Chapter 2
Background
Terms of Reference
2.1
As outlined in the previous chapter, the terms of reference for this
inquiry cover four primary areas, namely procedures for appointment and method
of termination of judges; terms of appointment, including the desirability of a
compulsory retirement age, and the merit of full-time, part-time or other
arrangements; the judicial complaints handling system; and jurisdictional
issues, for example, the interface between the federal and state judicial
system. There is much written about these topics already. It is the purpose of
this report to undertake a snapshot analysis of the current health of our
federal judicial system rather than to analyse the entire system in detail.
2.2
This chapter will provide background for the first 3 of these areas, and
touch on the fourth, prior to their examination in turn over the remainder of
the report. It begins by examining current arrangements.
Current arrangements for Federal courts – appointments and complaint
handling
2.3
There are four principal federal courts in Australia – the High Court,
the Federal Court of Australia, the Family Court of Australia and the Federal
Magistrates Court. The Attorney‑General's Department has summarised the
arrangements for judicial appointments to these courts as follows:
Federal judges and magistrates are appointed by the
government of the day.
The Australian Constitution does not set out specific
qualifications required by federal judges and magistrates. However, laws made
by the Commonwealth Parliament provide that, to be appointed as a federal
judge, a person must have been a legal practitioner for at least five years or
be a judge of another court. To be appointed as a federal magistrate, a person
must have been a legal practitioner for at least five years. To be appointed as
a judge of the Family Court of Australia, a person must also be suitable to
deal with family law matters by reason of training, experience and personality.
All federal judges and magistrates are appointed to the age
of 70. The Australian Constitution provides that a federal judge or magistrate
can only be removed from office on the ground of proved misbehaviour or
incapacity, on an address from both the House of Representatives and the Senate
in the same session. The Australian Constitution provides that the remuneration
of a federal judge or magistrate cannot be reduced while the person holds
office. These guarantees of tenure and remuneration assist in securing judicial
independence.
The independence of the courts, and their separation from the
legislative and executive arms of government, is regarded as of great
importance in Australia and it is taken for granted that judges, in
interpreting and applying the law, act independently of the Government.[1]
2.4
In early 2008 the Attorney‑General introduced new processes for
appointing judges and magistrates to federal courts, including:
-
broad consultation to identify persons who are suitable for
appointment;
-
notices in national and regional media seeking expressions of
interest and nominations;
-
notification of appointment criteria; and
-
appointing advisory panels to assess expressions of interest and
nominations against the appointment criteria to develop a shortlist of highly
suitable candidates.[2]
2.5
Specific detail in relation to each court is outlined below.
High Court
2.6
Under section 72 of the Constitution, Justices of the High Court:
-
are appointed by the Governor‑General in Council;
-
cannot be removed except by the Governor-General in Council on an
address from both Houses of Parliament in the same session, praying for such
removal on the grounds of proved misbehaviour or incapacity;
-
receive such remuneration as the Parliament may fix, but the
remuneration shall not be diminished during their continuance in office; and
-
must retire on attaining the age of 70 years.[3]
2.7
Part II of the High Court of Australia Act 1979 contains further
provisions concerning the court and the justices, including:
-
the Attorney‑General shall, before an appointment is made
to a vacant office, consult with the attorneys‑general of the states in
relation to the appointment;
-
a person shall not be appointed as a justice unless:
-
he or she has been a judge of a court created by the parliament
or of a court of a State or Territory; or
-
he or she has been enrolled as a barrister or solicitor or as a
legal practitioner of the High Court or of a Supreme Court of a State or
Territory for not less than five years;
-
a Justice is not capable of accepting or holding any other office
of profit within Australia; and
-
the Chief Justice and the other Justices shall receive a salary
and other allowances at such rates as are fixed from time to time by
Parliament.[4]
2.8
There is no published complaints procedure for the High Court available
on the High Court of Australia website and the committee understands that there
is no written procedure for handling complaints against judicial officers.[5]
In its 2007 Commonwealth courts and tribunals publication the
Commonwealth Ombudsman notes that the High Court handles complaints received on
a case-by-case basis by a senior executive, usually the Principal Registrar of
the court.[6]
Recommendation 1
2.9
The committee recommends that the High Court of Australia adopt a
written complaint handling policy and make it publicly available, including on
its website, within 1 month of the tabling of this report.
Federal
Court of Australia[7]
2.10
The Federal Court
of Australia Act 1976 provides that the court consists of a chief justice,
and such other judges as are appointed. The chief justice is the senior judge
of the court and is responsible for ensuring the orderly and expeditious
discharge of the business of the court.
2.11
Judges of the
court are appointed by the Governor-General, by commission. Like the judges of
the High Court, judges may not be removed except by the Governor-General on an
address from both Houses of Parliament, in the same session, praying for the
judge's removal on the ground of proved misbehaviour or incapacity. The
requirement is contained in section 72 of the Commonwealth of Australia
Constitution Act 1901 and Part II of the Federal Court of Australia Act.
2.12
Until 1977
judges were appointed for life. As a consequence of the constitutional
referendum in that year, all judges appointed after 1977 must retire at the age
of 70.
2.13
Judges other
than the Chief Justice may hold more than one judicial office at the one time.
Most judges have other commissions and appointments.
2.14
The Federal
Court manages its own 'judicial complaints procedure'. The court asserts that to
protect judicial independence judges '...cannot be subject to direct discipline
by anyone else, except in the extreme cases of proved misbehaviour or
incapacity. In those circumstances, and in those only, a judge may be removed
from office by the Governor‑General upon a request from both Houses of
Parliament.'
2.15
The
complaints procedure does not (and, constitutionally, cannot) provide a
mechanism for disciplining a judge. This means that the only action the head of
jurisdiction can take, if any is needed, is informal. The types of complaints
that the procedure mentions are delay, cases that could be dealt with on appeal
or by prerogative writ and judicial conduct.[8]
Family
Court of Australia
2.16
Judges of the Family Court are appointed by the Governor-General,
usually from the ranks of the legal profession. Appointments to the Family
Court have also included academics with special expertise in family law.[9]
2.17
The Chief Justice of the Family Court and the Chief Federal Magistrate
of the Federal Magistrates Court are responsible for overseeing the management
of complaints about the judicial work of those Courts. A complaint can be made to
the Chief Justice or the Chief Federal Magistrate about the conduct of a
judicial officer during the course of, or after, a hearing or about an
unreasonable delay in the delivery of a judgment. The Family Court website
provides complainants with the details needed to write to the Chief Justice of
the Family Court.[10]
Federal Magistrates Court
2.18
The Attorney-General announced this year that as a result of the Semple
Review, the Federal Magistrates Court will be abolished and its functions
amalgamated with the Federal Court and the Family Court. A timeframe for this
has yet to be established.[11]
Recommendation 2
2.19
The committee recommends that, following consultation about the best way
to achieve this, all federal courts publish quarterly complaint handling
summary status reports on their websites recording the number of complaints
received and, in relation to each complaint, the date it was received, the
nature of the complaint, the date on which it was resolved and a summary of any
action taken in response to the complaint.
2.20
The committee recommends that no personal details of either the
complainant or judicial officer be identifiable from these reports.
International
obligations
2.21
Australia ratified the International Covenant on Civil and Political
Rights and it came into effect for Australia on 13 November 1980.
Article 14 of the covenant relevantly states:
- All persons shall be equal before the courts and
tribunals. In the determination of any criminal charge against him, or of his
rights and obligations in a suit at law, everyone shall be entitled to a fair
and public hearing by a competent, independent and impartial tribunal
established by law...[emphasis added][12]
2.22
The United Nations Human Rights Committee, in its General Comment
No 32, states that, 'The requirement of competence, independence and
impartiality of the judiciary is an absolute right that is not subject to any
exception.'[13]
A General Comment is an authoritative statement of the interpretation
and application of a treaty provision by the body responsible for that treaty.[14]
2.23
The Human Rights Law Resource Centre notes in its submission that 'the
importance of competence, independence and impartiality of the judiciary has
also been emphasised by the United Nations Basic Principles on the Independence
of the Judiciary.' They state further that:
The Basic Principles are persuasive, useful interpretative
guides and provide detailed minimum standards concerning the elements of
independence, impartiality and competence contained in the right to a fair
hearing.
On the elements of independence and impartiality, the Basic
Principles provide that:
- The
independence of the judiciary shall be guaranteed by the State and enshrined in
the Constitution of the country. It is the duty of all governmental and other
institutions to respect and observe the independence of the judiciary.[15]
...
2.24
On the element of competence, the Basic Principles provide that:
- Persons selected for judicial
office shall be individuals of integrity and ability with appropriate training
and qualifications in law. Any method of judicial selection shall safeguard
against judicial appointment for improper motives. In the selection of judges,
there shall be no discrimination against a person...except a requirement, that a
candidate for judicial office must be a national of the country concerned,
shall not be considered discriminatory.[16]
2.25
General Comment 32 expands and elaborates on the guidance in the Basic
Principles on the element of independence and states:
The requirement of independence
refers, in particular, to the procedure and qualifications for the appointment
of judges, and guarantees relating to their security of tenure until a
mandatory retirement age or the expiry of their term of office, where such
exist, the conditions governing promotion, transfer, suspension and cessation
of their functions, and the actual independence of the judiciary from political
interference by the executive branch and legislature. States should take
specific measures guaranteeing the independence of the judiciary, protecting
judges from any form of political influence in their decision-making through
the constitution or adoption of laws establishing clear procedures and
objective criteria for the appointment, remuneration, tenure, promotion,
suspension and dismissal of the members of the judiciary and disciplinary
sanctions taken against them.[17]
International
experiences
2.26
An outline of the major judicial organisations established to support
the appointments and complaints processes for some overseas jurisdictions is at
Appendix 4.
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