Chapter 2
Concluded matters
2.1
This chapter considers the responses of legislation proponents to
matters raised previously by the committee. The committee has concluded its
examination of these matters on the basis of the responses received.
2.2
Correspondence relating to these matters is included at Appendix 1.
Australian Citizenship and Other
Legislation Amendment Bill 2014
Portfolio:
Immigration and Border Protection
Introduced:
House of Representatives, 23 October 2014
Purpose
2.3
The Australian Citizenship and Other Legislation Amendment Bill 2014
(the bill) seeks to amend the Australian Citizenship Act 2007
(Citizenship Act) to:
-
extend good character requirements;
-
modify residency requirements and related matters;
-
amend the circumstances in which a person's approval as an
Australian citizen may or must be cancelled;
-
modify the circumstances in which the minister may defer a person
making the pledge of commitment to become an Australian citizen; for example,
where the minister is considering cancelling the person's approval as an
Australian citizen on the basis that the person would not now be approved as an
Australian citizen because of identity, having been assessed as a risk to
security or being subject to the bar on approval related to criminal offences;
-
adjust the circumstances in which a person's Australian
citizenship may be revoked; for example, if the person has been approved as an
Australian citizen by descent and the minister is satisfied that the approval
should not have been given (except in circumstances where the revocation
decision would result in the person becoming stateless);
-
provide a discretion to revoke a person's Australian citizenship
in circumstances where the minister is satisfied that the person became an
Australian citizen as a result of fraud or misrepresentation, perpetrated by
the Australian citizen themselves or by a third party;
-
amend the rules for obtaining citizenship by adoption to
stipulate that the adoption process must have commenced before the person
turned 18;
-
limit automatic acquisition of citizenship at 10 years of age to
those persons born in Australia who have maintained lawful residence in
Australia throughout the 10 years;
-
require, for the purposes of the automatic acquisition of
Australian citizenship, that a person is not taken to be ordinarily resident in
Australia throughout the period of 10 years beginning on the day the person was
born if they were born to a parent who had privileges or immunities under the Diplomatic
Privileges and Immunities Act 1967, the Consular Privileges and
Immunities Act 1972, the International Organisations (Privileges and
Immunities) Act 1963 and the Overseas Missions (Privileges and
Immunities) Act 1995; and
-
amend the provision giving citizenship to a child found abandoned
in Australia.
2.4
The bill also seeks to amend the Migration Act 1958 to enable the
use and disclosure of personal information obtained under the Citizenship Act
or the citizenship regulations.
2.5
Measures raising human rights concerns or issues are set out below.
Background
2.6
The committee previously considered the bill in its Eighteenth Report
of the 44th Parliament (previous report), and requested further
information from the Minister for Immigration and Border Protection as to
whether a number of measures in the bill were compatible with human rights.[1]
Power to revoke Australian citizenship due to fraud or misrepresentation –
removal of court finding
2.7
Currently under the Citizenship Act the power to revoke citizenship on
the grounds of fraud requires a conviction for a relevant offence (for example,
the offence of false statements or representations), proven in court to the
criminal standard of beyond reasonable doubt.[2]
2.8
The proposed new section 34(AA) would give the minister a discretionary
power to revoke a person's Australian citizenship, up to 10 years after
citizenship was first granted, where the minister is 'satisfied' that the
person became an Australian citizen as a result of fraud or misrepresentation
by themselves or a third party. There would be no requirement that the
allegations of fraud or misrepresentation in relation to the citizenship
application be proven in court or that a person be convicted.[3]
The power to revoke citizenship is also available in relation to the
citizenship of children.[4]
2.9
The previous report noted that very serious consequences flow from loss
of Australian citizenship. The enjoyment of many rights is tied to citizenship
under Australian law including, for example, the right to fully participate in
public affairs. The committee's report therefore considered that the process by
which citizenship may be revoked, and the safeguards that exist in relation to
this process, are of great importance to the question of compatibility with
human rights. The previous report also considered that the proposed
discretionary power to revoke a person's Australian citizenship engages and may
limit the following human rights and human rights standards:
-
the obligation to consider the best interests of the child;
-
the right of the child to nationality;
-
the right of the child to be heard in judicial and administrative
proceedings;
-
quality of law;
-
the right to a fair hearing;
-
the right to take part in public affairs; and
-
the right to freedom of movement.
2.10
The committee's assessment of the compatibility of the proposed measure
for each of these rights is set out below.
Obligation to consider the best interests
of the child
2.11
Under the Convention on the Rights of the Child (CRC), state parties are
required to ensure that, in all actions concerning children, the best interests
of the child is a primary consideration.[5]
2.12
This principle requires active measures to protect children's rights and
promote their survival, growth and wellbeing, as well as measures to support
and assist parents and others who have day-to-day responsibility for ensuring
recognition of children's rights. It requires legislative, administrative and
judicial bodies and institutions to systematically consider how children's
rights and interests are or will be affected directly or indirectly by their decisions
and actions.
Compatibility of the measure with
the obligation to consider the best interests of the child
2.13
The previous report considered that removing the requirement of a conviction,
and giving the minister a discretionary power to revoke a person's Australian
citizenship, engages and limits the obligation to consider the best interests
of the child. This is because the proposed discretionary power may be exercised
regardless of whether or not it is in the child's best interests for such a
power to be exercised. As noted above, the enjoyment of a range of rights is
tied to citizenship under Australian law, such that the removal of citizenship
may negatively impact upon what is in the child's best interests.
2.14
The statement of compatibility acknowledges that the proposed measure
engages the obligation to consider the best interest of the child but argues
that the limitation is justifiable. It states that the
objective of the measure is to 'strengthen the integrity of the Australian
citizenship programme by preventing its abuse through misrepresentation and
fraud'.[6]
2.15
However, based on the information and analysis provided, the previous
report noted that the statement of compatibility does not adequately
demonstrate that the proposed measure addresses a legitimate objective.
2.16
Further, as currently drafted, the proposed amendments would allow the
removal of a person's citizenship (including a child's citizenship) where the
person concerned is not alleged to have engaged in or had knowledge of any
fraud or misrepresentation themselves. This would mean that a child's
citizenship could be revoked for conduct alleged to have been committed (but
not necessarily proven) by a third party in relation to the child's
application, including conduct of which the child had no knowledge, or was
unable to prevent.[7]
This raises further concerns in relation to whether the proposed power is
rationally connected to, and a proportionate way to achieve, its stated
objective so as to be justifiable under international human rights law.
2.17
The previous report therefore considered that the proposed discretionary
power to revoke Australian citizenship without a court finding limits the
obligation to consider the best interests of the child; and that the statement
of compatibility does not sufficiently justify that limitation for the purposes
of international human rights law.
2.18
The committee therefore sought the advice of the Minister for
Immigration and Border protection as to whether there is reasoning or evidence
that establishes that the stated objective addresses a pressing or substantial
concern or whether the proposed changes are otherwise aimed at achieving a
legitimate objective, whether there is a rational connection between the
limitation and that objective and whether the limitation is a reasonable and
proportionate measure for the achievement of that objective.
Minister's response
The government agrees that the obligation to consider the
best interests of the child is engaged, however, it considers that the
obligation is not limited by the proposed revocation power. Rather, the same
obligation to consider the best interests of the child would attach to a
revocation decision under proposed section 34AA of the Australian
Citizenship Act 2007 (the Citizenship Act) as it attaches to a revocation
decision under current section 34 (as set out currently in Chapter 18 of the
Australian Citizenship Instructions (ACI)). The fact that a decision-maker may
decide to revoke a child's citizenship after considering all the factors,
including the best interests of the child, does not mean the obligation to
consider the best interests of the child has been limited. This was stated in
the statement of compatibility accompanying the Bill at page 3 when the former
Minister for Immigration and Border Protection, the Hon Scott Morrison MP,
stated:
'In exercising the discretion the
Minister would give effect to Article 3 by considering the best interests of
the child as a primary consideration.'
The government is of the view that section 34AA does not
limit the obligation to treat the best interests of children as a primary
consideration and therefore it is not necessary to respond to the committee's
further questions.[8]
Committee response
2.19
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.20
The committee notes that the minister does not consider that the measure
limits the obligation to consider the child's best interests as the minister
could still give effect to the obligation in deciding whether or not to
exercise his discretion.
2.21
However, while the minister may choose to consider the best interests of
the child as a matter of discretion, the proposed power to revoke a child's
citizenship will be able to be exercised regardless of whether or not the
minister has, in fact, considered the best interests of the child.
2.22
The power to revoke a child's citizenship could therefore be validly
exercised regardless of whether it is in the best interests of the child, and
it is for this reason that the measure limits the obligation to consider the
best interests of the child.
2.23
As noted above, the enjoyment of a range of rights is tied to
citizenship under Australian law, such that the removal of citizenship may
negatively impact on what is in the child's best interests. It does not follow
from the fact that the exercise of the present power to revoke citizenship is
unconstrained by an obligation to consider the child's best interests that the
new expanded power to revoke a child's citizenship does not limit the
obligation.
2.24
International human rights law requires that states have sufficient
safeguards in place to prevent violations of human rights occurring. In this
context, unconstrained discretion is generally insufficient for human rights
purposes to ensure that powers are exercised in a manner that is compatible
with human rights.[9]
2.25
As noted above, the minister's response does not consider that the
obligation to consider the best interest of the child is limited, and therefore
provides no information as to whether the measure is nevertheless a justifiable
limitation under international human rights law.
2.26
The minister's response in this respect does not appear to align with
the assessment provided in the statement of compatibility for the bill which,
while not explicitly acknowledging that the obligation to consider the best
interests of the child was limited, provided information as to why a limitation
could be considered to be justifiable. That is, the statement of compatibility
stated that the measure pursued a legitimate objective, was rationally
connected to that objective and was a proportionate means of achieving that
objective.[10]
2.27
As noted above, the committee's previous report regarded this assessment
as providing insufficient information to justify the limitation for the
purposes of international human rights law.
2.28
Some committee members noted the minister's advice that the measure
does not limit the obligation to consider the best interests of the child as a
primary consideration and consider that the expanded power to revoke
citizenship for fraud or misrepresentation is justified to ensure the integrity
of the citizenship system.
2.29
On the other hand, the previous report concluded that the proposed
expanded power to revoke a child's citizenship without a court finding limits
the obligation to consider the best interests of the child. Some committee
members considered that the statement of compatibility had not provided
sufficient information to justify that limitation for the purposes of
international human rights law, and the minister's response has not provided
any further information to justify the limitation. The revocation power is able
to be exercised regardless of whether or not there has been consideration of
the best interests of the child. Some committee members therefore consider that
the power to revoke a child's citizenship without a court finding is
incompatible with the obligation to consider the best interests of the child.
The right to nationality
2.30
Every child has the right to acquire a nationality under article 7 of
the CRC and article 24(3) of the International Covenant on Civil and Political
Rights (ICCPR).[11] Accordingly, Australia is required to adopt
measures, both internally and in cooperation with other countries, to ensure
that every child has a nationality when born. Article 8 of the CRC provides
that children have the right to preserve their identity, including their nationality,
without unlawful interference.
2.31
This is consistent with Australia's obligations under the Convention on
the Reduction of Statelessness 1961, which requires Australia to grant its
nationality to a person born in its territory who would otherwise be stateless,
and to not deprive a person of their nationality if such deprivation would
render the person stateless.[12]
Compatibility of the measure with the right to nationality
2.32
As noted, the proposed power would allow for the removal of a child's
Australian citizenship.[13]
2.33
The previous report considered that removing the requirement of
conviction, and giving the minister a discretionary power to revoke a person's
Australian citizenship, therefore engages and may limit a child's right to
nationality.
2.34
The statement of compatibility acknowledges the proposed measure engages
the right to nationality but argues that any limitation is justifiable.[14]
2.35
As noted above at [2.15], the statement of compatibility does not
provide sufficient reasoning or evidence to demonstrate that the stated
objective constitutes a pressing or substantial concern as required to permissibly
limit a right under international human rights law.
2.36
Further, the previous report considered that the statement of
compatibility did not show that there is a rational connection between the
measure and the stated objective and that the measure is proportionate for the
achievement of that objective (see [2.16] above).
2.37
The previous report noted that Australia has obligations under article 8
of the CRC to preserve the identity of children, including their nationality.
Additionally, Australia's obligations under article 8 of the CRC should be read
in accordance with Australia's obligations under article 3 of the CRC to
consider the best interests of the child and article 8(1) of the Convention on
the Reduction of Statelessness, which provides that a state shall not deprive a
person of their nationality if such deprivation would render the person
stateless.[15]
2.38
The previous report considered that the proposed discretionary power to
revoke Australian citizenship without a court finding limits the right of the
child to nationality. However, the statement of compatibility does not
sufficiently justify that limitation for the purposes of international human
rights law.
2.39
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether there is reasoning or evidence
that establishes that the stated objective addresses a pressing or substantial
concern or whether the proposed changes are otherwise aimed at achieving a
legitimate objective, whether there is a rational connection between the
limitation and that objective, and whether the limitation is a reasonable and
proportionate measure for the achievement of that objective.
Minister's response
Currently under the Citizenship Act, a conviction for a
specified offence is required before citizenship can be revoked. In addition,
the power to revoke only arises if the offence was committed prior to the
Minister giving approval for the citizenship application, or the offence was
committed in relation to the person's application to become an Australian
citizen.
In evidence before the Senate Legal and Constitutional
Affairs Legislation Committee on 19 November 2014, my department noted that in
2013-14 its National Assessments and Allocations Team received over 26,000
allegations of fraud and other matters. Of those, just over 10,000 were
recommended for further investigation for fraud specifically. 135
investigations conducted by the department resulted in 12 briefs of evidence to
the Commonwealth DPP. There were 13 convictions for fraud in the same period.
The low rate of prosecutions indicates that there is a low risk that
individuals who acquired citizenship fraudulently will be called to account.
This in turn may encourage further fraudulent applications while undermining
public confidence in the citizenship and migration programmes.
This amendment is intended to improve the integrity of the
Australian citizenship programme and create stronger disincentives for people
to provide false and misleading information. Strengthening the ability to
revoke citizenship would reinforce the principle that citizenship by
application is a privilege and that there is a real prospect of that privilege
being removed from those who have obtained citizenship consequent to fraud or
misrepresentation in the visa or citizenship processes. The government is of
the view that this is 'a pressing or substantial concern' and the proposed
changes are aimed at achieving a legitimate objective. I note that other
foreign governments are of a similar view with the proposed 34AA being
comparable with Ministerial powers to revoke citizenship for fraud or false
representation without conviction in Canada, New Zealand and the United
Kingdom. I note that Canada has long allowed revocation of citizenship for
fraud without conviction.
The government considers that there is a rational connection
between the objective of the proposed revocation power and how it would operate
in practice. While a child may not have been responsible for, or had no
knowledge of the fraud or misrepresentation, the proposed power would provide a
disincentive for a person acting on behalf of a child to engage in fraud or
misrepresentation in relation to a migration or citizenship application by that
child.
Appropriate safeguards have been built into the proposal
through the discretionary nature of the decision to revoke and the requirement
that any revocation be in the public interest. The decision-maker would
consider international law obligations when making this discretionary decision,
including the 1961 Convention on the Reduction of Statelessness
(Statelessness Convention) and the best interests of the child and this will be
reflected through updates to the ACI. In addition, there is a time limit beyond
which citizenship could not be revoked and the exercise of the power is subject
to judicial review.
The committee also "considers that, in the absence of a
definition of what constitutes 'fraud' or 'misrepresentation', the minister's
power to revoke citizenship on the basis of, for example, minor or technical
misrepresentations may not be proportionate to the stated objective of the
measure". It is not proposed to provide a statutory definition of fraud or
misrepresentation; rather those words will have their ordinary or common
meaning. 'Fraud' is a well-known concept at common law with a plain and
ordinary meaning. The Macquarie Dictionary gives the following common law
definition of 'fraud': "advantage gained by unfair means, as by a false
representation of fact made knowingly, or without belief in its truth, or
recklessly, not knowing whether it is true or false". The Macquarie
Dictionary defines 'misrepresent' as "to represent incorrectly, improperly,
or falsely". The department considers that these meanings provide
sufficient certainty as to the types of conduct that would be regarded as fraud
or misrepresentation.
The proposed section 34AA discretionary revocation power,
like the existing section 34 discretionary revocation power, could only be
exercised if the Minister is satisfied that it would be contrary to the public
interest for the person to remain an Australian citizen. The 'public interest'
test would include consideration of such matters as whether the nature or
severity of the fraud or misrepresentation was such that it would be contrary
to the public interest to allow the person to retain their Australian
citizenship. The decision would also take into account the best interests of
the child.
The government is of the view that the proposed section 34AA
does not limit the right to acquire a nationality under Article 7 of the Convention
on the Rights of the Child (CRC) and Article 24(3) of the International
Covenant on Civil and Political Rights (ICCPR). It does, however, provide
an appropriate mechanism to consider whether an individual who acquired
citizenship consequent to fraud or misrepresentation should continue to hold
that citizenship and the privileges and responsibilities associated with it.
Article 8 of the CRC states:
States Parties undertake to respect the right of the
child to preserve his or her identity, including nationality, name and family
relations as recognized by law without unlawful interference.
The government is of the view that the amendments are
consistent with Article 8 because if the Bill is passed, any revocation would
not constitute 'unlawful interference'. Further, any decision made under the
proposed revocation power that impacted on a child would take into account, as
a primary consideration, the best interests of that child.
The committee "observes that the proposed power would
allow the removal of a child's citizenship even where the child concerned is
not alleged to have engaged in or had knowledge of any fraud or misrepresentation
themselves". The committee "also notes that children have different
capacities and levels of maturity than adults to make judgements. Given this,
the committee considers that the measure may not be proportionate to its stated
objective". The measure is proportionate to its objective as the decision
whether it would be contrary to the public interest for the person to remain an
Australian citizen would be informed by the facts of the case, which would
include who was responsible for the fraud or misrepresentation and the nature
or severity of the fraud or misrepresentation. Further, the best interests of
the child would be a primary consideration in that decision-making process.[16]
Committee response
2.40
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.41
The terms 'nationality' and 'citizenship' are interchangeable in
international law. As noted in its previous analysis, the committee considered
that by allowing for the removal of a child's citizenship the measure engages
and limits a child's right to nationality.
2.42
The committee notes that, while the minister does not consider that the
measure limits a child's right to nationality, the response nevertheless
provides a range of information as to why a child's right to nationality could
be considered to be justifiably limited.
2.43
First, the response provides information to establish that the measure
pursues a legitimate objective of improving the integrity of the Australian
citizenship programme and create stronger disincentives for people to provide
false and misleading information. Based on the information provided, the
committee considers that this may be considered a legitimate objective for the
purposes of international human rights law.
2.44
Second, the response argues that the proposed discretionary power to
revoke citizenship is rationally connected to its objective. In particular, it
states that, while a child may not have been responsible for, or had no
knowledge of the fraud or misrepresentation, the proposed power would provide a
disincentive for a person acting on behalf of a child to engage in fraud or
misrepresentation in relation to a migration or citizenship application by that
child. The committee acknowledges that in broad terms the measure could act as a
disincentive to fraud and misrepresentation in this way, and therefore may be
regarded as rationally connected to the stated legitimate objective of the
measure.
2.45
However, the committee considers that the response does not demonstrate
that the power to remove citizenship where the minister is 'satisfied' that the
person became an Australian citizen as a result of fraud or misrepresentation
by themselves or a third party is a proportionate means of achieving the stated
objective.
2.46
In particular, as the measure explicitly removes the requirement that
fraud or misrepresentation be proven in court to the criminal standard of proof
(beyond reasonable doubt), there is a greater risk that that citizenship may be
removed in circumstances where the fraud or misrepresentation did not in fact
occur.
2.47
Further, the power allows a child's citizenship to be removed even in
circumstances where the child was unaware of the fraud or misrepresentation or
may result in statelessness for some children. Given the extremely serious and
lifelong consequences for a child in such circumstances, the breadth of the
power is disproportionate to the aims sought.
2.48
The committee notes the minister's advice that appropriate safeguards
have been built into the proposal through the discretionary nature of the
decision to revoke and the requirement that any revocation be in the public
interest.
2.49
However, under international human rights law ministerial discretion, in
and of itself, does not constitute a sufficient safeguard against the risk that
the power may be exercised in a manner which would not be proportionate to the
stated objective of the measure. The same is true in relation to a requirement
that a power be exercised in the public interest.[17]
2.50
The previous report concluded that the proposed discretionary power
to revoke Australian citizenship without a court finding limits the right of
the child to nationality.
2.51
Based on the information provided, the committee considers that the
proposed discretionary power to revoke Australian citizenship without a court
finding pursues the legitimate objective of improving the integrity of the
Australian citizenship programme and is rationally connected to that objective.
2.52
Some members of the committee noted the minister's advice that
consideration of the public interest by the minister in determining whether to
revoke a child's citizenship would ensure the proportionality of the measure.
These members of the committee therefore consider that the measure is justified.
2.53
However, some members of the committee consider that the limitation
on a child's right to a nationality has not been sufficiently justified as
proportionate. These committee members therefore consider that the proposed
power is likely to be incompatible with the right of the child to a
nationality, noting in particular that the power to revoke Australian
citizenship may result in statelessness for some children and may occur in
circumstances where fraud or misrepresentation has not been proven.
Right of the child to be heard in
judicial and administrative proceedings
2.54
Article 12 of the CRC provides that state parties shall assure to a
child capable of forming his or her own views the right to express those views
freely in all matters affecting the child. The views of the child must be given
due weight in accordance with the age and maturity of the child.
2.55
In particular, this right requires that the child is provided the
opportunity to be heard in any judicial and administrative proceedings
affecting them, either directly, or through a representative or an appropriate
body, in a manner consistent with the procedural rules of national law.
Compatibility of the measure with the
right of the child to be heard
2.56
The statement of compatibility acknowledged that the proposed measure engages,
but concluded that it does not limit, the right of the child to be heard.[18]
2.57
The previous report acknowledged that the minister's commitment to
provide natural justice is an important aspect of the right of the child to be
heard. However, natural justice is not equivalent, or a sufficient alternative,
to having a court make a determination as to 'fraud' or 'misrepresentation',
particularly in light of the serious consequences of a decision to revoke a
child's citizenship.
2.58
The previous report therefore considered that the proposed discretionary
power to revoke Australian citizenship without a court finding may limit the
right of the child to be heard. The statement of compatibility does not
sufficiently justify that potential limitation for the purposes of
international human rights law.
2.59
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether there is reasoning or evidence
that establishes that the stated objective addresses a pressing or substantial
concern or whether the proposed changes are otherwise aimed at achieving a
legitimate objective, whether there is a rational connection between the
limitation and that objective, and whether the limitation is a reasonable and
proportionate measure for the achievement of that objective.
Minister's response
The government does not consider that the proposed section
34AA limits or may limit the right of the child to be heard in the
administrative proceedings associated with consideration of revocation of citizenship.
The statement of compatibility acknowledges that the proposed
measure engages the right of the child to be heard but argues that the measure
does not limit the right because prior to reaching a decision on whether to
revoke a child's citizenship the Minister would afford the person natural
justice, which would require giving the child, the child's parent or the
child's representative the opportunity to be heard, thereby satisfying Article
12 of the CRC.
The proposed revocation power requires the Minister to be
satisfied, through an administrative process, of both the occurrence of
relevant fraud or misrepresentation and that it would be contrary to the public
interest for the person to remain an Australian citizen. The committee appears
to consider the right to be heard in relation to the consideration of
revocation requires a judicial process. However, it is common for significant
findings of fact and decisions that affect individuals to be made
administratively, with the right to be heard given effect through a natural
justice process.[19]
Committee response
2.60
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.61
The committee notes that the minister's view that the proposed power
does not limit the right of the child to be heard on the basis that the minister
would afford the child natural justice prior to reaching a decision. However,
no information is provided as to how a child would be afforded the opportunity
to be heard in relation to such administrative processes.
2.62
Further, the minister's response does not engage with the fact that a
court process leading to determination as to 'fraud' or 'misrepresentation' may
afford particular children the ability to be heard. The removal of the
requirement for this prior process places a limitation on the right.
2.63
As the minister does not consider the right of the child to be heard to
be limited, the response does not provide any information as to whether the
limitation is justifiable.
2.64
Some members of the committee noted the minister's advice that prior
to reaching a decision on whether to revoke a child's citizenship the minister
would afford the person natural justice and considered that the measure is
therefore justified.
2.65
Based on the information provided, other members of the committee
considered that they were unable to conclude that the measure is compatible
with the right of the child to be heard as required by article 12 of the
Convention on the Rights of the Child.
Right to a fair trial and fair
hearing
2.66
The right to a fair trial and fair hearing is protected by article 14 of
the ICCPR. The right applies to both criminal and civil proceedings, and to
cases before both courts and tribunals. The right is concerned with procedural
fairness and encompasses notions of equality in proceedings, the right to a
public hearing and the requirement that hearings are conducted by an
independent and impartial body.
2.67
Specific guarantees of the right to a fair trial in the determination of
a criminal charge guaranteed by article 14(1) are set out in article 14(2) to
(7). These include the presumption of innocence (article 14(2)) and minimum
guarantees in criminal proceedings, such as the right not to incriminate
oneself (article 14(3)(g)) and a guarantee against retrospective criminal laws
(article 15(1)).
Compatibility of the measure with
the right to a fair trial and fair hearing
2.68
The previous report considered that removing the requirement of a conviction,
and giving the minister a discretionary power to revoke a person's Australian
citizenship, engages and may limit the right to a fair trial and fair hearing.
2.69
This is because, as noted at [2.7] above, the proposed amendments remove
the requirement that there be a determination of guilt proven in court to the
criminal standard of beyond reasonable doubt in relation to a relevant offence
before the minister can exercise the power to revoke citizenship. This could,
in effect, allow for punitive action against an individual based on the
minister's determination of 'fraud' or 'misrepresentation' (either by the
individual or a third party such as a migration agent).
2.70
However, this potential limitation of the right was not addressed in the
statement of compatibility in relation to this measure.
2.71
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether there is reasoning or evidence
that establishes that the stated objective addresses a pressing or substantial
concern or whether the proposed changes are otherwise aimed at achieving a
legitimate objective, whether there is a rational connection between the
limitation and that objective, and whether the limitation is a reasonable and
proportionate measure for the achievement of that objective.
Minister's response
The government considers that the right to a fair trial and
fair hearing are not limited by the proposal as:
- in the event that the person is charged with a
criminal offence related to the fraud or misrepresentation, the person retains
the rights that are applicable to a criminal trial;
- the consideration of whether to revoke the
person's citizenship is a discrete administrative process that would be
undertaken within the administrative law framework and in accordance with the
principle of natural justice;
- the revocation decision is subject to the right
of judicial review. In a judicial review action, the Court would consider
whether or not the power given by the Citizenship Act has been exercised
according to law. This would include consideration of whether the power has
been exercised in a reasonable manner. It would also include consideration of
whether natural justice has been afforded and whether the reasons given provide
an evident and intelligible justification for why the balancing of these
factors led to the outcome which was reached.[20]
Committee response
2.72
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.73
The committee notes the minister's view that the right to a fair trial
and fair hearing are not limited by the proposal.
2.74
The committee agrees that a person charged with a criminal offence would
continue to enjoy the rights associated with a criminal trial in Australia.
2.75
However, both administrative processes and criminal processes are
relevant in relation to the proposed power.
2.76
In particular, the Citizenship Act presently allows for the power to
revoke citizenship on the grounds of fraud requires where there has been a
conviction for a relevant offence (for example, the offence of false statements
or representations), proven in court to the criminal standard of beyond
reasonable doubt.
2.77
The effect of the measure is to replace current court processes and
determinations of guilt beyond a reasonable doubt solely with the views of the
minister as to whether 'fraud' or 'misrepresentation' has occurred.
2.78
The committee notes that the stripping of citizenship via administrative
rather than criminal processes in this way may constitute punitive action
against the individual; and may be considered to be a form of banishment,[21]
which has historically been regarded as one of the most serious forms of
punishment.[22]
2.79
Accordingly, the removal of an Australian's citizenship in circumstances
which may ultimately lead to their effective banishment may be considered to be
a form of punishment under international human rights law.
2.80
The committee notes the minister's advice that the removal of
citizenship would be an administrative process and would not be classified as
criminal under Australian law.
2.81
However, as set out in the committee's Guidance Note 2, even
if a penalty is classified as civil or administrative under domestic law it may
be nevertheless be considered 'criminal' under international human rights law.
A provision that is considered 'criminal' under international human rights law
will engage criminal process rights under articles 14 and 15 ICCPR, such as,
the right to be presumed innocent. The right to be presumed innocent requires,
for example, that the case against a person be demonstrated on the criminal
standard of proof; that is, be proven beyond reasonable doubt.
2.82
The criteria for determining whether a penalty may be considered
'criminal' under human rights law in circumstances where it is not classified
as criminal under domestic law relates to both the nature and the severity of
the penalty.
2.83
In relation to the nature of the penalty, the penalty is likely to be
considered criminal for the purposes of human rights law if (a) the purpose of
the penalty is to punish or deter; and (b) the penalty applies to the public in
general (rather than being restricted to people in a specific regulatory or
disciplinary context).
2.84
The committee notes in this respect the minister's advice that the
measure is intended to deter acts of fraud or misrepresentation. Further, the
measure could apply to a broad number of naturalised citizens so that it may
not be limited to a particular regulatory context.
2.85
These factors mean that the measure is more likely to be considered
'criminal' for the purposes of international human rights law.
2.86
However, even if both these aspects of the test were not fully
satisfied, a penalty may be considered 'criminal' depending upon its severity.
The serious consequences that ultimately may flow from the revocation of a
person's citizenship may also mean that the penalty is considered 'criminal'
for the purposes of international human rights law, thereby engaging the full
range of criminal process rights under articles 14 and 15 of the ICCPR. Given
that the proposed provision removes the requirement that there be prior
determination of guilt to the criminal standard of beyond reasonable doubt, the
measure limits the right to a fair trial. No justification has been provided in
relation to this limitation.
2.87
Further, the right to a fair hearing applies regardless of whether the
revocation of citizenship may be considered criminal.
2.88
In this regard, the committee notes the minister's advice that natural
justice would be respected in relation to a ministerial decision to revoke a
person's citizenship.
2.89
However, while natural justice is important in terms of fair hearing
rights, it is not the only aspect of the right. In particular, internal
administrative processes are not equivalent to external independent and
impartial review and, accordingly, are not sufficient for the purposes of
international human rights law. Also, other provisions of this bill remove the
availability of merits review in relation to personal decisions of the minister
stated to be in the public interest. This would mean that merits review may not
be available in relation to a decision to revoke citizenship where it is made
personally by the minister.
2.90
Finally, the committee notes the minister's advice that judicial review
would still be available in relation to such decisions.
2.91
However, judicial review in Australia is governed by the Administrative
Decisions (Judicial Review) Act 1977, and represents a considerably limited
form of review in that it allows a court to consider only whether the decision
was lawful (that is, within the power of the decision maker). The court cannot
undertake a full review of the facts (that is, the merits) of a particular case
to determine whether the case was correctly decided.
2.92
It is therefore clear that, in context, the proposed provision limits
the right to a fair hearing. No information has been provided as to why this
limitation is justifiable.
2.93
Some members of the committee noted the minister's advice that
individuals would still have access to judicial review which could consider
whether the power to revoke citizenship was exercised in accordance with law.
These members considered that the measure was therefore justified.
2.94
However, some members of the committee consider that the power to
revoke citizenship without a court finding limits the right to a fair hearing.
As set out above, these committee members consider that the minister's response
does not sufficiently justify that limitation for the purposes of international
human rights law. Accordingly, these committee members consider that the
measure is incompatible with the right to a fair hearing. Additionally, these
committee members consider that the power to revoke citizenship without a court
finding as to guilt may be incompatible with the right to a fair trial.
Right to take part in public
affairs
2.95
Article 25 of the ICCPR protects the right to take part in public
affairs. Article 25 provides the right to take part in public affairs and
elections, and guarantees the right of citizens to stand for public office, to
vote in elections and to have access to positions in public service.
2.96
The right to take part in public affairs applies only to citizens. In
order for this right to be meaningful, other rights such as freedom of
expression, association and assembly must also be respected, given the
importance of free speech and protest in a free and open democracy.
2.97
The right to take part in public affairs is an essential part of a
democratic government that is accountable to the people. It applies to all
levels of government, including local government.
Compatibility of the measure with
the right to take part in public affairs
2.98
As the proposed measure grants power to remove Australian citizenship
the measure engages, and has a consequential impact on, the right to take part
in public affairs. The measure may limit the right to take part in public
affairs by acting as a disincentive (a 'chilling effect') for full
participation in public affairs such as standing for public office. Individuals
may be concerned that if they draw attention to themselves through
participation in public affairs then their citizenship is open to scrutiny and
may be liable to be revoked.[23]
The previous report noted that the right to take part in public affairs was not
addressed in the statement of compatibility.
2.99
The committee therefore requested the advice of the Minister for
Immigration and Border Protection as to whether there is reasoning or evidence
that establishes that the stated objective addresses a pressing or substantial
concern or whether the proposed changes are otherwise aimed at achieving a
legitimate objective, whether there is a rational connection between the
limitation and that objective, and whether the limitation is a reasonable and
proportionate measure for the achievement of that objective.
Minister's response
The government does not assess the proposed revocation power
as limiting the right to take part in public affairs. Article 25 of the ICCPR
states in full:
Every citizen shall have the right and the
opportunity, without any of the distinctions mentioned in Article 2 and without
unreasonable restrictions:
- To take part in the conduct of public affairs,
directly or through freely chosen representatives;
- To vote and to be elected at genuine periodic
elections which shall be by universal and equal suffrage and shall be held by
secret ballot, guaranteeing the free expression of the will of the electors;
- To have access, on general terms of equality, to
public service in his country.
Article 25 of the ICCPR is concerned with the right to take
part in public life, not with the right of state parties to determine, subject
to any other applicable treaties or conventions, the circumstances in which a
person's citizenship may be revoked.[24]
Committee response
2.100
The committee thanks the Minister for Immigration and Border
Protection for his response. The committee considers that the measure is likely
to be compatible with the right to take part in public affairs.
Right to freedom of movement
2.101
The right to freedom of movement is protected under article 12 of the
ICCPR and includes a right to leave Australia, either temporarily or
permanently.
2.102
The right to enter one's own country includes a right to remain in the
country, return to it and enter it.[25]
There are few, if any, circumstances in which depriving a person of the right
to enter their own country could be reasonable. State parties cannot, by
stripping a person of nationality or by expelling them to a third country,
arbitrarily prevent a person from returning to his or her own country.
2.103
The reference to a person's 'own country' is not necessarily restricted
to the country of one's citizenship—it might also apply when a person has very
strong ties to the country.[26]
Compatibility of the measure with
the right to freedom of movement
2.104
If a person's citizenship is revoked under the proposed provisions then
the person will be granted an ex-citizen visa.[27]
This may limit the right to freedom of movement because, as noted in the
statement of compatibility, an ex-citizen visa ceases on a person's departure
from Australia.[28]
2.105
When a person who has an ex-citizen visa leaves Australia they may not
be able to return, even in circumstances where Australia is their 'own
country', a concept which encompasses not only a country where a person has
citizenship but also one where a person has strong ties.
2.106
However, the right to freedom of movement and the right to return to
one's own country were not addressed in the statement of compatibility.
2.107
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether there is reasoning or
evidence that establishes that the stated objective addresses a pressing or
substantial concern or whether the proposed changes are otherwise aimed at
achieving a legitimate objective, whether there is a rational connection
between the limitation and that objective, and whether the limitation is a
reasonable and proportionate measure for the achievement of that objective.
Minister's response
The government does not consider that the proposed revocation
power limits Article 12.
In particular the proposed revocation power does not limit
the rights under paragraphs 1, 2 and 3 of Article 12 as a person whose
citizenship has been revoked acquires an ex-citizen visa by operation of law
and that visa does not restrict a person's movement within Australia; nor does
it prevent a person leaving Australia.
Similarly, even if the proposed revocation power engages
Article 12(4), any deprivation of a person's right to enter Australia is not
arbitrary. As noted by the committee, an ex-citizen visa ceases on a person's
departure from Australia. However, a person whose citizenship was revoked has
the opportunity to apply in Australia for a visa that permits them to re-enter
Australia, or, while outside Australia, to apply for a visa. Whether a visa is
granted will depend on whether the person meets the visa requirements. Of the
16 people whose citizenship has been revoked, 5 have subsequently applied for a
visa with a travel facility and have been granted. While it is possible that a
former citizen may be refused a visa to enter Australia, that refusal would be
undertaken in accordance with the legislative requirements and principle of
natural justice. Consequently, the deprivation of the right to enter Australia
would not be arbitrary and the right is not limited.[29]
Committee response
2.108
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.109
The committee welcomes the minister's advice that a person on an
ex-citizen visa will be able to apply for other visas which permit travel.
2.110
However, the committee notes that the grant of such a visa is by no
means assured.
2.111
Further, the committee notes that, a visa including an ex-citizen visa
may be cancelled on a range of grounds, which means that the person may be
subject to deportation.
2.112
The minister's response acknowledges that a former citizen may be
refused a visa to return to Australia, and states that this refusal of entry
would not be 'arbitrary' as it would be in accordance with legislative
requirements and the principle of natural justice. On this basis, the minister
states that the right to enter one's own country is not limited.
2.113
However, the committee notes that this is inconsistent with recent views
expressed by the UN Human Rights Committee (HRC), including in relation to
Australia.
2.114
In particular, the question of whether a person has been arbitrarily
deprived of their right to enter one's own country under article 12 of the ICCPR
is much broader than whether domestic laws and processes have been followed. In
Nystrom v. Australia the UN Human Rights Committee noted the following
in relation to 'arbitrariness' in article 12(4):
even interference provided for by law should be in accordance
with the provisions, the aims and objectives of the Covenant and should be, in
any event, reasonable in the particular circumstances. The Committee considers
that there are few, if any, circumstances in which deprivation of the right
to enter one's own country could be reasonable. A State party must not, by
stripping a person of nationality or by expelling an individual to a third
country, arbitrarily
prevent this person from returning to his or her own country.[30]
2.115
It follows from this jurisprudence that the right to enter one's own
country is limited by the measure. As the minister does not consider that the
revocation of citizenship limits the right to enter or remain in one's own
country, the minister does not provide any information as to why the limitation
is justifiable.
2.116
However, some committee members noted the minister's advice that any
deprivation of a person's right to enter Australia is not arbitrary and,
accordingly, consider that the expanded visa cancellation powers are justified.
2.117
Other committee members consider that revoking the citizenship of a
person who may then be unable to enter, remain or return to their 'own country'
is likely to be incompatible with the right to freedom of movement (which
includes the right to enter, remain and return to one's own country).
Quality of law
2.118
Human rights standards require that interferences with rights must have
a clear basis in law. This principle includes the requirement that laws must
satisfy the 'quality of law' test, which means that any measure which interfere
with human rights must be sufficiently certain and accessible, such that people
are able to understand when an interference with their rights will be
justified.
Compatibility of the measure with
the 'quality of law' test
2.119
As noted above, the committee's previous report considered that the
proposed discretionary power to cancel citizenship may limit a range of human
rights. The proposed power must therefore comply with the 'quality of law' test
in order to be a justifiable limitation. However, in its previous analysis the
committee noted that the terms 'fraud' and 'misrepresentation', the basis on
which a person's citizenship may be revoked, are not defined in the proposed
legislation.[31]
The proposed measure grants broad discretionary powers to the minister. The
committee's previous report therefore considered that the terms of the proposed
provision may be overly broad and insufficiently certain for the purpose of the
'quality of law' test.
2.120
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether the proposed power to revoke
citizenship is compatible with the 'quality of law' test.
Minister's response
As noted earlier in my response, it is not proposed to
provide a statutory definition of fraud or misrepresentation; rather those
words will have their ordinary or common meaning. The government considers that
these ordinary meanings provide sufficient certainty as to the types of conduct
that would be regarded as fraud or misrepresentation.
The government is of the view that that the proposed section
34AA is sufficiently certain and not overly broad The proposed section 34AA
discretionary revocation power, like the existing section 34 discretionary
revocation power, could only be exercised if the Minister is satisfied that it
would be contrary to the public interest for the person to remain an Australian
citizen. The term 'public interest' is not defined in the Citizenship Act or in
policy. The 'public interest' test would include consideration of such matters
as whether the nature or severity of the fraud or misrepresentation was such
that it would be contrary to the public interest to allow the person to retain
their Australian citizenship. The decision would also take into account the
best interests of the child.
Policy guidance regarding the above will be detailed in the
ACI. The ACI is a publicly available document.[32]
Committee response
2.121
The committee thanks the Minister for Immigration and Border
Protection for his response and considers that the power is likely to satisfy
the quality of law test.
Extending the good character requirement to include applicants for
Australian citizenship under 18 years of age
2.122
Currently the good character requirements under the Citizenship Act
apply only to applicants aged 18 and over. The concept of 'good character' is
undefined in the Citizenship Act but, as a matter of policy, is understood to
cover the 'enduring moral qualities of a person' and 'whether they are likely
to uphold and obey the laws of Australia, and other commitments they make
through the Australian Citizenship Pledge'.[33]
2.123
The bill would extend these 'good character' requirements to applicants
for Australian citizenship aged under 18 years of age.
2.124
The previous report noted that the proposed extension of the good
character requirement to applicants for Australian citizenship under 18 years
of age engages and limits the obligation to consider the best interests of the
child and the right to protection of the family.
Obligation to consider the best
interests of the child
2.125
Under the CRC, Australia is required to ensure that in all actions
concerning children, the best interests of the child is a primary
consideration; see [2.11] to [2.12] above.[34]
Compatibility of the measure with
the obligation to consider the best interests of the child
2.126
The statement of compatibility states that the measure engages and is
consistent with the obligation to consider the best interests of the child.[35]
2.127
However, the previous report noted that the extension of the 'good
character' test to child applicants would add an additional requirement for
Australian citizenship which may not be compatible with the best interests of
the child. This is because such a requirement may operate to deny child
applicants Australian citizenship.
2.128
The previous report noted the policy intention that, in practice, the
character requirement would be applied only to persons over the age of 16 for
whom it is possible to obtain police records; and that the Australian
Citizenship Instructions will instruct decision makers to consider the best
interests of the child.[36]
However, there are no such limitations in the proposed provision.
2.129
Further, the statement of compatibility advised that, 'if the department
becomes aware of an applicant who has character issues and is younger than 16,
it would be possible to assess that applicant against the character
requirement.'[37]
2.130
Given this, an assessment of the human rights compatibility of the
measure must take into account the possibility that, as currently drafted,
children under 16 (including very young children) may be subject to the 'good
character' test.
2.131
The statement of compatibility identified the objective of the measure
as 'upholding the value of citizenship and ensuring uniformity and integrity
across the citizenship programme.'[38]
It argued that the measure is needed for consistency with the 'good character'
requirements under the Migration Act. However, in the absence of any detailed
explanation, it was not apparent whether the measure, in seeking such
consistency, may be regarded as addressing a pressing or substantial concern
for the purposes of international human rights law.
2.132
In relation to the proportionality of the measure, the previous report
noted that both international human rights law and Australian criminal law
recognise that children have different levels of emotional, mental and
intellectual maturity than adults, and so are less culpable for their actions.[39]
2.133
In this context, the denial of Australian citizenship to a child on the
basis of such conduct may not be in accordance with accepted understandings of
the capacity and culpability of children under international human rights law.
Further, international human rights law recognises that a child accused or
convicted of a crime should be treated in a manner which takes into account the
desirability of promoting his or her reintegration into society.
2.134
The denial of a child's citizenship on the basis of a 'good character'
test, and its ongoing (and possibly lifelong) effect, may impose a
disproportionately adverse effect on that child's best interests. As such, the
measure may not be a proportionate way to achieving its stated objective.
2.135
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether there is reasoning or evidence
that establishes that the stated objective addresses a pressing or substantial
concern or whether the proposed changes are otherwise aimed at achieving a
legitimate objective, whether there is a rational connection between the
limitation and that objective, and whether the proposed extension of the good
character requirement is a reasonable and proportionate measure for the
achievement of that objective having regard to the different capacities of
children.
Minister's response
The 'good character' requirement currently applies to all
citizenship streams (conferral, descent, adoption and resumption), but only to applicants
aged 18 and over. However, the department is aware of a number of applicants
less than 18 years of age who have had serious character concerns but whose
applications were not covered by the bar on approval concerning criminal
offences in subsection 24(6) of the Citizenship Act. These applicants' criminal
histories have included multiple convictions for common assault and stealing,
robbery in company, reckless wounding in company and aggravated robbery.
The Bill proposes to extend the good character requirement to
include applicants under 18 years of age. The department would only seek
criminal history records for children if they are 16 or 17 years of age, and
this would be done with the client's consent. The department would only seek
information on the character of applicants under 16 years of age if serious
concerns came to attention. The proposed amendments would allow the Minister to
refuse citizenship to minors with known criminal histories and insufficient
evidence of rehabilitation. Guidance on the character requirement for
citizenship is in the ACI. In determining if a person is of good character at a
particular point in time, decision makers take into account a wide range of
factors, including the age of the offender, the circumstances of the offence,
patterns of behaviour, remorse, rehabilitation and any other mitigating
factors.
A legislative body is required to consider the best interests
of the child as a primary consideration. The government is also required to
determine if these interests are outweighed by other primary considerations
such as the integrity of the citizenship programme and the effective and
efficient use of government resources. The government is of the view that
Australia should not negotiate on its good character requirements.
Although in practice it would be extremely rare for the
department to become aware of information showing that a child under the age of
16 is not of good character, it is the government's view that the good
character requirement should not have a lower age limit of 16. The government
notes that all Australian jurisdictions recognise that children under the age
of 18 may commit offences, setting the age of criminal intent at 10. The Bill
seeks to provide a legislative framework that facilitates the identification of
children who may not be of good character, requires an assessment of character
and where the child is found not to be of good character, refusal of
citizenship.
Guidance on the assessment of whether a person is of good
character is provided in Chapter 10 of the ACI. One of the relevant factors set
out in the ACI is the applicant's age at the time the offence was committed. If
the applicant committed the offence at a young age, the commission of the
offence may be given less weight, depending on the nature of the crime and any
subsequent offences. The ACI recognises that the person may since have matured
and gained greater respect for upholding the law, and as such, criminal
offences committed as a juvenile may not be indicative of their current
character.
A finding that an applicant is not of good character does not
prevent them from making a subsequent application for citizenship, if they are
able to show that they are of good character at the time of the decision on
their later application.[40]
Committee response
2.136
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.137
The committee notes that the minister's response provides some
information as to why the measure pursues a legitimate objective of 'upholding the
value of citizenship'.
2.138
However, the committee considers that the minister's response has not
demonstrated that applying the good character test to children is a
proportionate means of achieving this stated objective.
2.139
This is because, as noted above, both international human rights law and
Australian criminal law recognise that children have different levels of
emotional, mental and intellectual maturity than adults, and so are less
culpable for their actions. To deny a child citizenship on the basis of
criminal acts they have committed as a child is likely to be disproportionate
to the objective.
2.140
The committee notes the minister's advice that a finding that an
applicant is not of good character does not prevent them from making a
subsequent application for citizenship, if they are able to show that they are
of good character at the time of the decision on their later application.
2.141
However, this does not completely mitigate the serious consequences that
follow for a child being denied Australian citizenship on character grounds.
2.142
Some members of the committee noted the importance of maintaining the
value of Australian citizenship and determined that the measure is therefore justified.
2.143
However, some other members of the committee consider that applying
the good character test to children when determining their citizenship
application is not proportionate to the objective sought to be achieved and is
therefore incompatible with the obligation to consider the best interests of
the child as a primary consideration.
Right to protection of the family
2.144
The right to respect for the family is protected by articles 17 and 23
of the ICCPR and article 10 of the International Covenant on Economic, Social
and Cultural Rights (ICESCR). Under these articles the family is recognised as
the natural and fundamental group unit of society and, as such, being entitled
to protection.
2.145
An important element of protection of the family, arising from the
prohibition under article 17 of the ICCPR against unlawful or arbitrary
interference with family, is to ensure family members are not involuntarily
separated from one another. Laws and measures which prevent family members from
being together, impose long periods of separation or forcibly remove children
from their parents, will therefore engage this right.
Compatibility of the measure with
the right to protection of the family
2.146
In circumstances where parents of minors successfully apply for
citizenship, the citizenship of those minors may be denied on 'good character'
grounds, thereby risking the permanent separation of the family. Therefore the
measure engages and limits the right to the protection of the family. However,
the right to protection of the family was not addressed in the statement of
compatibility.
2.147
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether there is reasoning or evidence
that establishes that the stated objective addresses a pressing or substantial
concern or whether the proposed changes are otherwise aimed at achieving a
legitimate objective, whether and on what basis there is a rational connection
between the proposed extension of the good character requirement and that
objective, and whether the proposed extension of the good character requirement
is a reasonable and proportionate measure for the achievement of that
objective.
Minister's response
The government does not agree that the proposed amendment
engages the right to protection of the family. The amendment is concerned with
the requirements that must be met in order for a person to be approved for
citizenship. Refusal of citizenship does not in itself affect a person's visa
status or their right to enter or remain in Australia. The government does not
restrict the right of its permanent residents or citizens to depart Australia
to be with other family members.
Article 17 of the ICCPR carries with it an obligation to
ensure family members are not involuntarily separated from each other. Rather,
it provides that "No one shall be subjected to arbitrary or unlawful
interference with his ... family". Even if Article 17 is engaged, any limit
on the right to protection of family would be neither arbitrary nor unlawful. A
sovereign nation may determine the conditions under which a person may acquire
that nation's citizenship, within any applicable principles in treaties or
conventions to which it is a party. In the Australian context, each applicant
for citizenship or a visa is assessed against the legislative requirements as
an individual and in their own right. People do not acquire a right to
citizenship simply because their family holds citizenship.[41]
Committee response
2.148
The committee thanks the Minister for Immigration and Border
Protection for his response and considers that, in light of the margin that
states are given under international law with respect to the grant of
citizenship, the measure may be compatible with the right to protection of the
family.
Citizenship to a child found abandoned in Australia
2.149
Section 14 of the Citizenship Act currently provides that a person is an
Australian citizen if they are found abandoned in Australia as a child unless
the contrary is proved.[42]
2.150
Proposed section 12(8) would replace current section 14 of the
Citizenship Act to provide that a person found abandoned in Australia as a
child is taken to have been born in Australia and to be an Australian citizen
by birth, unless it is proved that the person was outside Australia before they
were found abandoned or they are not an Australian citizen by birth.[43]
The measure engages and may limit the obligation to consider the best interest
of the child as discussed below.
Obligation to consider the best
interests of the child
2.151
Under the CRC, Australia is required to ensure that, in all actions
concerning children, the best interests of the child is a primary
consideration; see [2.11] to [2.12] above.[44]
Compatibility of the measure with
the obligation to consider the best interests of the child
2.152
The statement of compatibility acknowledges that the measure engages the
obligation to consider the best interests of the child.[45]
The proposed provision creates additional qualification requirements for Australian
citizenship, which may not be in the best interests of the child; and therefore
considered that the measure may limit the obligation.
2.153
The statement of compatibility states that the objective of replacing
current section 14 of the Citizenship Act is to 'clarify the meaning of the
abandoned child provision.'[46]
However, it does not provide supporting reasons to demonstrate that this
objective addresses a pressing or substantial concern.
2.154
Additionally, a limitation must be rationally connected to, and a proportionate
way to achieve, its legitimate objective in order to be justifiable in
international human rights law.
2.155
In this regard, it is unclear whether there is a rational connection
between the stated objective of the measure and the terms of the measure itself.
2.156
This is because, while the stated objective of the measure is to
'clarify' a provision (with the implication that there is no substantive change
to the provision), the proposed measure in fact introduces a new factor that
can disqualify an abandoned child from being an Australian citizen, which is
that the child was 'outside Australia at any time before the [they were] found
abandoned in Australia as a child'.
2.157
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether the proposed amendments to
citizenship for an abandoned child are aimed at achieving a legitimate
objective, and whether and on what basis the proposed amendments to citizenship
for an abandoned child are rationally connected to achieving a legitimate
objective, and whether the proposed amendments to citizenship for an abandoned
child are a reasonable and proportionate measure for the achievement of that
objective.
Minister's response
As noted in the statement of compatibility, the objective of
replacing current section 14 of the Citizenship Act is to clarify the meaning
of the abandoned child provision.
Currently, section 14 of the Citizenship Act provides:
"A person is an Australian citizen if the person
is found abandoned in Australia as a child, unless and until the contrary is
proved."
In practice, the department is only required to make a
finding of fact under section 14 when a person makes a claim to the department
that they are an Australian citizen under that provision. For example, when the
person or another party acting on their behalf applies for evidence of
citizenship. In order to find that a person is an Australian citizen under
section 14, the Minister must consider several matters:
-
whether there is evidence the person is an Australian citizen under any
other provision of the Citizenship Act - if so, section 14 is not relevant to
the person's situation;
-
whether the person was found abandoned as a child - if not, the
presumption of citizenship is not available;
-
whether there is evidence that the person is not an Australian citizen,
for example, evidence of their birth outside Australia and no record that they
acquired Australian citizenship - if so, the presumption is disproved. A
relevant consideration is whether the child is known to have been outside
Australia prior to being found abandoned and the circumstances and the
circumstances of their entry or re-entry. For example, if the child entered
Australia lawfully, their identity and citizenship status will be known. If the
child entered Australia unlawfully, the fact of that unlawful entry would give
rise to strong inference that the child is not an Australian citizen in the
absence of contrary information.
The amendment to the abandoned child provision to state that
the presumption of citizenship does not apply if the child is known to have
been physically outside Australia on or before the day on which it is claimed
the child was found abandoned does not introduce a new factor that can
disqualify an abandoned child from being an Australian citizen. Rather, it
explicitly states a current consideration. To the extent that the amendment
removes the discretion of the Minister to determine that a person is a citizen
under section 14 when that person is known to have been outside Australia prior
to being found abandoned, the amendment may limit the obligation to consider
the best interests of the child.
As noted in the statement of compatibility, Article 3 of the
CRC sets out that the best interests of the child shall be a primary consideration
in all actions concerning children. To that end, a legislative body is required
to consider the best interests of the child as a primary consideration, and to
determine whether these interests are outweighed by other primary
considerations, such as the integrity of the citizenship programme. The
proposed amendment to the abandoned child provision seeks to restore the
original intent of the legislation and directly link the presumption of
citizenship for abandoned children with the citizenship by birth provisions.
Any limitation on the obligation to consider the best
interests of the child is both reasonable and proportionate, as a child who is
known to have been outside Australia prior to being found abandoned:
-
whose identity is known will have their visa or citizenship status
assessed in accordance with the relevant provisions of the Migration and
Citizenship Acts; or
-
whose identity is unknown will not be presumed to be an Australian
citizen and will have their status determined under the Migration Act, reducing
the potential for the abandoned child provision to be incorrectly applied to
unlawful non-citizens.[47]
Committee response
2.158
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.159
The committee notes the minister's advice that the amendment does not
introduce a new factor that can disqualify an abandoned child from being an
Australian citizen. Rather the change 'states a current consideration' as to
how the law is being applied.
2.160
However, the committee notes that this 'current consideration' is not a
mandatory consideration as a matter of statute but a matter of departmental
policy.
2.161
Accordingly, the legislative change, by narrowing the statutory right of
a child found abandoned in Australia to citizenship, does limit the obligation
to consider the best interests of the child.
2.162
The committee considers that the response does not establish that the
measure pursues a legitimate objective for the purposes of international human
rights law. The response states only that the measure seeks to restore the
original intent of the legislation and directly link the presumption of
citizenship for abandoned children with the citizenship by birth provisions.
However, no evidence is provided as to how the measure pursues a substantial or
pressing concern.
2.163
Further, the response does not explain how the measure is rationally
connected to its objective—that is, how it gives effect to the objective of
directly linking the presumption of citizenship with citizenship by birth
provisions.
2.164
Some members of the committee noted the minister's advice that the
objective of replacing current section 14 of the Citizenship Act is to clarify
the meaning of the abandoned child provision and that any limitation on the
obligation to consider the best interests of the child is justified.
2.165
However, other members of the committee considered that the
introduction of a new statutory factor that can disqualify an abandoned child
from being an Australia citizen is a limitation on the obligation to consider
the best interests of the child. As set out above, these committee members
consider that the minister's response does not sufficiently justify that
limitation for the purposes of international human rights law as the response
does not clearly demonstrate that the measure addresses a substantial and
pressing concern or that the measure is rationally connected to that objective.
These members of the committee therefore consider that the measure is likely to
be incompatible with the obligation to consider the best interests of the
child.
Limiting automatic citizenship at 10 years of age
2.166
Currently, section 12 of the Citizenship Act provides that a child born
in Australia will automatically be an Australian citizen if either their parent
is a citizen or permanent resident when they were born or the child is
'ordinarily resident' in Australia for their first 10 years of life.[48]
There is a limited exception in cases where the child's parent is an enemy
alien.
2.167
The bill would amend section 12 to deny automatic citizenship for a
child born in Australia in any of the following circumstances arising at any
time during the child's first 10 years of life:
-
one or both of the child's parents were foreign diplomats;
-
the child did not hold a valid visa (that is, they were present
in Australia as an unlawful non-citizen);
-
the child travelled outside Australia and did not hold a visa
permitting them to travel to, enter and remain in Australia (this will not
apply to New Zealand citizens); or
-
one or both of the child's parents came to Australia before the
child was born, did not hold a substantive visa at the time of the child's
birth and was an unlawful non-citizen at any time prior to the child's birth (a
bridging visa, criminal justice visa or enforcement visa will not be considered
to be a substantive visa).[49]
2.168
As the measure amends the circumstances in which Australian citizenship
may be granted to children, ordinarily resident in Australia for the first 10
years of their life, the measure engages the obligation to consider the best interests
of the child.
Obligation to consider the best
interests of the child
2.169
Under the CRC, Australia is required to ensure that in all actions
concerning children the best interests of the child is a primary consideration;
see [2.11] to [2.12] above.[50]
Compatibility of the measure with
the obligation to consider the best interests of the child
2.170
The statement of compatibility stated that the measure engages the
obligation to consider the best interests of the child.[51]
2.171
However, while article 3 of the CRC requires the child's best interests
to be considered as a primary consideration, the assessment of the measure did
not explicitly state that it limits this consideration.[52]
The statement of compatibility stated only that in introducing the provision
the department is taking into account the best interests of the child.[53]
2.172
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether there is reasoning or evidence
that establishes that the stated objective addresses a pressing or substantial
concern or whether the proposed changes are otherwise aimed at achieving a
legitimate objective, whether there is a rational connection between the limitation
and that objective, and whether the limitation is a reasonable and
proportionate measure for the achievement of that objective.
Minister's response
The proposed amendment seeks to ensure that citizenship by
operation of law is only accorded to those persons who have maintained a lawful
right to remain in Australia during the ten years from their birth. It also
provides that citizenship under the ten year rule is not available to a child
whose birth in Australia followed the presence in Australia of the child's
parent as an unlawful non-citizen.
Article 3 of the CRC sets out that the best interests of the
child shall be a primary consideration in all actions concerning children.
Any limitation on the obligation to consider the best
interests of the child is both reasonable and proportionate as:
-
Limiting application of the ten year rule to children who have
maintained a lawful presence since birth sends a strong message that
non-citizens are expected to comply with Australia's migration legislation and
reduces the incentive to remain in Australia unlawfully.
-
It is an inherent requirement of the migration legislation that a person
on a temporary visa is responsible for maintaining their lawful status and is
entitled to remain in Australia only for so long as the visa is in effect. An
unlawful non-citizen is subject to removal if they do not voluntarily depart.
Primary responsibility for a child's migration status and welfare rests with
the child's parents or other responsible adult. It is incumbent on those adults
to prepare a child who does not have permanent residence for life outside
Australia, just as the parents or responsible adults must themselves prepare
for life outside Australia when their temporary visa ceases to be in effect.
This position is supported by Article 18(1) of the CRC, which states that
"... Parents or, as the case may be, legal guardians, have the primary
responsibility for the upbringing and development of the child. The best
interests of the child will be their basic concern."
-
The Citizenship Act provides, and would continue to provide, that a
person born in Australia who is stateless has access to citizenship through
subsection 21(8) of the Citizenship Act. Eligibility under subsection 21 (8) is
not in any way dependent on the migration status of the applicant's parents.
-
The ten year rule amendments do not prohibit children from applying
under other pathways to Australian citizenship, such as citizenship by
conferral, should they become eligible.
-
The amendment does not affect the child of a person who had been an
unlawful non-citizen but had regularised their status by obtaining a
substantive visa prior to the child's birth.
-
A child born to unlawful non-citizens and who does not acquire a visa to
remain in Australia is subject to removal along with their parents. Children
subject to removal undergo a best interest of the child assessment prior to the
removal decision being made.[54]
Committee response
2.173
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.174
In response to the committee's inquiry as to whether the measure had a
legitimate objective, the minister advises:
The proposed amendment seeks to ensure that citizenship by
operation of law is only accorded to those persons who have maintained a lawful
right to remain in Australia during the ten years from their birth. It also
provides that citizenship under the ten year rule is not available to a child
whose birth in Australia followed the presence in Australia of the child's
parent as an unlawful non-citizen.
2.175
However, no evidence is provided as to how the measure addresses a
substantial and pressing concern—for example, by providing evidence of any
abuse of the 10-year rule.
2.176
Further, no evidence is provided as to how the measure is rationally
connected to this objective.
2.177
In particular, the committee notes that the measure applies to children
born in Australia who have lived their whole life in Australia and are just shy
of their tenth birthday. It is unclear how legislating to deny such children an
automatic right to citizenship is rationally connected to an objective of
encouraging parents to regularise their status before having children in
Australia.
2.178
The committee further notes that the minister's response provides a
detailed justification for the proportionality of the measure.
2.179
However, while much of this information may demonstrate the
proportionality of the measure, in the absence of a legitimate objective and a
rational connection the measure cannot be compatible with international human
rights law.
2.180
Further the committee notes the minister's comment that:
Primary responsibility for a child's migration status and
welfare rests with the child's parents or other responsible adult. It is
incumbent on those adults to prepare a child who does not have permanent
residence for life outside Australia, just as the parents or responsible adults
must themselves prepare for life outside Australia when their temporary visa
ceases to be in effect
2.181
The obligations of parents notwithstanding, Australia has an obligation under
international law to ensure that, in preparing legislation and making
administrative decisions under that legislation, the best interests of the
child are a primary consideration. The extent to which parents meet their
obligations in no way reduces the obligations on Australia as a party to the
CRC.
2.182
Some committee members noted the minister's advice that the proposed
amendment seeks to ensure that citizenship is only accorded to those persons
who have maintained a lawful right to remain in Australia during the ten years
from their birth and considered that any limitation on the obligation to
consider the best interests of the child is justified.
2.183
However, other members of the committee considered that the proposed
amendment to the ten-year rule for citizenship limits the obligation to
consider the best interests of the child. As set out above, those committee
members consider that the minister's response does not sufficiently justify
that limitation for the purposes of international human rights law, in
particular that the measure seeks to achieve a legitimate objective.
Accordingly, those committee members consider that the measure is likely to be incompatible
with the obligation to consider the best interests of the child.
Personal ministerial decisions not subject to merits review
2.184
Currently, a decision refusing to grant or approve citizenship, or
revoke citizenship, under the Citizenship Act is subject to full merits review
by the Administrative Appeals Tribunal (AAT). The AAT provides an independent
review process, considering afresh the facts, law and policy relating to
certain administrative decisions.
2.185
The bill proposes removing the power of the AAT to review a decision
made by the minister personally under the Citizenship Act, if the minister has
stated that the decision was made in the public interest.[55]
No definition of what might constitute the public interest is included in the
bill.[56]
The removal of merits review by the AAT may engage the right to a fair hearing
as discussed below.
Right to a fair hearing
2.186
The right to a fair trial and fair hearing is protected by article 14 of
the ICCPR. The right applies to both criminal and civil proceedings, and to
cases before both courts and tribunals; see [2.66] – [2.67] above.
Compatibility of the measure with the
right to a fair hearing
2.187
The committee noted previously that, as described above, the right to a
fair hearing applies in both criminal and civil proceedings, including where
rights and obligations are to be determined.
2.188
While the bill would preserve judicial review under section 75(v) of the
Constitution and section 39B of the Judiciary Act 1903, judicial review
cannot examine the merits of the decision and is limited to cases where there
is an identifiable error of law. Judicial review is therefore not equivalent
to, or a complete substitute for, access to merits review by the AAT, and so
does not fully mitigate the possible limitation on the right to a fair hearing.
2.189
However, this issue was not identified in the statement of
compatibility.
2.190 The committee
therefore sought the advice of the Minister for Immigration and Border
Protection as to whether the proposed changes are aimed at achieving a
legitimate objective, whether there is a rational connection between the
limitation and that objective, and whether the limitation is a reasonable and
proportionate measure for the achievement of that objective.
Minister's response
The Bill proposes that any personal decision of the Minister
be protected from merits review if the decision is made in the public interest,
and that a statement be tabled in both Houses of Parliament within 15 sitting
days if such a personal decision is made. It is anticipated that such decisions
will be rarely made, but if they are made on public interest grounds, such
decisions would not be reviewable by the AAT. The proposal preserves the
significance of an elected official making a decision in the public interest by
not allowing that decision to be subject to merits review. A similar protection
is available under the Migration Act.
Currently, the only powers which the Minister cannot delegate
under the Citizenship Act are approval of a citizenship test and application of
an "alternative residence requirement" to an application for
citizenship. However, in practice, decisions about revocation of citizenship
for fraud or serious offences have not been delegated to departmental officers
and have been made personally by the Minister. These are serious powers and
have been used sparingly. Some cases currently under consideration for
revocation involve convictions for murder, paedophilia, incest and fraud.
Also, on occasion it is appropriate for the Minister to
personally exercise the power in subsection 24(2) of the Citizenship Act to
refuse an application for citizenship by conferral where the Minister decides
that the circumstances are such that it would not be in the public interest for
the applicant to become a citizen at that time, despite the applicant being
otherwise eligible.
In both revocation and discretionary refusals, the decisions
involve consideration of the public interest and consideration of Australian
community standards and values. In particular, the revocation provisions
require the Minister to be satisfied that it would be contrary to the public
interest for the person to remain an Australian citizen.
The Bill provides that if a decision is made by the Minister
personally, the notice of reasons for decision (under section 47) may include a
statement that the Minister is satisfied that the decision was made in the
public interest. It then provides that AAT review is not available when a
notice under section 47 includes a statement that the Minister is satisfied
that the decision was made in the public interest. Examples of personal
decisions which could be made on public interest grounds are:
-
refusing citizenship if the applicant is not of good character (whether
conferral, descent, resumption or adoption);
-
refusing citizenship on a discretionary basis despite the applicant
being otherwise eligible;
-
cancellation of approval of citizenship by conferral;
-
revocation of citizenship for offences or fraud;
-
overturning a decision of the AAT (see below).
To provide for transparency and accountability, the Bill
proposes that the Minister report to Parliament if s/he makes a personal
decision which is not subject to merits review, but that such a statement not
disclose the name of the client. This is similar to sections 22A(9)-(10) and
22B(9)-(10) of the Citizenship Act, which require a report to be tabled if the
personal discretion to apply the alternative residence requirements is applied,
and for that report to not disclose the client's name.
The government notes that much of Article 14(1) of the ICCPR
relates only to persons facing criminal charges or suits of law and may not be
directly applicable to citizenship proceedings. Where appropriate, however, the
government seeks to provide comparable arrangements for reviews involving
administrative decisions that impact a person's rights, liberties or
obligations.
The provision to protect personal decisions of the Minster
from merits review may engage and limit the right to a fair hearing as the
person will not enjoy the same right to merits review as a person who was subject
of a decision by a delegate of the Minister. However, this limitation is a
reasonable and proportionate measure as:
-
The Minister's personal decision would be consequent to an
administrative process that would be undertaken within the administrative law
framework and in accordance with principles of natural justice.
-
Judicial review is still available. In a judicial review action, the
Court would consider whether or not the power given by the Citizenship Act has
been properly exercised. For a discretionary power such as personal decisions
of the Minister under the Citizenship Act, this could include consideration of
whether the power has been exercised in a reasonable manner. It could also
include consideration of whether natural justice has been afforded and whether
the reasons given provide an evident and intelligible justification for why the
balancing of these factors led to the outcome which was reached.
-
The department will enhance its current ACI and case escalation matrix
to ensure that advice is consistent and that only appropriate cases are brought
to the Minister's personal attention, so that merits review is not excluded as
a matter of course.[57]
Committee response
2.191
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.192
The committee agrees that article 14 fair hearing rights only apply in
the case of criminal charges or determinations of rights and obligations at a
suit at law.
2.193
However, the revocation of citizenship involves the removal of an
existing right that would create a suit at law for the purposes of article 14;
and a decision to cancel citizenship may create a suit at law having regard to
the individual facts of each case.
2.194
As noted in the committee's initial analysis, the bill would preserve
judicial review under section 75(v) of the Constitution and section 39B of the Judiciary
Act 1903. However, judicial review cannot examine the merits of the
decision, and is limited to cases where there is an identifiable error of law.
2.195
The committee therefore considered that judicial review is not
equivalent to, or a complete substitute for, access to merits review by the
AAT, and so does not fully mitigate the possible limitation on the right to a
fair hearing.
2.196
The minister's response does not explain the legitimate objective of the
measure and how it addresses a substantial and pressing concern.
2.197
In addition, the response does not explain how the measure is rationally
connected to the objective.
2.198
In terms of proportionality, the response explains the administrative
processes within the department and the changes to its case escalation
processes. The committee notes that these internal administrative processes are
not equivalent to external independent review and, accordingly, are not
sufficient for the purposes of international human rights law.
2.199
Some committee members noted the minister's advice that the measure
preserves the significance of an elected official making a decision in the
public interest, by not allowing that decision to be subject to merits review
and accordingly considered that the measure was justified.
2.200
However, other committee members consider that, in relation to the
cancellation or revocation of a person's citizenship, removal of a merits
review process limits the right to a fair hearing. As set out above, these
committee members consider that the minister's response does not provide a
sufficient justification of that limitation for the purposes of international
human rights law. Accordingly, those committee members consider that the
measure is likely to be incompatible with the right to a fair hearing.
Ministerial power to set aside decisions of the AAT if in the public
interest
2.201
Currently under the Citizenship Act, a decision refusing or cancelling
approval for a person to become an Australian citizen, because the person was
not of good character or because of doubts as to the person's identity, is
subject to review by the AAT. The AAT is empowered to make a decision setting
aside that refusal or cancellation.
2.202
The bill proposes empowering the minister to set aside such a decision made
by the AAT if the minister's delegate had originally decided that an applicant
for citizenship was not of good character, or was not satisfied as to the
person's identity, and the minister is satisfied it is in the public interest
to set aside the AAT's decision. The proposed power to set aside a decision of
the AAT engages the right to a fair hearing.
Right to a fair hearing
2.203
The right to a fair hearing is protected by article 14 of the ICCPR. The
right applies to both criminal and civil proceedings, and to cases before both
courts and tribunals; see [2.66] – [2.67] above.
Compatibility of the measure with
the right to a fair hearing
2.204
The statement of compatibility noted that the measure engages the right
to a fair hearing, but concluded that the measure does not limit the right to a
fair hearing as affected applicants will still be entitled to seek judicial
review.[58]
2.205
However, as set out at [2.187], judicial review is not equivalent to, or
an effective substitute for, merits review.
2.206
As the measure allows the minister to substitute and therefore
effectively overrule the decision of the AAT, the measure may limit the right
to a fair hearing, by effectively removing a person's right to a hearing before
an independent and impartial tribunal. Accordingly, the potential limitation on
the right to a fair hearing by the measure needs to be justified for the
purposes of international human rights law.
2.207 The committee
therefore sought the advice of the Minister for Immigration and Border
Protection as to whether there is reasoning or evidence that establishes that
the stated objective addresses a pressing or substantial concern or whether the
proposed changes are otherwise aimed at achieving a legitimate objective,
whether there is a rational connection between the limitation and the stated
objective and whether the limitation is a reasonable and proportionate measure
for the achievement of that objective.
Minister's response
The Citizenship Bill provides the Minister with a power to
personally set aside certain decisions of the AAT concerning character and
identity if it is in the public interest to do so. It also provides that
personal decisions made by the Minister in the public interest are not subject
to merits review. Applicants affected by a personal decision would continue to
have access to judicial review.
The government reiterates its view that the provision does
not impact the enjoyment of the right to a fair hearing as applicants for
citizenship who have been affected by the Minister's decision to set aside AAT
decisions will still be entitled to seek judicial review of the Minister's decision
under s 75(v) the Constitution and s 39B of the Judiciary Act 1903 at
the Federal and High Courts. In a judicial review action, the Court would
consider whether or not the power given by the Citizenship Act has been
properly exercised. For a discretionary power such as personal decisions of the
Minister under the Citizenship Act, this would include consideration of whether
the power has been exercised in a reasonable manner. It would also include
consideration of whether natural justice has been afforded and whether the
reasons given provide an evident and intelligible justification for why the
balancing of these factors led to the outcome which was reached.[59]
Committee response
2.208
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.209
The response reiterates the minister's view that the measure does not
limit fair hearing rights as judicial review is still available.
2.210
However, as set out at paragraph [2.187], the committee does not
consider that judicial review is equivalent to, or an effective substitute for,
merits review.
2.211
In particular, judicial review cannot examine the merits of the
decision, and is limited to cases where there is an identifiable error of law.
2.212
As the measure allows the minister to substitute and therefore
effectively overrule the decision of the AAT, the committee considers that the
measure limits the right to a fair hearing by effectively removing a person's
right to a hearing before an independent and impartial tribunal. Accordingly,
the committee considers that the limitation on the right to a fair hearing by
the measure needs to be justified for the purposes of international human
rights law.
2.213
However, the minister's response does not provide a justification beyond
noting the availability of judicial review.
2.214
Some committee members noted the minister's advice that the measure
does not impact on the enjoyment of the right to a fair hearing as applicants
for citizenship who have been affected by the minister's decision to set aside
AAT decisions will still be entitled to seek judicial review and accordingly
considered that the measure is justified.
2.215
However, other committee members consider that the proposed power to
set aside AAT decisions in relation to the cancelation of approval for
citizenship limits the right to a fair hearing. As set out above, these
committee members consider that the minister's response does not sufficiently
justify that limitation for the purposes of international human rights law.
Accordingly, those committee members consider that the measure is likely to be
incompatible with the right to a fair hearing.
Extension of bars to citizenship where a person is subject to a court order
2.216
Currently, section 24(6) of the Citizenship Act requires that a person
not be approved for citizenship by conferral until a prescribed period of time
has passed since they were in prison for certain offences, or while the person
is subject to proceedings in relation to certain offences.
2.217
The proposed amendments would extend this bar on approval for
citizenship to cases where a person is subject to home detention or a court
order in connection with proceedings for a criminal offence, or that requires
the person to participate in a residential scheme (including a residential drug
rehabilitation scheme or a residential program for those experiencing mental
illness).[60]
As a result, the measure engages the rights to equality and non-discrimination
on the grounds of mental illness or disability.
Right to equality and
non-discrimination
2.218
The right to equality and non-discrimination is protected by
articles 2, 16 and 26 of the ICCPR.
2.219
This is a fundamental human right that is essential to the protection
and respect of all human rights. It provides that everyone is entitled to enjoy
their rights without discrimination of any kind, and that all people are equal
before the law and entitled without discrimination to the equal and
non-discriminatory protection of the law.
2.220
The ICCPR defines 'discrimination' as a distinction based on a personal
attribute (for example, on the basis of race, sex or disability),[61] which has
either the purpose (called 'direct' discrimination), or the effect (called
'indirect' discrimination), of adversely affecting human rights.[62] The UN Human
Rights Committee has explained indirect discrimination as 'a rule or measure
that is neutral on its face or without intent to discriminate', which
exclusively or disproportionately affects people with a particular personal
attribute.[63]
2.221
The Convention on the Rights of Persons with Disabilities (CRPD) further
describes the content of these rights, describing the specific elements that
state parties are required to take into account to ensure the right to equality
before the law for people with disabilities, on an equal basis with others.
2.222
Article 5 of the CRPD guarantees equality for all persons under and
before the law and the right to equal protection of the law. It expressly
prohibits all discrimination on the basis of disability.
2.223
Article 12 of the CRPD requires state parties to refrain from denying
persons with disabilities their legal capacity, and to provide them with access
to the support necessary to enable them to make decisions that have legal
effect.
Compatibility of the measure with
the rights to equality and non-discrimination
2.224
The statement of compatibility identifies that the right to equality and
non-discrimination is engaged by the measure because the proposed bar on
approval for citizenship 'extends to people who have a mental illness and who
have been subject to an order of the court requiring them to participate in a
residential program for the mentally ill'.[64]
2.225
It states that the measure pursues the legitimate objective of 'ensuring
that citizenship is only available to those people who are not subject to an
obligation to the court,'[65]
and argues that this is important as '[b]eing of good character is a
fundamental tenet of the citizenship programme'.[66]
2.226
However, the information provided in the statement of compatibility did
not adequately demonstrate that the proposed measure addresses a legitimate
objective.
2.227
The statement of compatibility further argued that the amendments are
proportionate to the stated aim because they reflect the criminal law, which
imposes consequences for committing a criminal offence on all persons.[67]
2.228
However, there is no clear relationship between this explanation of the
measure and the terms of the measure itself.
2.229
This is because, while the explanation of the measure refers to 'consequences
for committing a criminal offence',[68]
the measure is considerably broader and would affect people who have not
committed a criminal offence but are merely involved in 'proceedings for an
offence'. This would include people who have not been convicted and who are on
bail or on remand, or who have been determined to be unfit to plead or have
been found not guilty of an offence by reason of mental illness. The measures
as currently drafted would thus bar a person who is subject to a court order
from citizenship whether or not they had been convicted of a crime.
2.230
Accordingly, the measure may not be proportionate to its objective.
2.231
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether the proposed extension of bars
to citizenship where a person is subject to a court order is compatible with
the right to equality and non-discrimination, and particularly whether the
proposed changes are aimed at achieving a legitimate objective, whether there
is a rational connection between the limitation and that objective, and whether
the limitation is a reasonable and proportionate measure for the achievement of
that objective.
Minister's response
The Citizenship Act includes various provisions that bar a
person from being approved for citizenship at a time when they are affected by
prescribed circumstances, such as when they are subject of an adverse or
qualified security assessment, the Minister is not satisfied of the identity of
the person and when the person falls under the Offences provision in
subsection 24(6). A person who was refused citizenship because they were
affected by one or more bars but who otherwise meets the requirements for
citizenship will be eligible for citizenship once they are no longer affected
by the bar/s on approval.
In summary, the Offences provision currently provides that a
person must not be approved for citizenship at a time:
-
when proceedings for an offence against an Australian law are pending in
relation to the person;
-
when the person is confined to a prison in Australia;
-
during the period of 2 years after the end of a serious prison sentence,
or the period of ten years after the end of any period of a serious prison
sentence where the person is a serious repeat offender;
-
when the person can be required to serve the whole or part of a sentence
after having been released on parole or licence;
-
when action can be taken against the person under an Australian law
because of a breach of a condition of a security given to a court; or
-
during any period where the person is confined in a psychiatric
institution by order of a court made in connection with proceedings for an
offence against an Australian law in relation to that person.
The existing offence provisions were largely carried over from
the Australian Citizenship Act 1948 (the 1948 Act) and were not updated
to reflect modem sentencing practices in 2007.
The Bill:
-
updates paragraph 24(6)(f) to recognise that a court can release a
person from serving the whole or part of a sentence of imprisonment subject to
conditions relating to their behaviour;
-
updates paragraph 24(6)(g) to recognise that in respect of proceedings
for an offence against an Australian law, a court can release a person subject
to conditions relating to their behaviour, including when a term of
imprisonment may not be available; and
-
inserts paragraphs 24(6)(i) and (j) to provide bars on approval when the
person is subject to an order of a court for home detention or participation in
residential schemes or programmes. Although sentencing practices such as home
detention are a deliberate decision of the courts as an alternative to
imprisonment, they are only used if a person has been convicted of a criminal
offence and needs to remain under some form of obligation to the court. From a
citizenship programme perspective, it is not appropriate to confer citizenship
upon applicants while the obligation remains.
These amendments help maintain the integrity of the
citizenship programme by preventing citizenship being conferred on people while
they are subject of an ongoing matter before the courts or they are still under
an obligation to a court in relation to a criminal offence.
The government's view is that the limitation is reasonable
and proportionate as it upholds the value of citizenship by barring a person
from becoming a citizen while they are before the courts or subject to an order
of the courts, but does not prevent the person from acquiring citizenship once
they are no longer subject to that bar.[69]
Committee response
2.232
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.233
The committee notes that the response provides a detailed summary of the
existing law and as set out in the bill.
2.234
The response also explains the legitimate objective of the bill as
maintaining the integrity of the citizenship program.
2.235
However, the response does not explicitly explain how the measure is
rationally connected to its objective. That is, there is no clear relationship
between the explanation of the measure and the terms of the measure itself. In
particular, it does not show how denying citizenship to individuals who are
confined on the basis of mental illness upholds the integrity of the
citizenship program.
2.236
In terms of proportionality, the response explains that the bar on
gaining citizenship is not necessarily permanent (that is, unless the
individual is permanently confined in a psychiatric facility).
2.237
However, that the bar is potentially only temporary is insufficient to
demonstrate proportionality, particularly, if it has not been demonstrated that
it is proportionate to impose the bar in the first place.
2.238
Some committee members noted the minister's advice that the measure
helps maintain the integrity of the citizenship programme and is intended to uphold
the value of citizenship by barring a person from becoming a citizen while they
are before the courts or subject to an order of the courts, and does not
prevent the person from acquiring citizenship once they are no longer subject
to that bar. Accordingly, those committee members considered that the measure is
justified.
2.239
However, other committee members consider that the extension of bars
to citizenship limits rights to equality and non-discrimination. As set out
above, those committee members consider that the minister's response does not
sufficiently justify that limitation for the purposes of international human
rights law. Accordingly, these committee members consider that the measure is
likely to be incompatible with the right to equality and non-discrimination.
Tabling statement
2.240
The bill proposes inserting a new section into the Citizenship Act to
require the minister to cause a statement to be tabled in each House of
Parliament when the minister makes a decision that is not reviewable by the
AAT, or decides to set aside a decision of the AAT.[70]
The committee considers that this measure may engage the right to privacy.
Right to privacy
2.241
Article 17 of the ICCPR prohibits arbitrary or unlawful interferences
with an individual's privacy, family, correspondence or home. However, this
right may be subject to permissible limitations.
Compatibility of the measure with
the right to privacy
2.242
The proposed provision provides that the tabling statement must not
include the name of the person affected by the decision.
2.243
However, there may be instances in which a person's identity could be
inferred from the information in the tabling statement. In particular, the
committee noted that the tabling statement will set out the minister's decision
and give the reasons for the minister's decision. The reasons will set out a
person's personal circumstances or the minister's opinion of a person's
character.
2.244
The statement of compatibility did not identify the right to privacy as
being engaged.
2.245
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether the tabling statement in
Parliament could lead to an individual being identified either directly or
indirectly and how this is compatible with the right to privacy, and
particularly, whether the proposed changes are aimed at achieving a legitimate
objective, whether there is a rational connection between the limitation and
that objective, and whether the limitation is a reasonable and proportionate
measure for the achievement of that objective.
Minister's response
As noted by the committee, the Bill proposes inserting a new
section into the Citizenship Act to require the Minister to cause a statement
to be tabled in each House of Parliament when the Minister makes a decision
that is not reviewable by the AAT, or decides to set aside a decision of the
AAT. Proposed section 52B of the Bill provides that such a statement must not
disclose the name of the applicant. It does not require the Minister to provide
specific personal information about an applicant when tabling the statement of
the Minister's personal decision in Parliament.
The objective of this proposal is to provide for transparency
and accountability in the decision-making process, while protecting the privacy
of the applicant. While the proposal may engage a person's right to privacy, it
does not impose a new limit on that right to privacy as it does not require the
publication of any greater detail than may otherwise be published if the
person's decision was subject to review at the AAT. Under section 35 of the Administrative
Appeals Tribunal Act 1975 (Cth) (AAT Act) and the AAT's privacy policy the
AAT has the power to decide whether or not to publish personal information,
including names. Decisions are required to be published under section 43 of the
AAT Act, but the publication of evidence given before the Tribunal can be
restricted or prohibited under section 35. However, the type of details
published in an AAT decision record (such as birth date, place of birth,
occupation, date of arrival in Australia) may be enough to identify a person
even if the name of that person were withheld.[71]
Committee response
2.246
The committee thanks the Minister for Immigration and Border
Protection for his response. The committee considers that the minister's
response demonstrates that the limitation on the right to privacy is justified.
In particular, the committee notes the minister's advice that information in
the tabling statement will not be in any greater detail than may otherwise be
published if the person's decision was subject to review at the Administrative
Appeals Tribunal. Accordingly, the committee considers that the measure is
likely to be compatible with the right to privacy.
Crimes Legislation Amendment (Powers,
Offences and Other Measures) Bill 2015
Portfolio: Attorney-General
Introduced: House of Representatives, 19 March 2015
Purpose
2.247
The Crimes Legislation Amendment (Powers, Offences and Other Measures)
Bill 2015 (the bill) amends various Commonwealth Acts including to:
-
introduce mandatory minimum sentences of five years imprisonment
for firearm trafficking;
-
amend the Anti-Money Laundering and Counter-Terrorism Financing
Act 2006 to clarify internal operations and procedures of the Australian
Transaction Reports and Analysis Centre; and
-
amend the Proceeds of Crime Act 2002 (POC Act) to increase
penalties for failing to comply with a production order or with a notice to a
financial institution in proceeds of crime investigations.
2.248
Measures raising human rights concerns or issues are set out below.
Background
2.249
The amendments in Schedule 6 of the bill reintroduce measures related to
mandatory minimum sentencing for trafficking in guns that were originally
included in the Crimes Legislation Amendment (Psychoactive Substances and Other
Measures) Bill 2014 but which did not pass through the parliament.
2.250
The committee considered those measures in its Tenth, Fifteenth
and Nineteenth Reports of the 44th Parliament.[72]
In its Fifteenth Report the committee concluded that the mandatory
minimum sentencing provisions were likely to be incompatible with the right to
a fair trial and the right not to be arbitrarily detained.
2.251
The committee considered the bill in its Twenty-second Report of the
44th Parliament, and requested further information from the
Minister for Justice as to whether the bill was compatible with Australia's
international human rights obligations.[73]
Mandatory minimum sentences for international firearms and firearm parts
trafficking offences
2.252
Schedule 6 would introduce new offences of trafficking prohibited
firearms and firearm parts into and out of Australia into the Criminal Code
Act 1995 (proposed Division 361). A mandatory minimum five-year term
of imprisonment for the new offences in Division 361 as well as existing
offences in Division 360 would also be inserted. As set out in the Committee's
Guidance Note 2, mandatory minimum sentences engage both the right to freedom
from arbitrary detention and the right to a fair trial.
2.253
Article 9 of the International Covenant on Civil and Political Rights
(ICCPR) protects the right to security of the person and freedom from arbitrary
detention. An offence provision which requires mandatory minimum sentencing
will engage and limit the right to be free from arbitrary detention. The notion
of 'arbitrariness' under international human rights law includes elements of
inappropriateness, injustice and lack of predictability. Detention may be
considered arbitrary where it is disproportionate to the crime that has been
committed (for example, as a result of a blanket policy).[74]
Mandatory sentencing may lead to disproportionate or unduly harsh outcomes as
it removes judicial discretion to take into account all of the relevant
circumstances of a particular case in sentencing.
2.254
Mandatory sentencing is also likely to engage and limit article 14(5) of
the ICCPR, which protects the right to have a sentence reviewed by a higher
tribunal. This is because mandatory sentencing prevents judicial review of the
severity or correctness of a minimum sentence.
2.255
The statement of compatibility identifies the right to freedom from
arbitrary detention as being engaged by the introduction of mandatory minimum
five year sentences.[75]
The committee noted previously that detention may be considered arbitrary where
it is disproportionate to the crime. This is why it is generally important for
human rights purposes to allow courts discretion to ensure that punishment is
proportionate to the seriousness of the offence and individual circumstances.
2.256
The committee reiterated its recommendation that the provision be
amended to clarify that the mandatory minimum sentence is not intended to be
used as a 'sentencing guidepost' and that there may be a significant difference
between the non-parole period and the head sentence. This would ensure that the
scope of the discretion available to judges would be clear on the face of the
provision itself, and thereby minimise the potential for disproportionate
sentences that may be incompatible with the right not to be arbitrarily
detained and the right to a fair trial.
Minister's response
I note the recommendation of the Committee that Schedule 6 of
the Bill be amended to confirm that the mandatory minimum sentence is not
intended to be used as a sentencing guidepost, and that there may be
significant difference between the non-parole period and the head sentence.
Advice of this nature, designed to clarify to the judiciary the intent of the
provision, is best suited to the Explanatory Memorandum, which I note already
includes wording to this effect.[76]
Committee response
2.257
The committee thanks the Minister for Justice for his response and
has concluded its examination of the measure.
Anti-Money-Laundering and Counter Terrorism Financing Amendments
2.258
Schedule 10 of the bill would make a number of amendments to the Anti-Money
Laundering and Counter-Terrorism Financing Act 2006 (AML/CTF Act).
Currently, section 169 of the AML/CTF Act provides that a person is not excused
from giving information or producing a document under paragraph 167 on the
grounds that compliance might be incriminating. Subsection 169 (2) currently
provides a 'use immunity' for information that is given that may be
self-incriminating with limited exceptions.[77]
The bill would expand the exceptions thus reducing the scope and effect of the
use immunity.
2.259
As this bill deals with provisions that require individuals to provide
self-incriminating information under the AML/CTF Act, the bill engages and
limits the protection against self-incrimination, a core element of fair trial
rights.
2.260
The statement of compatibility identifies that the measures engage the
right to be free from self-incrimination. The statement of compatibility does
not explicitly identify a legitimate objective for the measure or explain why
they are necessary.
2.261
The statement of compatibility states that section 169 of the AML/CTFC
Act provide both a 'use' and a 'derivative use' immunity.[78]
However, the committee considered that section 169 only provides a 'use
immunity' and not a 'derivative use immunity' as there is no prohibition on the
use of any information, document or thing indirectly obtained as a consequence
of the self-incriminating information. Whether the AML/CFT Act provides only a 'use
immunity' rather than 'use immunity' and 'derivative use immunity' is relevant
to an assessment of the proportionality of the measures.
2.262
The committee therefore sought the advice of the Minister for Justice as
to whether the amendments to the AML/CFT Act are compatible with the
right to a fair trial, and particularly whether the proposed changes are aimed
at achieving a legitimate objective, whether there is a rational connection
between the limitation and that objective, and whether the limitation is a
reasonable and proportionate measure for the achievement of that objective.
Minister's response
The proposed amendment to section 169 of the Anti-Money
Laundering and Counter-Terrorism Financing Act 2006 (AML/CTF Act) allows
for self-incriminating information gathered by the Australian Transaction
Reports and Analysis Centre (AUSTRAC) under section 167 of the Act to be
adduced in a broader range of civil and criminal proceedings.
The Committee has focused on the effect of these proposed
amendments on the right to a fair trial and fair hearing contained in Article
14 of the International Covenant on Civil and Political Rights (ICCPR). I
consider the proposed amendments to be a reasonable and proportionate response
to address significant limitations that inhibit AUSTRAC's ability to perform
its statutory functions and, more generally, the prosecution of money
laundering and terrorism financing offences under the Criminal Code Act 1995
(the Criminal Code).
Current Provisions
AUSTRAC has two powers, under sections 167 and 202 of the
AML/CTF Act, to compel the production of information. Section 167 has a broad
application and purpose, but is only available to AUSTRAC. Section 202 has a
narrow application and purpose, but is available to a broader range of issuers.
Sections 169 and 205 provide that self-incrimination is
precluded as a reason for refusing to provide information under sections 167
and 202 respectively. However, sections 169 and 205 limit the use of that
information, although section 205 allows for information to be used in a
broader range of proceedings than section 169.
Objective of the proposed amendments
The proposed amendments to section 169 enhance AUSTRAC's
ability to fulfill its statutory role as Australia's AML/CTF regulator and
financial intelligence unit. In particular, the amendments allow AUSTRAC to use
relevant information to sanction breaches of the AML/CTF Act and bring money
laundering and terrorism financing charges under the Criminal Code.
The current inconsistency between the scope of sections 169
and 205 creates significant constraints for prosecuting serious offences
under the Criminal Code and AML/CTF Act. As noted in the table above, section
167 notices can be issued to a broad range of persons or entities, but the
information or documents obtained can only later be used in a narrow range of
proceedings. Therefore, should AUSTRAC uncover pertinent material relating to
criminal conduct through the ordinary exercise of its section 167 notice power,
that evidence could not be adduced in later proceedings to prosecute money
laundering or terrorism offences under the Criminal Code.
Section 202, which allows self-incriminating material to be
used in a broader range of proceedings is not a substitute for section 167. It
can only be issued to a person believed on reasonable grounds to be a reporting
entity, which limits its utility. For example, AUSTRAC cannot use a section 202
notice to obtain information and documents from an entity that has had its
registration suspended as they are no longer deemed to be a reporting entity
once suspended - such a notice would need to be issued under section 167.
Given the significant threat posed to the Australian
community by money laundering and terrorism financing, I consider that the
proposed amendments fulfil a legitimate objective by closing an operational
gap. The Australian Crime Commission's most recent public report on organised
crime in Australia noted that money laundering is one of six 'intrinsic
enablers' of serious and organised crime, with money laundering being carried
out by 'most, if not all, organised crime groups'.[79]
Money laundering is considered a 'critical risk because it enables serious and
organised crime, it can undermine [Australia's] financial system and economy
and it can corrupt individuals and businesses'.[80]
AUSTRAC have noted that terrorism financing is a 'national security risk as it
can directly enable terrorist acts both in Australia and overseas'.[81]
To effectively combat these inherent risks, AUSTRAC must be able to efficiently
and effectively exercise its enforcement powers. The proposed amendments
achieve this objective.
AUSTRAC also considers that there is some uncertainty
regarding its ability to use information and documents obtained under a section
167 notice in making administrative decisions. This is because those materials
may later need to be adduced on administrative or judicial review, thereby
engaging the privilege against self-incrimination contained in section 169. By
rectifying the inconsistency between sections 169 and 205, this uncertainty
will also be clarified.
Connection between the proposed amendments and the objective
There is a rational connection between the amendments and the
objective outlined above. Currently, valuable information that potentially
relates to serious criminal misconduct can only be used in very limited
proceedings, being proceedings related to providing false or misleading
information or failing to be supply information in accordance with the AML/CTF
Act.
Consistency between sections 167 and 205 will allow AUSTRAC
to more effectively utilise section 167 information and fulfil its role in
enforcing compliance with the AML/CTF Act and combating money laundering and
terror financing. AUSTRAC has indicated that it uses its powers under section
167 and 202 interchangeably, with the chief considerations being the type of
person to whom the notice is to be issued, the nature of the information or
documents sought and the admissibility of the materials received. Given that
both powers can be issued to individuals and entities there is no apparent
reason why these powers, which fulfil the same investigatory function, should
be subject to two different regimes for determining privilege against
self-incrimination.
Reasonableness and proportionality of the proposed
amendments
I consider the proposed amendments to be a reasonable and
proportionate response to the current limitations. As noted above, the
amendments to section 169 maintain a use immunity for affected persons and only
extend the range of proceedings from which the privilege is excluded to
proceedings for offences that are directly related to AUSTRAC's functions. The
power remains limited to use by the AUSTRAC CEO or an authorised officer, and
can only be used where there is reasonable grounds to believe that the subject
has information relevant to the operation of the AML/CTF Act.
The High Court has recognised the validity of abrogating the
right against self-incrimination in some circumstances, noting that '[t]he
legislatures have taken this course when confronted with the need, based on
perceptions of public interest, to elevate that interest over the interests of
the individual in order to enable the true facts to be ascertained'.[82]
The Queensland Law Reform Commission (QLRC) considers that an abrogation of the
privilege 'may be justified if the information to be compelled as a result of
the abrogation concerns an issue of major public importance that has a
significant impact on the community in general or on a section of the
community'.[83]
The QLRC also concluded that '...if it is clear that the abrogation is likely
to substantially promote the public interest, it is more likely that the
abrogation can be justified'.[84]
A further point to note is that the majority of notices to
produce issued by AUSTRAC are to reporting entities (through bodies corporate).
From 1 July 2012 to 26 May 2015, AUSTRAC has issued three section 167 notices
and 31 section 202 notices. All notices were issued to reporting entities. The
ICCPR is focused on protecting the rights of the individual. At common law, the
High Court has concluded that corporations do not enjoy the protection of the
privilege against self-incrimination. In particular, the Court has recognised
the impracticality of extending the privilege given it would have a
'...disproportionate and adverse impact in restricting the documentary evidence
which may be produced to the court in a prosecution of a corporation for a
criminal offence'.[85]
Offences against the AML/CTF Act and the Criminal Code as it
relates to the AML/CTF Act (money laundering and terrorism financing) are
serious crimes that pose a threat to the Australian community. Given the
limited offences to which the extension applies, the serious nature of those
offences and the safeguards that remain in place I consider the proposed
additional restrictions on the privilege against self-incrimination in section
169 of the AML/CTF Act to be a justifiable limit on the right to a fair trial
contained in Article 14 of the ICCPR.[86]
Committee response
2.263
The committee thanks the Minister for Justice for his detailed and
thorough response. The committee considers that the response has
demonstrated that the measures are compatible with the right to a fair trial.
In particular, the committee notes that:
-
the measures support the legitimate objective of combating the
serious crimes of money laundering and terrorism financing;
-
the measures are rationally connected to that objective as the
measures will assist AUSTRAC to fulfil its role in enforcing compliance with
the AML/CTF Act; and
-
the response outlines a number of factors relevant to
assessing the proportionality of the measures including that the amendments
maintain a 'use immunity' for affected persons and only extend the range of
proceedings from which the privilege is excluded to proceedings for offences
that are directly related to AUSTRAC's functions.
2.264
The committee has concluded its examination of the measure.
Migration Amendment (Maintaining the
Good Order of Immigration Detention Facilities) Bill 2015
Portfolio:
Immigration and Border Protection
Introduced: House
of Representatives, 25 February 2015
Purpose
2.265
The Migration Amendment (Maintaining the Good Order of Immigration
Detention Facilities) Bill 2015 (the bill) seeks to amend the Migration Act
1958 to allow an authorised officer to use such reasonable force against
any person or thing as the authorised officer reasonably believes is necessary
to:
-
protect the life, health, or safety of any person in an
immigration detention facility (IDF); or
-
maintain the good order, peace or security of an IDF.
2.266
The bill also:
-
provides for a statutory complaints mechanism; and
-
imposes a bar on any action against the Commonwealth in the
exercise of a power to use reasonable force if the power was exercised in good
faith.
2.267
Measures raising human rights concerns or issues are set out below.
Background
2.268
The committee previously considered the bill in its Twentieth Report
of the 44th Parliament, and requested further information from
the Minister for Immigration and Border Protection as to whether a number of
measures in the bill were compatible with human rights.[87]
Use of force
2.269
Proposed section 197BA gives power to an authorised officer to use force
in immigration detention facilities. An 'authorised officer' is one authorised
in writing by the Minister for Immigration and Border Protection (the minister)
or the Secretary of the Department of Immigration and Border Protection (the
department) for that purpose.
2.270
The use of reasonable force is permitted when the 'authorised officer
reasonably believes' it is necessary to protect the life, health or safety of
any person or to maintain the good order, peace or security of an IDF.
2.271
Proposed new subsection 197BA(2) sets out a non-exhaustive list of
factors as to when force may be used, including:
-
to protect a person from harm or from a threat of harm, including
self-harm;
-
to prevent the escape of a detainee;
-
to prevent a person from damaging, destroying or interfering with
property;
-
to move a detainee within the facility; and
-
to prevent action in the facility by any person that endangers
life, health or safety or that disturbs the good order, peace or security of
the facility.
2.272
There are limitations on the exercise of the power. The bill provides
that the power must not be used to give nourishment or fluids to a detainee,
and an authorised officer must not subject a person to greater indignity than
the officer reasonably believes is necessary in the circumstances. An
authorised officer must not, in exercising the power, do anything likely to
cause grievous bodily harm unless the officer reasonably believes that doing
the thing is necessary to protect the life of, or to prevent serious injury to,
another person (including the officer).[88]
2.273
The committee considers that this measure engages and limits a number of
rights, including the right to life; the prohibition against torture, cruel,
inhuman or degrading treatment; the right to humane treatment in detention; the
right to freedom of assembly; and the right to an effective remedy.
Right to life
2.274
The right to life is protected by article 6(1) of the International
Covenant on Civil and Political Rights (ICCPR) and article 1 of the Second
Optional Protocol to the ICCPR. The right to life has three core elements to
it:
-
it prohibits the state from arbitrarily killing a person;
-
it imposes an obligation on the state to protect people from
being killed by others or identified risks; and
-
it requires the state to undertake an effective and proper
investigation into all deaths where the state is involved.
2.275
The use of force by state authorities resulting in a person's death can
only be justified if the use of force was necessary, reasonable and
proportionate in the circumstances. For example, the use of force may be
proportionate if it is in self-defence, for the defence of others or if
necessary to effect arrest or prevent escape (but only if necessary and
reasonable in the circumstances).
2.276
In order to effectively meet this obligation, states must have in place
adequate legislative and administrative measures to ensure police and the armed
forces are adequately trained to prevent arbitrary killings.
Compatibility of the measure with
the right to life
2.277
The committee previously noted that empowering officers to use force
against a person in an immigration detention facility engages and limits the
right to life, as force may be used that could lead to a loss of life. However,
a measure that limits the right to life may be justifiable if it is
demonstrated that it addresses a legitimate objective, is rationally connected
to that objective and is a proportionate means of achieving that objective.
2.278
The statement of compatibility acknowledged that the bill engages the
right to life.[89] However, the committee considered that the statement of
compatibility did not provide a sufficiently reasoned and evidence-based explanation
of how the measure supports a legitimate objective for the purposes of
international human rights law.[90]
2.279
In this respect, the statement of compatibility stated that the
objective of the bill is to remove uncertainty for employees of an Immigration
Detention Services Provider (IDSP) concerning their authority to use reasonable
force.
2.280
However, it remained unclear to the committee that the objective of
removing uncertainty for employees of an IDSP concerning their authority to use
reasonable force, in and of itself, addresses a pressing or substantial
concern.
2.281
The committee also considered that the proposed measures may not be a
proportionate way to achieve their stated objective, and particularly that they
are the least restrictive way to achieve the stated objective.
2.282
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether there is reasoning or evidence
that establishes that the stated objective addresses a pressing or substantial
concern, whether there is a rational connection between the limitation and that
objective, and whether the limitation is a reasonable and proportionate measure
for the achievement of that objective.
Minister's response
The legitimate objectives of the proposed amendment are to
protect the life, health or safety of any person in an immigration detention
facility, or to maintain the good order, peace or security of an immigration
detention facility. The Department of lmmigration and Border Protection (the
Department) and IDSP officers are responsible for people within immigration
detention facilities, and the responsibility for providing public order
management during critical incidents is a significant issue for the Department
and IDSP officers. It is vital that officers have the clear power and authority
to take necessary and proportionate measures to restore public order in
detention centres. The amendment provides a certainty to officers that the
common law and State and Territory legislation may be unable to provide in situations
of urgency.
The threat of a large scale riot or other disturbance
escalating out of control is a real possibility in some immigration detention
facilities. The availability of the local police service to respond in a timely
fashion cannot be guaranteed, placing detainees and others within the facility
at real risk of harm should the response to the situation be delayed. The
proposed amendment also, therefore, intends to protect the right to life of all
people within immigration detention facilities, not just the person(s) against
whom force may be used.
Strict safeguards will apply to the use of force in
immigration detention facilities and will be spelled out in official
Departmental instructions, policies and procedures.
Consistent with international human rights law, the
Department requires that any use of force be necessary, reasonable and
proportionate in the circumstances. All authorised officers will be trained
accordingly to only apply force that is necessary, reasonable and proportionate
to the threat being faced, and that is always at the minimum level required.
The Bill notes that an authorised officer may use such
reasonable force against a person or thing as the authorised officer reasonably
believes is necessary in the circumstances specified in the Bill. So both the
use of force must be reasonable and the authorised officer's belief (that it is
necessary to use such force) must be reasonable.
Official departmental instructions, policies and procedures
will provide additional guidance and examples of what is considered reasonable.
Similarly, the training that all authorised officers must have completed prior
to becoming authorised officers, will address what is reasonably necessary.
For these reasons, it is the Government's view that the proposed
amendment is reasonable and proportionate and is compatible with the obligation
to protecting a person's right to life.[91]
Committee response
2.283
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.284
In particular, the committee thanks the minister for his advice as to
the objective of the bill, and the need for officers in immigration facilities
to have clear power and authority to restore public order in detention
facilities. The committee notes the minister's advice that the availability of
local police to respond in a timely manner to a large scale riot or other
disturbance in a detention facility cannot be guaranteed, and the bill intends
to protect the right to life of all people within the facility and not just the
person against whom the force may be used.
2.285
While the bill is not limited to permitting the use of force in the
circumstances in the minister's examples, the committee considers that a
statutory use of force power in relation to detention facilities may be
considered to be a legitimate objective for the purposes of international human
rights law.
2.286
However, the committee notes that the power to use force must be
proportionate to this objective, and continues to be concerned that the bill is
not sufficiently circumscribed so as to be proportionate to the objective
sought to be achieved.
2.287
First, while the minister advises that 'departmental instructions,
policies and procedures' will provide guidance and safeguards for the
reasonable use of force, the placing of safeguards in departmental policies rather
than in legislation is insufficient to protect human rights. Such
administrative and discretionary safeguards are likely to be less stringent
than the protection of statutory processes. For example, departmental
instructions, policies and procedures can be amended at any time, are not
subject to parliamentary scrutiny and, in respect of legal liability, if
legislation authorising the use of force this would override any such policies
or procedures.
2.288
As the committee previously noted, the bill lacks a number of safeguards
that apply to analogous state and territory legislation governing the use of
force in prisons. For example, there is no requirement that:
-
the use of force only be used as a last resort;
-
force should be used only if the purpose sought to be achieved
cannot be achieved in a manner not requiring the use of force;
-
the infliction of injury is to be avoided if possible;
-
use of force to protect a person from a 'threat of harm' applies
only to an 'imminent' threat;
-
the use of force to 'prevent a person from damaging, destroying
or interfering with property' is permissible only if the person is in the
process of damaging the property and, if not, there must be a reasonable
apprehension of an immediate attack; and
-
the use of force be limited to situations where the officer
cannot otherwise protect him or herself or others from harm.
2.289
The Senate Standing Committee for the Scrutiny of Bills (Scrutiny of
Bills Committee) has also noted the breadth of the authorisation to use force,
and has concluded that safeguards around the balance struck between the
objectives of the legislation and the rights of detainees should be included in
the legislation and not left to policies and procedures.[92]
2.290
Second, the committee considers that the powers in the bill are broader
than strictly necessary to restrict the use of force in relation to protecting
life and safety and quelling riots or other disturbances. This is because it
would allow force to be used to prevent any action that disturbs the good
order, peace or security of the facility. This provides an ill-defined and
extremely broad authorisation for the use of force.
2.291
In contrast, analogous state and territory legislation governing the use
of force in prisons generally limits the use of force to preventing or quelling
a riot or disturbance.[93]
In order to be proportionate in international human rights law, a measure
limiting human rights must be the least rights restrictive approach, and these
more limited powers in the context of prisons indicate that there is likely to
be a less rights restrictive alternative to achieving the stated objective of
the powers.
2.292
However, the minister's response does not provide any information as to
why more expansive powers would be needed to deal with immigration detainees
(who have not been convicted of any crime under Australian law) than those that
have been convicted of crimes and sentenced to a term of imprisonment.
2.293
Third, as previously noted, the bill replaces the current test that
reasonable force can only be used where it is objectively necessary with a test
that incorporates a subjective element,[94]
being the officer's 'reasonable belief' that the use of force is necessary.
2.294
On this matter, the minister's response sets out that 'both the use of force
must be reasonable and the authorised officer's belief (that it is necessary to
use such force) must be reasonable'. However, this does not address the concern
that the measure would change a purely objective test and impose a lower
threshold for the use of force.
2.295
As the committee previously noted, analogous legislation applies
objective tests such that force may be used when it is 'reasonably necessary in
the circumstances'. The committee also notes that the Migration
Act 1958 itself, which contains use of force powers in relation to
carrying out identification tests, contains a purely objective test—that an
authorised officer may use 'reasonable force'.
2.296
The Scrutiny of Bills Committee has also considered this issue, and
found that, as drafted, the bill significantly increases the powers of
employees of IDSPs. The minister's response to that committee gave a number of
examples of similar powers to those proposed in the bill. However, the Scrutiny
of Bills Committee found that those examples in fact illustrated the
extraordinary breadth of the proposed powers. This was because the identified
examples appeared to be more tightly constrained, including by the requirement
that the powers be triggered by assessment of the reasonableness of the use of
force (as opposed to an officer's subjective assessment that the use of force
is reasonable).[95]
2.297
The committee considers that the introduction of a subjective assessment
about whether the use of force is reasonable lowers the threshold as to when
force may be used, and therefore lacks the necessary safeguards to ensure the
limitation on human rights, including the right to life, are proportionate to
its objective.
2.298
The committee also notes that, as set out below at paragraphs [2.334] to
[2.340], the level of training required to be undertaken by authorised officers
exercising the proposed use of force powers is insufficient to justify the
conferral of these powers on non-government officials.
2.299
Noting the minister's advice that it is essential that authorised
officers have clear powers to use force where necessary in immigration
detention facilities and that strict safeguards will be incorporated into
departmental instructions, policies and procedures, some committee members
consider that any limitation on the right to life is justified.
2.300
However, other committee members consider that the use of force
provisions limit the right to life. Those committee members consider that this
limitation has not been sufficiently justified for the purposes of
international human rights law. In particular, they consider it has not been
established that the measure is proportionate to the objective sought to be
achieved in that there are insufficient safeguards setting out when force may
reasonably be used. On this basis, these committee members conclude that the
measure, as currently drafted, is incompatible with the right to life.
Prohibition against torture, cruel,
inhuman or degrading treatment
2.301
Article 7 of the ICCPR and the Convention against Torture provide an
absolute prohibition against torture, cruel, inhuman or degrading treatment
or punishment. This means torture can never be justified under any
circumstances. The aim of the prohibition is to protect the dignity of the
person and relates not only to acts causing physical pain but also those that
cause mental suffering. Prolonged solitary confinement, indefinite detention
without charge, corporal punishment, and medical or scientific experiment
without the free consent of the patient, have all been found to breach the
prohibition on torture or cruel, inhuman or degrading treatment.
2.302
The prohibition contains a number of elements, including:
-
it prohibits the state from subjecting a person to torture or
cruel, inhuman or degrading practices, particularly in places of detention; and
-
it requires an effective investigation into any allegations of
such treatment and steps to prevent such treatment occurring.
Compatibility of the measure with
the prohibition against torture, cruel, inhuman or degrading treatment
2.303
As noted above at [2.301], the prohibition against torture, cruel,
inhuman or degrading treatment is an absolute obligation, which means that such
treatment can never be justified in any circumstance, regardless of the
objective sought to be achieved.
2.304
The committee noted in its previous analysis that proposed
paragraph 197BA(5)(a) provides that in exercising the use of force power
an authorised officer must not subject a person to 'greater indignity' than the
officer reasonably believes is necessary. It appears then that an officer may
therefore subject a person to a degree of indignity, dependent on the
circumstances and the officer's reasonable belief.
2.305
The committee previously set out its concerns that the powers in the
bill are not sufficiently circumscribed, there is insufficient oversight of the
powers and the breadth of the proposed powers may lead to an officer taking
action that may constitute degrading treatment for the purposes of
international human rights law.
2.306
In addition, the committee raised concerns that the bill makes
inadequate provision for the monitoring and investigation of any instances or
allegations of cruel, inhuman or degrading practices in detention. The
committee also noted that the proposed bar on proceedings, giving immunity that
could prevent the prosecution of an authorised officer accused of inflicting
degrading treatment, may limit the obligation to investigate and prosecute alleged
violations of the prohibition on degrading treatment.
2.307
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether the use of force provisions in
the bill are sufficiently circumscribed to ensure that they are compatible with
the prohibition on degrading treatment.
2.308
The committee also considered that the basis for monitoring the use of
force provisions and the bar on criminal proceedings in proposed
section 197BF may limit the obligation to investigate and prosecute acts
of torture, cruel, inhuman or degrading treatment. The committee therefore sought
the advice of the Minister for Immigration and Border Protection as to whether
the arrangements for monitoring the use of force and the bar on proceedings in
proposed section 197BF are compatible with the obligation to investigate
and prosecute acts of torture, cruel, inhuman or degrading treatment.
Minister's response
Safeguards for the treatment of detainees
The Department will have in place policies and procedures,
reflected in the IDSP contract, regarding the use of reasonable force in an
immigration detention facility. These safeguards will ensure that the use of
force:
-
Will be used only as a measure of last resort;
-
Must only be used for the shortest amount of time possible;
-
Must not include cruel, inhuman or degrading treatment; and
-
Must not be used for the purposes of punishment.
Conflict resolution (negotiation and de-escalation) must be
considered and used before the use of force, wherever practicable. In practice,
and wherever possible, de-escalating through engagement and negotiation will be
the first response to maintain operational safety. Extensive guidance for
authorised officers will be contained in policy and procedural documentation to
ensure that a broad range of details and scenarios are canvassed in a format
that is easily understood and accessed by operational staff. This guidance is
also referenced in the IDSP contract.
All policy and procedural guidelines will be contained in the
Department's Detention Services Manual and the Detention Operational
Procedures. These documents are stored electronically in the Department's
centralised departmental instructions system (CDIS) and in the Department's
publicly available online subscription database (LEGEND). The IDSP incorporates
these policies in their Policy and Procedure Manuals that are also approved by
the Department.
Monitoring mechanisms
The Department has staff on duty or on call in all
immigration detention facilities at all times. While this does not give the
Department's staff the ability to monitor all activity at an immigration
detention facility, it does give the Department general oversight of the
activities of the IDSP and of the immigration detention facility.
In addition, the contract for the provision of immigration
detention services requires IDSPs to report all incidents of the use of force
in an immigration detention facility, from very minor incidents to critical
incidents. Current contractual obligations require the IDSP to:
-
Gain prior approval from the departmental regional manager for planned
use of reasonable force;
-
Video record the entire event when planned use of reasonable force is
applied, retain these recordings in accordance with the Archives Act 1983
and make them available to the Department within 24 hours of request;
-
Verbally inform the Department immediately (no later than
60 minutes) on becoming aware of an instance of the unplanned use of
reasonable force;
-
Provide a written incident report for review by the Department within
six hours of the Department being informed verbally;
-
Internally audit one hundred percent of such incidents to continuously
improve the IDSP's response to incidents; and
-
Record the incident report in the Department's IT portal.
The Department will use this information to monitor and
review the IDSP's compliance with the conditions of the contract and with its
obligations under relevant legislation, policies and procedures.
On 10 November 2014, the Department established the Detention
Assurance Team (DAT) to strengthen assurance in the integrity and management of
immigration detention services. Operating independently of IDSPs and current
contract management arrangements within the Department, the DAT is designed to:
-
Provide advice to the Secretary of the Department and, from 1 July 2015,
the Australian Border Force Commissioner on assurance in the management and
performance of detention service providers;
-
Undertake investigations and support commissioned inquiries into
allegations of incidents in the onshore and offshore detention network,
including investigation of inappropriate behaviour by staff of the IDSP;
-
Monitor recommendations for improvement in detention contractor
management processes and provide assurance that they are implemented and their
effectiveness reviewed;
-
Audit the effectiveness of contractual and other detention service
performance measures;
-
Ensure the effectiveness of integrity and other risk controls;
-
Review detention practices for compliance against international conventions;
and
-
Identify trends and emerging issues in detention contract management and
recommend strategies for improvement.
The DAT will be involved in the review of incidents of the
use of force to identify operational, procedural and policy improvements applicable
to the Departmental and IDSPs.
The Bill directly provides for a complaints mechanism. The
complaints mechanism will allow a person to make a complaint to the Secretary
of the Department about the exercise of the powers under new section 197BA to
use reasonable force. Outside this internal process, if detainees would prefer
to bring issues to the attention of external authorities and/or they believe
that an issue that has been reported is not being dealt with effectively, there
is capacity for detainees to bring any problems or complaints to the attention
of external authorities, including police forces, the Commonwealth Ombudsman,
the Australian Human Rights Commission, the Australian Red Cross or other
advocacy groups. Within immigration detention facilities there is a
comprehensive system in place to provide detainees with a variety of assistance
and options to raise problems or make complaints regarding their immigration
detention. On entering an immigration detention facility detainees are also provided
with information about their rights to make a complaint and the avenues
available to them to make such a complaint. This information is reinforced
during induction sessions detainees undertake.
Detainees have access to telephone, facsimile, mail and photocopying
services. Detainees are given reasonable access to communication services
unless it presents a serious safety or security concern. Detainees are afforded
the same level of privacy when communicating externally as they would have in
the community. Neither the IDSP nor the Department may record, intercept, read,
copy or otherwise listen to a person's communication without their explicit
invitation.
Detainees can also contact Ministers of Parliament, State or
Territory police, State or Territory welfare agencies and community groups to
make a complaint about their immigration detention. This access to external
bodies provides assurance that any issues from the perspective of a detainee
will be open to scrutiny.
Finally, the public interest disclosure scheme (under the Public
Interest Disclosure Act 2013) applies to immigration detention facilities.
The public interest disclosure scheme operates to encourage public officials
(which will include authorised officers in the immigration detention facility)
to report suspected wrongdoing in the Australian public sector. The public
interest disclosure scheme allows public officials (which includes Commonwealth
contracted service providers and authorised officers) who make a disclosure of
suspected wrongdoing to be supported and protected from adverse consequences,
and ensures that a disclosure is properly investigated and dealt with. The
public interest disclosure scheme is an additional means by which any
wrongdoing or other issue in an immigration detention facility regarding the
use of force could come to light.
Section 197BF - bar on proceedings relating to immigration
detention facilities
Proposed new section 197BF is intended to place a partial bar
on the institution or continuation of proceedings in any Australian court
against the Commonwealth in relation to the exercise of power under proposed
section 197BA, where the power was exercised in good faith.
This does not, and is not intended to, bar all possible
proceedings against the Commonwealth. Legal proceedings by way of judicial
review are available in the High Court under section 75(v) of the Constitution.
Further, it is always the case that Federal, State or Territory police may
institute criminal prosecution against an individual, for example for assault
or other criminal conduct, notwithstanding this provision - it would be up to
the court to determine whether this provision had any application in the
particular circumstances.
As noted previously, proposed section 197BF contemplates that
the Commonwealth will only have protection from criminal and civil action in
all courts except the High Court if the power under proposed section 197BA is
exercised in good faith. As a threshold question, the court would need to
consider the following matters to decide if it has jurisdiction:
-
Was the action complained about an exercise of power under proposed
section 197BA?
-
Did the authorised officer act in good faith in the use of reasonable
force under proposed section 197BA?
If the use of reasonable force was not an exercise of the
power under proposed section 197BA then it is not captured by the partial bar
in proposed section 197BF, and court proceedings could be instituted or
continued.
Similarly, if a court decides that the use of reasonable
force was not to:
-
Protect the life, health or safety of any person (including the
authorised officer) in an immigration detention facility; or
-
Maintain the good order, peace or security of an immigration detention
facility
then it is not captured by the partial bar in proposed
section 197BF.
Further, if a court decides that the authorised officer did
not act in good faith, the court would have jurisdiction to consider the action
brought against the authorised officer (for example).
As described above, there are a number of ways by which a
misuse of the power to use reasonable force in proposed section 197BA may come
to the attention of the Department or to a police force or other authority.
This, in addition to the fact that the partial bar on proceedings is limited in
its application, means that the Bill does not place a restriction on the
police's capacity to investigate and prosecute acts of torture, cruel, inhuman
or degrading treatment.
For these reasons, it is the Government's view that this
proposed amendment is compatible with the obligation to investigate and
prosecute acts of torture, cruel, inhuman or degrading treatment.[96]
Committee response
2.309
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.310
As already noted, the committee welcomes the intention that a number of
safeguards will be included in policies and procedures regarding the use of
force.
2.311
The committee also notes the advice that the current contract with IDSPs
contains procedural requirements around the use of force.
2.312
However, as noted above at paragraph [2.287], placing safeguards in
departmental policies rather than in legislation is insufficient to protect
human rights. Contractual safeguards are similarly insufficient because, for
example, contracts with IDSPs can be changed with the agreement of the parties
at any time and there is no guarantee that future contracts would include any
such safeguards.
2.313
The committee considers that the breadth of the proposed powers may
facilitate an authorised officer taking action that may constitute degrading
treatment for the purposes of international human rights law. As previously
noted, this risk is compounded given that what amounts to degrading treatment
depends on all the circumstances of the case (including the particular
vulnerabilities of the victim), and that people detained in immigration
detention in many cases may be particularly vulnerable (such as persons seeking
asylum).
2.314
In addition, the committee considers that there may be inadequate
provision for the monitoring and investigation of any instances or allegations
of cruel, inhuman or degrading practices in immigration detention facilities.
The obligation is not only to prohibit the state from subjecting a person to
degrading practices, particularly in places of detention, but also to provide
effective investigation of any credible allegations of such treatment and take
steps to prevent it reoccurring.
2.315
As previously noted, the bill provides no legislated requirement for an
independent review of the use of force. Rather, it provides that a complaint
may be made to the secretary of the department, who may investigate the
complaints at his or her discretion.[97]
This process does not comply with the standards of an adequate, effective,
independent and impartial investigation under international human rights law.
2.316
Similarly, the Scrutiny of Bills Committee has noted that the complaints
mechanism would not appear to act as an 'accountability measure' as there is no
indication that it will result in any additional remedy being available to
detainees. On that basis, it considered that the complaints mechanism is not
sufficient 'to ameliorate the various scrutiny concerns which have been
identified in relation to this bill'.[98]
2.317
In contrast, New South Wales and Western Australia have an independent
inspectorate providing external scrutiny of the standards and operational
practices of custodial services.[99]
2.318
The committee notes the minister's advice as to the establishment of the
Detention Assurance Team (DAT) in 2014 to strengthen the integrity and
management of immigration detention services. DAT will undertake investigations
and support commissioned inquiries into allegations of incidents in detention
facilities, including reviewing detention practices for compliance against
international conventions.
2.319
However, while the DAT will go some way towards meeting Australia's
obligations to investigate allegations of cruel, inhuman or degrading
treatment, the committee notes that the DAT is set up within the department, so
that in effect it is the department itself that will undertake such an
investigation. The DAT's recommendations will be made internally to the
department and the minister and there is no requirement that they be made
public or subject to parliamentary scrutiny. There is also nothing to require
the department to respond to any recommendations made by the DAT.
2.320
Accordingly, the committee does not consider that the DAT satisfies the
requirement for impartiality and, on its own, would not satisfy the duty to
investigate allegations of ill-treatment.
2.321
The committee notes the minister's advice that detainees have numerous
opportunities to bring problems or complaints to the attention of external
authorities.
2.322
However, the committee notes that the Australian government is
responsible for the security of any person under detention. Accordingly, the
duty to investigate in good faith all credible allegations of ill-treatment in
detention rests on the Australian government. It is not appropriate to require
the person who may have been subjected to the degrading treatment to seek
external assistance. Equally, it is not sufficient to rely on authorised
officers to report suspected wrongdoing, even where there is legislation that
may protect them from adverse consequences, as the minister advises.
2.323
The committee also notes that proposed section 197BF provides an
immunity such that no proceedings may be instituted or continued in any court
against the Commonwealth in relation to the use of force if it was exercised in
good faith. The definition of the Commonwealth includes an officer of the
Commonwealth or any other person acting on behalf of the Commonwealth.
2.324
As set out below in more detail at paragraphs [2.373] to [2.385],
the committee considers that the availability of judicial review and police
prosecutions, and restricting of the immunity only to acts done in good faith,
are not adequate safeguards.
2.325
The committee therefore considers that this immunity, which, for
example, could prevent the prosecution of an authorised officer accused of
inflicting degrading treatment, limits the obligation to investigate and
prosecute alleged violations of the prohibition on degrading treatment.
2.326
Noting the minister's advice that strict safeguards will be
incorporated into departmental instructions, policies and procedures and in the
contract with immigration detention service providers, and noting the
availability of existing monitoring mechanisms, some committee members consider
that the use of force provisions do not limit the prohibition on torture,
cruel, inhuman and degrading treatment.
2.327
However, other committee members consider that, for the reasons set
out above, the use of force provisions in the bill limit the prohibition on
torture, cruel, inhuman and degrading treatment. As this is an absolute right
which can never be justifiably limited, those committee members consider that
the measure, as currently drafted, is incompatible with the prohibition on
torture, cruel, inhuman and degrading treatment.
Right to humane treatment in
detention
2.328
The right to humane treatment in detention is protected by article 10 of
the ICCPR. It provides that all people deprived of their liberty must be
treated with humanity and dignity.
2.329
The right applies to everyone in any form of state detention, including
prisons, immigration detention and forced hospital detention (including
psychiatric wards). It also applies to private detention centres where it is
administered under the law and authority of the state (for example, privately
run prisons). The right provides extra protection for persons in detention who
are particularly vulnerable as they have been deprived of their liberty.
2.330
The obligation on the state includes:
-
a prohibition on subjecting a person in detention to inhumane
treatment (including lengthy solitary confinement or unreasonable restrictions
on contact with family and friends);
-
monitoring and supervision of places of
detention to ensure detainees are treated appropriately;
-
instruction and training for officers
with authority over people deprived of their liberty;
-
complaint and review mechanisms for
people deprived of their liberty; and
-
adequate medical facilities and health
care for people deprived of their liberty, particularly people with a
disability and pregnant women.
Compatibility of the measure with
the right to humane treatment in detention
2.331
The statement of compatibility acknowledged that the right to humane
treatment in detention is engaged by the bill, to the extent that force is
employed.
2.332
The committee previously noted that it was unclear that the safeguards
in the bill and the level of training for officers are adequate to ensure that
force will only be used as a last resort. The committee was also concerned that
the monitoring of the use of force may be
insufficient to ensure that detainees are treated appropriately and to support
effective complaint and review mechanisms for any allegations of inhuman
treatment.
2.333
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether there is reasoning or evidence
that establishes that the stated objective addresses a pressing or substantial
concern or whether the proposed changes are otherwise aimed at achieving a
legitimate objective, whether there is a rational connection between the
limitation and that objective, and whether the limitation is a reasonable and
proportionate measure for the achievement of that objective, and particularly,
whether there are any less restrictive ways to achieve the objective, whether
the training provided to authorised officers will be sufficient to minimise the
risk of violation and whether there is adequate monitoring
and supervision of the exercise of the use of force.
Minister's response
The Department considers that reasonable use of force is the
least amount of force necessary to achieve the required outcomes, which are the
legitimate objectives of protecting the life, health or safety of any person in
an immigration detention facility, or of maintaining the good order, peace or
security of an immigration detention facility. It is acknowledged that the use
of force is a last resort, and this will be reflected appropriately in
Departmental policy documents. Safeguards for the treatment of detainees
require that force will not be used where there are less restrictive ways to
achieve the legitimate objectives set out in proposed section 197BA, such as
discussion, de-escalation or negotiation with possible subjects of the use of
reasonable force. In the few cases where the reasonable use of force is
required in accordance with proposed section 197BA, the authorised officer may
be able to plan for its use, including contingency planning for a greater or
lesser degree of reasonable force to be used if circumstances change. For
example, the transfer of an uncooperative detainee from one precinct to another
within an immigration detention facility should include a plan to use
reasonable force if it becomes necessary; it is not a plan to use force as part
of the transfer.
It will be the decision of the Minister to determine the
training and qualification requirements for authorised officers. It is expected
that the Minister, at a minimum, will require authorised officers to maintain
current qualifications to enable them to use reasonable force.
Note that Tier 1 and Tier 2 IDSP officers are currently
trained in the national unit of competency CPPSEC2017A 'Protect Self and Others
using Basic Defensive Techniques'. This is also part of the required refresher
training for these officers. This training is identified as providing the
outcomes required to apply basic defensive techniques in a security risk
situation and gives the ability to use basic lawful defensive techniques to
protect the safety of self and others. The IDSP is expected to engage the
assistance of the relevant police service to assist in managing escalated or
high risk situations.
Any instance of any use of reasonable force and/or restraint
must be reported pursuant to section 28 of the Work Health and Safety Act
2011. Under this provision every worker is required to:
-
Take reasonable care for his or her own health and safety; and
-
Take reasonable care that his or her acts or omissions do not adversely
affect the health and safety of other persons; and
-
Comply, so far as the worker is reasonably able, with any reasonable
instruction that is given by the person conducting the business or undertaking
to allow the person to comply with this act; and
-
Co-operate with any reasonable policy or procedure of the person
conducting the business or undertaking relating to health or safety at the
workplace that has been notified to workers.
In addition, current contractual obligations require the IDSP
to comply with a number of items intended to safeguard the use of reasonable
force, as set out above under the discussion relating to the prohibition
against torture, cruel, inhuman or degrading treatment on page 4.
The Department considers that disproportionate, excessive or
inappropriate use of force is not authorised by this Bill. A person is not
protected from legal action by the proposed section 197BF in relation to the
use of such force. Any excessive or inappropriate use of force will incur the
appropriate disciplinary action and expose the person to possible criminal
prosecution.[100]
Committee response
2.334
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.335
As noted above at paragraphs [2.287] to [2.296], the committee does not
consider that safeguards contained in departmental policies rather than
legislation sufficiently protects human rights, and notes that the bill does
not of itself contain adequate safeguards.
2.336
International human rights law requires that the state train relevant
personnel to minimise the chance that a person's rights will be violated, and
in this regard the committee notes the minister's
advice that officers are currently trained to use basic defensive techniques.
2.337
However, as the committee previously noted, this Certificate Level II
training is the equivalent to that required for crowd controllers and security
guards (a qualification commonly attainable with two weeks training).
2.338
The Scrutiny of Bills Committee also considered the level of training
and noted that, given the breadth of the authorisation to use force, it is a
matter of concern that the base level qualifications fall short of that
associated with police training. The Scrutiny of Bills Committee remained
concerned about the conferral of police like powers on non-government employees
and the lack of Parliamentary scrutiny of training and qualification requirements.[101]
2.339
The committee considers the level of training required for authorised
officers to be granted broad powers to use force is insufficient to justify the
conferral of these powers on non-government officials.
2.340
The committee reiterates its previous statement that, while
immigration detention facilities are currently privately operated, under
international human rights law the Australian government remains responsible in
all circumstances for adherence to Australia's human rights obligations.[102]
2.341
The conferral of use of force powers on employees of private detention
centre operators therefore may not be sufficient to ensure that Australia
effectively meets its international human rights obligations, to the extent
that there may be inadequate oversight and control of private detention
facilities by the Australian government.
2.342
Noting the minister's advice that strict safeguards will be
incorporated into departmental instructions, policies and procedures and that
the training required of authorised officers will be appropriate, some
committee members consider that any limitation on the right to humane treatment
in detention is justified.
2.343
Other committee members consider that the use of force provisions
limit the right to humane treatment in detention. Those committee members
consider that this limitation has not been sufficiently justified for the
purposes of international human rights law. In particular, they consider it has
not been established that the measure is proportionate to the objective sought
to be achieved in that there are insufficient safeguards setting out when force
may reasonably be used. On this basis, these committee members conclude that
the measure, as currently drafted, is incompatible with the right to humane
treatment in detention.
Right to freedom of assembly
2.344
The right to freedom of assembly is protected by article 21 of the
ICCPR. It provides that all people have the right to peaceful assembly. This is
the right of people to gather as a group for a specific purpose. It is strongly
linked to the right to freedom of expression, as it is a means for people
together to express their views.
2.345
The right applies regardless of where people are assembling–it may be
inside or outside, on public or private property, it may be a protest march or
demonstration that moves from place to place or it may be stationary, such as
sit-ins, meetings or motionless protests. The right
prevents the state from imposing unreasonable and disproportionate restrictions
on assemblies.
2.346
The right only applies to peaceful protest and does not protect
intentionally violent protests.
2.347
The right to freedom of assembly may be limited for certain prescribed
purposes. Any limitation of the right must be
necessary to respect the rights of others, to protect national security, public
safety, public order, public health or morals. Additionally, such limitations
must be prescribed by law, reasonable, necessary and proportionate to achieving
the prescribed purpose.
Compatibility of the measure with
the right to freedom of assembly
2.348
The committee noted in its previous analysis that the use of force
provisions would allow force to be used by an authorised officer when they
reasonably believe it is necessary to maintain the good order of an immigration
detention facility.
2.349
However, what constitutes the 'good order' of the facility is not
defined in the legislation. This could mean, for example, that an authorised
officer could use force in relation to a peaceful protest if the authorised
officer reasonably believes force is necessary to maintain good order.
2.350
The committee considered that the use of force provisions limit the right
to freedom of association. However, the statement of compatibility did not
justify that limitation for the purposes of international human rights law.
2.351
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether there is reasoning or evidence
that establishes that the stated objective addresses a pressing or substantial
concern or whether the proposed changes are otherwise aimed at achieving a
legitimate objective, whether there is a rational connection between the
limitation and that objective, and whether the limitation is a reasonable and
proportionate measure for the achievement of that objective.
Minister's response
The Government supports the right of an individual to engage
in peaceful protest but does not condone participation in violent protests,
particularly where the violent protest might impact on public order or the
protection of the rights or freedoms of others.
At common law, those responsible for managing an immigration
detention facility have a duty of care towards people within and in the
vicinity of those premises. Those responsible for managing an immigration
detention facility must have the legal authority to lawfully take appropriate
action to ensure the safety and well-being of those people.
The Department considers that the proposed powers to be
granted to authorised officers to enable them to use reasonable force to
protect the life, health or safety of any person in an immigration detention
facility, or to maintain the good order, peace and security of an immigration
detention facility are reasonable and proportionate.[103]
Committee response
2.352
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.353
The committee acknowledges that a person does not have a right to
participate in violent protests. As set out above, the right to freedom of
assembly applies only to peaceful protests and does not protect intentionally
violent protests.
2.354
However, as previously noted, the use of force provisions in the bill
are broadly drafted to allow force to be used to maintain 'good order'. What
constitutes the maintenance of 'good order' is not defined in the legislation
and would allow, for example, force to be used to break up a peaceful protest
if it was considered by an authorised officer that the protest was affecting
the 'good order' of the detention facility.
2.355
The minister's response did not address this concern.
2.356
In addition, as previously noted, proposed subsection 197BA(2)(e)
specifically provides that force may be used to move a detainee within the
facility, which could, for example, include moving someone who is forming part
of a peaceful 'sit-in'. There are no additional constraints on the exercise of
the power for this purpose, such as a requirement that the person is
unreasonably refusing to move or that the officer has first issued a lawful
request for the person to move.
2.357
Similarly, the minister's response did not address this concern.
2.358
The committee therefore remains concerned that the use of force powers
granted by the bill are unconstrained by any requirement to respect a person's
right to peacefully protest.
2.359
Noting the minister's advice that strict safeguards will be
incorporated into departmental instructions, policies and procedures and that
the right to freedom of assembly does not apply to violent protests, some
committee members consider that any limitation on the right to freedom of
assembly is justified.
2.360
Other committee members consider that the use of force provisions
limit the right to freedom of assembly. Those committee members consider that
this limitation has not been sufficiently justified for the purposes of
international human rights law. In particular, they consider it has not been
established that the measure is proportionate to the objective sought to be
achieved in that there are insufficient safeguards or controls to ensure that
force is not used as a first resort in respect of peaceful protests. On this
basis, these committee members conclude that the measure, as currently drafted,
is incompatible with the right to freedom of assembly.
Bar on proceedings relating to use of force
2.361
The bill would also impose a bar on proceedings relating to the use of
force in immigration detention facilities. Proposed new section 197BF
provides that no proceedings may be instituted or continued against the
Commonwealth in relation to the use of force if the power was exercised in good
faith. The 'Commonwealth' is defined as including any officer of the
Commonwealth and any other person acting on behalf of the Commonwealth.
2.362
As set out above, the bill engages a number of human rights which
include a concomitant obligation to ensure the right to an effective remedy for
any violation of those rights.
2.363
In imposing a bar on proceedings against the Commonwealth when an
authorised officer uses force the bill therefore engages and limits the right
to an effective remedy.
Right to an effective remedy
2.364
Article 2 of the ICCPR requires state parties to ensure access to an
effective remedy for violations of human rights. State parties are required to
establish appropriate judicial and administrative mechanisms for addressing
claims of human rights violations under domestic law. Where public officials
have committed violations of rights, state parties may not relieve perpetrators
from personal responsibility through amnesties or legal immunities and
indemnities.
2.365
State parties are required to make reparation to individuals whose rights
have been violated. Reparation can involve restitution, rehabilitation and
measures of satisfaction – such as public apologies, public memorials,
guarantees of non-repetition and changes in relevant laws and practices – as
well as bringing to justice the perpetrators of human rights violations.
2.366
Effective remedies should be appropriately adapted to take account of
the special vulnerability of certain categories of persons including, and
particularly, children.
Compatibility of the measure with
the right to an effective remedy
2.367
The committee considered in its previous analysis that imposing a bar on
proceedings relating to the use of force in immigration detention facilities limits
the right to an effective remedy. This is because, as set out above, the use of
force provisions engage and limit a number of human rights, and, under article
2 of the ICCPR, a person is entitled to an effective remedy if their human
rights are violated. The bar on proceedings for action occurring in immigration
detention facilities therefore limits this right.
2.368
The committee noted that the UN Human Rights Committee has stated that
the right to an effective remedy is an obligation inherent in the ICCPR as a
whole and so, while limitations may be placed in particular circumstances on
the nature of the remedy provided (judicial or otherwise), there is an absolute
obligation to provide a remedy that is effective.[104]
2.369
While the bill provides for complaints to be made to the secretary, the
investigation of complaints will be at the discretion of the secretary, who may
decide not to investigate the complaint on a number of grounds, including the
broad ground that the investigation 'is not justified in all the
circumstances'. At the conclusion of the investigation the secretary may refer
the complaint to the Ombudsman, but does not have the power to grant any other
remedies. The Ombudsman may make non-enforceable recommendations to government.
2.370
The committee considered that the complaints mechanism provided by the
bill (when considered together with the bar on proceedings against the
Commonwealth) did not meet the obligation to provide an effective remedy.
2.371
The committee therefore sought the advice of the Minister for
Immigration and Border Protection as to whether the measure is compatible with the
right to an effective remedy. In particular, the committee wished to understand
why it is necessary to provide immunity for the Commonwealth as a whole rather
than personal immunity for the authorised officer, and what remedies (including
compensation) are available to a person whose complaint about the use of force
is substantiated.
Minister's response
The bar on proceedings in proposed section 197BF of the Bill
is modelled on existing subsection 245F(9B) of the Migration Act 1958
(the Migration Act). The definition of 'Commonwealth' is modelled on existing
sections 494AA and 494AB of the Migration Act which concern a bar on certain
legal proceeding relating to unauthorised maritime arrivals and transitory
persons respectively.
The bar on proceedings will not result in aggrieved persons
being unable to obtain an effective remedy.
Proceedings are always available through judicial review by
the High Court under section 75(v) of the Constitution. Further, it is always
the case that Federal, State or Territory police may institute a criminal
prosecution against an individual, for example for assault or other criminal
conduct, notwithstanding this provision - it would be up to the court to
determine whether this provision has any application in the particular
circumstances. Police have access to immigration detention facilities and may
be called to an incident by the IDSP, a detainee or a witness. This gives the
police capacity to decide if a prosecution is warranted in the circumstances.
It is worth noting that the court will have the jurisdiction
to consider the threshold issues of:
-
If the use of reasonable force was an exercise of power under section
197BA; and
-
If the power was exercised in good faith.
In circumstances where the use of reasonable force has been
used in a manner that is not an exercise of the power under proposed section
197BA then it is not captured by the partial bar in proposed section 197BF and
court proceedings may be instituted or continued. Similarly, in circumstances
where the use of reasonable force has been found not to have been exercised in
good faith, then it is not captured by the partial bar in proposed section
197BF and court proceedings may be instituted or continued.
In less serious circumstances, where the use of reasonable
force has been found to be exercised in good faith and the person has not
suffered an injury but there is some other failing, there may be circumstances
in which it is appropriate for the Department to provide details to the
aggrieved person of any proposed changes to policy or procedure that may result
from the incident, as part of the follow up to that incident to demonstrate
that a situation or circumstance has been addressed.[105]
Committee response
2.372
The committee thanks the Minister for Immigration and Border
Protection for his response.
2.373
The committee notes the minister's advice that the bar on proceedings
will not result in an affected person being unable to obtain an effective
remedy. This is because:
-
proceedings are available through judicial review under section
75(v) of the Constitution;
-
police may institute a criminal prosecution against an
individual;
-
where the use of force has been found not to have been exercised
in good faith, the bar on proceedings will not apply; and
-
where a failing has been identified there may be circumstances
where the department informs the affected person of any proposed changes to
policy or procedure that may result from the incident.
2.374
Dealing with these points in turn, the committee first notes that it is
questionable whether judicial review under the Constitution would be available
in relation to authorised officers of privately run detention facilities, as
they may not be considered to be 'officers of the Commonwealth'.[106]
2.375
In any event, even if judicial review were available, it is unclear what
a person affected by an officer's use of force could achieve by judicial
review. This is because judicial review only provides for prohibition, mandamus
or injunction, which are remedies to prevent the Commonwealth from taking
further action in relation to the action complained of, or ordering the
Commonwealth to perform its statutory duty. These remedies do not provide for
compensation or reparation, or require changes to existing legislation,
policies or practices.
2.376
The committee considers that the availability of judicial review in
relation to the use of force therefore does not provide an avenue by which a
person affected by the use of force can gain an effective remedy.
2.377
Second, while bringing the perpetrators of human rights violations to
justice is an important element of the right to an effective remedy, it is just
one aspect of the right. As the UN Human Rights Committee has explained, the
obligation also encompasses, where appropriate:
-
compensation;
-
restitution;
-
rehabilitation; and
-
measures of satisfaction, such as public apologies, public
memorials, guarantees of non-repetition and changes in relevant laws and
practices.[107]
2.378
Therefore, while the police could bring prosecutions for the use of
force in detention facilities, this alone would not satisfy the requirements
for an effective remedy.
2.379
Further, it is not clear whether the bar on proceedings may affect such
a prosecution – as the minister's confirms, 'it would be up to the court to
determine whether this provision has any application to the particular
circumstances'. This may discourage the bringing of a police prosecution in
cases where it was unclear that the bar on proceedings would apply.
2.380
Third, while the bar on proceedings will not apply if the use of force
was not exercised in good faith, as the Scrutiny of Bills Committee has pointed
out, bad faith is a very difficult allegation to prove. Given the breadth of
the use of force powers, it is doubtful that showing that the use of force was
disproportionate would amount to bad faith.[108]
2.381
Fourth, while the minister advises that changes may be made to policies
or procedures where a failing has been identified, changes in practices or
policies form only one part of the right to an effective remedy and will not
necessarily provide an effective remedy for a person against whom the use of
force has already been exercised.
2.382
Further, the committee also notes the minister's advice that this
intention is restricted to situations where force has been found to have been
exercised in good faith and the person has not suffered an injury. It is not
clear to the committee why changes to policies or procedures would not occur
following any incident, especially where injuries have occurred as a result.
Also, the review of any incident or failing, and any subsequent changes to
policies and procedures, is wholly at the discretion of the department and is
not required by any statute.
2.383
As the committee previously noted, barring any proceedings against the
Commonwealth in relation to the exercise of the use of force exercised in good
faith removes the opportunity for an affected person to seek compensation in a
broad range of circumstances. It remains unclear as to why it is necessary to
bar proceedings against the Commonwealth as a whole rather than provide limited
personal immunity to authorised officers.
2.384
The committee therefore considers that the measure limits the right to
an effective remedy and that the limitation has not been sufficiently justified
by the minister.
2.385
Some committee members consider that the bar on proceedings will not
result in an affected person being unable to obtain an effective remedy
because, as set out in the minister's advice, there are other mechanisms
available to ensure that an affected person will have access to a remedy. Those
committee members consider that the bar on proceedings is therefore justified.
2.386
Other committee members consider that the bar on proceedings limits
the right to an effective remedy. Those committee members note that there is an
absolute obligation to provide a remedy that is effective (that is, while
limitations may be placed on the nature of the remedy available, it is an
absolute obligation to provide an effective remedy). Those committee members
consider that as the bar on proceedings removes the ability for an affected
person to obtain an effective remedy, the measure, as currently drafted, is
likely to be incompatible with the right to an effective remedy.
The Hon Philip Ruddock MP
Chair
Navigation: Previous Page | Contents