The Parliament of the Commonwealth of Australia Joint Standing Committee on Migration Working Holiday Makers: More Than Tourists August 1997 Australian Government Publishing Service Canberra © Commonwealth of Australia 1997 ISBN Foreword Australia's working holiday program provides the opportunity for young people from overseas countries to enjoy an extended holiday in Australia and to undertake incidental work in order to supplement their holiday money. The reciprocal nature of the program offers similar opportunities for young Australians to undertake working holidays overseas. Over the past year, the Joint Standing Committee on Migration has been conducting a comprehensive review of the working holiday program. This report presents the Committee's findings and recommendations from that review. In this report, the Committee recognises the many cultural, social and economic benefits of the working holiday program for participants and the broader community. At the same time, the Committee has responded to concerns that working holiday makers are affecting the job prospects of Australians, particularly in certain industries and regions. The Committee's recommendations seek to ensure that the working holiday program is targeted appropriately. The focus should remain on providing young people with the chance to expand their life experiences through travel, so that young people from overseas can learn more about Australia and young Australians can increase their understanding of overseas countries. If the working holiday program operates effectively, it can create jobs for Australians rather than take work away from them. The Committee's recommendations are directed to such an outcome. A working holiday can be a valuable experience for any young person. Adoption of the Committee's recommendations will help to ensure that the benefits of a working holiday can be shared by all Australians. CHRIS GALLUS, MP CHAIR Acknowledgments The Committee expresses its sincere appreciation to all those people who contributed to the inquiry by making submissions, attending the Committee's hearings and assisting with inspections undertaken by the Committee. The Committee is grateful to its secretariat, including Mr Andres Lomp (Secretary), Ms Catherine Cornish (Senior Research Officer), Ms Gabrielle Jess (Research Officer), Ms Denise Picker and Ms Sophia Konti (Administrative Officers). The Committee appreciates the high quality procedural, research and administrative support which they provided throughout the inquiry. Special thanks are due to Mr Christopher Dorrian, who was seconded from the Department of Immigration and Multicultural Affairs. His specialist advice and comprehensive assistance was valued highly by the Committee. The Committee is grateful to the Department of Immigration and Multicultural Affairs for arranging Mr Dorrian's secondment. The Committee also thanks Ms Susan Sare for her research paper on the working holiday programs of other countries. The paper was prepared by Ms Sare in her capacity as a parliamentary intern with the Australian National Internships Program at the Australian National University. Contents Page Foreword................................................................................................................ iii Acknowledgments................................................................................................ iv Committee membership ..................................................................................... ix Terms of reference............................................................................................... xi Abbreviations...................................................................................................... xiii Conclusions and recommendations ................................................................xv Chapter One The inquiry Introduction ...............................................................................................................1 Background to the inquiry ........................................................................................2 Conduct of the inquiry ..............................................................................................3 Inquiry definitions.....................................................................................................5 • Working holiday maker ........................................................................................5 • Agreement countries.............................................................................................5 • Benefit criterion ....................................................................................................5 • Work condition ......................................................................................................6 Report structure ........................................................................................................6 Chapter Two The working holiday program Introduction ...............................................................................................................7 Establishment of the program..................................................................................8 Objectives...................................................................................................................8 Criteria.................................................................................................................... 10 Conditions ............................................................................................................... 10 • Time limits.......................................................................................................... 11 • Work condition ................................................................................................... 11 • Study................................................................................................................... 11 • Change of status................................................................................................. 12 Lodgment of applications....................................................................................... 12 Assessment of applications.................................................................................... 12 • Benefit criterion ................................................................................................. 13 • Employment prospects....................................................................................... 14 • Sufficient funds .................................................................................................. 14 v • Work condition ................................................................................................... 15 • Permission to extend work ................................................................................ 16 Program numbers................................................................................................... 17 Profile of working holiday makers entering Australia......................................... 22 • Country of origin ................................................................................................ 22 • Age ...................................................................................................................... 22 • Gender and marital status ................................................................................ 22 • Occupational background .................................................................................. 23 • Work undertaken in Australia .......................................................................... 23 Working holiday programs in other countries...................................................... 24 • General features................................................................................................. 24 • Age ...................................................................................................................... 25 • Length of stay..................................................................................................... 25 • Funds .................................................................................................................. 26 • Fees ..................................................................................................................... 26 • Work restrictions................................................................................................ 27 • Lodgment of applications................................................................................... 27 • Quotas................................................................................................................. 27 • Study................................................................................................................... 27 • Access to government-funded services.............................................................. 28 • Compliance with conditions............................................................................... 28 Australian working holiday makers...................................................................... 28 Chapter Three Impact of working holiday makers Introduction ............................................................................................................ 31 Cultural and social impact..................................................................................... 31 Economic impact....................................................................................................