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Home > Publications > Government Handbooks > Cabinet Handbook > Preparation of submissions > 5.4 Information requirements for submissions

5.4 Information requirements for submissions

5.4.1 Preparation of a Cabinet submission coversheet

All Cabinet submissions with the exception of Significant Appointment submissions, require a coversheet.

The first lodgement copies of a coversheet of a Cabinet submission should be on white paper. For final submissions, coversheets must be copied on green paper with the attached body of the submission on white paper, except for Significant Appointment submissions which are on blue paper. Refer to Chapter 5.3.1 for a description of paper requirements for submissions.

The purpose of a coversheet is to provide a succinct summary of the contents and implications of a submission to be submitted to Cabinet. It provides a Minister with the facility to scan a submission quickly and to understand the fundamentals of the proposal. With the exception noted below, coversheets must not exceed two A4 pages, and must be prepared with prescribed headings.

Where two or more Ministers share substantial responsibility for a particular matter, it is appropriate for a joint submission to be presented to Cabinet. Where this is the case, the submission coversheet must be signed by all sponsoring Ministers. Refer to section 2.1 for a discussion on joint submissions being sponsored and signed by key Ministers only. Signature blocks for the sponsoring Ministers may necessitate exceeding the two page coversheet rule.

Refer to the example Cabinet submission coversheet appearing as Chapter 5.5. Explanation on the content requirements of headings follows.

Title

The title of the submission should be kept short and simple and preferably to one line. If the submission relates to legislation, then the title must include the proper name of that legislation, which should be in italics.

Minister(s)

Provide the title(s) of the Minister(s). In the case of a joint submission, the titles of all Ministers involved must be shown. If a Minister's title is included, that Minister must also sign the submission.

Objective(s)

A summary of the objective(s) of the Cabinet submission is required. This summary should succinctly state what Ministers are being asked to consider or decide. Do not list the recommendations. The objective is repeated in the body of the submission.

For a Policy Memorandum, the objective should clearly outline that Cabinet's direction is sought as to the preferred policy option from the options given.

Summary

Include a summary of key issues, financial implications and indicate urgency if necessary. This section will provide a concise overview or executive summary of the contents of the submission.

Consistency with Authority to Prepare (Authority to Introduce submissions only)

This section provides Ministers with a quick reference point to determine consistency between the Authority to Prepare submission and the Authority to Introduce submission.

Options (where necessary on a Policy submission; mandatory for a Memorandum)

The principal options for the government should be briefly stated in the coversheet information, but not form part of the recommendation. There is usually insufficient room to develop at length the arguments for and against every option. However, Ministers need to have a clear understanding of the alternatives available.

A preferred option will be recommended in a Policy submission, whilst with a Policy Memorandum, direction as to the preferred option will be sought.

Results of Consultation

Is there agreement? Yes/No See paragraph # of the body of the submission.

Recommendation(s)

The recommendation should clearly state the proposed course of action, usually derived from a series of options, for which the proposing Minister is seeking Cabinet support. The recommendations always move from the general to the specific. The first recommendation may provide an overview of the proposed course of action, while successive recommendations address specifics. The recommendations should not attempt to argue the case for the proposed course of action. The recommendation will serve as the basis for the Cabinet decision. Accordingly, the language and format should reflect the essential elements of a Cabinet decision.

All submissions must contain recommendations which indicate the specific roles of the Minister(s) and other authorities in implementing the decision and provide directions for implementation. A report back date to Cabinet on progress with implementation may also be included, where required.

The recommendation should include a definite completion date or milestone for the implementation of the decision. Where a recommendation relies on the introduction and passage of a Bill through Parliament, the Parliamentary Liaison Officer on behalf of the Leader of the House should be consulted regarding appropriate timeframes.

Recommendations must stand on their own and, as a general rule, must not state merely that approval is sought for the proposals outlined in the body of the submission or include options. If the recommendations are lengthy, the actual recommendations should be put in an attachment and the coversheet recommendation becomes:
"The recommendations outlined in Attachment 1 of the submission be approved".

To enable Ministers to quickly refer to the recommendations listed in Attachment 1, it should be placed immediately after the coversheet rather than at the back of the submission.

However, in most circumstances it is preferable the recommendations fit within the two page coversheet.

The final recommendation will relate to proactive release of the submission/decision and will be worded as follows:

That Cabinet note the submission/decision summary and attachments to be published online in five weeks time (refer Attachment X), subject to finalisation and approval by the Premier.

Minister(s) signature

The Cabinet Secretariat is instructed not to accept final Cabinet submissions without the Minister's signature unless special circumstances exist. In these circumstances, the covering letter should advise of the Minister's oral approval of the submission going forward, and the Chief Executive Officer may sign on the Minister's behalf. Where a Minister is on leave, the Minister acting in the first Minister's portfolio area may sign relevant submissions for Cabinet consideration.

In the case of a joint submission signatures of all sponsoring Ministers are required.

Date

The actual date (ie. day, month and year) on which the submission is signed by the Minister(s) must be shown immediately below the signature.

5.4.2 Preparation of a Cabinet Committee submission coversheet

A coversheet is required for a final Cabinet Committee submission and must be copied on pink paper with the attached body of the submission on white paper. Refer to Chapter 5.3.1 for a description of paper requirements for submissions.

As with a Cabinet submission, the purpose of the coversheet is to provide a succinct summary of the contents and implications of a submission to be submitted to the Cabinet Committee. It provides a Minister with the facility to scan a submission quickly and to understand the fundamentals of the proposal. Generally, coversheets should not exceed two A4 pages. Joint submissions may, however, necessitate exceeding the two page coversheet rule to allow for the signature blocks of sponsoring Ministers.

The layout and headings contained in the coversheet are the same as that required for a Cabinet submission, with the exception of the addition of Committee details to be included in the header.

Refer to the example Cabinet Committee coversheet appearing as Chapter 5.6. For explanation of the content requirements of headings, refer further to Chapter 5.4.1 "Preparation of a Cabinet submission coversheet"

5.4.3 Preparation of a body of a Cabinet submission

The body of a Cabinet submission should generally not exceed 10 A4 pages and must be prepared with prescribed headings. However, the headings required in the body of a submission will vary depending on the type of submission being prepared. For all submissions except Significant Appointment submissions, the body of the submission will be copied on white paper. A Significant Appointment submission will be copied on blue paper.

Refer to the example bodies of submissions appearing as Chapters 5.7 to 5.12.
Explanation of the various headings required, and their application follow:

Title (Significant Appointment only; for other submissions appears in coversheet)

The title of the submission should be kept short and simple and preferably to one line. If the submission relates to legislation, then the title must include the proper name of that legislation.

Minister(s) (Significant Appointment only; for other submissions appears in coversheet)

The title(s) of the Minister(s). In the case of a joint submission, the titles of all Ministers involved must be shown. If a Minister's title is included, that Minister must also sign the submission.

Objective(s) (all submissions)

A simple and succinct statement of the policy/legislative or other objectives of the Cabinet submission is required. Refer to additional comments regarding objectives in Chapter 5.4.1 "Preparation of a Cabinet submission coversheet"

Background (all submissions)

Generally, there are two components to the background segment of the Cabinet submission, namely, "Context" and "Previous Consideration by Cabinet".

Context:

The reasons and events which have led to the need for the government to take action on the matter should be clearly identified. Reference should also be made to relevant policy commitments given by the government, including the date and reference. References should be as specific as possible.

The policy or legislation development process used should be clearly identified eg. Green/White Paper, Intergovernmental Agreement or Industry submission.

In preparing an Authority to Introduce a Bill submission, conformity with the Authority to Prepare should be stated. If there is not conformity, the new or amended matters should be raised in the "Issues" section of the submission.

Where relevant, reference should be made to policy frameworks and/or legislative approaches in other jurisdictions and whether there is any available data on the success or otherwise of the policy/legislation. Detailed information may be included in the attachment to the submission.

In the case of a Significant Appointment submission, the role of the Committee, statutory body or authority should be outlined. The skills required by the proposed members should be highlighted.

Previous Consideration by Cabinet

Reference should be made to any previous Cabinet decisions of government (include the decision number and date), or any consideration by Cabinet Committees. Relevant recommendations of a Royal Commission, Commission of Inquiry, Parliamentary Committee, Ministerial Council, etc., should also be outlined.

Copies of Cabinet decisions must not be attached. It is important to indicate conformity with, or departure from, previous Cabinet decisions of government. Cabinet decisions of a previous government may be paraphrased to outline policies that affect the proposal.

Urgency (all submissions excluding Information submissions)

Give the reasons for urgency or any circumstances which may influence timing of consideration. Specify key dates and events, eg. further consideration requested by Cabinet, statutory deadlines, parliamentary deadlines (introduction into the House), Ministerial Council, conference deadlines etc.

Details of existing members and recommended candidates(s) (Significant Appointment only)

This section should state that the details of current and proposed Board/Authority/Committee/Tribunal membership are provided at Attachment 1. The purpose of Attachment 1 is to provide Cabinet with the full details of the Board appointments, including the members that are not being reappointed and the length of time existing members have served on the Board.

Details to be included in the table at Attachment 1 are: list all existing members in the first column (including members who have resigned and are no longer on the Board but whose position is being filled); their position; current status; date of appointment; and, if applicable, date and reason for resignation. In the second column include details for proposed new appointments including names, positions, and reason for appointment. If the person is being reappointed, do not enter name in again, only position details and reappointment details. An example table is in section 5.12.

Text on the information provided in the table, to expand on the board and nominations, to be added in this section including terms/length of appointment.

Proposed period(s) of appointment (Significant Appointments only)

This section should include the proposed periods of appointment for new members. Where the term is shorter than the maximum prescribed by legislation the reason for this should be stated.

Qualifications including reasons for appointment(s) (Significant Appointments only)

This should include particular aspects of the proposed appointment warranting comment, including other government appointments. A two page or less Curriculum Vitae for each candidate must be attached to the submission.

Membership on other government bodies (Significant Appointments only)

This section should include details on membership to other government bodies for all new and reappointed members. Details on all remuneration received should also be included.

Method of Appointment and Legislative Authority (Significant Appointments only)

This section should include a brief outline of the appointment process followed by the department and compliance with any legislative requirements. It should also outline whether the appointment is to be made by the Governor in Council or the Minister.

Issues (all submissions)

This part of a Cabinet submission is to identify the issues for consideration and determination. Presentation is to be logical, concise and contain sufficient information to enable Ministers to focus immediately upon the issues they are to discuss.

For Authority to Introduce submissions, the Premier's approval of proposed passage and commencement dates must be included under the subheading, 'Approved Timing of Passage and Commencement'. Refer to Chapter 7.1.4 Monitoring the legislative program.

For Significant Appointments, information should be provided on the suitability of the proposed member (ie. has the candidate been assessed in respect of conflicts of interest, criminal history, bankruptcy, etc.).

Departments also are required to record the gender balance of the body prior to the vacancies occurring, the subsequent balance if the proposed appointments are approved and address the matters outlined in section 6.2.1 below.

Remuneration and Conditions (Significant Appointments only)

Details are to be clearly specified in all appointment submissions including the dollar amount of remuneration and the applicable Department of Justice and Attorney-General category. Refer to Chapter 6.2.2 of this Handbook in relation to consultation requirements with the Public Sector Industrial and Employee Relations Division, Department of Justice and Attorney-General.

Options (where necessary on Policy submissions, mandatory on Policy Memoranda)

The principal options for the government should be detailed including information on the arguments for and against every option. Each option should be developed comprehensively but succinctly in order that Ministers may be informed in a clear and concise manner that aids decision-making.

For a Policy submission, a preferred option must be indicated in the recommendation(s) and in the development of the options. On a Memorandum, options will be explored, and the recommendation will seek the direction of Cabinet on a preferred option.

Consultation (all submissions)

Consultation is an essential part of the development of all Cabinet submissions. It should commence as soon as possible and carry through to Ministerial clearance of the final submission.

Consultation must be held with all relevant agencies or organisations affected by the proposal including Ministers, departments and other bodies such as employers, unions, community and special interest groups. For further information on consultation and the departments that should be consulted in specific circumstances, refer to Chapter 6 "Consultation"

Consultation with relevant agencies should only commence with the knowledge and approval of either the Minister or the Chief Executive Officer.

A brief summary of the nature of the consultation process undertaken within the public sector and with non-government organisations must be provided.

A Consultation Addendum summarising consultation details with departments must be attached to support this section. Refer to Chapter 5.4.6 "Consultation Addendum" for information on the purpose and content requirements of the addendum.

Results of Consultation (all submissions including Cabinet Committee submissions)

The results of consultation must be adequately reflected and recorded. Cabinet submissions should state the extent of agreement or disagreement arising from the consultation process. Every effort should be made to resolve minor disagreements prior to consideration of a submission by Cabinet.

Where there is agreement amongst those consulted, it is sufficient to record this fact and to state which Ministers, departments, committees, employers, unions, professional groups, community groups and others have been consulted.

In some cases independent agencies (such as the Queensland Audit Office) may be asked to comment on policy and legislative proposals from a technical viewpoint (for example the Queensland Audit Office may be asked to comment on accounting or audit implications). Comments received should not be represented as support or approval for the proposed policy except where the agency has specifically indicated its support in accordance with its role and responsibilities.

The Cabinet submission should state concisely and accurately any differing views from agencies or non-government organisations that either support a proposal with reservations or do not support a proposal and where subsequent agreement cannot be reached. Direct summary quotations from these groups should be used wherever possible.

Rural/Regional Impact Statement (all submissions excluding Information and Significant Appointment submissions)

The Rural/Regional Impact Statement is designed to inform Cabinet of the likely effect in rural/regional communities and includes such indicators as the economic and social consequences of the adoption of the proposal in the submission. Further, Cabinet should be informed of the basic strategy for management of the issue in rural/regional communities.

Refer to Chapter 6.2.2 in relation to consultation requirements with the Department of Employment, Economic Development and Innovation.

Employment and Skills Development Impact Statement (all submissions including submissions to CBRC but excluding Information and Significant Appointment submissions)

The government is committed to reducing unemployment and skilling the Queensland workforce. The Employment and Skills Development Impact Statement (ESDIS) is intended to assess the likely impact on employment and skills development (either positive or negative) of the action recommended in the Cabinet submission, and to identify where employment and skills development opportunities are being generated, sustained or decreased.

Employment and skills development issues should be considered an integral part of policy development and at an early stage. Consequently, Employment Initiatives, Department of Employment, Economic Development and Innovation (DEEDI) must be consulted in relation to the preparation of the ESDIS during development of the submission. Refer also to Chapter 6.2.2 "Departments and committees to be consulted" in relation to consultation with the DEEDI.

ESDIS guidelines and template have been developed to assist departments with a consistent approach to the preparation of ESDISs and to ensure that Cabinet is fully informed of the employment and skills development issues contained in the proposals submitted for its consideration and decision. The ESDIS in a Cabinet submission will vary depending on the proposal, and will be brief in most cases. However, the conclusions to be reported in the submission require appropriate consideration. The DEEDI ESDIS Guidelines (PDF, 964 KB) and template are available from the DEEDI.

Climate Change Impact Statement

Given the urgent nature of climate change and its wide ranging implications, Cabinet approved the requirement to include a Climate Change Impact Statement (CCIS) in all Cabinet, Cabinet Budget Review Committee (CBRC) and Budget submissions.

The CCIS will provide Cabinet with specific information on the potential greenhouse gas (GHG) emissions impacts or benefits of a proposal, and the potential risks to the proposal from projected changes in climate. For relevant submissions, an assessment must be completed to:

The Office of Climate Change, the Department of Environment and Resource Management should be consulted in relation to the preparation of the CCIS during development of the submission. Comprehensive CCIS guidelines (PDF, 419 KB) have been developed to assist departments with a consistent approach. The Office of Climate Change can be contacted for further information on email ccis.info@epa.qld.gov.au or telephone 3225 1513. (Refer also to Chapter 6.2.2 "Departments and committees to be consulted" in relation to consultation with the Department of Environment and Resource Management.)

Financial Considerations (all Submissions excluding Information and Significant Appointment submissions)

Funding of new or significant policy initiatives will be referred to CBRC for consideration. The Treasury Department cannot approve funding. It can only agree with the revenue and/or cost estimates. Initiatives or proposals that cannot be funded from existing appropriations must be directed to the CBRC in the first instance for consideration.

Subject to CBRC deciding that the proposal can be funded, it can then be referred to Cabinet for approval. The relevant Minister will be responsible for submitting the submission to Cabinet which will include referral to CBRC's deliberations.

Submissions must contain, or be supported by, the following information:

A statement of the Budget implications of each submission must be provided. This statement should be prepared in conjunction with the Treasury Department through the consultative process, and in a form of words agreed with the Treasury Department.

Implementation (all Submissions excluding Information and Significant Appointment, Enterprise Bargaining and Advertising Review Committee submissions)

Relevant submissions to Cabinet and Cabinet Budget Review Committee need to address how the proposal will be implemented, who will have responsibility for implementing the proposal, and the period of time it will take to implement.

While these matters will often be considered more broadly in the "Issues" section of the submission, the key considerations of who, what, and when of implementation should be addressed in this section.

For significant policy proposals, an Implementation Plan should be prepared prior to Cabinet consideration and attached to the submission for Cabinet's endorsement. A Cabinet-approved Implementation Plan will be required when the proposal meets at least one of the following criteria:

Where an initiative involves a number of submissions being developed over a period of time, an Implementation Plan should be prepared at an early stage to assist in monitoring progress. The Implementation Plan must be updated for each subsequent submission.

Where attachments to a submission address implementation issues, a summary should be included in the implementation section of the submission and attachments referenced accordingly.

Drafters of submissions should consult the Implementation Unit and/or Policy Division in DPC and their agency CLLO in determining whether an Implementation Plan should be attached to a submission.

Administrative Review Policy (all Cabinet submissions proposing a new right of review of an administrative decision, or where significant changes are made to existing review processes for administrative decisions).

The Administrative Review Policy guides decisions about whether a Queensland government decision should be subject to review, and if so, whether that review process should be internal and/or external.

If the review is to be heard through an external review process, the policy requires agencies to first consider conferring jurisdiction on the Queensland Civil and Administrative Tribunal before any other external body. The aim is to prevent the gradual increase in the number of separate review bodies being established.

Agencies when proposing to establish a new right of review of a Queensland Government decision, or when proposing a significant change to an existing review process, must set out in the relevant Cabinet submission how the issues identified in the Administrative Review Policy have been addressed.

Law and Justice Policy in the Department of the Premier and Cabinet can provide advice on the application of the policy. Strategic Policy in the Department of Justice and Attorney-General can provide advice on the application of the policy in specific circumstances, and in particular whether a particular decision should be subject to review.

Refer to Chapter 6.2.2 in relation to consultation requirements.

Criminal Justice Evaluation Framework (all Cabinet and Cabinet committee submissions that propose new criminal justice policy initiatives or seek funding to evaluate existing policy initiatives)

It is important that policy and program initiatives are evaluated to provide evidence of effectiveness. Quality evaluations improve planning and decision-making by identifying the most effective aspects of the initiatives and any barriers to success, help attract additional resources and promote accountability for publicly funded initiatives.

The Criminal Justice Evaluation Framework (CJEF) provides guidance on planning and implementing efficient and methodologically sound evaluations of criminal justice initiatives. Cabinet and Cabinet Budget Review Committee submissions that propose new criminal justice policy initiatives that require evaluation or seek funding to evaluate existing policy initiatives, must include evaluation plans which comply with the CJEF where practicable.

The Criminal Justice Research Unit, Department of the Premier and Cabinet, can provide assistance in developing these evaluation plans (telephone +61 7 3227 8436).

Refer to Chapter 6.2.2 in relation to consultation requirements with the Department of the Premier and Cabinet.

Public Presentation (all submissions)

Ministers are required to give careful consideration to the public presentation and timing of announcements of their proposals. If the announcement is to be made by media release, a draft media release is to be attached to the Cabinet submission.

Proactive release of a submission/decision summary (and attachments if applicable) is to be discussed under this heading. If no submission/decision summary is proposed for release, the submission will justify this, using the release criteria detailed in section 5.4.7.

Recommendation (Significant Appointment only; for other submissions appears in coversheet)

Refer to Chapter 5.1.7 "Significant Appointment submission" for details of wording of the recommendation.

Recommendations must stand on their own and not state that approval is sought for the proposed appointments outlined in the body of the submission. Refer to Chapter 5.4.1 "Preparation of a Cabinet submission coversheet" for additional information on drafting recommendations.

Minister(s) Signature (Significant Appointment only; for other submissions appears in coversheet)

The Cabinet Secretariat is instructed not to accept final Cabinet submissions without the Minister's signature unless special circumstances exist. In these circumstances, the covering letter should advise of the Minister's oral approval of the submission going forward, and the Chief Executive Officer may sign on the Minister's behalf. Where a Minister is on leave, the Minister acting in the first Minister's portfolio area may sign relevant submissions for Cabinet consideration.

In the case of a joint submission signatures of all sponsoring Ministers are required.

Date (Significant Appointment only; for other submissions appears in coversheet)

The actual date (ie. day, month and year) on which the submission is signed by the Minister(s) must be shown immediately below the signature.

5.4.4 Preparation of a body of a Cabinet Committee submission

The body of a Cabinet Committee submission will typically be of a policy type with the layout and headings the same as that required for a Policy Cabinet submission. For explanation of the content requirement of headings for a Policy submission, refer to Chapter 5.4.3 "Preparatin of a body of a Cabinet submission"

5.4.5 Preparation of a corrigendum to a submission

A corrigendum is used to correct minor errors or omissions in a Cabinet submission that has already been lodged with the Cabinet Secretariat and distributed to Ministers and Chief Executive Officers. Additionally they can provide extra details, consultation or coordination comments received after lodgement.

A corrigendum should not be used to fundamentally alter a policy proposal in a submission or the recommendations to submissions, given that the Premier has included the proposal on the Cabinet business list based on the first lodgement version of the submission and on policy advice received at that time. In the case of fundamental alterations, the submission should be withdrawn in Cabinet, and a redeveloped submission re-lodged for a subsequent Cabinet meeting.

Immediately it becomes apparent that a corrigendum may be required, departments must contact their Portfolio Contact Officer in the Department of the Premier and Cabinet to discuss the policy ramifications of the proposed amendments. This officer will either indicate support for the proposed corrigendum to be processed, or recommend that other alternative actions be taken under the prevailing circumstances.

CLLOs must advise the Cabinet Secretariat immediately they are aware that a corrigendum is required and must lodge the appropriate number of copies of the replacement page(s) with the Cabinet Secretariat. This must be accompanied by a page outlining the title of the submission, the submission number and a brief description of what specifically has been altered, to assist in the briefing process.

CLLOs should consider the impact of the corrigendum on the original submission, for example page numbering and double-sided copies, and factor this into the wording and format of the corrigendum.

Where a Minister wishes to proceed with a corrigendum even though the proposed amendments are deemed to be fundamental, and affecting the original policy basis for its inclusion in the Cabinet business list, the Minister will be required to seek the approval of the Premier in writing for its circulation.

Corrigenda will generally not be permitted to be circulated late in the week given that amendments to submissions at that late stage before the Cabinet meeting will significantly impact on the ability of other Ministers to prepare for Cabinet and receive meaningful policy advice from their agencies. Where it is too late to circulate a corrigendum, the Minister will be required to raise the amendment in Cabinet during deliberations.

5.4.6 Consultation Addendum

A Consultation Addendum summarising consultation details with departments must be attached to all submissions (including Cabinet Committee submissions) to support the consultation section.
The addendum should be referenced in the consultation section and be numbered in a similar manner to other attachments to a submission. Refer to Chapter 5.3.11 "Attachments"

The purpose of the addendum is threefold:

The Consultation Addendum must include the following minimum detail:

5.4.7 Preparation of proactive release attachment

Each Cabinet submission will include a "proactive release documents" attachment with:

Agencies must assess the submission and its recommendations (which will form) the basis of the decision) against the release criteria detailed below in determining whether a submission/decision summary could be published. If a submission/decision summary is to be published, each attachment must also be assessed for release against the release criteria.

Release Criteria

Material is released unless its disclosure could reasonably be expected to:

The final submission recommendation will be worded as follows;

OR

See also 5.4.1 "Preparation of a Cabinet submission coversheet".

Following Cabinet consideration of the submission, the submission/decision summary will be finalised in accordance with the decision and approved by the Premier prior to publication.

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Last reviewed: 17 July, 2009

Last updated: 22 July, 2009

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