BRIEFING
Interim accommodation options post MIQ and support services for
arrivals from Afghanistan
Date:
1 September 2021
Priority:
Urgent
Security
Restricted
Tracking
2122-0781
classification:
number:
Action sought
Ministers with Power to Act on
Action sought
Deadline
the Afghan response
ACT 1982
Rt Hon Jacinda Ardern
a.
Approve the Nesuto Stadium Hotel and
2 September
Prime Minister
Apartments as the temporary
2021
accommodation option for the evacuees.
Hon Grant Robertson
Minister of Finance
b.
Approve an increase in operating funding
for Vote Labour Market of $3 million from
INFORMATION
Hon Nanaia Mahuta
the between-Budget contingency to give
Minister of Foreign Affairs
effect to the recommended option above.”
c.
Direct the
Evacuation Afghanistan –
Hon Kris Faafoi
Accommodation and Resettlement Senior
Minister of Immigration
Officials’ Group to report back on actual
costs at the end of the phase for a
Hon Peeni Henare
reconciliation.
Minister of Defence
d.
Direct officials to update Ministers and
provide funding and support service
options if costs look likely to exceed the
appropriated amount.
e.
Refer this briefin
RELEASED UNDER THE OFFICIAL g to the key Ministers
responsible for providing required support
services including: Hon Megan Woods
(Minister for Housing and Urban
Development, and for Kainga Ora), Hon
Chris Hipkins (Minister of Education), Hon
Carmel Sepuloni (Minister for Social
Development and Employment), Hon
Andrew Little (Minister of Health), Hon Poto
Williams (Minister of Police), Hon Jan
Tinetti (Associate Minister of Education,
Migrant and Refugees), Hon Priyanca
Radhakrishnan (Minister for Diversity,
Inclusion and Ethnic Communities), and
Hon Kelvin Davis (Minister for Children).
Contact for telephone discussion (if required)
Name
Position
Telephone
1st contact
General Manager, Refugee
Fiona Whiteridge
s9(2)(a)
✓
and Migrant Services
Andrew Craig
Immigration Policy Manager
Principal Advisor to the
Loretta Elive-
General Manager, Refugee
s9(2)(a)
Daunakamakama
and Migrant Services
The following departments/agencies have been consulted
The Treasury; Ministries of Health; Housing and Urban Development; Social Development;
Education; Ethnic Communities; New Zealand Police; New Zealand Defence Force; Oranga
Tamariki; Kainga Ora; National Emergency Management Agency; and the Department of the
Prime Minister and Cabinet.
Minister’s office to complete:
Approved
Declined
ACT 1982
Noted
Needs change
Seen
Overtaken by Events
See Minister’s Notes
Withdrawn
Comments
INFORMATION
RELEASED UNDER THE OFFICIAL
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BRIEFING
Interim accommodation options post MIQ and support services for
arrivals from Afghanistan
Date:
1 September 2021
Priority:
Urgent
Security
Restricted
Tracking
2122-0781
classification:
number:
Purpose
This briefing seeks approval of the recommended interim accommodation option for the evacuees
following their 14-day stay at a Managed Isolation Quarantine (MIQ) facility and before permanent
1982
housing solutions are found and secured. It also seeks funding approval to secure the
recommended interim accommodation and to provide tailored support services needed. Annex
ACT
One provides a summary of options considered by the Afghanistan Evacuation -
Accommodation
and Settlement Senior Officials Group.
Recommendations
1.
The All of Government Officials Group comprising of representati
INFORMATION ves from the Ministries of
Business, Innovation and Employment (chair); Health; Social Development; Education;
Ethnic Communities; Housing and Urban Development; New Zealand Police; New Zealand
Defence Force; Oranga Tamariki; Kainga Ora; National Emergency Management Agency;
OFFICIAL
and the Department of the Prime Minister and Cabinet recommends that you:
a.
Note that Cabinet authorised a grou
THE p of Ministers comprising the Prime Minister, Minister
of Finance, Minister of Foreign Affairs, Minister of Immigration and Minister of Defence to
have Power to Act to take further decisions on New Zealand’s response to the situation in
Afghanistan [CMG-21-MIN-0001
UNDER refers], and this includes approval for funding for
associated activities.
Noted
b.
Note that a cross-agency Senior Officials’ Working Group -
Afghanistan Evacuation -
RELEASED
Accommodation and Settlement Officials Group – has considered interim accommodation
options and support services for evacuees following their 14-day stay at a Managed
Isolation Quarantine (MIQ) facility, and before finding more permanent accommodation
solutions across New Zealand as required.
Noted
c.
Note that the first cohort of evacuees are due to complete their 14-days quarantine at
MIQ within the next week. They will start exiting MIQ from Monday 6 September 2021
and many will require temporary accommodation.
Noted
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d.
Note that evacuees are arriving as New Zealand citizens and on a range of permanent
and temporary visa types. As at 1 September 2021, 390 evacuees have arrived in New
Zealand. Some will require interim accommodation after exiting MIQ, while others already
have permanent housing or temporary housing to move into post their stay at MIQ.
Noted
e.
Note that four interim accommodation options were considered by the officials group
against a set criteria including efficiency and effectiveness.
Noted
f.
Note one interim accommodation option was deemed suitable and viable, the Nesuto
Stadium Hotel and Apartments, in central Auckland because it could cater for the mix of
family types and needs and is in close proximity to required support services and
community connections.
Noted
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g.
Note that indicative costings suggest funding of $3m is required to secure the preferred
temporary accommodation and other associated expenses such as transportation,
ACT
health, counselling, psychosocial, and education for an initial period of six weeks. This
figure maybe higher depending on the need, duration of stay plus any necessary support
services.
Noted
INFORMATION
h.
Agree to a temporary accommodation and support package consisting of housing, food
and transportation while access to longer-term housing is organised.
Agreed / Not Agreed
OFFICIAL
i.
Note that due to COVID-19 restrictions and security and practical concerns, the
recommended option in recommendation [h] above is to contract the Nesuto Hotel and
THE
Apartments for occupancy of the whole hotel to accommodate for the evacuees and to
provide tailored support services onsite.
UNDER
Noted
j.
Approve the preferred option of Nesuto Stadium Hotel and Apartments as a temporary
accommodation for evacuees’ post completion of MIQ. This will ensure adherence to
bubble arrangements under COVID-19 Alert Level 4 requirements.
RELEASED
Approved / Not Approved
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k.
approve the following change to appropriation from Vote Labour Market to give effect to
recommended accommodation in recommendations [h] and [j] above, with a
corresponding impact on the operating balance and net core Crown debt:
$m – increase/(decrease)
2021/22
2022/23
2023/24
2024/25 2025/26 & out
years
Vote Labour
3.000
-
-
-
-
Market
Minister of
Immigration
Multi-Category
Expenses and
Capital
Expenditure:
Immigration
1982
Services MCA
ACT
Departmental
Output Expense:
Settlement and
Integration of
Refugees and
INFORMATION
Other Migrants
(funded by revenue
Crown)
OFFICIAL
THE
Approved / Not approved
l.
Agree that the proposed change to appropriations above be included in the 2021/2022
Supplementary Estimates and t
UNDER hat, in the interim, the increases be met from Imprest
Supply.
Agreed / Not agreed
m.
Agree that the expense
RELEASED s incurred under recommendation [k] above be charged against
the between-Budget contingency established as part of Budget 2021.
Agreed / Not agreed
n.
Direct the Evacuation Afghanistan –
Accommodation and Resettlement Senior Officials’
Group to report back on actual costs at the end of the phase for a reconciliation.
Directed / Not directed
o.
Direct officials to update Ministers and provide advice on funding and support service
options if costs look likely to exceed the appropriated amount.
Directed / Not directed
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p.
Refer this briefing to the key Ministers responsible for providing required support services
including: Hon Megan Woods (Minister for Housing and Urban Development, and for
Kainga Ora), Hon Chris Hipkins (Minister of Education), Hon Carmel Sepuloni (Minister
for Social Development and Employment), Hon Andrew Little (Minister of Health), Hon
Poto Williams (Minister of Police), Hon Jan Tinetti (Associate Minister of Education,
Migrant and Refugees), Hon Priyanca Radhakrishnan (Minister for Diversity, Inclusion
and Ethnic Communities), and Hon Kelvin Davis (Minister for Children).
Referred / Not referred
Fiona Whiteridge
Rt Hon Jacinda Ardern
General Manager
Prime Minister
Refugee and Migrant Services
1982
Immigration New Zealand, MBIE
ACT
1 September 2021
..... / ...... / ......
INFORMATION
Hon Grant Robertson
Hon Kris Faafoi
Minister of Finance
Minister of Immigration
..... / ...... / ......
..... / ...... / ......
OFFICIAL
THE
UNDER
Hon Peeni Henare
Hon Nanaia Mahuta
Minister of Defence
Minister of Foreign Affairs
..... / ...... / ......
..... / ...... / ...... RELEASED
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Background
1.
The Government announced on 16 August 2021, that it would evacuate New Zealand
citizens and permanent residents and their immediate families, as well as Afghan nationals
who worked with New Zealand during the two-decade long conflict in Afghanistan, and who
may now be at risk. An all-of-government response was stood up to ensure a co-ordinated
multi-agency approach to this evolving global humanitarian situation.
2.
Given the rapidly deteriorating situation in Afghanistan following the attacks on Friday 27
August 2021 New Zealand time, the government confirmed that the window for evacuations
has now closed. This follows the Governments earlier decision that New Zealand was no
longer accepting requests from Afghan nationals for resettlement in New Zealand under the
special criteria agreed by Cabinet.
3.
As of 1 September 2021, 390 individuals and family groups have arrived in New Zealand.
4.
Work has been underway at pace to identify suitable interim accommodation options and
support services for the resettlement of evacuees post their 14-day stay at MIQ and before
moving into more permanent housing solutions, for those that require it.
5.
Evacuees fall into one of the following categories:
1982
a.
Those who have a permanent housing solution with families or community connections.
ACT
b.
Those who have temporary accommodation with families or community connections
that they can move into after exiting MIQ, and while they find more permanent housing.
c.
Those who do not have any housing to move into after exiting MIQ.
6.
At this point in time, it is unclear how many are in each category. We expect to have a
clearer picture of the housing needs following an initial assessment from an Immigration New
INFORMATION
Zealand (INZ) Resettlement Case Officer. The initial contact from an INZ Resettlement Case
Officers is carried out in the first few days of arrival and includes information about housing
options, family connections in New Zealand and any urgent care needs.
OFFICIAL
7.
Following this initial assessment, families who are New Zealand citizens and permanent
residents are referred on to the Ministry of Social Development’s (MSD) Community
THE
Connectors service based in the Managed Isolation Facility. The Community Connectors
service was established in MIQ to support returning New Zealanders. The Community
Connectors provides support throughout the duration of stay in MIQ and will ensure
UNDER
appropriate referrals to relevant community support services. This will likely include referrals
to the Community Connector in the chosen settlement location who can provide wrap around
support. It is anticipated support needs will vary from very little to more intensive wrap
around support.
RELEASED
8.
MSDs Community Connector service is a community response and is being used to support
people in our communities in a variety of situations and visa types, such as temporary visa
holders or those who are not currently New Zealand residents or citizens. On this basis,
while Community Connector support prioritises New Zealand residents and citizens, those
holding alternative visas are not excluded from this support.
9.
Further assessments will be needed to determine the nature and complexity of support that
the evacuees will require, and the funding and workforce requirements needed to give effect
to this support. For example, where community-based support is required, assessment of
workforce capacity, additional resourcing and funding for Community Connector support will
be imperative.
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Characteristics and settlement information based on the initial cohort of 83 evacuees that have
been assessed
10. Due to the timing of arrivals, only 83 evacuees within MIQ have so far been fully assessed.
The requirements of this cohort have been extrapolated out to give a sense of indicative
costings. This comes with many caveats due to the limited information available on actual
numbers and mixture of people arriving, the type of help and support services needed, and
most importantly length of stay (which will partly be determined by the time Auckland is in
Alert Levels 3 and 4).
11. The initial group of 83 is made up of families ranging in sizes and ages from one member to
eight members, and ages from one years old to over 60 years old. Tables One and Two
below provides demographic information about the ages and family compositions of the 83.
Table One: Age composition
Table Two: Family composition
Ages
Number
Family sizes
Number
00-04
11
1 member
5
05-12
11
2 members
6
13-17
9
3 members
7
1982
18-30
30
4 members
4
31-40
9
5 members
0
ACT
41-50
11
6 members
1
51-60
7 members
1
60+
2
8 members
2
TOTAL
83
TOTAL
26
12. Based on information gathered from the 83 cohort, Table Three sh
INFORMATION ows the level of housing
need after exiting MIQ.
Table Three: Indicative level of housing need
Numbers of evacuees that:
OFFICIAL
TOTAL
Residency status
Need housing
Have permanent
Have temporary
THE
housing
housing
New Zealand citizens
18
8
7
33
New Zealand
8
3
1
12
UNDER
permanent residents
Critical purpose visa
28
4
6
38
holders
TOTAL
54
15
14
83
RELEASED
13. From this initial assessment of the 83 evacuees that are in MIQ, there is a clear preference
for accommodation in Auckland, with only a handful expressing preference to resettle in
other regions around New Zealand. This gives a clear indication that the majority of the
evacuees will want to resettle in the main centres close to their communities and other
essential cultural and support services.
14. Table Four illustrates the preferred location for permanent resettlement for the initial cohort of
83.
Table Four: Evacuees preferred location for resettlement
Preferred
Numbers of evacuees that:
resettlement
Need housing
Have permanent
Have temporary
TOTAL
region
housing
housing
Auckland
32
4
10
46
Hamilton
2
7
9
Wellington
3
1
4
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7
Palmerston North
3
3
6
Christchurch
1
1
2
Invercargill
4
4
Auckland or
3
3
Dunedin
Auckland or
1
1
Wellington
Open
8
8
TOTAL
54
15
14
83
15. COVID-19 has limited the temporary accommodation options considered for those in
Auckland. There are risks that an interim accommodation may not be ready for the first
cohort of evacuees to move into after exiting MIQ if decisions are not made quickly.
16. Finding longer term housing for people and the time that might take given housing
constraints and limitations due to COVID-19 restrictions and changing alert levels.
Part One - Accommodation options and indicative costing
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s
17. The cross-agency Afghanistan Evacuation –
Accommodation and Resettlement Officials
ACT
Group made of representatives from relevant agencies across government, has considered
several options to provide interim accommodation for evacuees after exiting MIQ and before
finding more permanent housing solutions.
18. Table Five provides a summary of options officials have assessed against a set criteria to
arrive at the recommended option of a hotel accommodation working closely with MIQ.
INFORMATION
These options were overlaid with COVID-19 alert level changes, as well as security
requirements.
Table Five: Summary assessment of options considered
OFFICIAL
Accommodation options considered
Option 1
Option 2 Temporary
Option 3
Option 4
THE
Criteria
Existing
accommodation
Whangaparāoa
Culturally
hotel/motel
through MSD and
appropriate
working with
Kainga Ora
accommodation
UNDER
MIQ
Effectiveness
Yes
-
No
No
Timing feasibility
Yes
No
No
No
Political feasibility
Yes
-
Yes
No
RELEASED
Social responsibility
Yes
No
No
No
Efficiency
Yes
No
No
No
Equity
Yes
-
No
No
Cultural
Yes
-
No
No
appropriateness
Suitable and
MSD can contribute
Not suitable.
Not suitable.
viable option. to community
Recommended
Requires
support.
option
significant
There is no capacity
funding.
in the current
housing system.
19. Of all of the options assessed, a dedicated hotel, was the only viable and suitable option.
Annex One provides a summary assessment of all options considered.
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20. In terms of location, Auckland is the most appropriate given the concentration and high level
of access to specialist support services that will be required to provide support to the
evacuees. Also, there are strong Afghan communities in Auckland that could play a key role
in assisting with successful resettlement in New Zealand over the medium-to-longer term. It
is noted that COVID-19 movement restrictions does pose several challenges, but this can be
managed by all agencies working together to support the evacuees.
21. Advice from the Ministry of Health reaffirmed Auckland as the preferred location. Although it
was noted that other regions may not have the same level of pressure on the health sector
as Auckland, there are limited number of specialist services in other regions. If evacuees
were to be relocated outside of Auckland, specialist health and other support services
professionals would need to travel to those regions which would create unintended
consequences including the possibility of Covid-19 transmission.
22. Finding a possible accommodation solution was further complicated by the need to secure
accommodation within a short time so that agencies can get it ready for use when the first
cohort of evacuees start to exit MIQ from Monday 6 September 2021.
23. Further, evacuees are all arriving via Auckland and with Auckland being in Alert Level 4 for
longer, personal movement is highly restricted. Some evacuees will be permitted to travel
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home, or to their place of residence, after being in managed isolation without an exemption
from the Ministry of Health. The Public Health Response Order for Alert Levels sets out
ACT
permitted reasons for travel and includes allowing someone to leave managed isolation or
quarantine to go to their home or intended residence.
24. Several other options were considered including the New Zealand Defence Force
Whangaparāoa site, iwi and other community facilities and they were assessed against the
criteria. None were deemed suitable.
INFORMATION
25. The successful implementation of this option requires an all-of-government effort to ensure
the safety and wellbeing of evacuees and the co-ordination of services across agencies.
26. Te Āhuru Mōwai o Aotearoa, (Māngere Refugee Resettlement Centre), was not included in
OFFICIAL
the list of options as it is currently not available. It is currently close to its maximum capacity
accommodating 226 residents from the Refugee Quota Programme. While Auckland remains
THE
at Alert Levels 3 and 4 its residents cannot move to accommodation in the community.
Recommended accommodation option
UNDER
27. In looking for a suitable accommodation option, officials’ worked closely with MIQ and
leveraged off their recent review of New Zealand’s hotel network.
28. The recommended option is the Nesuto Stadium Hotel and Apartments situated in the central
Auckland in close proximity to grocery stores and areas for recreation. This hotel was
RELEASED
selected in consultation with MIQ who rejected it because it did not have adequate exercise
facilities for people in isolation or quarantine. The hotel will be sufficient to meet the capacity
of up to 80 families given the uncertain demand and transition rates, and will also provide
space to utilise for support services.
29. Funding is required to cover the use of the hotel and associated expenses including
transportation, food and other required support services such as health (psychosocial /
mental health support), education at the hotel. Annex Two provides for a list of support
services including initial advice from some agencies like Ethnic Communities and Education
for funding to provide additional support for the evacuees.
30. It is therefore recommended that Ministers approve funding of $3 million to secure
accommodation and support services for up to 400 expected evacuees for an initial period of
up to six weeks. This figure maybe higher depending on the need and duration of stay for the
evacuees which will be partially determined by how long Auckland remains at COVID-19
Alert Levels 3 and 4.
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31. In the event a longer duration is needed, officials will assess other options and report back to
Ministers on funding options.
Hotel specifications
32. The hotel has 244 rooms and apartments in total, and 10 studio apartments that are suitable
for wheelchair use or those with mobility issues and includes modified bathrooms. It has a
flexible layout that can be adapted to suit different needs and includes options to join rooms
to bring in additional single beds and additional furnishings to meet differing family
compositions. It also has the option to provide a fully catered service to the evacuees, as well
as options to self-cater or provide a ‘pantry service’.
33. In addition, the hotel has multi-purpose spaces that could be utilised by government staff to
have a ‘hub’ to offer support for people such as the Ministry of Health, Ministry of Education,
Ministry of Social Development and Immigration New Zealand. The site has secure
entrances with swipe access to all rooms and has the ability to lock access to certain zones
as necessary.
34. The hotel has areas that could meet specific cultural and religious needs and these could be
adapted to meet these requirements. The hotel can be booked in its entirety or for the rooms
and spaces specifically required to accommodate this cohort, as well as to enable the
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provision of support services onsite.
ACT
35. For security purposes, given that this is a vulnerable group who have experienced some
level of trauma, it is more cost-effective and equitable to acquire the entire facility. Under
COVID-19 and advice from the Ministry of Health, this option enables families to be in bubble
arrangements and provide onsite support services.
36. It is noted that with COVID-19 in the community and Auckland being in Alert Level 4, there is
a risk of maintaining effective bubbles within the up to 400 people on
INFORMATION
one site.
37. Advice from MIQ officials who have been working to secure accommodation for managed
isolation purposes, is that it would be almost impossible, if at all, to find something similar to
the Nesuto in regions that are within a coach drive from Auckland. Particularly given the
OFFICIAL
quantum of family rooms that are likely to be required plus the provision of full daily catering,
ancillary staff, spaces to offer support services and suitable spaces for cultural undertakings
THE
such as prayer rooms.
Medium to longer term accommodation
UNDER
38. Officials are also looking into medium to longer term permanent accommodation for the
evacuees. There are challenges with finding longer term housing for people and the time that
might take given housing constraints and limitations due to COVID-19 restrictions and
changing alert levels. Officials will continue to work collectively to find innovative solutions to
RELEASED
ensure permanent housing solutions are found for successful resettlement into New Zealand.
39. Further work will be undertaken by relevant agencies on the types of support and additional
wrap around services that may be required to support the new arrivals over the medium to
longer term. This would include leveraging existing initiatives or identifying assistance
needed by local communities to support evacuees.
Part Two - Support services available across government
40. Through the all-of-government officials group, it has been identified that there are varying
levels of support that are already available that could be leveraged to support the evacuees,
as summarised in Table Six.
41. However, most agencies have confirmed that current levels of resources are already
allocated and additional funding will be required to provide tailored support services for this
group.
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42. Once evacuees leave temporary accommodation they may need and be eligible for
additional assistance based on need. Evacuees who supported New Zealand agencies are
being granted residency and will have the same access to support and benefits as New
Zealanders once their application for residency has been approved.
43. Agencies will identify any further gaps that could be addressed for any of these groups
including eligibility criteria and provide advice on additional medium term support as needed.
Annex Two provides more detail of some of the available support services provided by
relevant support services agencies.
Table Six: Government support services available
Government agencies
Services provided
Ministry of Social
Income support
Development
Employment supports include Flexi-Wage subsidies, Mana in Mahi,
and work brokerage services (depending on individual eligibility).
Community support
Ministry of Health
Health services including psychosocial and other health support as
required
New Zealand Police
Navigation, legal and crime prevention services to new migrants and
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refugees
Ethnical Liaison Officer network in Auckland
ACT
Ministry of Education
Education / recreation packs
Education programmes on TV
Devices for learning to make communication and access to
education material e.g. laptops, IPad
Senior Advisors Refugee and Migrant in the regions
Ministry of Ethnic
Engagement and connections with Afghan communities
INFORMATION
Communities
Language assistance services e.g. translation and interpretation
Oranga Tamariki
Provides care or protection, youth justice and adoption services
OFFICIAL
Financial implications
THE
Securing preferred accommodation
44. Cabinet authorised a group of Ministers comprising the Prime Minister, Minister of Finance,
Minister of Foreign Affairs, Minister
UNDER of Immigration and Minister of Defence to have Power to
Act to take further decisions on New Zealand’s response to the situation in Afghanistan
[CMG-21-MIN-0001 refers], and this includes approval for funding for associated activities.
45. The $3 million required would be funded by the between-Budget contingency through a
change to appropriation in Vote
RELEASED
Labour Market for the 2021/22 financial year. This funding
specifically authorises MBIE/ INZ to spend it for the provision of services that enable the
settlement and integration of migrants and refugees into New Zealand society.
46. The funds will secure the Nesuto Hotel and Apartments to provide temporary
accommodation including catering, as well as other required support services such as health
(psychosocial / mental health support), education and engagements with the local
communities, for example. Refer to Annex Two for a list of support services including initial
advice from some agencies like Ethnic Communities and Education for funding in order to
provide additional support for the evacuees.
47. Given the uncertainty with COVID-19 Alert Level changes and the numbers of new arrivals,
this cost could be much higher and it is not possible to provide greater cost certainty at this
time. The Evacuation Afghanistan –
Accommodation and Resettlement Senior Officials’
Group will report back on actual costs at the end of the phase for a reconciliation and any
additional funding sought if this is required.
48. Further, agencies have not yet undertaken an assessment for the level of support that would
be required for the evacuees beyond accommodation, transportation and food. As noted
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earlier, there will be varying needs from little support to more intensive wrap-around support
services such as an allowance for personal expenses, trauma and mental health support,
education, services for children and people with disabilities for example. A more fulsome
assessment of the types of support services and approximate costs would be undertaken by
officials in the coming days to inform the analysis and report back to Ministers.
49. Officials have considered other funding sources from within agencies’ current baselines.
Some agencies, for example the Ministry of Health and Oranga Tamariki, have indicated that
they have some ability to support this phase of the settlement for evacuees from within
existing baselines. However, there may be other funding required by agencies which cannot
be met from baselines and if required, officials will report back with further advice on funding
options.
Consultation
50. The Treasury; Ministries of Social Development; Education; Health; Housing and Urban
Development; Ethnic Communities; New Zealand Police; New Zealand Defence Force;
Oranga Tamariki; Kainga Ora; and National Emergency Management Agency have been
consulted on this paper. Officials from the Department of the Prime Minister and Cabinet
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have also contributed.
ACT
Annex
Annex One: Matrix of interim accommodation options considered
Annex Two: Support services available across government
INFORMATION
OFFICIAL
THE
UNDER
RELEASED
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Annex One: Matrix of interim accommodation options considered
51. The tables below provides officials’ assessment of interim accommodation options
considered for evacuees against a set criteria after exiting MIQ and before moving into more
permanent housing solutions.
Table A: Criteria used to assess proposed options
Criteria
Description
• Will the option achieve the desired outcome of accommodating
evacuees safely and securely for a time, until they can be
transitioned into more long term housing solutions?
• Will the accommodation have the appropriate levels of security
for the evacuees’ safety?
Effectiveness
• Will the accommodation be of appropriate size and suitability
for expected evacuees of upwards of 400?
• Will the accommodation be suitable for vulnerable groups?
• Will the accommodation have access to recreational facilities
for general welfare and wellbeing?
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Timing feasibility
• Can the option be stood up in 5 days? Thi
ACT s is a time critical
situation.
• Will the option be accepted by decision makers and the general
public, particularly given the layers of issues in this COVID-19
Political feasibility
environment?
•
INFORMATION
Will the option meet New Zealand’s international obligations?
• Will the option contribute to the overall welfare and wellbeing of
society and the environment?
Social responsibility
OFFICIAL
• Will the evacuees have access to: social services, health
services, mental health services?
THE
Efficiency
• Will the option achieve efficiency gains and reduce duplication
of efforts and wastage of resources?
UNDER
• Will the option be fair and just? Considering the circumstances
surrounding assistance to evacuees from Afghan versus New
Equity
Zealanders who are stranded abroad and want to return home
RELEASED but cannot due to COVID-19 requirements nationally, and travel
restrictions globally.
• Will the option be culturally appropriate?
• Will the local relevant community groups have the opportunity to
Cultural
offer their support and services for the new arrivals?
appropriateness
• Will the option ensure ongoing wrap-around support for the
wellbeing and welfare of the new arrivals?
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Table B: Accommodation options assessment
52.
Table B below provides an assessment of accommodation options undertaken, each by the nominated agencies against the set criteria.
Interim accommodation options and support services for evacuees post MIQ
Criteria
Option 1 – Utilise existing hotel/ motel accommodation
Option 2 - Temporary Accommodation through Option 3 – Whangaparaoa
Option 4 – Culturally
–
MSD and Kainga Ora in the settlement
appropriate community sites
location. Supported by MSD Community
i.e. Islamic Centres in New
Site Assessment of Nesuto Stadium Hotel and
Connectors
Zealand etc
Apartments, Auckland Central
Lead agency: MBIE
Lead agency: MSD
Lead agency: NZDF
Lead agency: Ethnic
Communities
Effectiveness
Potential Hotel in Auckland identified
Support can be provided through the Community
Security:
Current facilities are in the form
1982
•
Connection Service.
halls and prayer rooms, and area
Safety and Security
Site has secure entrances with swipe access to all rooms.
• Physical security is achievable in that the peninsula is
•
not a viable option.
Appropriate size and
Ability to lock access to certain zones and CCTV.
However:
fenced. Being that it is Defence property it is closed to
suitability for upwards of
the public.
Not suitable under this COVID
ACT
Has ability to add additional fencing if required, as well as
• No accommodation capacity through
300
• National Security. Use of Whangaparāoa will restrict
environment.
provide facilities to any security personnel posted at the
•
Community Connection Service
Suitability for vulnerable
use of the facility for NZDF. Two key points being;
hotel if required.
people/ groups
• No accommodation capacity through community
o Whangaparāoa remains an in-use NZDF training
• Access to recreational
Hotel has 244 rooms and apartments in total. Hotel has
providers, iwi, Māori.
facility. Its use during Wuhan effectively saw the
facilities / amenities
10 studio apartments that are suitable for wheelchair
We will also look to engage our E Tu Whanau
cessation of much of its use by NZDF; having a
use/mobility issues. Includes modified bathrooms. The
team who work closely with our Afghanistan
flow-on effect into the training and readiness.
hotel has a flexible layout that can be adapted to suit
community in New Zealand.
o It is also currently being used to isolate Navy
different needs. This includes options to join rooms, bring
personnel when they rotate through duty within
in additional single beds and additional furnishings to meet
We will ensure all MSD messages are translated.
MIQFs (and are then awaiting testing before
INFORMATION
family composition.
returning to duty/home locations).
In addition, hotel has multipurpose spaces that could be
Safety: Whangaparāoa has cliffs, high points, sinkholes,
utilised by government staff to have a ‘base’ while
disused tunnels, and such. During the Wuhan event this
supporting people (e.g. MoH/MoE/MSD/INZ)
required briefings for the people on safe areas, and staff
available to provide guided walks in order to avoid
Hotel is located in Auckland Central. There is access to
dangerous areas.
OFFICIAL
grocery stores and exercise areas for walking at the
waterfront and Auckland downtown.
Size: The current infrastructure is suitable for only 100-
120 personnel.
THE
Hotel has the option to provide a fully catered service to the
evacuees, as well as options to self-cater or provide a
Suitability: During the Wuhan event it was assessed
‘pantry service’.
that the current infrastructure was not really suitable for
families or mixed groups. It is not particularly suitable
for people with disabilities.
UNDER
Access to Recreation: Further to the point regarding
safety, above. Other than open areas itself there is no
access to recreational facilities. Park/Playground type
infrastructure had to be brought in for the Wuhan
returnees.
Timing feasibility
The hotel is available in the time frame required and has
Community Connection Service is in place now,
The current infrastructure is ready, however the ability to
RELEASED
most services in place.
however additional funding may be required to
prepare it in five days is questionable with current use
Time critical can be stood up
support additional demand, including investment
for isolation.
in 5 days
in food system.
Any additional infrastructure will be dependent upon
Community Connector will also work with other
what is required, and alert level to have this put in place.
MSD services to ensure all needs are met.
Previously this took at least a week.
We will also look to engage our E Tu Whanau
team who work closely with our Afghanistan
community in New Zealand.
We will ensure all MSD messages are translated.
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Political feasibility
Would be seen as providing a good level of accommodation
Yes
This may be desirable in the sense that it could be
considered an “easy” option; countering that would be
•
but cost could be a factor.
Palatable to decision
the additional risk of displacing the current NZDF use for
makers
Would meet international standards for accommodation
•
isolation (heightening the risk of spread within NZDF)
Meets international
providing apartment style accommodation with facilities
and further impacting NZDF readiness.
obligations
(cooking, separate bedrooms)
Social responsibility
Limited on site but medical and mental health support could
Community Connector will also work with other
Limited, if any, impact on wider society in the short term.
•
be accessed locally and supported by agencies
MSD services and across government to ensure
Welfare and wellbeing of
Very limited access to services. These had to be
all needs are met.
society
“delivered” to the site previously.
• Access to essential
services e.g. health, mental
health, education etc
Efficiency
Cost could be higher than other options but provides ease
If the previous “Wuhan-model” is used this is not
of access to facilities including recreation, medical, mental
efficient. It was a costly exercise to essentially build and
health and psycho social support.
run a large camper-van park with other infrastructure on-
1982
site.
If only the existing infrastructure is used, disregarding
The site is ready to go with minimal requirements for
suitability and other use issues, it may be relatively
ACT
additional infrastructure other than security and direct
efficient; however it will need staff on site to run. This
support.
would include catering staff, unless meals are delivered,
as the accommodation only has a single large
kitchen/dining hall (no cooking facilities in the sleeping
accommodation).
Equity
In terms of equity the facility provides for families of
There are limited equity issues with regard to this site.
different sizes and adjacent rooms can be connected for
However the following should be considered:
larger families.
•
INFORMATION
The “communal” style of the existing facilities may not
Each apartment provides separate self-contained
be suitable or considered appropriate.
accommodation including kitchen and bathrooms
• If more than one site is utilised, going to this facility
may be considered the less desirable option (without
substantial additional infrastructure).
Cultural appropriateness
Apartments are self-contained and provide facilities for the
There are community connectors that are focused
• Uncertain of the cultural appropriateness of the site,
OFFICIAL
however the following should be considered:
•
family. Washing/laundry/self-catering options are available.
on support our CALD community.
Culturally appropriate
o The appropriateness, or not, of the communal living
•
The accommodation would be similar to that provided at
Leveraging community
MRRC. Access to meet specific dietary requirements may
environment.
THE
connections
need to be addressed.
We will also look to engage our E Tu Whanau
o If other NZDF activity is continued at the site,
• Ongoing wraparound
team who work closely with our Afghanistan
whether this could impact the mental state of
support
The hotel has a space that could be used as a prayer room.
community in New Zealand.
people evacuated from a conflict zone.
The hotel is able to offer a space for wraparound services
• As an NZDF site with restricted public access,
UNDER
to base themselves from.
community connections would have to be arranged
We will ensure all MSD messages are translated.
ahead of time.
Hotel has smart TVs and high speed wifi to support
• Any wrap around support would need to move to the
evacuees to connect with community/families.
site.
If alert levels drop – there is a space that could be utilised
for broader community meetings and support.
RECOMMENDATION:
Provides a suitable and viable option to accommodate
RELEASED MSD can contribute to community support.
For the reasons outlined above, use of Whangaparāoa
Not suitable.
families for a short period prior to moving into the
is
not recommended; in particular:
There is no capacity in the current housing system
community.
and therefore MBIE needs to maximise the
• The lack of suitability of the current infrastructure.
Requires significant funding.
current system (i.e. TLA) to resolve any
• The inefficiency and cost of “creating” suitable
accommodation requirements.
infrastructure
• The cessation of current use introduces risk WRT
NZDF personnel not being able to isolate following
MIQ duty before returning regular duties. Additionally
ongoing readiness would likely be affected.
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Annex Two: Support services available across government
Support services available
53. This annex provides a list of available support services across government that will be
provided to the evacuees once they are in the Nesuto Hotel and Apartments. The All of
Government - Afghanistan Evacuation -
Accommodation and Settlement Senior Officials
Group will continue to work collectively to ensure adequate support service provision for the
evacuees.
54. Officials will undertake further assessments to determine the nature of support required, for
example, what income support, if any, would be available; potential funding requirements;
and, how this support would be operationalised and administered. In addition, further
assessment will be needed to determine the nature and complexity of support that this group
will require, and the funding and workforce requirements needed to give effect to this
support. For example, where community-based support is required, assessment of workforce
capacity, additional resourcing and funding for Community Connector support will be
imperative.
Ministry of Social Development
1982
55. The Ministry of Social Development provides:
ACT
a.
Income Support - The Social Security Act 2018 limits the general provision of income
support to Residence Class visa holders (resident or permanent resident visa) or New
Zealand citizens, who also meet the criteria for being ordinarily and continuously
resident in New Zealand. New Zealand citizens or Residence Class visa holders that
do not meet these criteria may be eligible for some income support on the grounds of
INFORMATION
hardship. Temporary visa holders are generally not eligible for income support;
however, some assistance may be available to temporary visa holders who are
applying for a residence class visa and are compelled to remain in New Zealand while
waiting for the outcome, due to unforeseen circumstances.
OFFICIAL
b.
a range of employment and community supports available. Employment supports
include Flexi-Wage subsidies, Man
THE a in Mahi, and work brokerage services (depending
on individual eligibility).
Ministry of Health
UNDER
56. The health needs of the evacuees (including mental health) remain largely unknown. The
evacuees have not received any pre-visa health checks and only basic health assessments
have been carried out in MIQ. Officials are working to find ways to do the type and level of
health screening and services that will be required in the interim accommodation setting.
RELEASED
57. Officials are aware of the pressures on health care providers, particularly in the Auckland
region, and are looking at a range of options to meet the potential health needs of the
evacuees.
New Zealand Police
58. The New Zealand Police provide a range of navigation, legal and crime prevention services
to new migrants and refugees. Crime prevention advice is a key enabler to safety (e.g.
caution when walking downtown at night, keeping safe, when to call 111/105). They also
have a strong Ethnic Liaison Officer network in Auckland that would be the contact points
with this group as and when required. This will support new migrants to understand that
policing is by consent in Aotearoa and the services and approach will be quite different from
those that they may be accustomed to in their original countries. In addition, they have deep
relationships with the Muslim community and their leaders and can facilitate access to those
networks as needed.
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Ministry of Education
59. While families are in temporary accommodation the Ministry of Education can provide
education/recreation packs for specific age groups (budget dependent and essential worker
status dependent).
60. If families have access to televisions they can also access the Education programmes
available.
61. The Ministry of Education can provide devices to make communication and access to
educational material possible (budget and availability dependent).
62. When families move to their resettlement location the Ministry of Education’s Senior Advisors
Refugee and Migrant in the regions can support students to enrol in school. The Ministry can
support schools with advice and guidance about working with the children. It will be important
that we have the information about who the families are, and where they are moving to.
63. If there are any school age children with learning support needs which are known it will be
important that education advisors know about these so that the Ministry can help schools to
prepare to receive the students.
Ministry of Ethnic Communities
1982
64. The Ministry for Ethnic Communities is currently engaging with Afghan community leaders,
ACT
influencers and grassroots members, women and youth included. These engagements are
being done as part of the All-of-Government efforts to support the evacuees to successfully
resettle in New Zealand.
65. The Ministry is also facilitating the translation of All-of-Government key messages into the
main languages: Pashto, Farsi and Dari for sharing more widely with the communities, and
for New Zealanders. The Ministry has indicated that funding to sup
INFORMATION port further need for
interpreters in Pashto, Farsi and Dari may also be required.
66. An initial $500,000 set aside to support ethnic and faith community organisations who are
providing counselling, wellbeing and cultural support would greatly assist.
OFFICIAL
Oranga Tamariki
THE
67. As part of the All-of-Government response, Oranga Tamariki will provide care or protection,
youth justice for children and families in New Zealand. In the event concerns were identified
regarding the safety and care of a child who has been evacuated from Afghanistan, Oranga
UNDER
Tamariki will work closely with relevant agencies to ensure the safety and care of the child.
RELEASED
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BRIEFING
Afghanistan – immigration response options post-evacuation
Date:
17 September 2021
Priority:
Medium
Security
Restricted
Tracking
2122-0859
classification:
number:
Action sought
Action sought
Deadline
Hon Kris Faafoi
Agree to the focus of a medium-term 20 September 2021
Minister of Immigration
response to the Afghanistan
situation.
1982
Indicate which cohorts (if any) you
ACT
would like to consider for a targeted
immigration response.
Forward the briefing to Ministers
with Power to Act for Afghanistan.
INFORMATION
Hon Phil Twyford
Copy for your information
NA
Associate Minister of
Immigration
OFFICIAL
THE
Contact for telephone discussion (if required)
Name
Position
Telephone
1st contact
UNDER
Manager, Immigration
Andrew Craig
Policy (Skills and
04 901 1245
s 9(2)(a)
Residence)
Senior Policy Advisor,
RELEASED
Bronwyn Chapman
Immigration Policy (Skills 04 897 6561
and Residence)
The following departments/agencies have been consulted
Ministry of Foreign Affairs and Trade
Minister’s office to complete:
Approved
Declined
Noted
Needs change
Seen
Overtaken by Events
See Minister’s Notes
Withdrawn
Comments
BRIEFING
Afghanistan – immigration response options post-evacuation
Date:
17 September 2021
Priority:
Medium
Security
Restricted
Tracking
2122-0859
classification:
number:
Purpose
This paper provides advice on the next phase of New Zealand’s humanitarian immigration
response to the situation in Afghanistan. It sets out additional response options to this situation,
and seeks an indication of any options you would like officials to develop for further consideration.
More comprehensive All-of-Government advice on the next phase of the Afghanistan response will
be provided in due course.
Executive summary
1982
MBIE recommends that any ongoing humanitarian response focuses on supporting New
ACT
Zealanders and those already provided with visas (for supporting agencies or by the Associate
Minister of Immigration) to resettle if they are able to leave. This is a potentially large group that
could challenge isolation and settlement capacity, though it remains uncertain how many will arrive
or when.
This short- to medium- term focus can be supplemented with an increased proportion of Afghan
refugees within the Refugee Quota Programme from July 2022 subject
INFORMATION to input on other
humanitarian priorities from the United Nations Refugee Agency.
We do not recommend any further bespoke humanitarian response at this time due to the
uncertainty about impacts, and precedents for responses to other humanitarian crises.
OFFICIAL
Context for any humanitarian immigration response
THE
Cabinet previously agreed to resettle Afghan nationals who supported the New Zealand presence
in Afghanistan where being identified in relation to that work means there is a threat to their safety
in Afghanistan [CAB-21-MIN-0323 and CMG-21-MIN-0001 refer]. You have agreed to grant
UNDER
residence visas for eligible individuals and their immediate (partner and dependent children) family
members [briefing 2122-0654 refers], and offer residence to everyone who has been evacuated to
New Zealand or granted a Critical Purpose Visitor Visa (CPVV) to travel here (with residence
granted when they have made it to New Zealand).
RELEASED
The current political, security, and humanitarian situation on the ground in Afghanistan is complex
and uncertain. There are significant challenges impacting the ability for the remainder of New
Zealanders and other eligible Afghan nationals with New Zealand visas to depart the country, and
it is uncertain how many of these will be able to depart either directly or via third countries. These
people should remain the primary focus for Government support given that New Zealand has
already accepted responsibility for them.
The Ministry of Foreign Affairs and Trade (MFAT) has provided initial advice to Ministers regarding
the level and nature of ongoing support for those New Zealanders and certain eligible Afghan
nationals (including those that supported New Zealand agencies or who were approved by the
Associate Minster of immigration) to travel to New Zealand (see
Afghanistan Response: New
Zealand support for New Zealand Citizens, Permanent Residents and Afghan Visa Holders dated 9
September).
Further advice will be provided to Ministers regarding the ongoing and the end-to-end
requirements for those individuals to travel to, and be settled in New Zealand (ie including
2122-0859
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travel support out of Afghanistan as well as requirements at the New Zealand end, such as
MIQ availability, border issues, and resettlement support). It also remains uncertain what
capacity demands are going to be generated by this group (eg how many ultimately arrive in
New Zealand even with assistance and support made available).
This cohort of eligible Afghan visa holders (including those who are still to depart) will be
offered residence when they arrive in New Zealand, and therefore are not counted under the
existing refugee quota programme.
This paper considers what additional humanitarian options might be possible for those Afghan
nationals who are outside of the current scope of New Zealand Government support.
Options for additional humanitarian immigration responses to the Afghan situation
The New Zealand Government has generally focussed on responding to significant international
humanitarian crises through the policy settings for the three-year Refugee Quota Programme
(RQP) in support of wider international responses (such as those by the United Nations), such as
for the Syrian Crisis. In light of New Zealand’s two-decades long (military and development)
involvement in Afghanistan, the Government may wish to consider an expanded scope for
humanitarian immigration responses, noting the support already provided to those
1982 who have
directly supported New Zealand efforts such as the Afghan Interpreters resettled in New Zealand
and the recent additional evacuation group.
ACT
In considering potential options, the COVID-19 environment creates a number of constraints that
impact on the viability of potential options. MIQ availability is already limited for priority Afghan
entries and additional places necessary to support any options may not be able to be secured. The
current Afghanistan operation is also placing additional demand on Government and NGO
settlement services, short- and long-term accommodation, and on psycho
INFORMATION social support, and this
demand is expected to constrain the size and scope of any further potential options in the short to
medium term.
Two primary areas are available for additional humanitaria
OFFICIAL n responses – using the refugee quota,
or through bespoke assistance for particular groups:
THE
Using the refugee quota
In order to be recognised as a refugee or protected person, a person needs to be outside their
UNDER
country of origin – this means Afghan nationals remaining in Afghanistan are not refugees. If you
wish to provide an additional response for refugees, we recommend that it is delivered through our
existing refugee programmes, which are primarily based on United Nations Refugee Agency
(UNHCR) referrals. UNHCR has robust processes for identifying and prioritising need. It would be
challenging for New Zealand to establ
RELEASED
ish an appropriately robust process for identifying which
individual refugees to resettle outside this process.
There is no capacity to increase the number of Afghan refugees through the Refugee Quota
Programme (RQP) this financial year (July 2021 – June 2022), because the quota process takes 6-
12 months from UNHCR referral to the refugee arriving in New Zealand, and due to the ongoing
impacts of COVID-19 on our ability to select refugees and support safe travel to New Zealand.
An increase in New Zealand’s intake of Afghan refugees could be considered as part of the RQP
for the next three years (July 2022 – June 2025). The quota is due to be set in March 2022,
however, if you wish to signal your commitment to the refugee response by increasing the number
of places available to Afghan refugees, we recommend bringing forward decisions.
Final decisions on the quota will need to take into account advice from the UNHCR on allocating
quota space to Afghan nationals in the context of competing international priorities, and
consideration of the ability of different settlement locations to receive Afghan refugees (as
settlement centres are not necessarily set up to support all nationalities). We will aim to provide
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this advice in time for a decision on the quota to be made in mid to late October. In the meantime,
you could signal publicly that you are considering increasing the number of places available to
Afghan nationals through the quota programme, subject to UNHCR feedback.
The extended Community Organisation Refugee Sponsorship (CORS) pilot may also offer some
limited solutions for small numbers of Afghan refugees, if sponsoring organisations and Afghan
refugees who meet the eligibility criteria can be identified.
Bespoke assistance
Border exceptions and Ministerial Intervention can allow people to travel to New Zealand for
humanitarian reasons. In the current situation, there are several distinct groups that you may wish
to consider for bespoke or targeted humanitarian options outside of existing UNHCR refugee
processes.
Any bespoke arrangements would need to be carefully designed, considering priority of New
Zealand’s responsibility, the degree of people’s connection to New Zealand, other humanitarian
priorities, and precedent risks. Any arrangement could involve establishing specific mechanisms or
quotas for groups, and would include a number of challenges.
1982
While additional bespoke arrangements could be developed, officials do not recommend this
approach, on the basis that:
ACT
there is still an uncertain number of Afghan nationals already granted visas for resettlement
support who may arrive and large numbers will challenge resettlement support capacity (with
further uncertainty on numbers resulting from requests lodged or expected to be lodged)
potential bespoke arrangements are likely to be unfair to other migrant communities not able to
INFORMATION
receive similar treatment
the arrangements may disadvantage higher need groups, such as UNHCR mandated refugees
OFFICIAL
constraints on the ability to exit Afghanistan and travel to New Zealand are likely to limit the
practicality of options and potential benefits, and
THE
it creates a precedent risk for future humanitarian crises.
UNDER
Officials recommend a continuing focus on those New Zealand is already responsible for, and any
who meet the existing humanitarian border exception (requiring a strong connection to New
Zealand). You can consider a small number of individual cases for intervention, but we recommend
that this channel is used only in a small number of cases for exceptional circumstances.
RELEASED
However, if you did wish to consider bespoke arrangements, officials consider small and capped
categories and border exceptions could be established for one or more of the following groups:
current Afghan applicants for the Refugee Family Support Category and/or and Parent
Resident Visa Category who are able to depart the country
extended family of New Zealand citizens and residents in Afghanistan
New Zealand temporary visa holders in Afghanistan.
If you seek to progress any of these options, officials will prepare further advice, including potential
scope, criteria, numbers, the type of potential offer (eg residence), and the potential settlement
support available for each selected option. While other groups are likely to seek bespoke
arrangements (or have requests made on their behalf), officials recommend you do not consider
arrangements for any additional groups.
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Recommended action
The Ministry of Business, Innovation and Employment recommends that you:
a
Note that you and Ministers with Power to Act Ministers for Afghanistan have agreed to
resettle and provide residency for people who:
1. worked for or with the New Zealand Defence Force, Police, or a New Zealand entity in
Afghanistan, together with those who materially supported the Operation Burnham
Inquiry
2. are or were at risk of harm as a result of this association should they remain in
Afghanistan
3. for whom no other country has a greater level of responsibility [briefing 2122-0654
refers], and
4. people granted a critical purpose visa to exist Afghanistan before 12 September, and
those on other visas who were evacuated to New Zealand before 12 September
[Briefing 2122-0782 refers].
Noted
1982
b
Note that the current security, humanitarian, and political situation in Afghanistan is complex
ACT
with departure options currently limited to challenging, uncertain and dangerous land border
crossings, in addition to uncertainty to what extent the Taliban will uphold their commitment
to “safe passage” out of Afghanistan (particularly for Afghan nationals holding visas for third
countries
Noted
INFORMATION
Groups with visas related to the initial response phase
c
Note that advice has been provided to Power to Act Ministers regarding the level and nature
of ongoing support for those New Zealanders, their immediate families, and certain eligible
Afghan national granted New Zealand visas to de
OFFICIAL part Afghanistan, and that further advice
will be provided outlining the end-to-end requirements for those individuals to be resettled
THE
into New Zealand (MFAT paper
Afghanistan Response: New Zealand support for New
Zealand Citizens, Permanent Residents and Afghan Visa Holders dated 9 September)
Noted
UNDER
d
Agree the main priority in the next phase of the response is providing support to New
Zealanders, their immediate families, and people granted visas during the initial phase to
enter New Zealand (
as noted in Recommendation C above)
RELEASED
Agree / Disagree
e
Either
1.
Agree to provide an open commitment
for those issued visas during the initial
response in Afghanistan while a risk of harm remains
Agree / Disagree
Or (MBIE recommended)
2.
Direct officials to reassess in six months the need for any visa extension for those
issued visas during the initial response in Afghanistan who have been unable to
depart
Agree / Disagree
Other potential groups
f
Note in addition to the situation in Afghanistan a number of challenges exist that may
constrain further humanitarian options for those Afghan nationals (not included in the cohort
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referenced in Recommendation C above) seeking support, including MIQ places, Crown and
NGO settlement support, and short and long-term accommodation.
Noted
g
Note New Zealand’s previous immigration response to international humanitarian crises has
largely been to utilise the government-agreed policy settings within the three-year Refugee
Quota Programme
Noted
h
Note there is significant risk of under delivering any practical additional bespoke
humanitarian immigration options due to the challenges for eligible persons to depart
Afghanistan, and officials therefore recommend that any additional initiatives be specifically
and clearly focussed on the medium to long-term
Noted
i
Note that 68 Afghan refugees are planned to be resettled in New Zealand as part of the
October and November intakes of the Refugee Quota Programme, with a further 21
approved for future intakes, and 176 currently working through the decision-making process.
1982
Noted
j
Note that there is no capacity to increase the number of Afghan refugees resettled through
ACT
the Refugee Quota Programme for the remainder of this financial year.
Noted
k
Indicate whether you would like to increase the number of Afghan refugees resettled in New
Zealand as part of the Refugee Quota Programme for the next three years (July 2022 – June
2025) and bring forward decisions on the quota to October, subject to receiving advice from
INFORMATION
UNHCR about allocating quota space to Afghan nationals in the context of competing
international priorities.
Increase the number of Afghan refugees settled in New Zealand: Yes / No
OFFICIAL
Bring forward decisions to October, subject to receiving UNHCR advice: Yes / No
THE
l
Note that the extended Community Organisation Refugee Sponsorship pilot may also offer
some limited solutions for small num
UNDER bers of Afghan refugees, if sponsoring organisations and
Afghan refugees who meet the eligibility criteria can be identified.
Noted
m
Either (MBIE recommended)
RELEASED
1.
Agree not to establish any bespoke humanitarian response categories and use
discretion and the existing humanitarian border exception for cases for Afghan national
at this time
Agree / Disagree
Or
2.
Indicate which group(s) you would like further advice on options for bespoke (likely
capped) categories:
i. Current Afghan applicants for the Refugee Family Support Category
Yes / No
ii. Current Afghan applicants for the Parent Resident Visa Category
Yes / No
iii. Extended family of New Zealand citizens and residents in Afghanistan
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Yes / No
iv. People who provided support to New Zealand agencies but did not apply by the
cut-off date
Yes / No
v. Temporary visa holders in New Zealand (outside of standard asylum process)
Yes / No
vi. Other:______________________________________________
Yes / No
n
Either (MBIE recommended)
1.
Agree to close the current border exception for New Zealand temporary visa holders in
Afghanistan to reflect its original purpose as a short-term evacuation response
Agree / Disagree
Or
2.
Agree to leave the current border exception for New Zealand temporary visa holders in
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Afghanistan open to allow any visa holders as of 18 August 2021 who are able to leave
Afghanistan to enter New Zealand
ACT
Agree / Disagree
o
Agree to forward this briefing and your decisions to Ministers with Power to Act for
Afghanistan
INFORMATION
Agree / Disagree
OFFICIAL
THE
Andrew Craig
UNDER
Manager, Immigration (Skills and Residence)
Hon Kris Faafoi
Policy
Minister of Immigration
Labour, Science and Enterprise, MBIE
17 September 2021
..... / ...... / ......
RELEASED
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Background
1.
On 16 August 2021, in light of the deteriorating situation in Afghanistan, Cabinet agreed to
deploy New Zealand Defence Force (NZDF) resources to assist in the international
evacuation effort [CAB-21-MIN-0323 refers]. The main focus for New Zealand in the initial
evacuation phase was on the following groups:
a.
New Zealand citizens, residents, and their immediate family members
b.
Afghan nationals who worked for or with the NZDF, Police or another identifiable New
Zealand entity or provided material assistance to the Operation Burnham inquiry
(collectively referred to as NZ Inc for the purposes of this paper), and were at risk of
harm as a result of being associated with New Zealand through this connection.
Cabinet also required that no other country owed the individual a greater duty over and
above New Zealand. Requests for inclusion in this group closed at 23:59 on 25 August
2021 [CAB-21-MIN-0323 and CMG-21-MIN-001 refer]
c.
Afghan nationals granted a visa at the discretion of the Associate Minister of
Immigration
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d.
other people in Afghanistan with a valid New Zealand visa. This includes people on
temporary visas and unactivated residence visas (ie where the holder has not been in
ACT
New Zealand while holding a residence visa) who would otherwise be subject to border
restrictions. Cabinet agreed that this cohort could be granted a border exception to
enter New Zealand [CMG-21-MIN-0001 refers].
2.
The New Zealand Defence Force led an evacuation effort from 19-26 August, concluding
when flights out of Hamid Karzai International Airport (HKIA) in Kabul were no longer viable.
INFORMATION
In total, 393 people were evacuated to New Zealand, however the short window available for
departures meant that New Zealand has not been able to evacuate all those who wanted and
were eligible to enter New Zealand.
OFFICIAL
3.
Cabinet has requested that the Minister of Foreign Affairs, the Minister of Immigration and
the Minister of Defence report back to Cabinet as soon as possible on [CAB-21-MIN-0247]:
THE
a.
the number and immigration status of the evacuees and the next steps for their
resettlement to New Zealand (advice on this was provided in BR 2122-0782)
UNDER
b.
the next steps to assist those remaining in Afghanistan who are eligible to come to New
Zealand to leave
c.
New Zealand’s response to the overall refugee situation in respect of Afghanistan.
RELEASED
4.
This briefing sets out advice for the next of New Zealand’s immigration response, including
assisting New Zealanders and other priority groups to leave Afghanistan and come to New
Zealand, our approach to resettling Afghan refugees, and options for providing support to
other groups.
Political and Security Situation
5.
On 30 August, the first phase of the international response effort from HKIA concluded,
thereby closing the initial window for air evacuations out of Kabul. At the conclusion of the
initial operation on 30 August, 393 New Zealanders and eligible Afghan nationals had been
supported to depart Afghanistan for New Zealand1; however, a significant number of New
Zealanders and other eligible Afghan nationals with New Zealand visas hoping to depart
were unable to be evacuated in the short window available.
1 We understand this is now 399 evacuees as at 16 September.
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6.
The security situation in Afghanistan remains complex and presents a range of still emerging
risks including health, security, operational, reputational, legal, and financial.
s 6(a)
8.
The political and security situation will also impact operational options. Work is still underway
to make HKIA operational and despite rumours of commercial flights resuming, there is
considerable uncertainty as to when or if this will become a viable option for international
departures in near term. Options for departing Afghanistan are currently limited to
challenging, uncertain and dangerous land border crossings (with only Iran and Pakistan
currently accepting people at the border), and it is unclear to what extent the Taliban will
uphold their commitment to “safe passage” out of Afghanistan, particularly for Afghan
nationals holding visas for third countries.
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9.
Meanwhile, urgent planning continues for the next phase of the All-of-Government operation
ACT
to support those remaining individuals (including New Zealand citizens, permanent residents,
eligible visa holders and immediate family members) to depart Afghanistan.
10. Given the urgent and unique circumstances facing New Zealanders and certain Afghan visa
holders, officials have recommended that Ministers establish a general principle of equal
treatment for those eligible individuals2 seeking assistance to depart Afghanistan for
INFORMATION
Aotearoa New Zealand. Should Ministers approve this policy, then further advice regarding
the policy parameters and the financial implications of this policy would be provided to
Ministers separately.
OFFICIAL
11. MFAT has stood up a new taskforce to provide operational support and assistance those
eligible individuals and families who are seeking to leave Afghanistan for New Zealand. This
THE
support includes exploring options to depart Afghanistan, transits through third countries, and
onward travel to New Zealand. As with the earlier evacuations from Kabul, working with our
close security and consular partners will be critical to this effort.
UNDER
12. Given the dynamic operating environment, the work of this taskforce is likely to evolve over
coming weeks. The initial action is to deploy MFAT personnel on scoping missions to
Islamabad and Doha (given New Zealand does not have a resident diplomatic presence in
these locations).
RELEASED
13. The humanitarian crisis is significant, with flow on effects for security within and outside
Afghanistan’s borders, as well as in the broader region. Prospects for at risk individuals who
remain in Afghanistan – notably women, girls, human rights defenders, and those who
assisted international forces – are of deep concern.
14. To date, New Zealand has responded to the humanitarian crisis in Afghanistan with a
contribution of $6million, with $1.5million directed to the International Committee of the Red
Cross (ICRC), the UNHCR, UNICEF and the UN Population Fund (UNPF) respectively.
2 This Policy appplies to the following individuals: New Zealand citizens and their immediate family members;
New Zealand permanent residents and their immediate family members; Afghan nationals with New Zealand
visas granted under section 61 Immigration Act 2009 (due to their association with the NZDF or other New
Zealand Government agencies in Afghanistan – per Cabinet’s 16 August 2021 criteria); Afghan nationals with
New Zealand visas issued by Associate Minister of Immigration under s61 Immigration Act 2009 between 17
and 28 August 2021.
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15. The UN has put out an urgent appeal for an additional USD$606 million of funding, noting
that Afghanistan stands at the precipice of humanitarian catastrophe. With half the population
already below the poverty line, the UN has reported that 97-98% of the population are at risk
of falling into poverty if humanitarian and development aid is reduced.
16. New Zealand’s early and generous response has been positively received by the
international community; however it is possible that we will be called on for further assistance
at a later stage. s 9(2)(g)(i)
Beyond the announcement of
financial contributions, New Zealand has also delivered joint statements alongside our
international partners.
The main priority in the next phase is providing support to New
Zealanders, their immediate families, and people granted visas
during the evacuation phase
17. Following the completion of the evacuation phase of the response, there is a necessary shift
to considering the likely longer-term options for responding to this crisis. In considering
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options for targeting and phasing any longer term responses there are some general groups
to consider:
ACT
a.
New Zealand citizens and residents and their immediate families (ie partners and
dependent children) (as at 16 September, approximately 200 individuals remain in
Afghanistan)
b.
Non New Zealanders that New Zealand has responsibilities for, including people who
INFORMATION
were granted a special visa under s61 of the Immigration Act 2009 in the initial
evacuation stage and therefore have an expectation of assistance from New Zealand:
i.
the people who provided support to “NZ Inc” agencies (581 people have been
OFFICIAL
granted visas but were not evacuated, and a number of visa requests made
before the deadline remain to be processed)
THE
ii.
people who were granted a visa by the Associate Minister of Immigration
between 17 and 28 August (94 people were not evacuated)
UNDER
iii.
other Immigration decisions (with 43 people approved for humanitarian EOIs, and
53 other border exception EOIs approved as of 14 September)
iv.
those still in the pipeline who will meet the resettlement or other humanitarian
RELEASED
criteria (with 433 humanitarian and 50 border exception EOIs, and 10 INZ s61a or
CPVV applications on hand as of 14 September, with estimates of a further 150
requests across agencies not currently in the pipeline)
c.
Those with some connection to New Zealand (eg have extended family in New
Zealand), and
d.
General humanitarian concerns (those with no New Zealand connection)
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Work is underway by agencies to address barriers to providing entry and support
18. We recommend the next phase of any longer-term response focuses on ensuring New
Zealanders and people previously granted a visa under 17 (b) above are be able to travel to
New Zealand (and secure residence) if they are able to leave Afghanistan and get to New
Zealand.
19. To assist this, a range of issues are being considered by agencies. Such issues include
health- related settings that may represent a barrier, including pre-departure COVID-19 test
requirements, and restrictions on travel from Pakistan (currently classified as a very high
COVID-19 risk country, with strict travel controls that may impact its ability to be a departure
point for priority groups). Officials are working to resolve this issue, and further advice will be
provided to Ministers as required.
20. MIQ requirements also represent a barrier for these people to travel to New Zealand.
Following the conclusion of the initial response phase, there is no longer a specific allocation
of places for those resettling in or returning to New Zealand as a direct result of the
Afghanistan situation. Further, under current settings, New Zealand citizens/residents and
their families may meet the criteria for emergency allocation, but this is not assured. Those
entering under a CPVV or other temporary visa categories3 are ineligible for emergency
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allocation rooms (as they are not New Zealand citizens or residents) and must obtain a
voucher through the normal Managed Isolation Allocation System online process.
ACT
21. To address this, MIQ officials are working with INZ to identify options to facilitate easier and
more timely allocations for individuals and families granted entry visas to resettle in New
Zealand as a result of the events in Afghanistan. Further advice will be provided to Ministers
as required.
INFORMATION
22. Despite this work, the challenges facing these people create uncertainty on volumes and
timing of arrivals – this could be larger cohorts if it becomes safe for charter or commercial
flights to resume from Afghanistan, or be very few if air travel and land borders are restricted.
23. This uncertainty on volumes and arrivals of those approv
OFFICIAL
ed for entry to New Zealand is
further compounded by the unknown number of people who may be approved from
THE
outstanding pipeline. As noted at 17(b)(iv) above, approximately 650 further applications
were awaiting decision, or are expected to be submitted for consideration as at 14
September. The numbers approved from this pipeline, and their potential arrival further
UNDER
represent significant potential support demands the Government will need to manage.
Potential future need to keep pathway for visa holders open
24. Visas issued to those in the initial response phase or by the Associate Minister of
RELEASED
Immigration are valid for nine months from the date of issue, with holders having a further six
months from activation to apply for residency. It is currently unclear how many of the
approximately 675 holders not currently in New Zealand4 will be able to enter the country
within this timeframe.
25. In light of the uncertainty, you could either extend the timeframes for these visas and the
consequential residency application period outright, or consider an extension once more is
known about the situation and the ability of holders to arrive in New Zealand. Officials
recommend reviewing the situation in six months in light of a risk assessment and travel
options. It is likely the offer would remain open (with the date of first entry for CPVV holders
3 Including those who meet the Cabinet criteria of having worked for a New Zealand Agency, and those
granted under Ministerial discretions exercised by the Associate Minister of Immigration
4 As set out previously, this includes the 581 people granted visas with an expectation of assistance and the
94 granted visas by the Associate Minister of immigration
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being extended). MFAT has recommended reviewing the offer of consular support to these
Afghan nationals at the same point.
New Zealand’s immigration responses to previous humanitarian
crises have generally focused on the Refugee Quota Programme
26. In recent history, the New Zealand Government has responded to significant international
humanitarian crises largely by utilising the government-agreed policy settings within the
three-year RQP. An example of this was utilising the RQP to support wider international
refugee crisis responses to the Syrian Crisis. New Zealand has not generally utilised
bespoke immigration/resettlement mechanisms to respond to such humanitarian crises.
27. The RQP enables UNHCR-referred refugees with priority protection needs requiring
resettlement in a safe third country to be resettled in New Zealand. In the Syrian response,
Cabinet agreed to places within and above the RQP being allocated to Syrian refugees over
a three-year period. These places, combined with an additional cohort of Syrian refugees
over and above the annual refugee quota at the time, enabled some 750 Syrian refuges to
be resettled in New Zealand between 2015/16 and 2017/18 [CAB-15-MIN-0057 and CAB-16-
MIN-0271 refer].
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28. The only recent bespoke response to a humanitarian situation (domestic) was the
ACT
establishment of the Christchurch Response Visa to support bereaved family members and
wounded victims of the Christchurch Mosques Terror Attacks.
29. New Zealand has offered bespoke options to a limited set of Afghanistan nationals before by
offering resettlement for a cohort of Afghan nationals who provided interpretation and other
support to New Zealand personnel in Afghanistan. An offer was made of the equivalent of
three years’ salary to relocate within Afghanistan, or relocation an
INFORMATION d resettlement in New
Zealand for the worker and their immediate family. Between 2012 and 2014 44 interpreters
and 96 of their immediate family members were resettled here. The recent resettlement
criteria to those who supported New Zealand agencies was made on a similar basis.
OFFICIAL
30. However, due to New Zealand’s military and development involvement in Afghanistan, you
THE
may wish to expand the scope of any immigration response offered in this instance.
Our immigration response
UNDER
will need to be balanced against
constraints in MIQ and settlement support
31. Because there is no MIQ allocation for individuals entering New Zealand to resettle, any
programme or immigration response will need to take account of the current constraints on
RELEASED
MIQ capacity (particularly as existing numbers in the pipeline already could exceed available
capacity for MIQ). This may be a minor issue if those entering arrive in families of small
groups, however large cohorts will require a decision to allocate MIQ space (potentially as a
class exception) in order to facilitate their entry.
32. In addition, any expanded immigration response (beyond Afghan nationals already granted
visas who are yet to enter New Zealand) will need to consider potential pressure placed on
Crown and NGO agencies including resettlement services, short and long-term
accommodation and psychosocial support.
33. A co-ordinated multi-agency approach is being undertaken to ensure that Afghan evacuees
have the appropriate settlement support (including health and mental health, education,
social services and housing) while in Managed Isolation and, where necessary, in the
community. For example, as part of that approach, the Ministry of Social Development (MSD)
is co-ordinating access to social services, including financial, employment and housing
support. More specifically, in the community, MSD Community Connectors provide support to
access government agency and community-based settlement support services. A multi-
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agency working group has been established to support evacuees, where required, to access
to appropriate housing in communities either through Kāinga Ora or accessing the private
housing market.
Options for an increased refugee response
34. Refugees and protected people are people unable to safely return to their country of origin. It
is important to note that, in order to be recognised as a refugee or protected person, the
person needs to be outside their country of origin – this means
that Afghan nationals
remaining in Afghanistan are not refugees or protected persons (as per the Immigration
Act 2009) and cannot be resettled directly from Afghanistan through the refugee programme.
Those individuals who
are able to depart Afghanistan to a third country could, however, be
eligible for the purposes of New Zealand’s refugee programme if referred to us by the
UNHCR.
35. Prior to the events of August 2021, there were already 2.2 million Afghan refugees from
previous waves of violence, spanning back several decades, registered with the UNHCR in
Iran, Pakistan and other countries in the region. The UNHCR estimates that there could be
up to 515,000 newly displaced Afghan refugees fleeing across borders this year in a worst-
case scenario.5
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36. s 6(a)
ACT
A number of these countries have a component of their annual
resettlement quota reserved for emergency response, similar to New Zealand’s large-scale
refugee crisis quota allocation (200 places in the 2021/2022 financial year). Australia has
announced that at least 3000 humanitarian places will be allocated to Afghan nationals within
Australia’s 13,750 annual refugee quota, but that this number is set
INFORMATION to increase. It is not yet
clear how partners will operationalise this alongside UNHCR processes.
Our existing refugee response will include some Afghan nationals
OFFICIAL
37. There are three main pathways for refugees to settle in New Zealand:
THE
Refugee Quota Programme
38. One of the durable protection solutions for refugees is resettlement in a safe third country,
like New Zealand. The UNHCR refers
UNDER refugees who have priority protection needs requiring
resettlement in a safe third country. The UNHCR identifies refugees for resettlement
according to internationally accepted guidelines that take account of physical and legal
protection needs, as well as family reunification.
RELEASED
39. Refugees referred to New Zealand by the UNHCR are resettled through the RQP. The
UNHCR refers refugees for resettlement that align with New Zealand’s agreed RQP. All
quota refugees are granted permanent residence status, and complete a five-week reception
programme at Te Āhuru Mōwai o Aotearoa (the Māngere Refugee Resettlement Centre) to
prepare them for their new lives in New Zealand. Following this, quota refugees are settled in
13 settlement locations across New Zealand and provided with settlement support for up to
12 months.
40. From July 2011 to June 2021, the RQP has resettled 945 Afghan refugees (11.6 per cent of
all quota refugees over this time period). In the most recent financial year (2020/2021), 29.7
per cent of refugees resettled through the RQP were Afghans.
5 Afghanistan Situation Regional Refugee Preparedness and Response Plan, July – December 2021,
UNHCR
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41. The RQP is decided by the Government in three-year cycles. For the current three-year cycle
(July 2019 – June 2022), Cabinet agreed to a quota of 1,500 places annually, allocated
according to the international regional breakdown below [CAB-19-MIN-0468 refers].6
Region of Asylum
Proportion (%)
Asia-Pacific
50
Americas
20
Middle East
15
Africa
15
42. Due to the ongoing impacts of COVID-19 on our ability to select refugees and support safe
travel to New Zealand, the quota was not met in 2019/2020 or 2020/2021 financial year, and
Ministers agreed that only 750-1,000 quota spaces would be filled for the 2021/2022 financial
year [2021-3218 refers]. Furthermore, upcoming quota intakes for 2021/2022 have been
deferred as a result of the Level 4 lockdown in Auckland and challenges in locating
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appropriate housing in settlement locations, which may impact on our ability to meet the
revised 750-1,000 quota spaces this financial year.
ACT
43. Sixty-eight Afghan refugees are planned to be resettled in New Zealand as part of the
October and November intakes, with a further 21 approved for future intakes, and 176
currently working through the decision-making process.
Community Organisation Refugee Sponsorship Category
INFORMATION
44. The Community Organisation Refugee Sponsorship (CORS) category is additional and
complementary to the RQP and enables New Zealand-based community organisations to
sponsor refugees for resettlement.
OFFICIAL
45. An initial pilot was run in 2018, and this has been extended for a further three years from July
2021 – June 2024. The extension of the
THE pilot will enable up to 50 sponsored refugees to be
resettled in New Zealand in each of the three years. On arrival, sponsored refugees are
supported to settle directly into the community by their approved community organisation
sponsors. CORS refugees are gran
UNDER ted permanent residence and are eligible to access
government funded services (eg income and housing support from MSD).
46. To be eligible for resettlement under the CORS category, the principal and secondary
applicants must be refugees, and the principal applicant must have a basic understanding of
RELEASED
English, a minimum of three years’ work experience (or a qualification requiring at least two
years’ tertiary study), an acceptable standard of health and be aged between 18 and 45.
Approved community organisations will either be able to nominate (name) eligible refugees
to sponsor, or sponsor refugees identified by UNHCR.
47. We anticipate that the first sponsored refugees under the extended pilot will arrive in New
Zealand from mid-2022, subject to the effects of COVID-19 on refugee selection and safe
travel to New Zealand.
Convention refugees
48. As a signatory, New Zealand is obligated under United Nations Conventions to consider
claims from people who claim refugee or protected person status while in New Zealand.
Refugee or protection status can be claimed on arrival at a New Zealand airport or port,
6 Note that the regional breakdown is based on the region where the refugee has claimed asylum, not where
they originated. Afghan refugees could therefore potentially be referred from any region, but are most likely
to be referred from Asia-Pacific (from Malaysia and Indonesia).
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however the majority of people who claim asylum in New Zealand arrive in the country on
valid visas and make a claim at a later time while living in the community.
49. Once their claim is approved (Convention refugees), refugees and protected people are
eligible to apply for a residence visa. Convention refugees are eligible to access the same
government funded services as other residents and New Zealand citizens. Work is underway
on potential coordinated settlement support services for convention refugees.
50. There is no quota or limit on the number of claims for refugee or protected person approved
annually– all claims lodged in New Zealand must be determined. There are currently 446
Afghan passport holders on a temporary visa in New Zealand who could potentially submit
an asylum claim (some may be eligible for the one-off residence visa recently agreed by
Cabinet, but we expect these numbers to be small [CAB-21-MIN-0359 refers]).
The intake of Afghan refugees could be increased in the next three year quota
programme (starting from July 2022)
51. We recommend that any additional refugee response is delivered through our existing
refugee programmes, which are primarily based on UNHCR referrals. UNHCR has robust
processes for identifying and prioritising need. It would be challenging for New Zealand to
establish an appropriately robust process for identifying which individual refu
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outside the UNHCR process.
ACT
52. Any increase in Afghan refugees will not necessarily be people recently departed from
Afghanistan, as UNHCR refers refugees for resettlement based on priority resettlement
need. However, any resettlement from regions that Afghans are fleeing to will help the
asylum countries, accommodate newly-arrived refugees.
53. It is not possible to increase the number of Afghan refugees rese
INFORMATION ttled through the quota
programme before the end of the financial year (30 June 2022). This is because of the limit
of 750-1,000 quota refugees for this financial year as a result of COVID-19 related
limitations, and because the quota process takes 6-12 months from UNHCR referral to the
refugee arriving in New Zealand.7
OFFICIAL
54. However an increase in the number of pl
THE aces available to Afghan refugees could be
considered when setting the quota for the next three years (July 2022 – June 2025). Options
for increasing the number of Afghan refugees in the quota include:
UNDER
a.
using the large-scale refugee crisis quota allocation for Afghan refugees (up to 200
places under the current quota, but this could be increased)
b.
allocating more general quota spaces to Afghan refugees and/or refugees resettled
from the Asia-Pacific
RELEASED region (which is the region most likely to include Afghan refugees)
c.
increasing the number of places for the women at risk sub-category (currently at least
150 places).
55. In addition, you could consider increasing the overall size of the quota. This would be
constrained by MIQ availability and capacity at Te Āhuru Mōwai initially, and housing and
settlement support thereafter. It would also require significant additional funding.
7 Please note that officials previously provided advice that up to 500 additional Afghan nationals could be
added to the remaining intakes this financial year (talking points for the Cabinet meeting of 19 August 2021).
This advice was incorrect – the additional 500 places were available to temporarily house evacuees outside
the UNHCR process at Te Āhuru Mōwai, and could not have been fil ed with UNHCR-referred refugees for
the reasons outlined in this section. We are reassessing what capacity there is at Te Āhuru Mōwai to house
evacuees in future in light of the impacts of the COVID-19 level 4 lockdown in Auckland.
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56. It is also important to note that the ongoing impacts of COVID-19 on INZ’s ability to select
refugees and support safe travel to New Zealand may impact on the ability of Afghan
refugees to take up any additional quota allocation.
57. The next three-year quota is due to be set by March 2022, however, if you wish to signal
your commitment to the refugee response by increasing the number of places available to
Afghan refugees, we recommend bringing forward decisions on the quota.
58. Any increase in the number of quota spaces set aside for Afghan refugees will need to be
considered in the context of other refugee groups with similar levels of need. We are
currently testing with UNHCR timeframes for their submission about international priorities
and their views on using the large scale refugee crisis quota allocation for Afghan refugees.
We also need to consider what the current constraints are in terms of settlement support, as
not all resettlement centres are set up to support Afghan refugees (as opposed to refugees
from other areas), and what would be required to appropriately prepare additional settlement
locations to receive Afghan refugees.
59. We will aim to provide this advice in time for a decision on the quota to be made in mid to
late October (but this will need to be confirmed based on how quickly the UNHCR may be
able to provide a submission). In the meantime, you could signal you are considering
increasing the number of places available to Afghan nationals through the
1982 quota programme,
subject to UNHCR feedback about the highest priority regions or crises.
ACT
It could also be possible to increase the number of places in the CORS programme
60. The extended CORS pilot may offer some limited solutions for small numbers of Afghans, if
sponsoring organisations and Afghan refugees who meet the eligibility criteria can be
identified. However, it is important to note that we have not completed a full evaluation of the
outcomes for the first cohort from 2018, so have limited information
INFORMATION about outcomes for
refugees placed through the programme.
61. Additional spaces through CORS would require additional MIQ capacity, and an increase in
Crown funding for the programme (while settlemen
OFFICIAL t costs are met by the sponsoring
community organisations, the Crown funds some programme administration costs).
THE
Options for immigration responses for other groups
UNDER
While specific options could be developed, officials do not recommend bespoke
humanitarian immigration arrangements
62. Humanitarian border exceptions and Ministerial intervention have been used on a case-by-
case basis to allow people t
RELEASED o travel to New Zealand8; however, you have indicated in
feedback on the residence options briefing your preference for the use of this approach to be
limited. In the current situation, there are several distinct groups that you may wish to
consider and form a clear view on whether they should be included in any bespoke or
targeted humanitarian options outside of existing UNHCR refugee processes.
63. The size of the expected group will impact on the potential approach. While individual
decisions can be made via Ministerial discretion as a one-off, officials recommend that any
immigration responses to larger cohorts of people be provided for through an explicit and
targeted policy. This approach also provides a clear frame for future consideration of
individual decisions. This is also the approach taken previously for humanitarian responses
such as the Christchurch response and the previous Afghan interpreters’ group.
8 Existing examples of recent discretion decisions include granting visas to allow female judges and human
rights activists from Afghanistan to enter New Zealand
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64. Any bespoke arrangements would need to be carefully designed, considering priority of New
Zealand’s responsibility, the degree of people’s connection to New Zealand, other priorities,
and precedent risk. Any arrangement could involve establishing specific mechanisms or
quotas for groups, and would include a number of challenges, including identification (eg if a
specific group list is developed), and managing numbers and expectations from
communities.
65. While additional bespoke arrangements could be developed, officials do not recommend this
approach, as:
a.
the existing and potential pipeline is already large, and is already likely to impact on
available services and accommodation
b.
potential bespoke arrangements are likely to be unfair to other migrant communities not
able to receive similar treatment
c.
the arrangements may disadvantage higher need groups, such as UNHCR mandated
refugees
d.
uncertainty on the ability to exit Afghanistan and travel to New Zealand, with this
expected to limit the practicality of options and potential benefits (which may result in
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dissatisfaction at Government’s practical ability to deliver on any commitments), and
ACT
e.
it creates a precedent risk for future humanitarian crises.
66. Officials recommend a continuing focus on those New Zealand is already responsible for,
with very limited approval by Ministers and delegated decision makers specific requests
outside these grounds. This would not be expected to include extended family of people in
New Zealand.
INFORMATION
Potential options if you did wish to consider specific bespoke arrangements
67. If you did wish to consider bespoke arrangements, officials consider small and capped
OFFICIAL
border exemptions / visa categories could be established for one or more of the following
groups:
THE
a.
Current Afghan applicants for the Refugee Family Support Category (RFSC) and/or
and Parent Resident Visa Category (PRV) who are able to depart for New Zealand
UNDER
b.
Extended family of New Zealand citizens and residents in Afghanistan
c.
New Zealand temporary visa holders in Afghanistan
RELEASED
68. Considerations for these groups are set out below.
Afghan applicants eligible for the Refugee Family Support Category and/ or Parents Resident Visa
69. This approach would use the existing RFSC and/ or the PRV processes to select family of
eligible Afghans in New Zealand. This option would be more constrained than a full extended
family option as outlined below (with the existing categories having more limited eligibility).
This option could either be implemented by:
a.
Restarting the refugee family support category and/or parent category for Afghans only,
or
b.
Progressing existing Afghan applications currently lodged under either or both
categories.
70. People in this process would have a family connection to New Zealand, and this approach
would provide additional benefits for those already settled here (as eligibility requires
reduced or no family links in New Zealand). However, either approach would create
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discrimination risks by prioritising this group over nationalities with applications currently
lodged or unable to apply and will likely lead to calls to restart these categories for other
groups (or for other crisis regions).
Extended family of New Zealand citizens and residents in Afghanistan
71. This option would require Cabinet agreement to establish a bespoke border exemption and
visa to allow entry to extended family of New Zealand citizens and residents currently in
Afghanistan. While providing support for a range of people who already have family
connections here, this approach would generate significant demand and expectations from
the New Zealand Afghan community that may not be able to be met. Establishing
relationships in the circumstances may also be challenging.
72. While a potential option to be considered, this approach may be seen to undermine the
formal UNHCR refugee programme, allowing potentially lower priority individuals to enter
New Zealand rather than higher-priority UNHCR refugees (including potential Afghan
refugees). It may also generate demands for similar provisions for other migrant groups, and
set a future precedent risk.
New Zealand temporary visa holders in Afghanistan (not part of initial response)
1982
73. This group consists of people granted visas through standard processes (eg student, work
visas) rather than through the initial response (eg those who supported agencies. This option
ACT
also differs from the previous two groups, in that it would not require a specific bespoke
immigration arrangement, but would continue the border exception previously established as
a short-term response which enabled a range of temporary visa holders to depart for New
Zealand on the Government-arranged response flights. This border exception would remain
limited to those who were in Afghanistan and held visas on 18 August 2021 so processing
would not resume for any applications in the system.
INFORMATION
74. New Zealand has a lesser responsibility to such temporary visa holders compared to other
groups, and we recommend that this exception should be closed to reflect its original
purpose. However, it would be an option for this to remain in place to allow any current
OFFICIAL
holders to have the opportunity to enter New Zealand. It is unclear at this stage how many
people this may impact, and it would crea
THE te an inconsistency with treatment of other
nationals, in that it removes border restrictions for temporary visa holders from Afghanistan
(which remain in place for other temporary visa holders offshore).
UNDER
Other groups not recommended for bespoke arrangements
75. Several further groups have been identified but are not recommended for consideration of
potential bespoke arrangements. These are:
RELEASED
a.
people who provided support to New Zealand agencies but did not apply by the cut-off
date
b.
phose not able to currently meet a partnership test
c.
people of humanitarian concern in Afghanistan
d.
temporary visa holders in New Zealand
e.
Afghan nationals not in Afghanistan
76. These are discussed further below.
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People who provided support to New Zealand agencies but did not apply by the cut-off date
77. As outlined, Cabinet agreed to allow Afghan nationals who supported NZ Inc, with requests
for inclusion in this group closing at 23:59 on 25 August 2021 [CAB-21-MIN-0323 and CMG-
21-MIN-001 refer]. We are aware of a number of applications were made after this date,
some which may include otherwise eligible applications with genuine reasons for not being
able to meet this deadline. Applications were closed as the numbers received and being
approved were higher than Ministers’ had anticipated.
78. While officials do not recommend reopening a similar process9, it may be possible to develop
a more targeted pathway for eligible persons. However, as with the previous process, a key
challenge would be the threshold for support, and assessing the direct risk of harm for
applicants. It would also be possible for individuals with a genuine exit opportunity to seek
individual consideration of their case using existing Ministerial discretion powers.
Those not able to currently meet criteria for a partnership visa
79. Officials are aware of a number of cases where Afghan applicants for a partnership visa have
not been able to meet the living together criteria, reflecting the known challenges around
cultural norms and culturally-arranged marriages (especially in the COVID-19 environment).
It may be possible to establish a bespoke arrangement to allow entry for partners for in such
1982
situations.
ACT
80. This would potentially result in a large number of requests, and generate significant demands
for other groups unable to secure partnership visas. It may be difficult to justify doing this for
a particular group of nationals, and there are also significant immigration risks associated
with a loosening of immigration partnership requirements. Establishing that partnerships are
genuine (even if relaxing some requirements) would be challenging. For these reasons, this
approach is not recommended.
INFORMATION
Temporary visa holders in New Zealand
81. As outlined previously, there are currently 446 Afghan passport holders on a temporary visa
OFFICIAL
currently in New Zealand, and consideration could be given to a bespoke option to allow
these people to seek to remain in New Zealand.
THE
82. A permanent bespoke option in such circumstances has not previously been implemented
and creating one for Afghans will create a significant precedent risk. As with any visa holder,
individuals who fear returning to the
UNDER ir country may seek asylum, and this option is available
for individual Afghans in New Zealand. A bespoke arrangement for temporary visa holders is
therefore not recommended.10
People of humanitarian concern in Afghanistan
RELEASED
83. There are a number of cases of Afghan nationals seeking visas on humanitarian grounds
that are being brought to Government attention through New Zealand-based advocates.
84. While it would be possible to offer a bespoke programme for these, there are higher priority
groups for any bespoke arrangements, and such cases can be considered by the Minister of
Immigration as per existing processes (and the Associate Minister on current delegations).
9 MFAT states it received a large volume of applications via this process, with around 9,000 ineligible
applications
10 Volumes of potential future asylum claims from the Afghans currently in New Zealand are difficult to
predict. While not a recommended approach, there is a potential risk that such claims may place a burden on
the processing and consideration of claims.
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Afghans in a third country (not Afghanistan or New Zealand)
85. We expect that there may be direct requests from Afghans in third countries to seek entry to
New Zealand. We recommend that such requests be considered through standard
processes, including registering with UNHCR or host countries as refugees, as there is no
clear humanitarian requirement for such bespoke arrangements.
Next steps
86. If you wish to consider progressing specific options for immigration responses we
recommend that you forward this paper to Power to Act Ministers for their information.
Officials will then develop further options and advice, including bringing forward decisions on
the RQP by late October (subject to the receipt of necessary UNHCR advice for this
decision).
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ACT
INFORMATION
OFFICIAL
THE
UNDER
RELEASED
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BRIEFING
Afghanistan response – decisions for Cabinet paper
Date:
1 October 2021
Priority:
High
Security
Restricted
Tracking
2122-1215
classification:
number:
Action sought
Action sought
Deadline
Hon Kris Faafoi
Agree to the scope of the
4 October 2021
Minister of Immigration
Afghanistan Cabinet paper and
operational and funding decisions to 1982
Hon Nanaia Mahuta
be sought
Minister of Foreign Affairs
ACT
Indicate which options you wish to
recommend to Cabinet on matters
such as further resettlement cohorts
Contact for telephone discussion (if required)
INFORMATION
Name
Position
Telephone
1st contact
Manager, Immigration
Andrew Craig
Policy (Skills and
04 901 1245
OFFICIAL
s9(2)(a)
Residence)
THE
Policy Advisor,
Simon Barrett
Immigration Policy (Skills
s9(2)(a)
and Residence)
UNDER
The following departments/agencies have been consulted
Ministry of Foreign Affairs and Trade
RELEASED
Minister’s office to complete:
Approved
Declined
Noted
Needs change
Seen
Overtaken by Events
See Minister’s Notes
Withdrawn
Comments
BRIEFING
Afghanistan response – decisions for Cabinet paper
Date:
1 October 2021
Priority:
Medium
Security
Restricted
Tracking
2122-1215
classification:
number:
Purpose
This briefing seeks your confirmation of the scope of issues and key decisions to be sought in a
Cabinet paper on the Afghanistan humanitarian and resettlement response covering:
• The end-to-end requirements for agreed individuals to travel to, and be settled in New
Zealand (including support out of Afghanistan, COVID-19 travel restrictions, MIQ priority,
temporary accommodation, residence status, and resettlement support).
• Additional humanitarian options for Afghan nationals who are outside of the current scope
1982
of New Zealand Government resettlement offer.
ACT
This paper is being prepared as a joint paper for the Ministers of Foreign Affairs and Immigration to
take to the Cabinet Economic Development Committee on 20 October (or another commit ee of
your preference). The Minister of Immigration indicated he wished to discuss and confirm
Ministerial ‘preferred options’ in the paper with the Minister of Foreign Affairs. This briefing and the
attached early draft Cabinet paper is intended to facilitate this discussion and feedback to officials
to inform the development of the paper.
INFORMATION
Key choices for cabinet paper
MBIE and MFAT are preparing a Cabinet paper for you t
OFFICIAL o take to Cabinet Committee on 20
October. It is proposed to cover an update on the situation in Afghanistan and New Zealand’s
THE
resettlement and other humanitarian efforts, and seek a series of policy and operational decisions
on the ongoing support for those New Zealand has made commitments to, and any new support
offers to other Afghans in need. UNDER
A very early draft of this cabinet paper is attached. This currently covers a lot of information and
analysis on a number of issues where advice is stil being developed. The paper wil be heavily
edited to focus on the key issues and New Zealand position, based on your feedback on scope,
decisions and your “recommended options”.
RELEASED
The general framing of the paper, and context for decisions on any further action, is that:
• New Zealand has already made a significant (and internationally comparable) commitment
to support Afghans nationals to resettle in New Zealand. As of 24 September, 400 people
have been assisted to travel to and settle in New Zealand, and an estimated 1200 further
people have been granted visas or are New Zealand citizens and are eligible to travel to
and enter New Zealand, almost all of whom are Afghan nationals. Of this group 900 are
entitled for assistance from the New Zealand Government to travel. This nearly doubles
New Zealand’s annual refugee Quota of 1500.
• There remains significant uncertainty about how the situation in Afghanistan wil develop
and the ability to travel to New Zealand for the remaining 900+ people we have made
commitments to help.
• The ongoing settlement and support efforts in New Zealand are comprehensive, extensive
and resource intensive across agencies, and temporary and permanent housing is already
a challenge. Any further offers of resettlement should be aligned with the capacity New
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Zealand has to ensure successful settlement, including trade-offs with the needs of
vulnerable New Zealanders.
The proposed paper outlines the general situation and other international responses, then covers
three general areas where decisions are needed, or confirmation of current approaches.
1. Facilitating resettlement from Afghanistan:
• The paper notes the existing agreement to offer equivalent consular and other
assistance to support travel to New Zealand to approved Afghan nationals as would be
provided to New Zealand citizens in these unique circumstances (e.g. case
management support and financial assistance for airfares). If circumstances in
Afghanistan change such as increased flows across the borders, or the opening of the
airport and ability to travel, more active facilitation could be considered to move larger
groups (such as charter flight options) with a corresponding impact on MIQ and
settlement services. The paper reflects MFAT’s view that the outlook is too uncertain to
seek any informed decisions on additional facilitation approaches at this time, noting
that further advice could be provided if the situation changes.
• Decisions will be sought from the Director General of Health on exemptions for eligible
Afghans to travel from high risk COVID-19 countries such as Pakistan.
1982
• Decisions wil be noted on priority for entry into MIQ. The Minister for COVID-19
Response has decided that this group should be managed throu
ACT gh the emergency
allocation, which wil be increased by 50 per month. This should be sufficient for a
moderate flow of arrivals, but options may need to be considered if it becomes possible
for larger groups to arrive.
• Confirmation and funding wil be sought for waiving MIQ fees for arrivals.
2. Settlement support for current and future arrivals: INFORMATION
• The paper wil note the settlement ef orts, and highlight the housing challenges.
• The paper seeks agreement to additional funding of $XXX Mil ion (amount to be
confirmed) to cover temporary accommodati
OFFICIAL on for the current arrivals in the Nesuto
Hotel, and to secure arrangements for future arrivals from those already approved;
THE
• The paper notes how
Te Āhuru Mōwai o Aotearoa (the refugee resettlement centre in
Mangere, Auckland) could be used to offset some of this pressure for current groups
and the impacts on the Refugee programme
UNDER
• The paper seeks agreement to additional funding to cover anticipated health, income
support, children support and education costs for this group [advice is stil being
developed on access and normal funding sources]
• The paper wil note the c
RELEASED overage of the special resident offer to evacuees, and that
expansion could be considered if further resettlement groups are approved.
3. Further immigration humanitarian response for other Afghans in need:
• The paper wil highlight the size of the additional resettlement offer New Zealand has
already made to Afghan nationals with strong connections to New Zealand that, in
MBIE and MFAT’s view, is comparable to other international offers.
• The paper wil seek agreement to increase the crisis event allocation within the Refugee
Quota to 275 per annum from July 2022 and allocate 200 of these places to Afghan
refugees. Other Afghan refugees can be selected through the regional allocations.
o It is not possible to process additional refugees through the normal UNHCR
process before this. This reflects ongoing discussions with the UNHCR about
the relative priorities of Afghanistan to other groups in need. The Minister of
Immigration is likely to meet with UNHCR representatives next week and wil be
able to further discuss their views.
• The paper can reflect the Ministers of Immigration and Foreign Affairs views that either:
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o the resettlement offers to date and an ongoing assignment of places in the
Refugee Quota is an appropriate response for New Zealand,
OR
o that further resettlement offers to other Afghan groups in need should be
pursued as border and settlement capacity permits.
• If Ministers wish to consider further groups, the paper should recommend these are not
‘activated’ until there is more certainty about if and when the current groups that have
been offered resettlement may arrive, and that settlement capacity is available.
• The paper wil seek agreement on any other specific groups Cabinet wants to consider
for resettlement including:
o Afghans with resident applications in categories like the Refugee Family Support
and Parent categories;
o People with a strong connection to New Zealand by supporting New Zealand
efforts who were not identified or approved for resettlement in the initial
evacuation phase;
o Temporary visa holders in New Zealand;
1982
o Extended family in Afghanistan of New Zealanders;
ACT
o Afghans in need in Afghanistan (such as women or children) [advice is stil being
developed on how a selection process could be operationalised].
Officials from MBIE and MFAT are available to discuss this scope and your preferred options with
you further at the meeting on Monday 4 October.
The scope of the response and therefore the paper covers interests in a
INFORMATION range of portfolios
including COVID-19 Response and Social Development and Employment. You may wish to
consider how their views are incorporated in your feedback ahead of finalisation of the paper and
ministerial consultation.
OFFICIAL
Timeline for Cabinet paper THE
We are working to the consideration of the paper at DEV on 20 October 2021. This means the
following timeline:
UNDER
• 1 October - Early draft paper provided to Ministers
• 4 October - Feedback on scope of paper and preferred options
• 7 October - Completed paper provided and sent for Ministerial consultation
• 14 October - Lodgement o
RELEASED f final paper
• 20 October - consideration at DEV
• 26 October - Cabinet confirmation
Recommended action
The Ministry of Business, Innovation and Employment recommends that you:
a
Note the attached early draft Cabinet paper
Noted
b
Agree to seek decisions from Cabinet to the related operational issues outlined in the
cabinet paper
Agree / Disagree
c
Agree to reflect your preferred positon on further resettlement groups as
either:
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1. That New Zealand has done our extra bit for those with a connection to New Zealand
(nearly double the annual refugee quota) and wil support that group and then use the
normal refugee channels, or
Agree / Disagree
2. To offer further support to key groups from Afghanistan as capacity permits
Agree / Disagree
3. No preferred option
Agree / Disagree
1982
ACT
Andrew Craig
Manager, Immigration (Skil s and Residence) Hon Kris Faafoi
INFORMATION
Policy
Minister of Immigration
Labour, Science and Enterprise, MBIE
01/10/2021
..... / ...... / ......
OFFICIAL
THE
UNDER
RELEASED
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Annex 1 – Early Draft Cabinet Paper
Withheld under section 9(2)(g)(i) and section 6(a) of
the Official Information Act 1982
1982
ACT
INFORMATION
OFFICIAL
THE
UNDER
RELEASED
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BRIEFING
Afghanistan response – draft Cabinet paper for Ministerial consultation
Date:
8 October 2021
Priority:
High
Security
Restricted
Tracking
2122-1303
classification:
number:
Action sought
Action sought
Deadline
Hon Kris Faafoi
Forward the draft Cabinet paper to
13 October 2021
Minister of Immigration
the relevant Ministers for
consultation.
1982
Hon Nanaia Mahuta
Minister of Foreign Affairs
Note the changes made since the ACT
last draft we provided.
Direct officials to amend the paper if
necessary.
INFORMATION
Contact for telephone discussion (if required)
Name
Position
Telephone
1st contact
Manager, Immigration
OFFICIAL
Andrew Craig
Policy (Skills and
04 901 1245
s 9(2)(a)
THE
Residence)
Policy Advisor,
Simon Barrett
Immigration Policy (Skills
s 9(2)(a)
UNDER
and Residence)
The following departments/agencies have been consulted
RELEASED
Treasury, Ministry of Housing and Urban Development, Oranga Tamariki, Ministry of Education,
Ministry of Ethnic Communities, Ministry of Foreign Affairs and Trade, Ministry of Health, Ministry
of Social Development, New Zealand Defence Force, New Zealand Police, Department of the
Prime Minister and Cabinet, National Emergency Management Agency, and Kainga Ora.
Minister’s office to complete:
Approved
Declined
Noted
Needs change
Seen
Overtaken by Events
See Minister’s Notes
Withdrawn
Comments
BRIEFING
Afghanistan response – draft Cabinet paper for Ministerial consultation
Date:
8 October 2021
Priority:
High
Security
Restricted
Tracking
2122-1303
classification:
number:
Purpose
To provide you with a draft Cabinet paper for consultation with your Ministerial colleagues.
1
This paper seeks Cabinet agreement to the ongoing New Zealand Government response to
the situation in Afghanistan, ad specific decisions to:
1.1
amend the COVID-19 Public Health Response (Managed Isolation and Quarantine
Charges) Regulations 2020 to include a Ministerial class waiver power for groups of
people included in the Afghanistan resettlement response 1982
1.2
fund a package of services to provide the comprehensive and necessary
wraparound support to Afghan evacuees, in addition to prospec
ACT tive travel costs to
bring evacuees to New Zealand
1.3
make Afghan evacuees eligible for Special Needs Re-establishment Grants under
the Social Security Act 2018, including upon being granted permanent residency
under the Afghan Emergency Resettlement Resident Visa Category
1.4
allocate 200 places per annum (rising to 300 per annum)
INFORMATION specifically to Afghan
refugees in setting the next three-year Refugee Quota Programme
1.5
direct officials to undertake further work on options to extend New Zealand’s
response to the situation in Afghanistan (i.e. facilitate more Afghans being resettled
OFFICIAL
here), that could be activated when existing resettlement commitments have been
met and settlement capacity pe
THE rmits.
We amended the paper…
UNDER
…in line with your feedback
1.
We provided you with an early draft on 1 October and met with you to discuss on 4 October.
You acknowledged New Ze
RELEASED aland’s comprehensive response for those with a connection to
New Zealand but signalled you wanted to consider options to support key groups from
Afghanistan as capacity permits.
2.
The paper contains additional analysis of a suite of options for accommodating additional
humanitarian groups and a recommendation that Cabinet invite you to report back with
further analysis on any options that Cabinet wishes to receive advice on. You were
particularly interested in options to support the settlement of women’s rights and social
justice advocates still in Afghanistan. s 9(2)(g)(i)
We will be looking at the mechanisms other countries put in place for
these groups, if any.
…to reflect decisions that have been made
3.
Since we provided the early version of the paper, the Minister for COVID-19 Response has
agreed that all evacuees can be given MIQ spaces from the Emergency Allocation (EA).
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Given the uncertainty around if and when Afghan evacuees will arrive in New Zealand, this
option allows flexibility in MIQ settings while minimising wasted rooms if fewer evacuees than
predicted arrive. The paper now reflects this.
…to reflect the funding needed to support Afghan evacuees
4.
Over the last week, agencies have worked with Treasury to refine the quantum and nature of
the funding sought to support the Afghan evacuees.
5.
A total quantum of approximately $36.795 million is sought to provide a range of services.
Given the uncertainty around the total number of Afghan evacuees that will arrive, officials
seek to appropriate around $19.282 million now and establish an option to access the
balance in the future.
The Minister for COVID-19 Response will confirm some content
6.
At the time of writing, officials await the agreement of the Minister for Minister for COVID-19
Response regarding the content relating to Ministerial class waiver power for MIQ fees for
Afghan evacuees (paragraphs 57 – 65). Officials have asked this Minister to agree to amend
1982
the COVID-19 Public Health Response (Managed Isolation and Quarantine Charges)
Regulations 2020 to create a Ministerial class waiver power for people
ACT who are part of the
Afghanistan resettlement response.
Officials will refine some content during Ministerial consultation
7.
This paper has been prepared by officials across many portfolios and many agencies at
INFORMATION
great haste. Some relatively minor refinements are likely to be needed in the next few days.
This may include refinements to the costings and technical refinements to the
recommendations.
OFFICIAL
The paper needs to be finalised for lodgement on 14 October at 10am
THE
8.
We are working to the paper being considered at DEV on 20 October 2021. This means the
following timeline:
UNDER
Friday 8 October
Draft provided for Ministerial consultation
Thursday 14 October, 10am Lodgement of final paper
Wednesday 20 October
Consideration at Cabinet Economic Development Committee (DEV)
RELEASED
Tuesday 26 October
Cabinet confirmation
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Recommended action
The Ministry of Business, Innovation and Employment recommends that you:
a
Forward the draft Cabinet paper to key Ministerial colleagues including the Minister of
Finance, Minister of Social Development, Minister for/of COVID-19 Response/Education, and
Minister for Children.
Agree / Disagree
b
Note the changes made since the early draft you saw.
Noted
c
Direct officials to make any changes you seek prior to lodgement.
Agree / Disagree
1982
ACT
Andrew Craig
Hon Kris Faafoi
Manager, Immigration (Skills and Residence)
Minister of Immi
INFORMATION
gration
Policy
Labour, Science and Enterprise, MBIE
..... / ...... / ......
8 October 2021
OFFICIAL
THE
UNDER
RELEASED
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BRIEFING
Afghanistan response – revised Cabinet paper for Ministerial
consultation
Date:
15 October 2021
Priority:
High
Security
Restricted
Tracking
2122-1077
classification:
number:
Action sought
Action sought
Deadline
Hon Kris Faafoi
Note the changes made since the
20 O
1982 ctober 2021
Minister of Immigration
last draft we provided.
ACT
Hon Nanaia Mahuta
Forward the draft Cabinet paper to
Minister of Foreign Affairs
your Ministerial colleagues.
Direct officials to make any changes
you seek.
INFORMATION
Contact for telephone discussion (if required)
Name
Position
Telephone
OFFICIAL
1st contact
Manager, Immigration
THE
Andrew Craig
Policy (Skills and
04 901 1245 s 9(2)(a)
Residence)
Policy Advisor,
UNDER
Simon Barrett
Immigration Policy (Skills
s 9(2)(a)
and Residence)
The following departments/agenc
RELEASED
ies have been consulted
Treasury, Ministry of Housing and Urban Development, Oranga Tamariki, Ministry of Education,
Ministry of Ethnic Communities, Ministry of Foreign Affairs and Trade, Ministry of Health, Ministry
of Social Development, New Zealand Defence Force, New Zealand Police, Department of the
Prime Minister and Cabinet, National Emergency Management Agency, and Kainga Ora.
Minister’s office to complete:
Approved
Declined
Noted
Needs change
Seen
Overtaken by Events
See Minister’s Notes
Withdrawn
Comments
BRIEFING
Afghanistan response – final Cabinet paper for lodgement and talking
points
Date:
15 October 2021
Priority:
High
Security
Restricted
Tracking
2122-1077
classification:
number:
Purpose
To provide you with a revised draft Cabinet paper,
Resettling Afghan evacuees: settlement
support, COVID-19, and considering options to extend our response, for you to forward to other
Ministers for consultation.
This paper seeks Cabinet agreement to the ongoing New Zealand Government response to the
situation in Afghanistan, and specific decisions to:
1982
•
amend the COVID-19 Public Health Response (Managed Isolation and Quarantine Charges)
Regulations 2020 to include a Ministerial class waiver power for groups
ACT of people included in
the Afghanistan resettlement response;
•
immediately fund a package of services to provide the comprehensive and necessary wrap-
around support to Afghan evacuees, in addition to setting a cap up to which joint Ministers
could approve additional funding for costs under the Foreign Affairs and Immigration
portfolios;
INFORMATION
•
Afghan evacuees being eligible for Special Needs Re-establishment Grants under the Social
Security Act 2018, including upon being granted permanent residence under the Afghan
Emergency Resettlement Resident Visa Category;
OFFICIAL
•
Al ocate 200 places per annum (rising to 300 per annum) specifically to Afghan refugees in
setting the next three-year Refugee Quot
THE a Programme; and
•
direct officials to undertake further work on options to extend New Zealand’s response to the
situation in Afghanistan (i.e. facilitate more Afghans being resettled here), that could be
activated when existing resettlement
UNDER commitments have been met and set lement capacity
permits.
We amended the paper…
RELEASED
…in line with your feedback
1.
We provided you with an early draft on 1 October and met with you to discuss on 4 October.
A revised draft was provided on 8 October.
2.
We have amended the paper as per your direction to add information to show how New
Zealand’s response to the situation in Afghanistan compares with our historical approach to
resettling refugees.
3.
We have also redrafted Part 2 of the Cabinet paper on options for extending New Zealand’s
response to seek a decision now on whether to activate further capped resettlement groups
now, rather than waiting to see how settlement capacity copes with the upcoming arrivals
from the 1200 visa holders offshore. MBIE advice remains not to activate further groups, and
we have strengthened the challenges of finding physical accommodation as a major
constraint. Ministers are given the option of:
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a.
EITHER agreeing that the existing commitment, plus the specific refugee places for
Afghan nationals in the Quota is enough;
OR
b.
Agreeing, in addition to the groups in a, to activate a capped, 50-150 places, quota for
either:
i.
Afghans with existing family residence applications lodged (such as under the
refugee family support category); or
ii.
Extended family of resettled Afghan Interpreters (after the Minister of
Immigration’s discussion with this group); or
iii. Gender and human rights advocates and others at risk stil in Afghanistan who
are referred to New Zealand by recognised international bodies.
4.
We have also in response to questions about CORS and other community capacity
expanded the paragraph on CORS reiterating that it can be presented as an opportunity to
focus on Afghan refugees and test community housing and other support capacity.
1982
…to reflect changing circumstances
ACT
5.
Since we provided the last version to you, the Minister for COVID-19 Response has agreed
that all evacuees can be given MIQ spaces from the Emergency Al ocation (EA).
6.
However, MIQ is under sustained pressure due to the community outbreak, which has led to
the conversion of managed isolation facilities into quarantine facilities and used up the MIQ
operational reserve of rooms to relocate returnees. There is a significant risk that in the
INFORMATION
coming weeks there wil be no MIQ rooms available to accommodate the number of Afghan
evacuees seeking to enter the country.
7.
As you are aware, the timing of future arrivals of Afghan evacuees is uncertain. Officials are
OFFICIAL
monitoring the situation. It is likely that the content of this section of the Cabinet paper wil
change again in the final version lodged for DEV.
THE
8.
s 9(2)(g)(i)
In its place, Immigration New Zealand (INZ) wil
lead the provision of resettlement s
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sought by MSD has decreased by $1.132 mil ion and the funding sought by INZ has
increased by $2.3 million.
…to refine the costings and
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9.
Over the last week, agencies have worked with Treasury to refine the quantum and nature of
the funding sought to support the Afghan evacuees, particularly in light of the change in
provider for resettlement support services set out in the previous paragraph. The paper now
seeks Cabinet agreement to make:
a.
$16.729 mil ion available immediately; and
b.
up to $21.723 million available in the future, subject to the approval of joint Ministers.
10. We have also streamlined the contextual information at the front of the paper.
The paper needs to be finalised for lodgement on 21 October at 10am
11. We are working to the paper being considered at DEV on 27 October 2021. This means the
following timeline:
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Thursday 21 October, 10am Due date for lodgement of the final paper
Wednesday 27 October
Consideration at Cabinet Economic Development Commit ee (DEV)
Monday 1 November
Cabinet confirmation
Annex
Annex 1 – Final Cabinet paper for lodgement
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Recommended action
The Ministry of Business, Innovation and Employment recommends that you:
a
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Noted
b
Forward the Cabinet paper
to the other Ministers you wish to consult.
Agree / Disagree
Out of Scope
d
Direct officials to make any changes you seek before lodgement.
Agree / Disagree
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INFORMATION
Andrew Craig
Hon Kris Faafoi
Manager, Immigration (Skil s and Residence) Minister of Immigration
Policy
Labour, Science and Enterprise, MBIE
OFFICIAL ..... / ...... / ......
15 October 2021
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Annex 1 – Draft Cabinet Paper
Withheld under section 9(2)(g)(i) and section 6(a)
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Final Cabinet paper for lodging – Afghan evacuees
Date:
28 October 2021
Priority:
Urgent
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number:
Action sought
Action sought
Deadline
Hon Kris Faafoi
Note the changes made since the
As soon as possible
Minister of Immigration
last draft we provided.
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Hon Nanaia Mahuta
Agree to lodge the final version of ACT
Minister of Foreign Affairs
the Cabinet paper as soon as
possible for consideration at CBC on
1 November.
Contact for telephone discussion (if required)
INFORMATION
Name
Position
Telephone
1st contact
Manager, Immigration
Andrew Craig
Policy (Skills and
04 901 1245
OFFICIAL
s 9(2)(a)
Residence)
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Policy Advisor,
Simon Barrett
Immigration Policy (Skills
s 9(2)(a)
and Residence)
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The fol owing departments/agencies have been consulted
Treasury, Ministry of Housing and Urban Development, Oranga Tamariki, Ministry of Education,
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Ministry of Ethnic Communities, Ministry of Foreign Affairs and Trade, Ministry of Health, Ministry
of Social Development, New Zealand Defence Force, New Zealand Police, Department of the
Prime Minister and Cabinet, National Emergency Management Agency, and Kainga Ora.
Minister’s office to complete:
Approved
Declined
Noted
Needs change
Seen
Overtaken by Events
See Minister’s Notes
Withdrawn
Comments
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Afghanistan response – final Cabinet paper for lodgement and talking
points
Date:
28 October 2021
Priority:
Urgent
Security
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Purpose
To provide you with a final Cabinet paper,
Resettling Afghan evacuees: settlement support,
COVID-19, and considering options to extend our response, for lodging as soon as possible for
consideration at Cabinet Business Committee (CBC) on 1 November.
We amended the paper…
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…in line with feedback from Ministers
1.
We have provided several drafts to you throughout October so you coul
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Ministerial colleagues.
2.
We have amended the last draft in accordance with comments from Ministers, i.e. we have:
a.
Added a clear explanation of the numbers of people we are obliged to help near the
beginning, along with information on visa categories
INFORMATION
b.
Better outlined the supports given by MFAT to people who may end up in Pakistan and
other third countries, as well as outlining the supports we are trying to give to people
with visas who are in Afghanistan OFFICIAL
c.
Shortened the paper.
…to refine the costings
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3.
Over the last week, agencies have worked with Treasury to refine the quantum and nature of
the funding sought to support the Afghan evacuees.
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4.
The paper now seeks Cabinet agreement to make:
a.
$16.729 mil ion available immediately; and
b.
up to $21.784 mil ion available in the future, subject to the joint approval of the relevant
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portfolio Minister and the Minister of Finance.
The paper needs to be lodged as soon as possible
5.
We are working to the paper being considered at CBC on 1 November 2021. Normally the
paper would need to be lodged by 10am the Thursday before (in this case, 28 October). As
this deadline has passed, the paper wil need to be lodged through the late lodgement
process. Your office can organise this. If CBC considers the paper on 1 November the CBC
Minute wil be confirmed by Cabinet on 8 November.
Annexes
Annex 1 – Final Cabinet paper for lodgement
Annex 2 – Talking points
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Recommended action
The Ministry of Business, Innovation and Employment recommends that you:
a
Note the changes made since the last draft you saw.
Noted
b
Agree to lodge this Cabinet paper for consideration at the Cabinet Business Commit ee (CBC)
on 1 November.
Agree / Disagree
c
Note that this requires your office to submit a late lodgement form.
Noted
1982
ACT
Andrew Craig
Hon Kris Faafoi
Manager, Immigration (Skil s and Residence) Minister of Immig
INFORMATION
ration
Policy
Labour, Science and Enterprise, MBIE
..... / ...... / ......
28 October 2021
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Annex 1 – Final Cabinet Paper
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Annex 2 – Talking points
General
•
New Zealand’s response to the situation in Afghanistan is comprehensive, extensive,
resource intensive, internationally credible, and comparable to like-minded nations.
•
Of icials are working across a range of agencies and portfolios to support the evacuees.
•
In total, up to 1,600 evacuees could arrive. As 19 October, 449 people have arrived already
but others face dif iculties travelling to New Zealand.
We seek Cabinet agreement to funding for services
•
Funding is needed to provide services to support these people.
•
Given the uncertainty around the timing of arrivals, we seek agreement to (i) immediate
funding to support those that are here and are likely to arrive in the near term, and (i ) funding
subject to approval by joint Ministers to support future arrivals, if necessary.
•
We seek $16.729 mil ion immediately to fund:
o
Costs in the Immigration portfolio, primarily extended temporary accommodation for
those that have arrived or are expected to arrive soon
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o
Oranga Tamariki to provide social work services, meet the cost of children coming in to
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care, and cover social service support for 12-14 Afghan evacuee families for a year
o
the Ministry of Social Development to provide a one-off Re-establishment grant to help
the individuals to resettle in New Zealand
o
Provide additional funding to support increased demand on English for Speakers of
Other Languages (ESOL) provision within the tertiary secto
INFORMATION r and learning support
within schooling for Afghan evacuees.
•
We seek up to $19.584 mil ion of funding to support costs incurred by the Immigration
portfolio, with approval delegated to the Ministers of Finance and Immigration.
OFFICIAL
•
The paper seeks policy decisions in accordance with these funding decisions.
THE
COVID-19, MIQ and evacuees
•
Of icials wil undertake a public health assessment to inform consideration by the Director-
General of Health of a potential clas
UNDER s exemption to the COVID-19 ‘very high risk country’
policy for eligible Afghan nationals.
•
Cabinet already agreed that people seeking to travel to New Zealand as part of our Refugee
Quota Programme are exempted from the requirement to be fully vaccinated before
travelling.
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•
For the avoidance of doubt, agreement that the exemption for refugees is intended to cover
any eligible Afghan nationals and family members travelling to New Zealand under the
current New Zealand Government response was confirmed by the Reconnecting New
Zealanders Ministerial Group on 28 October.
•
The Minister for COVID-19 Response has agreed to grant MIQ Emergency Al ocation spaces
to evacuees. Officials wil provide further advice if a large number of evacuees seek to enter
New Zealand at the same time, meaning suf icient MIQ spaces are not available.
•
The Minister for COVID-19 Response seeks agreement to amend the COVID-19 Public
Health Response (Managed Isolation and Quarantine Charges) Regulations 2020 to include
a Ministerial class waiver power for groups of people included in the Afghanistan
resettlement response.
Options for extending New Zealand’s response
•
We seek agreement to allocate the following places to Afghan refugees in the next three-
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year RQP cycle:
o
200 places in 2022/23;
o
250 places in 2023/24; and
o
300 places in 2024/25.
•
It is important to note that that the refugee quota also includes:
o
200 places for large-scale crisis situations; and
o
at least 150 places for women at risk.
•
These places may be allocated to Afghan refugees and other existing crises, as well as other
situations that emerge throughout this period.
•
I will come back with decisions on other categories and sub-categories within the quota by
March 2022.
s 9(2)(g)(i) 1982
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•
If we want to expand our offering, we could direct officials to develop one of these options:
o
Expanding the Community Organisation Refugee Sponsorship programme, dependent
on indications of community housing capacity
o
Providing an additional an additional capped, balloted resettlement pathway for either:
Extended family of Afghans living in New Zealand; or
INFORMATION
The extended family of Afghan Interpreters resettled in New Zealand; or
Human and Gender rights advocates at risk in Afghanistan identified by
international or representative bodies.
OFFICIAL
•
These options require further decisions
THE on design and funding.
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Costs for Cabinet paper
Temporary accommodation
Accom. Security, catering (400)
$ 4,
446,840.00
Accom (1200)
$ 10,
540,000.00
Catering
$ 1,
396,800.00
Security
$ 2,
080,000.00
Staffing
$ 3,
201,600.00
Legal
$ 30,
000.00
Contingency
$ 1,
500,000.00
$ 23,
195,240.00
Staffing to find houses and pre-rent
Staffing
$ 1,
536,000.00
Pre-rent
$ 180,
000.00
$ 1,
716,000.00
Settlement support, travel, furniture
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Settlement
$ 2,
300,000.00
Domestic travel
$ 124,
500.00
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Furniture (400)
$ 405,
900.00
Furniture (1200)
$ 1,
230,000.00
$ 4,
060,400.00
Visa processing
Residence
$ 481,
500.00INFORMATION
PRV
$ 8,
400.00
Critical purpose
$ 123,
000.00
Total
$ 612,
900.00
$ 29,
584,540.00
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Document Outline
- Update on Afghan Response 25 Aug 21.pdf
- AIDE MEMOIRE
- Update on Afghanistan Response
- AIDE MEMOIRE
- Update on Afghanistan Response
- Purpose
- Context
- Overview of response
- Key areas of progress
- Applications
- Support in the Middle East
- Arrivals in New Zealand
- Proposed changes to eligibility criteria
- Next steps
- BRIEFI~1.PDF
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- Purpose
- Recommended action
- Clarification of Ministerial intent regarding visa holders in Afghanistan
- Proposed amendments to immigration instructions
- We recommend that the clarified border instruction is reviewed and likely removed after the emergency evacuation phase is complete
- Unintended consequences of the current instructions and clarification
- Communication
- Annexes
- Annex 1: Proposed amendments to Temporary and Residence (border entry) immigration instructions effective on and after date of signature
- 2122-1074 Advice on verification of Afghan nationals and evacuees who did not meet criteria.pdf
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- Purpose
- Executive summary
- Recommended action
- Background
- Verification and other checks undertaken on the initial cohorts
- Further information on evacuated Afghans who did not meet agreed criteria
- Further information on the use of the United Nations Refugee Agency process
- Next steps
- MFAT Paper -(FINAL) 2122-1134 Afghanistan Response - Repatriation and Resettlement.pdf
- AFGHANISTAN RESPONSE – REPATRIATION AND RESETTLEMENT
- Tukunga tūtohua – Recommended referrals
- Taipitopito whakapā – Contact details
- Pito matua – Key points
- Tūtohu – Recommendations
- Pūrongo – Report
- Overview of the Afghanistan Situation and Context for the Ongoing Response
- Immediate Response Priority: Support for New Zealanders and Eligible Afghan Nationals Who Remain in Afghanistan
- Immediate Response Priority: Management of New Zealand Arrivals
- Further Advice on Medium Term Response
- 2122-1333 Meeting with the Afghan Veteran Interpreter's Association of New Zealand.pdf
- AIDE MEMOIRE
- Meeting with the Afghan Veteran Interpreters’ Association of New Zealand
- AIDE MEMOIRE
- Meeting with the Afghan Veteran Interpreters’ Association of New Zealand
- Purpose
- The Afghan Veteran Interpreters’ Association wrote to you
- Background on items for discussion
- New Zealand’s provision for Afghan interpreters
- New Zealand’s response to the situation in Afghanistan in 2021
- Options for expanding New Zealand’s response
- Culturally arranged marriage visa issues
- Annexes
- Annex One: Letter from AVIANZ
- Annex Two: Talking Points
- 2122-1429 Final Cabinet paper for lodging - Afghan evacuees.pdf
