Regional migration policy in Australia: settlement and economic outcomes

1. Regional migration policy in Australia: settlement and economic outcomes Kate Golebiowska, Charles Darwin University, Darwin, Australia Séminaire du Réseau international de recherche sur l’immigration en dehors des grands centres Sherbrooke, le 2 juin 2009

2. Presentation outline • Australia – overview • Policy framework and management • Definition of ‘regional Australia • Major drivers behind policy changes • Why migrants choose regions? • Who settles in regions? • Why migrants leave regions – case of NT • Recent regional visa statistics • Labour market participation – case of NT • Migrant obligations and rights • Policy outcomes so far: settlement, labour market • Future policy focus & academic research

3. Australia population: 20.7m (2006) Overseas-born: 24.6%, or approx.5m (2006) Contribution of net overseas migration to total pop. growth: 53 % (2006) Australia’s population density: 2.7 people per 1km2 Overseas-born in major urban areas (100,000 and over): 82% vs. 60% Australian-born (2001) Overseas-born in rural areas: 5% vs. 12% Australian-born (2001) Sources: ABS 2008a, 2008b, 2003, Geoscience Australia 2009.

4. Policy framework and management • Immigration – constitutional domain of the Federal Government • Regional skilled and business visas progressively introduced & modified since mid-1990s • Policy development and visa criteria consulted with State/Territory Governments • Concessional criteria for skilled & business migrants intended to attract them to settle and work in regions • no Charter of Rights & Freedoms. Temporary residence & minimum employment contracts aimed at enhancing retention in regions

5. Policy framework and management cont. • Migration - federal responsibility  all S/T access to same suite of visas • Core migration criteria are federal: age, English language level, skills levels, qualifications recognition, work/business experience; business investment levels, level of employment creation, etc. However, some tasks are delegated to S/T Governments and nominated regional bodies • In recognition of S/T economic variations, Governments design some own criteria (ie. determine skilled occupations in demand) • Governments/regional bodies certify employer applications for concessional regional skilled visas (temporary & permanent) as genuine vacancies and that these offers do not undermine opportunities for Australians

6. Policy framework and management cont. Stakeholders not engaged in determining migration criteria but who may contribute to migration outcomes • Municipalities - some community development initiatives focus on immigrant settlement & contribution, create positive image of immigrants • Community stakeholders (may include municipalities) initiate bringing in and settling immigrants. Sporadic (but successful) in some regional towns in Victoria under reg. dispersal strategy. Focus on refugees • Migrant settlement support agencies & other non-profit organisations respond to local needs • Universities – can gain financially. Typically cooperate with relevant S/T Governments, make their premises available for visa info sessions, can link students with local jobs (meets migration selection criteria)

7. Definition of ‘regional’ Australia

8. 3 major drivers of immigration policy changes since inception of regional schemes

9. Why migrants choose regions? • Specific job offer (temporary & permanent workers) • International students to obtain bonus points on skilled migration selection grid • Personal motivations (family) If not for concessional criteria, few migrants would be going to regional Australia as their first choice of settlement

10. Who settles in regions? Targeted by regional migration policy • Skilled workers (temporary & permanent visa holders) • Business migrants (temporary & permanent) • Former international students (not too successful) Federal Government decision • Refugees – happy to go wherever can start afresh (ie. considerable number resettled in Darwin, NT) All other personal, economic & lifestyle reasons • All groups above • Family migrants

11. Passers-by in regions • Some skilled migrants & international students • Seasonal workers – 2008 pilot program for selected Pacific island countries to work in horticulture. Modelled after long-standing NZ seasonal workers’ program for the Pacific islands. Temporary by design • Working Holiday Makers – holiday visa enabling to supplement holiday funds with work. Can work in any occupation, up to 6 mths with one employer. Tend to move around because want to see the country

12. Why migrants leave NT? • Better job offer elsewhere • Partner found a job elsewhere • Min. contract period fulfilled and now free to leave • To join established ethnic communities in large cities (ie. Zimbabweans) • To have the ‘large city’ lifestyle, which may include… • Access to wider range of services in large cities • Students tend to stay in NT after graduation

13. Recent growth in regional visas Sources: Population Flows, various editions.

14. Recent growth in regional visas cont. In this period, Australia has granted 126,840 regional visas (principal applicants & dependants) Sources: Population Flows, various editions.

15. Regional migrants as proportion of all arrivals & onshore visa grants Sources: Immigration Updates and Population Flows – various editions.

16. Labour market participation – skilled migrants & students in NT • Skilled migrants – highly-skilled & trades positions (doctors, chefs, car mechanics, etc.) • Some with highly-skilled qualifications not fully recognised in Australia and working at associate level positions • Students – p/t jobs in services • Post-graduation student employment – professional positions, few business owners/managers. No authoritative research to quote for all Australia.

17. Labour market participation – business migrants, refugees & WHMs in NT • Business migrants – export to SE Asia, some serve local market. Fragmented statistics, difficult to obtain all-regional Australia picture • Obliged to create/maintain employment for Australians. # of positions depends on size of business. Ranges between 2-30+ • Recent refugee arrivals typically unemployed – regardless of formal qualifications • WHMs – skilled/trades positions if qualifications recognised. Also in hospitality, tourism, etc.

18. Labour market participation of all overseas-born in NT • Have higher labour market participation rate than Australian-born 75% vs. 67% • Major industries of employment: health& comm. services (16%), property & business services (13%), gov. adm.& defence (12%), retail trade (12%), accomm., cafes & restaurants (11%) • Possible underemployment given their formal qualifications - 47% qualified as professionals but 28% employed in professional positions; - overall, 42% employed in lower-skilled occupations vs. 17% formally qualified to do so Sources: ABS 2006 Census unpublished statistics, DIAC unpublished statistics on occupations of permanent additions.

19. Obligations and rights – regional and independent skilled & business migrants

20. Policy outcomes so far – settlement • Growth in regional visa numbers until 2005-06, then levelled off • Regional settlement of international students largely unsuccessful. Until 2007 most remained as skilled independent migrants • Regional migrants prefer metro areas – hence highest visa numbers in VIC, SA • High visa numbers disguise settlement in metro areas • Stringent migration criteria (2007) and government response to GFC may tame future visa growth • Migrant outflows from regions occurs

21. Policy outcomes so far – labour market • Immigrants in regions may have higher labour market participation rate than Australian-born • Skilled migrants usually employed in professional & trades occupations • But some may be underemployed • Business migrants engaged in exports • Although skilled & business migrants make economic contribution to regions, their absolute numbers too low for any major scale impact • Policy benefits individual employers and job seekers

22. (Possible) future policy focus & academic research • Retention under 2-stage visas, how it can be improved • More community engagement in attraction & improving retention (opportunity for case studies in the future) • Labour market participation of regional migrants • Settlement patterns & economic outcomes of int’l students under stringent entry criteria • Can regional universities play a greater role in students’ attraction & retention? • Lessons drawing from other countries

23. Fot.J.Nowakowska