Budget Review 2022–23 Index
Philip Hamilton
Efficiency Dividend
Since 1987–88 successive Australian governments have applied
an Efficiency
Dividend (ED) to ‘departmental’ (operating) expenses of Australian
Government agencies, reducing funding to account for increased public sector
productivity over time. The ED reduces the base departmental funding of
agencies by the ED rate prior to the addition of any new measures. The ED rate is not always explicitly stated in the Budget because,
rather than being a budget measure, the ED is a factor determined and applied
by the Government in the course of developing the Budget.
The ED rate has varied to some degree over the years, but
has been most frequently applied at a rate of either 1.00 or 1.25%, with the
highest being 4% in 2012–13. In most budgets since 2014–15 the ED rate has been
2.0% or 2.5%. Over time, various agencies have been fully or partially exempted
from the base and/or one-off rates.
The ED is not discussed in the 2022–23 budget papers, nor
was it mentioned in the 2021–22 or 2020–21 budget papers. The most recent
coverage of the ED was prior to the COVID-19 pandemic. The Mid-Year
Economic and Fiscal Outlook 2019–20 (MYEFO) of December 2019 anticipated
(p. 202):
the Government will achieve savings of $1.5 billion over
four years by maintaining the Efficiency Dividend (ED) at the 2018–19
level of 2.0 per cent for two additional years (2019–20 and
2020–21), stepping down to 1.5 per cent in 2021–22 and returning to
the base rate of 1.0 per cent from 1 July 2022.
The 2019–20 MYEFO also noted ED exemptions for several
specific agencies, national collecting institutions, and agencies with an Average
Staffing Level of less than 200 (p. 202).
Staffing
When discussing public sector employees, budget papers use
Average Staffing Level (ASL), a method of counting that adjusts for casual and
part-time staff in order to show the average number of full-time equivalent
employees. ASL is almost always a lower figure than a headcount of actual
employees, which is the method of counting staff used by the Australian
Public Service Commission (APSC).
In the 2015–16 Budget, the Government undertook to maintain
the size of the general government sector (GGS), excluding military and
reserves, at around
or below the 2006–07 ASL of 167,596 (2016–17
BP4, p. 132). Critics, notably the Opposition
and the main public
sector union, refer to this policy objective as the ASL cap or the staffing
cap.
In
October 2020, the Government reported that ASL had been maintained at
around or below the 2006–07 level over the years prior to the COVID-19 pandemic,
but foreshadowed that ‘significant ASL increases will occur in a number of
portfolios in 2020–21 … However much of this additional ASL is temporary, reflecting
the nature of the response to COVID-19’ (2020–21
BP4, p. 18). The
2021–22 Budget foreshadowed that ASL would increase to 174,276 (5,364 above
the updated estimate for 2020–21), and that ‘over the medium and longer term,
there will be modest underlying ASL growth as Australia recovers its equilibrium’
(2021–22 Budget
Paper No. 4, pp. 14, 15).
Budget 2022–23
The Minister for Finance has reported that ASL has increased,
but less than expected:
In this Budget, the Government has agreed a moderate uplift
in Average Staffing Level (ASL) to 173,558, which is 416 above the updated
estimate for 2021–22. … While the increase in 2022–23 ASL is slightly above the
latest 2021–22 estimate, it is 718 below the original expected peak forecast in
the 2021–22 Budget, reflecting the difficulties some agencies had with
recruiting stemming from the strong labour market and as a result of COVID-19
related lockdowns in 2021. (BP4, pp. 16-17)
Labour hire contractors
Since 2018 media
reports have highlighted concerns that, for example, ‘Government agencies
have more than doubled their spending on contracted labour in the last five
years’. In November 2021 the
report of a Senate inquiry into the capability of the APS noted the very
limited publicly-available data about labour hire in the APS, in terms of
expenditure and headcount. The main public sector union told the inquiry that ‘at
least 20 000 APS positions are filled on a labour hire basis’ (pp. 25, 27).
However, consistent with responses
in previous years, in Budget Paper 4 the Government observes that ‘over
the 4 years from 2022–23, the departmental funding provided to administer
government services is declining as an overall share of total government
expenses’ (BP4, p. 18).
ASL changes in selected portfolios
The Government attributes ‘the main longer term structural
change [in staffing] at a portfolio level’ to the build-up of Defence capacity
(BP4, p. 18). It
has been reported that:
The government plans to add 18,500 personnel to Defence by
2040, at a cost of $38 billion. Two-thirds of the growth will be on the
military side. Civilian numbers are projected to grow by 990 ASL (average
staffing level) in 2022–23 to a total of 16,991. The equivalent number for the
military is ASL increasing by 2,201 to 62,063.
In addition, the Government has decided on ‘a temporary
continuance of peak ASL resources’ in some portfolios to ‘sustain Australia’s
strong recovery from the COVID-19 pandemic, bolster Australia’s national security,
support jobs creation and improve essential services’ (BP4, pp. 16-17). In that
context, the Government notes (but does not quantify) ‘new ASL resources’ for
specific functions and activities in the following portfolios:
-
Agriculture, Water and the Environment, in relation to
Australia’s Antarctic science capability, and the response to the Independent
Review of the Environment Protection and Biodiversity Conservation Act 1999.
-
Defence, in relation to the Sovereign Guided Weapons and
Explosive Ordnance Enterprise, the National Naval Shipbuilding Enterprise, and
the AUKUS trilateral security pact
-
Health, for the COVID-19 vaccine program, and to extend the
National Incident Centre and
-
Home Affairs, for security agencies to address ‘risks posed by high
risk terrorist offenders and strengthen Australia’s defences against
transnational, serious and organised crime’. (BP4, p. 17)
In the Social Services portfolio, ‘new
ASL resources’ are ascribed to Services Australia (for the response to the 2022
flood events in Queensland and northern New South Wales), and the National
Disability Insurance Agency (for delivery of services under the National
Disability Insurance Scheme). (BP4, p. 17) However, tables in Budget Paper 4
that compare staffing in 2021–22 and 2022–23 show NDIA staffing remaining
static, and Services Australia staffing declining by 2,719. (BP4, p. 160) It is
not clear why NDIA staffing remains static.
For Services Australia, the
2021–22 Budget estimated that ASL would be 26,838, whereas in the 2022–23
Budget the actual ASL for 2021–22 is 28,869, an increase of 2,031. The Social
Services Portfolio Budget Statements 2022–23 (PBS) states ‘the 2021–22
Average Staffing Level (ASL) includes a one-off increase of 2,031 ASL for
administration of the COVID-19 Disaster Payments’ (DSS PBS, p. 171). This
temporary increase of ASL in 2021–22 may have been covered by two payment
measures:
-
$451.1 million in the 2021–22 MYEFO for Services Australia to
administer the COVID-19 Disaster Payment in 2021–22 (2021–22
MYEFO, p. 286) and
-
$450.0 million in the 2022–23 Budget for Services Australia to
administer the Pandemic Leave Disaster Payment, Australian Government Disaster
Recovery Payment and Disaster Recovery Allowance in 2021–22 (BP2, p. 166).
The cessation of this temporary measure would account for
2,031 of the ASL decline of 2,719 reported in Budget paper 4 (p. 160).
Genomics Australia
In the context of the Government’s 10 year Medical
Research Future Fund (MRFF) plan, the Budget allocates $28.1 million over 4
years from 2022–23 to establish Genomics Australia (GA) in the Health portfolio
from 1 January 2024. A legislated corporate Commonwealth entity, GA will ‘drive
the translation and integration of genomics into the Australian healthcare
system’. (BP2, p. 93)
APS Hubs
Prior to the COVID-19 pandemic,
Coalition Government budgets would often include public service decentralisation
measures. Without using the term ‘decentralisation’, as noted
in the media in this Budget the Government has allocated $15.2 million
over 7 years to pilot Australian Public Service (APS) Hubs across regional
Australia. The Hubs will ‘provide office accommodation for APS staff to work
from regional areas, and promote the APS as an employment option to regional
Australians’. (BP2, p. 153)
Parliament
Response to the Independent Review into Commonwealth
Parliamentary Workplaces
The report
of the Independent Review into Commonwealth Parliamentary Workplaces conducted
by Sex Discrimination Commissioner Kate Jenkins (the Review) was released in
November 2021. Initiatives in response to the Review’s recommendations were
included in the 2021–22
MYEFO (p. 217), and the Budget includes a further $4.1 million for measures
in 2022–23:
-
Department of the Prime Minister and Cabinet: $2.6 million to
design and establish an Office of Parliamentarian Staffing and Culture (OPSC),
and to undertake preparatory work toward an Independent Parliamentary Standards
Commission
-
Department of Parliamentary Services (DPS): $0.8 million for an OPSC
shopfront at Parliament House, and a feasibility study into a Parliamentary
Health and Wellbeing Service (PHSW)
-
Australian Public Service Commission: $0.6 million to expand the
Parliamentary Workplace Support Service (BP2, p. 64)
In addition, the Department of Finance will review workplace
policies and practices, and ‘accessibility and inclusion measures within
Commonwealth Parliamentary Workplaces’. DPS will provide input in relation to
the Parliamentary precinct. (BP2, p. 64)
Security
In recent years, media reports from Australia,
the United
States and the United
Kingdom have documented threats of violence, and actual violence, against
parliamentarians and parliaments.
Since 2014–15, a number of security upgrade initiatives have
been undertaken at Parliament House, and these are summarised and discussed in
a performance
audit tabled by the Australian National Audit Office in June 2021. The
Budget includes a measure that will further upgrade security at Parliament
House:
The Government will provide $29.7 million over 4 years from
2022–23 (including $2.7 million in operating funding) and $0.8 million per year
ongoing to purchase and maintain security assets at the Australian Parliament
House, including enhancements to the CCTV network, upgraded screening equipment
and an expanded Parliamentary Security Operations Room. (BP2, p. 154)
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