A new three-year corporate plan for the Department of Foreign Affairs and Trade for the years 1994- 1996, set out below, redefines departmental objectives and the program structure under which they will be pursued.
The aim of the Department of Foreign Affairs and Trade is to win a future for Australia in the world. Australia’s future, though enormously promising, is by no means assured. As a nation, we must make our way in a highly competitive and increasingly uncertain global environment.
In the mid-1980s, the Australian Government made historic decisions to internationalise the economy by deregulating financial markets and scaling back protection. As a result of these and other changes, Australia is now more exposed to international financial, trade, environmental and other decisions and has to do more itself to shape and take advantage of such developments.
At about the same time, old global strategic verities began to crumble as changes became apparent in the Soviet Union that would lead to the ultimate demise of the USSR. Australia now faces a less predictable and less structured post-Cold War security environment. Strategically, the threat of nuclear war has receded but predictability in security matters has declined and relationships between nations have become more complex and more fluid. Trade and economic objectives are of greater relative importance as we seek to consolidate and strengthen our trading position, thus creating jobs and improving our standard of living.
Looking ahead, Asia’s rapid economic advances and the end of the Cold War will continue to bring vast areas of the world into the global market economy. They will bring with them huge labour resources, rich natural resources, and new markets, which in turn will bring more and bigger competition, but also opportunities for growth, including for Australia. The APEC process, strongly supported by Australia, remains a focus for regional integration and points to a growing sense of community in the region.
The global balance of power will continue to change. We can expect the long-term shift of power and influence from the Atlantic to the Asia-Pacific to continue and this will be to Australia’s advantage. Australia has a wide spread of important regional and global interests, ranging from the South Pacific to Europe and from desertification to disarmament. Australia’s future, however, will continue, as in the recent past, to be shaped mainly in and with the Asia-Pacific region. Australia will have to anticipate and adjust intelligently to regional strategic developments. We need to help shape the regional security environment by participating in building a new architecture of regional economic and security cooperation.
There will be a great need to give new direction to international processes and institutions in the light of existing and emerging economic and security problems. On the economic front, protectionist pressures and challenges to international trade rules are of particular concern to Australia. High on the international security agenda are the disturbing resurgence of ethno-nationalism; the proliferation of arms supplies, both conventional and nuclear, in our region particularly; the economic and social implications of refugee and other population flows; and global health and environment issues. We must also maintain our commitment to universal human rights norms through an emphasis on dialogue and the promotion of practical measures for strengthening institutions at the national level.
Australians can be expected to demand more of the Department. A more informed community will demand participation in policy development, consultation in implementation and accountability for outcomes. Australians are travelling overseas in increasing numbers and will continue to insist on the delivery of efficient and effective consular and passport services by the Department.
International developments are unpredictable. The implementation of our foreign and trade policy must be flexible and adaptable enough to deal with unforeseen contingencies that might demand considerable time and resources from the Department.
In all this, Australia will have to rely on its power to persuade and mount effective campaigns to influence the course of events. Not even a superpower can aspire to realise all its goals unaided. Australia, however, without the power and leverage that derives from economic and military dominance, is dependent upon diplomacy to make itself heard and to shape the course of events in Australia’s interests.
So it is vital to sustain and strengthen our global network of access to and influence on decision-makers in countries and organisations of importance to Australia. This global network makes the Department of Foreign Affairs and Trade unique in Australia. The Department provides the Australian government and community with global understanding, access and influence. It has a breadth of global and domestic interests and a network to serve those interests matched by no other institution in Australia.
The Department’s values and culture derive necessarily from those of the Australian community at large, and those of the Australian Public Service of which it is part.
DFAT, pre-eminently, represents Australia abroad and presents Australia to the world. The Department corporately, and its officers individually, must be knowledgeable about and sensitive to the many distinct cultural environments in which we are required to operate. At the same time, DFAT officers must project clearly and confidently their Australian identity and Australian values. DFAT and its officers present Australia as an entity that sees itself as both undeniably unique but also as a relevant and important component of the cultural mosaic of the region as a whole.
DFAT is responsive to government. The Department is organised and focused above all else on advancing Australia’s global interests through achieving the Government’s foreign and trade policy objectives. DFAT is results-oriented and committed to the reliable delivery of relevant, high-quality services to the Government, the business sector and to the Australian public.
The Department aspires, through the adoption of best practice standards and a commitment to excellence across all areas of its operations, to be and to remain a foreign affairs and trade organisation recognised as first-class. It demands at all times the highest standards of conduct from all its officers and embraces a strong commitment to accountability.
The special characteristics of a foreign service pervade the Department’s corporate culture. To a far greater extent than any other department, DFAT requires of its officers and their families a capacity to cope with unending change. The operation of a foreign service that is an integral part of the Department as a whole means that relatively frequent and large-scale movements of officers are a central and inescapable aspect of departmental life. These movements take place both between Canberra and overseas posts and within the department in Canberra. Furthermore, DFAT does not (and cannot) control its agenda to the same extent as other departments. Dealing continuously with the unpredictable adds significantly to the milieu of change and movement. The demands on officers (and their families) in terms of versatility, flexibility, determination and professionalism are thus quite extraordinary.
The Department recognises that giving priority to the personal and professional needs of its staff is vital to the achievement of its goals and objectives. It strives to operate an open and transparent system. DFAT uses and promotes merit as a basis for advancement and rewards. Decisions on placements both overseas and in Canberra strive for the optimum balance between departmental requirements and officer preferences. Training is seen as critical to the ability of officers to continue to meet the Department’s requirements for versatility and adaptability. The Department is determined that appropriately diverse opportunities for training and development be available to all its officers.
Aim
To win a future for Australia in the world.
Goals
To increase Australia’s economic prosperity through trade and investment flows;
To ensure a favourable security environment for Australia;
To advance Australia’s standing as a good international citizen;
To promote global cooperation based on fair rules; and
To help Australians overseas.
Priority tasks
To improve Australia’s understanding of and increase its influence on international developments of importance to our global foreign and trade policy interests, with a particular focus on the Asia- Pacific.
To advance Australia’s economic interests through:
o Strengthening the multilateral trading framework and further liberalising trade, including through successful implementation of the Uruguay Round and pursuit of a post-round agenda;
o Consolidating Australia’s economic integration into the Asia-Pacific region, including through the further development of Asia Pacific Economic Cooperation (APEC);
o Pursuing a more coordinated, sustained, strategic approach to bilateral trade wherever we identify opportunities;
o Assisting in the growth of an export culture and developing opportunities for Australian industry to succeed in international trade and investment; and
o Promoting government economic policy settings and reforms directed towards improving Australia’s international competitiveness.
To advance Australia’s strategic interests through:
o Enhancing the regional security environment based on acceptance of cooperative security approaches in our region;
o Limiting the proliferation of nuclear and other weapons of mass destruction and missile delivery systems, particularly in our region; and
o Strengthening the effectiveness of the United Nations in cooperative security arrangements.
To deepen and strengthen Australia’s links with, and its constructive commitment to, its South Pacific neighbours.
To use effectively Australian overseas development assistance to meet humanitarian, foreign and trade policy goals.
To promote solutions to international environmental issues consistent with Australia’s economic and environmental interests.
To encourage wider international adherence to human rights standards and democratic principles.
To project an image of Australia that supports key foreign and trade policy objectives.
To provide efficient passport and consular services to Australians.
To achieve all the above the Department’s activities will be global with a focus on the Asia-Pacific. It will:
o Strengthen its global network and improve access to decision-makers in countries and organisations of importance to Australia;
o Improve its provision of information on and analysis of international political and economic developments;
o Work cooperatively with other Australian Government agencies, in particular with Austrade and AIDAB;
o Foster dialogue and work cooperatively with the broader community, including business, ethnic and community interest groups, academia and NGOs;
o Keep resources focused on priority tasks, continue to achieve improvements in efficiency and cost- effectiveness and strengthen support systems both in Australia and overseas;
o Give priority to assisting staff to improve their skills and to promoting fairness and equality of opportunity in its staff management practices;
o Ensure the highest standards of financial, personnel and property administration and promote the highest standards of accountability and ethics amongst staff.
Program 1, International relations, trade and business liaison
Objective: To increase Australia’s economic prosperity through trade and investment flows;
To ensure a favourable security environment for Australia;
To advance Australia’s standing as a good international citizen; and
To promote global cooperation based on fair rules.
Sub-program 1.1, Interests in North Asia
Sub-program 1.2, Interests in South and South-East Asia
Sub-program 1.3, Interests in Americas and Europe
Sub-program 1.4, Interests in South Pacific, Africa and Middle
East
Sub-program 1.5, Multilateral trade policy and negotiations
Sub-program 1.6, Trade strategy development and business liaison
Sub-program 1.7, Global issues
Sub-program 1.8, International legal interests
Sub-program 1.9, Information and cultural relations
Program 2, Passport and consular services
Objective: To provide Australian citizens with secure travel identification and to assist and protect the interests of Australians overseas.
Sub-program 2.1, Passport services
Sub-program 2.2, Consular services
Program 3, Services for other agencies
Objective: To provide efficient and reliable services for Government and Parliamentary activities overseas and foreign representatives in Australia.
Sub-program 3.1, Services to Parliament and the media
Sub-program 3.2, Services to foreign representatives in Australia
Sub-program 3.3, Services to Australian Government agencies
overseas
Program 4, Secure government communications and security services
Objective: To provide secure, efficient and reliable communications and security services in support of the Government’s activities overseas.
Sub-program 4.1, Australian Diplomatic Communications Network
(ADCNET)
Sub-program 4.2, Security services
Program 5, Executive and DFAT corporate services
Objective: To provide policy direction and administrative support for the Department’s operations.
Sub-program 5.1, Executive direction
Sub-program 5.2, DFAT corporate services
The emphasis in the new corporate plan on economic issues and the consolidation of Australia’s integration in the Asia-Pacific region was matched by a shift of resources into related areas, particularly the creation of a strengthened branch responsible for the Asia Pacific Economic Cooperation process, and the further extension of the Department’s consultative and research relationships with the private sector to contribute to the development of a national export culture. This was achieved without significant staff increase by redeploying existing staff, and a general refocusing of priorities across all divisions, as well as the mobilisation of public affairs activities, cultural and other programs to promote these essential economic interests. Close working relations with Austrade and other Commonwealth agencies involved in trade issues were essential elements of this strategy.
The practices of program budgeting, more rigorous financial management policies, and the continuous review and evaluation of outcomes through the post and divisional evaluation processes were further refined to clearly focus on outcomes and enhance effectiveness. Dialogue with the Australian National Audit Office and regulatory departments have been helpful in achieving improvements to overcoming any real or perceived deficiencies in financial and other operational practices. This was particularly the case with respect to the Department’s review of its internal audit procedures.
The Department participated in a trial to report on its financial performance in 1993-94 in an accrual accounting format, and provided considerable resources to the success of this initiative.
Resource management
There was no opening or closing of posts in 1993-94 although, as noted above, resources were shifted into trade-related areas and an extension of the honorary consul network. An agreement with the Department of Finance during the year improves the Department’s control over its financial resources by providing protection against changes in exchange rates and by providing supplementation for inflation on budgets expended in overseas countries.
Australian Diplomatic Communications Network (ADCNET)
The program of linking overseas posts with Canberra for all secure communications through ADCNET has been extended to 37 posts and one division in Canberra. A further 20 posts and most divisions are to be covered in 1994-95.
New DFAT office building
Construction of stage one of the north building of the new DFAT office in Canberra proceeded satisfactorily. It was 70 per cent complete by 30 June 1994, and was moving to fit-out, including the provision of services, and landscaping during the second half of 1994.
The project is to be completed by 1996. It will involve substantial on-going transfer costs on essential communications and other facilities above the project fit-out budget of $26.8 million, but within the current estimated total of $165 million. Fit-out costs above $26.8 million will be paid for within existing Department of Foreign Affairs and Trade appropriations. At this stage, additional costs of completing the fit-out to an adequate standard are about $17 million.
Personnel management
Effective personnel management remained a major priority for the Department. The need for continuous improvement in how the Department deals with its most valuable resource, its staff, saw further examination and analysis in the organisation, of the Personnel Branch policies and practices during 1993-94. Major initiatives included:
o the review, in consultation with staff associations, of departmental policies covering recruitment, deployment and staff performance and appraisal;
o appointment of a professional psychologist as Staff Counsellor, freeing the Careers Adviser to concentrate full-time on assisting officers to make better-informed decisions on their career options;
o appointment of a full-time officer to coordinate the Department’s Aboriginal and Torres Strait Islander recruitment and career development strategy;
o finalisation of plans to incorporate a child-care centre in the Department’s new building; and
o the introduction of a more comprehensive health scheme for officers overseas to eliminate a number of areas of disadvantage previously experienced by them when compared with persons in Australia.
Social justice and equity
DFAT program managers are reminded regularly of the need to be sensitive to social justice considerations. These are reflected in personnel policies directed to creating a fairer and genuinely more representative organisation, by recruiting and promoting target groups, by breaking down hierarchical attitudes and practices, and by making the Department more accessible to, and more responsive to, non- government organisations, the business community and public interest groups and to the media generally. The Department can serve its own professional purposes as well by drawing on the international language skills of staff of non-English speaking backgrounds, and by employing qualified Aboriginal and Torres Strait Islander staff. Equal opportunity policies and outcomes are reported in detail under sub-program 5.2 and in the appendices.
A particular effort was made over the year on public communication and the Department’s more direct and traditional communication links with the business community and academics. This was achieved through greater circulation of Foreign Affairs and Trade background material; by briefings and an open attitude to the press; and by the canvassing of issues, as in Senator Evans’s book, Co-operating For Peace, on the future evolution of the United Nations.
This annual report outlines aid policy, human rights and international debate on the status of women and the rights of indigenous peoples, where the Department has an important role overseas in sensitive promotion of domestic social justice concerns. The public information activities and cultural programs have as their major objective the projection of a multicultural Australia committed to social justice and recognition of contributions made by women, men, and different ethnic groups including indigenous people.
The Secretary commenced a program of vertical slice meetings with officers of the Department. In May 1994 one of these meetings comprised 21 female officers from ASO2 to SES level. The meeting carried forward the process of identifying and addressing issues requiring attention to improve the career satisfaction and development of female officers in the Department, including the proportion of female officers in the middle and senior management which increased for SES, from 6% in 1992-93 to 9% in 1993-94 but still remains below the APS average.