Chapter Nine - Promoting Australia's interests through its expatriates
Introduction
9.1
As the Committee noted in Chapter 2, the majority of
Australian expatriates remain well-disposed towards Australia
and willing to promote its interests while abroad. As many submitters told the
Committee, 'each and every Australian who ventures abroad is an ambassador for
their country'.[454]
9.2
The most frequently mentioned manifestation of this is
the promotion of Australia
as a tourist destination to overseas friends, neighbours and colleagues. Other
expatriates mentioned a range of activities which they undertake voluntarily to
'show the flag', for example, by speaking about Australia
at local schools.
9.3
But as many expatriates themselves realise, there is
much more that can be done. In this chapter, the Committee will consider ways
of harnessing the expertise of its expatriates, both overseas and back in Australia,
and at ways in which they might be encouraged to remain involved in and to
contribute to Australian affairs while abroad. This chapter addresses:
- engaging with academic expatriates;
- engaging with expatriate professionals;
- engaging with expatriates at overseas posts;
- encouraging expatriates to invest in Australia;
and
- expatriate networks.
Engaging with academic expatriates
Fellowship schemes
9.4
As the Committee noted in Chapter 2, Australia,
with a population of 20 million, cannot hope to support the depth of research
across all fields that other larger developed countries can. We do 'punch above
our weight' in niche areas, but cannot realistically ever hope to do so across
the board.
9.5
It is almost a rite of passage for young Australian
researchers in many disciplines to undertake post-doctoral experience abroad.
And as the Committee has noted, many never return to Australia
as their abilities are observed and the opportunities to further their careers
abroad, in larger, more amply supported centres of excellence open up. The
Committee applauds the creation of internationally competitive knowledge that
this may bring about, as it reflects well on Australian education, and on the
Australian work ethos. It also notes recent research into researcher attitudes,
which shows the chief driver in the life of a researcher is the excitement of
discovery; other important factors include the adequacy of research funding and
infrastructure, support and a career path. Salary is not the primary driver.[455]
9.6
Bearing these things in mind, perhaps the major
requirement for researchers is to have the opportunity to work with the
brightest and best minds in their field. If those minds are currently abroad
and can be attracted to Australia, or encouraged to return to Australia, they
may attract others to follow and thus help develop the critical mass required
for innovation to flourish here. Many overseas-based Australian researchers
have indicated that they are well-disposed to returning to Australia,
so the issue is, how to induce the key players amongst them to come back. One
academic outlined the dilemma:
One of the dilemmas faced is that
we want our best Postdoctoral Fellows to gain experience in overseas positions
but also want them to come back. What would attract them back? What would they
come back to – an uncertain career path, low incomes, fewer options? For a
returning Postdoctoral Fellow the ability to enter the various Senior
Fellowship schemes is now very limited. Many do not attempt it and, of those
that do, many fail and become demoralised. What about bringing home the senior
scientists? Federation Fellowships were aimed at doing this, but they are now
being awarded to senior Australian scientists. Does this mean that top-flight
overseas researchers do not even see a Federation Fellowship as sufficient
incentive to return? What can be done?[456]
9.7
Various strategies have been adopted over recent years
to entice skilled expatriates home. The Federation Fellowship scheme mentioned
above was set up in 2001, under the Australian Government innovation action
plan, Backing Australia's Ability. The aims of the program are
to attract and retain outstanding researchers of international renown, to build
world-class research capability in Australia,
and to forge stronger links with the international research community. A key
plank of the Federation Fellowships is the monetary support: the provision of
an internationally competitive salary of some $235,000 per year for five years;
an additional 26 per cent from the Australian Research Council (ARC) for
on-costs; and support that at least matches the salary by the host higher
educational institution or research organisation. Up to 25 such Fellowships may
be awarded annually.
9.8
The selection criteria for Fellowships stresses the
importance of the potential of the proposed research to contribute to
designated national research priorities, namely an environmentally sustainable
Australia, promoting and maintaining good health, frontier technologies for
building and transforming Australian industries, and safeguarding Australia.
While the Fellowships are open to resident Australians and foreign nationals as
well as expatriate Australians, there has been an increase in the number of
applications from this latter group (27 per cent of applicants in 2004) and an
increased success rate.[457]
9.9
Other planks of Backing
Australia's Ability included the establishment of the ARC and other centres
of excellence in biotechnology, and information and communications technology,
which serve to expand the potential job market for all skilled researchers; and
competitive grants through ARC Discovery and Linkage programs.
9.10
Both the National
Health and Medical Research Council (NHMRC) and the Commonwealth Scientific and
Industrial Research Organisation (CSIRO) have also been active in providing
support for skilled expatriates wishing to return to Australia.
The NHMRC Burnet Award, introduced in 2001, provides five years' funding to
medical researchers of high calibre and international standing. The Howard
Florey Centenary Fellowships provide two-year support for the return to Australia
of more junior postdoctoral researchers to continue in a biomedical research
career. The CSIRO Postdoctoral Program, established in 2001, aims to support 25
fellowships per year, with an emphasis on new areas of science and
collaborative proposals.[458]
9.11
The states have also become active in this area. For
example, as part of its innovations initiative, the Victorian Government has
put in place a $10 million trust fund, the annual interest from which goes to a
company, the Victorian Endowment for Science, Knowledge and Innovation (VESKI),
which was established in 2003. One program launched by VESKI to attract
outstanding expatriates back to Victoria
has been the Victorian Innovation Fellowship, which offers up to $100,000 p.a.
for up to five years. VESKI executive director Dr Greg Trainor explained that
VESKI's first Fellow was Professor Andrew Holmes, a world-renowned expert on
polymer semi-conductors, from Cambridge University, whom they had been able to
attract back to continue his research for five years with the assistance of a
Federation Fellowship, the VESKI Fellowship and matching infrastructure support
from Melbourne University and the CSIRO. An added bonus was that Professor
Holmes was bringing with him a team
including three expatriate Australians.[459]
9.12
Dr Trainor
explained that the VESKI scheme was attracting applications from expatriates at
a crucial stage of their careers, with the latest round of applications being
primarily from applicants ranging in age from 26 to early 40s:
A number of these people are at the
point in their careers where they are just starting families or their families
are young, and one of the key drivers for coming home is the education system
and getting their families back here to be educated. They are a fantastic
opportunity for us at that age. I think the way we have put the applications
out and the way we have pointed them is also responding to the group that is
looking to come back.[460]
9.13
Queensland's
approach has been slightly different. Through its Smart State Fellowship
program, launched in 2003, it aims to retain or attract back promising early
career researchers by providing $150,000 in grant funding, matched by research
organisations and industry co-sponsors, totalling $300,000 over three years.
Four fellowships were offered initially, to researchers working on the
geomorphology of tropical rivers, molecular farming, obesity management and
computer chip manufacture. The program recognises the need to help build
critical masses of internationally recognised and competitive research and to
develop researcher networks.
Short-term return schemes
9.14
Worthy as the above fellowships and other similar
initiatives undoubtedly are, it has been recognised that there is an enormous
wealth of expertise and knowledge residing in our expatriate researchers that,
for personal or professional reasons, is unlikely to be attracted back to
Australia on a long-term or permanent basis. This recognition has led to the
development of other approaches to tap into the skills of our expatriate
researchers, approaches that do not necessitate their permanent relocation.
9.15
The New South Wales (NSW)
Expatriate Return Awards are a joint initiative of the University
of Sydney and the NSW Department of
Education and Training. The Awards aim to attract back researchers for periods
of three to six months to enable the re-establishment of links, to provide
expertise and to develop longer-term collaborative linkages, as well as
involvement in a schools outreach program. Funding is provided to cover the
researcher's temporary relocation to Sydney,
and that of his or her immediate family, plus a living allowance. Two such
awards have been offered in each of 2003 and 2004, with the initial evaluation
of the program deeming it 'enormously successful'.[461] It has been observed that 'the
success of the NSW Expatriate Return Awards Program suggests that the key to
harnessing the resources of the Australian diaspora is to identify
opportunities which emphasise mobility and flexibility.'[462]
9.16
South Australia
has taken another approach, with its 'Thinkers in Residence' program starting
in 2003. Two or three world-class thinkers will be invited to Adelaide
annually, for periods of residence from two to six months, during which time
they will give master classes, public lectures, and undertake mentoring,
writing and publishing activities. Universities, non-government agencies and
companies have been invited to sponsor thinkers.
9.17
The Lowy report was supportive of short-term academic
return fellowship schemes piloted at the state level, and recommended the
establishment of a national scheme. Such a scheme could support expatriate
researchers to return to Australia
to undertake specific joint research projects with identified Australian
partners, for two to three month periods.[463]
Networking
of researchers
9.18
With the widespread adoption of the Internet,
collaborative options amongst researchers globally have blossomed. The
universality of the Internet means that it is also a powerful tool for keeping
Australians in touch with one another, and informed of fellowship
possibilities, job opportunities and the like. The universities have led the
way, with alumni associations most visibly active in attempting to maintain
links with their researchers who go overseas and to track their careers. The
Sydney University Graduates Association of North America (SUGUNA) noted, however,
that its understanding of the Privacy Act
1988 was that it prevented the universities from disseminating names
proactively – alumni had to specifically opt in to its network.[464]
9.19
Sydney University
proposed a networking scheme to bring together all Australian researchers
living abroad and to provide opportunities for them to engage and reconnect
with research groups in Australia.
Professor Les Field told the Committee that federal funding for this Network of
Expatriate Australian Researchers (NEAR) had been sought under the ARC Networks
Scheme.[465] However, the Committee understands that such
funding has not been forthcoming.
9.20
The Committee recognises the benefits to be gained from
maintaining links with Australian expatriates in the academic field. In
particular, Australia
has a considerable investment in their education, and it would be preferable
not to lose the benefits of this investment. The Committee acknowledges the
opportunities for collaboration provided by fellowship schemes, and supports
and encourages these schemes to attract back major researchers.
Engaging with expatriate professionals
Attracting expatriate professionals
9.21
As well as return fellowships for expatriate academics,
the Lowy report was supportive of return fellowships for industry professionals.
The World Class New Zealander Program was given as an example of a scheme of
sponsored short visits by professionals, to attract international expertise and
knowledge.[466] The Lowy report
suggested the establishment of a scheme, funded by the private sector, to
support the return of Australian expatriate business people. The return visits
could be aimed at sharing best practices or creating opportunities for
collaboration or business ventures.[467]
Networking of expatriate professionals
9.22
The Committee received evidence that Australia
may be missing out on opportunities for economic development, due to a lack of opportunities
for professionally skilled entrepreneurs. Mr
Tony Surtees
told the Committee that many Australian expatriates, with entrepreneurial skills
gained in a dynamic global market and seeking to return to Australia,
found it difficult to tap into local capital markets. He observed that:
It is a global market for talent and it is a global market
for capital. We need to have people who have these enterprise creation skills
that have a proven track record of success internationally. We need to be able
to harvest and build on those skills and capabilities and provide people with a
return channel back to Australia so that while they are sitting overseas making
decisions about what they might do there is some pathway for them.[468]
9.23
Mr Surtees
suggested to the Committee that there was a need for an organisation aimed at
facilitating information exchange, and identification of business opportunities,
for skilled entrepreneurs (including expatriate Australians) who are seeking to
create new business ventures in Australia.
Mr Surtees
told the Committee that government needs to provide an environment for the
creation of such a networking organisation,[469]
which would:
... ultimately have to be one that identifies those talents,
identifies and codifies the capacities and the opportunities that people are
willing to engage with, can identify where these people reside and how well
qualified they may be to act in a certain capacity, and then has that database
and information base available to those government and private enterprises that
may wish to engage them. That is a fairly straightforward proposition and not
an expensive one.[470]
Engaging with expatriates at overseas posts
9.24
As many submitters pointed out, attracting academic expatriates
and expatriate professionals back to Australia
is only one small part of the broader equation. Probably half of the
longer-term expatriates will never return; many who do will only do so in
retirement. It is therefore important to consider how to engage with Australian
expatriates and how to involve them in promoting Australian interests while they
are abroad.
9.25
A constant theme of submissions to the Committee was
the relationship of the submitters with the relevant missions abroad. There was
a general expectation, either voiced or implicit, that Australian diplomatic
posts should be both more responsive to the needs of the expatriate community,
and involve that community more in their public diplomacy activities.
9.26
The submission from DFAT stated that Australian
missions are active in Australian expatriate communities and organisations, and
encourage expatriates to play a role in advancing Australia's
interests.[471] There is recognition
that expatriate professionals are a valuable source of information on local
business issues, for example, and overseas posts frequently use expatriates to
convey and advocate key messages in pursuit of Australian objectives.[472]
9.27
The Committee is concerned, however, that evidence to
the inquiry suggests that many missions are not sufficiently engaging with
expatriate communities. The Lowy report acknowledged the positive activities
undertaken by some diplomats, but noted that:
...the level and form of engagement that occurs between
Australian missions and expatriates depends largely on the personalities of the
senior diplomats in each post and in particular the head of mission.
9.28
When asked about whether overseas posts are encouraged
to be inclusive of expatriates, a representative of DFAT responded as follows:
[Posts] are always encouraged to be
as inclusive as they possibly can. What we find sometimes is that parts of the
Australian community that are most closely involved with the embassy are those
that choose to be. Other parts of the community do not want a lot to do with
the government; they do not see a lot of benefit for themselves in that
relationship. So the relationships, the dialogue and the interchange that
develop are often based on a process of self-selection, if you like.
The heads of embassies and missions
are always active in engaging and including as many people as possible, but
some businesspeople – some expats – choose not to be involved or as involved in
that exercise. But the objective is always to harness the skills of the
community as much as possible and to be as inclusive as possible in doing that.[473]
9.29
While acknowledging that DFAT could always do better,
its representative pointed out that DFAT consular services were there for all
Australians, and that perhaps inevitably it was the short-term travellers, not
the expatriates, who tended to dominate the available post time as they were
the ones more likely to get into trouble through unfamiliarity with the ways of
the country concerned. He reassured the Committee that DFAT 'would never
consider the relationship with the Australian communities to be a low priority
activity'.[474]
9.30
Both Advance and the various chambers of commerce
described for the Committee how Australian missions and Australian expatriates
could work together more fruitfully.
9.31
Advance was formed in the US
in May 2002 by a group of emerging Australian professionals, with seed funding
from Lachlan Murdoch, Anthony Pratt
and Peter Lowy,
and assisted by the Consul General in New York.
Its aim was to bring together Australian expatriate professionals in the US
to work together on specific projects to advance Australia's
interests. This has included working closely with existing Australian agencies
such as Austrade, the Wine Bureau, Invest Australia
and DFAT.
9.32
The Chief Executive Officer of Advance, Ms
Elena Douglas,
gave an example of the kind of cooperation DFAT posts could obtain from
organisations such as hers. She pointed out that expatriates from the Advance
Network had assisted the New York
consulate in organising a function to raise funds for the victims of the Bali
bombing. More specifically, Advance networkers did the graphic designs free of
charge; they were volunteers on the night; they did the video presentations;
they provided video imagery; journalists produced segments.[475] She stressed that her 3,000 members
found it satisfying to work together on projects which used their professional
expertise and insight; they did not want to get together just for social
events.[476]
9.33
Ms Douglas's
message to DFAT was:
Do not assume you can only do what
you can do with your two or three staff in your post. Reach out to the
expatriates. You do need a facilitator to do that and that is what we see our
role to be, where the consulate staff can come to us – or the Invest Australia
staff or the Austrade staff – and say, 'Okay, we want to do this. Can you help?
Who can you get to do this, and this and this? We need to get into these
companies. Which contacts do you have in this and this and this company?'[477]
9.34
Similarly over the last 15 years, the 15 Australian New
Zealand American Chambers of Commerce (ANZACC) in major cities in the US
have worked closely with major Australian governmental entities to help achieve
their specific economic and cultural goals.
The presence of the chambers, especially in cities not having an
Australian consulate, gives Australia a presence there that they would not
otherwise have, a presence regarded as 'very significant' by SUGUNA.[478]
The chambers also work closely with the US Government and major US
city governments to enhance business relations, tourism, trade and investment
and to promote understanding between the three countries. As the ANZACC
national president, Mr Ron
Delmenico, told the Committee:
By working as a conduit between the
Australian government and the largest contingent of Australian citizens living
abroad, we can help guide policy efforts towards those topics of greatest
concern and those which will provide the greatest impact for the Australian
government.[479]
9.35
The Committee recognises that many of our embassies and
missions are doing their best to involve the local expatriate community, and
applauds those ambassadors whose performance in this respect was singled out
for praise by submitters.[480] However
the Committee received evidence that this is not always the case. The Committee
notes the suggestion of the Lowy report, that engagement with Australian
expatriate communities should be made an explicit objective of DFAT, and should
be included in post directives and ministerial directives to heads of mission.[481] As noted in the Lowy report:
Australia’s
expatriates should be seen as an integral element of our diplomatic efforts. A
strategically located diaspora can help our international representatives to do
their job: to gather information, build relationships and advocate Australia’s
interests.[482]
9.36
The Committee notes that the websites of Australian
foreign missions offer a range of information for Australians travelling to
those countries, but only a very limited range of information for resident
Australians. A small number of mission websites include links to local expatriate
business or cultural groups. The website of the Australian High Commission in London,
for example, includes under the heading 'Australians in the UK',
links to the Australia-Britain Society, ANZACC, and the Australian Women's
Club.[483] The majority of mission
websites, however, do not include such links.
9.37
Given the evidence of the beneficial nature of collaborations
between mission staff and expatriates as discussed above, it would seem that
every opportunity should be taken to encourage these sorts of collaborations. As
discussed in Chapter 4, there is scope for improving the websites of foreign
missions to include a facility whereby expatriates could register online with
their relevant mission, giving details of their skills and contacts. In return,
missions could notify expatriates of upcoming events and opportunities. This
local online registration would be distinct from the DFAT online registration
scheme, which is focussed on the need to be able to contact Australians in the
case of emergencies.
Encouraging expatriates to invest in Australia
9.38
Many expatriates already invest in Australia.
Others maintain properties in this country, either as residences for when they return
or as investments. While the numbers of expatriates who do so already are
unclear, it can reasonably be assumed that there is potential for more
investment.
9.39
Australia's inward investment agency, Invest Australia,
a collaborative venture with the states, territories and industry, has
developed an investment marketing plan, Partnerships
for Investment, to increase awareness of Australia as a competitive
investment destination. Mr Garry
Draffin, its Chief Executive Officer,
described to the Committee his plans for an 'Australians Abroad network'. It
aims:
...to tap into both the significant
pride in and the significant loyalty to Australia that they have, to use them
as ambassadors ... linking them into a network overseas to support what we are
doing in trying to grow knowledge of Australia and build a network of people
working to support Australia's inward investment efforts.[484]
9.40
While it might be expected that expatriate Australians
would be aware of Australia's
potential as an investment location, Mr Draffin
indicated that this was not always the case. He also saw considerable merit in,
and was already working with, existing agencies such as Austrade and networks
such as Advance to promote the investment cause along with their existing
financial interests. The Invest Australia website currently provides links to
other Federal Government agencies, to partners in the states and territories,
and to private sector providers, but not to any expatriate network at present. Mr
Draffin cautioned:
I do think it is important that,
whatever [website] model does come up, it allows people to be able to register
and identify with a group of people with whom they have a common interest and a
common value. Registering with an Australian dotcom web site that tried to be everything
to all people I think would probably be a turn-off for what has to be a
voluntary activity by these people overseas. So it has got to have those areas
of specialisation.[485]
9.41
The Committee believes the Invest Australia approach in
promoting Australia
as an investment destination shows considerable merit. Its accountability and
reporting mechanisms are commendable and its work is to be encouraged.
9.42
As well as attracting investment dollars, potential
exists for a greater contribution from expatriates to non-profit organisations
and philanthropic causes in Australia,
such as to universities and arts organisations. The Lowy report comments that
Australian institutions need to connect with potential givers overseas and
maintain sustainable relationships with them. In particular, a recommendation
is made in the Lowy report that in their pursuit of fund-raising opportunities
offered by expatriates, non-profit organisations should combine their efforts
to achieve benefits of scale.[486] The
Committee supports this recommendation.
Expatriate networks
9.43
There has been, in recent times, a growth in the number
of websites which encourage individuals or organisations to register their
details and, in exchange, find the details of potential business partners,
researchers, employers or investors abroad. There is significant potential in
these networks as a mechanism for engaging with the global community of
Australians and in promoting Australia's
interests overseas.
9.44
The Committee was made aware of the operations of a
number of expatriate networks, including ExpatriateConnect, the Advance
databases, and the Victorian Expatriates Network (VEN), as discussed below.
9.45
A new online service, ExpatriateConnect,[487] was launched on 9 June 2004. In the words of Dr
Rowan Gilmore,
Chief Executive Officer of the Australian Institute for Commercialisation,
which manages the website:
[ExpatriateConnect] is a matching service that attempts to
match small, needy Australian businesses with the skills and expertise of
expatriates overseas, with the aim of providing mentoring and facilitating
entry of small businesses into overseas markets in which those resident
expatriates may have skills and expertise that could be of help.[488]
9.46
Ms Anne
MacGregor of the SCG, which collaborated in
the setting up of ExpatriateConnect, described how the SCG used it as a
networking tool:
[ExpatriateConnect] links in expats so they can help
Australian businesses and so forth while they are away, but if expats were
involved in ExpatriateConnect and were building their own networks back in
Australia in their own professional communities at the same time, their landing
home should be softened because some of those links have been established while
they were offshore.[489]
9.47
The US-based Advance organisation has formed
industry-specific networks for entrepreneurs and investors, and for academic
researchers. Noting that Australians retain a strong affection for their home
states, Advance has launched 'state of origin' networks, commencing with the
Advance Queensland network in June 2003. The intention is for state-based
agencies and companies to have direct access to their expatriates, and to find
a ready-made network of contacts, expertise and openings to further projects in
the US.[490]
9.48
As mentioned in Chapter 4, the Victorian Government has
launched a multi-purpose network, the Victorian Expat Network (VEN). VEN's
overall aim is to connect Victoria
with its offshore expatriates and to build goodwill and meaningful connections
with them.[491]
9.49
More networks are proposed. Mr Garry Draffin, from Invest Australia, told the Committee of his
organisation's proposal to develop an 'Australians Abroad Network' (AAN) which
could operate off the existing Invest Australia website, with a password-protected
sector to liaise with and link into networks overseas, and which would work
closely with DFAT, Austrade and the state and territory governments. While the
exact nature of the AAN has not been determined, Mr
Draffin envisaged an opt-in network,
promoted to expatriates and senior executives in Australia,
so that they could be informed of the size and currency of Australia's
economic abilities, and could network amongst themselves. He stressed that the
intention was to complement what already existed.[492]
9.50
Inevitably, the question has been raised as to whether
there is a role for the Federal Government in coordinating or linking these
networks, or developing a 'network of networks'. The Victorian Government
representatives were of the view that the Federal Government should be
involved:
The Victorian government ... proposes that the Commonwealth
government develop linkages with the Australian expatriate community by:
coordinating web sites dedicated to expatriates, including the web sites of
projects such as VEN and VESKI and the initiatives of other state governments,
as well as sites containing relevant Commonwealth government information for
expatriates; informing expatriates of important Australian initiatives and
events such as the Commonwealth Games, major tourism campaigns and migration
initiatives; inviting contributions from expatriates to assist in promoting
Australia's economic, social and cultural interests, including participation in
activities such as ministerial visits, business consultations and cultural
events; providing opportunities for interested expatriates to communicate with
each other to develop common professional interests; and facilitating research
into expatriate communities and their needs and of the benefits to Australia of
returned expatriates.[493]
9.51
By their very presence overseas, most expatriates are
effective ambassadors for Australia
in their local communities. The formal and informal networks in which they are
involved can only be positive for Australia,
particularly in promoting Australia
as a tourist, educational, business or investment destination.
9.52
The Committee strongly supports the view that
expatriates can be an effective method of connecting domestic business with
international sources of trade, investment and knowledge.[494] It is crucial that in an expanding
global economy, it is recognised that expatriates can be a conduit for connections,
investment and collaboration. Networks that facilitate this connectivity are to
be encouraged, and the Committee acknowledges the achievements of the growing
number of Australian expatriate networks. The Federal Government should
facilitate access to these networks by including links to them from a central
Federal Government expatriates web portal.