Bills Digest no. 11 2015–16
PDF version [600KB]
WARNING: This Digest was prepared for debate. It reflects the legislation as introduced and does not canvass subsequent amendments. This Digest does not have any official legal status. Other sources should be consulted to determine the subsequent official status of the Bill.
Michael Klapdor
Social Policy Section
18 August 2015
Contents
List of abbreviations
Purpose
of the Bill
Structure
of the Bills Digest
Committee
consideration
Policy
position of non-government parties/independents
Financial
implications
Statement
of Compatibility with Human Rights
Schedule
1—Veterans’ Vocational Rehabilitation Scheme
Schedule
2—Reconsideration and review of determinations
Schedule
3—Graves of dependants of members of the Defence Force
Date introduced: 25
June 2015
House: House of
Representatives
Portfolio: Veterans’
Affairs
Commencement: Sections 1–3 on Royal
Assent; Schedule 1 on 20 March 2016; Schedule 2 on 1 January 2016 and
Schedule 3 the day after Royal Assent.
Links: The links to the Bill,
its Explanatory Memorandum and second reading speech can be found on the
Bill’s home page, or through the Australian
Parliament website.
When Bills have been passed and have received Royal Assent, they
become Acts, which can be found at the ComLaw
website.
Abbreviation
|
Definition
|
AAT
|
Administrative Appeals Tribunal
|
ADF
|
Australian Defence Force
|
Defence Act
|
Defence Act 1903
|
DVA
|
Department of Veterans’ Affairs
|
EDA
|
extreme disablement rate
|
MRCA
|
Military Rehabilitation and Compensation Act 2004
|
MRCC
|
Military Rehabilitation and Compensation Commission
|
SRCA
|
Safety Rehabilitation and Compensation Act 1988
|
VEA
|
Veterans’ Entitlements Act 1986
|
VRB
|
Veterans’ Review Board
|
VVRS
|
Veterans’ Vocational Rehabilitation Scheme
|
The Veterans’ Affairs Legislation Amendment (2015 Budget
Measures) Bill 2015 (the Bill) amends the Veterans’ Entitlements Act 1986 (the
VEA)[1],
the Military Rehabilitation and Compensation Act 2004 (the MRCA)[2]
and the Defence Act 1903 (the Defence Act)[3]
to:
- expand
the range of services available under the Veterans’ Vocational Rehabilitation
Scheme (the VVRS); and, make changes to the way certain periods of work
undertaken as part of the VVRS, income earned from that work and periods of
unemployment affect the rate of Disability Pension and/or Service Pension paid
to participants
- create
a single path of review for original determinations made under the MRCA
and
- allow
the Minister of Veterans’ Affairs to amend Regulation 31 of the Defence Force
Regulations 1952 so as to provide for the repatriation of the remains of
service dependants buried in the Terendak Military Cemetery in Malaysia.
Each of the Schedules in the Bill provides for a discrete measure.
Background information and analysis of the main provisions will be provided
separately for each Schedule.
On 13 August 2015, the Senate Selection of Bills Committee decided
not to refer the Bill to a committee for inquiry and report.[4]
At the time of writing the Digest, the position of
non-government parties and independents on the measures proposed by the Bill
are not fully known. The Labor Opposition has stated its support for the offer
to repatriate the bodies of the Vietnam veterans buried at Terendak War
Cemetery in Malaysia and Kranji War Cemetery in Singapore which forms the
context for the changes proposed by Schedule 3 but has not publicly commented
on the other Schedules.[5]
The Explanatory Memorandum to the Bill sets out the
financial implications of the measures as follows:
- Schedule
1—Veterans’ Vocational Rehabilitation Scheme: $0.7 million over four years
- Schedule
2—Reconsideration and review of determinations: a saving of $2.2 million over
four years
- Schedule
3—Graves of dependants of member of the Defence Force: $1.8 million over four
years.[6]
As required under Part 3 of the Human Rights
(Parliamentary Scrutiny) Act 2011 (Cth), the Government has assessed the
Bill’s compatibility with the human rights and freedoms recognised or declared
in the international instruments listed in section 3 of that Act. The
Government considers that the Bill is compatible.[7]
The Parliamentary Joint Committee on Human Rights
considered in its 25th report that the Bill required no additional comment.[8]
Schedule 1 amends the VEA to:
- expand
the range of services available under the Veterans’ Vocational Rehabilitation
Scheme (VVRS) and
- make
changes to the way periods of work undertaken as part of the VVRS, income
earned from that work and periods of unemployment affect the rate of Disability
Pension and/or Service Pension paid to participants.
In his second reading speech to the Bill, Assistant
Minister for Defence Stuart Robert described the amendments as ‘enhancements’
to the VVRS as the changes would:
... expand the range of services [available under the scheme]
to include medical management and psychosocial services. They will also result
in certain special and intermediate rate disability pensioners having a
smoother step down in disability pension whilst in the scheme and will
encourage veterans to remain or continue in the workforce.[9]
The changes were announced in the 2015–16 Budget.[10]
Background
The VVRS has been administered by the Department of Veterans’
Affairs since the mid-1990s and was introduced to meet concerns that younger
veterans were being accepted as totally and permanently incapacitated for work
without being provided with opportunities for vocational rehabilitation.[11]
It is a voluntary scheme aimed at assisting eligible veterans to find or
maintain paid employment. The scheme is intended for former members of the
Australian Defence Force (ADF) with qualifying service or those about to leave
the ADF—the ADF has its own rehabilitation scheme for serving members. The VVRS
is separate to other rehabilitation services provided under schemes such as the
Military Rehabilitation and Compensation Act 2004 (the MRCA) and
the Safety Rehabilitation and Compensation Act 1988 (the SRCA)
and veterans cannot undertake vocational rehabilitation under the VVRS
concurrently with any other vocational rehabilitation program.[12]
VVRS services include:
- assistance
in assessing and updating a veteran’s skills, job-seeking techniques and
interview skills
- assistance
to increase hours of work in an existing position, or, where the veteran is
having difficulty coping, to manage the situation or look at alternative
options
- assistance
to find suitable employment before the transition from the ADF to civilian
workforce and
- skill
development, or assistance in gaining recognition for skills, to assist in
finding employment.[13]
Who is eligible for VVRS services?
Eligibility for the VVRS is restricted to those who served
in the ADF and have one of following service types recognised under the VEA:
- operational
- peacekeeping
- hazardous
- defence
service (generally, at least three years full-time service during the period 7
December 1972 to 6 April 1994) and
- British
Nuclear Test Defence Service (in certain periods between 1952 and 1965).[14]
Commonwealth and allied veterans and allied mariners who
are eligible for an Invalidity Service Pension are also eligible to apply for
VVRS services.
The VVRS and VEA payments
While the VVRS is not restricted to those with disability,
as a rehabilitation service it is targeted at those with impairments that can
affect an individual’s ability to find and/or maintain employment. As such,
many VVRS participants may also be in receipt of payments from DVA in respect
of their impairment, particularly the veterans’ Disability Pension and the
Invalidity Service Pension.
Disability Pension
There are four different categories of Disability Pension payment
provided under the VEA, each with different origins and purposes. The
payments are not payable concurrently and each has a different payment rate.
Eligibility for the different rate category is primarily determined by an individual’s
level of impairment arising from an injury or illness linked to their military
service. The Disability Pension is a compensation payment and is not means
tested nor is it considered taxable income (though it may be offset by other
compensation payments). The four categories of Disability Pension are:
- general
rate: payable in multiples of ten per cent up to 100 per cent (based on the
level of assessed impairment resulting from or aggravated by war or certain
defence service)[15]
- special
rate (also known as Totally and Permanently Incapacitated (T&PI)): for
those assessed as having a 70 per cent or higher level of impairment (on
the general rate scale) due to their service related condition(s) (or who are
or have received the general rate in respect of pulmonary tuberculosis) who are
also assessed as being totally and permanently incapacitated because of their
service related condition and unable to work at least eight hours a week (some
veterans with temporary incapacities may be eligible)[16]
- intermediate
rate: for those assessed as having a 70 per cent or higher level of impairment
(on the general rate scale) due to service related condition(s) (or who are or
have received the general rate in respect of pulmonary tuberculosis) who are
assessed as able to work for at least 20 hours a week[17]
- extreme
disablement rate (EDA) rate: for those aged 65 years or over and who are
assessed as eligible for a disability pension at 100 per cent general rate but
not eligible to receive a special rate or intermediate rate pension. The level of
incapacity from a war or defence caused condition must be considered
extreme—assessing both the medical impairment and lifestyle impact of the
incapacity (rather than the work test that applies to the special and
intermediate rate).[18]
The payment rates for Disability Pension (including the
Energy Supplement), as at July 2015 are:
- general
rate: ranging from $53.87 per fortnight (ten per cent) to $469.40 per fortnight
(100 per cent)
- special
rate: $1,320.50 per fortnight
- intermediate
rate: $896.40 per fortnight
- EDA
rate: $729.30 per fortnight.[19]
Disability Pension and the VVRS
Special rules apply for recipients of a special or
intermediate rate Disability Pension who obtain or remain in employment while
participating in the VVRS so that they do not automatically lose eligibility
for these Disability Pension rates as a result of not meeting the relevant work
tests. Under the current rules, a special or intermediate rate recipient participating
in the VVRS will have their pension rate gradually reduced over a seven year
period until it reaches the 100 per cent general rate if they engage in paid
employment of more than eight hours per week. For the first two years their
disability pension is paid at 100 per cent of the general rate plus a
percentage of the difference between the general rate and the special or
intermediate rate which is determined by the amount of hours worked. Over the
following five years, this rate is reduced by five per cent every six months
until it is equivalent to the 100 per cent general rate.
A safety net also applies so that if the combined work and
pension income of a VVRS participant is less than the participant’s rate of
pension prior to them commencing the scheme, the participant can apply to have
their pension rate increased so that it equals the rate of pension on
commencement in the scheme. This is to ensure that a Disability Pensioner is
not financially penalised for participating in the VVRS.[20]
As the general and EDA rates are not work-tested, an
individual in receipt of one of these rates is unaffected by any employment
activity and remains eligible for their normal pension payment rate.
Invalidity Service Pension
The Service Pension is a means tested income support payment
paid under the VEA to veterans on the grounds of age or invalidity, and
to eligible partners, widows and widowers. It is similar to the social security
Age Pension and Disability Support Pension payments in that very similar income
and assets tests apply and the payment rates are the same. An Invalidity
Service Pension can be paid at the same time as the Disability Pension if the veteran
meets the eligibility requirements (one is an income support payment for those
without adequate means while the other payment is a compensation payment).
To be eligible for the Service Pension the veteran must have
qualifying service, meet residency requirements, and either be of Service
Pension Age (60 for veterans; 65 for partners/widows) or be permanently
incapacitated for work.[21]
Permanently incapacitated for work means:
- permanently
blind in both eyes or
- in
receipt of or eligible for the special rate of Disability Pension or the
Special Rate Disability Pension under the MRCA (a separate payment from
that paid under the VEA described above) or
- have
a disability, including non-service related disability, that permanently
prevents work. This is defined as:
- disability
that results in a combined impairment rating of 40 points or more (using the
Guide to the Assessment of Rates of Veterans’ Pensions (GARP))
- the
disability is permanent and
- the
incapacity from the disability alone permanently prevents work of more than
eight hours per week.[22]
Invalidity Service Pension and the
VVRS
As with the Disability Pension, special rules apply to
Invalidity Service Pension recipients who participate in the VVRS so that they
do not automatically lose eligibility for the payment even though they may no
longer meet the work test. VVRS participants remain on their permanent
incapacity eligibility for the Invalidity Service Pension for up to seven
years. However, as the Service Pension is means tested, employment income is assessed
under the income test. VVRS participants will have 50 per cent of their gross
earnings from employment taken into account under the income test for the first
two years of any employment.[23]
Over the following five years, the amount of gross earnings taken into account
increases by five percentage points for every six months.[24]
After seven years participating in the VVRS, the veteran will have their
permanent incapacity eligibility reviewed and they may lose eligibility for the
Invalidity Service Pension if they are assessed as being able to work in excess
of eight hours a week.[25]
Key issues and provisions
There are two key changes proposed by Schedule 1. The
first is to allow intermediate rate Disability Pension recipients participating
in the VVRS to have paid employment of up to 20 hours a week disregarded for
the purposes of calculating any Disability Pension rate reduction. This aligns
the disregarded work income with the work test that applies to intermediate
rate pensioners. Currently, intermediate rate Disability Pensioners have any income
from paid employment over eight hours a week used in the calculation of their
rate reduction, the same as special rate Disability Pensioners. The amendment
will mean that an intermediate rate pensioner participating in the VVRS cannot
receive a lower rate of Disability Pension than an intermediate rate pensioner
who has not participated in the VVRS. It will actually provide a greater
financial incentive for intermediate rate pensioners to participate in the VVRS
and to find paid employment as a greater number of hours can be worked, and
more income earned, before the veteran’s pension rate is reduced.
The second key change is to set the maximum reduction for
a special rate Disability Pensioner, who is participating in the VVRS and in
paid work of more than eight hours but less than 20 hours a week, to the
intermediate rate rather than 100 per cent of the general rate. Special rate
Disability Pensioners participating in the VVRS with less than 20 hours of paid
work a week will receive a pension rate calculated under the current method (outlined
above) or the intermediate rate, whichever is higher. Again, this is aimed at
ensuring a special rate pensioner participating in the VVRS and undertaking
less than 20 hours of work a week will not receive a lower rate of pension than
an intermediate rate pensioner who is not participating in the scheme.[26]
Both of these key changes are beneficial to intermediate
and special rate pensioners participating in the VVRS and will provide an added
financial incentive for veterans to engage with the scheme and the workforce.
The other amendments proposed by the Schedule will include
specific references in the VEA to medical management and psychosocial
services which will be made available through the VVRS from 20 March 2016; and
will ensure periods of unemployment of six months or more will be disregarded
in determining different periods of employment used in calculating the amount
of income assessed under the Invalidity Service Pension income test for
participants in the VVRS. This latter amendment refers to the two year initial
period of employment in which only 50 per cent of income is assessed under the
income test, and the following five year period in which the percentage of
assessed income gradually increases. This will ensure that participants in the
VVRS will not have prolonged absences from the workforce treated as part of
their employment period.
Main provisions
Item 4 inserts new subsection 24(5A) into the VEA
so that the rate of Disability Pension for a special rate pensioner
participating in the VVRS and engaged in paid work of more than eight hours a
week but less than 20 hours a week is set as the higher of either the
intermediate rate or the rate worked out using the formula at subsection
24(5) (which refers to the reduced daily pension amount worked out under section
115D). The rate worked out under this formula is 100 per cent of the
general rate plus a percentage of the difference between the general rate
amount and the special rate (the exact amount depends on the number of hours
worked).
Items 12 and 13 amend the definition of work
and pension income rate at section 115A of the VEA to
differentiate between the work and pension income rates that are
worked out for special rate and intermediate rate Disability Pension recipients
respectively. The work and pension income rate is worked out for
the purposes of the safety net described above to determine whether the veteran’s
combined work and income is more or less than what their Disability Pension
rate was at the time they started with the VVRS (the safety net, at section 115E,
ensures the veteran cannot get less from their combined earnings and reduced
pension rate than their pension rate at commencement). Item 13 adds subsection
115A(2) which sets out the formula for working out an intermediate rate
pensioner’s work and pension income rate: the number of hours of
paid work which exceed 40 hours a fortnight multiplied by the average hourly
rate of pay of the pensioner in that fortnight and added to the rate of pension
paid to that veteran in that fortnight. Item 13 also adds subsection
115A(3) which sets out the formula for working out a special rate pensioner’s
work and pension income rate: the number of hours of paid work
which exceed 16 hours a fortnight multiplied by the average hourly rate of pay
of the pensioner in that fortnight and added to the rate of pension paid to
that veteran in that fortnight.
Item 14 inserts references to the provision of
services for the management of medical conditions and psychosocial services
under the VVRS at section 115B of the VEA, which provides for the VVRS
to be created by legislative instrument. Subsection 115B(5) sets out what the
scheme may provide to eligible veterans but does not limit the powers of the
Repatriation Commission to provide non-specified services or assistance. While
the insertion of new references to medical management of conditions and
psychosocial services into the VEA at new paragraphs 115B(5)(da) and
(db) is not necessary for the VVRS to provide such services, the amendments
will make clear that such services are available and aligns with the current
listing of available services at subsection 115B(5).
Item 15 repeals subsection 115D(1) and inserts new
subsections 115D(1) and 115(1A). Current subsection 115D(1) applies
the rate reduction to intermediate and special rate pensioners who are engaged
in paid work of eight hours or more per week while participating in the VVRS. The
new subsection 115D(1) will mean that the method for calculating the
Disability Pension rate reduction set out in section 115D will apply to
intermediate rate pensioners who are engaged in paid work of 20 hours or more
per week as a result of undertaking a vocational rehabilitation program under
the VVRS. New subsection 115(1A) will mean that the Disability Pension
rate reduction will apply to special rate pensioners who are engaged in paid
work of eight hours or more per week as a result of undertaking a vocational
rehabilitation program under the VVRS. The amendments will mean that the rate
reduction provisions will only apply to intermediate rate pensioners
participating in the VVRS who are working hours in excess of the current work
limit for eligibility for the intermediate rate.
Item 16 repeals and replaces the definition of taper
amount in subsection 115D(7). This is a consequential change
made as a result of item 15 so that the taper rate component of the
formula used to calculate the pensioner’s rate reduction (at subsections 115D(2)
and (3) of the VEA) accounts for the increased number of hours an
intermediate rate pensioner can work before their pension is reduced.
Item 17 inserts new subsection 115G(2A) into
the VEA so that periods of six months or more where no paid work is
undertaken will not be taken account of in working out the initial two-year
period or the subsequent six‑month periods over the following five years
that are used to determine what proportion of gross income is included in the
income test for the Invalidity Service Pension where a veteran is participating
in the VVRS. As described above, VVRS participants who undertake paid work
have only half of their gross income assessed under the income test for the
Invalidity Service Pension for the first two years of work. After those two years,
the percentage of income not assessed under the income test decreases by five
per cent for every six months of work (after seven years of work all income is
assessed). The amendment will mean that where a veteran does not undertake paid
work for at least six months, the calculation of the initial two year period
and the five year period after that will be paused, and that time not in paid
work will be disregarded. For example, if a veteran commenced paid work in
January, after undertaking a VVRS rehabilitation program, but then has to stop
work in April and is unable to return to work until November, their seven month
period not working will be disregarded and they will be treated as having only
used up three months of their initial two-year period.
Schedule 2 will create a single review pathway for original
determinations made under the Military Rehabilitation and Compensation Act
2004 (the MRCA), removing the option for internal reconsideration by
the Military Rehabilitation and Compensation Commission (MRCC) and allowing
only for review by the Veterans’ Review Board (VRB).
Background
The MRCA, which provides compensation and other
benefits for current and former members of the Australian Defence Force (ADF)
who suffer a service injury or disease (and for the dependents of some deceased
members of the ADF), allows claimants to seek a review of certain ‘original
determinations’ made under the Act. Original determinations, defined at section
345 of the MRCA are determinations made by the MRCC or the Chief of the
Defence Force, usually in relation to eligibility for compensation or the level
of compensation payable to a claimant. Currently, there are two pathways open
to a claimant for the review of original determinations: an internal
reconsideration by another delegate of the MRCC or a review by the VRB. Claimants
who are dissatisfied with the reconsideration by the MRCC or the review by the
VRB can apply to the Administrative Appeals Tribunal (AAT) for a further
review. If a claimant chooses to seek reconsideration by the MRCC they are not
able to then seek a review by the VRB.
The two pathways provide different review processes: the
Review of Military Compensation Arrangements suggested that the VRB path ‘can
be seen as a lengthy and daunting process’ but the MRCC process does not offer
legal aid at the AAT.[27]
The AAT can award costs to successful claimants who have chosen the MRCC
reconsideration pathway but not to claimants who pursued the VRB pathway (but
claimants who sought review by the VRB can access legal aid where it relates to
operational service). Both pathways have different time limits for the
lodgement of applications and for subsequent actions.
The Review found that there was broad support to simplify
the appeals process by removing the MRCC pathway and directing all appeals to
the VRB, as is proposed by Schedule 2. However, the Review recommended that
internal reconsideration be retained, but as part of a single pathway. The
single appeal pathway would involve internal reconsideration by the MRCC first,
then the VRB process, and then the AAT. The Review stated that it believed this
single pathway would create a faster and less costly process and the internal
reconsideration component was key to achieving these goals: ‘The Committee
believes that reconsideration by the MRCC should be the first step in the
review process. This would help ensure the quality of decisions that are
considered by the VRB and reduce VRB workloads and costs’.[28]
The Review held that an initial reconsideration by the MRCC, as the first step
in the appeals pathway, would align with the review process under the VEA.[29]
Key issues and provisions
The Explanatory Memorandum to the Bill claims that the
amendments give effect to the Review of Military Compensation Arrangements
recommendation for a single appeal process.[30]
However, while implementing Recommendation 17.1 of the Review for a single
appeal path, the proposed amendments ignore Recommendation 17.2 for internal
reconsideration by the MRCC to be the first step in this review process.[31]
Instead, the proposed amendments will remove internal reconsideration by the
MRCC from the appeals process altogether so that review by the VRB becomes the
first tier of the single appeal pathway.
While ex-service organisations are supportive of the move to
a single pathway, many have previously stated their support for an internal
reconsideration component to be included as part of this appeals process. In
their response to the Review of Military Compensation Arrangements, the
Returned & Services League stated that it supported an internal review system
(subject to the proper resourcing and staffing of the Review Teams) as did the
Australian Peacekeeper and Peacemaker Veterans’ Association.[32]
In his second reading speech, Assistant Minister for Defence Stuart Robert
stated that the changes had ‘very strong support’ from the veteran and
ex-service community.[33]
It is unclear whether the ex-service organisations changed their position on
internal reconsideration during the consultation process undertaken by DVA.
The main issue for the proposed single pathway will be
ensuring the VRB review process is not as lengthy or daunting for claimants as
the current process is perceived to be. Case management and conferencing may go
some way to addressing these issues, as will adequate financial support for the
VRB.
Main provisions
Items 1–4 remove references to reconsideration and
there being ‘2 possible paths’ in the reconsideration and review process for original
determinations made by the MRCC at section 344 of the Military
Rehabilitation and Compensation Act 2004 (the MRCA). Section 344 is
a simplified outline of the provisions for reconsideration and review of
determinations in the MRCA.
Items 7–8 remove references to a claimant initiating
a reconsideration of determinations and the provisions which provide for claimants
to request a reconsideration of an original determination made by the MRCC or
the Chief of the Defence Force at section 349 of the MRCA.
Schedule 3 amends the Defence Act 1903 (the Defence
Act) to expand the regulation making power under paragraph 124(1)(qba) to authorise
under Regulation 31 of the Defence Force Regulations 1952, the repatriation of
the remains of eight service dependants buried at Terendak Military Cemetery in
Malaysia, if requested to do so by their families.
Background
The Terendak Military Cemetery is located within a
Malaysian military base, the Terendak Camp, on the coast of the Malacca
Straits, approximately 21 kilometres north of Malacca. Terendak Camp was built
by the United Kingdom, Australia and New Zealand during 1957–59 to house the 28th
Commonwealth Infantry Brigade.[34]
The first units moved into the camp in 1959.
Units of the brigade based in Terendak were involved in
Borneo during the Indonesian Confrontation from 1963–66 and some casualties
from that campaign are buried in the cemetery at Terendak. Some Australian and
New Zealand casualties from the Vietnam War were also flown to Terendak and
buried there. The remains of 24 Vietnam veterans are buried at Terendak as well
as three other Australian servicemen (one who died during the Malayan Emergency
and two who died during operational accidents) and eight service dependents.[35]
The remains of one other Australian Vietnam veteran are buried in Kranji War
Cemetery in Singapore.[36]
Terendak Military Cemetery also contains a number of graves of British and
Commonwealth troops and their dependants who died during the 28th Commonwealth Infantry
Brigade’s occupation of the camp, and a number of service personnel who were moved
from outlying cemeteries and reburied in Terendak.[37]
The camp was vacated by the Brigade and handed over to the Malaysian Army on 28
March 1970.[38]
Until 21 January 1966, it was Australian Government policy
that the remains of service personnel who died in war were to be buried in war
cemeteries close to where they died.[39]
The families of some soldiers killed in Vietnam prior to the policy change had
sought approval to have the remains returned to Australia and some of these
families were forced to pay to have the remains repatriated. In announcing the
new policy, that the government would provide for the bodies of all servicemen
who died overseas to be returned to Australia ‘where this is practicable and if
next-of-kin request that this be done’, Acting Minister for Defence, Alan
Hulme, stated that the families of those soldiers already killed in Vietnam and
who had paid to have their bodies returned to Australia would be reimbursed.[40]
The Acting Minister also stated that permission would not be given for those
already buried overseas to be returned to Australia.[41]
After a public campaign by the Vietnam Veterans
Association of Australia—’Operation Bring Them Home’—and other ex-service
organisations, and long-running negotiations between the Australian and
Malaysian governments, the Australian Government announced in May 2015 that it
would repatriate the remains of the 25 Australian Vietnam veterans buried
overseas, where this was the wish of the deceased’s family.[42]
As the Terendak Military Cemetery is difficult to access—within a large
Malaysian military base and requiring special permission to visit—the
Australian Government also extended the offer to repatriate remains to the
families of the other three Australian servicemen and eight service dependants
buried there.
Main issues and provisions
Currently, paragraph 124(1)(qba) of section 124 of the Defence
Act provides for the Governor-General to make regulations providing for or
in relation to the provision, maintenance and execution of work in connection
with the graves of persons who have died while on service as members of the
Defence Force or as result of service as members of the Defence Force.[43]
Under Regulation 31 of the Defence Force Regulations 1952, the Director of War
Graves (the Office of Australian War Graves) may arrange for the repatriation
of remains of a member of the Defence Force who has died while on service.[44]
However, the section does not provide for regulations to be made in relation to
the graves of service dependants.
Items 1–6 of Schedule 3 amend the Defence Act
at paragraph 124(1)(qba) to allow for a regulation to be made in relation to
the provision, maintenance and execution of work in connection with the graves
of dependants of members of the Defence Force on service located in the
Terendak Military Cemetery. This will permit a regulation to be made allowing
the Office of Australian War Graves to repatriate the remains of these service
dependants if requested by their family members.
.
Members, Senators and Parliamentary staff can obtain
further information from the Parliamentary Library on (02) 6277 2500.
[1]. Veterans’ Entitlements
Act 1986 (Cth), accessed 5 August 2015.
[2]. Military Rehabilitation
and Compensation Act 2004 (Cth), accessed 5 August 2015.
[3]. Defence Act 1903
(Cth), accessed 5 August 2015.
[4]. Senate Selection of Bills Committee, Report, 9, 2015, The Senate,
Canberra, 13 August 2015, accessed 17 August 2015.
[5]. B
Shorten (Leader of the Opposition) and D Feeney (Shadow Minister for Veterans’
Affairs), Labor
welcomes the decision to offer repatriation for Vietnam war dead, media
release, 25 May 2015, accessed 5 August 2015.
[6]. Explanatory Memorandum, Veterans’
Affairs Legislation Amendment (2015 Budget Measures) Bill 2015, p. ii, accessed
14 July 2015.
[7]. The
Statement of Compatibility with Human Rights can be found at page iii of the
Explanatory Memorandum to the Bill.
[8]. Parliamentary
Joint Committee on Human Rights, Twenty-fifth
report of the 44th Parliament, 11 August 2015, p. 2, accessed 11 August
2015.
[9]. S Robert, ‘Second reading speech: Veterans’ Affairs Legislation Amendment (2015
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[10]. Australian Government, Budget measures: budget paper no. 2: 2015–16, p. 184, accessed 14 July 2015.
[11]. Review of Military Compensation Arrangements (I Campbell,
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[12]. Department
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[13]. Ibid.
[14]. These
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[15]. DVA,
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[16]. DVA,
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[17]. Ibid.
[18]. DVA,
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[19]. DVA,
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[20]. Explanatory
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[21]. Qualifying
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DVA, Service
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[22]. DVA,
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[23]. DVA,
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[24]. Ibid.
[25]. Ibid.
[26]. Explanatory
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[27]. Review of military compensation arrangements, op. cit., p. 221.
[28]. Ibid.,
p. 221.
[29]. Ibid.,
p. 238.
[30]. Explanatory
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[31]. Review of military compensation arrangements, op. cit., p. 245.
[32]. Returned
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[33]. S Robert, op. cit.
[34]. DVA,
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[35]. S
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in Malaysia and Singapore‘, VVAA website, accessed 5 August 2015; M
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[36]. S
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[37]. DVA,
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[38]. Ibid.
[39]. S
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[40]. A
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[41]. Ibid.
[42]. Vietnam
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[43]. The
Minister for Veterans’ Affairs has administrative responsibility for this
paragraph under the Administrative Arrangements Order.
[44]. Defence Force Regulations
1952, accessed 5 August 2015.
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