Opposition support the denial to newly arriving settlement. migrants o f the essential supports they need for Immigration successful settlement, at the very time when they are most needed. This is at the very heart of one of the FECCA and ethnic communities believe that Family major issues of concern to ethnic communities. Reunion and the Special Humanitarian programs are FECCA and the communities it represents believe that the cornerstone of a dynamic, equitable and just such an approach is both economically and socially immigration policy. The Federation is strongly unacceptable. It takes a short term, “political” view of committed to Family Reunion which provides the our immigration program — a view that does not most effective and lasting settlement policy, because it acknowledge the full and long-term economic and offers the immigrant an unequalled on-arrival support social impacts of the program. The overall impact of network, an essential step towards integration into a Australia’s post-war immigration program has been pluralistic Australian society. This is not merely a unequivocally positive. The immediate financial gains “feel-good” philosophy, but one that is backed up by made by the policy of denying newly-arrived migrants research into the family’s role in the settlement access to Social Security benefits are clearly offset by process, undertaken by the Bureau of Immigration the significant retardation of a migrant’s ability to fully Research. participate — economically and socially - in the Further, the Federation holds that Australia must Australian community. Immigration and multicultural acknowledge its international responsibilities with issues, must not be used as a “political football”, and respect to refugees and those seeking entry under the in a way that destabilises the integrity of the whole Special Humanitarian program. It is of significant immigration program, merely for perceived electoral concern to FECCA, that whilst the global numbers of gains. Whilst FECCA has long called for a non refugees and those who should be given special partisan approach to immigration and thus a “de- humanitarian consideration significantly increases, the politicising” of the issue, it notes with significant 1992-1993 Immigration Program will see a decline in regret that this particular policy of denying access to the total number of refugees accepted by Australia. Social Security benefits has the support of both the FECCA has always held that Australia’s Immigration Government and Coalition. Policy should be based on the principle of non FECCA, for a number of years, has advocated that discrimination on the grounds of race, nationality, Australia adopt a more long-term approach to ethnic origin, religion, language, gender, disability, immigration - to be aware of the long-term dimension chronological age and socio-economic background. of any immigration program. To this end, we have Thankfully, this principle is endorsed by all major called for a five year immigration plan. Such an political parties. approach has already been undertaken by Canada. However, there are more subtle ways by which the This approach would serve to depoliticise program can be discriminatory. The 1992-1993 immigration issues in Australia and would hopefully program has seen an increasing importance being negate the tendency for “knee-jerk” reactions. These placed on English language proficiency in the reactions often have little or no impact on the issues Concessional Family and Independent categories, they are trying to address, such as unemployment, but even though it is acknowledged that this does not serve merely to assuage those members of the public apply to the Preferential Family category. The Federal desperate for “some action”. At the same time, Opposition has made similar demands on several frequent shifts in policy, only serve to confuse and occasions. This policy makes it more difficult for disadvantage intending migrants, creating an those coming from countries where English is not the administrative labyrinth, that is almost impossible to national language, to enter Australia and FECCA is negotiate. particularly concerned about this as it applies to the The annual re-examination of the immigration intake Concessional Family category. is not useful, as findings from the Bureau of Further, the introduction of bonds and a non- Immigration Research and other research, has shown refundable Medicare levy on Assurance of Support that immigration has a benign effect on the economy. applicants means that only those of considerable For a range of the most common economic indicators, wealth will be able to cope with these significant the effects o f immigration are neutral or at most financial burdens. In addition, the 1992-1993 Federal slightly positive. Varying immigration intake is not a Budget announced that newly arrived migrants, suitable policy for Government’s to use in trying to excluding refugees, would be denied access to Social influence the general economy. Annual reviews tend Security benefits for the first six months after arrival in to re-open an essentially emotional debate and are Australia. It is the Coalition’s policy that this period be counter-productive to purposeful forward planning of two years. settlement infrastructures. It is most regrettable that both the Government and FECCA does not enter the immigration numbers
FEBRUARY 1993 21 debate, but does however, stress the quality of migration, in particular the family reunion, refugee and special humanitarian categories. The Federation, whilst noting the slight increase in the Preferential Family category, is concerned at the substantial cuts made to the Concessional Family in the 1992-1993 immigration program and the Coalition’s calls for further cuts. The Democrats has expressed the view that Australia needs to do more to respond to the need to accept refugees beyond the current figure of
11, 000 . Settlement The second major area o f concern to ethnic communities as they face the 1993 Federal election is that of settlement. FECCA does not believe that the issue of settlement can be adequately defined within a finite period of time, be this 12 months, three years or five years. FECCA believes that “settlement” must be viewed as a life-long process - the fact that an individual was born overseas, in a non-English speaking country and has chosen to emigrate to Australia, will have an impact on every stage of their life, up to and including the particular needs they will have as they become senior citizens. One’s ethnic others. What remains a major concern for FECCA is origins, language, culture, customs are not left behind that multicultural issues are not seen as secondary or in a neat little package - they remain with the migrant peripheral issues. Some 25 per cent of Australians as they strive to build a new life for themselves. were born overseas. This must have a significant The objective of Australia’s immigration program must impact on the delivery of services. “Mainstream” be to allow immigrants to fully contribute to their new service delivery must take this reality into account. country, as they have done in the past, to the Access and equity initiatives including the provision advantage of Australia as a whole and to them as of ethno-specific programs must not be the first ones individuals. The outcome of a sound immigration axed when times of economic hardship develop. Such program comes down both to quantity and quality: initiatives must be seen as integral to the whole the number of those who stay and those who question of service delivery as long as Australia successfully settle here. A qualitatively acceptable maintains a dynamic and non-discriminatory immigration program is largely the result of immigration program. appropriate settlement services. Both the community Access and equity is about ensuring equitable access and media often overlook the numbers who emigrate to services for all Australians. Such a policy does from Australia each year. involve resource allocation - it does (or should) At the broad level, all major political parties have involve a re-examination of Budget expenditure, to endorsed the National Agenda for a Multicultural guarantee that all Australians have equitable access to Australia and the policy of multiculturalism in 1989. and an equitable share of the resources, which FECCA calls on these parties to reiterate this support governments manage on behalf of the community. It during the 1993 election campaign. The challenge is at this point that principle becomes practice. before all political parties, FECCA, and the wider Because of this vital link between budget allocation community is to make the very sound principles of and implementation o f access and equity, FECCA the Agenda, a reality fo r all Australians. W e have views with disquiet some of the Government’s moves moved beyond the development of sound statements under what has been dubbed the “new federalism” to the essential implementation stage. The fine words and the Coalition’s proposal to cut the size of are fairly hollow without the systematic inclusion of Government by $4 billion, of which $0.75 billion will these principles into practice and the provision of be a loss to the States and Territories. funds in the Federal Budget. It is difficult to be certain of the impact of either of Significant steps have been taken in attempting to these policies on ethnic communities in particular, but make Government services accessible to all a degree of caution is necessary with both. This is Australians, through the policy of Access and Equity , particularly true if the dominant thought is to see regardless of their background. As research by FECCA multicultural policies as tangential or secondary ones and the Office o f Multicultural Affairs has shown, - the first to be dispensed with when Budget cuts some Departments have been more successful than need to be made.
22 FEBRUARY 1993 f
FECCA has long held the view that the Common service being unable to access it, or the service not wealth has the overriding responsibility for social being provided at all, since the “critical mass” needed justice - it must guarantee that the level of for a “profitable” service is not available. Both government service a person receives does not scenarios would disadvantage some members of depend on where they reside. It is up to the ethnic communities. Commonwealth to ensure that comparable standards The user pays and privatisation issues are significant exist across the nation. The Commonwealth has in areas that are vital to ethnic communities. These developed a clear Social Justice Strategy because of include English language training and the provision of the importance of these issues within the whole interpreters. The introduction of such approaches Australian community. FECCA believes that the often contradict Access and Equity principles. FECCA Commonwealth’s record in this area is a more sees English language training as an essential convincing one than that of the States and Territories. component of successful settlement for all migrants, Thus FECCA holds that it is vital that access and regardless of their length of stay in Australia. The equity issues be included in the written agreements tendency to focus such training on those actively which cover the handing over of funds from the seeking employment is a short sighted one. FECCA Commonwealth to the States and Territories. The tied- believes that the provision of accessible English grant mechanism is an acknowledgement of the language training is the cornerstone of an appropriate national nature of many of these priorities. Such settlement program. Such training is an investment grants must be backed up by clear accountability both for the individual and the Australian community mechanisms — the States and Territories must be able as a whole. It is a vital step in achieving the ultimate to show that funds were spent in a manner that goal of our immigration policy - the maximising of a clearly reflects access and equity principles. The migrant’s ability to fully participate in and contribute increased devolution of service delivery from the to Australia’s development. Commonwealth to the States and Territories is an Finally, the issue o f SBS is one that ethnic issue that may not inherently disadvantage ethnic communities hold dear. The Government and the communities, but must be viewed with some caution. Coalition have both acknowledged the important role The Coalition’s proposal to cut gross expenditure by of SBS in multicultural Australia. Both the $9.4 billion, and net expenditure by $4 billion, by Government and Coalition support the extension 1995-96 must be examined by ethnic communities. nationwide of the first frequency of SBS radio. The major expenditure cuts will be in the areas of Further, the Government proposes to provide a Social Security, public housing, employment and second SBS radio frequency for Sydney and training programs, infrastructure and the allocation to Melbourne. The Coalition has given its in principle States and Territories. support for this development. However, the question As with the wider community, these cuts will of increased funding for ethnic public broadcasting differentially affect members of ethnic communities. remains unresolved. The cuts to the States and Territories will partly be Conclusion offset, according to the Coalition, by some Thus the issues in this 1993 election that face all compensation measures. It is clear however, that the Australians, including those of diverse cultural and States and Territories will receive less funding and ethnic background, are complex and have both one must question the impact of this on the delivery national and international dimensions. FECCA urges of services. all parties to adopt a non-partisan approach to Cuts to Social Security and employment and training multicultural and immigration issues - making issues programs, particularly in a time of high unemploy such as immigration a way of scoring cheap political ment, is of concern to ethnic communities, despite points will bring our community no long-term benefit assurances that those in genuine need will be and only serve to create disunity. At the same time, assisted. Similarly, cuts to public housing will have an such a non-partisan approach must be founded on impact on persons of low income, some of whom will fair and just principles, that acknowledge both be of ethnic background. national and international responsibilities. Similarly, Another related issue is that of the increased adoption all government policies must be developed within a of the “user pays” principle and the move to privatise framework that is based on social justice principles various Government services. The former has been and a full understanding of the reality of Australia’s evidenced for example, in the 1992-1993 Budget, with multicultural population in the 1990s. the introduction of fees for English language training Ultimately, FECCA firmly believes that Australia’s except for a small number of migrants . The Coalition multicultural population, which comprises more than for its part, believes that the users o f many services one third of the electorate, will judge on their merits, supplied by government would benefit considerably both the generic issues affecting them and the specific if these services were delivered by the private sector. ones of immigration and multicultural issues, in this Such an approach can result in persons in need of the election.®
FEBRUARY 1993 23 Election 93: Perspectives for immigration and multiculturalism
internationally? In short, does the ALP or the Coalition seem more capable of creating and maintaining the society we want, and if neither does, what are the alternatives? By Professor But even if immigration is not a main issue in this Stephen Castles, election, many people do have a strong interest in Director, Centre for immigration policy and multiculturalism - not only Multicultural because these affect them and their families directly, but also because they are factors which play a major Studies, University role in shaping our society. What do the declarations of Wollongong of the parties and the experience of recent years tell about the likely policies of the period ahead? lections in liberal democracies rarely bring A superficial look at party statements might lead one fundamental change, but 13 March could be to suppose that there is a high degree of consensus E crucial for Australia. An ALP government, which on immigration and multiculturalism. All parties has managed a period of rapid economic and geo describe immigration as a major aspect of Australian political change while trying to maintain at least a nation-building, and re-affirm that Australia is a basic social safety net, is being challenged by a multicultural society. One of the more surprising Coalition determined to introduce radical free-market expressions of this view came in National Party leader solutions and reduce the role of the state. The ALP Tim Fisher’s address to the National Immigration has not been notably successful in dealing with the Outlook Conference in Sydney last November. Fisher recession, and shows the fatigue of 10 years in office. described multiculturalism as one of Australia’s main Nonetheless, Hawke and Keating have presided over assets, and argued that immigration was a major factor a modernisation of the state and the economy, and an in economic growth, particularly through its opening to the Asia-Pacific region, which could put contribution to the small business sector. This is a far Australia in good shape to revive when the world cry from the insularity once associated with the party recession ends. that seeks to represent Australia’s rural sector. Hewson, by contrast, seems determined to apply the No party advocates a complete stop to immigration, bitter medicine first prescribed by Thatcher and nor removal of the right to family reunion for spouses, Reagan in the 1980s. Radical neo-liberalism has children and dependent parents (the “preferential undermined Britain’s economic and social fabric, and family” category). Nor does any party advocate the made it the sick country o f Western Europe. In the abandonment of programs designed to facilitate USA, de-industrialisation, riots and homelessness migrant settlement and to secure full participation of have led to despair and the desire for change - as migrants in society. Nonetheless, closer examination witnessed by the election of Bill Clinton. In both of policy statements and past actions shows that there countries, ethnic minorities have borne much of the are significant differences. brunt of the hardship and social conflict unleashed by the short-sighted fetishism of market forces. Immigration intakes As I pointed out in Migration Action in March 1990 The Australian Democrats are the only parliamentary before the last election, the main election issues for party intrinsically opposed to further immigration. migrants are the same ones as affect other Australians: They consider Australia’s population to be already too will they be better off under the economic and social large for ecological sustainability - an assertion which policies of the ALP or the Coalition? Which party shows remarkable ignorance of international realities seems better able to manage our environment? Which — and call for measures to limit both natural growth can best develop our cultural and social resources? and immigration. They want to stop skilled Who seems most able to represent Australia immigration and drastically cut concessional family
4i 24 FEBRUARY 1993 /
on the other it has feared loss of Anglo working-class support. The result has been diatribes against queue- jumpers and rorters on the part o f Minister Gerry Hand - emotive speeches likely to stir up racist feelings. Essentially though, the ALP philosophy has changed little: general support for continuing immigration with a balance between the three main categories: family, skill and humanitarian. There is little doubt that immigration targets will increase again, once the recession is over, and demand for skills in short supply in Australia increases. The ALP’s immigration record conforms with the patterns of the last 45 years: immigration has fluctuated in accordance with economic conditions, although with a time-lag: it has always been reduced a little bit too late to have counter-cyclical effects when unemployment was growing, and it has been cranked up again a little too late to avoid sectoral labour shortages when the economy got moving. No government has been very good at predicting labour needs, and shaping skilled migration accordingly. The Coalition’s immigration policies are similar in most ways to those of the ALP, although Mr Hewson and Mr Ruddock are at pains to portray them as different. They have attempted to cash in on anti immigration feelings by saying that a Coalition entries (brothers and sisters, aunts and uncles, non Government would severely curtail intakes, but have dependent parents). The refugee and humanitarian refused to name exact figures. The impression given category, on the other hand would be maintained and by various statements is that they would aim at net even expanded, while preferential family reunion immigration of around 50,000, which is not much less would also continue. Since 20,000 to 30,000 people than current levels. At the same time, the Coalition leave Australia permanently each year, the Democrats’ maintains its traditional stance of favouring high suggested gross annual intake of around 50,000 immigration in the long run, due to perceived benefits would mean very low net immigration. for economic growth. This matches the views of many Australian employers, who regard immigration as After the 1988 Report of the Committee to Advise on desirable, because it keeps the labour market flexible. Australia’s Immigration Policies (CAAIP), annual intakes were raised to around 140,000, and efforts The Coalition claims that the high unemployment were made to increase the proportions of skilled and rates of recently arrived immigrants are mainly due to business migrants. However, the Government has the entry o f low-skilled people through the gradually cut back entries during the recession. The concessional family category. They want to tighten up actual intake declined to 110,900 in 1991-92 and the entry criteria by linking admission to possession of planned intake for 1992-93 to 80 000. The largest skills in demand and English-language proficiency. relative declines were in the skill category (down The Coalition also wants to reduce concessional from 52,700 in 1989-90 to 23,800 in 1992-93) and family admissions - although there is in fact little left concessional family (down from 22,600 to just 6000). to cut. Ethnic communities have always feared that There has been some resistance to this from Labor too much emphasis on English language would lead MPs like Andrew Theophanous, who are sensitive to to discrimination against certain ethnic groups, and the wishes of ethnic communities, but the anti have called instead for better provision of English immigration lobby has prevailed in the recession. courses in Australia - an important issue in view of Preferential family immigration (39,000 in 1992-93) recent changes to the Adult Migrant Education Service and refugee and humanitarian entries (currently (see below). 12,000) have changed little (figures from DILGEA Refugees and overstayers Annual Report 1991-92). All highly-developed countries have been confronted At a time of popular belief that new immigrants take by a new problem in recent years: how to deal with jobs away from Australians, the ALP has found itself in “unwanted migration”. This term includes the masses a dilemma: on the one hand it has wanted to maintain o f asylum-seekers arriving in Western Europe and the its strength in constituencies with strong ethnic votes; “boat-people” from Haiti who are being turned back
FEBRUARY 1993 25 0
by the US Coastguard. It also embraces illegal migrant better, for the measures it proposes are very similar to workers: Poles in Germany, North Africans in Italy, those being introduced by DILGEA. The truth is that Filipinos and Bangladeshis in Japan, Mexicans in the there are no easy answers. Australia is still better off USA and so on. than most countries, firstly for geographical reasons, Australia has hardly had to face up to this problem in secondly because unlike most European countries we the past: geographical isolation has made our borders do have a coherent immigration policy and a easy to control. But the improvements in transport are reasonably efficient administrative apparatus. This changing this. “Jet-age asylum-seekers” arrive on area is too sensitive for facile polemics - the need is tourist visas and then apply for refugee status. for a long-term, considered bipartisan approach, Determination of refugee status procedures have which reconciles Australian interests, human rights been revamped in recent years, but they have still to requirements and international obligations. cope with a backlog of over 20,000 cases (mainly Settlement services and Chinese students allowed to stay after the Tienmen Square massacre in 1989). Illegal immigrants in welfare entitlements Australia are generally “overstayers” - people who Since 1947, successive governments have developed a enter legally as visitors, but then stay on, often range of services to facilitate settlement: initial seeking work. There were thought to be 81,500 in accommodation, English-language courses, April 1992. Internationalisation of labour markets also interpreter and translator services, advice centres and leads to increasing temporary labour migration - both immediate access to welfare benefits. Many people to and from Australia. Here too there is a slippage would argue that this interventionist approach has between temporary and permanent categories. been an important factor in the success of our These issues received considerable attention — for the immigration program. Both the major parties are now first time - at last year’s Outlook Conference. But determined to slash settlement services. For the ALP, policy responses are still confused. There have been the main reason is economic pressure to cut polemics against the small numbers of boat-people government spending, while for the Coalition the who have arrived from China and Cambodia, but little ideology of privatisation also plays a part. Only the public discussion of the main issues. DILGEA has Democrats call for maintenance of settlement services taken steps to tighten up procedures for asylum- and for improvements in child care to facilitate seekers, introducing restrictions on rights of appeal migrant women’s participation. The cuts apply at the and long periods of detention - regarded by many as state level too: the Ethnic Affairs Commissions have infringements of human rights. The courts have yet to been scaled down or amalgamated with other decide on these matters, but Australia runs the risk of agencies in most states, leading to major losses in departing from civil liberties guarantees maintained facilities and services for migrants. even by countries like Germany, which has to face a At the federal level, the privatisation of initial far more serious crisis. The Government has also accommodation through replacement of hostels with taken steps to make things harder for overstayers, by rented flats has led to isolation for many new appointing more investigation officers, and by using migrants, and has removed an important first link in CES and DSS databases to find illegal workers. the establishment of social networks. User-pays There is little difference between the major parties principles for language services have made both here. The Coalition castigates the Government for migrants and institutional clients reluctant to call on failing to deal adequately with asylum-seekers and interpreters, leading to the revival of the old custom overstayers, but it has yet to show how it would do of using relatives, friends or by-standers. Janet
26 FEBRUARY 1993 /
Chang’s paper at the Outlook Conference showed This is not conducive to social justice nor to good that even the NSW police had insufficient funds to use community relations. interpreters as much as necessary! Substantial fees Citizenship and multiculturalism have been introduced for many AMES clients, deterring some from participation in English courses. A crucial component of Australia’s multicultural The increasing emphasis on English for employment model is easy access to citizenship. Naturalisation is has made it even harder for older migrants and possible after only two years’ residence - less than in women to take courses. All this flies in the face of any other immigration country. After the CAAIP research findings on the importance of English for Review in 1988, concern was expressed that only social and economic integration. The government about 60 per cent o f eligible people had taken up may save some dollars now, but the future social citizenship (the rate was especially low for people costs are inestimable. from Britain and New Zealand) and a “Year of Citizenship” was proclaimed. Citizenship is important The Coalition claims that it will maintain settlement because it helps develop a commitment to Australia, services and reform English-teaching arrangements, and because it integrates settlers into the political but it has been vague on details. The past record of system, giving them legitimate channels to seek Coalition governments and the current emphasis on remedies to grievances. cost-cutting and privatisation leaves little room for optimism. Social justice and combating disadvantage The changes proposed in Mr Hewson’s speech to the are not part of the neo-liberal ideology. The pressure Outlook Conference are therefore disturbing. He said to cut settlement services, to strengthen user-pays that the Coalition would extend the residency principles or to farm out services to the private sector requirement for citizenship to four years, and called will be severe. Could there be a return to the ethnic for citizenship classes which would focus on “the key patronage of the Fraser-Georgiou era? The current facts in Australia’s history, the symbolism and Coalition leadership is market-oriented rather than relevance of our flag, the words of the National community oriented, and seems to have far less Anthem, and the rights and obligations of an contacts with ethnic group leaders than its Australian citizen.” This would be followed by a predecessors in the 1970s, so it is doubtful. “declaration to respect fundamental institutions and principles of Australian society” at citizenship Ethnic communities have, for many years, been ceremonies. concerned with the difficulties o f gaining recognition for overseas qualifications. The Federal Government Hewson’s ideas on citizenship education seem to has attempted significant reforms in recent years, as focus on ideological symbols, rather than on the have several state governments. In terms of actual political understanding needed for active and critical performance, there are severe problems. The shift participation. The real danger is that raising the from a Council on Overseas Professional qualification period and linking it to successful Qualifications in DILGEA to a National Office of completion of a course (how would this be assessed?) Overseas Skills Recognition in DEET has not led to would turn citizenship into a privilege which could be the rapid change that many people hoped for. Most withheld by the state, rather than a right for all disturbingly, the government has caved in to the permanent residents of the country. The experience pressure of powerful professional groups, accepting o f some European immigration countries shows restrictive measures like the discriminatory quota where this can lead: denial o f citizenship or linking it system for doctors. The Coalition is not likely to do to cultural assimilation has created an underclass o f any better than the ALP in this area. marginalised non-citizens, causing considerable potential for conflict. The Australian model of A central issue for new immigrants is access to encouraging migrants to become citizens as quickly general welfare benefits, such as the dole and health as possible has stood the test of time, and should be care. The need for support is greatest immediately on retained. arrival, before the newcomers can find work or build social and family networks. It is, therefore, very Citizenship is only one aspect of our model for disturbing the Federal Government has recently managing ethnic diversity. A wide range of restricted access to welfare for migrants who have multicultural institutions, policies and services have been here less than six months. As for the Coalition, developed over the last 20 years. Since the National they plan to deny benefits to newcomers for the first Agenda for a Multicultural Australia in 1989, there two years - except for refugees and people from have been important developments: the strengthening countries with which Australia has reciprocal social o f Access and Equity Policies, the move towards anti security arrangements. The difference between the racist legislation in the wake of the National Inquiry two parties is not one of principle but merely of into Racist Violence, the Community Relations degree: both impose hardships on new immigrants at Strategy and the increasing emphasis on the time when they are most vulnerable, which could multiculturalism as an economic resource. The ALP force them into exploitative informal sector work. has a good record in supporting innovative measures
FEBRUARY 1993 27 0
in this area - as long as they fit into its corporatist But the real crunch would be in the multicultural approach to government and don’t cost too much. policy area. The Fraser Government from 1975-82 did Policies towards Aboriginal people - the most see the need to work with ethnic communities. problematic area of government in Australia - have Hewson, by contrast, looks like a throwback to the shown some improvement with the establishment of Anglocentric assimilationist thinking of the 1960s. the Aboriginal and Torres Strait Islander Commission Australian multiculturalism might not survive a and the implementation of some of the Coalition Government. recommendations of the Royal Commission on Here too the experience of Britain under Thatcher is Aboriginal Deaths in Custody. instructive: the Conservative Government was A Coalition Government might mean a major setback. strongly opposed to social welfare and race relations In Perth last July Mr Hewson said that multiculturalism measures. Drastic economic and social cuts led to was “absolutely a fundamental mistake in this racist violence and riots, so that after a few years, Mrs country”. At the Outlook Conference he was a bit Thatcher was forced to reinstate many of the more circumspect, saying that the “Coalition parties programs she was ideologically opposed to. However remain firmly committed to a multicultural Australia”. the damage was done: Britain became not only an But he went on to make it clear that he would only industrial wasteland, but also a far more violent maintain settlement services, while jettisoning existing society. Hewson looks like doing something similar. multicultural policies, which he saw as “the politics of Even if the Coalition were to come back to division”. It is likely that a Coalition Government multicultural policies after a while, incalculable harm would abolish or severely cut the Office of would be done to what is now seen worldwide as a Multicultural Affairs. It is not clear what would successful model for migrant settlement and happen to the Human Rights and Equal Opportunities managing ethnic diversity. ■ Commission. It is certainly hard to believe that the anti-racist policies which have just begun to emerge would get much mileage under a Coalition Government. Conclusion So this election does matter. The ALP Government has been a mixed blessing for migrants and ethnic communities. Its policy on immigration and on settlement services has sometimes been short-sighted. Polemics against asylum-seekers and cuts in services have caused hardship, and perhaps exacerbated anti immigrant feelings in some quarters. But the overall record is not bad. Above all, the recognition of our changing geopolitical position, the willingness to embrace cultural diversity and the introduction of access and equity policies and community relations measures are all worth supporting. A Coalition Government would not change immigration policies drastically, though there would be more stress on economic criteria and less on social considerations. A witchhunt against asylum-seekers and overstayers seems possible, which could exacerbate racism against other minority groups. In the area of settlement services, the new-right ideology of market forces and privatisation is likely to lead to substantial cuts - going far beyond those already enacted by the ALP. The losers would be the most vulnerable groups: recent arrivals, migrant women, the elderly, and people with poor English and lacking occupational qualifications.
4 28 FEBRUARY 1993 /
Four priorities for a new government
By Bishop Michael B Challen; Executive the costs of people being out of work - our advice is Director, Brotherhood of St Laurence that the direct cost to governments alone is of the order of $18 billion. So the issue is not “can we afford n this election, immigrant communities and to provide jobs?” but: “can we afford not to?” supporters of multiculturalism will be looking not Ijust at the “ethnic affairs” platforms of the parties Equally, full employment means action to reduce the competing for their vote, but at the bigger picture - time out of work. Programs to actively assist retraining whether either can end the human suffering arriving and improve access to jobs for long-term unemployed from our economic malaise. are essential. Recent immigrants and people of non-English- The ALP, despite its commendable early focus on speaking background face such hardship more than direct job creation, skirted around the issue of full most in Australia today. The experience of such employment. A strongly resurgent economy, driven disadvantage, passed on to the Brotherhood of St by overseas growth and a record rural turnaround, Laurence through its services and through its delivered lots of jobs over the mid-1980s - though, as research, forms the heart of our observations on the it turns out, many were part-time and attracted new plans the parties have revealed. entrants to the workforce rather than providing an outlet from the pool of unemployed. The Coalition, to its credit, has documented its policies and some of the consequences in new depth. Ten years on, facing even higher levels of joblessness, At the time of writing, the ALP’s intentions can only Australia cannot afford to repeat the mistake of be judged on its past actions and some individual assuming that a cyclical upswing alone will solve the initiatives. The policies of the Democrats are focused problem. on the long-term - both an asset and a liability. On this judgement, the ALP’s approach (to the time of Political promises should be judged against what writing) is unacceptably cautious. One Nation, for needs to be done. To this end, the Brotherhood of St example, provided very modest increases in Laurence advances four priorities for Australia’s spending; some could not be implemented quickly Federal Government over 1993-96. In our view, any enough to boost demand. Subsequent training party not willing to assert these is unlikely to do initiatives and moves to redirect spending built on this anything within in its term to substantially protect or inadequate base, but the government sees such improve the position of the now millions of measures as needed only for the next couple of years, Australians who face a bleak future. ignoring the persistence of long-term unemployment. 1. The new government must The Democrats’ policy, by contrast, is forward- adopt a commitment to full looking and recognises the need for a comprehensive employment strategy. Although lacking detail, the employment as a central policy thrust policy is more sympathetic to direct government Despite all the talk, neither major party seems willing intervention at a time when such an approach is out to commit itself to full employment as a focus of its of favour. administration - that is, to aim for a situation where The Coalition, for its part, claims “price stability and anyone who wants work can find it. full employment as the key objectives of our policies”. The Brotherhood in no way underestimates the But its Fightback! proposals, despite the detail, lack magnitude of this task. Nor do we see employment as any convincing explanation of how the jobs will the sole way that individuals should gain economic evolve. reward or social standing. But without such an aim, The centrepiece of the documents, the GST, has at and the political will, unemployment rates - and best a minor role in job creation. (The Coalition points particularly the numbers of long-term unemployed - to some export benefits and incentive effects, but will stay high, and we can look forward to even many commentators would dispute or discount higher rates in any future economic downswing. these.) Rather, the Coalition’s belief that jobs will flow Any full employment strategy should take seriously upon their election is based on the combination of:
FEBRUARY 1993 29 □ An immediate $4 billion stimulus to demand and For the Coalition, the intended disciplines are those of investment provided by diverting revenue from tight fiscal and monetary settings and the asset sales to spending, investment incentives and decentralised labour market. The ALP will make a Rebuild Australia Fund; efforts to manage overall wage levels more directly, □ Major cutbacks in government expenditure, later though exactly how is uncertain. passed on as reduced taxes; The Accord between government and union □ Changes to superannuation, distributionally movement has been an instrument of constraint. The sensible, and the distant prospect of tax relief to 1980s were, after the illusory “resources boom” encourage households to save; incited a far more real wages boom and fuelled the 1981-82 recession, a decade of real growth coupled □ Efficiencies from transferring economic activity with a shift in the share of national income from from the public to private sectors (privatisation, wages to capital. Unfortunately for us all, additional health insurance); profits were diverted to non-productive asset □ “Deregulated” industrial relations to dramatically acquisition, financed also by overseas borrowings, for improve labour productivity; and which our trading enterprises continue to pay. □ Implicitly, lower wages for people in less The sheer size of future corporate debt servicing - $30 unionised, less profitable sectors to open up new to $40 billion each year, twice that of government - job opportunities. suggests that owners (seeking dividends) and workers Some of these are going much faster and further (seeking wages) will be in sharp competition over the down paths explored by the ALP, although major years to come. Both sides of politics share the hope, differences certainly exist. The important issue is: will of course, that the competition can be minimised these policies deliver? We foresee three possible through growth, so that investment funds come from problem areas. increased profits rather than from wage cuts. But First, labour “deregulation” may simply lead to lower many Australians would be less sanguine: it seems effective wages in many sectors with little job creation unlikely that the cake will grow fast enough for all to or productivity improvement (productivity have larger slices. improvements require cooperation as much as wage Wages collectively may well be constrained. But incentives). The most likely outcome of the fairness requires that the burden must be shared deregulated wages regime is a further polarisation in equitably. Executive or professional incomes lacking occupations between high profit-high pay and low effective competitive restraints should be capped or at profit-low pay sectors. least taxed heavily. Incomes at the bottom of the Second, to introduce labour market deregulation scale, particularly those near the poverty line, must be when investor confidence is so fragile may mean that where possible improved. the fear of turmoil or a wage breakout is sufficient in The ALP can rightly point to reductions in poverty, itself to deter investment. and gains in real disposable income for the least well- Third, the likely outcome (particularly when the off, when real wage rates were declining or stable. delayed income tax cuts are implemented) is a Assistance to families was increased and social redistribution to the better-off. This could easily security payments improved. Allowing for the effect trickle out rather than trickle down, exacerbating of Australia’s increased average affluence, the reforms imports rather than funding investment. Come any reduced the numbers of children in poverty by about upturn, wage rises in the higher-profit sectors, fuelled one-third, and raised the living standards of many by tax breaks for higher income earners, could cause more families. a rerun of the catastrophic 1986-91 demand boom and That said, the other clear winners have been the well bust. off, who benefited both from lower marginal tax rates The risks of this strategy failing to produce a sustained and from rebates to shareholders for corporate tax recovery are real, w e fear, and it is low income paid by their companies. These transfers to the people who will bear the brunt of any failure. wealthy amounted to more than the increased spending on family payments. 2. The new government must ensure If the ALP’s proposed One Nation tax cuts proceed, that the burden of continuing restraint, the better off will again win. Taxpayers earning over whether im posed by governm ent o r $45,000 will be $750 pa ahead, allowing for the effects externally, is shared equitably of inflation and “bracket creep” while those below average earnings will all be $100 pa or so worse off. There is no doubt that, beyond the recession, The Coalition, for its part, showed in Fightback! that it consumption and living standards will be constrained had something other than an invisible hand up its by the economy’s ability to expand exports and sleeve when it came to the matter of who gets what. service debt. Massive income tax cuts were planned to complement
30 FEBRUARY 1993 / 0 SI the GST. As they stood, the richest tax payers would □ $400m through tightening of income and assets have been getting over $7000 pa each - equivalent to tests, in particular extending the waiting time to about a real 15 per cent pay increase. ensure that the savings and any lump sum These cuts are to be deferred for at least three years payments taken by the newly unemployed are under the revised tax package in Fightback! Fairness exhausted, and through widening the definition and Jobs, which now (ignoring for the moment the of income in assessing Family Payment. spending cuts which fund them) are more equitable □ $250m through excluding recent immigrants, than those of One Nation. Low income households other than refugees or others given humanitarian are now more adequately compensated for the GST; entry, from social security benefits for their first high income earners are not to get the gratuitous two years in the country. handouts. □ $199m through excluding most partners of On balance, the revised Coalition proposals - the disabled pensioners from support. combination o f a GST exempting food, compensating □ $187m by making unemployed people wait for (and accelerated) social security transfers, income tax three weeks for Job Search Allowance (formerly cuts - will make some low income households better unemployment benefit). off, while for others the situation will worsen slightly. □ $127m through tighter medical tests for the One of the best elements is the increased family Disability Pensioners. payment, although the increase is not targeted at the lowest income groups. □ $115m by ending entitlement to a Supporting Parent Pension when the youngest child turns 12. Low income Australians will be significantly and adversely affected, however, by the Coalition’s □ $53m pa through a longer waiting period for planned spending cuts, detailed below, and these will Sickness Benefit plus tighter medical testing. offset any benefits of the tax and compensation While the Coalition has, on the grounds of fairness, package. abandoned its proposal to limit the Job Start Fairness cannot be confined to the design of Allowance (JSA) to nine months, its remaining government transfers to offset the adverse distribution spending cuts still reflect a belief that fraud and of market incomes. There must be a degree of inefficiencies abound - an assertion open to dispute. protection of the weakest within the industrial Proposed savings in education rely on reducing relations and wages system - and some ability to Ausstudy overpayments, for example; Treasury found restrain the demands of the most powerful. The the possible savings to only be half those claimed. deregulatory spirit, manifest most in the Coalition’s Similarly their calculations suggested that the JSA plans, is likely to produce a marked shift in wage change would have netted only $209m instead of the relativities and, we fear, a worse outcome for those in $745m sought by the Coalition. low-paid jobs. Massive cuts to public housing will hit low income 3. The new governm ent must affirm its households almost exclusively. The Coalition plans to stop funding the purchase or construction of public responsibility for protecting and housing, instead using a portion o f this money for enhancing the lives of all its citizens expanded rental subsidies. Some o f the $400m saved The Brotherhood believes that effective use must be would go into a First Home Buyers Scheme, a lower made of public funds for the public good. While we priority in social terms and unlikely to be effective in remain critical o f many spending decisions of the ALP broadening home ownership. in government, we are particularly concerned over While not large in budgetary terms, the cuts to Coalition plans to cut expenditure. Their whole Aboriginal programs are twice as deep as those to the Fightback! package depends on large savings being budget as a whole: $90m out of total outlays of $1 made - over $5 billion, leaving aside changes to billion. Medicare and the tax system - and we fear, based on Many other spending cuts - the $1 billion in various the detail provided, that they will be achieved in the departmental efficiencies, contracting out etc - have end less from “painless” efficiency savings than from been criticised as overstated or are unspecified. If the actual program cuts. The direction of the cuts spelt Coalition continues with these expenditure reduction out to date is most disturbing. targets (and if it doesn’t, it will find it compensation The biggest savings are to come from programs for the GST very hard), we fear that the impact on focused on low income households. Others, such as government services may be much wider than the 5 per cent cut in funds to the states, will be Fightback! promises. particularly felt by low income people as well. The axe falls most heavily on social security, where some $1.6 billion pa is to be saved.
FEBRUARY 1993 31 0
4. The new government must support schools, viewed as a residual system for the policies which provide a fair chance for “educationally poor”, those families lacking either the money or the commitment to education to send their all Australians and avoid the children to a “proper” school. A major path to upward entrenchment of privilege or poverty mobility thus becomes narrowed. Whether we talk of “the level playing field” or “equal Existing policies at least recognise this dilemma. opportunity”, both sides of politics have traditionally In health, the Coalition’s emphasis on private accepted that all Australians should be given an equal insurance has two fundamental problems. First, it chance to make their way in the world. could well lead to a blowout in our overall health Unfortunately, today there seems little recognition of expenditure, largely boosting medical incomes, how easy it is for governments, through inaction, to without improvement in health outcomes. Second, entrench privilege or disadvantage. Some there is the risk that the distribution of health commentators have pointed to the long term outcomes will be worsened as access to health consequences of abandoning death duties; others to services becomes less equal. the way today’s consumption is at the cost o f the Past access to education, continuing access to health, security of the next generation. employment success and access to savings, Equality of opportunity is one reason why full particularly home ownership, all influence the employment - and equal access to jobs - is important. standard of living of older Australians. Their Labour market programs help people escape from retirement income may be directly supported by low income through getting, and keeping, jobs. But government pensions or by tax incentives to there are other mechanisms where government action superannuation savings. The former is targeted to can radically improve life chances. Most important are exclude the wealthy; the latter heavily supports them. adequate education, adequate health services, and The ALP’s superannuation approach is to broaden finally secure retirement incomes. superannuation across the workforce, though the big Labour market programs exist to improve the chances benefits still flow to the better-off. Adopted for of people finding a place in the workforce. They industrial relations rather than social security reasons, recognise the barriers to re-entry, the demoralising it has been a mixed blessing, particularly for low effect of long-term unemployment, the special wage earners. The Coalition proposal to limit the tax problems of older or first-time workers; they subsidy going to the wealthy would be a major equity recognise that saleable skills are an asset. improvement. Programs such as Newstart, Jobstart and Jobtrain Some concluding remarks cannot magically provide jobs if none exist, and there The Brotherhood chooses to emphasise these four are plenty of under-utilised skills around, so that priorities - hardy perennials, it may be said — because training alone is no passport to prosperity. Such they will be the tests o f good government in the years programs do, however, improve the chances of the to come. long-term unemployed or the newcomer. The ALP should extend spending on these programs until the How they are addressed will influence the shape of forecast recovery allows them to be wound back. The multicultural Australia as profoundly as immigration Coalition should reconsider its decision to cut out or other policies. ■ Jobstart, and chop back Jobtrain, in favour of its “Austrain”, under which employers could hire long term unemployed at below minimum wage rates. Experience suggests that the numbers who gain a job this way will be much smaller than suggested. Education is one area where the Coalition promises an expansion in the budget, but it is almost all by way of an increase in funding to private schools. The $300m pa promised, a 25 per cent increase, comes when most private schools already get the bulk of their running costs from governments. A doubling in capital grants to private schools is also promised; no additional funds are promised for state schools. Such a funding increase, coupled with state school closures such as taking place in Victoria, gives a clear signal to parents. If that signal is acted on, the future may well find state schools, particularly secondary
X 32 FEBRUARY 1993 Immigration, multiculturalism and the 1993 federal election conservative and far right in Australia, an overarching bipartisanship has emerged between the major parties, driven by the exigencies of one million unemployed, a deep recession and complicated by the difficulties of reconciling the conflicting priorities By Dr Colin which permeate this area, an area which is not Rubenstein, Senior emerging as a major issue in the campaign although it is certainly one, if handled clumsily by either party, Lecturer in Politics at which could definitely swing the outcome in a close Monash University election. The essential consensus between the major parties, lthough raising the hackles of his own leader moreover, should be contrasted with the rather and colleagues, the Federal Labor member for strange marginal consensus which has emerged on Calwell, Andrew Theophanous, may have been A the Left between environmental forces, the ecological close to the mark in arguing that the Federal Coalition sustainable society lobby and other local ecologists has set the agenda on immigration policy during the and their preference for greatly reduced even zero previous year. immigration, and this includes the Democrats and Although deploring this trend, Theophanous, in Greens, and the far right anti-immigration lobby in subsequently reported remarks made to a closed Australia for whom zero immigration is already meeting in September 1992, may have accurately excessive. Indeed, the horseshoe theory of politics portrayed convergence between the major parties suggesting a convergence between the far Left and far over immigration in recent years. He had attacked the Right is as suggestive as ever in approaching this Government for adopting Opposition initiatives such broad policy area. as significantly reducing the immigration intake for Yet it is probably quite unfair and untrue to say that it 1991-92, in introducing a six month waiting period for will make no difference to this area irrespective of social security benefits to migrants, widening the which party wins the March 13 Federal Election. mandatory English language proficiency requirement Therefore what are the different emphases, internal and for increasingly tough controls on illegal party pressures and likely differences which the immigrants and particularly for a certain callousness election of Labor or the Federal Coalition would make towards refugees adopted to ensure Australia will not in this broader area? Indeed what are the critical be seen as a soft touch! issues confronting Australia through the rest of the Despite the similarities and the almost reluctant 1990s as it wrestles with the competing interests, bipartisanship between the major parties differences problems and opportunities embodied in the broader remain. For example, the Government has renewed area of immigration, ethnic affairs and the future its commitment to the benefits of multiculturalism evolution of its multicultural parameters? which Prime Minister Keating claims ‘plays very well in the Asian-Pacific’ area and can have a major Im m igration Policy economic benefit for us. Dr. Hewson however, while The 1990s are turning into an era of massive pledging strong support for the merits of a movements of people and the globalization and multicultural Australia has at the same time bemoaned politicisation of immigration as a major international the term ‘multiculturalism’ and the excessive political issue. Ironically, Australia, a nation with an politicization that it has embraced. What is perhaps overwhelmingly positive record of mass immigration equally interesting is the divisions within each of the over the last 45 years, witnessing the subsequent major parties and the embarrassments that both have emergence of a tolerant, diverse and decent suffered in recent years. This may partly explain multicultural society has embarked on a draconian discontinuities in Government policy as well as cutback in immigration intakes which enjoys tensions within the Coalition. bipartisan support. Yet compared to the sometimes strident attacks on The unacceptable reasoning of the FitzGerald Report immigration and multiculturalism that have come in 1988 that multiculturalism promoted divisiveness from elements of the academic and political left, and undermined immigration was deservedly rejected
FEBRUARY 1993 33 by the Hawke Government. Nonetheless, its prediction that confusion and scepticism was creeping into and threatening Australia’s immigration programme has to some extent occurred in recent years. FitzGerald recommended increasing immigration to 150,000, slanting the intake more towards skill and less towards family reunion, also recommending disengagement from Indo-Chinese refugee resettlement. He also recommended that migrants be required to demonstrate their loyalty to Australia. In dealing with this report, the new Minister for Immigration and Ethnic Affairs, Senator Robert Ray, whose preferences seemed to be for a reduced family intake and expanded skill and business categories, nonetheless announced the intake would be kept at 140,000 for each of the next three years, family re union would be retained at 50 per cent, the open ‘category’ 40 per cent, and refugees at 10 per cent. He Dawkins, former Minister Walsh and eccentric also established the Bureau of Immigration Research member Graeme Campbell. He has therefore been in and the new decision-making and review procedures a strong position to confront pro-immigration with respect to immigration applications reducing the advocates in responding to the predominant issue of discretionary powers of the Minister. This new growing unemployment and deepening recession. system has cut down resort to the Courts and ensured Nonetheless, the Government has come under that immigration targets are not overshot. considerable attack for having implicitly accepted the The new Minister, Gerry Hand, appointed in April argument that immigration does contribute to 1990 after the last election, also struggled with the unemployment despite the lack of any compelling uncertainties and growing tensions in immigration evidence that even in a recession the costs of policy. Against the background of a deepening immigration outweigh the benefits. recession, a burgeoning full and frank debate called There has also been understandable and severe for by Dr. John Hewson, and growing currency of the criticism of the Government’s harsh handling of the argument that constraints during and after the refugee issue with accusations that it has gone much recession on high immigration were essential, and too far in succumbing to a ‘control fetish’ in its that the true cost of immigration to Australia had not treatment of refugee claimants. Indeed this area been fully calculated, Minister Hand has incrementally represents another example of convergence between responded to these pressures - and particularly to the Government and Opposition. On-shore asylum running made by the Opposition. He has seekers had grown from 564 in 1988-89 to 21,653 in dramatically cut the immigration intake from 123,500 1991-92, primarily as a result of the Government’s in 1991 to 80,000 for 1992-93- Changes have been policy on Chinese students. Among the various made to the point system putting greater focus on measures undertaken by Hand to deal with this influx, skills and occupations in demand and in May 1982, in May 1992, legislation was passed with Opposition together with the intake cuts, introduced English support to prevent an application to the Courts for the language tests for migrants in the concessional and release from detention of particular illegal immigrants independent categories and in the August 1992 and boat people. The Opposition further argued that Budget, welfare and unemployment benefits were the Government should scrap judicial review of denied to approximately 35,000 immigrants for six immigration cases decided through administrative months after arrival. A nationwide crackdown on procedures, should legislate to confine appeals to the illegal immigrants was also launched and much administrative process and that the decision of the tougher tests for businessmen wanting to migrate new Refugee Status Review Tribunal should be final. were imposed. It has also pointed out that there are over 23,000 In October 1992, the Opposition Shadow Minister refugee applications, and that under existing Phillip Ruddock took relish in quoting Theophanous’ arrangements it would take many years to process criticism of his own government in following the them. Coalition’s agenda on all of these issues. Hand, In August 1992, the report of the Joint Standing retiring at the forthcoming election, has adopted a Committee on Migrant Regulations in August 1992, tough approach particularly for a Left Wing Minister ‘Australia’s Refugee and Humanitarian System: yet has enjoyed support from within the party achieving a balance between refuge and control’ with particularly from members such as Treasurer a dissenting report by its chairman Dr Theophanous,
34 FEBRUARY 1993 f
recommended that Chinese students who were will substantially reduce immigration significantly promised permanent refuge by Prime Minister Hawke below the Government’s current projections’ and shift and his successor, Mr Keating, be required to seek the emphasis from family reunion to the skilled entry permanent residency or have their protection category, ‘although compassionate migrant entry reviewed on a ‘case-by-case basis’ when their permits under family reunion and humanitarian provisions expire in June 1994. The Opposition members (particularly for refugees), will continue to be including Shadow Minister Ruddock supported the accommodated responsibly’. majority proposals which are close to the The Opposition, wanting a policy to produce a more Opposition’s repeated call for application of residency skilled, more qualified, and more employable to be considered on merit. In a critical but not outcome, has focussed criticism on the extended atypical nor unwarranted response leading journalist family category which has low skill levels, little Greg Sheridan asked: ‘Does the solemn word of an English language competency and high Australian Prime Minister, concerning the disposition unemployment. It has called for entry to be restricted of human beings, count for anything or not?’ to the better educated, more highly qualified and As argued, there is little doubt that driven by employable, suggesting the need for English language exigencies of the recession and assumptions of skills testing for concessional family applicants. It economic rationalism that the Federal Coalition under claims it is unfair to invite people at a time when there Hewson and Ruddock has been instrumental in are limited opportunities for immediate and sustained driving many of these changes. In his first major employment. While Fightback argues that short speech on the topic in August 1991, Hewson called term cutbacks are required by existing economic for a significantly lower Australian migrant intake and conditions, and that fewer well qualified people want a shift in emphasis to the skilled entry category over to come here and increased numbers are leaving, the family reunions. ‘In the context of the worst strategy acknowledges that ‘lower migrant intakes are economic recession since the 1930s, and with not in themselves a solution to Australia’s economic Australia’s crippling burden of foreign debt.... difficulties, which will only be overcome by a Australia’s capacity to accommodate a large migrant sustained policy of reform’. Moreover, this ‘reform intake is substantially reduced... The Coalition parties will enhance Australia’s prosperity and increase our have concluded that in the short term there is no capacity to sustain a large-scale immigration program’ responsible alternative but to accept a substantially which in the long term is needed to properly develop reduced level of immigration and one significantly the country. The Liberals have also focussed on lower than the Government is currently projecting inadequacies in the migration system including the over the short term... In particular, we believe that control of illegal entrants, the abuse of the marriage Australia’s current circumstances require that the and defacto migration provisions, increased asylum balance between the two major categories of family claims and weaknesses in the business migration reunion and skilled entry need to be redressed in scheme. favour of the latter’. Yet Hewson also expressed Fightback! requires migrants to pay more for support for the long term benefits of increased processing their entrance, would deny them access to migration. These comments drew immediate criticism the dole and other welfare benefits for two years after from business leaders like Hugh Morgan ethnic arrival to encourage family sponsorship, although community leaders, academics and fellow Liberals, refugees and settlers under distressed circumstances particularly then New South Wales Premier Nick would be exempted from these provisions. Yet Greiner who attacked Hewson’s strategy as Fightback! also exempts settlement services from ‘questionable in theory., and problematic in practice., expenditure cuts and Coalition policy ‘maintains a the danger in responding to the recession by slashing focus on the provision of English language training, immigration is that w e will forego the economic Grant-In-Aid funding, increases the availability of benefits of the latter’. capital grants for ethnic schools. Because of This approach was crystallised in the Opposition’s continued concern about issues raised in reports on Fight back! strategy released in November 1991 calling Racist Violence and Black Deaths in Custody, the for a ‘realistic immigration program’ in which ‘a Coalition has decided to retain the Human Rights and generous refugee and humanitarian component aside, Equal Opportunity Commission and is committed to Australia’s immigration intake must meet Australian study seriously proposed Federal racial vilification priorities. Australia has a duty to its migrants to legislation’. ensure that they have access to full participation in Opposition spokesman Philip Ruddock has also our national life’. Noting the need to take account of consistently pledged commitment to Australia’s non- existing economic conditions, that ‘few well-qualified discriminatory immigration principles and support of migrants want to come here... and Australia’s capacity a program which promotes compassion, cohesion to accommodate a large migrant intake is substantially and national integrity; expressed confidence that over reduced ... in the short term, a Hewson Government the medium to long-term the immigration intake can
FEBRUARY 1993 35 0
be sustained on economic, environmental and 50,000 and 70,000. demographic grounds; criticised the Government’s Finally, speaking to the Bureau of Immigration handling of refugees and humanitarian cases Research Conference in November 1992, Hewson re (particularly Chinese students), and their on shore iterated his belief that ‘an expanding migrant intake treatment, although agreeing with criticisms of will contribute to national development’ and that ‘an ‘economic refugees’; and called for a re-ordering of expanded immigration intake in the right priorities and administration in the Immigration circumstances’ is desirable there being ‘no doubt the Department, particularly urgent for dealing with the immigration programme over the post-war period has determination of a huge backlog of refugee cases. made a very substantial contribution to Australia both The Hewson approach found support from elements economically and socially’. He added, however, that in the trade union movement and demonstrably had a ‘a Coalition Government will not significantly increase major influence on the Federal Government’s changes the migrant intake until there are clear signs - in May 1982. These cut the intake by 31,000 to 80,000 including a significant and sustained improvement in for 1992-93, introduced English language tests for unemployment and other indicators such as foreign migrants in the concessional and independent debt - to demonstrate that the Australian economy is category, and in the August 1992 Budget welfare and expanding in a sustainable way’. He argued that in unemployment benefits were denied to times of recession ‘an immediate and substantial approximately 35,000 immigrants for six months after short-term reduction’ was necessary quoting figures of arrival. high unemployment among newly arrived migrants Yet pressures for even greater cuts of the immigration and suggesting this would remain during the recovery intake surfaced again in August 1992 when Shadow phase of a recession. Given Australia’s problematic Industrial Relations Minister John Howard evoking future with regard to both high unemployment and memories of his controversial remarks in 1988 about our foreign debt situation the prospects for increased reducing the level of Asian immigration in support of immigration under a Hewson Government therefore social cohesion, called for immigration to be cut indeed look bleak! dramatically below 50,000. Ironically, in so doing he Multiculturalism and citizenship was echoing the position in fact taken by former Labor Finance Minister Senator Walsh and in 1991 by Regrettably, a scepticism about Australia’s Education and Employment Minister John Dawkins overwhelmingly successful mass immigration policy who became Treasurer at the end of that year. in the last 45 years has been accompanied by elements of confusion about our tolerant, diverse and Hewson moved swiftly in repudiating Howard’s decent multicultural society, as Nick Greiner has put it remarks suggesting that ‘Philip Ruddock, the Immigration spokesman and myself have clearly ‘the greatest Australian success story’, one of our stated our immigration policy’ indicating Coalition country’s finest achievements! support for an immigration net intake of between For Australia’s multiculturalism, promoted by successive governments since 1973, is in fact a model
% 36 FEBRUARY 1993 f
based on the reality of ethnic diversity in our society immigration rate and a better balanced intake. As and a policy which constructively optimises this leading commentator Gerard Henderson quite aptly diversity. In contrast to the many misplaced critics of put it, this is a superficial, cliche-ridden, vague, if not our multiculturalism, and indeed of our immigration vacuous analysis. ‘The Liberal Party would be better policy, coming from the academic and political left advised to devote scarce resources to developing and and from the assimilationist and ‘respectable’ implementing policies’. intellectual right, our multicultural (and immigration) Continuities persisted however in the Fightback! policies have overall generated cohesion rather than statement that ‘migrants have a duty to give an entrenching division through accepting differences in overriding and unifying commitment to their adopted our society within the framework of tolerance and country’, calls for ‘rationalising’ the Office of mutual respect. Multicultural Affairs and the Bureau of Immigration The Fraser Government replaced discredited Research, and a degree of ambivalence in some assimilationism with the view that national cohesion Liberal leadership comments on multiculturalism. is best attained through acceptance of, and a positive Indeed, Dr Hewson had to explain clumsy remarks pride in, this diversity but within the framework of he made in July 1992 that while ‘w e have a shared, fundamental Anglo-derived Australian values multicultural society we should never have - the mle of law, tolerance and equality, multiculturalism, the politics of division...a parliamentary democracy, freedom of speech and fundamental mistake’. In clarifying these widely religion and the importance o f English as a national criticised comments, Hewson has made it clear on language. several recent occasions that he indeed strongly Similarly, the Hawke Government although supports the reality and benefits o f a multicultural indifferent in its early years, and now the Keating Australia but ‘opposes the attempts of governments, Government have become ardent proponents of like Labor over recent years, to use the label of multiculturalism. Prime Minister Keating in particular multiculturalism as a cover for allocating money in the has increasingly stressed the great benefits hope or the expectation o f achieving particular votes multiculturalism embodies particularly in the area of in particular marginal seats’-in other words the blatant business with promising international connections in politicization of multiculturalism. In contrast to Asia, Eastern Europe and the Middle East. Labor’s excessive political manipulation of ‘multiculturalism’, Hewson pledged that it was wrong Keating has also endorsed access and equity to manipulate the ethnic vote and he would not be recommendations from last year’s major evaluation, influenced by sectional ethnic interests but would particularly stressing that the Commonwealth Public govern in the interests of all Australians. The Service should become more multicultural. Finally, Coalition however, now strongly supports the the Government has increasingly stressed that National Agenda fo r a Multicultural Australia, the Australians should have ‘an overriding and unifying goals of the Access and Equity Strategy and other commitment to Australia, to its interests, first and programmes that will strengthen foundations of foremost’. Emulating the initiative of the Opposition, multicultural Australia. yet again, the Prime Minister has pledged his Government to encourage the notion of Australian Finally, the Coalition has adopted a policy to elevate citizenship, its rights and obligations, by promising the importanc of Australian citizenship through tointroduce a new oath o f allegiance, pledging lengthening pre-citizenship residence requirements ‘loyalty to Australia and its people, its democratic from two to four years, requiring English language beliefs, rights and liberties and the rule of law’. competency except for aged people over 60 and allow only citizens rather than permanent residents to Under Dr Hewson’s leadership, the Liberals, and also sponsor other migrants entering Australia. Having the National Party, have strongly supported a said in his Bureau o f Immigration Research speech in multicultural society although not its excessive November that a Coalition Government would politicization. examine an ‘oath of allegiance’, specifying ‘the right Concerns about multiculturalism within the Liberal to express ones own culture and beliefs’ and Party are not confined to John Howard as indicated involving ‘a reciprocal responsibility to accept the by the Liberal Party’s Australia 2000 project, rights of others’, Dr Hewson in his recent Australia ‘Australians Speak’ published in 1991- It expressed Day speech announced he would establish a National particular worries that migrants’ first loyalty is not to Council on Citizenship to develop a ‘clear and Australia, that multiculturalism may be promoting unambiguous statement on the rights and obligations ‘cultural ghettoism’ and a sense of division, and that of citizenship in the context of a multicultural society’. assimilation or at least the ‘melting pot’ concept were As Philip Ruddock suggested, multiculturalism would preferable and that ‘Australia should exercise its right become ‘part and parcel of the definition o f being to determine its own cultural identity’ in the direction Australian’. of unity and strong support for cuts in the
FEBRUARY 1993 37 0
Conclusions: future prospects □ Finally, the Government’s increasingly tough So what difference does it make if Labor or the approach and processing system for asylum Coalition is victorious in the March 13 election? What seekers, particularly the detention of Cambodians are the key opportunities, problems and prospects on in Port Hedland for over two years, has raised Australia’s immigration and ethnic affairs agenda legitimate questions as to whether the through the balance of this century? Government’s objective, even obsession, regarding border control has gone too far in Both major parties have struggled with the competing ignoring its international humanitarian obligations political, economic and humanitarian considerations. towards refugees. After all, compared to the very The Opposition has helped shape an increasingly real problems overseas, for example in Germany, tough Government approach toward migrant and coping with a caseload of 450,000 asylum refugee intakes and a focus on citizenship and seekers, Australia’s queue compromises 675 boat overriding commitment to Australian values. Yet, at a people and about 23,000 onshore claimants, the time of global immigration movement of major bulk of them being Chinese students arriving after dimensions, there is no compelling evidence that Tiananmen Square. It is mildly heartening that even in a recession the costs o f immigration outweigh the Minister decided in January 1993 to increase the benefits, although the need for a fair and open the humanitarian entry programme from 10,000 to debate and elimination of gross abuses in the 12.000 persons for this year following Mr immigration programme can only be welcomed. Ruddock’s statement that a Coalition Government While the alleged excesses of multiculturalism, would have left the refugee intake at around economic and social, are grossly exaggerated, totally 12.000 instead of cutting it to 10,000 as the dismissive of the remarkable integrating benefits and Government has done, but adding that it was assets multiculturalism provides, there are some likely to remain at 12,000 for quite some time. concerns: Given Australia’s proud record towards refugees, □ There is a real problem when migrant or ethnic and more recently in the Fraser years in behaviour or values contravene the core values of honouring its moral obligations towards Indo- Australian society. This is only compounded if Chinese refugees, it is to be hoped that a stronger Government refuses to condemn such violations, dose of compassion will inform Australia’s future a situation which occurred in 1990 when the policy in this area, despite the obvious need to Government granted permanent residence to prevent unauthorised arrivals, abuses or Sheikh El Hilaly of Sydney’s Lakemba Mosque. overloading of the asylum seeking system. This represented a severe strain on the spirit of Lurking between the political skirmishing and point multiculturalism, because it was done without scoring between the major parties on multiculturalism any public statement or apology by the Imam for and immigration policy an encouraging bipartisanship his anti-Semitic and anti-Christian attacks. Many has nonetheless emerged. For all the contradictions felt it was up to Hilali to prove he was willing and and disappointments, one can at least say that the able to play his part in promoting interfaith Labor Government’s handling of this area over the last understanding in Australia, accepting that racist decade has been reasonable and that the Liberal slander of other groups will inevitably result in a record in Government in the preceding decade was less tolerant Australia, detrimental to Australian good. Both parties remain wary of the cost in Muslims as well. Fundamentally then, not alienating the very sizeable, alert and potentially anything goes in a multicultural Australia, decisive multicultural vote in Australia. particularly if there are breaches in the framework Keating and Hewson have recently both sincerely of shared values and practices common to all expressed well founded pride in Australia’s Australians. multicultural realities and opportunities. It is to be □ The disturbing resurgence of racist incitement hoped that greater confidence towards immigration, and violence in recent years, as documented by and particularly traditional Australian compassion the National Inquiry into Racist Violence, towards refugees, can be revived, as part of an conclusively demonstrates the need for Australian economic recovery and the process of reinforcing tolerance, respect and harmony in defining an emerging Australian identity in the Australia and for strengthening and extending context of a multicultural society.B racial vilification legislation beyond NSW, Western Australia and the ACT.
\ 38 FEBRUARY 1993 t
1984, 1987 and 1990 elections campaigns political bargaining for ethnic community favour muted the Immigration impact of official advice, as with the government’s promise in 1988 to keep the family share of the overall migration program at 50 per cent. The net effect of this vacillation has been that by 1992 there issues and the had been some withdrawal from the generous family reunion immigration rules and settlement arrangements put in place in the late 1970s and 1980s. But these withdrawals fell far short o f the advice 1993 election tendered by officials - mainly because of the Labor Government’s anxiety about the ethnic vote. The build up to the 1993 election has been different. W e have seen something like a “Dutch auction” as the Government has matched the tough public statements by the Lib/NP opposition on reducing the size and By Dr Robert Birrell, cost of migration with equally tough action. Neither party seems to be fearful of political retribution from Reader in Sociology ethnic voters. Or to put it another way, if there is any at Monash fear, it is being counterbalanced by worries that University immigration issues could sway non-ethnic voters. Before exploring why, let me remind readers of he most interesting feature of the 1993 election recent events. campaign is that neither major political is offering Immigration policies Tmuch to the ethnic lobby. This contrasts with almost all election campaigns since the late 1970s. In Most will be familiar with the Coalition’s statements these campaigns, politicians on both sides of politics that immigration should be cut during the current seemed anxious to appease ethnic community leaders recession because o f the high unemployment levels by offering concessions in both the settlement and amongst recently-arrived migrants and associated immigration program areas. welfare costs. But the Opposition has presented its case in tougher terms than this. As indicated in the ‘Ethnic’ vote following statement, the opposition appears to hold Bargaining for the “ethnic vote” reached epidemic more fundamental reservations, implying at least a proportions in the late 1970s. It contributed directly to medium term restrictionist policy. Dr Hewson told the the Fraser Government’s decision to establish a Second BIR Immigration Outlook Conference in separate brother and sister program in 1981. This November 1992 that “a Coalition Government will not followed an earlier offer by the Labor opposition to significantly increase the migrant intake until there are create such a category prior to the 1980 election. clear signs - including a significant and sustained Concern about appeasing ethnic interests also improvement in unemployment and other indicators prompted the government to eliminate the “balance such as foreign debt - to demonstrate that the of family” ruling on working aged parents late in Australian economy is expanding in a sustainable way 1981. In 1983, the Labor Party was again the which can effectively accommodate an increased pacesetter when before the election in that year it level of migration” (1). promised to soften the rules governing the brother Though the Coalition has not provided much detail and sister selection system. This promise was fulfilled on where further cuts will be made, it has been after the Labor victory. Knowledge of English was sufficiently specific to leave no doubt about its abolished as one of the criteria for selection and the intentions. For example, its immigration spokesman, points allocated to those with skills in short supply in Mr Ruddock, has indicated that, if elected, the Australia were reduced. As a result the number of Coalition will introduce a conditional visa for newly- visas issued under this category more than doubled to married spouses located overseas. To judge from the reach 30,467 by 1986-87. US experience with such legislation, it will have a Since 1983, we have seen a pattern of rearguard significant impact. The Coalition’s statements on bureaucratic activity as officials from DILGEA, DEET welfare policy also give clear signals that it wishes to and Finance have advised the government to back deter migration from sources likely to experience away from these concessions. Their main concern labour market difficulties here, including those was the increase in the numbers of non-English coming through the family reunion categories. Thus speaking and relatively low skilled migrants resulting the repeated statements that social security benefits both in the sibling and parent categories. But with the will be with held from migrants (other than those in
FEBRUARY 1993 39 the humanitarian categories) over the first two years can treat as full citizens. To my mind there remain of their residence here. several unjustified categories within the current Labor Meanwhile the Labor Government has acted in these Government program. The most notable is the terms. In late 1981, it reintroduced a “balance of maintenance o f the concessional category (mainly family” ruling on parents. However, in contrast to the brothers and sisters). Though reduced to 6000 for the rules in place until late 1981, the new regulations 1992-93 program year, this category nevertheless apply to all parents whether working age or not. In remains one of the dubious legacies of past political 1992, it announced a series of measures requiring bargaining for ethnic favour. It is open only to those sponsors (particularly of parents) and the incoming whose sponsors are recently arrived and therefore migrants to pay a greater proportion of any welfare, likely to have siblings in their 20s - an important health benefits and English language tuition costs matter given the significance of age in the selection incurred in the early years of their settlement. In so system. Those sponsored must also have trade or doing, it has removed many of the concessions professional qualifications recognised in Australia. previously offered in the course of election The concessional program is, therefore, a de facto campaigns since the late 1970s. The most striking skills program and should be evaluated in these measure is the ruling applying to all incoming terms. When assessed in this light it does not pass migrants (with the exception of those in the muster. Its main deficiency is the same as the non- humanitarian categories) from the beginning of 1993 targeted component o f the independent program, that unemployment and sickness benefits will not be under which 13,400 migrants are to be selected available until after six months residence. This during 1992-93. In both the concessional and regulation has muted what otherwise would have independent programs applicants are primarily been a stark difference between the settlement selected on the basis of their occupational policies of the Government and the Opposition. It qualifications. With the exception of doctors, no again implies that the Labor Government is now more account is taken as to whether the occupations in concerned about non-ethnic than ethnic voters. question are needed in Australia. There is nothing to stop those with surplus skills, like civil engineers or The tougher line the parties are taking on immigration teachers from being selected. numbers and on settlement rules is justified in present circumstances. Immigration policy should not be Returning to the factors shaping political party immune from critical review during an economic strategies on immigration issues, how can the current crisis. There is no doubt than recently-arrived tough line with ethnic issues be explained? Have migrants are amongst the worst affected by the ethnic leaders ceased to pursue concessions at recession and are costing the Commonwealth election time, perhaps in recognition of Australia’s Government a great deal - thus the Department of parlous economic circumstances? This does not seem Finance’s 1991 estimate that the full year major to be the case. There has been much opposition to recurrent costs to the Commonwealth for 1991-92 the recent government “user pays” measures within arrivals would be around $378 million. the ethnic media. For example, in the context of the Government’s decision to levy fees for English But as long as the immigration rules allow migrants language tuition II Globo stated that Mr Hand has: legal entry, I would question the legitimacy of depriving them o f the welfare benefits available to "... administered the immigration portfolio with other Australian residents. There may also an element marked insensitivity and arrogance, in total of political illusion in these rulings since, in practice, contrast to the position he took in support o f fam ily reunion when he was a mere backbencher the Government cannot leave migrants to languish without income support if their relatives are incapable (II Globo, January 4, 1993) ” or unwilling to provide for them. Past attempts to Politicians have not suddenly become indifferent to specify residence requirements for welfare benefits ethnic voters. They are well aware that migrants make have not worked. In theory, older migrant have for up an important component of many electorates. In many years not been eligible for the old age pension fact persons who are foreign born currently constitute until resident here for 10 years or until they became 35 per cent of the 15+ age group in Melbourne and citizens. In reality, large numbers (8500 by 1991) of Sydney, in each case with those from non-English- those whose residence time fell short of these speaking background countries making up 70 per requirements were receiving special benefits in lieu of cent of the total(2). the pension. Though many of their sponsors had Economic imperative signed assurances o f support, these were rarely enforced. The major reason for the new stance on ethnic issues is economic. The evidence concerning both the A better approach proportion of newly-arrived migrants who are A better approach would be to limit the number unemployed and the welfare costs of providing for arrivals to those the Government genuinely believes it them is so serious that to ignore it would risk the
FEBRUARY 1993 /
immigration issue becoming a significant factor with US comparison the non-ethnic electorate. This has prompted the If this is the case, it is surprising that we have not seen Coalition’s tough line and the Labor Party’s anxiety to a similar reaction against migration within act resolutely so as to make sure it is not exposed on conservative ranks in the USA. the issue. Given the well-known sensitivities of the Australian electorate on immigration questions, In the USA, free market conservatives tend to be neither party could risk the possible electoral comfortable with continued high migration even in a consequences of a continued high immigration context of serious recession1 2(3). Little attempt is made intake. to hide the reason; higher income groups like the cheaper services resulting from the competition What is perhaps surprising is that it is the Coalition migration adds to lower skilled labour markets. These which has made the running on the issue, given its include the market for domestic servants, which a past enthusiasm for high migration intakes. Their high proportion of US business and professional elites breach with the political “bipartisanism” on make use of. immigration which reigned during the 1980s has been crucial. Previously this kept the issue within the Perhaps the situation would be different if recently- confines of those vitally interested in it - notably the arrived migrants had the same access to welfare ethnic communities themselves - such that bargaining benefits as have hitherto been available in Australia. for the their vote could proceed without much However the US authorities take a much tougher line likelihood that it would spill over to trouble on income support to migrants, making their intake in mainstream voters. relative terms less costly to the taxpayer than is the case in Australia. Another factor explaining American The recent change in conservative attitudes can be attitudes is the continuing strength of the ideal that linked to the Coalition’s conversion to an America can be a haven for the down-trodden and uncompromising “economic rationalist” perspective. American confidence that unity can be created out of This has prompted a scepticism, even hostility to all diversity. “claimant” groups believed to be undermining market place incentives and, thus, the will to work. Despite two decades of multicultural advocacy in Paradoxically, the very success of the ethnic lobby in Australia these ideas have not taken root amongst persuading governments to do more for migrants on Australian conservatives.® settlement and welfare issues and the close links between the ethnic lobby and the larger welfare lobby has contributed to the perception that migrants are a “problem” group.
(1 ) D r John Hewson, Address to the Bureau o f Immigration Research Second National Immigration Outlook Conference, 11 November 1992, Sydney. (2 ) Robert Birrell, “The role o f migration in the growth o f Australia’s metropolises, 1981-1992", People and Place, March 1993, Centre fo r Population and Urban Research, Monash university. (3 ) Robert Reich, The Work o f Nations, Knopf New York, 1991, p. 289.
FEBRUARY 1993 41 Media W atch
below) - some of which have what happened? In some cases it Hand turns been applauded by the electorate, took 18 months for applications to but most of which have brought be lodged for these asylum- into fist howls of protest from the migrant seekers while more boats arrived, By David O’Reilly community. and still the support groups asked for more time,” he said. If the electorate and the In the wake of the controversy immigration lobby think Gerry over the lengthy detention in Port Hand added that “enormous Hand is tough, then they haven’t Hedland of Cambodian asylum- energy was put into making wild seen John Hewson’s policy. seekers, Hand found himself and fantastic statements” about the being taken to task on the human In separate recent public plight of the refugees at Port rights implications of the wider appearances, Gerry Hand and Hedland. “At the same time, some crackdown. While ethnic groups John Hewson made it abundantly of those who are supposedly welcome some of the changes, clear why multiculturalism is supporting them are more they are concerned about things under stress - and why the interested in making their such as the denial of access to immigration lobby is under siege - reputations as human rights welfare benefits and, in particular, as never before. campaigners than assisting in a the establishment of the new speedy resolution of their cases.” Immigration Minister Hand has independent Refugee Review He wondered if the refugees were introduced what is essentially the Tribunal. ever given “realistic, practical most draconian crackdown on advice” or whether they were immigration in decades. Under The tribunal will become the key simply “fodder for a noble pressure to cut migrant numbers arbiter of applications from crusade”. because o f the recession, Hand is refugees and its tight codification clearly a politician at the end of is aimed at reducing cases where Futile his patience with a demanding denied applicants take time- Hand further said he could not be constituency including dozens of wasting appeals to the courts. The held responsible for the actions of immigration “industry” players legislative changes will not only those who would provide who jostle, at times ruthlessly, for lay down the precise grounds on refugees with “false hope and their piece of the action. which appeals can go to the Federal Court, but it will no longer tempt them into taking drastic and Rigour be possible for refugees to argue futile measures”, such as hunger strikes. But Opposition Leader John in the courts what Hand calls “the Hewson is using the recession to somewhat open-ended doctrines One of the best-kept secrets in indicate he would go even further of natural justice and politics is the exact number of than Hand if elected early next unreasonableness”. migrants a Hewson government year. What Hand has set in train, In introducing some of the new would allow. Hewson and his Hewson would ram home with laws in Parliament, Hand said shadow minister Philip Ruddock such rigour that it may take a some refugees had used the courts just say that Labor has pursued decade, or longer, for to delay final decisions on cases “unrealistic numerical targets” multiculturalism to recover the while exploiting weaknesses in while parts of the migrant political potency it enjoyed in the the immigration laws. But then he program have been 1980s. launched a scathing attack on his maladministered or politicised. Hand has been under attack since detractors, saying that while Recently, Hewson told the Bureau May, when he announced the aspects o f his refugee reforms had of Immigration Research National overall annual intake of been welcomed in principle, Outlook Conference that while immigrants would be cut from when they actually resulted in one of the great lessons of history 111,000 to 79,000 in 1992-93. His decisions that some people didn’t was that a high migrant intake critics complain he has conceded like, he had been vilified. He said helped the economy in boom the emotional force of the he had met with lawyers, local times, in times of recession “an argument that immigration politicians and community immediate and substantial short contributes to unemployment, workers supporting the Port term reduction” in numbers was despite some evidence to the Hedland Cambodians, for necessary. He claimed that contrary. During his tenure, the example, and agreed to their unemployment among newly Government has introduced some claims for legal assistance and arrived migrants had averaged 35 far-reaching restrictions (see reprocessing of applications. “But per cent since 1991, compared
42 FEBRUARY 1993 0
with a 1986-1990 average of 15 □ Replaced the previously per cent, and had reached 70 per confusing array of laws with a cent among some “national “uniform regime” for groups” in the last year. detaining and removing Hewson then outlined his illegals. proposed changes (see below) □ Applied a punitive tax of which, he said, would have “an $3000 for each year an immediate and dramatic short immigrant is here illegally. term impact” on reducing the □ Proposed increased penalties overall size of the migration on companies that employ program. illegal immigrants and put the Debt onus on bosses to check job applicants for visas. “Furthermore, a Coalition □ Foreshadowed a law change Government will not significantly to ensure information about increase the migrant intake until illegal immigrants would be there are clear signs - including a made available to “relevant significant and sustained agencies” to prevent them improvement in unemployment claiming social security and other indicators such as benefits. foreign debt - to demonstrate that the Australian economy is □ Introduced tougher penalties expanding in a sustainable way for contrived marriages. which can effectively accommodate an increased level What Hewson would do: of migration,” Hewson said. Economists agree that □ Toughen bona fides testing in unemployment will stay around the family reunion category. 10-11 per cent for some time and □ Introduce “labour market may never again slip much below testing” of migrants to ensure 5-7 per cent. They also suspect it that they had the work skills may take until the next centuiy for that Australia needed. the foreign-debt situation to turn □ Toughen tests on applicants around. Things are tough for the for spouse/de facto/fiancee immigration lobby under Paul entry. Keating, but under Hewson it □ Extend the social security would have to wait much longer benefit ban to two years. for any relaxation of the rules. □ Undertake a case-by-case What Hand has done: analysis of the 20,000 Chinese □ Denied social security benefits students who were granted to migrants during their first entry en masse by Bob Hawke six months. in 1990. □ Extend the current two-year □ Imposed much stiffer tests on period of residency to four businessmen who want to ' years before Australian migrate here. citizenship may be granted. □ Toughened the refugee □ Ensure that English processing system. competence be made a □ Widened the mandatory requirement for citizenship. English proficiency □ Restrict sponsorship rights for requirement to new categories new migrants to Australian of migrants. citizens only. □ Introduced a single authority — a visa - for non-citizens to use when entering and The Bulletin travelling in Australia. December 1, 1992
FEBRUARY 1993 0 Available now from the Ecumenical Migration Centre
W e know how hard it is to keep on top of all the research that's being done on M ulticulturalism , Immigration and Ethnic Issues but the National Research Directory makes it easy!
The National Research Directory provides information on over 350 research projects and gives details of 289 researchers who are currently doing study in the areas. < RESEARCH Z DIRECTORY If you are carrying out your own research, MULTICULTURALISM, .
this is the perfect tool to help you to find IMMIGRATION AND
ETHNIC AFFAIRS
out what has recently been done or is in 1992 progress.
The National Research Directory is still available from the Ecumenical Migration Centre so please fill out the form below to reserve your copy for only OFFICE OF MULTICULTURAL AFFAIRS $10.00 plus $5.00 postage and DEPARTMENT OF THE PRIME MINISTER AND CABINET handling. Stocks are limited
Name: ......
O rganisation: ......
Address: ......
Postcode:
Purchase order number: ......
I I Please send me a copy of your Mail Order Catalogue
Forw ard to: The Ecumenical Migration Centre, 125 Leicester Street, Fitzroy, Vic. 3065 or Phone us on: (03)416 0044, Fax: (03)416 1827. i1,, ------— _____ 44 FEBRUARY 1993 Order form
Send to: Ecumenical Migration Centre 125 Leicester Street Fitzroy, Victoria, 3065
Name: ... Institution: Address:. Postcode:
I wish to subscribe to Migration Action in 1993 and I enclose $......
Rates: $ 3 6 individuals, $ 4 5 Institutions, $ 5 0 abroad (N O TE: New subscribers w ill receive 1 9 9 2 issues FREE)
Please send me a FREE copy of the CURRENT EMC/CHOMI Mail Order Catalogue.