In order for program eligibility to appear on a community queue, the program's Public Listing must be set to "Public." However, this means that users with the ability to refer will also see these programs listed on the eligibility page after assessing a client, and they can freely refer them to these programs instead of just a community queue, which is not desired by (most) communities.

Turning off the "Create referral" access right means that they then can't refer to the community queue at all. There is a separate access right to "Refer Directly to Community Queue," so a similar access right to control the ability for users to make referrals from the eligibility page (or any direct referrals) would make program eligibility much more useful.