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Defending Australia and its National Interests

Coordination and Public Affairs

The keys to the Cabinet

By Warren Karle

Central to the workings of government in our political structure in Australia is the operation of the Cabinet system. Cabinet is the highest executive decision-making body in Government and comprises the Prime Minister and the Government's most senior ministers. Judgements about what matters are considered by Cabinet or its committees rest with Ministers, under the direction of the Prime Minister.

Each year, the Minister for Defence sponsors a large number of proposals considered by Cabinet or its committees, including the Defence Portfolio Budget Submission, requests for approval of major capital equipment and facilities projects, and a range of other policy and operational matters.

To support the Minister in his role, the Defence Cabinet Secretariat (DCS), within the Coordination and Public Affairs Division, manages Defence's Cabinet business in a way that is consultative and guarantees that all relevant material is available to decision-makers. As Chief of Staff Australian Defence Headquarters and Head Coordination and Public Affairs, Mike Pezzullo has senior executive responsibility on behalf of the Secretary and CDF for Defence's involvement in Cabinet business.

The DCS is involved at all stages in the development of Defence Cabinet proposals and is the sole departmental authority on Cabinet business and processes. It acts as the interface between Defence and the Cabinet Secretariat in the Department of Prime Minister & Cabinet (PM&C) on all Cabinet business at all stages of the process.

The DCS is one of Tony Corcoran's responsibilities as Assistant Secretary of the Ministerial and Executive Support Branch. It is important, he says, for all officers involved in the development of Cabinet proposals to be aware of the standards expected by Ministers, the Secretary and CDF for the timely development, clearance and lodgement of Defence submissions and memoranda.

Officers tasked with developing Cabinet proposals should contact the DCS as soon as possible to advise the requirement and to obtain the approved document templates. DCS provides advice on forward planning to meet Cabinet deadlines and constructive feedback on the quality of draft submissions and memoranda. A detailed reference guide on Cabinet processes and procedures has also been developed for use by all Defence officers developing papers for consideration.

Another vital ingredient noted by Mr Corcoran is providing the Minister with adequate time to consider policy proposals that are to be considered by Cabinet or its committees. All draft Cabinet documents, whether submissions or memoranda, require consultation with, and in most cases the approval of, the Secretary and CDF prior to seeking the Minister's agreement. Noting his busy schedule, it is important that the Minister be given the opportunity to consider all draft Cabinet documents within reasonable timeframes. Draft Cabinet documents should be provided for Ministerial approval at least four weeks before they are scheduled to be considered and the relevant lodgement deadline and meeting date should be clearly stated in the covering Ministerial submission.

Mr Corcoran says that officers drafting Cabinet documents need to consult closely with colleagues across Defence. All submissions must represent a consistent, whole-of-Defence view. The Defence Cabinet Secretariat Weekly Report, distributed to all Service Chiefs and Group Heads, facilitates this consultation process and highlights forward Cabinet business. Subject to Ministerial clearance and depending on the nature of the proposal, it is also important that colleagues from other departments and government agencies with an interest in the subject matter are consulted.

Cabinet, NSC and SCNS - What's the Difference?

The majority of Defence's Cabinet business is considered by the National Security Committee of Cabinet (NSC) - the focal point of executive decision-making on all national security matters. Membership of the NSC is comprised of the most senior ministers including: the Prime Minister, the Deputy Prime Minister, the Treasurer, the Minister for Defence, the Minister for Foreign Affairs, and the Attorney-General. Other Ministers, such as the Minister for Finance, are invited as required. The NSC meets monthly to consider strategic developments and major issues of relevance to Australia's national security interests.

Defence submissions and memoranda to NSC are first required to be considered by the Secretaries Committee on National Security (SCNS). This is important in ensuring that:

  • whole-of-government implications are taken into account,
  • facts are agreed, and
  • differences in policy at the officials' level are resolved (to the extent possible) in advance of consideration by NSC.

The Secretaries of PM&C and the Departments of Foreign Affairs & Trade (DFAT), Treasury, Finance, Attorney-General's and Defence, together with the Chief of the Defence Force (CDF) and the Director-General of the Office of National Assessments (ONA) are permanently invited to attend SCNS. The Director- General Australian Security Intelligence Organisation (ASIO) has the option to attend SCNS meetings for items of interest to ASIO, and other agency heads are invited as required. The SCNS also meets on a monthly basis, a fortnight prior to each NSC meeting.

Defence Cabinet Secretariat contacts:
Mr Tjorn Sibma - Assistant Director DCS (NSC/SCNS): (02) 6265 5923
Mrs Christine Palmer - Cabinet Liaison Officer: (02) 6265 4408
Ms Wendy Williams - Assistant Cabinet Liaison Officer: (02) 6265 5814

The online reference guide forms part of the Coordination and Public Affairs (CPA) Manual and can be accessed on the DRN at http://intranet.defence.gov.au/cpa/manual/mes/02_00_cabexec.htm.

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