Developments in Australian Refugee Law and Policy 2007-10 Labor's First Term in Office

Parliament of Australia Department of Parliamentary Services
BACKGROUNDNOTE
18October2010
DevelopmentsinAustralianrefugeelawandpolicy200710 Laborsfirstterminoffice
ElibrittKarlsen LawandBillsDigestSection
Contents
Introduction.............................................................................................................................................1 Chronologyofkeyevents........................................................................................................................4 PARTILEGISLATION..............................................................................................................................7 MigrationLegislationAmendmentAct(No.1)2008...........................................................................7 MigrationAmendmentRegulations2008(No.5)..............................................................................8 MigrationAmendment(NotificationReview)Act2008.....................................................................9 MigrationLegislationAmendmentAct(No.1)2009...........................................................................9 MigrationAmendment(AbolishingDetentionDebt)Act2009........................................................10 MigrationAmendment(ProtectionofIdentifyingInformation)Act2009........................................11 AustralianCitizenshipAmendment(CitizenshipTestReviewandOtherMeasures)Act2009.........11 MigrationAmendmentRegulations2009(No.6).............................................................................12 AntiPeopleSmugglingandOtherMeasuresAct2010 ....................................................................12 . ProposedLegislation..............................................................................................................................13 MigrationAmendment(ImmigrationDetentionReform)Bill2009.................................................13 MigrationAmendment(ComplementaryProtection)Bill2009.......................................................13 PARTIIPOLICYREFORMANDOTHERCOMMITMENTS.......................................................................14 Cessationofextraterritorialprocessingofasylumclaims...............................................................14 Immigrationdetention .....................................................................................................................15 . Commentary...........................................................................................................................17 ExcisionandoffshoreprocessingonChristmasIsland.....................................................................17
Commentary...........................................................................................................................19 SuspensionofprocessingAfghanandSriLankanasylumseekers...................................................19 Commentary...........................................................................................................................21 Proposalforaregionalprocessingcentre........................................................................................22 RefugeeReviewTribunal..................................................................................................................23 Meritbasedappointments..........................................................................................................23 Commentary...........................................................................................................................24 Publicationofcountryoforiginresearch....................................................................................24 Publicationofdecisions...............................................................................................................24 Multiyearresettlementplanning....................................................................................................25 Commonwealthbudgetcommitments ............................................................................................26 . 200809financialyear...............................................................................................................26 200910financialyear...............................................................................................................26 201011financialyear...............................................................................................................27 PARTIIICASELAW...............................................................................................................................28 Commentary...........................................................................................................................31 AppendixIFederalParliamentaryInquiries........................................................................................31 JointStandingCommitteeonMigration...........................................................................................31 ImmigrationdetentioninAustralia.............................................................................................31 Firstreport:Criteriaforreleasefromdetention....................................................................32 Commentary...........................................................................................................................33 Secondreport:Communitybasedalternativestodetention................................................33 Commentary...........................................................................................................................34 Thirdreport:Facilities,servicesandtransparency ................................................................34 . Inquiryintomigrationtreatmentofdisability.............................................................................36 Commentary...........................................................................................................................37 JointStandingCommitteeonPublicWorks.....................................................................................37 TheChristmasIslandImmigrationDetentionCentreProject.....................................................37 RedevelopmentoftheVillawoodimmigrationdetentionfacility...............................................38 AppendixIIIndependentReports.......................................................................................................39 AustralianHumanRightsCommission..............................................................................................39
2007Immigrationdetentionreport............................................................................................39 2008Immigrationdetentionreport............................................................................................41 2009ImmigrationdetentionandoffshoreprocessingonChristmasIsland...............................42 CommonwealthOmbudsman...........................................................................................................43 Notificationofdecisionsandreviewrightsforunsuccessfulvisaapplications ..........................43 . Reportingonpeopleinlongtermimmigrationdetention .........................................................43 . AustralianNationalAuditOffice.......................................................................................................44 SettlementGrantsProgram.........................................................................................................44 ConstructionoftheChristmasIslandImmigrationDetentionCentre ........................................45 . Commentary...........................................................................................................................46 UnitedNationsHumanRightsTreatyBodies...................................................................................46 CommitteeagainstTorture.........................................................................................................46 HumanRightsCommittee...........................................................................................................47 AppendixIIIKeyResearchandPublications.......................................................................................48
DevelopmentsinAustralianrefugeelawandpolicy20072010
Introduction
thepasttwoyearshasseenthemostpositiveandfarreachingchangeinAustralianhistoryto policiesrelatingtoasylumseekers. 1
On24November2007,theAustralianLaborParty(ALP)wonthefederalelection,defeatingthe CoalitionGovernmentwhichhadbeeninpowerfornearlytwelveyears.KevinRuddwassworninas Australias26thPrimeMinisteron3December2007.TheALPNationalPlatform,whichwasformally adoptedinApril2007,representedthepartyslongtermaspirationsforAustralia. 2 Inrelationto immigration,theALPambitiouslyresolvedtoimplementsignificantchangesforasylumseekersand refugeesifelected.Mostnotably,toendthesocalledPacificSolution;togivepermanent,not temporary,protectiontoallrefugees;tolimitthedetentionofasylumseekersforthepurposesof conductinginitialhealth,identityandsecuritychecks;tosubjectthelengthandconditionsof detentiontoreview;tovestmanagementofdetentioncentreswiththepublicsector;toretainthe excisionofChristmasIsland,CocosIslandsandAshmoreReef;andtocreateanewRefugee DeterminationTribunal. 3 Intheareaofrefugeepolicythekeythemesoftheplatformwere humanity,fairness,integrityandpublicconfidence. 4 ReflectingontheGovernmentsfirstyearinpower,thethenMinisterforImmigrationand Citizenship,ChrisEvans,notedLaborwaselectedonaplatformofchange. 5 Oneofthefirstthings thenewlyelectedLaborGovernmentdidupontakingofficewastostopprocessingasylumclaimsin thesmallPacificIslandStateofNauruwhichthethenMinisterdescribedasashamefuland wastefulchapterinAustraliasimmigrationhistory. 6 However,inretainingtheformerCoalition Governmentsexcisionpolicy(whichremovestherightofasylumseekerstoapplyforavisa)anduse ofitspurposebuiltimmigrationreceptionandprocessingcentreonChristmasIsland,the GovernmentattractedcriticismfromrefugeeadvocacygroupsandacademicsalikeAdjunct ProfessorMichaelWhitebeingoftheviewthatLaborsnewapproachdidnotfundamentallyalter AustraliaspreviousimmigrationpolicyandmanyfeaturesofthePacificSolutionremained. 7
1. PPower(CEORefugeeCouncilofAustralia),WhichWayForward?Refugee,SecurityandtheAsiaPacific,Speechto ALPNationalConferenceFringeEvent,31July2009,viewed9February2010, http://www.refugeecouncil.org.au/docs/resources/0907_ALP_Fringe.pdf AustralianLaborParty(ALP),2007PolicyPlatformandConstitution,Chapter13:RespectingHumanRightsandaFair GoforAll,p.2,viewed30November2009,http://pandora.nla.gov.au/pan/22093/20071124 0102/www.alp.org.au/download/now/2007_national_platform.pdf Ibid.,paragraphs151161. CEvans,RefugeepolicyundertheRuddgovernmentthefirstyear:AddresstotheRefugeeCouncilofAustralia, 17November2008,viewed23March2010,http://www.minister.immi.gov.au/media/speeches/2008/ce081117.htm Ibid. CEvans,Addresstothe2008NationalMembersConferenceoftheMigrationReviewTribunalandRefugeeReview Tribunal,29February2008,viewed8September2010, http://www.chrisevans.alp.org.au/news/0208/immispeeches2901.php MWhite,AustralianOffshoreLaws,FederationPress,Sydney,2009,p.154.
2.
3. 4. 5. 6.
7.
In2008,theGovernmenttookaboldanddecisivestandwithregardtoabolishingtemporary protectionvisasandgrantingrefugeespermanentresidencyasignificantregulatorychangewhich appearedtolargelygoundertheradarasitoccurred.Italsointroducedanewpolicywithrespectto immigrationdetentionsevenvaluesthatwouldguideanddrivenewdetentionpolicyandpractice intothefuture. 8 Thoughasylumseekersarrivingwithoutdocumentationwouldbesubjectto mandatorydetention,theywouldhenceforthreceivepubliclyfundedadviceandassistance,access toindependentreviewofunfavourabledecisionsandexternalscrutinybytheCommonwealth Ombudsman. 9 2009sawtheintroductionoftwoBillsthatproposedtomakeimportantand,inthecaseofthe latterlongawaitedreformstotheMigrationAct1958(theMigrationAct).Firstly,theMigration Amendment(ImmigrationDetentionReform)Bill2009whichwouldsupporttheimplementationof theGovernmentsnewdetentionpolicyandformallyintroducediscretionarydetentionintothe MigrationAct.Secondly,theMigrationAmendment(ComplementaryProtection)Bill2009which wouldintroduceaformalstatutoryregimeforprocessingasylumclaimsthatmayengageAustralias nonrefoulement(nonreturn)obligationsundervariousinternationalhumanrightstreaties. However,neitheroftheseBillshadbeendebatedbeforeParliamentwasproroguedinJulyforthe 2010Federalelectionandhaveaccordinglynowlapsed. 2010wasasignificantyearofcontroversialrefugeepolicyreformfortheGovernment.InAprilit announcedtheimmediatesuspensionofprocessingnewasylumclaimsfromAfghanistanandSri Lankaduetothechangingcircumstancesinbothcountries.FollowingachangeinleadershipinJuly, newlyappointedPrimeMinisterGillardalsoannouncedplanstoestablisharegionalprocessing centreforasylumseekers.However,theextenttowhichthisinitiativewillultimatelybesuccessful maylargelydepend(amongstotherthings)ontheabilityofthecurrentGovernmenttomeaningfully andeffectivelydistanceitselffromtheformerGovernmentsPacificSolutionwhichithas consistentlyandvehementlycriticisedthroughoutitsfirstterminoffice. ThisBackgroundnoteprovidesasnapshotofsignificantdevelopmentsinAustralianrefugeelawand policyunderLaborsfirstterminoffice. 10 Itbeginsbyprovidingachronologyofkeyeventsfrom November2007,whentheALPwonthe2007federalelectiontoJuly2010,whenParliamentwas proroguedforthe2010federalelection.PartIprovidesanoverviewof,andlinkstolegislation (includingproposedlegislationandnoteworthyregulatorychange).PartIIoutlinessignificantpolicy reformsandothercommitments,whilePartIIIcontainsabriefoverviewofsignificantHighCourt judgmentsdeliveredduringtheperiod.
CEvans,NewDirectionsinDetention,RestoringIntegritytoAustraliasImmigrationSystem,Speechgivenatthe AustralianNationalUniversity,29July2008,viewed3December2009, http://www.chrisevans.alp.org.au/news/0708/immispeeches2901.php 9. Ibid. 10. Seealso:SHarrisRimmer,Recentdevelopmentsinrefugeeandimmigrationlaw2005,Ebrief,ParliamentaryLibrary, Canberra,2005,viewed13September2010, http://www.aph.gov.au/library/intguide/law/refugeeandimmigrationlaw.htm;NHancock,RefugeeLawRecent LegislativeDevelopments,Currentissuesbriefno.5,200102,ParliamentaryLibrary,Canberra,2001,viewed 13September2010,http://www.aph.gov.au/library/pubs/cib/200102/02cib05.htm 8.
Inordertounderstandtheselegalandpolicydevelopmentsincontext,AppendixIandIIare includedwhichtogetherprovideanoverviewoffederalparliamentaryinquiriesandother independentreportsthatwerereleasedduringthistime.Forcompleteness,AppendixIIIprovidesa chronologicallistofkeyresearchandpublications.
Chronologyofkeyevents
2007
24Nov2007AustralianLaborPartyledbyKevinRuddMPdefeatstheCoalitionGovernmentled byJohnHowardMPinthefederalelection. 3December2007KevinRuddsworninasAustralias26thPrimeMinister. 3 December 2007Senator the Hon Chris Evans swornin as Minister for Immigration and CitizenshipandLaurieFergusonMPsworninasParliamentarySecretaryforMulticulturalAffairs andSettlementServices. 6December2007SenatortheHonChrisEllisonappointedShadowMinisterforImmigrationand Citizenship and Louise Markus MP appointed Shadow Parliamentary Secretary for Immigration undertheleadershipofBrendanNelsonMP.
2008
8February2008lastremainingasylumseekersonNauruarriveinAustraliaendingtheHoward GovernmentscontroversialPacificSolution. 11 29July2008MinisterforImmigrationandCitizenshipannouncesNewDirectionsinDetention policy. 12 13 August 2008a delegation of agencies including UNHCR, the Australian Human Rights Commission, the Commonwealth Ombudsman, Amnesty International and a number of non governmentorganisationsinspectthenewlycompletedChristmasIslandImmigrationDetention Centre. 23 September 2008Dr Sharman Stone MP appointed Shadow Minister for Immigration and CitizenshipandSenatorConcettaFierravantiWellsappointedasShadowParliamentarySecretary forImmigrationundertheleadershipofMalcolmTurnbullMP. 20December2008ChristmasIslandsNorthWestPointdetentioncentreopened. 13
2009
16 April 2009explosion aboard SIEV (Suspected Illegal Entry Vessel) 36 killing five asylum seekers and injuring many others. Northern Territory Coroners report into the incident (delivered on 17 March 2010) concluded that a group of passengers mistakenly believed they
11. CEvans(MinisterforImmigrationandCitizenship),LastRefugeesLeaveNauru,mediarelease,8February2008, viewed12February2010,http://www.chrisevans.alp.org.au/news/0208/immimediarelease0801.php 12. CEvans,NewDirectionsinDetention,RestoringIntegritytoAustraliasImmigrationSystem,op.cit. 13. ACaldwell,OpeningofnewChristmasIslanddetentioncentre,19December2008,ABCAM,viewed13September 2010,http://www.abc.net.au/am/content/2008/s2450785.htm
were to be returned to Indonesia and thus set fire to the vessel to ensure they could not be returned. 14
13 August 2009advisory board appointed to guide the newly established Office of the MigrationAgentsRegistrationAuthority(MARA).Theboardwillcompriserepresentativesofthe MigrationInstituteofAustralia(MIA),theLawCouncilofAustralia,andcommunityandconsumer advocates. 15 9 October 2009establishment of the Council for Immigration Services and Status Resolution (CISSR) announced to replace the Immigration Detention Advisory Group (IDAG). It will provide independent advice on the implementation of policy initiatives such as the New Directions in DetentionandtheCommunityStatusResolutionService. 16 11October2009aboatreportedlycarrying254SriLankanasylumseekerswasinterceptedby IndonesianofficialsenroutetoChristmasIslandfollowingapersonalrequestbyPrimeMinister Rudd to the Indonesian President. The boat was subsequently taken to the Port of Merak in Indonesia. On 20 April 2010, a six month standoff came to an end when the last of the passengersagreedtodisembarkandbeprocessedinIndonesia. 18October2009SriLankanasylumseekersrescuedatseaintheIndonesiansearchandrescue zone by HMAS Armidale. 56 people refuse to disembark the Australian customs vessel, the OceanicVikingandgotoadetentioncentreinTanjungPinangonBintanIslandinIndonesia.The Governmentreportedlyoffersthosefoundtoberefugeeswillberesettledwithinfourweeks.On 18November2009,theremainingasylumseekersagreetodisembark,endingafourweekstand off. 13November2009Coalitionannouncescoreprinciplesofitsborderprotectionpolicy,including a nonpermanent safe haven visa for asylumseekers that arrive without authorisation, and offshoreprocessingatChristmasIsland. 17 25 November 2009Government announces that since September 2008, there have been 23 personsconvictedofpeoplesmugglingoffencesinAustraliabringingthetotalnumberofpeople
14. InquestintothedeathofMohammedHassanAyubi,MuzafarAliSefarali,MohammedAmenZamen,AwarNadar, BaquerHusani[2010]NTMC014,viewed13September2010, http://www.navy.gov.au/w/images/NT_Coroner%27s_Report.pdf 15. CEvans(MinisterforImmigrationandCitizenship),Advisoryboardappointedtoguidenewmigrationagent regulator,mediarelease,13August2009,viewed13September2010, http://www.minister.immi.gov.au/media/mediareleases/2009/ce09072.htm 16. CEvans(MinisterforImmigrationandCitizenship),Ministerannouncesnewimmigrationadvisorycouncil,media release,9October2009,viewed13September2010,http://www.minister.immi.gov.au/media/media releases/2009/ce09094.htm 17. MTurnbull(thenLeaderoftheOpposition),Coalitionsstrongstandonborderprotection,mediarelease, 13November2009,viewed13September2010, http://archive.malcolmturnbull.com.au/Media/MediaReleases/tabid/90/articleType/ArticleView/articleId/669/Coalit ionsStrongStandonBorderProtection.aspx
chargedbytheAustralianFederalPolice(AFP)withpeoplesmugglingoffencessinceSeptember 2008to63. 18
8 December 2009Scott Morrison MP appointed Shadow Minister for Immigration and Citizenship and Senator Gary Humphries appointed Shadow Parliamentary Secretary for CitizenshipundertheleadershipofTonyAbbottMP.
2010
3April2010TheHonTonyBourkeMPappointedAustraliasfirstMinisterforPopulation.This positionwasrenamedMinisterforSustainablePopulationon28June2010. 9April2010theGovernmentannouncesanimmediatesuspensionontheprocessingofallnew applications from asylum seekers from Sri Lanka and Afghanistan due to the changing circumstancesinbothcountries.ThesuspensiononprocessingasylumclaimsfromSriLankawas liftedon6July2010andAfghanistanon30September2010. 19 18April2010MinisterforImmigrationandCitizenshipannouncesthattheCurtinAirforcebase in Western Australia will be used to accommodate single males who are subject to the Governments decision to suspend the processing of asylum applications from Sri Lanka and Afghanistan. 20 27May2010Coalitionannouncesthatitwouldturnbackboats/andortheirpassengerstotheir point of departure or an alternative third country where circumstances permit, enter into negotiationswithothercountriesforprocessingcentrestobeestablishedoffshoreifChristmas Islandisbeyonditscapacity,restoretemporaryprotectionvisas,requireaccesstobenefitstobe subjecttosatisfyingmutualobligationrequirements,andrestorethe45dayrule. 21 24June2010JuliaGillardsworninasAustralias27thPrimeMinister. 6 July 2010Prime Minister Gillard announces in her first major policy speech that the Government has begun having discussions with regional neighbours about the possibility of
18. BOConner(MinisterforHomeAffairs),PeoplesmugglerschargedbyAFP,mediarelease,25November2009,viewed 13September2010, http://www.ag.gov.au/www/ministers/oconnor.nsf/Page/MediaReleases_2009_FourthQuarter_25November2009 PeopleSmugglersChargedbyAFP 19. SSmith(MinisterforForeignAffairs),CEvans(MinisterforImmigrationandCitizenship),andBOConner(Minister forHomeAffairs),ChangestoAustraliasimmigrationprocessingsystem,mediarelease,9April2010,viewed 8September2010,http://www.foreignminister.gov.au/releases/2010/fas100409.html 20. CEvans(MinisterforImmigrationandCitizenship),Curtintoholdsuspendedasylumseekers,mediarelease,18April 2010,viewed13September2010,http://www.chrisevans.alp.org.au/news/0410/immimediarelease1801.php 21. Coalition,Policydirectionsstatement:Restoringsovereigntyandcontroltoourborders,27May2010,LiberalParty website,viewed13September2010, http://www.liberal.org.au/~/media/Files/Policies%20and%20Media/National%20Security/100527%20Coalition%20B order%20Protection%20Policy%20Directions%20Document.ashx.Foranexplanationofthe45dayruleseediscussion underthesubheadingMigrationAmendmentRegulations2009(No.6).
establishing a regional processing centre for the purpose of receiving and processing irregular entrantstotheregion. 22
6July2010Coalitionannounces thatitwould createapresumptionagainstawardingrefugee statusifanasylumseekerhasdiscardedtheiridentitypapers,itwouldabolishthemeritsreview panel and give the Minister power to directly intervene in the decisionmaking process on ChristmasIsland.Itwouldalsoincreasethenumberofrefugeeresettlementplaceseachyearby 1500 persons (but retain the total number of places under the Refugee and Humanitarian Programat13750places)andtrialarefugeesponsorshipprogramtoenablegroupsinAustralia toprivatelysponsorrefugees(abovetheregularintake). 23 19July201042ndParliamentproroguedandtheHouseofRepresentativesdissolved.Ageneral electionfortheHouseofRepresentativesandhalfoftheSenateheldon21August2010.
PARTILEGISLATION
MigrationLegislationAmendmentAct(No.1)2008
On25June2008,theMigrationLegislationAmendmentBill(No.1)2008wasintroducedinto Parliament. 24 ThepurposeofthisomnibusBillwastoclarifyandimprovetheeffectivenessof migrationandcitizenshiplegislationrelatingtojudicialandmeritsreview,borderprotection,visa integrity,citizenship,andothermiscellaneousmatters.Ofparticularrelevancetothecurrent context,itspurposewasto:
streamlinetheproceduresfornotifyingpartiesofadecisionoftheMigrationReviewTribunaland theRefugeeReviewTribunal(RRT)by,amongstotherthings,removingtherequirementforthe tribunalstohanddowntheirdecisions givegreatercertaintytotheimmigrationstatusandimmigrationclearanceofnoncitizenchildren borninAustralia ensure that a security may be imposed for compliance with visa conditions before grant and a rangeofotheramendmentstoclarifytheoperationofcertainprovisionsrelatingtobridgingvisas moreeffectivelyharmoniseanumberofpeoplesmugglingoffenceswiththeCriminalCode providethatsubjecttocertainrequirementstheMinisterisnotobligedtogivedocumentstoan authorisedrecipientiftheauthorisedrecipientisnotaregisteredmigrationagent,and
22. JGillard,MovingAustraliaforward,SpeechgivenattheLowyInstituteon6July2010,viewed8September2010, http://www.lowyinstitute.org/Publication.asp?pid=1328 23. Coalition,TheCoalitionsrealactionplanforrestoringintegrityandfairnesstorefugeedecisionmaking,media release,6July2010,viewed13September2010,http://www.liberal.org.au/LatestNews/2010/07/06/The Coalitionsrealactionplanforrestoringintegrityandfairnesstorefugeedecisionmaking.aspx 24. MigrationLegislationAmendmentBill(No.1)2008,APHwebsite,viewed18January2010, http://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;query=Id%3A%22legislation%2Fbillhome%2Fs641%2 2
ensure consistency with Australias obligations under the United Nations Convention on the Reduction of Statelessness 1961 and the United Nations Convention Relating to the Status of StatelessPersons1954. 25
TheBillsDigestexaminestheBillinfurtherdetail. 26 TheBillwaspassed(withminoramendments movedonbehalfoftheGovernment)on4September2008andbecameActNo.85,2008. 27
MigrationAmendmentRegulations2008(No.5)
On9August2008,theMigrationAmendmentRegulations2008(No.5)SLI2008No.168cameinto force. 28 Nomotionsofdisallowanceweremoved.Thepurposeoftheamendment(amongstother things)wastoabolishtemporaryprotectionvisas,secondarymovementvisasandremovethe7day rule. 29 AsexplainedintheaccompanyingExplanatoryStatement:
TheRegulationsensurethatapersontowhomtheMinisterissatisfiedAustraliaowesprotection obligationsunderthe1951ConventionrelatingtotheStatusofRefugeesasamendedbythe 1967ProtocolrelatingtotheStatusofRefugees(theRefugeesConvention),iseligibleforgrant ofapermanentprotectionvisaintheformofaSubclass866(Protection)visa,regardlessoftheir modeofarrivalinAustraliaorwhethertheyhavepreviouslyheldavisa.TheRegulationsalso removethe7dayrulefrompermanentprotectionandpermanenthumanitarianvisaswhich requiresthatsincelastleavingtheirhomecountry,applicantsmustnothaveresidedfora continuousperiodof7daysormoreinacountryinwhichtheycouldhavesoughtandobtained effectiveprotection.Finally,theRegulationsallowfortheholdersoftemporaryprotectionand temporaryhumanitarianvisasandinsomeinstancestheformerholdersofthesevisas,tohave theirstatuspermanentlyresolvedthroughthegrantofanewpermanentvisawithouttheneed forareassessmentofwhetherAustraliaowesthatpersonprotectionobligationsunderthe RefugeesConvention.30
25. ExplanatoryMemorandum,MigrationLegislationAmendmentBill(No.1)2008,pp.23. 26. EKarlsen,MigrationLegislationAmendmentBill(No.1)2008,Billsdigest,no.8,200809,ParliamentaryLibrary, Canberra,2008,viewed28January2010,http://www.aph.gov.au/Library/pubs/bd/200809/09bd008.pdf 27. MigrationLegislationAmendmentAct(No.1)2008,Comlawwebsite,viewed19January2010, http://www.comlaw.gov.au/comlaw/Legislation/Act1.nsf/asmade/bynumber/321228940A5627EFCA2574CB007A110 2?OpenDocument 28. MigrationAmendmentRegulations2008(No.5),Comlawwebsite,viewed19January2010, http://www.comlaw.gov.au/ComLaw/Legislation/LegislativeInstrument1.nsf/0/7E51086BF06E4F74CA25749D000908 7D?OpenDocument 29. Subclass447(SecondaryMovementOffshoreEntry(Temporary))andSubclass451(SecondaryMovementRelocation (Temporary))visaswerepreviouslygrantedtoasylumseekersprocessedonNauru. 30. ExplanatoryStatement,MigrationAmendmentRegulations2008(No.5),p.1,viewed28January2010, http://www.comlaw.gov.au/ComLaw/Legislation/LegislativeInstrument1.nsf/0/903C20E5D7A8D293CA25749E00248 01F/$file/F2008L03024.pdf
MigrationAmendment(NotificationReview)Act2008
On4September2008,theMigrationAmendment(NotificationReview)Bill2008wasintroduced intoParliament. 31 ThepurposeoftheBillwastoamendtheMigrationActtoprovidegreaterclarity andcertaintytosomeofthenotificationprocedurescontainedtherein.Inparticular:
Providethatsubstantialcompliancewiththerequiredcontentsofanotificationdocumentis sufficientunlesstherecipientisabletoshowtheerrororomissioninthedocumentcausesthem substantialprejudice;and Providethedeemedtimeofnotificationprovisionswilloperatedespitenoncompliancewitha proceduralrequirementforgivingadocumenttoanindividualwheretheindividualhasactually receivedthedocumentunlesstheindividualisabletoshowtheyreceivedthedocumentata laterdateinwhichcasetheywillbetakentohavereceivedthedocumentatthatdate.32
TheBillsDigestexplainstheBillinfurtherdetail. 33 TheBillwaspassedon14October2008(with amendmentsmovedonbehalfoftheGovernment)andbecameActNo.112,2008. 34
MigrationLegislationAmendmentAct(No.1)2009
On3December2008,theMigrationLegislationAmendmentBill(No.2)2008wasintroducedinto Parliament. 35 ThepurposeoftheBillwastoamendprovisionsoftheMigrationActthatrelatetothe wayinwhichtheMigrationandRefugeeReviewTribunalsconducttheirmeritsreviewandthetime limitforlodgingapplicationsforjudicialreviewofmigrationdecisions.Inparticular:
clarifythattheMigrationReviewTribunalandtheRefugeeReviewTribunalmayinviteaperson togiveinformation,eitherorally(includingbytelephone)orinwriting, reinstateeffectiveanduniformtimelimitsforapplyingforjudicialreviewofamigrationdecision intheFederalMagistratesCourt,FederalCourtandHighCourt,and
31. MigrationAmendment(NotificationReview)Bill2008,APHwebsite,viewed19January2010, http://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;query=Id%3A%22legislation%2Fbillhome%2Fr3064% 22 32. ExplanatoryMemorandum,MigrationAmendment(NotificationReview)Bill2008,p.3. 33. EKarlsen,MigrationAmendment(NotificationReview)Bill2008,Billsdigest,no.18,200809,ParliamentaryLibrary, Canberra,2008,viewed18January2010,http://www.aph.gov.au/Library/pubs/bd/200809/09bd018.pdf 34. MigrationLegislationAmendmentAct(No.1)2009,Comlawwebsite,viewed19January2010, http://www.comlaw.gov.au/comlaw/Legislation/Act1.nsf/0/86FD868136447B91CA2574FC007FB798?OpenDocumen t 35. MigrationLegislationAmendmentBill(No.2)2008,APHwebsite,viewed19January2010, http://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;query=Id%3A%22legislation%2Fbillhome%2Fs704%2 2
limit appeals against judgments by the Federal Magistrates Court and the Federal Court that makeanorderorrefusetomakeanordertoextendtimetoapplyforjudicialreviewofmigration decisions. 36
TheBillsDigestexplainstheBillinfurtherdetail. 37 TheBillwaspassedon12February2009and becameActNo.10,2009. 38
MigrationAmendment(AbolishingDetentionDebt)Act2009
On17June2009,theMigrationAmendment(AbolishingDetentionDebt)Bill2009wasintroduced intoParliament. 39 ThepurposeoftheBillwastoamendtheMigrationActtoremovethe requirementthatcertainpersonsheldinimmigrationdetentioninAustraliabeliableforthecostsof theirdetention.TheBillwouldalsoextinguishallimmigrationdetentiondebtsoutstandingatthe timeofcommencementofthelegislation. InthepresentcontextitisworthnotingthatitwasDepartmentalpolicytowriteoffthedetention debtofapersonheldindetentionandsubsequentlyfoundtobearefugee:
ThedepartmentrecognisestheRefugeeConventionof1951nottopenaliseasylumseekers, includingthoseholdingvisassuchasTemporaryProtection,ProtectionorSpecialGlobal Humanitarian.Intheseinstances,thedepartmentrecordsthedebtbutdoesnotissueaninvoice orpursuethedebt.Thesedebtsarewrittenoff. 40
TheBillsDigestexplainstheBillinfurtherdetail. 41 TheBillwaspassedon8September2009and becameActNo.85,2009. 42
36. DepartmentofImmigrationandCitizenship(DIAC),MigrationLegislationAmendmentAct(No.1)2009,DIACwebsite, viewed28January2009,http://www.immi.gov.au/legislation/amendments/2009/090315/lc1503200907.htm 37. EKarlsen,MigrationLegislationAmendmentBill(No.2)2008,Billsdigest,no.78,200809,ParliamentaryLibrary, Canberra,2009,viewed20January2010,http://www.aph.gov.au/Library/pubs/bd/200809/09bd078.pdf 38. MigrationLegislationAmendmentAct(No.1)2009,Comlawwebsite,viewed19January2010, http://www.comlaw.gov.au/comlaw/Legislation/Act1.nsf/asmade/bynumber/352E94B95FB2F068CA25756A0001A30 F?OpenDocument 39. MigrationAmendment(AbolishingDetentionDebt)Bill2009,APHwebsite,viewed18January2010, http://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;query=Id%3A%22legislation%2Fbillhome%2Fs710%2 2 40. SenateLegalandConstitutionalAffairsCommittee,AnswerstoQuestionsonNotice,ImmigrationandCitizenship Portfolio,BudgetEstimates200708,21and22May2007,Question146. 41. HSpinksandEKarlsen,MigrationAmendment(AbolishingDetentionDebt)Bill2009,Billsdigest,no.126,200809, ParliamentaryLibrary,Canberra,viewed19January2010,http://www.aph.gov.au/Library/pubs/bd/2008 09/09bd126.pdf 42. MigrationAmendment(AbolishingDetentionDebt)Act2009,Comlawwebsite,viewed21January2010, http://www.comlaw.gov.au/comlaw/Legislation/Act1.nsf/asmade/bynumber/33193FEA6CAA261ECA25763A007C4C CF?OpenDocument
10
MigrationAmendment(ProtectionofIdentifyingInformation)Act2009
On27May2009,theMigrationAmendment(ProtectionofIdentifyingInformation)Bill2009was introducedintoParliament. 43 ThepurposeoftheBillwastoamendtheMigrationActtoensurethat allpersonalidentityinformationobtainedbytheDepartmentofImmigrationandCitizenshipis subjecttotheaccess,useanddisclosureregimeinPart4AoftheAct. TheBillsDigestexaminestheBillinfurtherdetail. 44 TheBillwaspassedon25June2009andbecame ActNo.69,2009. 45
AustralianCitizenshipAmendment(CitizenshipTestReviewandOther Measures)Act2009
On25June2009,theAustralianCitizenshipAmendment(CitizenshipTestReviewandOther Measures)Bill2009wasintroducedintoParliament. 46 ThepurposeoftheBillwastoamendthe AustralianCitizenshipAct2007to(amongstotherthings)makeiteasierforpersonswhohavea physicalormentalincapacityasaresultofsufferingtortureortraumabeforecomingtoAustraliato beeligibletoapplyforcitizenship. TheBillsDigestexaminestheBillinfurtherdetail. 47 TheBillwaspassedon17September2009(with significantamendmentsmovedonbehalfoftheGovernmentdiscussedintheBillsDigest)and becameActNo.90,2009. 48
43. MigrationAmendment(ProtectionofIdentifyingInformation)Bill2009,APHwebsite,viewed19January2010, http://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;query=Id%3A%22legislation%2Fbillhome%2Fr4132% 22 44. MNeilsen,MigrationAmendment(ProtectionofIdentifyingInformation)Bill2009,Billsdigest,no.155,200809, ParliamentaryLibrary,Canberra,2009,viewed23January2010, http://parlinfo.aph.gov.au/parlInfo/download/legislation/billsdgs/TGQT6/upload_binary/tgqt60.pdf;fileType=applica tion%2Fpdf#search=%22r4132%22 45. MigrationAmendment(ProtectionofIdentifyingInformation)Act2009,Comlawwebsite,21January2010, http://www.comlaw.gov.au/comlaw/Legislation/Act1.nsf/asmade/bynumber/0074CFA97D495C9CCA2575F20019640 E?OpenDocument 46. AustralianCitizenshipAmendment(CitizenshipTestReviewandOtherMeasures)Bill2009,APHwebsite,viewed 23March2010, http://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;query=Id%3A%22legislation%2Fbillhome%2Fs717%2 2 47. MCoombsandEKarlsen,AustralianCitizenshipAmendment(CitizenshipTestReviewandOtherMeasures)Bill2009, Billsdigest,no.20,200910,ParliamentaryLibrary,Canberra,viewed23March2010, http://parlinfo.aph.gov.au/parlInfo/download/legislation/billsdgs/VUFU6/upload_binary/vufu64.pdf;fileType=applica tion%2Fpdf#search=%22s717%22 48. AustralianCitizenshipAmendment(CitizenshipTestReviewandOtherMeasures)Act2009,Comlawwebsite,viewed 21January2010, http://www.comlaw.gov.au/comlaw/Legislation/Act1.nsf/asmade/bynumber/4A82EA9AC103FE9DCA25763A007D14 71?OpenDocument
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MigrationAmendmentRegulations2009(No.6)
On1July2009,theMigrationAmendmentRegulations2009(No.6)SLI2009No.143cameinto force. 49 AmotiontodisallowbytheCoalitionwasnegativedon8September2009.Thepurposeof theamendmentwastoabolishwhatistermedthe45dayrule.Anexplanationofthewayinwhich thisruleoperatesisprovidedintheExplanatoryStatement:
Noworkrightsarecurrentlyavailabletopeoplewhoareapplyingforaprotectionvisaandwho havebeeninAustraliafor45daysormoreinthe12monthsbeforetheirapplicationismade. ThepurposeoftheRegulationsistoamendtheMigrationRegulations1994toabolishthe45 dayruleforcertainBridgingvisasubclassesandprovidefornewprovisionsinrelationto permissiontoworkforcertainapplicants.Theamendmentsreplacethe45dayrulewithafairer processrecognisingthatpeoplewhohavecompliedwithmigrationlegislationshouldnotbe deprivedofpermissiontoworkbasedontheapplicationofthe45daytimelimit.50
AntiPeopleSmugglingandOtherMeasuresAct2010
On24February2010theAntiPeopleSmugglingandOtherMeasuresBill2010wasintroducedinto Parliament. 51 ThepurposeoftheBillwastoamendAustraliasantipeoplesmugglinglegislative framework.Inparticular,itsoughttoharmoniseexistingoffencesbetweenActs,createnewpeople smugglingoffences(includingsupportingtheoffenceofpeoplesmuggling),enhanceinvestigative tools,andextendtheapplicationofmandatoryminimumpenaltiesforaggravatedpeoplesmuggling offences. TheBillsDigestexaminestheBillinfurtherdetail. 52 TheBillwaspassedon13May2010andbecame ActNo.50,2010. 53
49. MigrationAmendmentRegulations2009(No.6),Comlawwebsite,viewed23March2010, http://www.comlaw.gov.au/ComLaw/Legislation/LegislativeInstrument1.nsf/0/1CE515B3D44942BECA2575DD00238 15A?OpenDocument 50. ExplanatoryStatement,MigrationAmendmentRegulations2009(No.6)SLI2009No.143,p.1,viewed27January 2010, http://www.comlaw.gov.au/ComLaw/Legislation/LegislativeInstrument1.nsf/0/E4DBFBA0D305B47ECA2575DF00222 5BF/$file/F2009L02518.pdf.ForfurtherinformationseealsoDIAC,ChangestocertainBridgingvisasincluding permissiontoworkarrangements:1July2009LegislationChange,DIACwebsite,viewed27January2010, http://www.immi.gov.au/legislation/amendments/2009/090701/lc0107200915.htm 51. AntiPeopleSmugglingandOtherMeasuresBill2010,APHwebsite,viewed2July2010, http://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;query=Id%3A%22legislation%2Fbillhome%2Fr4295% 22 52. EKarlsen,AntiPeopleSmugglingandOtherMeasuresBill2010,Billsdigest,no.131,200910,ParliamentaryLibrary, Canberra,viewed2July2010, http://parlinfo.aph.gov.au/parlInfo/download/legislation/billsdgs/1Q4W6/upload_binary/1q4w60.pdf;fileType=appli cation%2Fpdf#search=%22r4295%22 53. AntiPeopleSmugglingandOtherMeasuresAct2010,Comlawwebsite,viewed2July2010, http://www.comlaw.gov.au/ComLaw/Legislation/Act1.nsf/0/0FB1C456C601E2CACA25773B0009D20D/$file/0502010 .pdf
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ProposedLegislation
NeitherofthefollowingtwoBillshadbeendebatedinParliamentwhentheHouseof Representativeswasproroguedon19July2010forthefederalelection.TheseBillshavenow accordinglylapsed.
MigrationAmendment(ImmigrationDetentionReform)Bill2009
On25June2009,theMigrationAmendment(ImmigrationDetentionReform)Bill2009was introducedintoParliament. 54 ThepurposeoftheBillwastoamendtheMigrationActtocreatemore flexibilityinmanagingthedetentionofunlawfulnoncitizens,tosupporttheimplementationofthe GovernmentsNewDirectionsinDetentionpolicy,announcedinJuly2008.Explicitly,itproposedto restrictmandatorydetentiontoaspecificcategoryofpeople,introduceexpressdiscretionary detentionforotherunlawfulnoncitizens,createtemporarycommunityaccesspermissions(TCAPs) andremovetherequirementthatonlytheMinisterforImmigrationandCitizenshipcanpersonally grantresidencydeterminations.Italsosoughttoaffirminlegislationtheprinciplethatanoncitizen mustonlybedetainedinadetentioncentreasameasureoflastresortandfortheshortest practicabletime. TheBillsDigestexaminestheBillinfurtherdetail,includingthefindingsoftheSenateLegaland ConstitutionalAffairsLegislationCommitteeinquiry. 55
MigrationAmendment(ComplementaryProtection)Bill2009
On9September2009,theMigrationAmendment(ComplementaryProtection)Bill2009was introducedintoParliament. 56 ThepurposeoftheBillwastoamendtheMigrationActtointroducea statutoryregimeforassessingclaimsthatmayengageAustraliasnonrefoulement(nonreturn) obligationsundervariousinternationalhumanrightstreaties,otherwiseknownascomplementary protection.TheBillproposedtoassesssuchclaimsunderasingleintegratedprotectionvisa applicationprocesswhichmeantapplicantsthatwerefoundnottoberefugeesbutowed protectiononcomplementaryprotectiongroundswouldbegrantedpermanentprotectionvisas withthesameconditionsandentitlementsasrefugees.Inturn,unsuccessfulapplicants(thatis, applicantsfoundnottobeowedprotection)wouldhavethesameadministrativeandjudicialreview rightsaspersonsseekingprotectionunderthe1951ConventionrelatingtotheStatusofRefugees
54. MigrationAmendment(ImmigrationDetentionReform)Bill2009[2010],APHwebsite,viewed23March2010, http://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;query=Id%3A%22legislation%2Fbillhome%2Fs720%2 2 55. EKarlsen,MigrationAmendment(ImmigrationDetentionReform)Bill2009,Billsdigest,no.26,200910, ParliamentaryLibrary,Canberra,2009,viewed23January2010,http://www.aph.gov.au/Library/pubs/bd/2009 10/10bd026.pdf 56. MigrationAmendment(ComplementaryProtection)Bill2009,APHwebsite,viewed23March2010, http://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;query=Id%3A%22legislation%2Fbillhome%2Fr4197% 22
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(readinconjunctionwiththe1967ProtocolrelatingtotheStatusofRefugees)(togethertheyform the1951RefugeeConvention). TheBillsDigestexaminestheBillinfurtherdetail,includingthefindingsoftheSenateLegaland ConstitutionalAffairsLegislationCommitteeinquiry. 57
PARTIIPOLICYREFORMANDOTHERCOMMITMENTS
Cessationofextraterritorialprocessingofasylumclaims
Inlate2001legislativechangesweremadetotheMigrationActtoexcisepartsofAustralianterritory forsomepurposesoftheMigrationAct.Thecreationofexcisedterritoryeffectivelymeantasylum seekersarrivingbyboattotheseareascouldnotmakevalidvisaapplicationsundertheMigration Act.Instead,offshoreentrypersons,astheybecameknownundertheAct,weretakentoa declaredcountrysuchasNauruorPapuaNewGuineatohavetheirasylumclaimsassessedusinga nonstatutoryprocess.RefugeeswouldthenawaitresettlementtoAustraliaoranothercountry participatingintheUNHCRresettlementprogramme.Theselegislativechangesbecamewidely knownasAustraliasPacificSolution. Inits2007NationalPlatform,theALPpledgedtoendthesocalledPacificSolution withitshuge costtoAustraliantaxpayers.Subsequently,on8February2008,theMinisterforImmigrationand CitizenshipannouncedthearrivalinAustraliaofthelastrefugeesfromNauru:
21SriLankansarethefinalmembersofagroupof82refugeesdetainedonNauruthathave beenresettledinAustraliaaspartofthehumanitarianresettlementprogram.TheAustralian GovernmenthasinitiateddiscussionswiththeNauruanGovernmentovertheclosureofthe centreTheDepartmentofImmigrationandCitizenshipexpended$289millionbetween September2001andJune2007toruntheNauruandManusOPCs[offshoreprocessingcentres]. Atotalof1637peopleweredetainedintheNauruandManusfacilities,ofwhom1153(or70per cent)wereultimatelyresettledfromtheOPCstoAustraliaorothercountries.Ofthosewhowere resettled,around61percent(705people)wereresettledinAustralia.58
However,section198AoftheMigrationActhasnotbeenrepealed. 59 Thisprovisionprovidesthe statutorybasisforoffshoreentrypersonstobetakentoadeclaredcountryforprocessing.A declaredcountryissimplyacountryinrespectofwhichadeclarationhasbeenmadeunder
57. EKarlsen,MigrationAmendment(ComplementaryProtection)Bill2009,Billsdigest,no.70,200910,Parliamentary Library,Canberra,2009,viewed25January2010,http://www.aph.gov.au/Library/pubs/bd/200910/10bd070.pdf 58. CEvans,LastRefugeesLeaveNauru,op.cit. 59. Subclass447(SecondaryMovementOffshoreEntry(Temporary))andSubclass451(SecondaryMovementRelocation (Temporary))visaswererepealedfromtheMigrationRegulations1994on9August2008.Thismeansthesevisascan nolongerbegranted:MigrationAmendmentRegulations2008(No.5),Comlawwebsite,viewed19January2010, http://www.comlaw.gov.au/ComLaw/Legislation/LegislativeInstrument1.nsf/0/7E51086BF06E4F74CA25749D000908 7D?OpenDocument
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subsection198A(3)oftheAct.AdeclarationismadebytheMinisteranditstatesthataparticular declaredcountry:
providesaccess,forpersonsseekingasylum,toeffectiveproceduresforassessingtheirneedfor protection providesprotectionforpersonsseekingasylum,pendingdeterminationoftheirrefugeestatus providesprotectiontopersonswhoaregivenrefugeestatus,pendingtheirvoluntaryrepatriation totheircountryoforiginorresettlementinanothercountry,and meetsrelevanthumanrightsstandardsinprovidingthatprotection.
AdeclarationwasmadewithrespecttoNaurubytheformerCoalitionGovernmenton2October 2001andrenewed25November2002.AdeclarationwasalsomadewithrespecttoPapuaNew Guineaon12October2001.AccordingtoDIAC,therearenolimitsinthelegislationfortheperiodin whichadeclarationundersubsection198A(3)canbemade...Thedeclarationwillremaininforcefor theperiodspecifiedoruntilrevokedunderparagraph198A(3)(b). 60 Itisnotknownwhetherthe Governmenthasrevokedthesedeclarationsorwhethertheyremaininforcebutsimplyliedormant.
Immigrationdetention
On29July2008theMinisterforImmigrationandCitizenshipmadeaspeechattheAustralian NationalUniversity(ANU)entitledNewDirectionsinDetention,RestoringIntegritytoAustralias immigrationSystem. 61 Inthisspeech,theMinisterlistedsevenkeyimmigrationdetentionvalues whichwouldinformallaspectsoftheDepartmentsimmigrationdetentionservices.Theyincluded: 1. Mandatorydetentionisanessentialcomponentofstrongbordercontrol. 2. TosupporttheintegrityofAustraliasimmigrationprogramthreegroupswillbesubjectto mandatorydetention: a. allunauthorisedarrivals,formanagementofhealth,identityandsecurityriskstothe community; b. unlawfulnoncitizenswhopresentunacceptableriskstothecommunity;and c. unlawfulnoncitizenswhohaverepeatedlyrefusedtocomplywiththeirvisaconditions;
60. DepartmentofImmigrationandMulticulturalAffairs(DIMA),ResponsetoQuestionsonNotice:SenateLegaland ConstitutionalLegislationCommitteeInquiryintotheMigrationAmendment(DesignatedUnauthorisedArrivals)Bill 2006,Publichearing26May2006,questions12and15,viewed22July2010, http://www.aph.gov.au/senate/committee/legcon_ctte/completed_inquiries/2004 07/migration_unauthorised_arrivals/submissions/sub118a.pdf 61. CEvans,NewDirectionsinDetention,op.cit.
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3. Children,includingjuvenileforeignfishersand,wherepossible,theirfamilies,willnotbe detainedinanimmigrationdetentioncentre(IDC); 4. Detentionthatisindefiniteorotherwisearbitraryisnotacceptableandthelengthand conditionsofdetention,includingtheappropriatenessofboththeaccommodationandthe servicesprovided,willbesubjecttoregularreview; 5. DetentioninIDCsisonlytobeusedasalastresortandfortheshortestpracticabletime; 6. Peopleindetentionwillbetreatedfairlyandreasonablywithinthelaw;and 7. Conditionsofdetentionwillensuretheinherentdignityofthehumanperson. 62 AccordingtotheMinister:

Thevaluescommitustodetentionasalastresort;todetentionfortheshortestpracticable period;totherejectionofindefiniteorotherwisearbitrarydetention.Inotherwords,the currentmodelofimmigrationdetentionisfundamentallyoverturned. 63
AdministrativeimplementationoftheGovernmentsdetentionvaluesprogressivelybeganinJuly 2008. 64 TheMinisterwasoftheviewthattakencumulatively,thedetentionvaluesembraceariskbased approachtothemanagementoftheimmigrationpopulation. 65 Someofthekeyfeaturesofthis riskbasedapproachtodetentionwereidentifiedintheMinistersspeech:

peoplewillbedetainedonlyiftheneedisestablished thekeydeterminantoftheneedtodetainapersoninanimmigrationdetentioncentrewillbe risktothecommunity thepresumptionwillbethatpersonswillremaininthecommunitywhiletheirimmigrationstatus isresolved theDepartmentwillhavetojustifyadecisiontodetainnotpresumedetention,and once[health,identityandsecurity]checkshavebeensuccessfullycompleted,continued detentionwhileimmigrationstatusisresolvedisunwarranted. 66
62. CEvans,Factsheet:ImmigrationDetentionValues,undated,viewed12August2009 http://www.chrisevans.alp.org.au/download/now/fact_sheets__immigration_detention_values.pdf 63. CEvans,NewDirectionsinDetention,op.cit.,pp.34. 64. DIAC,SubmissiontoSenateLegalandConstitutionalAffairsLegislationCommittee,InquiryintotheMigration Amendment(ImmigrationDetentionReform)Bill2009,31July2009,p.7.SpecificdetailsareatAppendix4ofthe Committeesreport.Insertalink 65. CEvans,NewDirectionsinDetention,op.cit.,p.3. 66. Ibid.,p.3.
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TheMigrationAmendment(ImmigrationDetentionReform)Bill2009,introducedintoParliamenton 25June2009,wouldamendtheMigrationActto(amongstotherthings)supportthe implementationoftheGovernmentsNewDirectionsinDetentionpolicy.HoweverthisBilllapsedin July2010whentheHouseofRepresentativeswasproroguedforthe2010federalelection.ThisBill isdiscussedinmoredetailaboveundertheheadingProposedlegislation.
Commentary

LHall&PMaley,Refugeedetentionfacingoverhaul,TheAustralian,29July2008 ASymonds,Ruddpolicyswitchfreesasylumseekers,AustralianFinancialReview,30July2008 YNarushima,Mandatorydetentionpolicyoverturned,SydneyMorningHerald,30July2008 PGeorgiou,Protectionshouldbeparamount,TheAge,31July2008 PKelly,Policyoverboard,WeekendAustralian,2August2008 GWilliams,Newsolutionneedslegalhelp,CanberraTimes,2August2008
ExcisionandoffshoreprocessingonChristmasIsland
Inits2007NationalPlatform,LaborpledgedtocontinuetheexcisionofChristmasIsland,Cocos (Keeling)IslandsandAshmoreReeffromAustraliasmigrationzone. 67 Thismeantasylumseekers interceptedenroutetoAustraliaandtakentoChristmasIslandwouldcontinuetobelegallybarred frommakingavalidvisaapplicationbyvirtueofsection46AoftheMigrationAct,unlessthe Ministerpersonallyconsideredittobeinthepublicinteresttopermitit.Inhisspeechoutliningthe GovernmentsNewDirectionsinDetentionpolicy,theMinisterannouncedthatthoughan architectureofexcisionofoffshoreislandswouldremain,nodecisionhadbeentakenonthe boundariesofthecurrentexcisionzone. 68 TheMigrationActdoesnotrequireorobligateofficerstodetainasylumseekerstakentoChristmas Island(offshoreentrypersonastheyareknownintheAct). 69 Rather,theGovernmentsdetention valuesconfirmedthatasamatterofpolicy,allunauthorisedarrivalswouldbesubjecttomandatory detention. 70
67. ForfurtherinformationonexcisionandtoaccessamapoutliningAustraliasexcisedareasee:DIAC,FactSheet81 AustraliasExcisedOffshorePlaces,viewed23March2010,http://www.immi.gov.au/media/factsheets/81excised offshore.htm 68. CEvans,NewDirectionsinDetention,op.cit. 69. Existingsubsection189(3)createsadiscretionarypower(reflectedintheuseofthetermmay)todetainunlawful noncitizensandthosereasonablysuspectedofbeingsoinanexcisedoffshoreplacesuchasChristmasIsland. 70. Seealso:DIAC,PAM3MigrationAct,DetentionServicesManual,Chapter2ClientPlacement:DiscretiontoDetain UnauthorisedArrivalsatChristmasIslandwhichstatesasamatterofpolicy,itisintended,asageneralrule,thatall unauthorisedairandseaarrivalsatChristmasIslandwillinitiallybetakenintoimmigrationdetentiontoenable processing,initialinterviewsandhealthcheckstotakeplace.
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Inhisspeech,theMinisteralsoconfirmedthatasylumseekersarrivingbyboatwouldbeprocessed onChristmasIslandandthenonstatutoryprocessingoftheirclaimswouldremain. 71 TheAustralian HumanRightsCommission(AHRC)explainstherefugeestatusassessment(RSA)processasfollows:

ThenonstatutoryRSAprocessisgovernedbydraftpolicyguidelines.Theguidelinesareneither legallybindingnorpubliclyavailable.DecisionmakersarenotboundbytheMigrationAct,the MigrationRegulationsorAustraliancaselawregardingthedefinitionofarefugee. 72
Nonetheless,undertheGovernmentsnewdetentionvalues,asamatterofpolicyonlyasylum seekerswouldbegintoreceivepubliclyfundedadviceandassistance,accesstoindependentreview ofunfavourabledecisions 73 andexternalscrutinybytheImmigrationOmbudsman. 74 ThoughtheGovernmenthasoccasionallytransferredasylumseekersthathavearrivedbyboatto theAustralianmainlandsuchasunaccompaniedminors,peopleinneedofmedicaltreatment,or peoplewhoaretoberemovedfromAustraliatheGovernmenthasconsistentlyclaimedthattheir legalstatus,thatofoffshoreentryperson,remains. 75 Incontrast,theCoalitionhasassertedthat theirlegalstatusonthemainlandisunclearundertheAct. 76 Thisquestion,andmanyotherssurroundingthebasisforoffshoreprocessingmaysoonbeput beyonddoubtinwhathasbeendescribedasatestcasebroughttothefullbenchoftheHighCourt bysomeSriLankanasylumseekersthatwereamong89mentransferredtoSydneysVillawood detentioncentreinlateApril2010afterbeingnotifiedthattheydidnotsatisfytherefugee definition. 77 TheirapplicationswerefiledintheoriginaljurisdictionoftheHighCourt.TheHighCourt isexpectedtoconsider(amongstotherthings):
71. ForanoverviewofthedifferencesbetweentheonshoreProtectionvisa(PV)processandtheoffshoreRefugeeStatus Assessment(RSA)processsee:DIAC,Answertoquestiontakenonnotice:SenateStandingCommitteeonLegaland ConstitutionalAffairs,SupplementaryBudgetEstimatesHearing,20October2009,viewed9September2010, http://www.aph.gov.au/senate/committee/legcon_ctte/estimates/sup_0910/diac/102_qon.pdf 72. AHRC,2009ImmigrationdetentionandoffshoreprocessingonChristmasIsland,October2009,viewed12February 2010,http://www.hreoc.gov.au/human_rights/immigration/idc2009_xmas_island.html 73. IndependentmeritsreviewofunsuccessfulprotectionvisaapplicationsoccursattheRefugeeReviewTribunalorthe AdministrativeAppealsTribunal(dependinguponthebasisforrefusal).Incontrast,independentmeritsreview(IMR) ofRefugeeStatusAssessmentsatChristmasIslandappearstobedonebyformeradministrativetribunalmembersof theRRT(andotheragencies)asemployeesofarecruitmentagency,WizardPeoplePtyLtd.Reviewsareconductedin accordancewithacontractbetweentheCommonwealthandWizardPeopleandbyreferencetoaprocedural manualdevelopedbyDIAC:HighCourtofAustralia,Shortparticularsofcases:PlaintiffM61/2010EvCommonwealth ofAustralia&OrsandPlaintiffM69/2010EvCommonwealthofAustralia&Ors,viewed14September2010, http://www.hcourt.gov.au/registry/matters/240810SP.pdf 74. CEvans,NewDirectionsinDetention,op.cit.TheOmbudsmanreviewsthecircumstancesofapersonsdetention wheretheyhavebeenindetentionforlongerthansixmonthsbutthesereviewsarenottabledinParliamentrather theyareprovidedtotheImmigrationDepartmentsSecretary. 75. CEvans(MinisterforImmigrationandCitizenship),PressConferenceheldonthehandlingofasylumseekers: interviewtranscripts,28March2010,viewed9September2010, http://www.chrisevans.alp.org.au/news/0310/immiinterviewtranscripts2801.php 76. TheCoalition,Restoringsovereigntyandcontroltoourborders:Policydirectionsstatement,op.cit. 77. PlaintiffM61/2010EvCommonwealthofAustralia&Ors;PlaintiffM69/2010EvCommonwealthofAustralia&Ors.
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whetherthenonstatutoryRefugeeStatusAssessment(RSA)issupportedbytheConstitution whethertheindependentreviewoftheRSAisvalid to what extent decisions made under RSA (including review decisions) are reviewable by High Courtinexerciseofitsoriginaljurisdiction whetherrelevantand/orirrelevantconsiderationsweretakenintoaccountundertheRSA,and whethertheplaintiffsweredeniedproceduralfairness.
Thesecaseswereheardtogetheron24and25August2010buttheHighCourthasreservedits judgment.
Commentary

MGordon,Challengetoasylumsystem,TheAge,1May2010 PMaley,AsylumseekersaskHighCourtforlocalappeal,TheAustralian,25August2010 LWilson,Judgesquestionasylumloophole,TheAustralian,26August2010
SuspensionofprocessingAfghanandSriLankanasylumseekers
On9April2010,inajointpressconference,thethenMinistersforImmigrationandCitizenship, ForeignAffairs,andHomeAffairsannouncedthattheGovernmentwasimplementinganimmediate suspensionontheprocessingofallnewapplicationsfromasylumseekersfromSriLankaand Afghanistan.Thebasisforthesuspensionwastheevolvingcircumstancesinbothcountrieswhich, whencoupledwiththesuspensionwouldmeanthatinthefuture,moreasylumclaimsfromSri LankaandAfghanistanwillberefused. 78 TheGovernmentundertooktoreviewthesituationinSriLankaafteraperiodofthreemonthsandin Afghanistan,afteraperiodofsixmonths.ItemphasisedthatSriLankawasinaperiodoftransition withhopesforfurtherimprovementandstabilisationinconditions.WithrespecttoAfghanistan,it claimedthat:
TheTalibansfall,durablesecurityinpartsofthecountry,andconstitutionalandlegalreformto protectminoritiesrightshaveimprovedthecircumstancesofAfghanistansminorities,including AfghanHazaras. 79
EmphasiswasalsoplacedonthefactthatUNHCRwasreviewingtheconditionsinbothcountries andrelatedguidelinesforrefugeestatusdetermination.
78. SSmith(MinisterforForeignAffairs),CEvans(MinisterforImmigrationandCitizenship),andBOConner(Minister forHomeAffairs),ChangestoAustraliasimmigrationprocessingsystem,op.cit. 79. Ibid.
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On18April2010theMinisterforImmigrationandCitizenshipissuedamediareleaseadvisingthat theRoyalAustralianAirForce(RAAF)BaseCurtinfacilitylocatedsome40kilometresoutofDerby inWesternAustraliawouldbeupgradedtoaccommodatesinglemaleswhoweresubjecttothe GovernmentsdecisiontosuspendtheprocessingofasylumapplicationsfromSriLankaand Afghanistan. 80 ThoughcommentatorswerequicktoassertanapparentviolationofArticle3ofthe1951Refugee Conventionwhichpreventsdiscriminationonthebasisofarefugeescountryoforigin,UNHCR,the UNagencytaskedwithmonitoringadherencetotheConvention,wasitselfcomparativelyrestrained initscriticismofthepolicy.Itsimplynotedthatsuspensionofprocessingmightbeappropriateand inaccordancewithStatesobligationsunderthe1951RefugeeConventioninverylimited circumstances,suchasinmassinfluxsituationsorquicklyevolvingpostconflictsituations.Itdid however,expressconcernthattheaffectedasylumseekerswouldbesubjecttoprolonged mandatorydetentionwithoutclearguidelinesoreffectivejudicialoversight. 81 Presidentofthe AHRC,CathyBransonQCwasalsooftheviewthatthepolicycouldleadtoaviolationofAustralias internationalhumanrightsobligations:
NewasylumseekersfromSriLankaandAfghanistanarenowinasituationofconsiderable uncertainty,asareviewofthesuspensioninthreeorsixmonthstimedoesnotguaranteethe suspensionwillbelifted.Wehaverealconcernsthatthispolicyshiftcouldleadtoarbitrary detentionandtakeAustraliadownapaththatisatoddswithourinternationalhumanrights obligations.82
On5July2010theUNHCRreleaseditsmuchanticipatedEligibilityGuidelinesforAssessingthe InternationalProtectionNeedsofAsylumSeekersfromSriLanka. 83 Theguidelinesacknowledgedan improvedhumanrightsandsecuritysituationinSriLankafollowingthecessationofarmedconflict inMay2009.However,inrecognisingthatapresumptionofeligibilityforSriLankansofTamil ethnicityoriginatingfromthenorthofthecountrynolongerexisted,theUNHCRnonetheless emphasisedthat:
80. CEvans(MinisterforImmigrationandCitizenshoip),Curtintoholdsuspendedasylumseekers,mediarelease,18April 2010.Seealso:UNHighCommissionerforRefugees(UNHCR),UNHCRdisappointedatAustraliandecisiontoreopen detentioncentreforasylumseekers,UNHCRwebsite,20April2010,viewed8September2010, http://www.unhcr.org/4bcd99956.html 81. UNHCR,SafeguardsneededasAustraliassuspensionofasylumclaimsbySriLankansandAfghanscomesintoforce, mediarelease,16April2010,viewed8September2010,http://unhcr.org.au/pdfs/100416_aulpress.pdf 82. AHRC,Suspensionofprocessingasylumseekersraisesseriousconcerns,mediarelease,9April2010,viewed 8September2010,http://www.hreoc.gov.au/about/media/media_releases/2010/29_10.html 83. UNHCR,UNHCREligibilityGuidelinesforAssessingtheInternationalProtectionNeedsofAsylumSeekersfromSri Lanka,UNHCRwebsite,5July2010,viewed8September2010, http://www.unhcr.org/refworld/docid/4c31a5b82.html
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AllclaimsbyasylumseekersfromSriLankashouldbeconsideredontheirindividualmeritsin fairandefficientrefugeestatusdeterminationproceduresandtakingintoaccountuptodate andrelevantcountryoforigininformation. 84
Thefollowingday,PrimeMinisterGillardannouncedthatthereleaseofUNHCRsrevisedeligibility guidelinessignifiedthatacceptancerateswerelikelytodeclineandaccordinglytheGovernmentwas immediatelyliftingtheprocessingsuspensiononasylumseekersfromSriLanka. 85 Theprocessing suspensionforAfghanclaimantswasnotliftedatthistimerather,thatdecisionwouldremain underreview. 86 Inthiscontext,referencewasalsomadetotherecentincreaseinprimaryrefusal rates:

AlthoughtherewasatimewhenlargenumbersofAfghanasylumseekersweregrantedrefugee status,sinceApriltherehavemorethan500primaryrefusaldecisionsforAfghans.Duringthe pastmonththeprimaryrefusalratehasexceeded70percent.Ifupheldatreview,these increasingratesofrefusalswillresultinmanymorepeoplebeingreturnedtotheirhomelands.87
However,somecommentatorshavesubsequentlyreportedthatmanyoftherecentlyrejected Afghanasylumseekershaveapparentlyhadtheirdecisionsoverturnedonappealthoughthisclaim wasunabletobesubstantiatedbecausenofigureswerereleasedduringtheelectioncampaign. 88 As at30July2010,thereweresome2237Afghanand692SriLankannationalsinimmigration detentioninAustralia(includingatChristmasIslandImmigrationDetentionCentre).Duringthis sameperiod,459peopleremainedindetentionatCurtinImmigrationDetentionCentre. 89
Commentary
JMcAdam&KMurphy,Refugeeprocessingfreezebreachesinternationallaw,TheAustralian, 14April2010 STaylor,Theasylumfreezeandinternationallaw,InsideStory,14April2010 ABartlett,Refugeeclaimfreeze:isRuddalawuntohimself,Crikey,14April2010 D Mortimer, C Horan & K Foley, Joint opinion: In the matter of Changes to Australias ImmigrationProcessingSystemSuspensionofProcessingofAsylumApplicationsfromSriLanka andAfghanistan19May2010
84. Ibid.,p.3. 85. JGillard,MovingAustraliaforward,op.cit. 86. On30September2010theGovernmentsubsequentlyannouncedthatitwasliftingtheprocessingfreezeonnew Afghanasylumclaims. 87. Ibid. 88. MGordon,PacificSolutionreturnsfromdayone,TheAge,3August2010,viewed5August2010, http://parlinfo.aph.gov.au/parlInfo/download/media/pressclp/G9IX6/upload_binary/g9ix60.pdf 89. DIAC,ImmigrationDetentionStatisticsSummaryasat30July2010,DIACwebsite,viewed8September2010, http://www.immi.gov.au/managingaustraliasborders/detention/_pdf/immigrationdetentionstatistics 20100730.pdf
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MGordon,Asylumseekerclampbreachestreaties:lawyers,TheAge,22May2010
Proposalforaregionalprocessingcentre
On6July2010,inwhathasbeendescribedasherfirstmajorpolicyspeech,PrimeMinisterGillard announcedthatshehadrecentlydiscussedwithPresidentRamosHortaofEastTimorthepossibility ofestablishingaregionalprocessingcentreforthepurposeofreceivingandprocessingofthe irregularentrantstotheregion.Thoughverylittledetailabouttheproposalwasprovided,the PrimeMinisteremphasisedthatitwouldnotbeanewPacificSolution,ratherasustainable, effectiveregionalprotectionframework.ThoughthePrimeMinisterappearedtoenvisagethe participationoftheUNHCRandhaddiscussedtheinitiativewiththeHighCommissioner,MrAntnio Guterres,hisreactiontotheproposalwasnotdisclosed.InarecentnewspaperarticleErikaFeller, AssistantHighCommissionerforProtectionwithUNHCRemphasisedthatthoughcloserco operationonasylumissuesintheregionisapositivedevelopment,regionalprocessingcentresare notthesolutioninthemselvesandthatarrangementsthatdeflectburdensandresponsibilitiescould inturnheightentensionsandincreasepeoplesmugglingactivities:
Experienceshowsthatanapproachbuiltsimplyaroundcontrollingbordersandpreventing movementisnottheanswer.Ifwearetodiscouragepeoplefrommovingthenweneedtofind waysofstabilisingtheirsituations,makingthemfeelsaferandofferingthemsolutionsthatare humaneandworkable. Forthistowork,peoplemustbegivenprotectionandasenseofsecuritysotheydonotfeel theironlyoptionistoputtheirlivesintothehandsofpeoplesmugglers;theyneedconfidence thattheirclaimswillbefairlyassessedandasolutionfoundwithinareasonabletime. Inthisregard,itispositivethatthedoorisopen,withclosercooperationonasylumissuesand refugeeprotectionnowonthetableintheregion.Establishingrefugeeprocessingcentresinthis regioncouldbepartofthis,butitmustbeembeddedinabroadlyconstitutedandcooperative, multilateralframeworkthatengagesrefugeehostingandresettlementcountriesalike. Regionalprocessingcentres,likerefugeestatusdetermination,arenotthesolutionin themselves.Theyarejusttoolstoidentifythosewhoneedprotectionandwhattheappropriate solutionsare. Anycooperativeframeworkmustincludeprocessestoreturnthosewhodonotneedordeserve protectiontotheirhomesandtoassistthoseliketraffickedwomenorunaccompaniedchildren whoareparticularlyvulnerable.Sucharrangementshavetobecarefullynegotiatedand approved. Regionalcooperationalsomeansprovidingsocialsupportandsafelivingconditionsforthose whohaveclaimedasylumuntiltheirclaimsareproperlyadjudicated.Detentionisnotthe answer,especiallyforwomen,childrenandfamilies.Theremustbedecentandhumane conditionsofreception,whichserveasagenuinealternativetodetention. Finally,inUNHCRsexperience,thekeytothesuccessofregionalarrangementsisagenuine engagementandsharingofburdensandresponsibilitiesamongaffectedstates.Arrangements
22
thatdeflectburdensandresponsibilitiesratherthanproperlyapportioningthemstandagood chanceofheighteningtensions,creatingfertilegroundforpeoplesmuggling. 90
RefugeeReviewTribunal
Meritbasedappointments
On1August2008,theMinisterforImmigrationandCitizenshipannouncedthattheRudd Governmentwouldundertakeatransparent,meritbasedselectionprocesstorecruitfivesenior membersfortheindependentrefugeeandmigrationreviewtribunalsinsteadofjustreappointing existingmembers. 91 Subsequently,on5December2008,theMinisterannouncedtheappointmentoftwonewSenior MembersandthereappointmentofthreenewSeniorMemberstotheTribunalsMrGilesShort, DrIreneOConnell,MsAmandaMacDonald,MsLindaKirkandMrPeterMurphyforafiveyearterm (1January2009to31December2013). 92 On10June2009theMinisterannouncedtheappointmentof12newMembersandthere appointmentof31existingMemberstotheTribunalsforafiveyearterm(1July2009to30June 2014).FiveMembersunsuccessfullysoughtreappointment. 93 AccordingtotheRRT:
Ofthe5Memberswhounsuccessfullyappliedforafurthertermofappointmentin2009,3hada setasideratehigherthantheoverallRRTasiderateand2hadasetasideratelowerthanthe overallRRTsetasiderateinthe3yearsto30June2009.94
On4June2010theMinisterannouncedtheappointmentof18newMembersandthere appointmentof25existingMemberstotheTribunalsforafiveyearterm(1July2010to30June 2015).EighteenMembersunsuccessfullysoughtreappointment. 95
90. EFeller,Detentioncentresandrestrictionsonmovementsolvenothing,TheAge,30August2010,viewed30August 2010,http://www.theage.com.au/opinion/politics/detentioncentresandrestrictionsonmovementsolvenothing 2010082913xhf.html 91. CEvans(MinisterforImmigrationandCitizenship),Newtribunalmembersfacemeritbasedselection,mediarelease, 1August2008,viewed22March2010,http://www.chrisevans.alp.org.au/news/0808/immimediarelease0101.php 92. CEvans(MinisterforImmigrationandCitizenship),NewappointmentstoMigrationandRefugeeReviewTribunals, mediarelease,5December2008,viewed22March2010, http://www.chrisevans.alp.org.au/news/1208/immimediarelease0501.php 93. CEvans(MinisterforImmigrationandCitizenship),NewappointmentstoMigrationandRefugeeReviewTribunals, mediarelease,10June2009,viewed23March2010, http://www.chrisevans.alp.org.au/news/0609/immimediarelease1001.php 94. SenateLegalandConstitutionalLegislationAffairsCommittee,AnswerstoQuestionsonnotice,Immigrationand CitizenshipPortfolio,BudgetEstimates201011,May2010,Question2. 95. CEvans(MinisterforImmigrationandCitizenship),NewmemberappointmentsforMigrationReviewTribunaland RefugeeReviewTribunal,mediarelease,4June2010,viewed8September2010, http://www.minister.immi.gov.au/media/mediareleases/2010/ce10047.htm
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Commentary

RRTurgedtobesoft,AustralianFinancialReview,Hearsay,7May2010 ABolt,Opendoorpolicygetsaboost,HeraldSun,26May2010 ABolt,Ruddtobenefitfromsilentpurgethatwillusherinasylumseekers,HeraldSun,11June 2010 Refugeebiasfeared,AustralianFinancialReview,Hearsay,11June2010
Publicationofcountryoforiginresearch
On17February2009,theMinisterannouncedthattheRRTwouldpublishitscountryoforigin researchtoprovidegreatertransparencyinitsdecisionmaking.Hestated:
Thisisanimportantdevelopmentindemonstratingtheopennessandaccountabilityofthe tribunalanditsdecisionmakingprocesses.ThepublicationoftheRefugeeReviewTribunals countryoforiginresearchwillprovidegreateraccesstojusticetoprotectionvisaapplicants, migrationadvisersandthepublic. 96
Theinformationpublishedonlineincludesgeneralbackgroundinformation,commissionedresearch andopinionsfromacademicsandexpertsaswellasresponsesresearchedinanswertospecific questionsposedbyRRTmembersinrelationtoparticularreviews. ForfurtherinformationseetheRRTsCountryadvicewebpage. 97
Publicationofdecisions
On17February2009,theMinisteralsoannouncedthattheRRTandtheMRTwoulddoublethe numberofdecisionspublishedonlinesothat40percentofalldecisionsmadebythetribunals wouldbepubliclyavailable. 98 Itwasenvisagedthatthisinitiativewouldincreasethetransparency ofthedecisionmakingprocess.TribunaldecisionsarepublishedontheAustLIIwebsite. 99 Duringthe periodDecember2008toJune2009morethan46%(1861)ofalldecisionsmadeintheperiodwere publishedonAustLII.However,oftheseonly681wereRRTdecisions. 100
96. CEvans(MinisterforImmigrationandCitizenship),Greatertransparencyforrefugeeandmigrationtribunals,media release,17February2009,viewed23March2010, http://www.chrisevans.alp.org.au/news/0209/immimediarelease1701.php 97. MRTRRT,CountryAdvice,Tribunalwebsite,viewed14September2010,http://www.mrtrrt.gov.au/Country Advice/default.aspx 98. CEvans(MinisterforImmigrationandCitizenship),Greatertransparencyforrefugeeandmigrationtribunals,op.cit. 99. Availableat:http://www.austlii.edu.au/ 100. TheRRTfinalised2,462casesduringthe200809financialyear:MRTRRT,AnnualReport20082009,p.43,viewed 23March2010,http://www.mrtrrt.gov.au/Tribunal/annrpts/mrtrrt/ar0809/appendix2.html
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Duringthe200809financialyeartheRRToverturned468Departmentdecisionsandaffirmedor agreedwiththeDepartmentsprimarydecisionin1787cases.Incomparison,undertheprevious CoalitionGovernment,duringthe200607financialyear649Departmentdecisionswere overturnedand2202caseswereaffirmed. 101
Multiyearresettlementplanning
Decisionsonthesize,compositionandregionalfocusofAustraliasHumanitarianProgramare decidedbythegovernmentannually.However,suchanapproachhasbeencriticisedonthebasis thatitmakesitverydifficultforAustraliatomakealongertermcommitmenttoresettlingfroma particularrefugeecampwhereresettlementneedstotakeplaceoverseveralyears. 102 On17 November2008,theMinisterforImmigrationandCitizenshipexpressedinterestinmultiyear planningforAustraliashumanitarianprogram:
MultiyearplanningforthehumanitarianprogramisonereformthatIamparticularlyinterested in.Ithinkwecandobetterthanrunninganongoingprogramyeartoyearweneedamore strategicfocustoplanning.BringingAustraliaintolinewiththisinternationalbestpractice wouldenableustoplayamoreactiveandeffectiveroleinworkingwithUNHCRandthe internationalcommunitytofindsolutionsovertimetoprotractedsituations.Itwouldalsoallow usgreaterflexibilitytorespondtoemerginginternationaldevelopmentsastheyarise.103
By12May2009itwasannouncedthatafouryearplanningframeworkwouldbeimplementedin 200910:
Ourmovethisyeartoafouryearplanningframeworkwillgiveusgreaterflexibilityin respondingtoemerginghumanitariansituationsastheyarise.ItwillalsoallowAustraliatomake alongertermcommitmenttotheresettlementofrefugeesinprotractedsituations,manyof whomhavebeenlanguishingincampsforyears. 104
TheintakeandcompositionwillstillgotoCabinetannually.Forfurtherinformationseethe DepartmentsfactsheetentitledAustraliasRefugeeandHumanitarianProgram. 105
101. In200607therewere2,835caseslodgedwiththetribunal,comparedto2,538caseslodgedin200809:Ibid.,pp.33, 38. 102. RefugeeCouncilofAustralia(RCOA),AustraliasRefugeeandHumanitarianProgram:Communityviewsoncurrent challengesandfuturedirections,January2009,p.40,viewed12March2010, http://www.refugeecouncil.org.au/docs/resources/submissions/200910_intakesub.pdf 103. CEvans, RefugeePolicyundertheRuddGovernmentthefirstyear,op.cit. 104. CEvans,Budget200910HumanitarianProgram,mediarelease,12May2009,viewed30August2010, http://www.minister.immi.gov.au/media/mediareleases/2009/ce03budget09.htm 105. DIAC,FactSheet60AustraliasRefugeeandHumanitarianProgram,DIACwebsite,viewed23March2010, http://www.immi.gov.au/media/factsheets/60refugee.htm
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Commonwealthbudgetcommitments
200809financialyear
On13May2008,theRuddGovernmenthandeddownitsfirstfederalbudget.Inrelationto measuresspecificallyaffectingasylumseekersandrefugees,theGovernmentcommitted(amongst otherthings):
$4.2million over five years to implement legislative and administrative arrangements by 1October2008toabolishtheTemporaryProtectionvisaandtheTemporaryHumanitarianvisa. aoneoffincreasetothe200809Humanitarianmigrationprogrambyanadditional500refugee placesforIraqisatanestimatedcostof$35.3millionoverfouryears increasetheSpecialHumanitarianProgrambyanadditional750placesfrom200910onwards (13,750placesperyearfrom200910onwards)atanestimatedcostof$85.1millionoverfour years $42.2million over four years to provide up to 600 additional permanent visa places to allow resettlement in Australia of specifically designated locally engaged Iraqi employees and their families,whoarepotentiallyatriskbecauseoftheirinvolvementwiththeAustralianGovernment inIraq $5.6million in 200809 to continue the case management and community care pilot until 30June 2009. The case management and community care pilot targets vulnerable immigration clients including unaccompanied minors, the elderly, and people with a disability. The pilot provides a range of services including case management, community assistance, immigration information,adviceandcounselling,andvisaapplicationassistance. 106
ForanalysisofsomeofthesemeasuresseetheParliamentaryLibrarysBudgetReview. 107 Seealso theRefugeeCouncilofAustralias200809budgetbriefWhatitmeansforrefugeesandthose requiringhumanitarianprotection. 108
200910financialyear
On12May2009,theRuddGovernmenthandeddownitssecondfederalbudget.Inrelationto measuresspecificallyaffectingasylumseekersandrefugees,theGovernmentcommitted(amongst otherthings):
106. AustralianGovernment,Budgetmeasures:budgetpaperno.2:20089,CommonwealthofAustralia,Canberra,2008, viewed3December2009,http://www.budget.gov.au/200809/content/bp2/html/expense18.htm 107. ParliamentaryLibrary,BudgetReview200809,Researchpaper,no.31,200708,ParliamentaryLibrary,Canberra, viewed3December2009,http://www.aph.gov.au/library/pubs/rp/200708/08rp31.pdf 108. RCOA,The200809Budgetinbrief:Whatitmeansforrefugeesandthoserequiringhumanitarianprotection, RCOAwebsite,viewed19August2010,http://www.refugeecouncil.org.au/current/RCOA%202008 09%20Federal%20Budget%20Brief.pdf
26
$4.8million(includingcapitalof$0.2millionforinformationtechnologychanges)overfouryears to implement a system of complementary protection for people to whom Australia has nonrefoulement (nonreturn) obligations under international human rights treaties, other than the1951ConventionRelatingtotheStatusofRefugees $77.4millionoverfouryearsfrom200910forongoingimplementationofthenewimmigration detention values. This measure will include a national Assisted Voluntary Return Service and a Community Status Resolution Service, to actively manage clients to resolve their immigration status $5.4million over four years to abolish the 45 Day Rule which denies work rights and Medicare accesstoProtectionVisaapplicantswhodonotlodgeanapplicationforaprotectionvisawithin 45daysofarrivalinAustralia $186.7millionoverfiveyearstoredeveloptheVillawoodImmigrationDetentionCentre $24.4millionoverfouryearstoestablishanewbodytoregulatemigrationagents.From 1July 2009, the Migration Agents Registration Authority (MARA) function will be moved from the MigrationInstituteofAustraliatothenewOfficeoftheMARAintheDepartmentofImmigration andCitizenship,and $654 million wholeofgovernment strategy to combat people smuggling and address the problemofunauthorisedboatarrivals. 109
201011financialyear
On11May2010,theRuddGovernmenthandeddownitsthirdfederalbudget.Inrelationto measuresspecificallyaffectingasylumseekersandrefugees,theGovernmentcommitted(amongst otherthings):
$32.9millionoverfouryearstoenhanceIndonesiascapacitytomanageirregularmigrationflows in the region. The measure includes additional funding to the International Organisation for Migration to support the Indonesian Government in upgrading a number of immigration detentionfacilitiesandextrafundingtotheUnitedNationsHighCommissionerforRefugeesfor theprocessingofrefugeestatusdeterminations.
109. AustralianGovernment,Budgetmeasures:budgetpaperno.2:200910,CommonwealthofAustralia,Canberra, 2009,viewed3December2009,http://www.budget.gov.au/200910/content/bp2/html/bp2_expense18.htm 110. ParliamentaryLibrary,BudgetReview200910,Researchpaper,no.33,200809,ParliamentaryLibrary,Canberra, 2009,viewed24March2010,http://www.aph.gov.au/library/Pubs/RP/200809/09rp33.pdf 111. RCOA,The200910Budgetinbrief:Whatitmeansforrefugeesandthoserequiringhumanitarianprotection, RCOAwebsite,viewed19August2010, http://www.refugeecouncil.org.au/docs/releases/2009/090518_Federal_Budget_RCOA_brief.pdf
27
$202.0million over five years (including $183.3million in capital funding, and $18.7million in related expenses) to ensure appropriate accommodation for asylum seekers. The measure providesforfundingof$143.8millionforincreasedcapacityatimmigrationdetentionfacilities. The measure also provides capital funding for a number of upgrades and enhancements to essential amenities and security at existing facilities, consisting of $22.0million for Christmas Island, $15.0million for the Northern Immigration Detention Centre in Darwin, $1.5million for Villawood in Sydney and $1.0million to upgrade existing residential facilities at Port Augusta (SouthAustralia)forunaccompaniedminors. $5.8million over two years to deploy two officers from the Department of Immigration and Citizenship to Kabul, Afghanistan. The officers will liaise with the Afghan Government and relevantinternationalorganisationstoassistwiththeappropriatesettlementandreintegration ofreturnedAfghannationals. 112
PARTIIICASELAW
TheHighCourtofAustraliadeliverednumerousjudgmentsrelatingtoapplicationsforprotection visasduringLaborsfirstterminoffice.Thesearechronologicallylistedbelow.Someofthesecases (eitherpriortobeingheardbytheHighCourtorthereafter)influencedlegislativereform. 115 MZXOTvMinisterforImmigrationandCitizenship(2008)233CLR601 Inthiscase,theHighCourtconsideredwhetheritcouldremitamatterforconstitutionalrelieftothe FederalMagistratesCourt.InsummarytheHighCourtfoundthat:
RemittingMZXOTsapplicationforconstitutionalrelieftotheFMCwasnotpossibleunderthe legislation.section476BoftheMigrationActstatesthattheCourtmustnotremitmigration mattersunlesstheFMChadjurisdictionundersection476.Section476providesthattheFMC hasthesameoriginaljurisdictionundersection75(v)astheHighCourt,butithasnojurisdiction inrelationtoprimarydecisionsaboutprotectionvisasthathadbeenreviewedbytheRRTif applicationswerenotmadewithinthespecifiedtime.TheFMClackedauthoritytodealwith
112. AustralianGovernment,Budgetmeasures:budgetpaperno.2:201011,CommonwealthofAustralia,Canberra, 2010,viewed19August2010,http://www.aph.gov.au/library/pubs/RP/200910/10rp17.pdf 113. ParliamentaryLibrary,BudgetReview201011,Researchpaper,no.17,200910,ParliamentaryLibrary,Canberra, 2010,viewed19August2010,http://www.aph.gov.au/library/pubs/RP/200910/10rp17.pdf 114. RCOA,the201011Budgetinbrief:Whatitmeansforrefugeesandthoserequiringhumanitarianprotection, RCOAwebsite,viewed19August2010,http://www.refugeecouncil.org.au/docs/resources/reports/2010 11_Federal_Budget_brief_RCOA.pdf 115. Forexample,SZKTIvMinisterforImmigrationandCitizenship[2008]FCAFC83inwhichtheFullFederalCourtheld thattheRRTwasnotabletoobtaininformationorallyfromtheapplicantundersection424oftheMigrationAct. ThisoutcomewassubsequentlyaddressedbyamendmentscontainedinMigrationLegislationAmendmentAct (No.1)2009.
28
thesubjectmatterandaccordinglytheHighCourtlackedtheauthoritytoremitthematterto theFMC. 116
MinisterforImmigrationandCitizenshipvSZKTI(2009)238CLR489;MinisterforImmigrationand CitizenshipvSZLFX(2009)238CLR507 Inthesecases(heardtogether)theHighCourtconsideredwhethertheRRTmay,undersubsection 424(1)oftheMigrationActgetinformationitconsidersrelevanttoareview,bytelephonewithout firstsendingawritteninvitationtoprovidetheinformation.Insummarythemajorityfoundinboth casesthattheRRThadnotbreacheditsobligationsinrelationtothewayitobtainsinformation because:

section424(1)oftheActempoweredtheRRTtogetanyinformationthatitconsidered relevantwithoutlimitingthewaysinwhichtheRRTmightgettheinformation.Section424(2) wasconcernedwithhowinformationshouldbeobtainedinthespecificcircumstancewhena personwasinvitedtogiveadditionalinformation.117
MinisterforImmigrationandCitizenshipvSZIZO(2009)238CLR627 Inthiscase,theHighCourtconsideredwhethertheRRTsfailuretocomplywiththenotification requirementsundersection441GoftheMigrationActmeantthedecisionwasinvalid.Insummary themajorityfoundthat:

Inthecircumstancesofthiscase,whereSZIZOandhisfamilywereawareofthehearingdate, wereabletopresentwitnessesinsupportoftheircaseandwereabletoprovidewritten submissionsaftertheoralhearinghadconcluded,theRRTsfailuretonotifySZIZOsauthorised recipientofthehearingdatedidnotresultinadenialofnaturaljusticetoSZIZOoranunfair hearing,afactacknowledgedbySZIZOslegalrepresentative.InothercircumstancestheRRTs failuretogiveahearingnoticetoanauthorisedrecipientmayresultinanapplicantnotreceiving afairhearingbutthiswasnotsuchacase.118
MinisterforImmigrationandCitizenshipvSZIAI(2009)259ALR429 Inthiscase,theHighCourtconsideredwhethertheRRThadcommittedjurisdictionalerrorbynot makingitsowninquiriesintotheauthenticityofcertificatesreliedonbytheapplicantandwhether heshouldhavebeeninvitedtoattendafurtherhearingtorespondtoclaimsthatthedocuments wereforgeries.Insummarythemajorityfoundthat:

116. HighCourtofAustralia,MZXOTvMinisterforImmigrationandCitizenship,18June2008,viewed18March2010, http://www.hcourt.gov.au/media/MZXOT_v_Minister_for_Immigration.pdf 117. HighCourtofAustralia,MinisterforImmigrationandCitizenshipvSZKTI&Anor[2009]HCA30;Ministerfor ImmigrationandCitizenshipvSZLFX&Anor[2009]HCA31,mediarelease,26August2009,viewed18March2010, http://www.hcourt.gov.au/media/MIAC_v_SZKTI_and_SZLFX.pdf 118. HighCourtofAustralia,MinisterForImmigrationAndCitizenshipvSZIZO&Ors[2009]HCA37,mediarelease, 23September2009,viewed18March2010,http://www.hcourt.gov.au/media/MIAC_v_SZIZO.pdf
29
afailureonthepartoftheRRTtomakeanobviousinquiryaboutacriticalfact,theexistence ofwhichiseasilyascertained,couldinsomecircumstancesbesufficienttoconstituteafailureby theRRTtoundertakeitscorefunction,whichistoreviewdecisions.However,theHighCourt foundthatitwasnotnecessarytoexplorethatprincipleinthiscase,fortworeasons.First,none oftheinformationavailabletotheRRTindicatedthatanyfurtherinquiryintotheauthenticityof thecertificateswouldyieldausefulresult.Secondly,theresponsefromSZIAIssolicitors indicatedthatSZIAIcouldaddnothingbeyondabaredenialoftheassertionsintheNational Ameersletter.TherewasnofactualbasistoconcludethattheRRTsfailuretoinquiremeantit hadfailedtoexerciseitsjurisdictionorcommittedjurisdictionalerror.119
MinisterforImmigrationandCitizenshipvSZJGV;MinisterforImmigrationandCitizenshipvSZJXO (2009)238CLR642 Inthesecases(heardtogether)theHighCourtconsideredtheoperationofsubsection91R(3)ofthe MigrationActwhichrequiresdecisionmakerstodisregardconductinAustraliabyanapplicantfora protectionvisaiftheconductisengagedinforthepurposeofstrengtheningtheirclaimtobea refugee.Insummary,themajorityfoundthat:

theFullCourtoftheFederalCourthadmisconstruedsection91R(3)oftheMigrationAct.The legislativepurposeofsection91R(3)wastoovercometheperceivedanomalythatarefugee applicantcouldengageinconductoutsideofhisorhercountryofnationalityforthesole purposeofcreatingorstrengtheningaclaimtohaveawellfoundedfearofpersecutionshould thatpersonbereturnedtohisorhercountryofnationality.Themajorityconcluded,onthebasis oftextualandcontextualanalysesofsection91R(3),thattheonlyconductwhichistobe disregardedinaccordancewiththatsectionisconductwhichwouldstrengthenapersonsclaim tobearefugeewithinthemeaningoftheRefugeesConvention.Iftheconductdoesnot strengthenapersonsclaimtobearefugee,thentheconductmaybetakenintoaccount.The HighCourtdeterminedbymajoritythattheRRThadnoterredineithermatter.120
MinisterforImmigrationandCitizenshipvSZMDS(2010)266ALR367 Inthiscase,theHighCourtconsideredwhethertheRRThadcommittedjurisdictionalerrorwhenit founditwasnotsatisfiedthattheapplicantwasahomosexualwhofearedpersecutionfortwokey reasons.ThefirstwashisreturntoPakistanforthreeweeksin2007andthesecondwashisfailure toseekasylumwhenhebrieflyvisitedtheUnitedKingdomin2006.TheMigrationActrequiresthe Minister,theirdelegate,ortheTribunaluponreviewofadecision,toeitherrefuseortograntavisa dependingonwhetherornottheyaresatisfiedthattheconditionsforthatvisaaremet.Onappeal, theFederalCourtfoundthattheTribunalsreasoningwasillogicalandirrational.However,the appealbytheMinistertotheHighCourtwassuccessful.Insummary,themajorityfoundthat:
119. HighCourtofAustralia,MinisterforImmigration&CitizenshipvSZIAI&Anor[2009]HCA39,mediarelease, 23September2009,viewed18March2010,http://www.hcourt.gov.au/media/MIAC_v_SZIAI.pdf 120. HighCourtofAustralia,MinisterforImmigrationandCitizenshipvSZJGV&AnorMinisterforImmigrationand CitizenshipvSZJXO&Anor[2009]HCA40,mediarelease,30September2009,viewed18March2010, http://www.hcourt.gov.au/media/MIAC_v_SZJGV_and_SZJXO.pdf
30
...itwasopentotheTribunaltorejectthefirstrespondentsclaimedfearofpersecutiononthe groundsthatitdid.Eventhoughreasonablemindsmaydifferastowhetherthefirst respondentsconductwassuchastobeinconsistentwithhisclaimedfear,thisalonewasnot enoughtosuggestthatthereasoningoftheTribunalwassoillogicalorirrationalastoamountto ajurisdictionalerror.121
Commentary
M Pelly, High Court reveals power shift in way refugee claims handled, The Australian, 27November2009 DHume,AsylumandtheHighCourt,AustralianPolicyOnline,30July2010
AppendixIFederalParliamentaryInquiries
Anumberofsignificantfederalparliamentaryinquirieswereundertakenorcompletedduring Laborsfirstterminoffice:
JointStandingCommitteeonMigration
ImmigrationdetentioninAustralia
On5June2008,theJointStandingCommitteeonMigration(JSCM)commencedaninquiryinto immigrationdetentioninAustralia.Therewere461peopleinimmigrationdetentioninAustraliaat thistime. 122 TheCommitteeissuedamediastatementinwhichtheCommitteechairperson,Michael DanbyMPstated:
Ahumanitarianapproachthattreatsallpeoplewithdignityneedstobeintegratedinto AustralianpolicyonoverseasarrivalsThisinquiryisanimportantinitiativeinsettingAustralias immigrationdetentionpoliciesandexploringoptionsforthefuture.Iencourageallthosewho havehadexperienceofimmigrationdetentiontocontributetothisinquiryandhelpshapeboth afairerandmoreefficientsystem. 123
Significantly,theMinistersNewdirectionsindetentionpolicyannouncementwasmadepartway throughtheJointStandingCommitteeonMigrationsinquiryintoimmigrationdetentionin Australia.TheCommitteechairpersonnotedthatMinisterEvansannouncementssignalleda paradigmshiftinAustralianpolicyandtheCommitteewelcomedtheannouncementofthe
121. HighCourtofAustralia,MinisterforImmigrationandCitizenshipvSZMDS&Anor[2010]HCA16,mediarelease, 26May2010,viewed8September2010,http://www.hcourt.gov.au/media/SZMDS.pdf 122. JointStandingCommitteeonMigration,Newinquiryintoimmigrationdetention,mediarelease,10June2008, viewed1December2009,http://www.aph.gov.au/house/committee/mig/detention/media/media01.pdf 123. Ibid.
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values. 124 InlightoftheGovernmentsannouncement,theCommitteerecogniseditsobjectivewas to:

...setopenandtransparentguidelinesthatwouldenabletheimplementationofthenewvalues oftheAustralianGovernment...TheCommitteehassoughttoidentifywhatwebelievetobethe issuesforimplementationarisingfromthereleasecriteriaoutlinedintheMinistersstatement ofvalues. 125
Firstreport:Criteriaforreleasefromdetention
On1December2008,theCommitteetableditsfirstreportentitledImmigrationdetentionin Australia:AnewbeginningCriteriaforreleasefromdetention. 126 Thisreportaddressedthe Committeesfirsttwotermsofreference:
the criteria that should be applied in determining how long a person should be held in immigrationdetention the criteria that should be applied in determining when a person should be released from immigrationdetentionfollowinghealthandsecuritychecks
TheCommitteemade18recommendationsincluding:

5daytimeframesforhealthchecks upto90daysforthecompletionofsecurityandidentitychecks,afterwhichconsiderationmust begiventoreleaseontoabridgingvisa amaximumtimelimitof12monthsdetentionforallexceptthosewhoaredemonstratedtobea significantandongoingrisktothecommunity,and amendmentoftheMigrationActtoenshrineinlegislationthereformstoimmigrationdetention policyannouncedbytheMinisterforImmigrationandCitizenshipon29July2008. 127
AjointdissentingreportbyformerLiberalPartyMP,PetroGeorgiou,LiberalPartySenatorDrAlan EgglestonandAustralianGreensSenator,SarahHansonYoungwasalsoissuedinwhichthey expressedtheviewthatpublicservantsshouldnothavetheunfetteredpowertodetainapersonfor 12monthswithoutindependentexternalscrutiny.Intheiropinionifthedetentioncriteriaare
124. JointStandingCommitteeonMigration,ImmigrationdetentioninAustralia:AnewbeginningCriteriaforrelease fromdetention,Canberra,December2008,viewed12January2010, http://www.aph.gov.au/house/committee/mig/detention/report.htm 125. Ibid. 126. Ibid. 127. Ibid.,p.ix.
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enshrinedinlawasrecommended,theproposedmaximum12monthtimeperiodisgrossly excessive. 128
Commentary

YNarushima,Yearindetentionexcessive,SydneyMorningHerald,2December2008 SSmiles,Callforendtobillingofdetainees,TheAge,2December2008 Australian Associated Press (AAP), MPs want visas for detained arrivals, The Australian, 2December2008 JMassola,Releaseasylumseekerswithinayear,CanberraTimes,2December2008
Secondreport:Communitybasedalternativestodetention
On25May2009,theCommitteetableditssecondreportentitledImmigrationdetentionin Australia:Communitybasedalternativestodetention. 129 ThisreportaddressedtheCommitteeslast termofreference:
optionsforadditionalcommunitybasedalternativestoimmigrationdetentionby
inquiringintointernationalexperience; consideringthemannerinwhichsuchalternativesmaybeutilisedinAustraliatobroadenthe
optionsavailablewithinthecurrentimmigrationdetentionframework;
comparingthecosteffectivenessofthesealternativeswithcurrentoptions
reform the bridging visa framework to comprehensively support those released into the community,withappropriatereportingorsuretyrequirements,and utilise the reformed bridging visa framework in lieu of community detention until a persons immigrationstatusisresolved. 130
AdissentingreportwasissuedbyformerLiberalPartyMP,PetroGeorgiouinwhichheexpressedthe viewthat:
128. CoalitionandAustralianGreens,Dissentingreport,DissentingreportbyMrPetroGeorgiouMP,SenatorDrAlan EgglestonandSenatorSarahHansonYoung,ImmigrationdetentioninAustraliaanewbeginning:Criteriafor releasefromdetention,theSenate,Canberra,December2008. 129. JointStandingCommitteeonMigration,ImmigrationdetentioninAustralia:Communitybasedalternativesto detention,Canberra,May2009,viewed12February2010, http://www.aph.gov.au/house/committee/mig/detention/report2.htm 130. Ibid.,p.xi.
33
WhiletheCommitteesrecommendationtoshifttoamodelofreleasebybridgingvisaisamove intherightdirection,itfailsthetransparencytestbecausethecrucialdecisionofwhetherto grantabridgingvisaissubjecttonoindependentexternaljudicialscrutiny. 131
AminorityreportwasalsoissuedbythenShadowMinisterforImmigrationandCitizenship,theHon. DrSharmanStoneMPinwhichsheexpressedtheviewthatshedidnotsupporttheproposednew bridgingvisaframework:

Inmyconsideredopiniontheproposednewbridgingvisaframeworkdoesnotcomprehensively meettheagreedconsiderationsandcriteria,nordoesithelptodeterpeoplesmugglersfrom targetingAustraliaasapreferreddestination...Abetteralternativeforthoseunlawfulnon citizenscurrentlyindetentionastheyseekaresolutiontotheirasylumseekerstatusisforDIAC tocommiteverypossibleresourcetoresolvingtheindividualsstatus,withadditionalresources committedtodothisworkifrequired.Iftheirclaimisrejected,theindividualshouldcontinueto bedetainedinoneoftheexcellenttransitfacilitiesuntilswiftlydeported.Iftheychooseto appeal,theyshouldremainindetentionuntiltheappealisresolved.132
Commentary
Y Narushima, Liberals divided over tough stance on asylum seekers, Sydney Morning Herald, 26May2009 JMassola,Asylumseekerrulechangesurged,CanberraTimes,26May2009
Thirdreport:Facilities,servicesandtransparency
On18August2009,theCommitteetableditsthirdreportentitledImmigrationdetentionin Australia:Facilities,servicesandtransparency. 133 ThisreportaddressedtheCommitteesremaining termsofreference:

optionstoexpandthetransparencyandvisibilityofimmigrationdetentioncentres thepreferredinfrastructureoptionsforcontemporaryimmigrationdetention optionsfortheprovisionofdetentionservicesanddetentionhealthservicesacrosstherangeof current detention facilities, including Immigration Detention Centres (IDCs), Immigration ResidentialHousing,ImmigrationTransitAccommodation(ITA)andcommunitydetention
131. PGeorgiou,DissentingreportbyMrPetroGeorgiouMP,ImmigrationdetentioninAustraliaCommunitybased alternativestodetention,theSenate,Canberra,May2009. 132. SStone,MinorityReportbytheHon.DrSharmanStoneMP,ImmigrationdetentioninAustraliaCommunitybased alternativestodetention,theSenate,Canberra,May2009. 133. JointStandingCommitteeonMigration,ImmigrationdetentioninAustralia:Facilities,servicesandtransparency, Canberra,viewed12March2010,http://www.aph.gov.au/house/committee/mig/detention/report3.htm
34
reconstructionofStage1atVillawoodremainsurgentandapriorityoftheCommittee theupgradeofthePerthimmigrationdetentioncentreproceedasproposedandtheAustralian Government examine long term options with the intent to establish a purpose built longterm facility all caged walkways, perspex barriers, and electrified fencing be removed from the North West Pointimmigrationdetentioncentreandreplacedwithmoreappropriatesecurityinfrastructure, and all razor/barbed wire fencing is removed from all immigration detention centres and replaced withmoreappropriatefencing.
AdissentingreportwasissuedbyformerLiberalPartyMP,PetroGeorgiouinwhichherecordsa numberofconcernsregardingtheCommitteesreport:
Thefirstisinrelationtothedetentionofchildrenatimmigrationdetentionfacilitiesbothonand offshore,andtheCommitteesrepeatedfailuretoadequatelyaddressthisissueinitsreports. Thesecondisthethirdreportslackofrecommendationregardingtheestablishmentofan ImmigrationDetentionHealthReviewCommission.ThethirdisthattheCommittees recommendationsonimprovingtransparencyinthisanditsotherreportsareinadequateinthat theonlyreliablemechanismforensuringindependentoversightofdetentiondecisionsis throughindependent,judicialreview.134
AdissentingreportwasalsoissuedbyAustralianGreensSenator,SarahHansonYounginwhichshe notedconcernsthattheCommitteesreportfailstoincludeappropriateanddetailed recommendationsregardinginfrastructure;securityfeaturesofImmigrationResidentialHousing (IRH)andImmigrationTransitAccommodation(ITA);immigrationdetentioncontracts;healthcare services;andtransparency. 135 Tothisend,theAustralianGreensproposed20additional recommendations. ThenShadowMinisterforImmigrationandCitizenship,theHon.DrSharmanStoneMPalsoissueda briefminorityreportinwhichsheexpressedtheviewthatshewasprecludedfromsupportingthe CommitteesrecommendationsonthebasisthatshehadjoinedtheCommitteeaftermostofthe evidenceandinspectionsthatformthebasisofallthreereportshadbeentaken. 136 Attimeofwriting,theGovernmenthadnotyetissuedaresponsetoanyoftheJointStanding Committeesthreereports.
134. PGeorgiou,DissentingreportbyMrPetroGeorgiouMP,ImmigrationdetentioninAustraliaFacilities,servicesand transparency,theSenate,Canberra,August2009. 135. SHansonYoung,DissentingreportbySenatorSarahHansonYoung,ImmigrationdetentioninAustraliaFacilities, servicesandtransparency,theSenate,Canberra,August2009. 136. SStone,MinorityreportbytheHon.DrSharmanStoneMP,ImmigrationdetentioninAustraliaFacilities,services andtransparency,theSenate,Canberra,August2009.
35
Inquiryintomigrationtreatmentofdisability
On26November2008,theMinisterforImmigrationandCitizenshipandtheParliamentary SecretaryforDisabilitiesandChildrensServicesannouncedthattheJointStandingCommitteeon MigrationwouldundertakeaninquiryintothehealthrequirementintheMigrationActandhowit impactsonpeoplewithadisability. 137 TheCommitteenotedthattheinquirywassetupfollowing severalcasesinrecentyearsofindividualsandfamiliesrefusedvisasonthebasisoftheirownora familymembersdisability. 138 TheCommitteestermsofreferencewereasfollows:
Reportontheoptionstoproperlyassesstheeconomicandsocialcontributionofpeoplewitha disabilityandtheirfamiliesseekingtomigrateAustralia Report on the impact on funding for, and availability of, community services for people with a disabilitymovingtoAustraliaeithertemporarilyorpermanently Reportonwhetherthebalancebetweentheeconomicandsocialbenefitsoftheentryandstay ofanindividualwithadisability,andthecostsanduseofservicesbythatindividual,shouldbea factorinavisadecision Reportonhowthebalancebetweencostsandbenefitsmightbedeterminedandtheappropriate criteriaformakingadecisionbasedonthatassessment,and Reportonacomparativeanalysisofsimilarmigrantreceivingcountries. 139
On21June2010theCommitteetableditsreportentitledEnablingAustralia:Inquiryintothe MigrationTreatmentofDisability. 140 Chapterfiveevaluatesamongstotherthings,theexperienceof refugeefamiliesthathavebeennegativelyaffectedbyAustraliasmigrationhealthrequirement.In recognisingthatrefugeeandhumanitarianvisaapplicantswithdisabledrelativesareoneofa numberofcategoryoffamiliesaffectedbytheoperationoftheHealthRequirement,theCommittee recommendedthattheAustralianGovernmentreviewtheoperationoftheonefails,allfails
137. CEvans(MinisterforImmigrationandCitizenship),ParliamentaryCommitteeToInvestigateMigrationAndDisability, mediarelease,26November2008,viewed12March2010, http://www.chrisevans.alp.org.au/news/1108/immimediarelease2603.php 138. JointStandingCommitteeonMigration,Newinquirylaunchedintomigrationtreatmentofdisability,mediarelease, 13August2009,viewed2December2009, http://www.aph.gov.au/house/committee/mig/disability/media/media01.pdf 139. CEvans(MinisterforImmigrationandCitizenship),Termsofreferenceformigrationanddisabilityinquiryannounced, Canberra,15May2009,viewed2December2009, http://www.chrisevans.alp.org.au/news/0509/immimediarelease1502.php 140. JointStandingCommitteeonMigration,EnablingAustralia:InquiryintotheMigrationTreatmentofDisability, 21June2010,viewed17August2010, http://www.aph.gov.au/house/committee/mig/disability/report/Final%20report.pdf
36
criterionundertheMigrationRegulations1994toremoveprejudicialimpactsonpeoplewitha disability. 141 TheCommitteealsorecommendedthat:

...theAustralianGovernmentamendtheMigrationRegulations1994toprovideaccessto considerationofawaivertooffshorerefugeevisaapplicantsinvolvingdisabilityorhealth conditionsoncompellingandcompassionategrounds.Considerationshouldalsobegivento extendedfamilymembersforthesametreatmentinthesamecircumstances. 142
TheCommitteewasoftheviewthatspecialconsiderationwasneededtoassistsaclassofrefugees andtheirfamilieswhohavesustainedextremesofviolenceresultinginadisabilityintheirhome countries.Accordingly,itrecommendedthat:

...theAustralianGovernmentamendtheMigrationRegulations1994toprovideaccessto considerationofawaivertooffshorerefugeevisaapplicantsinvolvingdisabilityorhealth conditionsoncompellingandcompassionategrounds.Considerationshouldalsobegivento extendedfamilymembersforthesametreatmentinthesamecircumstances. 143
Commentary

NBita,UnitedNationsblastsHIVtestsonasylumseekers,TheAustralian,29January2010 CJohnson,Policyonmigrantdisability`outmoded,CanberraTimes,22June2010 YNarushima,Calltochangedisabilitybiasofmigrationlaw,SydneyMorningHerald,24June 2010
JointStandingCommitteeonPublicWorks
TheChristmasIslandImmigrationDetentionCentreProject
OnMonday22September2008,theJointStandingCommitteeonPublicWorks(PWC)tabledits reportentitledUpdateReport:TheChristmasIslandImmigrationDetentionCentreProject. 144 Bywayofbackgroundtotheinquiry,actingChairperson,SenatorTroethnoted:
InDecember2003theParliamentaryStandingCommitteeonPublicWorks(PWC)ofthe40th ParliamenttableditsreportintotheproposedrespecifiedChristmasIslandImmigration ReceptionandProcessingCentre.Thetotalestimatedcostoftheproposalwas$276.2million,
141. Ibid.,p.125129. 142. Ibid.,p.134. 143. Ibid. 144. JointStandingCommitteeonPublicWorks,UpdateReport:TheChristmasIslandImmigrationDetentionCentre Project,Canberra,September2008,viewed12January2010, http://www.aph.gov.au/house/committee/pwc/christmasisland08/report/fullreport.pdf
37
including$197.7millionfromthethenDepartmentofFinanceandAdministration(Finance)to bringtheprojecttocompletion. InJanuary2008theCommitteereceivedaletterfromFinancerequestingitsconcurrencefora costincreasefortheproposal,renamedtheChristmasIslandImmigrationDetentionCentre Project.Thecostoftheoriginalproposalhadgrownto$396million145
Inbrief,theCommitteeconcludedthatitwasnotsatisfiedthattheadditionalcostsassociatedwith theplanningandconstructionoftheChristmasIslandImmigrationDetentionCentrewasjustified:
Thekeyfactorscitedsuchastheisolationofthelocation,thehightransportcosts,competition withtheboomingminingsectorandprojectdesigndocumentationexpenses,shouldhavebeen foreseenTheCommitteehasexpresseditsconcernsabouttheprojecttotheAuditorGeneral, whoseagency,theAustralianNationalAuditOffice,iscurrentlyundertakinganauditofthe projectintermsofitscompliancewiththePublicWorksCommitteeAct1969. 146
RedevelopmentoftheVillawoodimmigrationdetentionfacility
On23November2009,thePublicWorksCommitteetableditsreportontheinquiryintothe VillawoodImmigrationDetentionCentre(VIDC)entitledRedevelopmentoftheVillawood ImmigrationDetentionFacility. 147 Section17ofthePublicWorksCommitteeAct1969requiresthattheCommitteeconsiderandreport on:

thepurposeoftheworkanditssuitabilityforthatpurpose theneedfor,ortheadvisabilityof,carryingoutthework whetherthemoneytobeexpendedontheworkisbeingspentinthemostcosteffectivemanner theamountofrevenuetheworkwillgeneratefortheCommonwealth,ifthatisitspurpose,and thepresentandprospectivepublicvalueofthework.
TheCommitteereceived6submissions,heldpublicandincamerahearingsandinspectedthe redevelopedMaribyrnongDetentionFacilityinMelbourne.Italsoconductedaninspectionofthe VIDCandconductedprivateinformaldiscussionswithsomedetaineestogaininsightastotheir experiencesandtheirviewsoftheproposal.

145. Ibid.SeealsoJointStandingCommitteeonPublicWorks,Constructionofarespecifiedimmigrationreceptionand processingcentreonChristmasIsland,2December2003,viewed12January2010, http://www.aph.gov.au/house/committee/pwc/christmas/report.htm 146. JointStandingCommitteeonPublicWorks,UpdateReport:TheChristmasIslandImmigrationDetentionCentre Project,op.cit,pp.78. 147. JointStandingCommitteeonPublicWorks,RedevelopmentoftheVillawoodImmigrationDetentionFacility, Canberra,November2009,viewed12February2010, http://www.aph.gov.au/house/committee/pwc/villawood09/report/report.pdf
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TheCommitteeobservedthat:
Overall,theVIDClooksandfeelslikeanantiquatedprison,withanoppressiveuseofhighwire fences,littlegreenspaceandshelteredoutdoorareas,nofreelyaccessibleindoorareas(other thanaccommodationblocks),andanalmostcompletelackofpersonalprivacyandimposing securityfeatures.Inaddition,conditionsforstaffareinadequate,posinganumberofhealthand safetyrisks.148
Theproposedredevelopmentaimstoprovidenewandrefurbishedfacilitiesforpeopleindetention andstaff.Thetotalestimatedcostoftheredevelopmentis$186.7million.Overall,theCommittee wassatisfiedthattheprojecthadmeritintermsofneed,scopeandcost. 149 TheCommitteemade10recommendationsincluding:

thefacilitiesknownasStage1bedemolishedaspartofthecurrentprogramofworks DIAC provide each person with access to an adequate lockable space in which to secure their personalbelongings DIAC cease the use of the loudspeaker system to page detainees and implement a method of contactingdetaineesthatrespectstheirrighttoprivacy theDepartmentofFinanceandDeregulationpresentthedetaileddesignfortheredevelopment of Stage 2 and Stage 3 of the Villawood Immigration Detention Facility to the Committee for examinationpriortoconstructioncommencing the detailed design for the Villawood Immigration Detention Facility address the management planforpotentialsurgeconditions,and theHouseofRepresentativesresolvethatitisexpedienttocarryouttheredevelopmentofthe VillawoodImmigrationDetentionFacility.
AppendixIIIndependentReports
AnumberofsignificantreportsbyindependentagencieswerereleasedduringLaborsfirsttermin office:
AustralianHumanRightsCommission
2007Immigrationdetentionreport
InDecember2007,theAustralianHumanRightsCommission(AHRC)releasedits2007immigration detentionreportentitledSummaryofobservationsfollowingtheinspectionofmainlandimmigration
148. Ibid.,p.9. 149. Ibid.,p.28.
39
detentionfacilities. 150 Thereportwasreleasedfollowingvisitstosevendetentionfacilitiesandto peopleincommunitydetentionduringtheperiodAugusttoNovember2007.Thepurposeofthe visitswasto(amongstotherthings)monitortheconditionsofdetentionforcompliancewith internationallyrecognisedhumanrightsobligations. 151 Initsreport,theCommissionnoted continuedimprovementsintheapproachandattitudeofdetentioncentrestaff,inthephysical environmentofthecentresandtheprovisionofinternetfacilities.However,itexpressed disappointmentthattherehadbeennoimprovementstostage1ofVillawoodImmigration DetentionCentre,thescalingbackoftheexternalexcursionsprogram,andthatdetaineescontinued tobeheldindetentionforprolongedperiodsoftime.Itsubsequentlymade26recommendations forimprovementacrossarangeofareas. Somekeyrecommendationsincluded:
Australiasmandatorydetentionlawsshouldberepealed;whiledetentionmaybeacceptablefor a short period in order to conduct security, identity and health checks, currently mandatory detentionlawsrequiredetentionformorethanthesepurposes,forunlimitedperiodsoftimeand in the absence of independent review of the need to detain. In the absence of repealing mandatorydetention,thereshouldbegreatereffortstopromptly(withinthreemonths)release ortransferpeopleoutofdetentioncentres greatereffortsshouldbemadetoarrangeresidencedeterminationsforpeoplewhoaredetained inexcessofthreemonths,wheretherearenocharacterconcernsorthereisnoriskoftheperson absconding childrenandtheirfamiliesshouldonlybedetainedinResidentialHousingforamaximumperiod offourweekswhileunaccompaniedchildrenshouldonlybedetainedforamaximumperiodof twoweeks,and stage 1 of Villawood Immigration Detention Centre should be demolished and renovations at PerthImmigrationDetentionCentreshouldtakeplacepromptly.
DIACandtheprivatecontractorsinvolvedindetentioncentreservicesissuedseparateresponsesto thereportavailableontheCommissionswebsite. 152 Inaddition,theMinisterissuedamedia statementstatingthathewelcomedtheCommissionsreportbutnotedthat:

Thereareanumberofimmigrationanddetentionmattersthatneedresolvingasaconsequence ofthemishandlingandpoliticalmeddlingbyasuccessionofHowardGovernmentministersWe needtofixtheseproblems. 153
150. AustralianHumanRightsCommission,,Summaryofobservationsfollowingtheinspectionofmainlandimmigration detentionfacilities,December2007,viewed28January2010, http://www.hreoc.gov.au/pdf/human_rights/asylum_seekers/summary_idc_report07.pdf 151. Ibid.,p.10. 152. Ibid. 153. CEvans(MinisterforImmigrationandCitizenship),MinisterWelcomesHREOCReport,mediarelease,9January2008, viewed28January2010,http://www.chrisevans.alp.org.au/news/0108/immimediarelease0901.php
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2008Immigrationdetentionreport
On13January2009,theCommissionreleasedits2008immigrationdetentionreportentitled2008 Immigrationdetentionreport:SummaryofobservationsfollowingvisitstoAustraliasimmigration detentionfacilities. 154 Thereportwasreleasedfollowingvisitstodetentionfacilitiesandtopeoplein communitydetention,duringtheperiodJunetoSeptember2008tomonitortheconditionsof detentionforcompliancewithinternationallyrecognisedhumanrightsobligations.Initsreport,the Commissionexpressedconcernthat:
somepeoplearestillheldindetentionforprolongedandindefiniteperiodsoftime(someupto sixyears) offshoreprocessingcontinuesonChristmasIslandinwhatitdescribesasaformidableandhigh securityfacilitythatshouldnotbeused childrencontinuetobeheldinotherclosedimmigrationdetentionfacilities,and stage 1 of Villawood Immigration Detention Centre continues to be used despite repeated recommendationsthatitshouldbeabolished. 155
Itsubsequentlymade62recommendations.Somekeyrecommendationsincluded:
theMigrationActshouldbeamendedsothatimmigrationdetentionoccursonlywhennecessary, the decision to detain is subject to prompt review by a court, and that periodic independent reviewsoftheongoingneedtodetainandamaximumtimelimitfordetentionisincluded theminimumstandardsforconditionsandtreatmentofpersonsindetentionshouldbecodified a comprehensive redevelopment of the Villawood and Perth Immigration Detention Centres shouldbeundertakenasamatterofpriority greateruseshouldbemadeofthecommunitydetentionarrangements,and a new client placement model should be implemented to reflect the Governments new directionsinimmigrationdetention. 156
DIACandAustralianFisheriesManagementAuthority(AFMA)issuedseparateresponsestothe report,availableontheCommissionswebsite. 157
154. AHRC,2008Immigrationdetentionreport,January2009,viewed28January2010, http://www.hreoc.gov.au/human_rights/immigration/idc2008.html 155. Ibid.,p.4. 156. Ibid.,pp.513. 157. Ibid.
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2009ImmigrationdetentionandoffshoreprocessingonChristmasIsland
InOctober2009,theCommissionreleasedareportentitled2009Immigrationdetentionand offshoreprocessingonChristmasIsland. 158 Thereportwasreleasedfollowingitsvisittoimmigration detentionfacilitiesonChristmasIslandduringJuly2009tomonitortheextenttowhichthe detentionoperationscomplywithinternationallyrecognisedhumanrightsstandards. 159 Inits report,theCommissionexpressedconcernabout:
the effect of excision and offshore processing on asylum seekers (that is, the use of a non statutory process, no access to the Refugee Review Tribunal, very limited access to Australian courts and dependant upon exercise of a noncompellable and nonreviewable Ministerial discretiontobepermittedtoapplyforavisa) themandatorydetention,withoutjudicialoversightofasylumseekers(includingchildren)when theMigrationActdoesnotrequireit the detention of some children (including unaccompanied ones) in a closed immigration detentionfacilitytheconstructioncamp the inappropriateness of detention in a small and remote community which limits asylum seekers access to appropriate services, makes it difficult to ensure implementation of the Governments new directions in detention policy (especially with the shortage of community based accommodation), and makes detention operations less visible and transparent to the Australianpublicandlessaccessiblebyexternalscrutinybodies,and the inappropriateness of existing detention facilities for detaining asylum seekers, particularly thosethathavesufferedtortureortrauma. 160
Itsubsequentlymade22recommendations.Somekeyrecommendationsincluded:
repeal provisions of the Migration Act relating to excised offshore places and section 494AA whichbarscertainlegalproceedingsfrombeingcommencedbyoffshoreentrypersons abolish the policies of processing asylum claims through a nonstatutory refugee status assessmentprocessandmandatorilydetainingallunauthorisedboatarrivals stopusingChristmasIslandasaplaceinwhichtoholdpeopleinimmigrationdetention stop detaining children in the construction camp, the secure compound of the Phosphate Hill facilityortheChristmasIslandImmigrationDetentionCentre removeallcagedwalkways,perspexbarriersandelectrifiedfencingandreplacethemwithmore appropriatesecurityinfrastructure,and
158. AHRC,2009ImmigrationdetentionandoffshoreprocessingonChristmasIsland,op.cit. 159. TheCommissionconductedastandalonevisittoChristmasIslandonthebasisofthesignificantnumberofpeople beingheldthere(733atthetimeoftheCommissionsvisit),thelimitedaccesstheyhavetotheAustralianlegal system,andthelackofpubliclyavailableinformationaboutdetentionoperationsontheIsland:Ibid.,pp.1012. 160. Ibid.,pp.45.
42
ensure that detainees are provided with access to appropriate health and mental health care servicesequivalenttothatprovidedtodetaineesonthemainland. 161
DIACissuedaresponsetothereportwhichisavailableontheCommissionswebsite. 162
CommonwealthOmbudsman
Notificationofdecisionsandreviewrightsforunsuccessfulvisaapplications
InDecember2007theCommonwealthOmbudsmanreleaseditsreportentitledNotificationof DecisionsandReviewRightsforUnsuccessfulVisaApplications. 163 Thereportfollowedan investigationwhichcommencedon30June2006toassesswhethertheDepartmentsadviceto applicantsthattheirvisaapplicationhadbeenrefusedcompliedwiththenotificationrequirements intheMigrationAct,anddemonstratedgoodpracticeoncommunicatingwithclientsofthe AustralianGovernment. 164 Insummary,theOmbudsmanfoundthat:
DIACsoverallmanagementofnotificationofadversedecisionsisnotcoordinatedor consistent.Therewassignificantvariationinthequalityofinformationpresentedinnotification letters,manyofwhichfellconsiderablyshortofbestpracticestandards.Insomeinstances,this limitedavisaapplicantsabilitytoseekrevieworsuccessfullyreapply.Inotherinstances,the informationwasoverlycomplex,confusingandpoorlypresented.165
TheOmbudsmansubsequentlymadethreerecommendations,allofwhichwereacceptedbythe ImmigrationDepartment.TheDepartmentsresponseissetoutattheendoftheOmbudsmans report. 166
Reportingonpeopleinlongtermimmigrationdetention
Since2005,theImmigrationDepartmenthasbeenrequiredtoprovidetheOmbudsmanwith informationrelatingtothecircumstancesofapersonsdetentionwhentheyhavebeenindetention foraperiod,orperiods,totallingtwoyears. 167 TheOmbudsmanmakesanassessmentastothe appropriatenessofthedetentionarrangementsandtheMinistertablesaneditedversionofthe
161. Ibid.,pp.69. 162. Ibid. 163. CommonwealthOmbudsman,NotificationofDecisionsandReviewRightsforUnsuccessfulVisaApplications, December2007,viewed1February2010,http://www.ombudsman.gov.au/files/investigation_2007_15.pdf 164. Ibid.,p.1. 165. Ibid.,p.2. 166. Ibid. 167. Section486NoftheMigrationAct1958.
43
Ombudsmansreport,alongwitharesponsetoParliamentwithin15sittingdaysofreceipt. 168 The OmbudsmanmaymakeanyrecommendationsbuttheMinisterisnotboundtoadoptthem. Inadditiontothetwoyearstatutoryreview,sinceAugust2008theOmbudsmanhasbeenreviewing thecircumstancesofapersonsdetentionwheretheyhavebeenindetentionforlongerthansix months.ThesereviewsarenottabledinParliament,rathertheyareprovidedtotheImmigration DepartmentsSecretary.
When Labor won the 2007 federal election (November 2007), there were 487 people in immigration detentionincluding 85 asylum seekers. 74 people had been in detention for a periodinexcessoftwoyears One year later (November 2008), the immigration detention population had declined to 334 includingonly45asylumseekers.43peoplehadbeenheldindetentionforaperiodinexcessof twoyears By27November2009,thenumberofpeopleinimmigrationdetentionhadincreasedto1581 including937asylumseekers.20peoplehadbeenheldindetentionforaperiodinexcessoftwo years Bymid2010,therewere4116peopleinimmigrationdetentionincluding1606asylumseekers. 22peoplehadbeenheldindetentionforaperiodinexcessoftwoyears. 169
TheOmbudsmansdetentionreviewreportsonpeopleinlongtermimmigrationdetentionthat havebeentabledinParliament,togetherwiththeMinistersresponsetothereports,areavailable ontheOmbudsmanswebsite. 170
AustralianNationalAuditOffice
SettlementGrantsProgram
On21May2009,theAustralianNationalAuditOffice(ANAO)tableditsreportentitledSettlement GrantsPrograminParliament. 171 TheSettlementGrantsProgram(SGP)isafundingprogram administeredbyDIACthatassistseligiblemigrantsincludinghumanitarianentrantstobecomeself reliantandparticipateequitablyinAustraliansocietyafterarrival.Accordingtothereportthere havebeenthreeannualSGPfundingrounds.Justover$30millionhasbeenallocatedtoSGPprojects ineachround,amountingtoatotalof$95.5million.Thishasfunded669grants:209inthe200607 fundinground;231in200708;and230in200809. 172
168. Section486OoftheMigrationAct1958. 169. DIAC,SituationReportsasat30November2007,28November2008,27November2009,and25June2010. 170. CommonwealthOmbudsman,Immigrationdetentionreviewreports,Ombudsmanwebsite,viewed2September 2010,http://www.ombudsman.gov.au/reports/immigrationdetentionreview/ 171. AustralianNationalAuditOffice(ANAO),SettlementGrantsProgram,AuditReportNo.36200809,Canberra,viewed 19March2010,http://www.anao.gov.au/uploads/documents/200809_Audit_Report_36.pdf 172. Ibid.,p.13.
44
Theobjectiveoftheauditwasto:
assesstheeffectivenessoftheDepartmentofImmigrationandCitizenshipsmanagementof theSettlementGrantsProgram.TheANAOassessedDIACsperformanceintermsofhow effectivelyitplannedforfundingrounds,assessedandallocatedgrants,monitoredand evaluatedtheprogram,andmanagedrelationshipswithitsstakeholders.Indoingso,theANAO focusedonSGPprojectsthatreceivedfundinginthe200708.173
Theauditconcluded(amongstotherthings)that:
Overall,DIAChasdevelopedaneffectiveframeworkformanagingSGPHowever,DIAChasnot developedorimplementedeffectiveperformanceindicatorsandaperformancemanagement frameworkthatwouldassistittomeasure,monitorandassesstheperformanceofindividual projectsandtheprogramasawhole 174
TheANAOsubsequentlymadesixrecommendationstoimproveDIACsmanagementoftheSGP aimedatdevelopingandimplementinganeffectiveperformancemanagementframework, improvingsettlementneedsinformation,ensuringkeydecisionsareadequatelydocumented,and evaluatingtheprogram. 175
ConstructionoftheChristmasIslandImmigrationDetentionCentre
On23June2009,theANAOtableditsreportentitledConstructionoftheChristmasIsland ImmigrationDetentionCentreinParliament. 176 Theobjectiveoftheauditwastoassess:

theadequacyoftheplanninganddeliveryprocessesfortheproject the valueformoney achieved in the delivery of the project, including with regard to the suitabilityofthecentreforitsintendedpurpose,and theextenttowhichthePublicWorksCommitteeAct1969(PWCAct)andapprovedprocedures havebeencompliedwith. 177
Theauditconcludedthat:
TheCIIDC[ChristmasIslandImmigrationDetentionCentre]wasamoredifficultconstruction projectthanmanyothersundertakenbytheAustralianGovernment.Itinvolvednumerous challengesandrisksincludingtheisolationofChristmasIsland,shippingbeingadverselyaffected bytheswellseason(whichtypicallyrunsforfivemonthsfromNovembertoMarch),theabsence ofawharfsuitableforshipstoberthalongsideandthefacilitybeingconstructedonreclaimed mininglandthatwassurroundedbyaNationalPark.Inaddition,theconstructionworkswereof
173. Ibid.,p.13. 174. Ibid.,p.14. 175. Ibid.,p.14.ForafulllistoftherecommendationsandDIACresponsessee:pp.2123. 176. ANAO,ConstructionoftheChristmasIslandImmigrationDetentionCentre,AuditReportNo.43200809,Canberra, viewed12March2010,http://www.anao.gov.au/uploads/documents/200809_Audit_Report_43.pdf 177. Ibid.,p.48.
45
considerablescale(theCIIDCfacilitycomprisesmorethan50buildingsandassociated landscapingworks)withanambitiousdesignanddeliverytimetable,andatightbudget. TheCIIDCfacilityhasbeencompleted,hasbeenacceptedbyDIACasfitforitspurposeandis nowoperational.However,thisresulthascomeataconsiderablygreatercostthanbudgetedat thetimetheprojectwasrespecifiedandoverasubstantiallylongertimeframethanhadbeen expected.Inthiscontext,theaudithasunderlinedseveralimportantmessagesforagenciesto bearinmindwhenmanagingfutureconstructionprojects.178
TheANAOsubsequentlymadesixrecommendationsrelatingtosuchthingsastheadvicethatneeds tobegiventothePWCrelatingtotheextentandnatureofprojectuncertainties,andthe importanceeffectivelyintegratingfacilityconstructionworkwithinfrastructureworksandso forth. 179
Commentary
MMannheim,Suspectedasylumseekersheadforfantasyisland,CanberraTimes,24June2009
UnitedNationsHumanRightsTreatyBodies
CommitteeagainstTorture
TheCommitteeagainstTortureissueditsConcludingObservationsonAustraliaon15May2008. Withregardtothepresentcontext,theCommitteeexpressedconcernatthemandatorydetention policyforthosepersonswhoenterirregularlytheStatepartysterritory.Inthisrespect,the Committeewasespeciallyconcernedatthesituationofstatelesspeopleinimmigrationdetention whocannotberemovedtoanycountryandrisktobepotentiallydetainedadinfinitum.The CommitteerecommendedthatAustralia:
Considerabolishingitspolicyofmandatoryimmigrationdetentionforthoseenteringirregularly theStatepartysterritory.Detentionshouldbeusedasameasureoflastresortonlyanda reasonabletimelimitfordetentionshouldbeset;furthermore,noncustodialmeasuresand alternativestodetentionshouldbemadeavailabletopersonsinimmigrationdetention,and Takeurgentmeasurestoavoidtheindefinitecharacterofdetentionofstatelesspersons 180
TheCommitteealsorecommendedthatAustraliashouldendtheuseofexcisedoffshorelocations forvisaprocessingpurposesinordertoallowallasylumseekersanequalopportunitytoapplyfora visaandexplicitlyincorporateintodomesticlegislationtheprohibitionwherebynoStateparty shallexpel,returnorextraditeapersontoanotherStatewheretherearesubstantialgroundsfor
178. Ibid.,p.13. 179. Forafulllistofrecommendationsseepp.3436.
46
believingthathe/shewouldbeindangerofbeingsubjectedtotorture(nonrefoulement),and implementitinpractice. 181
HumanRightsCommittee
TheHumanRightsCommitteeissueditsConcludingObservationsonAustraliaon7May2009.With regardtothepresentcontext,theCommitteenotedAustraliascommitmenttousedetentionin immigrationdetentioncentresonlyinlimitedcircumstancesandfortheshortestpracticableperiod. However,itremainedconcernedatitsmandatoryuseinallcasesofillegalentry,theretentionof theexcisezone,aswellasatthenonstatutorydecisionmakingprocessforpeoplewhoarriveby boattotheAustralianterritoryandaretakentoChristmasIsland. 182 Italsoexpressedconcern regardingtheabsenceofeffectivereviewprocessesavailablewithrespecttodetentiondecisions.It subsequentlyrecommendedthatAustraliashould:
(a)considerabolishingtheremainingelementsofitsmandatoryimmigrationdetentionpolicy (b)implementtherecommendationsoftheHumanRightsandEqualityCommissionmadeinits ImmigrationDetentionReportof2008 (c)considerclosingdowntheChristmasIslanddetentioncentre,and (d)enactinlegislationacomprehensiveimmigrationframeworkincompliancewiththe Covenant. 183
TheCommitteealsoexpressedconcernregardingreportsofcasesinwhichAustraliahasnotfully ensuredrespectfortheprincipleofnonrefoulement.Itsubsequentlyrecommended:
TheStatepartyshouldtakeurgentandadequatemeasures,includinglegislativemeasures,to ensurethatnobodyisreturnedtoacountrywheretherearesubstantialgroundstobelievethat theyareatriskofbeingarbitrarilydeprivedoftheirlifeorbeingtorturedorsubjectedtoother cruel,inhumanordegradingtreatmentorpunishment.184
TheCommitteealsoexpressedconcernregardingtheprotectionofchildrenespeciallythosethatcan beheldinimmigrationdetentionfacilities,wheretheyaresometimessubjecttoabuse.Relevantly,it recommended:
180. CommitteeagainstTorture,ConcludingobservationsoftheCommitteeagainstTorture:Australia,Advanced uneditedversion,15May2008,viewed12February2010,http://www2.ohchr.org/english/bodies/cat/docs/co/CAT CAUSCO1.pdf 181. Ibid. 182. HumanRightsCommittee,ConcludingobservationsoftheHumanRightsCommittee:Australia,7May2009,viewed 12February2010,http://www2.ohchr.org/english/bodies/hrc/hrcs95.htm 183. Ibid. 184. Ibid.
47
TheStatepartyshouldimplementtherecommendationsoftheHumanRightsandEqual OpportunityCommissioninthisregard.Thesituationofchildrenindetentionshouldbe addressedwithintheStatepartysproposednewchildprotectionframework. 185
SeealsoAustraliasfourthreportundertheConventionontheRightsoftheChildandinitialreports underthatConventionstwoOptionalProtocolswhichweretabledinParliamentinJune2009. 186
AppendixIIIKeyResearchandPublications
Thefollowinglistisarrangedinchronologicalorder:
Commonwealth Ombudsman, Notification of decisions and review rights for unsuccessful visa applications,Reportno.15of2007,2007. Proust E, Report to the Minister for Immigration and Citizenship on the Appropriate Use of MinisterialPowersundertheMigrationandCitizenshipActsandMigrationRegulations,2008. RefugeeCouncilofAustralia,Australiasrefugeeandhumanitarianprogram:Communityviewson currentchallengesandfuturedirections,Sydney,2008. CommonwealthOmbudsman,Administrationofdetentiondebtwaiverandwriteoff,Reportno.2 of2008,2008. RefugeeCouncilofAustralia,WhobearsthecostofAustraliasSpecialHumanitarianProgram?, Sydney,2008. CommonwealthOmbudsman,TheSafeguardsSystem,Reportno.7of2008,2008. Australian Citizenship Test Review Committee, Moving forwardImproving Pathways to Citizenship,Canberra,2008. RefugeeReviewTribunal,Guidanceontheassessmentofcredibility,Sydney,2008. Simon K, Asylum Seekers, Briefing paper no. 13 of 2008, NSW Parliamentary Library Service, Sydney,2008. AHRC, Immigration detention and visa cancellation under section 501 of the Migration Act, Sydney,2009. AHRC,ComplaintsbyimmigrationdetaineesagainsttheCommonwealthofAustralia,ReportNo. 40,Sydney,2009. CommonwealthOmbudsman,UseofInterpreters:AFP,Centrelink,DEEWR,DIAC,ReportNo.3of 2009,2009.
185. Ibid. 186. AttorneyGeneralsDepartment,ReportsundertheConventionontheRightsoftheChild,AGwebsite,viewed 12March2010,http://www.ag.gov.au/www/agd/agd.nsf/Page/Humanrightsandanti discrimination_ReportsundertheConventionontheRightsoftheChild
48
CommonwealthOmbudsman,Detentionarrangements:thecaseofMrW,2009. Spinks H, Australias settlement services for migrants and refugees, Research paper, no. 29, ParliamentaryLibrary,Canberra,2009. KentLandAbuDuhouJTheSearchforProtection:Resettledrefugeesreflectonseekingasylumin AsiaandtheMiddleEast,RefugeeCouncilofAustralia,2009. RefugeeReviewTribunal,Guidanceonvulnerablepersons,Sydney,2009. DIAC,RefugeeandHumanitarianIssues:AustraliasResponse,2009. CommonwealthOmbudsmanDIAC:InvalidVisaApplications,ReportNo.10of2009,2009. Spinks H, Refugees and asylum seekers: a guide to key electronic resources, Background note, ParliamentaryLibrary,Canberra,2009. BrennanF,KostakidisM,WilliamsTandPalmerM,NationalHumanRightsConsultationReport, Canberra,2009. Karlsen E, Complementary protection for asylum seekers overview of the international and Australianlegalframeworks,Researchpaperno.7,ParliamentaryLibrary,Canberra,2009. Taylor J, Behind Australian Doors: Examining the Conditions of Detention of Asylum Seekers in Indonesia,2009. RefugeeCouncilofAustralia,FamilyreunionandAustraliasRefugeeandHumanitarianProgram: Adiscussionpaper,Sydney,2009. Buckmaster L, Australian government assistance to refugees: fact v fiction, Background note, ParliamentaryLibrary,Canberra,2009. Green JandEagarK,The healthofpeopleinAustralianimmigrationdetention centres, Medical JournalofAustralia,2010,192(2). Phillips J, Asylum seekers and refugees: what are the facts?, Background note, Parliamentary Library,Canberra,2010. Phillips J and Spinks H, Boat arrivals in Australia since 1976, Background note, Parliamentary Library,Canberra,2010. KarlsenE,PhillipsJandKolethE,SeekingAsylum:Australiashumanitarianresponsetoaglobal challenge,Backgroundnote,ParliamentaryLibrary,Canberra,2010. RefugeeCouncilofAustralia,Refugeepolicyinthe2010federalelectioncampaign:Whatthe partiesaresaying,Sydney2010.
49
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Developments in Australian Refugee Law and Policy 2007-10 Labor's First Term in Office

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Developments in Australian Refugee Law and Policy 2007-10 Labor's First Term in Office

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Parliament of Australia Department of Parliamentary Services

Inordertounderstandtheselegalandpolicydevelopmentsincontext,AppendixIandIIare includedwhichtogetherprovideanoverviewoffederalparliamentaryinquiriesandother independentreportsthatwerereleasedduringthistime.Forcompleteness,AppendixIIIprovidesa chronologicallistofkeyresearchandpublications.

TheBillsDigestexaminestheBillinfurtherdetail. 26 TheBillwaspassed(withminoramendments movedonbehalfoftheGovernment)on4September2008andbecameActNo.85,2008. 27

TheBillsDigestexplainstheBillinfurtherdetail. 33 TheBillwaspassedon14October2008(with amendmentsmovedonbehalfoftheGovernment)andbecameActNo.112,2008. 34

clarifythattheMigrationReviewTribunalandtheRefugeeReviewTribunalmayinviteaperson togiveinformation,eitherorally(includingbytelephone)orinwriting, reinstateeffectiveanduniformtimelimitsforapplyingforjudicialreviewofamigrationdecision intheFederalMagistratesCourt,FederalCourtandHighCourt,and

TheBillsDigestexplainstheBillinfurtherdetail. 37 TheBillwaspassedon12February2009and becameActNo.10,2009. 38

TheBillsDigestexplainstheBillinfurtherdetail. 41 TheBillwaspassedon8September2009and becameActNo.85,2009. 42

(readinconjunctionwiththe1967ProtocolrelatingtotheStatusofRefugees)(togethertheyform the1951RefugeeConvention). TheBillsDigestexaminestheBillinfurtherdetail,includingthefindingsoftheSenateLegaland ConstitutionalAffairsLegislationCommitteeinquiry. 57

However,section198AoftheMigrationActhasnotbeenrepealed. 59 Thisprovisionprovidesthe statutorybasisforoffshoreentrypersonstobetakentoadeclaredcountryforprocessing.A declaredcountryissimplyacountryinrespectofwhichadeclarationhasbeenmadeunder

Inhisspeech,theMinisteralsoconfirmedthatasylumseekersarrivingbyboatwouldbeprocessed onChristmasIslandandthenonstatutoryprocessingoftheirclaimswouldremain. 71 TheAustralian HumanRightsCommission(AHRC)explainstherefugeestatusassessment(RSA)processasfollows:

MGordon,Challengetoasylumsystem,TheAge,1May2010 PMaley,AsylumseekersaskHighCourtforlocalappeal,TheAustralian,25August2010 LWilson,Judgesquestionasylumloophole,TheAustralian,26August2010

78. SSmith(MinisterforForeignAffairs),CEvans(MinisterforImmigrationandCitizenship),andBOConner(Minister forHomeAffairs),ChangestoAustraliasimmigrationprocessingsystem,op.cit. 79. Ibid.

AllclaimsbyasylumseekersfromSriLankashouldbeconsideredontheirindividualmeritsin fairandefficientrefugeestatusdeterminationproceduresandtakingintoaccountuptodate andrelevantcountryoforigininformation. 84

On4June2010theMinisterannouncedtheappointmentof18newMembersandthere appointmentof25existingMemberstotheTribunalsforafiveyearterm(1July2010to30June 2015).EighteenMembersunsuccessfullysoughtreappointment. 95

RRTurgedtobesoft,AustralianFinancialReview,Hearsay,7May2010 ABolt,Opendoorpolicygetsaboost,HeraldSun,26May2010 ABolt,Ruddtobenefitfromsilentpurgethatwillusherinasylumseekers,HeraldSun,11June 2010 Refugeebiasfeared,AustralianFinancialReview,Hearsay,11June2010

Theinformationpublishedonlineincludesgeneralbackgroundinformation,commissionedresearch andopinionsfromacademicsandexpertsaswellasresponsesresearchedinanswertospecific questionsposedbyRRTmembersinrelationtoparticularreviews. ForfurtherinformationseetheRRTsCountryadvicewebpage. 97

Duringthe200809financialyeartheRRToverturned468Departmentdecisionsandaffirmedor agreedwiththeDepartmentsprimarydecisionin1787cases.Incomparison,undertheprevious CoalitionGovernment,duringthe200607financialyear649Departmentdecisionswere overturnedand2202caseswereaffirmed. 101

TheintakeandcompositionwillstillgotoCabinetannually.Forfurtherinformationseethe DepartmentsfactsheetentitledAustraliasRefugeeandHumanitarianProgram. 105

ForanalysisofsomeofthesemeasuresseetheParliamentaryLibrarysBudgetReview. 107 Seealso theRefugeeCouncilofAustralias200809budgetbriefWhatitmeansforrefugeesandthose requiringhumanitarianprotection. 108

ForanalysisofsomeofthesemeasuresseetheParliamentaryLibrarysBudgetReview. 110 Seealso theRefugeeCouncilofAustralias200910budgetbriefWhatitmeansforrefugeesandthose requiringhumanitarianprotection. 111

ForanalysisofsomeofthesemeasuresseetheParliamentaryLibrarysBudgetReview. 113 Seealso theRefugeeCouncilofAustralias201011budgetbriefWhatitmeansforrefugeesandthose requiringhumanitarianprotection. 114

thesubjectmatterandaccordinglytheHighCourtlackedtheauthoritytoremitthematterto theFMC. 116

MinisterforImmigrationandCitizenshipvSZIZO(2009)238CLR627 Inthiscase,theHighCourtconsideredwhethertheRRTsfailuretocomplywiththenotification requirementsundersection441GoftheMigrationActmeantthedecisionwasinvalid.Insummary themajorityfoundthat:

values. 124 InlightoftheGovernmentsannouncement,theCommitteerecogniseditsobjectivewas to:

enshrinedinlawasrecommended,theproposedmaximum12monthtimeperiodisgrossly excessive. 128

WhiletheCommitteesrecommendationtoshifttoamodelofreleasebybridgingvisaisamove intherightdirection,itfailsthetransparencytestbecausethecrucialdecisionofwhetherto grantabridgingvisaissubjecttonoindependentexternaljudicialscrutiny. 131

AminorityreportwasalsoissuedbythenShadowMinisterforImmigrationandCitizenship,theHon. DrSharmanStoneMPinwhichsheexpressedtheviewthatshedidnotsupporttheproposednew bridgingvisaframework:

criterionundertheMigrationRegulations1994toremoveprejudicialimpactsonpeoplewitha disability. 141 TheCommitteealsorecommendedthat:

TheCommitteewasoftheviewthatspecialconsiderationwasneededtoassistsaclassofrefugees andtheirfamilieswhohavesustainedextremesofviolenceresultinginadisabilityintheirhome countries.Accordingly,itrecommendedthat:

NBita,UnitedNationsblastsHIVtestsonasylumseekers,TheAustralian,29January2010 CJohnson,Policyonmigrantdisability`outmoded,CanberraTimes,22June2010 YNarushima,Calltochangedisabilitybiasofmigrationlaw,SydneyMorningHerald,24June 2010

TheCommitteereceived6submissions,heldpublicandincamerahearingsandinspectedthe redevelopedMaribyrnongDetentionFacilityinMelbourne.Italsoconductedaninspectionofthe VIDCandconductedprivateinformaldiscussionswithsomedetaineestogaininsightastotheir experiencesandtheirviewsoftheproposal.

Theproposedredevelopmentaimstoprovidenewandrefurbishedfacilitiesforpeopleindetention andstaff.Thetotalestimatedcostoftheredevelopmentis$186.7million.Overall,theCommittee wassatisfiedthattheprojecthadmeritintermsofneed,scopeandcost. 149 TheCommitteemade10recommendationsincluding:

148. Ibid.,p.9. 149. Ibid.,p.28.

DIACandtheprivatecontractorsinvolvedindetentioncentreservicesissuedseparateresponsesto thereportavailableontheCommissionswebsite. 152 Inaddition,theMinisterissuedamedia statementstatingthathewelcomedtheCommissionsreportbutnotedthat:

DIACandAustralianFisheriesManagementAuthority(AFMA)issuedseparateresponsestothe report,availableontheCommissionswebsite. 157

154. AHRC,2008Immigrationdetentionreport,January2009,viewed28January2010, http://www.hreoc.gov.au/human_rights/immigration/idc2008.html 155. Ibid.,p.4. 156. Ibid.,pp.513. 157. Ibid.

TheOmbudsmansubsequentlymadethreerecommendations,allofwhichwereacceptedbythe ImmigrationDepartment.TheDepartmentsresponseissetoutattheendoftheOmbudsmans report. 166

TheOmbudsmansdetentionreviewreportsonpeopleinlongtermimmigrationdetentionthat havebeentabledinParliament,togetherwiththeMinistersresponsetothereports,areavailable ontheOmbudsmanswebsite. 170

TheANAOsubsequentlymadesixrecommendationstoimproveDIACsmanagementoftheSGP aimedatdevelopingandimplementinganeffectiveperformancemanagementframework, improvingsettlementneedsinformation,ensuringkeydecisionsareadequatelydocumented,and evaluatingtheprogram. 175

TheANAOsubsequentlymadesixrecommendationsrelatingtosuchthingsastheadvicethatneeds tobegiventothePWCrelatingtotheextentandnatureofprojectuncertainties,andthe importanceeffectivelyintegratingfacilityconstructionworkwithinfrastructureworksandso forth. 179

178. Ibid.,p.13. 179. Forafulllistofrecommendationsseepp.3436.

believingthathe/shewouldbeindangerofbeingsubjectedtotorture(nonrefoulement),and implementitinpractice. 181

TheCommitteealsoexpressedconcernregardingtheprotectionofchildrenespeciallythosethatcan beheldinimmigrationdetentionfacilities,wheretheyaresometimessubjecttoabuse.Relevantly,it recommended:

TheStatepartyshouldimplementtherecommendationsoftheHumanRightsandEqual OpportunityCommissioninthisregard.Thesituationofchildrenindetentionshouldbe addressedwithintheStatepartysproposednewchildprotectionframework. 185

SeealsoAustraliasfourthreportundertheConventionontheRightsoftheChildandinitialreports underthatConventionstwoOptionalProtocolswhichweretabledinParliamentinJune2009. 186

185. Ibid. 186. AttorneyGeneralsDepartment,ReportsundertheConventionontheRightsoftheChild,AGwebsite,viewed 12March2010,http://www.ag.gov.au/www/agd/agd.nsf/Page/Humanrightsandanti discrimination_ReportsundertheConventionontheRightsoftheChild

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