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TheAustralianPopulationResearchInstituteJuly2019

Australia’spartnervisaprogram:reformneeded

BobBirrell

Executivesummary...............................................................................................................................iii

Whoistakingupthepartnervisaoption?.....................................................................................iii

Australia’spartnervisaprogram:reformneeded...............................................................................1

Thesourceofpartnervisas...................................................................................................................2

Two-stepmigration.......................................................................................................................2

Chainmigration.............................................................................................................................2

Whyworryabouttwo-steporchainmigration?............................................................................3

Whyvisitthepartnervisaprogramnow?.....................................................................................3

BackgroundonAustralia’spartnervisa.................................................................................................4

Australia’ssoftrulesgoverningaccesstothepartnervisa............................................................4

Internationalcomparisons.............................................................................................................6

Whatisdrivingpartnervisaapplications?.............................................................................................6

Whatisthesizeofeachofthesepartnerpathways?............................................................................7

Relationshipsstemmingfrominternationalworkandtravel........................................................7

Two-stepmigration.......................................................................................................................7

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Whoistakingupthetwo-stepoption?..........................................................................................9

Chainmigration...........................................................................................................................11

Conclusion...........................................................................................................................................12

Reformproposals................................................................................................................................12

ProposalstostrengthenAustralianpartnervisarules.................................................................13

References...........................................................................................................................................15

Reportauthor

BobBirrell(mobile0413021126)istheHeadoftheAustralianPopulationResearchInstitute(TAPRI),anindependent,non-profitresearchorganisation.HewouldliketoacknowledgeeditorialhelpfromBobKinnairdandKatharineBetts

ArticlespublishedbytheAustralianPopulationResearchInstitutemayberepublishedprovidedtheinstituteanditswritersareappropriatelycredited,andalinkismadetoourwebsite<tapri.org.au>.

Anyarticlesreproducedcannotbeeditedoranymaterialsoldseparately.

TheAustralianPopulationResearchInstitute<tapri.org.au>POBox12500MiddleCamberwellVictoria3124Australia

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ExecutivesummaryIn2016-17therewere47,825partnervisasissuedandin2017-18,39,799.Therewereanother79,027partnerapplicationsqueuedupasofJune2017.

ThescaleofthesenumberscanbeappreciatedbycomparingthemwiththetotalnumberofmarriagescontractedinAustraliain2017.Thiswas112,000.

Thereasonwhythenumberofpartnervisasdroppedin2017-18isthattheDepartmentofHomeAffairstookaharderlineonassessingthebonafidesofpartnervisaapplications.

Whyarethenumberofpartnersponsorssohigh?

Here’sacoupleofclues.Australia’spartnervisarulesallowanAustralianresidenttosponsorapartnerifjust18,unemployed,onawelfarebenefitandstilllivingathome.Eligiblesponsorsincludeformermigrantswhoholdapermanentresidencevisaevenifgrantedveryrecently,suchasin2019.

Allthatisrequiredforaresidenttosponsorsomeoneonapartnervisaissome(untilrecently)easilyestablishedevidencethattherelationshipbetweensponsorandprospectivevisa-holderisgenuine.

AustraliaisaloneamongstWesterncountriesinmaintainingsuchgenerousrules.

Whataboutthewillingnessofpersonstobesponsoredforapartnervisa?

Thereisahugeincentiveforpotentialmigrantstotakeuptheofferofapartnervisa.

Therewere1.4millionpersonsinAustraliaasofJune2018onatemporaryentryvisa(notcountingNewZealanders)some673,000ofwhomwereoverseasstudents.Almostallareeligibleforaprizedpermanentresidencevisaasapartner,iftheycanfindaresidentwillingtosponsorthem.

Whywouldprospectivemigrantswanttopursuethepartnervisaoption?Asthisreportdetails,itisbecomingincreasinglydifficultforatemporaryresidenttoobtainapermanent-entryvisabasedonskill.

So,forthelargenumberwantingapermanentresidencevisa,thepartnervisaisanattractivealternativeoption.TherearenoonerousEnglishlanguagestandardsoranyneedtofindanemployer.Allthatisrequiredisthattheybeatleast18yearsoldandthattheyfindaresidentwillingtosponsorthemforapartnervisa.

Forprospectivepartnerslivinginlowincomecountries,anAustralianpartnervisaofferstheprospectofahugelifestylegainwithnoentrycost,otherthanthevisafee.

Whoistakingupthepartnervisaoption?Onlyaminorityofpartnervisasaregrantedtothosemostcasualobserversthinkdominatethepartnervisacategory,thatis,peopleinrelationshipsresultingfrominternationaltravelandwork.Wherethisdoeshappen,someoftheAustralianpartnersmovetothecountryoftheirnewpartner(usuallytheUKandtheUSA)andsomeofthepartnersmovetoAustralia.

Themajorityofpartnervisasderivefromtwoquitedifferentpathways.

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OneiswhereaforeignerisinAustraliaonatemporaryvisa(usuallyastudentvisa)andfindsanAustralianresidentwillingtosponsorthemforapartnervisa.Ilabelthis‘twostep’migration.Thescaleofthestudentuptakeofpartnervisasalone,isenormous.PreviouslyunpublisheddatareleasedbyDepartmentofHomeAffairs(DHA)showsthatin2016-17some11,048formeroverseasstudentsreceivedapartnervisa,asdid9,257in2017-18.

Theotherpathwayisviachainmigrationlinks,thatis,whereanAustralianresident(usuallyrecentlyarrivedandAsia-born)returnshometoselectapartnerknowntotheirfamilyorcommunity.Atleastathirdofpartnervisasderivefromthislink.

Thesetworoutesaredistinctiveinthatbothareoneway–toAustralia–withlittleornomovementawayfromAustralia.

Whyworry?First,partnervisanumbersalreadyconstitute24.5percentofthepermanentmigrationprogram.SincemostpartnerslocateinSydneyandMelbournetheyaddsignificantlytothemigrationburdeninthesetwocities.Also,fewhavethejobskillsorEnglishlanguagecapacitytothriveintheAustralianjobmarket.

AnotherreasonisthatthestockofAsia-bornresidentslivinginAustraliaisincreasingrapidlythusprovidingagrowingbaseforpersonsinterestedinreturninghomeforapartner.SoisthestockoftemporaryentrantsinAustraliainterestedinfindingaresidentwillingtosponsorthemforapartnervisa.Thusthedemandforpartnervisasissettogrow.

ThisisoccurringinacontextwhereDHAisunderpressurefrommigrantcommunities,withthesupportoftheFederalLaboropposition,todroptherecenttougherscrutinyofpartnervisaapplicationsandturnthevisaintoan‘ondemand’option.Ifthishappens,thenumberofpartnervisasissuedwillescalate.

Australia’spartnervisaislongoverdueforreform.Asuiteofproposalsisoffered,startingwitharequirementthatallthosewhowishtosponsorapartnerestablishthattheyareoldenough(atleast21)andhavethesecureincomeandhousingarrangementsadequatetoprovideforthesponsoredpartner.

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Australia’spartnervisaprogram:reformneededAustralia’spartnervisaprogramislarge.In2010-11itwas41,994.By2014-15ithadrisento47,825andstayedatthatleveluntil2016-17.(Thesefiguresdonotincludevisasissuedtopartnersofpersonsgrantedapermanententryvisabasedonskillorhumanitariangrounds.Theirnumbersareincludedintheskill-basedandhumanitarianprogramoutcomes)

Eachyearuntil2017-18,DepartmentofHomeAffairs(DHA)officersdutifullyissuedexactlythenumberofpartnervisasspecifiedintheprogram.Thatis,thenumberwasadministeredasafirmtarget.Notwithstandingthescaleofthistarget,DHAcouldhaveissuedmorepartnervisasifithadalloweddemandtodeterminethenumber.By30June2017therewasabacklogof79,027applications.1

Thissituationchangedforthe2017-18programyearwhen,despitethepartnerprogramlevelbeingagainsetat47,825,theCoalitiongovernmenttreatedthisnumberasaceilingratherthanatarget.In2017-18‘only’39,799partnervisaswereissued.Thiswasaresultofaslow-downintheprocessingofpartnervisas.

Anywayyoulookatitthisisabignumber.The39,799numberconstitutedamajorchunk–24.5percent-oftheentirepermanentimmigrationprogramof162,417in2017-18.Oncehere,moststay,thusaddingsignificantlytotheoverallNetOverseasMigration(NOM)levelforAustralia,whichwas248,446in2018.ThislevelofNOMisequivalenttoannualgrowthinAustralia’spopulationofnearonepercent,aratethatisfarhigherthaninanyotherWesterncountry.

AnotherindicatorisacomparisonofpartnervisaoutcomestothetotalnumberofmarriagesrecordedinAustralia,whichin2017was112,000.(True,anunknownproportionofthepartnervisanumberwouldhavebeenissuedtodefactopartnersratherthantomarriedpartners).

Whileacknowledgingthelimitsofthiscomparison,thenumberofpartnervisasstillappearstobeverylarge.ItsscaleinvitesquestionsaboutwhysomanyAustralianresidentsarechoosingoverseasresidentsaspartnersratherthanotherAustralianresidents.

Casualobserversmaybelievethatthenumberofpartnervisasishighbecausethatisthenaturalcorollaryofhighlevelsofinternationaltravelandwork.ItmightbeexpectedthatinsuchsettingsAustralianresidentsareboundtoenterrelationshipswhichresultintheformationofpartnershipsthatleadtosettlementinAustralia.Fewwouldchallengethepartnervisaprogramifthatwereitsmainfunction.

EventhehardheadsattheProductivityCommission,whentheyreviewedthepartnervisaaspartoftheir2016evaluationofthemigrationprogram,seemtohavebeenguidedbytheaboveassumption.Thereportconcludedthat:

Inthecaseoflong-termpartners,afailuretoprovidepermanentresidencyrightswouldforcetheAustralianpartnertomoveoverseas,destroytherelationshipor,exante,discouragepeoplefromforminglong-termrelationshipswithpeoplefromdifferentnationalities.ItisdoubtfulthatmanyAustralianswouldacceptstricturesofthiskind.Thecurrentlyuncappednatureofvisasforpartnersanddependentchildrenreflectsthispremise.2

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TheProductivityCouncil’sconclusionsarefanciful.Asthisreportshows,onlyaminorityofpartnervisasderivefrominternationaltravelorworkencountersandmostarenotissuedtopartnerswhohavebeeninlong-termrelationships.

ThesourceofpartnervisasAsyoucanseefromTable1(onp.10),abouthalfofthe2017-18partnervisaswereissuedtopersonsalreadyinAustraliaandtheotherhalftopartnersresidinginoffshorelocations.Thetwostreamsinvolvequitedifferentprocesses.Theonshoregroupismainlytwo-stepmigrationandtheoffshorestreamismainlychainmigration.Idefinetheseconceptsbriefly,thenprovideestimatesoftheircountryofcitizenmake-upandoveralldynamics.

Two-stepmigrationTwo-stepmigrationreferstothesituationwhereamigrant,alreadyinAustraliaonatemporaryvisa,findsanAustralian-residentpartnerwillingtosponsorthemforapartnervisa.Whilethedefinitionshouldbeclear,thereislimitedinformationavailableontheextenttowhichpersonsholdingtemporaryvisasinAustraliasubsequentlyobtainapartnervisa.

TheveilhasbeenpartiallyliftedbecausetheDHAhasrecentlyprovidedunpublisheddataonthenumberoftemporaryvisaholderswhoheldorwhohadheldanoverseasstudentvisaandwhoweregrantedapartnervisain2016-17and2017-18.Some11,048ofthesestudentsreceivedapartnervisain2016-17and9,257in2017-18(Table1).(Thenumberfellbecauseoftheprocessingslow-downin2017-18.)

ThismeansthataroundhalfofthosereceivingapartnervisawhileinAustraliain2017-18(the18,495onshorenumberlistedinTable1)wereoverseasstudentsorformeroverseasstudents

Itislikelythatthousandsmoretemporaryresidentsonothervisas,includingtemporaryworkvisas,alsoobtainedapartnervisa(thoughnodataontheirnumbershavebeenreleased).

Nodoubt,manyofthesetwo-steppartnervisashavebeenissuedtocoupleswheretherelationshipsweregenuine.Nonetheless,whethergenuineornot,thispathwaytopermanentresidencestatusisinhighdemand.Itneedstobescrutinisedcarefully.

Foreignersaregrantedtemporaryvisasforstudyorwork,nottofacilitateasubsequentpartnervisa.Butthisiswhatishappening,onalargescale.Moreover,itisbecominganincreasinglyattractiveoptionastemporaryresidentsinAustraliaonstudentorothervisasfinditharderprocureapermanententryvisabasedonskill.Thisisbecause,asdocumentedlater,accesstosuchvisashasnarrowed.

ChainmigrationChainmigrationincludespartnervisaswherethevisaisobtainedaspartofchainmigrationlinksbacktothehomecommunity.ThesearemarriedordefactorelationshipscontractedbetweenAustralianresidents(mostofwhomareofAsianorigin)andpartnersresidinginthehomeland.ThelinksaretypicallyfacilitatedviarelationshipsbetweenAustralianresidentsandfamilyandcommunitystilllivinginthehomeland,andwherefamilyandcommunityareregardedashavingalegitimateroleinthemarriagechoicesoffamilymembers.

BecauseofAustralia’sattractivenessasamigrantdestination,thosereturninghometocountrieslikeIndiaandChinafindnoshortageofinterestedpartners.

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SponsorsusingtheselinkstofindapartnerareignoringtheoptionofseekinganAustralianresidentpartner.ThisisnotwithstandingthefactthatthereareplentyofpotentialpartnerswithinthenowverylargeAsianmigrantcommunitiesresidentinAustralia(tosaynothingaboutothernon-AsianAustralianresidents).

Theshareofpartnervisasderivingfromchainmigrationlinksislargeandtheflowseeminglyneverending.ThisisbecauseinsomeAsiancommunitiesthesponsorbaseisextendingtosecond-generationAustralianresidents.

Whyworryabouttwo-steporchainmigration?Theconcernisthatwithboththetwo-stepandchainpathways,theflowisoneway,thatis,toAustralia.IntheprocesspartnervisasareaddingsignificantlytoAustralia’smigrationburden,especiallyviathenumbersbeingaddedtothepopulationofSydneyandMelbourne(wheremostofthepartnersresultingfromthesetwopathwaysaresettling).

Thebenefitsareallinthemigrantdirection.ThenewlyvisaedpartnerbenefitsfromthelifestyleandemploymentopportunitiesAustraliaprovides,andeventually,healthandsocialwelfarebenefits.Yetaswewillsee,neithertheynortheirsponsorsareobligedtomakeanyupfrontorongoingcontributiontothecostsoftheirresidencehere.TheyalsomaynothaveemployableskillsoradequateEnglish.

Whyvisitthepartnervisaprogramnow?Inmyviewthepartnerprogram,liketheothermajorcomponentsofAustralia’sveryhighNOM,mustbesubjecttoscrutinygiventhequalityoflifecrisisenvelopingSydneyandMelbournethatisresultingfromthisinflux.

Butwhyembarkonsuchevaluationnow?Thereasonisthatthesizeandadministrationofthepartnervisaisinplayasapublicissue.Thisisnotbecauseofanyclamourtoreducethepartnerload.Quitethecontrary.Theincomingpost-2019electionMorrisongovernmentisunderpressuretocanceltheslow-downofpartnervisaprocessingimplementedin2017-18.

Theprocessingslow-downhascomeunderfirefrommigrantcommunityadvocates.JustpriortotheMay2019federalelectiontheFederationofEthnicCommunities’CouncilsofAustralia(FECCA)claimedthat75percentofpartnerapplicationstakebetween14and21monthstoprocess.Itadvocatedanendtotheprocessingslow-down.3TheALPShadowMinisterforCitizenshipandMulticulturalAustralia,atthetime,TonyBurke,responded(again,justbeforetheelection)bysupportingFECCA’sconcerns.HeimpliedthattheALP,ifelected,woulddoasFECCArecommends.4Ineffecttheseinterestswantpartnervisastobeprocessedquicklyandondemand.

ThenewLaborshadowDHAMinister,KristinaKeneally,inherfirststatementaboutLabor’spolicystance,chimedinbyendorsingtheseconcerns.Sheassertedthat:‘Thesebureaucraticbottlenecksareimmenselyfrustratingforpeoplecaughtinthem.’5

This‘ondemand’advocacyhasbeengivenvocalsupportbyAbulRizvi,whoisaformerseniorimmigrationofficial.IndeedRizviwastheseniorpolicyofficeratthetimeoftheCoalitiongovernment’sunsuccessfulattempttolegislaterulescappingpartnervisasin1996(detailedbelow).

RizviassertsthatthecurrentCoalitiongovernment,byslowingprocessingdownhasineffectputinplaceacaponthenumberofpartnervisasbeingissued.This,hedeclares,isillegal,onaccountofthefailureofthe1996legislationtoputsuchacapinplace.Rizviconcludesthatthe‘Government

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mustgetbacktoprocessingpartnervisaapplicationsefficiently,withintegrityandaccordingtothelaw.Thiswillrequiremakingmoreplacesavailableinthe2019-20MigrationProgram'.6

Thesubsequentanalysisindicatesthat,shouldsuchan‘ondemand’regimebeimplemented,partnervisanumberswillballoon.ThisisbecausethepartnervisaisanattractivepermanentresidencevisaoptionandbecauseAustralia’spartnervisarulesaresosoft.

BackgroundonAustralia’spartnervisaToappreciatewhythisballooningislikelytooccurrequiressomebackground.Untilthe1980s,Australianauthoritiescloselyregulatedthegrantingofpartnervisas.Allthischangedintheearly1980swhen,inthelastyearsoftheFraserCoalitiongovernmentandthefirstyearsoftheHawkegovernment,thewelcomematwaslaidouttopartnervisaapplicants.

Allconstraints(suchasthoseconcerningthefinancialcapacityofthesponsortoprovideforthesponsoredpartner)wereremoved.ThesponsoredpartnercouldaccessallAustralia’swelfare,healthandeducationalentitlementsimmediatelyafterarrival.ThissparkedariseinapplicationsfromAsian-bornsponsorsduringthe1980s,thoughoffalowbase.ThiswasbecauseAustralia’sAsiancommunities(whetherofpermanentortemporarymigrants)werestillfairlysmallatthetime.7

AsawarenessgrewwithintheHawke/KeatingandsubsequentAustralianGovernmentsaboutthepubliccostsofpartnermigration,theybegantowithdrawthewelcomemat.ThefirstmajormovewasanannouncementinApril1991that,henceforth,migrantpartnerssponsoredwhileinAustraliaonatemporaryvisawouldonlybegrantedatwo-yeartemporaryvisapendingbeingabletoestablishthattherelationshipwasgenuineandcontinuingattheendofthistwo-yearperiod.

FurthercontrolmeasureswerepursuedaftertheelectionoftheHowardCoalitionGovernmentin1996.Inlate1996theCoalitionlegislatedthathenceforththetwo-yeartemporaryvisarulewouldalsoapplytopartnervisasissuedfromoffshorelocations.ThiswasamajorreformbecausetherequirementofaninitialtemporaryvisaremovedthecarrotofimmediateaccesstoAustralia’sentitlements,includingtherighttoenrolinAustralianuniversitiesonthesamefinancialtermsaslocalstudents.

Asnoted,therewasalsoanattempttogivethegovernmentthepowertocapthenumberofpartnervisasissuedeachyear.ThisfailedtopassintheSenate.8Therehassincebeenlittlechangetotheregulationsgoverningthegrantingofapartnervisa.TheresultisthatAustralia’spartnerrulesaretheleastdemandingamongstcontemporarywesterncountries.

Australia’ssoftrulesgoverningaccesstothepartnervisaAllAustraliancitizenscansponsorapartner.AndsocanAustralianresidentsholdingapermanentresidencevisa,eveniftheyhaveonlyrecentlyarrivedinAustralia.SomeNewZealandcitizenswhofirstlocatedinAustraliabefore2001arealsoeligible.Thesponsorandthesponsoredpartneronlyneedtobe18yearsofage.

Theonlyothermajorrequirementisthat,iftheapplicantforapartnervisaisoffshore,heorshemusthavemarriedthesponsororattesttoanintentiontomarryhimorherorshowthattheyhavebeeninadefactomarriageforatleast12monthspriortotheapplication.Foronshoreapplicantstheapplicantmustshowthattheyaremarriedorhavebeenina12monthdefactomarriage(whichincludesthoseinsamesexpartnerships).ThedefactorequirementiseasilymanagedsinceunderStatelawstheycan‘registertherelationship’forafeeofaround$30.

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Iftheseconditionsaremet,theapplicantwillreceiveatwo-yeartemporarypartnervisa.Theywillsubsequentlyreceiveapermanentresidencepartnervisaiftheycanestablishthattheyarestillintherelationshipaftertwoyearsandthatitisgenuineandcontinuing.

ThiscouldbetoughifDHAcloselyexaminedtheevidenceapplicantsprovidedabouttheirclaimtoagenuinedefactomarriagepriortothegrantingapartnervisaoriftherewasacloseexaminationofwhethertherelationshipwasgenuineandcontinuingaftertwoyears.Untilprocessingwasslowedin2017-18thiswasnotthecase.Moreover,hardlyanyofthecoupleswhoholdatemporarypartnervisaaredeniedapermanentresidencepartnervisabecausetheyfailtoestablishthattherelationshipisgenuineandcontinuing.

That’sit.ThisisallthatisneededinordertobeeligibleforanAustralianpartnervisa.

ThereisnorequiredperiodofresidenceinAustraliabeforeapersonbecomeseligibletosponsorapartner.Allheorsheneedsisapermanentresidencevisa.Applicantslineupintheprocessingqueueaccordingtothetimeoftheirpartnervisaapplication.SponsorswhojustgotherehavethesamepriorityasthosewhoarecitizensorresidentswhosefamilieshavebeeninAustraliaforgenerations.

Nordoesthesponsorneedtoestablishthatheorshehasthesecureincomeneededtoprovideforthepartner.Australiaisuniqueinthewesternworldinnotinsistingonthisrequirement.

ThismeansthatAustralianresidentscansponsorapartnereventhoughtheyareonly18yearsoldand/orareunemployedand/oronwelfarebenefits.Thereisnoassessmentofwhetherthesponsorhastheincomeorhousingarrangementssufficienttoprovideforthepartner.

Asforthesponsoredperson,allthatisrequiredapartfrombeing18yearsofageandbeingabletopassstandardhealthandcharacterchecks,isthepaymentofaprocessingfeeof$7,160(fromJuly2018).ThereisnoassessmentofwhetherthesponsoredpartnerhasanyofthejobskillsortheEnglishlanguagecapacityneededtoflourishinAustralia’smainstreamjobmarket.

Clearly,apartnervisaisaprizeforanoverseasstudentwhohasinvestedheavilyinanAustraliancourse,hopingtostayon,butfindingitdifficulttoobtainapermanententryskillvisa.Sotoo,itisofgreatvaluetoasponsoredpartnercomingfromarelativelypoor,unstableorlowqualityoflifecountry.Theadvantagebestowedonhimorherisenormous.TheyareabletorelocatetoAustraliawithoutanyentrancefeeorcontributiontothefuturecostsofthepublichealth,transport,educationalandotherpublicinvestmentrequiredtoprovideforthem.

Fortheirpart,partnersponsorswhohaveonlyrecentlyarrivedandhavethemselvescontributedlittleornothingtothisinvestment,arefreetosponsorapartner.

Whywouldtheywanttodoso?

InthecaseofthosesponsoringanoverseasstudentinAustraliaitincreasestherangeofeligiblepartnerstheycandrawon.Theirvalueasaprospectivepartnerismuchenhancedbytheprivilegeofpermanentresidencethattheyarebestowingonthesponsoredpartner.

Inregardtosponsorsinvolvedinchainmigrationlinks,manyarelikelytobeunderpressurefromfamilyandcommunitytoselectapartnerfromthehomeland.Thisispartlybecauseofanxietytofacilitatemovementtoasecure,affluentcountryandpartlybecauseoffamilydesiresthattheymarrysomeonedrawnfromthehomelandculture.

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Asnoted,Australianresidentswhodorespondtothesepressures,willfindplentyofpotentialpartners,giventheadvantagesofmovingtoAustralia.

InternationalcomparisonsThecontrastwiththerulesoperatingintheUKareworthexploringbecausethiscasehighlightsthesoftnessofAustralia’srules.ItisarelevantcomparisonbecausetheUKhasseveralmillionresidentsborninPakistan,IndiaandothersouthAsiancountrieswherechainmigrationviathepartnerlinkhaslongbeenevident.Pakistan,followedbyIndia,arebyfarthelargestsourcecountriesforUKpartnervisas.9Aswewillsee,thestrongestcurrentevidenceofchainlinksfromAsiancommunitiesinAustralianoriginatesfromresidentswhocomefromtheIndiansubcontinent.

TheUKhassucceededinatleastcontrollingthissourceofpartnervisas.

Forseveraldecadestherehasbeena‘Primarypurposerule’inplacewherebythesponsoringpartnerhastoshowthattheprimarypurposeoftherelationshipismarriageratherthanimmigration.Furthermeasureswereimplementedin2012whentheeligibleageforapartnervisa(forbothsponsorandsponsoredpartner)wasraisedto21and,moresignificantly,whenthe‘financialrequirement’partnersponsorshadtomeetwasraisedsharplyto18,600Britishpoundsayear(roughly34,000Australiandollars).

AccordingtoHomeOfficestatisticstherewere32,596non-EUpartnervisasissuedin2017(aslightfallsince2011),butfarbelowthelevelof53,000reachedin2006.10ItishardtoprovideaprecisecomparisonwiththeAustraliapartnervisanumbersbecausetheUKfiguredoesnotincludepartnervisasissuedonshoreintheUK.However,inacountrywith66millionresidentsandmillionsofSouthAsianresidents,the32,596figurelookslowcomparedtothe39,799figureforpartnervisasissuedbytheAustraliangovernmentin2017-18.

SimilarrulesregardingpartnervisasareenforcedacrosstherestofWesternEurope.TheDutchrequirethatsponsorsmustbe21yearsofageandmusthavesufficientlongtermsourcesofindependentincometosupportaspouse.InDenmark,asidefromincomeassessments,theminimumageofthesponsorandtheproposedpartneris24.

TherulesarenotsotoughinCanadaandtheUnitedStates,butbothrequirethatthesponsoringpartnerpassafinancialtestregardingtheircapacitytoprovideforamigrantpartner.Canadarequiresthatthesponsormust‘beabletoprovethatyou’renotreceivingsocialassistance’andthatthesponsorcan‘provideforthebasicneeds’ofthepartner.IntheUSA,aformermigrantonlygainstherighttosponsorapartnerafterheorshehasobtainedUScitizenship(whichcanonlyoccurafterfiveyearsresidenceintheUSA).

Whatisdrivingpartnervisaapplications?Asindicated,therearethreemainsourcesofdemandforpartnervisas.OneiswhereAustralianresidentsmeetaprospectivepartnerinthecourseofeitherparty’sinternationaltravelorworkexperience.

Thesecondsourceiswherethepartnervisafunctionsaspartofatwo-steppathwayfromtemporaryresidencestatustopermanentresidence.

Thethirdsourceofdemandstemsfromtherapidlyincreasingsizeoffirst-andsecond-generationAsiancommunitiesinAustralia.ThosewithinthisgroupdonotneedtoconfinetheirsearchforapartnertoAustralianresidents.Theycanusechainlinkstotheirhomelandcommunitiestofindapartner.

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Whatisthesizeofeachofthesepartnerpathways?

RelationshipsstemmingfrominternationalworkandtravelIfpartnervisasstemmingfrominternationaltravelandworkwereanimportantsourceonewouldexpectalargenumberofpartnervisaholderswouldbeUKorUScitizens,sincethesetwonationsarefavoureddestinationsforworkandtravelofyoungAustraliansandinthereversedirectionforyoungpeoplefromtheUKandtheUSA.

Thisexpectationisnotconfirmedbythepartnerdata.AsTable1indicates,veryfewpartnervisaswereissuedin2017-18topersonswithUKorUSAcitizenship.Therewerejust2,534partnervisasissuedtoUKcitizensand914tothosefromtheUSA(Table1).TherewasjustatrickleofpartnervisasissuedtopersonswhowerecitizensofcountrieselsewhereinEurope.

Box1:Anoteonpartnerstatistics.Thepartnerstatisticsjustquoted,andallothersdetailedsubsequentlyaredrawnfromABS,PermanentAdditionstoAustralia’sPopulation:2017-18,pivottables.Thesearereportedintwostreams.OneisthenumberofpartnervisasissuedtopersonsalreadyinAustraliainthereferenceyear(theonshorestream).Theotherstream,whichtheABSreferstoassettlerarrivals,isderivedfromcountsofthenumberoffirst-entryarrivalstoAustraliaofpersonswhoholdapartnervisa.AsyouwillseefromthetotalnumberofpartnervisasdetailedinTable1,whichfor2017-18was38,396,thisfigureisabitlowerthanthepartnerprogramnumberoutcomefor2017-18whichwas39,799.ThesmallersettlerarrivalfigureislikelytobebecausesomeofthoseissuedapartnervisadidnotmovetoAustraliain2017-18.Thesepartnervisafiguresincludeprimaryandsecondaryvisaholders(thatisanydependentsoftheprimaryvisaholder–mainlychildren).

Two-stepmigrationThereisnodoubtthatthetwo-stepsourceofpartnervisasislarge.TheevidencepartlyderivesfrompublishedDHAstatistics.Theseindicatethatthousandsofpersonswhowereholdinganoverseasstudentvisareceiveapartnervisaeachyear.Thisnumberwas7,552in2016-17and6,194in2017-18.11

However,therearemanywhohadheldastudentvisaandwerestillinAustraliaonsomeothertemporaryvisa(suchasatemporarywork,WorkingHolidayortouristvisa),whoalsoweregrantedapartnervisa.

Weknowthisbecause,asnotedearlier,DHAhasrecentlyprovidedunpublishedstatisticswhichtrackthepathwaystoapermanentresidencevisaofallthosewhohaveheldorwhocurrentlyholdanoverseasstudentvisa.

Whenthenumbersofthosewho‘haveheld’andcurrentlyholdanoverseasstudentvisaarecombined,thenumberofpartnervisasgrantedtoformeroverseasstudentsin2016-17increasedto11,048,and,asTable1indicates,to9,257in2017-18.For2017-18,ashighlightedearlier,theyconstitutedhalfofall18,435partnervisasissuedonshore.

UnfortunatelytheDHAhasnotprovidedequivalentdataonthenumberofothertemporaryvisaholders(thatis,peoplewhohaveneverheldanoverseasstudentvisa)whoaregrantedapartnervisaeachyear.Giventhehugestockofthesetemporaryvisaholders(includingthetemporarywork

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visaholdersandothersitemisedabove)itishighlylikelythattherewouldbethousandsmoreinthisgroup.

Asaresult,itislikelythatleastathirdofpartnervisasissuedannuallyoccurviathetwo-stepprocess.

Shouldwebesurprised?No.Inthecaseofoverseasstudents,thestockpresentinAustraliahasbeengrowingrapidlyinrecentyears.TheyhaveahighpropensitytostayoninAustraliaaftercompletingtheircoursesandtoseekapermanentresidencevisawhileinAustralia.

InthecaseofthosecompletingahighereducationcourseattheundergraduateorMasterslevel,allcanapplyforaPost-studyworkvisawhichallowsthemtostayoninAustraliaforatleasttwoyearswithfullworkrights.NearhalfoftheoverseasstudentscompletinghighereducationcoursescurrentlyobtainaPost-studyworkvisa.12

ThehighnumberofformeroverseasstudentswhoaresucceedingingainingapartnervisaisoneindicatorofthishighpropensitytostayoninAustralia.

Anothermeasureofthishighpropensityisthelargenumberwhoareobtainingapermanententryskillvisaeachyear.

In2016-17,27,838overseasstudents,orformeroverseasstudents,wereissuedwithaskillpermanent-entryvisain2016-17(thisfigureincludesanyaccompanyingpartnersandchildren)and21,775in2017-18.13Let’sbeclearhere.Thosewhoreceivedaskillvisaareinadditiontothoseissuedwithapartnervisa.

Thismeansthatin2017-18formerorcurrentoverseasstudentsreceivedatotalof31,032partnerandskillvisas.ThisisabigchunkoftheentirenumberofvisasissuedundertheMigrationProgramin2017-18,whichwas162,417.

Thisoutcomemaysurprisesomewhofollowtheseissues,sincetheywillbeawarethatspokespersonsfortheoverseasstudentindustrypersistentlyclaimthatAustraliaisattractingstudentsinterestedinour‘highquality’educationwho,forthemostpart,returnhomeaftertheirstudies.14

IhavegoneintosomedetailonthematterbecausethesefigureslaythefoundationformyargumentthatsuchistheinterestonthepartofoverseasstudentstostayoninAustralia,thatanyincreaseincompetitionforskillvisaswillhaveramificationsforinterestinthepartnervisa.

Competitionforskillvisasisincreasing,sharply.Thisisbecausethesizeoftheoverseasstudentcohortstartingahighereducationcoursecontinuestogrowatthesametimeasthenumberofskillvisasavailableisactuallycontracting.Oneconsequenceisthat,in2019,thepointsneededtoobtainapoints-testedskillvisahasescalated.

Thenumberofoverseasstudentcommencersinthehighereducationsectorincreasedfrom125,372in2014to168,985in2017.15Noinformationonthenumberofsuchcommencershasbeenpublishedsofarfor2018.Butitiscertaintohaveincreasedbecausethenumberofhighereducationvisasgrantedcontinuestoincrease.Meanwhilethenumberofpermanentresidenceskillvisasissuedisdeclining.Thisnumberfellfrom128,550in2016-17to111,099in2017-18andislikelytodeclineagainin2018-19–withnoprospectofanyincreasein2019-20.

Anotherfactor,alsolikelytoincreaseinterestonthepartofsomeoverseasstudentstostayoninAustraliaisthatthemainsourceofhighereducationstudentgrowthhasswungfromChinatothe

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sub-continentofIndia.By2017-18thenumberofhighereducationvisasissuedtostudentsfromthesub-continentsubstantiallyexceededthatfromChina.

ThesignificanceofthisdevelopmentisthatstudentsfromthesubcontinentofIndiamainlyenrolinnon-GroupofEight(Go8)universitieswheretheypayfeesofaround$20,000ayear(halfthelevelthattheGo8charges).Theycomefromrelativelymodestincomefamilies(comparedwiththeChinese)andthushaveagreatermotivationtotakeuptheopportunitiestostayonandworkinAustralia(andobtainapermanentresidencevisa)thandotheChinese.16

Withthenumberofskillentrypointvisascontracting,interestinapartnervisawillincreaseaccordingly,asitistheonlyrealisticalternativeaccesspointtoapermanentresidencevisa.Thereareplentyofopportunitiesforoverseasstudentstoexplorethisoptionbecause,asnoted,theAustraliangovernmentoffersmanyopportunitiesforthemtostayoninAustralia,includingviathePost-studyworkvisa.

Itishighlylikelythatthenumberssucceedingviathistwo-steppathwaywillincrease,especiallyiftheAustraliangovernmentmovestotreatpartnerapplicationsonan‘ondemand’basisasthemigrantcommunitiesandtheLaborpartyfavour.

Whoistakingupthetwo-stepoption?Table1liststhemaincountriesoforiginofstudentsorformerstudentswhoarecurrentlyobtainingapartnervisa.Chinaisbyfarthelargest,with1,624partnervisasbeingissuedtoaformerorcurrentChineseoverseasstudentvisaholderin2017-18.Thisisnosurprise,giventhatChinahasuntilrecentlybeenthelargestsourcecountryforoverseasstudents.ItisarealisticoptionbecauseforChinesestudentsinterestedinpursuingthepartnervisapathwaythereisnowalargestockofrecentlyarrivedmigrantsofChineseoriginresidentinAustraliawhoareeligibletosponsorapartner.

CurrentorformeroverseasstudentsfromVietnamarethenextlargestsourceofthosebeingsponsoringasapartner,with982inthiscategoryin2017-18.Thistoo,isnosurprisegiventhatVietnamisasignificantsourceofoverseasstudentsinAustralia,andtherelativelylargecommunityoffirst-andsecond-generationVietnamesenowlivinginAustraliawhocouldactassponsors.

TheseobservationspresumethatformerChineseandVietnamesestudentsarepartneringwithAustralianresidentswhowereborninChinaorVietnamrespectively.Unfortunately,thereisnopubliclyavailabledataonthebirthplaceofsponsors.Theproblemisthat,thoughthepartnersponsorprovideshis/herbirthplacewhenfillingouttheapplication,theDHAdoesnotrecordthisinformationinitselectronicrecordsonpartnervisas.

Nevertheless,itishighlylikelythatChinesebornpersonsarethedominantsourceofthesponsorsinquestionbecausealmostallmarriagesthatinvolveaChinesepartnerinAustraliaarewithanotherChinesebornperson.

WecanbereasonablyconfidentaboutthisassertionbecausetheAustralianBureauofStatistics(ABS)providesinformationonthemajorcountryofbirthofthosewhomarryinAustraliabythecountryofbirthoftheirmarriagepartner.ThesedatashowaveryhighlevelofmaritalendogamyamongstAsian-bornpartners.17

FortheChinese,thelevelofin-marriageisextreme.TheABSdataindicatethat4,191Chinese-bornmalesgotmarriedinAustraliain2017.Ofthese3,870,or91percentmarriedaChinese-bornfemaleandanother473marriedafemalefromanotheroverseascountry.Just110Chinesemales,orthreepercent,marriedafemaleborninAustralia.InthecaseoftheVietnamese,only168Vietnamese

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bornmalesmarriedafemaleborninAustralia.1,751marriedafemaleborninVietnamandanother326marriedafemaleborninanothercountry.Inbothcases,thoughstillsmall,theshareofChineseandVietnamesebornfemaleswhomarriedanAustralian-bornmalewasahigherthanfortheirmalecounterparts.

IncontrasttotheChineseandVietnamesecases,Table1indicatesthatthenumberofformeroverseasstudentsfromtheIndiansubcontinentusingthetwosteppathwaywassurprisinglylow.Therewerejust526recipientsofpartnervisaswhowereformeroverseasstudentsandwhowerecitizensofIndia,102fromPakistanand76fromSriLanka.Thiswasasurprisegiventheargumentspelledoutabovethatsubcontinentstudentsarelikelytohavearelativelyhighinterestinpursuingthepartnervisaoption.

Thissituationmaychangeasthenumberofsubcontinentstudentswhocompletetheirstudiesincreases,especiallyifthepartnervisabecomesavailableonan‘ondemand’basis.

Thisshouldnotbeallowedtohappen.Thepartnervisawasneverintendedtofacilitateatwo-steppathway.ThatithascometoperformthisroleisanunintendedconsequenceofAustralia’ssuccessinattractingoverseasstudentenrolmentsandothertemporary-entryvisaholders.This,combinedwiththemostgenerousrulesonpartnervisasinWesterncountries,hasmadethepartnervisaahighlyattractivetwo-stepmigrationoption.

Table1:Partnervisasgrantedin2017-18onshore(theonshorecolumn)andsettlerarrivalsholdingapermanentresidencepartnervisain2017-18bymajorcountryofcitizenship(theoffshorecolumn)andpartnervisasgrantedtocurrentorformeroverseasstudentsinAustraliain2017-18

Countryofcitizenship Allpartnervisas Partnervisasissuedtocurrentorformeroverseasstudents

Onshore Offshore Total

China 2,546 1,956 4,502 1,624India 534 3,253 3,787 526Pakistan 80 1,184 1264 102Philippines 2,085 913 2,998 205Afghanistan 6 1,939 1995 5UK 1,706 828 2,534 336USA 661 253 914 139Vietnam 1,081 1,050 2,131 982SriLanka 62 544 606 76Thailand 717 989 1,706 591Italy 300 59 359 154Greece 117 55 172 47Others 8,600 6,878 15,428 4,470Total 18,495 19,901 38,396 9,257Sources:Forpartnervisas,AustralianBureauofStatistics,BP024PermanentAdditionsPivotTables,2017-18,ExtractedJanuary2019:Forpartnervisasissuedtopersonspreviouslyholdingastudentvisaovertheyears2008to2019,DHA,unpublished

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ChainmigrationLiketwo-steppartnering,linksviachainmigrationaredistinctiveinthattheyareoneway–theyflowtoAustralia,withhardlyanyreverseflowfromAustralia.

Inthisanalysis,partneringviachainlinksisdefinedtoincludethosewherefirstorsecondgenerationmigrantslivinginAustraliachoosetoreturnhometotheircountryoforigintofindapartner.Asnotedearlier,therearetwomajorinfluencingfactors.OneiswherethereisagulfinthequalityoflifeinAustraliaandthatofthemajorsourcecountries.Theotheriswheretherearestrongfamilyandcommunityculturalexpectationsaboutwhoitisappropriatetomarry.

Boththeseinfluencesapply,thoughtovaryingdegrees,amongstAustralia’sAsiancommunities.Giventhatthesecommunitiesarelargeandrapidlygrowing,thepotentialforchainmigrationlinksinvolvingpartnersishigh.

Mostofthe19,901peoplereceivingapartnervisaoffshorein2017-18(seetheoffshorecolumninTable1)arelikelytohaveobtainedthisaspartofachainmigrationprocess.ThenumbersforIndiaandothersubcontinentcitizensandforAfghanistanarestriking.Almostallpartnervisasforcitizensofthesecountriesarecurrentlybeingissuedoffshore.Giventhemaritalendogamypatternsdescribedabove,theAustralianbasedsponsorsarevirtuallycertaintobehavebeenborninthesecountries.

BycontrasttherearefewpartnervisasissuedoffshoretopersonswhoarecitizensoftheUKandtheUSA.Likewise,theoncepotentchainlinksbetweenAustraliabasedsponsorsborninsouthernEuropeancountriesandcitizensofthesecountrieshavelargelybeensevered.Just59personswhowerecitizensofItalyand55fromGreecereceivedapartnervisaoffshorein2017-18(Table1).

OneexceptiontothegeneralisationaboutAsianchainmigrationconcernsfemalepartnerssponsoredoffshorefromThailandandThePhilippines.Manyofthesepartnersappeartobesponsoredbynon-Asianresidents.MarriageagenciesheavilyadvertisebothcountriesasprospectivesitesforAustralianresidentsofanyethnicitylookingforanAsianfemalepartner.

AnotherpartialexceptionconcernspartnervisasissuedtofemalecitizensofVietnam.TheVietnamesecaseissignificant.Thisisbecause,unliketheothermajorAsia-borncommunitiesinAustralia,largescalelateteenandadultmigrationofVietnam-bornpersonstoAustraliapeakedseveraldecadesago.YetpartnervisasissuedtoVietnamesecitizenshaveremainedhigh.Theywerearound2,000adecadeagoandhavecontinuedatthislevelsince.Therewere2,131partnervisasissuedtoVietnamesecitizensin2017-18(column3ofTable1).

Someofthesesponsorships,asnoted,arelikelytoinvolvetwo-stepmigrantsdrawnfromtherelativelyhighnumberofVietnamese-bornoverseasstudentsinAustralia.Howeverthereisacontinuinghighoffshorenumber(1,050in2017-18-column2ofTable1).Again,giventhehighlevelofmaritalendogamyamongstVietnamesebornpartners,itisprobablethatmostofthesponsorsaresecond-generationVietnamese(borninAustralia)whoarereturningtotheirparents’homelandforapartner.

TheVietnameseexperienceissignificantbecause,totheextentthatthegrowingnumberofAustralianbornyoungpeopleofAsianoriginreturnhomeforapartner,itimpliesthatchainmigrationisextendingintothesecondgeneration.ThisistheissuethattheUKhasbeendealingwith,particularlyinregardtochainlinkswithIndiansubcontinentcountries.

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Again,thisdoesnotmeanthattherearenoromanticlinksbetweensponsorandpartner.Rather,totheextentthatthereis,therelationshipisassumedtohaveoccurredwithinthecontextofsocialconnectionsbetweentheAustralianandoverseasbasedfamilyandcommunity.

Whateverthebasisforthepartnerrelationship,thefactisthattheprocessisstilloneway.ThereislittlereverseflowofAustralianpartnerstoAsiancountries.ForthoseworriedaboutthecontributionofpartnermigrationtoSydneyandMelbourne’squalityoflifecrisisitisthisone-wayflowthatmatters.Thatiswhytherulesonpartnervisasshouldbestrictbutfair,asoutlinedshortly.

ConclusionAustraliafacesastarkchoicewiththemanagementofpartnervisas.

ThereisthepositionoftheethniccommunitiesandtheLaborpartythatitisunjusttocarefullymanagetheissuanceofpartnervisas.Thispositionissuffusedwithahaloofentitlement.ItignorestheevidencethatIhavepresented,thatmostpartnervisasarebeingissuedaspartofatwo-stepand/orchainmigrationprocess.BecauseAustralia’srulesonpartnervisasaresosoft,indeedsofterthaninanyotherWesterncountry,demandforthevisawillcontinueatahighlevel.HowcoulditbeotherwisegiventhegeneroustransferofbenefitsfromtheAustraliannationtothesponsoredpartners?

ThenthereisthepositionoftheCoalitiongovernment,whichhaslargelyleftthesoftrulesonpartnervisasintact.

Thepartnervisarulesneedreform,asdomostoftherulesonAustralia’sothertemporaryandpermanentmigrationvisasubclasses.Otherwise,Australia’shugeNOMwillcontinueunabated.

Inthecaseofthepartnervisa,reformthatreducesthenumbersdoesnotrequiretheremovaloftherightofAustralianresidentstosponsorapartnerwhoisanon-resident.Ratheritrequiresamuchmorecarefulassessmentofwhetherthesponsoriscapableofprovidingfortheintendedpartnerandwhethertherelationshipisgenuineandcontinuing.

FarfrombeingadraconianimpingementonAustralian’shumanrights,assomewillassert,thefollowingreformproposalswillmerelybringAustraliaintolinewiththerulesimposedonpartnervisasthatexistinmostotherWesterncountries.

ReformproposalsBeforelistingsomeobviouschangestotheconditionsthatpartnervisaapplicationsmustmeetinordertobringthemintolinewithinternationalpractice,therearesomeproceduralissuesregardingtheprocessingofpartnerapplicationsthatarebeggingtoberevisited.

Currently,reflectingthehugebacklogofpartnerapplications,whenasponsorfilesapartnervisaapplicationforsomeonewhoisinAustraliaonatemporaryvisathereisalongdelaywhiletheapplicationisprocessed.Then,ifDHAturnsdowntheapplication,thesponsoredpartnercanappealthedecisiontotheAdministrativeAppealsTribunal(AAT).

Asmattersnowstand,theonshoreapplicantcanstayoninAustraliaonabridgingvisawhiletheapplicationisassessedand/ortheappealprocessispursued.Thisisahighlyattractiveandinexpensiveoptionfromthepointofviewoftheapplicant,whichcandelivermanymonths,ifnotyearsofadditionalstayinAustralia.Ican’tspecifythenumberofsuchbridgingvisasissuedbecause

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DHAhasnotreleasedanydataonthematter.Inthecaseoftheappealsprocess,suchisthenumberofpartnerappealsthattheyareoverloadingtheAAT’scapacityandthusdeliveringfurtherdelays,andtimeinAustralia,whiletheappealisadjudicated.

DHAhasmadeonesignificantreformmove.UntilJune2019,thoseholdinganoverseasstudentvisaoratemporaryworkvisawhosevisaisabouttoexpirecouldapplyforapartnervisa,atwhichpointDHAwouldissueabridgingvisathatallowedtheapplicanttostayonforanotheryearortwowhileDHAevaluatedtheapplication.ThebridgingvisaallowedtheholderfullworkrightsandaccesstoMedicare.Thissituationchangedinmid-2019,whenDHAremovedthebridgingvisaoptionwhilethepartnerapplicationisbeingprocessed.Fromthisdate,ifpartnervisaapplicantscan’tobtainanothersubstantivevisa(likeanotherstudentvisa)theywillhavetoreturnoverseas,pendingtheoutcomeofthepartnerapplication.

Thereisastrongcaseforadditionalmeasuresofthistype.

Oneistonotallowanonshorepartnervisaapplicationtoproceedwheretheapplicanthasbeenturneddownforanothervisa.ThiswouldrequireanamendmenttoRegulation2.12oftheMigrationRegulations.

Another,wouldbetodenyprospectivepartnerstherighttoapplyforapartnervisaandameritsreviewwiththeAATifrefused,wherethereisreasonableevidencethattheapplicantisusingtheprocesstoextendtheirstayinAustralia.ThiswouldrequirewideruseofCondition8503(nofurtherstay)intheMigrationRegulations.Suchachangewouldnotdenytheprospectivepartneraccesstothevisaiftheyarebonafide.However,theapplicationwouldhavetobepursuedwhiletheapplicantwasoffshore.

Inmyopinionthereisonedecisivewaytopreventthegamingofthesystemnowevidentwithonshorepartnervisaprocessing.ThisistoprecludeapplicationforapartnervisaforprospectivepartnerswhoareinAustraliaontemporaryvisas,includingoverseasstudents,visitorsoranyothertemporaryvisa.

Suchpersonscouldstillbesponsoredforapartnervisa,buttheapplicationwouldhavetobeprocessedwhilethesponsoredpartnerisoffshore.ThiswouldatonestrokeremovemuchofthecurrentgamingofthesystemandsavethetaxpayerthemillionsofdollarscurrentlyspentinpayingfortheAATprocessingofappealsagainstDHArulings.

Itistrue,thatIfrefused,theapplicantcouldaccesstheAATprocessoffshore,asiscurrentlythecasewithsomeotheroffshorevisasubclasses.However,arequirementthatthevisabeprocessedoffshorewouldremoveamajorincentiveonthepartofthosenon-genuinepartnervisaapplicantswhosemainconcernistostayoninAustraliawhiletheapplicationisprocessed.

Partnerswhoserelationshipsaregenuinewouldbeeligibleforapprovalaslongastheymeettheconditionsrequiredforallpartnervisaapplications.These,asarguedabove,needtobereformed.

ProposalstostrengthenAustralianpartnervisarulesAustralia’spartnervisarules,asindicated,aretheweakestinthedevelopedworld.Here’sasuiteofreformproposals:

*Raisetheminimumageofpartnersponsorsandthesponsoredpartnerto21.Somemightobject,giventhatinAustraliaonecanvoteatage18.However,beingreadytovoteat18isquitedifferentfrombeingabletoprovideforapartneratthisage,especiallyifthesponsorhasjustfinishedschoolandhasnoreliablesourceofincome.

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*Ensurethatthesponsorcanprovideforthepartnerwithoutimposingonthepublicpurse.Requireevidencethatthesponsorhasasecureannualincomesufficienttoprovideforthepartner,muchasisthecaseacrossEuropeandCanada.TheamountrequiredforaBritishsponsor(notedabove)ofaround18,000poundsor$34,000Australiancouldbeaminimumstartingpoint.

*Inordertoensurethatthepartnerdoesnotneedpublicsupportinthefirstfewyearsofresidencehere,thesponsorshouldprovideanAssuranceofSupportcoveringanysuchexpenditure,whereitdoesarise.

*Putinplacearulethat,inreturnfortheprivilegeofsponsoringapartner,thesponsormustshowsomeattachmenttoAustraliaandsomeevidencethatheorsheismakingacontributiontotheAustraliancommunity.This,ataminimum,shouldrequireaperiodofresidenceofatleastfouryearsduringwhichthesponsorprovesthatheorshehasnotbeenaburdenonthepublicpurse.Ifavourarequirement,asintheUSA,thattheprivilegeofpartnersponsorshipshouldbelimitedtoAustraliancitizens.ThiscurrentlyrequiresaminimumoffouryearsstayinAustraliawhileholdingapermanentresidencevisa.

*RequireproofthatthesponsorandpartnerareinagenuineandcontinuingrelationshipbothbeforetheinitialpartnervisaisissuedandaftertwoyearsofresidenceinAustraliahaselapsed.Itwasonlyduring2017-18thatDHAtookthisrequirementseriously,hencetheslow-downinpartnervisaprocessingatthistime.

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References1DepartmentofHomeAffairs,2017-18,MigrationProgramReport,Programyearsto30June2018,p.162ProductivityCommission,MigrantIntakeintoAustralia,InquiryreportNo.77,13April2016,p.4703FECCA2019Pre-ElectionPolicyPaper#1,FamilyReunion,CitizenshipandRegionalSettlement4TonyBurkeMP,LaborResponse-FECCA5MichaelKoziol,‘KeneallyhasvowedtotakefighttoDutton,butisitabattleshecanwin?’SydneyMorningHeraldJune42019,https://www.smh.com.au/politics/federal/keneally-has-vowed-to-take-fight-to-dutton-but-is-it-a-battle-she-can-win-20190603-p51tzw.html

6AbulRizvi,‘Partnervisas–aLesserknownDuttonScandal’,PearlsandIrritations,3May2019,https://johnmenadue.com/abul-rizvi-partner-visas-a-lesser-known-dutton-scandal/

7RobertBirrell,Thechainsthatbind:FamilyReunionMigrationtoAustraliainthe1980s,BureauofImmigrationResearch,1990,pp.28-29

8BobBirrell,ImmigrationReforminAustralia,CoalitionGovernmentProposalsandOutcomessinceMarch1996,CentreforPopulationandUrbanResearch,MonashUniversity,1997,p.39

9MigrationWatchUK,FamilyMigrationtotheUK,June2013,https://www.migrationwatchuk.org/briefing-paper/document/301

10Ibid.11DHA,BR0007,Studentandtemporarygraduatevisaprogramreport,June201812BobBirrell,OverseasstudentsaredrivingAustralia’sNetOverseasMigrationtide,TheAustralianPopulationResearchInstitute,April2019,p.16

13Ibid.,Table514Forexample,CatrionaJackson(ChiefExecutiveofUniversitiesAustralia),LettertotheEditor,TheAustralian20February2019

15DepartmentofEducationandTraining,HigherEducationStatistics,Table1.10,variousyears.16BobBirrell,April2019,opcit.,p1017ABS,3310.0MarriagesandDivorces,Australia,2017.InthecaseofIndia-bornmales,1,961marriedinAustraliain2017.Amongtheirspouses1,402werefemalesborninIndiaand887wereborninanotherforeigncountry.Theremaining413wereborninAustralia