Odgers' Australian Senate Practice Thirteenth Edition

Chapter 12 - Legislation

Right click over the text to activate a context menu for Odgers. (Note: on iPad Safari this function is activated by a finger press and holding down for several seconds.)


Passage of Legislation by Senate

1. The only exception to this principle is in relation to the limitation on debate on urgent bills, initiation of which is reserved to ministers; see under Limitation of debate, below. 2. For precedents, see below, under Control of bills. 3. See Chapter 8, Conduct of Proceedings, under Government and general business. 4. See Evidence Amendment (Journalists' Privilege) Bill 2010 introduced in the House by Mr Wilkie MP and ordered to be listed on the Notice Paper as government business, 15/11/2010, J.263; Auditor-General Amendment Bill 2011, introduced in the House by Mr Oakeshott MP, initially dealt with in the Senate as general business but finally designated as government business by order agreed to 21/11/11, J. 1845; Safety, Rehabilitation and Compensation Amendment (Fair Protection for Firefighters) Bill 2011, 10/11/11, J.1837. 5. SO 111(1). 6. SO 111(3), (4). 7. SO 128. 8. SO 155. 9. For precedents of a message made an order of the day: 14/12/1988, J.1309; a message not acted on, bill superseded: 1/6/1990, J.205; message not acted on pending government negotiations with other parties: 20/6/2002, J.423; message not acted on, bill abandoned by government: 14/8/2006, J.2463, 2474. 10. SO 113(1), (2). 11. SO 113(3). 12. For an instance of the motion in paragraph (a) being negatived and the bills proceeding by the deliberate method, see carbon pollution reduction scheme bills 17/11/2009, J.2728-30; subsequently altered, 26/11/2009, J.2884; and 22/2/2010, J.3171-73. 13. For an instance of the motion in paragraph (b) being negatived and the bills proceeding separately, see three private health insurance incentives bills 4/2/2010, J.3132; subsequently altered in respect of two of the bills, 22/2/2010, J.3157. 14. For instances of the questions being considered separately, see migration bills, 20/9/2001, J.4900-1; textile, clothing and footwear bills, 7/12/2004, J.236; carbon tax bills, 12/10/2011, J.1616-7; steel transformation plan bill, 31/10/2011, J.1654-6. 15. Marriage Amendment Bill 2004, 13/8/2004, J.3927-8. 16. See Chapter 10, Debate, under Dividing the question. 17. 8/6/1989, J.1842. 18. 12/3/1991, J.852; 16/6/2003, J.1851. 19. 29/5/1989, J.1734; 8/6/1989, J.1835; 13/6/1989, J.1862; 17/8/1989, J.1948; 11/10/2000, J.3364; 27/11/2000, J.3583; 13/8/2004, J.3922-3; 22/3/2011, J.717; 18/8/2011, J.1288; 14/9/2011, J.1453. 20. 18/5/1993, J.175-6; 26/5/1993, J.267; 4/2/2010, J.3126; for a bill negatived at the second reading, revived and taken together with other bills, see 10/9/2003, J.2329. 21. 12/9/2005, J.1073-4. 22. See SD, 12/9/2005, p. 9. 23. SO 111. 24. SO 111(6). 25. 11/9/2003, J.2348. 26. 7/11/2003, J.2672. 27. See below, under Commencement of legislation. 28. 18/8/1993, J.360-2, 364-6. 29. 29/11/1994, J.2557-60. 30. J.3128. 31. See SD 5/4/2001, pp 23754-5; SD, 27/11/2006, pp. 1-17. 32. SO 112(1). 33. SO 112(1). 34. For an account of earlier bills rejected at the first reading, see ASP, 6th ed., pp. 436-7. For a bill negatived at the first reading in the modern era, see the Marriage Amendment Bill 2004, 24/6/2004, J.3752. This bill was subsequently revived: 13/8/2004, J.3927-8. 35. SO 112(2). 36. See Chapter 13, Financial Legislation. 37. 13/11/1995, J.4087-8. 38. SO 112(4). 39. 17/9/1974, J.180, 186; 28/5/1975, J.708-9; 3/6/1975, J.746; 13/10/1983, J.385-6; 19/10/1983, J.397; 10/12/1986, J.1588. 40. See Chapter 21, Relations with the House of Representatives, under Disagreements between the Houses. 41. Ruling of President Givens, 14/12/1916, J.493. 42. Ruling of Deputy President Drake-Brockman, SD, 29/9/1966, p. 863. 43. See Chapter 21, Relations with the House of Representatives, under Disagreements between the Houses. 44. See Chapter 9, Motions and Amendments, under Same question rule. 45. SO 114(2); for precedent of a bill deferred till "this day 12 months", see 13/6/1984, J.986: this had the same practical effect. 46. SO 114(3). 47. See Chapter 10, Debate, under Relevance. 48. 5/12/1973, J.568. 49. 15/12/1987, J.430-1; 16/12/1992, J.3400; 20/9/1995, J.3815-6; 12/8/2003, J.2089-90. 50. 3/12/1985, J.6845, 6878; 4/12/1985, J.6945, 6968; 16,17,21/10/1986, J.1320, 1323, 13245, 13403; 19/6/1992, J.2520-2; 2/12/1992, J.3189-90, 3192. 51. 23/8/1995, J.3667-8, 3670. 52. 25/11/1959, J.225. 53. 30/9/1971, J.709; 28/9/1978, J.387. 54. 17/10/1988, J.1019-21; reference of provisions before second reading: 30/10/1989, J.2177-8. 55. For example, 4, 6/5/1992, J.2239, 2281. 56. For example, 26/3/1997, J.1799-1800; 11/5/2000, J.2702; 29/6/2000, J.2978; 25/6/2003, J.1978; 15/10/2008, J.1023-4; 14/5/2009, J.1957-8, 1966-7; 13/5/2010, J.3485. 57. 14/9/2006, J.2706. 58. Report by the Finance and Public Administration Committee on proposed access card, PP 106/2007. 59. For example, wheat marketing bills, 12/3/2008, J.209; personal property securities bill, 13/11/2008, J.1193; Australian privacy amendment legislation, 24/6/10, J.3763, 30/9/10, J.160. 60. 21/12/1988, J.1359. 61. 31/1/1995, J.2799-2800. 62. SO 115(2). 63. SO 115(6). 64. Ruling of Deputy President Nicholls, upheld by the Senate, 21/6/1950, J.92-3; see also 19/3/1987, J.1704-5; 9/12/1987, J.390; 10/12/1992, J.3289. 65. 8/4/1974, J.92; 30/10/1974, J.307; 31/3/1977, J.69; 25/6/1992, J.2639-40; 3/3/2011, J.669. 66. See below for the circumstances in which referral of provisions of a bill is taken to be the equivalent of referral of the bill. 67. 28/9/1978, J.387-88; ruling of President Sibraa, 11/10/1990, J.322-3; 26/11/1990, J.476. 68. New Tax System bills, 24, 25/11/1998, J.143-50, 166. 69. For a reference of proposed amendments to a bill to a select committee, see 25/11/2003, J.2708-9. For a reference to a Senate committee of proposed government amendments to be moved in the House of Representatives to bills not before the Senate, see 26/6/2002, J.488. For the establishment of a select committee to consider a bill when amendments were the subject of disagreement between the Houses and under consideration in committee of the whole, see 28/11/1994, J.2542-44. 70. 28/5/1986, J.1019; 7/10/1987, J.146; 8/12/1987, J.372; 9/12/1987, J.3767; 25/6/1992, J.2640. 71. 23/3/1999, J.595. 72. SO 115(3). 73. For precedent, see the referral of the provisions of the temporary flood and reconstruction bills to the Economics References Committee, with other terms of reference, 3/3/2011, J.669-70. 74. See Chapter 13, Financial Legislation, under Consideration of appropriation bills by estimates committees and in committee of the whole. 75. New Business Tax System (Consolidation and other Measures) Bill (No. 1) 2002, 18/11/2002, J.1131; Telstra (Transition to Full Private Ownership) Bill 2003, 27/10/2003, J.2622; National Rental Affordability Scheme Bill 2008 and an associated bill, 13/11/2008, J.1213. 76. SO 24A. 77. See above under Reference to standing or select committee. 78. For a reference arising from a Selection of Bills Committee report requiring a committee to report on a bill on the next day, see 6/12/2004, J.215; 7/12/2004, J.246. 79. SO 115(5). 80. 27/11/2003, J.2747. 81. 12/11/1990, J.422. 82. 4/6/1991, J.1100. 83. 4/6/1991, J.1111; 6/6/1991, J.1155. 84. PP 398/1988. 85. See Chapter 16, Committees, under Scrutiny of Bills Committee. 86. SO 115(2). 87. SO 150(1). 88. SO 150(2). 89. See ASP, 6th ed., pp. 469-70, and under Committee of the whole: amendments, below. 90. J.3424-5. 91. 30/10/2000, J.3429-30; 31/10/2000, J.3440-3. 92. J.3997-4001. 93. J.4538-40. 94. 15/11/2002, J.1092-9; 12/12/2002, J.1363-81, 1413-33. 95. 20/10/1993, J.646-8. 96. 8/9/1981, J.474; 23/9/1981, J.530; 28/10/1981, J.606; 27/10/1982, J.1174; 4/12/1991, J.1835-7; 9/12/1994, J.2787; 18/10/1996, J.756-7; for a discussion of the power of the Senate to divide certain tax bills, see ASP, 6th ed., pp. 461-7. 97. SO 115(1). 98. 5/11/1987, J.268-9. 99. See Chapter 14, Committee of the Whole Proceedings; for precedent, 13/6/1984, J.986. 100. For the nature of proceedings in committee of the whole generally, see Chapter 14, Committee of the Whole Proceedings; for precedent of a bill amended in the Senate rather than in committee of the whole, 3/4/1974, J.84. 101. SO 117; a clause is a numbered paragraph of a bill which becomes a section of the resulting statute when the bill is passed. 102. See Chapter 11, Voting and Divisions. 103. SO 118(3). 104. See Chapter 9, Motions and Amendments, under Amendments. 105. See Chapter 10, Debate, under Dividing the question; the provision in SO 84(3) applies by virtue of SO 144(7); see 27/10/1931, J.408. 106. SO 117(1). 107. 8/3/1967, J.35; 24/8/1984, J.1049-50. 108. SO 118(4). 109. SO 116. 110. 19/6/1901, J.37; 20/6/1901, J.42; 30/1/1902, J.268. 111. SO 117(5). 112. 28/5/1992, J.2349-50. 113. 14/11/1991, J.1709 and 1719; 18/12/1991, J.1960; 3/12/1992, J.3211, 3219. 114. Social Security (Budget and Other Measures) Bill 1996 and associated bill, 13/12/1996, J.1317-31. 115. SO 118(1). 116. See Chapter 10, Debate, under Relevance; and above under Second reading. 117. Rulings of President Baker, SD, 14/7/1904, p. 3243; 27/10/1905, pp. 4202-4; 14/11/1905, p. 5004. 118. 5/5/1986, J.967-8; 4/12/1986, J.15589. 119. SO 118(2); 23/2/1944, J.44-5; for a suspension of this rule, see 23/6/1999, J.1228. 120. SD, 8/11/2000, pp. 19358-9. 121. Rulings of President Baker, SD, 27/9/1906, p. 5591, of President Givens, 10/10/1918, p. 6776. 122. For amendments which significantly altered the effect of a bill: 4/6/1992, J.2432-3. 123. 30/11/1932, J.188; 16/8/1972, J.1061; 10/12/1976, J.545-6. 124. See Chapter 16, Committees, under Scrutiny of Bills Committee. 125. SO 119. 126. See Chapter 14, Committees of the Whole, under Reporting progress. 127. 20/5/1975, J.655-7. 128. SO 120(1). 129. SO 120(2); 18/6/1991, J.1216. 130. 14/12/1989, J.2385; 22/3/1995, J.3114. 131. 11/11/1981, J.643; 4/5/1992, J.2249; 15/12/1992, J.3370; 11/7/1998, J.4343. 132. See under Recommittal, below. 133. Statement by President Reid, SD, 11/7/1998, pp. 5708-9. 134. 30/6/1995, J.3629-30; 25/9/2002, J.821. 135. 29/8/2001, J.4808-10. 136. SO 120(2). 137. Ruling of President Givens, SD, 18/3/1920, p. 506. 138. Ruling of President Givens, SD, 25/11/1920, pp. 7014-5; 9/12/1971, J.850-1; 14/12/1982, J.1315; 2/12/1983, J.540-1; 16/10/1984, J.1228; 24/3/1994, J.1524-6. 139. 24/3/1994, J.1504. 140. 25/2/1977, J.595. 141. 11/4/1986, J.884; 24/3/1994, J.1504; 13/12/1996, J.1337. 142. 17/11/1993, J.800; 22/11/1993, J.843. 143. 24/3/1994, J.1517. 144. 25/3/1999, J.626. 145. 31/5/1985, J.381. 146. SO 121. 147. 15/8/1974, J.166; 15/6/1989, J.1895-6. 148. 26/2/1932, J.19-20, 23. 149. 14/3/2005, J.493. 150. Ruling of President Gould, SD, 1/10/1909, p. 4022. 151. SO 122(1). 152. Rulings of President Givens, SD 12/3/1926, p. 1589, 1591; of President Lynch, SD 24/10/1935, pp. 1038-9, 13/11/1935, p. 1527. 153. SO 122(3); 8/10/1985, J.490; 7/9/2000, J.3260. 154. SO 123. 155. Ruling of President Baker, 30/11/1904, J.159. 156. SO 122(4). 157. J.561-3. 158. For the same process effected by a simpler method, see 25/11/2003, J.2722-3;4/2/2010, J.3145-47. 159. See below under Revival of bills. 160. SO 124. 161. SO 97(4); 6/12/1939, J.273; 11/11/1959, J.193; 12/2/1975, J.504; 4/3/1992, J.2060; 3/3/1997, J.1523. 162. For precedent, see the schedule of amendments made by the Senate to the Native Title Bill 1997 [No. 2], Govt (70), Opp (RN 34) and Opp (RN 35); VP, 9/4/1998, 2968-9, HRD, p. 2938. 163. For an account of this case, see OASP, 8th ed., pp. 258-9. 164. 13/3/2000, J.2428; 3/4/2000, J.2491, 2503. 165. 29/11/1912, J.178. 166. SO 126(2). 167. See below, under Disagreement of House with Senate amendments; Sydney Harbour Federation Trust Bill 2000, 6-7/2/2001, J.3860-1, 3885-93, 3902-3. 168. Broadcasting Legislation Amendment Bill 2001, 28/3/2001, J.4118-9. 169. SO 126(3). 170. An exposition of the similar rule applying to bills originating in the House of Representatives (see below) was provided by President Baker, SD, 11/6/1903, pp. 759-60. This rule does not apply to requests for amendments to bills originating in the House of Representatives: see Chapter 13, Financial Legislation, under Procedure for dealing with financial legislation. 171. See International War Crimes Tribunal Bill, 1/2/1995, J.2822. 172. SO 126(4). 173. SO 126(5). 174. SO 126(6). 175. For precedent, see Wheat Marketing Amendment Bill 1985, 23/5/1985, J.308 (reasons drawn up by a committee); Broadcasting Legislation Amendment (Digital Television Switch-over) Bill 2008, 5/12/2008, J.1474 (reasons adopted by motion without notice); SO 126(7), (8). 176. SO 127(1). 177. An exposition of the similar procedures applying to bills originating in the House (see below) was provided by President Baker, SD, 8/12/1904, pp. 8062-3. 178. SO 127(1); for conferences, see Chapter 21, Relations with the House of Representatives, under Conferences. 179. SO 132(2). 180. Ruling of President Sibraa, 21/10/1993, J.690-2; Procedure Committee, Second Report of 1994, PP 223/1994, pp. 4-28; statements by Deputy President, 10/2/1997, J.1400-1; 24/6/1997, J.2192-3; Taxation Laws Amendment Bill (No. 3) 1997, 30/9/1997, J.2571; customs and excise bills, 18/3/2009, J.1761-2; Fair Work Bill 2008, 19/3/2009, J.1866-8; Social Security and Other Legislation Amendment (Income Support for Students) Bill 2009, 24/11/2009, J.2842-4. 181. Statement by President Hogg in respect of the Social Security and Other Legislation Amendment (Income Support for Students) Bill 2009, 24/11/2009, J.2846. 182. See Chapter 10, Debate, under Dividing the question. 183. 6, 7, 8/7/1998, J.4200-47, 4248-9, 4252-3, 4254-9, 4262-3; see also Electoral and Referendum Amendment Bill (No. 2) 1998, 27/9/1999, J.1754-5; Australian Research Council Bill 2000 and an associated bill, 8/2/2001, J.3915-7; 7/3/2001, J.4055-9; Child Support Legislation Amendment Bill (No. 2) 2000, 28/6/2001, J.4514-22. 184. Broadcasting Legislation Amendment Bill 2001, 28/3/2001, J.4118-9. 185. 30/11/2000, J.3649-52; see also Trade Practices Amendment Bill (No. 1) 2000, 18/6/2001, J.4314-5. 186. See Chapter 13, Financial Legislation, under Procedure for dealing with financial legislation. 187. See above, under Committee of the whole: amendments; 27/9/1999, J.1754-5. 188. Constitutional Convention (Election) Bill 1997, 28/8/1997, J.2354-5. 189. SO 134. 190. 8/11/1973, J.467; 1/5/1980, J.1301; 3/12/1997, J.3162). For an exposition of the rule by President Baker, see SD, 11/6/1903, pp. 759-60. This rule does not apply to requests for amendments to bills originating in the House of Representatives: see Chapter 13, Financial Legislation, under Procedure for dealing with financial legislation. 191. SO 133. 192. SO 135. 193. For a discussion of the question of whether this rule conforms with the Constitution, see ASP, 6th ed., pp. 508-9. 194. Ruling of President Baker, 11/10/1906, J.220. 195. Ruling by President Reid, 12/8/1999, J.1493-5. 196. 5/12/1973, J.567. 197. 14/3/1974, J.55. 198. SO 110; for roll calls, see Chapter 11, Voting and Divisions, under Roll call. 199. For observations on the propriety of this course, see speech by Senator Macklin, SD, 15/12/1983, pp. 3920-2. 200. 24/6/1914, J.98. 201. SO 138. 202. SO 138(5). 203. 15/4/1986, J.898899; 16/4/1986, J.904912; 17/4/1986, 917, 918. 204. SO 136; for prorogation, see Chapter 7, Meetings of the Senate under Meetings after prorogation or dissolution of House. 205. 22/4/1983, J.39; 22/2/1985, J.43; 20/3/1985, J.100; 9/5/1990, J.39-40; 1/6/1990, J.198; è1/5/1996, J.61-2. 206. 23/8/1990, J.235; 13/9/1990, J.264; 18/9/1990, J.283. 207. See Chapter 13, Financial Legislation; ruling of President Baker, SD, 30/8/1905, pp. 1627-34. 208. Hindmarsh Island Bridge Bill 1996, 25/3/1997, J.1757; retirement savings account bills, 12/5/1997, J.1885; Productivity Commission bills, 30/10/1997, J.2773; Interactive Gambling (Moratorium) Bill 2000, 5/12/2000, J.3730-1; Workplace Relations Amendment (Codifying Contempt Offences) Bill 2003, 21/6/2004, J.3561; National Health Amendment (Pharmaceutical Benefits-Budget Measures) Bill 2002, 24/6/2004, J.3682; Superannuation Laws Amendment (Abolition of Surcharge) Bill 2005, 10/8/2005, J.895; luxury car tax bills, 17/9/2008, J.872; Social Security Legislation Amendment (Employment Services Reform) Bill 2008, 4/2/2009, J.1525. For a bill negatived at the second reading, revived and taken together with other bills, see Superannuation (Surcharge Rate Reduction) Amendment Bill 2003, 10/9/2003, J.2329. For a bill negatived at the first reading and revived, see Marriage Amendment Bill 2004, 13/8/2004, J.3927-8. 209. 1/12/2004, J.166. 210. VP, 3/7/1998, 3202-4. 211. For example, in standing orders 67 and 97(3) relating to postponing orders of the day. 212. The only exception is the procedure for the limitation of debate on urgent bills: see below. 213. See ASP, 6th ed., pp. 546-9; also Chapter 8, Conduct of Proceedings, under Rearrangement of business and Suspension of standing orders. 214. 25/10/1989, J.2147-8; 26/10/1989, J.2156-7; 30/11/1995, J.4300; 1/12/1995, J.4345-6. 215. 23/6/2009, J.2146; 25/6/2009, J.2195-8. 216. J.2810-11. 217. J.2896-7. 218. 15/12/1988, J.1324. 219. 13/3/2000, J.2428; 3/4/2000, J.2491, 2503. 220. Urgent Relief for Single Age Pensioners Bill 2008, 22/9/2008, J.889-90; Independent Reviewer of Terrorism Laws Bill 2008 [No. 2], 11/11/2008, J.1131-2. 221. 5/11/1987, J.268; also see Procedure Committee, First report of 2010, PP 81/2010. 222. 22/8/1990, J.227; 19/9/1990, J.294. 223. 15/11/1995, J.4120. 224. 13/5/2009, J.1934; 25/6/2009, J.2194. 225. See Chapter 10, Debate, under Right to speak. 226. See Chapter 10, Debate, under Closure of debate. 227. For background on the development of the procedure, see Annotated Standing Orders of the Australian Senate, under SO 142. 228. SO 142(5). 229. Rulings of President Cormack, 14/9/1972, J.1106-7; of President Laucke, 16/5/1980, J.1351. 230. Rulings of President Cormack, SD, 6/6/1973, pp. 2401-13, 2531-2, 2547-8; 29/11/1973, J.538; 13/12/1973, J.623; of President Laucke, 20/5/1980, J.1361-2. 231. Ruling of President Laucke, 25/2/1977, J.599. 232. Ruling of President McMullin, 11/11/1954, J.103. 233. Ruling of President Cormack, 6/6/1973, J.264. 234. 4/6/1986, J.1060; 29/5/1987, J.1915, 1916; 3/6/1987, J.1952; 2/6/1988, J.823; see Chapter 8, Conduct of Business, under Suspension of standing orders. 235. Rulings of President Sibraa, 3/12/1991, J.1826-7; 5/12/1991, J.1870-2; 9/12/1991, J.1886, 1893; a complete treatment of these rulings is in Chapter 8, Conduct of Proceedings, under Suspension of standing orders. 236. See also Chapter 10, Debate, under Dividing the question. 237. SD, 14/9/2005, p.137. 238. 12/12/1996, J.1288-9. 239. 8/2/2006, J.1839; 12/10/2006, J.2799; 7/12/2006, J.3299; 23/6/2010, J.3690 (moved by an Opposition senator); 25/11/2010, J.435-7; 3/11/2011, J.1731-3; 21/11/2011, J.1841-5. 240. See 25/2/2010, J.3227-28; 22/6/2010, J.3650. 241. See proceedings on the Telecommunications Legislation Amendment (Competition and Consumer Safeguards) Bill 2010, 25-26/11/2010. 242. For an analysis of this matter, see Chapter 19, Relations with the Executive Government, under Effect of prorogation and dissolution of House on the Senate; also ASP, 6th ed., pp. 520-1. 243. VP, 15/2/1977, pp. 575-6. 244. VP, 21/6/2001, p. 2379. 245. See Chapter 15, Delegated Legislation. 246. See articles by Anne Lynch, 'Proclamation of Acts - When ... How ... If?', The House Magazine, 13 May 1987; 'Legislation by Proclamation - Parliamentary Nightmare, Bureaucratic Dream', Papers on Parliament No. 2, July 1988; 'Legislation by Proclamation - revisited', The House Magazine, 30 August 1989; 'Management and Mousetraps', The Parliamentarian, July 1994, pp. 194-9 (joint authorship with David Creed). 247. 13/6/1989, J.1869; 7/9/1989, J.2039. 248. 12/12/1989, J.2358. 249. 16/12/1992, J.3401. 250. 10/10/1991, J.1554; 19/10/1994, J.2323. 251. J.157-8. 252. 6/12/1983, J.546; SD, 6/12/1983, pp 3288-9.

Facebook LinkedIn Twitter Add | Email Print
Back to top