Successive Australian governments have adopted various devices for ‘solving’ their rather modest problems of unvisaed arrivals by boat. One problem was the limited number of Convention signatories in the immediate region. Australia and New Zealand were almost alone, until Australia started offering financial and aid inducements to sign, which appealed to small and impoverished states. The United States did not sign international conventions, which required Congressional approval. Their traditional view was that the 50 states were independent parties who should not be committed to international agreements. This did not prevent the United States from being very active in the acceptance of refugees. Indonesia, Malaysia, Thailand, Singapore, Sri Lanka, India, Pakistan, Nepal, Brunei, Myanmar, Malaysia, Vietnam, Laos, Micronesia, Maldives, Bangladesh, Vanuatu and several minor Pacific states, were not signatories. The larger of these had considerable refugee populations already.

Most who are signatories, have only recently signed: Cambodia (1992), Fiji (1968), China (1982), Nauru (2011), Papua New Guinea (1986), Philippines (1981), Samoa (1988), Solomons (1995), Timor Leste (2003), Tuvalu (1986). The majority of these are very small and undeveloped. It is not surprising that Australia saw itself as limited to Timor, Nauru, Papua New Guinea and Cambodia, all poor and unsuitable. Australia is the richest state in this corner of the world, and neighbours may feel that its ‘burden’ is rather slight compared with theirs. The High Court has blocked relocation of non-signatories like Malaysia on the grounds of their inability to meet the Convention requirements.

Moreover, some of these unsigned states produced refugees who sought asylum in Australia, creating a mutual obligation of sorts once peace was restored. These included Timor Leste, Fiji, China, Sri Lanka, Nepal, Myanmar, Bangladesh and, of course, Vietnam, Cambodia and Laos. Few of these had any intention of being used by Australia for its unwanted arrivals. Some, like China or Vietnam might have considered the proposal insulting. Many regional states that are not Convention signatories have taken in very large numbers of refugees, especially India. Their refugee situation is not always secure or pleasant, but it is judged by them as safer than staying at home. The boats, trucks, buses and trains will still be moving refugees in Southeast Asia, whatever Australia does.