To celebrate the 50th anniversary of independence in Papua New Guinea, for the month of September Australian Policy and History is publishing policy briefs written by students studying at Honours, Masters or Doctoral levels who attended a June 2025 intensive workshop on Papua New Guinea and Australia, sponsored by DFAT and run by Deakin’s Centre for Contemporary Histories, at the National Portrait Gallery in Canberra.
Attention: The Hon Tony Burke MP, Minister for Department of Home Affairs
Purpose:
Australia and Papua New Guinea (PNG) share a deep partnership shaped by geography, strategic cooperation, and a colonial legacy. Yet PNG citizens face more limited labour mobility options than other Pacific nations, a disparity rooted in Australia’s historical administration of PNG. With PNG’s 50th independence anniversary approaching in September 2025, Australia has a timely opportunity to honour this shared history by expanding mobility access. This policy brief recommends a co-designed mobility pathway with PNG’s government to strengthen bilateral ties and support inclusive development.
Background
PNG is Australia’s closest neighbour and a key partner in regional security, climate resilience, and development. It was also Australia’s administered territory until 1975. This colonial legacy creates a moral and diplomatic imperative. However, PNG’s participation in existing schemes such as the Work and Holiday visa and the Pacific Australia Labour Mobility (PALM) scheme remains limited due to structural mismatches with its education system, rural workforce profile, and national development goals.
Currently, the main visa options for PNG nationals include:
- Work and Holiday Visa (subclass 462): Available to eligible PNG citizens aged 18–30. No fixed allocation. Application fee: $670. Allows up to 6 months of work per employer.
- Pacific Australia Labour Mobility (PALM) Scheme (subclass 403): Offers temporary work opportunities with a focus on skills development and remittances. No fixed country allocation. Application fee: $355. Allows work placements ranging from 12 months to 4 years.
Challenges with these pathways include:
- Limited alignment with PNG’s education and labour market conditions
- Restrictions on dependents and participating industries
- Inflexibility in changing employers
- Risk of exploitation and poor working conditions.
The Work and Holiday visa is costly and administratively burdensome for most PNG applicants. Meanwhile, the PALM scheme lacks tailored provisions for PNG’s national priorities. Notably, an April 2025 SBS News report revealed over 7,000 workers exited the scheme in five years due to exploitation and inadequate preparation, highlighting the need for reform.
PNG has also declined to join the mobility chapter agreements for Pacific Agreement on Closer Economic Relations Plus (PACER Plus), citing concerns over the absence of bespoke bilateral arrangements (August 2016 ABC News). This signals broader dissatisfaction with bilateral frameworks and presents an opportunity for Australia to pursue a co-designed mobility agreement that reflects PNG’s unique status and relationship with Australia.
Policy Alternatives
Option 1: Bilateral Free Movement Agreement
This proposes the development of a bilateral mobility agreement between Australia and PNG, modelled on the Trans-Tasman Travel Arrangement. It would allow eligible PNG citizens to live and work in Australia with minimal visa restrictions, subject to health, character, and employment criteria.
Eligibility criteria could include:
- Pool or ballot-based migration quotas
- English language proficiency benchmarks
- Health and security clearances
- Education or vocational training thresholds
Option 2: Modifications to the Pacific Australia Labour Mobility (PALM) Scheme (subclass 403)
Establish a more specialised tailored visa stream via a bilateral Memorandum of Understanding (MoU), to better suit PNG and Australian industry needs.
Key features:
- Streamlined application process
- Ability to move between employers and wider industry access
- Inclusion of dependents and community support for adjusting to Australia
- Alignment with Free Trade Agreement principles and Natural Movement of Persons (NMP) provisions.
Option 3: Post-Scholarship Work Visa Pathway
Allow PNG recipients of Australia Awards and similar scholarships to work in Australia after a set working time period in PNG followed by eligibility for a 12-month – 4 years Australian work visa.
Benefits include:
- Mitigation of brain drain
- Support for PNG workforce development further after education
- Inclusion of dependents
- Strengthened alumni networks between PNG and Australia.
Policy Recommendation
Option 1: Bilateral Free Movement Agreement
A Bilateral Free Movement Agreement, co-designed with PNG’s government, would allow eligible PNG citizens to live and work in Australia with minimal visa restrictions, reflecting mutual respect, shared development goals, and a commitment to redressing historical imbalances. As PNG celebrates 50 years of independence, Australia has a chance to move beyond its traditional aid-based approach and foster a more equal partnership.
Strategic Benefits:
- Reinforces Australia–PNG bilateral trust and cooperation
- Supports PNG’s inclusive development and workforce goals
- Addresses long-standing grievances around mobility access
- Enhances Australia’s regional leadership and soft power
- Offers a scalable, future-proof alternative to existing labour mobility schemes.
This agreement would not only address PNG’s specific mobility challenges but also set a precedent for more equitable and responsive migration partnerships across the Pacific.
Contact: Erin Rossell
Student – International Relations, Deakin University
Email: s225426621@deakin.edu.au
Sources Consulted: