DIMA Annual Report 1997-98
Secretary's review
Introduction
Improved services
Migration and Humanitarian Program
Migration Program
Humanitarian Program
Other measures
Litigation and review
Border management and compliance
Compliance
International
Multicultural Affairs
Settlement strategies
Citizenship
Client services
Information activities
Workplace issues
Conclusion
Introduction
1997–98 saw the completion of a major restructure of the Department aimed at aligning policy and operational areas more closely. One of the main changes was to strengthen the Department's border management function. The new structure also enabled a number of functions to be outsourced to the private sector.
The restructure firmly focused the Department's operations on its core business – the managed entry of people to Australia, the successful settlement of migrants and refugees and the promotion of the benefits of citizenship and cultural diversity. Its success has been brought about by the positive approach to change taken by Departmental officers.
Among many other elements which marked a year of change in the Department, I want to single out two with special ramifications – the completion of the Client Service Charter and the successful negotiation of a new Certified Agreement on working conditions for staff.
The Client Service Charter, introduced on 1 July 1998, will help ensure that the Department is more responsive to clients' needs and that they have the opportunity to comment on the quality of service. New flexible opening hours for Departmental offices provided for under the Certified Agreement will help achieve this.
Both the Charter and the Agreement will have positive long-term effects on the way the Department operates and services its clients.
[ Top Of Page ]Improved services
The year saw fundamental changes to the Department's operations in regard to clients and staff.
In the Settlement area, the provision of language services was reviewed and major administrative changes were made:
- the Translating and Interpreting Service (TIS) was streamlined so that five TIS offices (in Adelaide, Brisbane, Canberra, Darwin and Hobart) were consolidated into three administrative centres in Perth, Melbourne and Sydney.
- Adult Migrant English Program services, previously delivered by State government agencies, were contracted out to a range of service providers, including State-based providers.
A major function of the Compliance area, the management of detention centres, was transferred from the Australian Protective Service to a private sector company, Australasian Correctional Services.
The Migration Institute of Australia was appointed as the Migration Agents Registration Authority from 23 March and was given statutory powers to regulate the migration advice industry.
The Department's information technology services were also outsourced through an innovative business alliance with a private sector company, Computer Sciences Corporation (CSC) Australia.
[ Top Of Page ]Migration and Humanitarian Program
Migration Program
A major outcome was the successful delivery of the Migration Program at 67 000 places, close to its target of 68 000. Around 52 per cent of migrants entered through the Skilled Stream component, reflecting the Government's emphasis on skilled migration.
For the first time, the Minister for Immigration and Multicultural Affairs held public meetings in addition to his annual national round of migration program consultations. He met hundreds of business and community leaders in all states and territories to hear their views on the size and composition of the migrant and humanitarian intake.
Three major reviews of aspects of the Migration Program resulted in significant policy changes, including alterations to the aged parents sub-category, better targeting of the points-tested skilled migration categories to improve migrants' job prospects, and measures to enhance the integrity of the overseas student visa program while supporting the growth of this economically important temporary entry category.
The full impact of measures introduced in 1996 to increase the scrutiny of bona fides in spouse, fiancé(e) and interdependency cases became apparent in 1997–98, with a 29 per cent decline in the application rate compared with that of the previous year and a doubling of the average rate of refusals. At the same time, the Immigration Review Tribunal set aside 20 per cent fewer decisions to refuse applications.
[ Top Of Page ]Humanitarian Program
The Humanitarian Program was successfully fulfilled at 12 055 places, close to its 12 000 target. Of this number, 10 467 people were granted Humanitarian Program visas outside Australia and 1588 received Protection Visas onshore.
After consultations with the community and UNHCR, the planning level for 1997–98 was set at 12 000 places: nationally 10 000 offshore and 2000 for people seeking asylum in Australia. When it became clear that the notional allocation for asylum seekers in Australia was unlikely to be fully used, some 500 places were reallocated to the offshore component.
More than 4000 refugees were granted visas, including 543 under the Women at Risk category.
In setting regional priorities, the program continued to respond to UNHCR assessments of need for resettlement. People from the former Yugoslavia region represented 47 per cent, while those from the Middle East and Africa represented 28 per cent and 14 per cent respectively.
[ Top Of Page ]Other measures
The Department also managed one-off residency provisions for certain people who had been in Australia temporarily under humanitarian arrangements and who had remained for some time with their status unresolved. These applied to people whose countries of origin were Iraq, Kuwait, Lebanon, the People's Republic of China, Sri Lanka and the former Yugoslavia region.
About 6570 people applied and it is expected that most applications will be finalised by March 1999.
[ Top Of Page ]Litigation and review
The Department implemented a range of measures to respond quickly to applications from genuine asylum seekers while dealing appropriately with applications from those seeking to lengthen their stay in Australia and gain access to benefits.
The measures included introduction of a $1000 fee for Refugee Review Tribunal reviews of protection visa decisions, payable when the RRT has affirmed the primary decision; making work rights available only to asylum seekers who have applied for a protection visa within 45 days of entry; and limiting to 21 days the period in which the applicant may seek review by the Migration Internal Review Office (MIRO) or the Immigration Review Tribunal (IRT).
Further legislative measures to speed merits review processes were awaiting consideration by the Senate on 30 June 1998. These include merging MIRO and the IRT to form a new independent review body and providing statutory codes of procedure under which the tribunals will conduct reviews.
Reforms to judicial review procedures were also awaiting the Senate's consideration. These included the insertion of a privative clause into the Migration Act 1958 to speed up litigation.
Over 1000 applications were lodged by people seeking review of decisions before the Federal Court and the Administrative Appeals Tribunal (AAT). However, productivity kept pace with the rate of new applications, as reflected in the number of cases dealt with. The portfolio's success rate before the courts and the AAT remained high.
[ Top Of Page ]Border management and compliance
The Department undertook an increased level of compliance activity during the year, reflecting the Government's commitment to protecting the integrity of Australia's borders.
Monitoring and managing huge numbers of passengers, including the detection of unauthorised arrivals or people of concern to the Government, is a major component of the border control function.
The scope of the task is illustrated by the number of passenger movements monitored – in 1997–98, some 14.9 million passengers entered and left Australia, including 8.4 million visitors. Ninety-five per cent of passengers were cleared through immigration within 30 minutes of arrival.
Foreign nationals of concern are largely identified by checking the Department's Movement Alert List (MAL). In 1997–98, MAL was upgraded, including the installation of new name-matching computer software. Alerts are now categorised by risk and greater resources are devoted to detecting those who pose the greatest risk to the community.
Airport staff intercepted 626 passengers of concern outside Australia, compared with 436 the previous year, and refused entry to 1555 passengers with irregular travel documents (1350 in 1996–97).
A significant increase in unauthorised air arrivals – 1550 compared with 1347 in 1996–97 – posed a new challenge to the Department. Additional funding allocated in the May 1998 Budget will allow more resources to be directed to stemming this tide at its source.
Considerable success was achieved in reducing the number of unauthorised boat arrivals, largely through ongoing dialogue with source countries. In all, 159 boat people arrived in 1997–98, compared with 365 in 1996–97. As a result, boat arrival detention days fell to 29 836 compared with 89 057 in 1996–97.
1997–98 also saw the Electronic Travel Authority (ETA) become widely accepted as a means of obtaining authority to travel to Australia; more than 70 per cent of short-term visas were issued as ETAs world-wide. By the end of 1997–98, some 94 per cent of all visas for ETA-eligible nationals were issued as ETAs.
[ Top Of Page ]Compliance
The number of overstayers was some 51 000 at 31 December 1997, compared with 41 100 at 30 June 1996. This appears to have resulted from a significant rise in the number of temporary entrants and the cancellation of bridging visas following faster processing of Protection Visa applications.
Significantly, the Department located 12 679 overstayers, 23 per cent more than in the previous year, after a nation-wide increase in field operations directed particularly against people working in breach of their visa conditions.
The average number of days in detention dropped from 60.6 in 1996–97 to 44.8 in 1997–98 due to a reduction in processing times and greater efficiency in the removal of people who have exhausted all avenues to remain in Australia.
The Budget included funds for major redevelopment of the Villawood Detention Centre in Sydney.
[ Top Of Page ]International
The Department continued to use its participation in international forums to further Australia's interests in strategic areas. In particular, the Department closely monitored developments in Asia and their potential impact on orderly and irregular migration in the region. It responded by, among other things, quickly directing significant additional short-term resources to Indonesia in May 1998.
The events in Asia highlighted the value of the Inter-Governmental Asia-Pacific Consultations on Refugees, Displaced Persons and Migrants (APC) as a regional forum committed to developing strategies of prevention and preparedness. The Department continued to demonstrate its strong support for the APC through active participation and financial support.
[ Top Of Page ]Multicultural Affairs
Multicultural Affairs continued to be a major priority area.
The Department assisted the National Multicultural Advisory Council in its compilation of a report for the Government on future directions in multiculturalism. The Council launched an issues paper, Multicultural Australia: The Way Forward, to initiate discussion in the community and received extensive public input. The report is expected to be completed before the end of 1998.
Work continued on the development of the Anti-Racism Campaign, which was subsequently launched, in August 1998, on the theme 'Living in Harmony'.
The Department provided advice to other portfolios on implementing The Charter of Public Service in a Culturally Diverse Society across the Commonwealth.
Significant progress was made in promoting Productive Diversity principles in the private sector. Initiatives included seminars and the production of an information kit.
[ Top Of Page ]Settlement strategies
Notable achievements were made under the National Integrated Settlement Strategy (NISS), the policy and planning framework for the delivery and coordination of settlement services at all levels of government and in the community. New or updated settlement plans were launched in Queensland, Western Australia, Tasmania, the ACT, the Riverina and Albury-Wodonga and the Victorian and Northern Territory plans were evaluated.
The Integrated Humanitarian Settlement Strategy (IHSS) was enhanced to take a more holistic approach to settlement services for Humanitarian Program arrivals.
The year saw additional funding and innovative partnerships with non-government organisations for the development of early intervention strategies to meet the special needs of refugees.
Reviews of the Community Settlement Services (CSS) Scheme and the Migrant Resource Centre (MRC) network led to the signing of new agreements placing more emphasis on accountability for service outcomes. Of 32 MRCs, funding of one was terminated and action was being considered in relation to another which was found to be in serious breach of its undertakings. Action was well advanced to establish new migrant service agencies in the Sydney and Melbourne regions.
[ Top Of Page ]Citizenship
While the number of applications for citizenship declined, the number of conferrals increased from 108 266 in 1996–97 to 112 343. More than 97 per cent of applications were approved.
Of the new citizens, about 23 000 were from Britain, 21 000 from the People's Republic of China and 8800 from New Zealand.
The Department is planning a series of events to mark the 50th anniversary of Australian citizenship in 1999.
[ Top Of Page ]Client services
The Client Service Charter commits the Department to performance standards in such areas as explanations of decisions and information on review rights, response times for requests for forms and information, expected waiting times for across-the-counter transactions and acknowledgment times for document lodgment.
An important feature of the Charter is a clear and simple complaints-handling mechanism. The different operating environments in the Department's offices in Australia and overseas are also reflected in the Charter.
[ Top Of Page ]Information activities
During 1997–98 the Department produced Australian Immigration: the Facts, an information kit aimed at overcoming misinformation about immigration as well as airing issues associated with Australia's cultural diversity.
The kits were sent to more than 15 000 people and institutions, to foreign diplomats in Australia, to all our missions overseas and to individuals on request. Internet access to the kit averaged 800 hits a week.
This kit complemented the 70 Fact Sheets which relate to all areas of the portfolio's policies and programs.
The Department's Internet home page was expanded and settlement information kits were added. As the year closed, work was near completion to add all relevant public information and application forms.
The Adult Migrant English Program (AMEP) celebrated its 50th anniversary and the Department held activities throughout Australia to mark the half-century of service to the community that the program has provided.
[ Top Of Page ]Workplace issues
The Financial Management and Accountability Act 1997 went into effect on 1 January, increasing financial accountability and flexibility for individual agencies. This required review and reissue of the Department's financial operating instructions.
The Workplace Relations Act 1996 brought new requirements and opportunities. Australian Workplace Agreements for members of the Senior Executive Service (SES) and some other staff were developed.
A Certified Agreement under the Act was negotiated between the Department and the Community and Public Sector Union, with significant staff input. It received an 88 per cent approval rating by the 78 per cent of staff who voted, and it was certified on 16 July 1998.
The Agreement provides for a 7.5 per cent pay rise over 32 months. It allows staff to balance work and personal commitments by offering flexible work and leave arrangements. Savings will be delivered through a reduction in the overtime bill, changes to higher duties allowance and the removal of paid study leave, although eligibility for studies assistance has been expanded.
The Agreement will recognise staff performance and encourage them to improve service to clients by offering recognition and rewards.
A National Staff Consultative Forum will give staff an opportunity to suggest better ways of meeting clients' needs.
[ Top Of Page ]Conclusion
1997–98 was a year of change requiring major adjustments. New work practices were negotiated successfully, some functions previously performed or managed by staff were outsourced, and others were regrouped into new divisions.
Targets were, and continue to be, met and planning was well under way to cater for emerging challenges, including the considerable demands associated with the Olympic and Paralympic Games.
I take this opportunity to record my appreciation, and that of all the officers of DIMA, of the many services rendered by my predecessor, Ms Helen Williams AO. Since I was appointed Secretary of DIMA in February 1998 I have come to appreciate keenly the professionalism, creativity and dedication of the Department's officers in dealing with their responsibilities in this complex and demanding portfolio. They serve the Government, and the Australian people, well.