THE AUSTRALIAN BILL OF RIGHTS BILL: EXPL.4hATORY MATERIAL

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THE AUSTRALIAN BILL OF RIGHTS SUMMARY AND COWIENT

Division 1: General 1.1 Article 1 of the Australian Bill of Rights (ABR) expresses the basic principle that no-one is above or outside the law, that everyone is entitled to its impartial application, and that - in particular - the fundamental rights laid down in the ABR are to be equally enjoyed by everyone. This guarantee of "equality before the law" is to be compared with the more substantive guarantee of the "equal protection of the law" contained in Article 4. 1.2 Article 1 is based upon the terms of Article 2.1 of the International Covenant on Civil and Political Rights (the Covenant), and on the reference to "equality before the law" in Article 26 of the Covenant. 1.3 Article 2 implements the requirement in Covenant Article 5:2 that a country is not permitted, on the pretext of implementing the Covenant, to restrict existing rights and freedoms, by ensuring that existing rights and freedorbs continue. 1.4 Preserving rights or freedoms under any other law includes common law as well as statutory rights and is thought to introduce an element of flexibility, permitting adjustment to future social development. 1.5 Article 3 is a limitation or "derogation" clause of general application. Some of the most important rights set out in the Covenant are qualified by elaborate "derogation" clauses, permitting a very wide range of exceptions and restrictions: see, e.g., Covenant Articles 12 (freedom of movement), 14 (publlc hearings), 18 (free exercise of religion) , 19 (freedom of speech), 21 (freedom of assembly), and 22 (freedom of association). In each such case some qualification is clearly

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necessary, both in terms of implementing the Covenant and in terms of practical realities. On the other hand,the Covenant technique of attaching detailed qualifications to each individual Article is inconsistent with the Australian attempt to produce an inspirational charter of rights in simple declaratory style. 1.6 Many other rights in the Covenant are stated in apparently unqualified terms. Indeed, Covenant Article 4 provides that there should be I t n o derogation" from certain specified rights and freedoms even ''in time of public emergency which tnreatens the life of the nation". Whether or not all the rights which the Covenant states in qualified terms are regarded as morally o r philosophically "absolute"', their legal.enforcemenL cannot, in the nature of legal processes, be "absolute". The ABR Bill will provide for legislative protection of human rights through the ABR itself; for judicial enforcement through interpretation and application of the ABR; and for administrative measures of investigation and conciliation by the Human Rights Commission. In all these processes a flexible and practical approach is required. 1.7 A third group of provisions in the Covenant contain their own inbuilt qualifications: rights are to be secured "without unreasonable restrictions", or to be protected against "arbitrary or unlawful interference". Such qualifications are usually reproduced in the ABR; but because of their vagueness some further guide to the kind of restrictions that are

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acceptable may still be appropriate. 1.8 For all three types of provision in the Covenant, Article 3 of the ABR adopts the same solution as the 1982 Canadian Charter of Rights and Freedoms. - A l l the rights and freedoms of the ABR are declared to be "subject only to such reasonable limits prescribed by law as can be demonstrably justified in a free and democratic sbciety". However, this formula is tied to the Covenant by stating that the rights or freedoms shall not be limited to an extent greater than that permitted by the relevant Covenant provisions. 1.9 It should be noted that this wording imposes i? number of restrictions on the permissible limitations of "rights":

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(it T n e y m u s t be " r e a s o n a b l e " . ( i i ) T n e y may l i m i t , b u t c a n n o t w h o l l y d e n y , t h e s p e c i f i c a l l y

g u a r a n t e e d r i g h t s . ( i i i ) They m u s t b e " p r e s c r i b e d - by l a w " : a s p e c i f i c law i s

__(_

r e q u i r e d . ( i v ) The j u s t i f i c a t i o n m u s t b e " d e m o n s t r a b l e " - a c o u r t m u s t

b e s a t i s f i e d t h a t t h e l i m i t s a r e j u s t i f i e d . __.

( v ) The j u s t i f i c a t i o n m u s t b e c o m p a t i b l e w i t h t h e b a s i c

v a l u e s of ''a f r e e and d e m o c r a t i c s o c i e t y " . ( v i ) Tne l i m i t a t i o n s m u s t g o no f u r t h e r t h a n t h o s e

p e r m i s s i b l e i n t h e C o v e n a n t i n r e l a t i o n t o e a c h r i g h t o r f r eedom.

D i v i s i o n 2 : N o n - D i s c r i m i n a t i o n 2 . 1 A r t i c l e 4 imp lemen t s t h e g u a r a n t e e o f " e q u a l p r o t e c t i o n

o f t h e l a w " c o n t a i n e d i n A r t i c l e 2 6 o f t h e Covenan t . A s i t h a s been j u d i c i a l l y i n t e r p r e t e d i n t h e U n i t e d S t a t e s a n d e l s e w h e r e ,

t h i s g u a r a n t e e means, a t f a c e v a l u e , t h a t e v e r y o n e s h o u l d be

t r e a t e d i n t h e same way, n o t m e r e l y t h a t e v e r y o n e s h o u l d b e

e q u a l l y s u b j e c t t o t h e o p e r a t i o n o f t h e l aw, however d i s c r i m i n a t o r y o r u n f a i r t h e c o n t e n t o f t h a t l aw m i g h t b e . T h a t

i s t o s a y , i t i s a g u a r a n t e e o f e q u a l i t y , n o t m e r e l y of t h e " r u l e

o f l a w " . 2 . 2 T h e g u a r a n t e e o f e q u a l i t y e n s h r i n e d i n t h e p h r a s e

" e q u a l p r o t e c t i o n o f t h e law" h a s n e v e r , however , b e e n r e g a r d e d

a s a b s o l u t e : i t s u s u a l i n t e r p r e t a t i o n i s t h a t e v e r y o n e s h o u l d be

t r e a t e d a l i k e e x c e p t where d i s c r i m i n a t i o n i s r a t i o n a l . T h i s

i n t e r p r e t a t i o n c o u l d p a r t i c u l a r l y b e e x p e c t e d t o p r e v a i l i n

A u s t r a l i a g i v e n t h e s p e c i f i c l a n g u a g e o f A r t i c l e 3 o f t h e A B R .

2 .3 " E q u a l p r o t e c t i o n o f t h e law" h a s a l s o t r a d i t i o n a l l y

been t h o u g h t c o n s i s t e n t w i t h a m e a s u r e of " a f f i r m a t i v e a c t i o n " o r " b e n i g n d i s c r i m i n a t i o n " - i . e . m e a s u r e s t h a t a r e u n e q u a l i n t h e i r

c u r r e n t a p p l i c a t i o n b u t w h i c h a r e d e s i g n e d t o r e d r e s s p a s t i n e q u a l i t i e s o r e n s u r e f u t u r e e q u a l i t y . A r t i c l e 4 : 2 o f t h e AaR makes t h i s e x p l i c i t . 2 . 4 A r t i c l e 5 imp lemen t s t h e p r o t e c t i o n o f c u l t u r a l , r e l i g i o u s and l i n g u i s t i c r i g h t s o f m i n o r i t i e s c o n t a i n e d i n

A r t i c l e 2 7 o f t h e Covenan t .

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Division 3 : Fundamental Political Rights 3.1 Article 6 implements Covenant Article 25, which establishes broad rights of citizenship - to participate in public affairs "directly or through freely chosen representatives"; to vote and to be elected at "genuine periodic elections", by "universal and equal suffrage" and by secret ballot; and to have access "on general terms of equality" to "public service". The words "public service" may be ambiguous in

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Australia; Article 6 substitutes "public employment" to ensure that employment at all three levels of government, and in government authorities, is covered. Otherwise the operative words of the Covenant are transcribed without change. 3.2 The Covenant provision is to operate "without unreasonable restrictions"; in the ABR these words are omitted, since reasonable restrictions are permitted by Article 3. Subject to such restrictions, it is thought that the words "universal and equal suffrage" would not limit the choice of electoral methods (e.g., proportional representation, preferential voting, or "first past the post''); but that they would require compliance with the formula "one person, one vote", and probably also a reasonable degree of compliance with the formula "one vote, one value". 3.3 Article 7 implements Covenant Article 1 9 : 2 , a broad guarantee of freedom of expression and information. Certain limitations are permitted by the Covenant provision; in the ABR limitations are permitted by Article 3. 3.4 A provision not included in the ABR is Covenent Article 20; it states that propaganda for war and incitement of national, racial or religious hatred shall be prohibited by law. As the ABR is designed to prevent government infringement of individual's rights, rather than to stop certain behaviour of individuals, these prohibitions are more appropriately implemented by separate and specific legislative measures. Such legislation would then be measured against Article 3 if challenged as contrary to the freedom of expression guaranteed by Article 7. Tne Racial Discrimination Act is an example of appropriate specific legislation; it is currently under review on

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the issue of prohibition of incitement of racial hatred. 3.5 Article 8 implements those parts of Covenant Articles 18 and 19 concerned with freedom of thought, conscience and opinion. 3.6 Article 9 guarantees the right to have or to adopt a religion or belief without coercion and to manifest that religion or belief, implementing those parts of clauses 1 and 2 of Covenant Article 18 which are concerned with freedom of religion. Covenant Article 18:3 permits a range of restrictions on the freedom to manifest one's religion; the ABR limitations are permitted by Article 3. As to Covenant Article 1 8 : 4 see paragraph 4 . 7 below. 3.7 Article 10 implements the guarantee in Covenant Articles 21 and 22 of freedom of assembly. Certain limitations are permitted by the Covenant provision; in the ABR limitations are permitted by Article 3. 3 . 8 Article 11 implements the guarantee in Covenant Article 22 of freedom of association, including the right to form and join trade unions for the protection of one's own interests. Covenant Article 22 permits restrictions of trade union rights; but then limits the permitted restrictions by reference to ILO Convention No. 87. Article 11 of the ABR simply makes no provision for permitted restrictions. SuDject always to Article 3, the trade union rights guaranteed by the ABR are therefore unqualified - except that (following the Covenant) they are guaranteed only to a "person", "for the protection of that person's interests". In other jurisdictions these words have been broadly construed. On the one hand, they ensure that workers have a right to join unions of their choice, not requiring governmental approval; on the other hand they do not invalidate registration and deregistration provisions. Division 4 : Family, Privacy and Property Rishts 4.1 Article 12 implements the protection from arbitrary interference in Covenant Article 17. Article 12:l forbids "arbitrary or unlawful interference" with ''privacy, family, hoxe or correspondence", and also forbids l'unlawful" attacks on "honou r and r epu t a t i on " .

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4 . 2 Under A r t i c l e 1 2 : 2 ( w h i c h s e e k s t o c l a r i f y what

c o n s t i t u t e s an " u n l a w f u l i n t e r f e r e n c e " w i t h p r i v a c y ) , a s e a r c h o r s e i z u r e is u n l a w f u l u n l e s s i t i s made p u r s u a n t t o a w a r r a n t

i s s u e d by a j u d g e , j u s t i c e o r m a g i s t r a t e m e e t i n g c e r t a i n

c o n d i t i ~ o , n s o r p u r s u a n t t o a l aw a u - t h o r i s i n g s e a r c h o r s e i z u r e

w h i c n i s a n e c e s s a r y e lement i n t h e p r o p e r e n f o r c e m e n t o f r e v e n u e

l a w s o r t h e r e a s o n a b l e r e g u l a t i o n o f a n a c t i v i t y ( s u c h a s h e a l t h o r f i r e s a f e t y ) o r p u r s u a n t t o a l a w a u t h o r i z i n g a s e a r c h o r s e i z u r e where t h e r e i s a c o m p e l l i n g n e e d f o r immedia t e a c t i o n . 4 . 3 A r t i c l e 1 3 b e g i n s by r e c i t i n g t h e P r o a d s o c i a l p o l i c y t h a t " t h e f a m i l y i s t h e n a t u r a l and f u n d a m e n t a l g r o u p u n i t o f

s o c i e t y , and i s e n t i t l e d t o p r o t e c t i o n by s o c i e t y a n d t h e S t a t e "

a s i n Covenan t A r t i c l e 2 3 : l . A r t i c l e 1 3 t h e n g o e s on t o implement more s p e c i f i c a s p e c t s o f t h e " f a m i l y " p r o v i s i o n s o f

Covenant A r t i c l e 2 3 : t h e r i g h t t o m a r r y and found a f a m i l y , and t h e r e q u i r e i n e n t o f f r e e c o n s e n t t o m a r r i a g e .

4 . 4 C o v e n a n t A r t i c l e 2 3 : 4 a l s o r e q u i r e s " a p p r o p r i a t e s t e p s " t o p r o t e c t t h e r i g h t s o f s p o u s e s and c h i l d r e n d u r i n g m a r r i a g e and

a f t e r d i v o r c e . T h e a p p r o p r i a t e p l a c e t o s a t i s f y t h e s e

r e q u i r e m e n t s i s t h e F a m i l y Law A c t .

4 . 5 A r t i c l e 1 4 d e a l s w i t h t h e r i g h t s o f t h e c h i l d .

Covenant A r t i c l e 2 4 : l a p p e a r s t o h a v e two c o n c e r n s : a p r o t e c t i o n

o f c h i l d r e n f rom t h e v a r i o u s f o r m s o f p r o h i b i t e d d i s c r i m i n a t i o n

( r a c e , c o l o u r , s e x e t c . ) ; and a r e c o g n i t i o n t h a t c h i l d r e n r e q u i r e

" s p e c i a l m e a s u r e s o f p r o t e c t i o n " . A c c o r d i n g l y A r t i c l e 1 4 : l s e e k s

t o b a l a n c e a p o s i t i v e s t a t e m e n t o f c h ' i l d r e n ' s r i g h t s w i t h a r e c o g n i t i o n o f t h e i r need f o r " s p e c i a l m e a s u r e s " , b u t t o d o t h i s

i n a p o s i t i v e and u n p a t r o n i z i n g way. C l a u s e s 2 and 3 of C o v e n a n t

A r t i c l e 2 4 c r e a t e c h i l d r e n ' s r i g h t s t o name, n a t i o n a l i t y and

r e g i s t r a t i o n o f b i r t h . C l a u s e s 2 and 3 o f A r t i c l e 1 4 implement

- t h e s e r e q u i r e m e n t s .

4 . 6 For t h e p u r p o s e s o f t h e s e p r o v i s i o n s i n t h e ABR ( a n d

a l s o of A r t i c l e s 26(j) and 3 0 : 2 - s e e p a r a g r a p h s 6 . 1 8 and 6 . 2 5

b e l o w ) , i t i s p r o p o s e d t o d e f i n e a " c h i l d " a s a p e r s o n unde r t n e a g e o f 1 6 y e a r s .

4 . 7 A r t i c l e 14:4 ( a f f i r m i n g r e s p e c t f o r t h e l i P e r t y o f

p a r e n t s and g u a r d i a n s t o e n s u r e t h e r e l i g i o u s and mora1 e d u c a t i o n

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of their children according to their own convictions) repeats the provisions of Covenant Article 1 8 : 4 .

Division 5 : Freedom of Movement 5.1 Articles 15, 16, and 17 recognize rights of freedom of movement and choice of residence; a right of any Australian citizen to enter Australia; and a right of any person to leave Australia. These provisions implement Covenant Article 12. 5.2 The citizen's right t o enter Australia is unqualified in the Covenant. Certain limitations of the other rights are permitted by the Covenant provision; in the ABR limitations are permitted by Article 3. 5.3 ' Covenant Article 13 requires that aliens lawfully in Australia may not be expelled except "in accordance with law". Article 15:2 of the ABR implements this requirement.The Covenant provision also provides procedural requirements including an opportunity for review, but these requirements do not apply to national security cases. Procedural requirements thus heavily qualified, and needing to be spelled out in technical detail, do not seem appropriate for implementation in a general charter of rights; hence this provision is not included in the ABR. It is not suggested that Australian procedures depart from the Covenant provision. Division 6 : Life, Liberty and Criminal Process 6.1 Article 18 combines Covenant provisions as to deprivation of life and deprivation of liberty. 6.2 Tne provision that no one shall be deprived of life except in accordance with law is from Covenant Article 6. Tne Covenant Article also declares: "Every human being has the inherent right to life. This right s h a l l be protected by law". Article 18.1 supplies this protection, beyond this the declaratory statement in the Covenant seems inappropriate f o r

impleinentation in the ABR. Compare paragraph 6.5 below. 6.3 Clauses 2, 4 and 5 of Covenant Article 6 set out detailed regulation of the permissible use of the death penal:,. However, clause 6 then provides: "Nothing in this article sk2z ; ~

be invoked to delay or . . . prevent the abolition of capital punishment". In the present state of tne law in Australia, -

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r e g u l a t e c a p i t a l p u n i s n m e n t i n t h e ABR m i g h t a p p e a r t o condone

i t : h e n c e , i n c o m p l i a n e e w i t h c l a u s e 6 , t h e A B R d o e s - n o t

implement c l a u s e s 2 , 4 and 5.

6 . 4 Covenant A r t i c l e 6 : 3 p r e s e r v e s o b l i g a t i o n s a r i s i n g f r o m

t h e C o n v e n t i o n o n t h e P r e v e n t i o n - a n d Pun i shmen t o f t h e Crime o f

G e n o c i d e . The ABR i s n o t i n t e n d e d t o implement t h a t C o n v e n t i o n .

6 . 5 T h e o t h e r p r o v i s i o n i n A r t i c l e 18:l - t h a t no o n e s h a l l

be d e p r i v e d o f l i b e r t y e x c e p t i n a c c o r d a n c e w i t h l aw - i s f rom

Covenan t A r t i c l e 9 : l . T h a t p r o v i s i o n a l s o p r o h i b i t s a r b i t r a r y ' a r r e s t o r d e t e n t i o n , and t h i s p r o h i b i t i o n i s implemen ted i n A r t i c l e 18:2. Again , t h e two Covenan t g u a r a n t e e s t h u s

imp lemen ted a r e p r e f a c s d by a d e c l a r a t o r y s t a t e m e n t : " E v e r y o n e h a s t h e r i g h t t o l i b e r t y and s e c u r i t y o f p e r s o n " . B u t t h e

meaning o f t h i s d e c l a r a t o r y s t a t e m e n t m u s t i n a n y e v e n t b e

q u a l i f i e d i n t h e C o v e n a n t by t h e l i m i t e d s p e c i f i c g u a r a n t e e s

r e f e r r e d t o above . I t seems s u f f i c i e n t t o imp lemen t t h e s p e c i f i c

g u a r a n t e e s . 6 . 6 A r t i c l e 1 8 . 3 i m p l e m e n t s Covenan t A r t i c l e 11, no o n e

s h a l l b e i m p r i s o n e d m e r e l y on t h e g round o f i n a b i l i t y t o f u l f i l a

c o n t r a c t u a l o b l i g a t i o n . 6 . 7 A r t i c l e 1 9 i m p l e m e n t s t h e p r o h i b i t i o n s i n C o v e n a n t

A r t i c l e 8 o f s l a v e r y and s e r v i t u d e , and o f f o r c e d o r c o m p u l s o r y

l a b o u r . A s t o t h e p r o h i b i t i o n o f f o r c e d o r c o m p u l s o r y l a b o u r ,

c e r t a i n l i m i t a t i o n s a r e p e r m i t t e d by t h e C o v e n a n t p r o v i s i o n . I n

t h e A B R , l i m i t a t i o n s a r e p e r m i t t e d by A r t i c l e 3 and by t h e

i n c l u s i o n o f t h e words " e x c e p t i n a c c o r d a n c e w i t h l aw" i n A r t i c l e

1 9 .

6 .8 A r t i c l e 20 ( t h e r i g h t t o b e i n f o r m e d o f t h e r e a s o n s for

a r r e s t , and t o be i n f o r m e d p r o m p t l y o f any c h a r g e s ) imp lemen t s C o v e n a n t A r t i c l e s 9 : 2 and 1 4 : 3 ( a ) .

6 . 9 A r t i c l e 2 1 ( t h e r i g h t o f a p e r s o n d e t a i n e d i n c u s t o d y

t o c o n s u l t a lawyer and t o make no s t a t e m e n t ) , p r o t e c t s t n e

r i g h t s " t o communicate w i t h c o u n s e l ' ' and " n o t io b e c o m p e l l e d t o c o n f e s s g u i l t " , a c c o r d e d t o a c c u s e d p e r s o n s by Covenan t

A r t i c l e 14:3(b) and ( 9 ) . I n o r d e r t o e n s u r e t h e e f f e c t i v e p r o t e c t i o n of t n e s e i m p o r t a n t r i g h t s i t p i c k s them up a t an

e a r l i e r s t a g e o f t h e c r i m i n a l p r o c e s s t h a n t h e C o v e n a n t , zrl-: .

. . .

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more d e f i n i t e t e r m s . G e n e r a l l y t h r o u g h o u t t h i s p a r t o f t h e h3R

an e f f o r t i s made t o s t a t e t h e r i g n t s i n t h e c n r o n o l o g i c a l o r d e r

i n w h i c h t h e y would become r e l e v a n t t o an a r r e s t e d p e r s o n . 6 . 1 0 , A r t i c l e 2 2 implements C o v e n a n t A r t i c l e 9 : 3 , b u t a t t e m p t s t o s e p a r a t e o u t t h e t h r e e d i s t i n c t r i g h t s t h a t a p p e a r t o be i n v o l v e d : a prompt i n i t i a l h e a r i n g a f t e r a r r e s t ; a r i g h t t o

b a i l on r e a s o n a b l e t e rms ( e x c e p t f o r good r e a s o n s ) ; and a r i g h t

t o be r e l e a s e d (on r e a s o n a b l e t e r m s ) i f a t r i a l i s n o t t o b e h e l d

w i t h i n a r e a s o n a b l e t ime . 6 . 1 1 A r t i c l e 2 3 i r rp lements t h e r i g h t unde r Covenan t A r t i c l e

9 : 4 t o t e s t t h e l a w f u l n e s s o f any d e t e n t i o n ( e . g . by h a b e a s

c o r p u s ) , a n d where a p p r o p r i a t e t o b e r e l e a s e d . 6 .12 C o v e n a n t A r t i c l e 9:5 e n v i s a g e s " a n e n f o r c e a b l e r i g h t t o

c o m p e n s a t i o n " i n c a s e s of w r o n g f u l a r r e s t , and Covenan t A r t i c l e

14:6 e n v i s a g e s a s i m i l a r r i g h t i n c a s e s o f w r o n g f u l c o n v i c t i o n .

I n A u s t r a l i a s u c h m a t t e r s a r e m o s t l y d e a l t w i t h by t h e payment o f

ex g r a t i a c o m p e n s a t i o n , u s u a l l y by t h e S t a t e g o v e r n m e n t s . To

c r e a t e e n f o r c e a b l e r i g h t s f o r damages would go beyond t h e

c o n c e p t i o n o f t h e ABR a s "a s h i e l d , n o t a sword" . T h e r e a r e of

c o u r s e l i m i t e d common law r i g h t s t o damages . 6 .13 A r t i c l e 2 4 implements t h e p r e s u m p t i o n o f i n n o c e n c e

u n t i l p r o v e d g u i l t y a c c o r d i n g t o law (Covenan t A r t i c l e 14:2). 6 . 1 4 A r t i c l e 25 c r e a t e s , f o r b o t h c i v i l and c r i m i n a l c a s e s , a r i g h t " t o a f a i r and p u b l i c h e a r i n g by a c o m p e t e n t , i n d e p e n d e n t and i m p a r t i a l t r i b u n a l " . T h i s i m p l e m e n t s a g u a r a n t e e i n Covenan t

A r t i c l e 14:l. Tne Covenant p r o v i s i o n a l s o d e c l a r e s t h a t a l l

p e r s o n s " s h a l l be e q u a l b e f o r e t h e c o u r t s and t r i b u n a l s " . T h i s

r e q u i r e m e n t i s s u f f i c i e n t l y imp lemen ted by t h e g e n e r a l p r o v i s i o n s

f o r e q u a l i t y i n D i v i s i o n s 1 and 2 o f t h e ABR. C e r t a i n l i m i t a t i o n s a r e p e r m i t t e d by t h e C o v e n a n t p r o v i s i o n ; i n t h e A 3 R

l i m i t a t i o n s a r e p e r m i t t e d by A r t i c l e 3 .

6 . 1 5 A r t i c l e 2 6 shou ld b e r e a d w i t h A r t i c l e s 2 0 t o 2 2

above . T o g e t h e r t h e s e A r t i c l e s implement a s e r i e s of " d u e

p r o c e s s ' ' r i g n t s r e l a t i n g t o t h e c o n d u c t o f c r i m i n a l t r i a l s ,

r e q u i r e d by Covenan t A r t i c l e 1 4 : 3 . A s n o t e d i n p a r a g r a p h 6 . 9

above , a s p e c i a l e f f o r t i s made i n t h i s g r o u p of A r t i c l e s ( i ) t o

c r e a t e s p e c i f i c e n f o r c e a b l e r i g h t s ; and ( i i ) s o f a r a s p o s s i b l e ,

- 10 -

t o s t a t e t h e r i g h t s i n t h e c h r o n o l o g i c a l o r d e r i n w h i c n t h e y would become r e l e v a n t . For example , A r t i c l e 2 6 ( b ) s t a t e s t h e

r i g h t t o communica te w i t h a l a w y e r ; b u t A r t i c l e 2 6 ( a ) f i r s t e n s u r e s t h a t a p e r s o n c h a r g e d w i l l be i n f o r m e d of t h e r i g h t t o

l e g a l a s s i s t a n c e . 6 . 1 6 A r t i c l e 2 6 ( c ) p r o v i d e s f o r f r e e l e g a l a i d " i f t h e

i n t e r e s t s o f j u s t i c e so r e q u i r e and t h e p e r s o n l a c k s s u f f i c i e n t meEins t o pay f o r t h e a s s i s t a n c e " . T n i s i rcp lements t n e s i m i l a r l y

q u a l i f i e d r i g h t i n Covenant A r t i c l e 1 4 : 3 ( d ) . The r e f e r e n c e t o

" t h e i n t e r e s t s o f j u s t i c e " i s u n d e r s t o o d a s p e r m i t t i n g r e a s o n a b l e

d i s c r e t i o n s i n t h e g r a n t i n g o f l e g a l a i d b a s e d on ( i ) t h e m e r i t s

of t h e c a s e , and ( i i ) t h e s e r i o u s n e s s o f t h e o f f e n c e .

6 . 1 7 O t h e r r i g h t s s e t o u t i n A r t i c l e 2 6 ( a l l b a s e d on

Covenant A r t i c l e 1 4 : 3 ) a r e t h e r i g h t s t o a d e q u a t e t i m e and

, * -

f a c i l i t i e s t o p r e p a r e f o r t h e t r i a l ; t o be p r e s e n t a t t h e t r i a l

and t o c o n d u c t a d e f e n c e ; t o examine p r o s e c u t i o n w i tnes ses and

have d e f e n c e w i t n e s s e s c a l l e d and e x a m i n e d ; t o r e c e i v e t h e f r e e a s s i s t a n c e o f a n i n t e r p r e t e r when n e e d e d ; and t o be p r o t e c t e d

a g a i n s t s e l f - i n c r i m i n a t i o n . A s t o s e l f - i n c r i m i n a t i o n s e e a l s o

A r t i c l e 2 1 . ( S e e p a r a g r a p h 6 . 9 a b o v e ) .

6 . 1 8 C o v e n a n t A r t i c l e 14:4 r e q u i r e s a p r o c e d u r e f o r

j u v e n i l e s w h i c h t a k e s a c c o u n t o f t h e i r a g e . T h i s r e q u i r e m e n t i s implemented i n A r t i c l e 2 6 ( j ) . T h e Covenan t p r o v i s i o n a l s o

r e c i t e s a p e n o l o g i c a l g o a l of " r e h a b i l i t a t i o n " i n j u v e n i l e c a s e s ;

more g e n e r a l l y 'Covenant A r t i c l e l 0 : 3 r e c i t e s p e n o l o g i c a l g o a l s of

" r e f o r m a t i o n " and " r e h a b i l i t a t i o n " . These r e c i t a l s a r e n o t

r e p e a t e d i n t h e A B R ; i t would be i n a p p r o p r i a t e t o u s e t h e ABR t o

t i e p e n a l o b j e c t i v e s t o v i e w s c u r r e n t i n 1 9 6 6 .

6 . 1 9 A r t i c l e 2 7 p r o h i b i t s t h e r e t r o s p e c t i v e c r e a t i o n o f

c r i m i n a l o f f e n c e s , o r a r e t r o s p e c t i v e i n c r e a s e i n p e n a l t i e s

(Covenant A r t i c l e 1 5 ) . I t i s u n n e c e s s a r y under A u s t r a l i a n law t o

s p e l l o u t t h e f u r t h e r p r o v i s i o n i n t h e Covenan t t h a t a n a c c u s e d

i s to have t h e b e n e f i t of any r e d u c t i o n i n p e n a l t i e s , o r t h e

s a v i n g of i n t e r n a t i o n a l p r o c e s s e s s u c h a s t h e Nuremberg and T o k y o

War Cr imes T r i b u n a l s . I t s h o u l d be n o t e d , however , t h a t t h e ban

on r e t r o s p e c t i v i t y a p p l i e s o n l y t o c r i m i n a l o f f e n c e s and

p e n a l t i e s i n b o t h t h e Covenant and t h e A B R .

- 11 -

6 . 2 0 A r t i c l e 28 r e c o g n i z e s a r i g h t t o r ev iew o f c o n v i c t i o n

and s e n t e n c e (Covenan t A r t i c l e 1 4 : 5 ) .

6 . 2 1 A r t i c l e 2 9 p r e v e n t s " d o u b l e j e o p a r d y " (Covenan t A r t i c l e

1 4 : 7 ) ; *

6 . 2 2 A s t o Covenan t A r t i c l e 1 4 : 6 , s e e p a r a g r a p h 6 . 1 2 aDove.

6 .23 A r t i c l e 3 0 imp lemen t s r i g h t s i n r e l a t i o n t o d e p r i v a t i o r of l i b e r t y from Covenan t A r t i c l e 1 0 . A r t i c l e 3 0 : l ( a l l p e r s o n s

d e p r i v e d o f l i b e r t y t o be t r e a t e d w i t h humanit l l and r e s p e c t f o r

h u m a n d i g n i t y ) imp lemen t s Covenant A r t i c l e 1O:l. 6 . 2 4 O the r c l a u s e s o f Covenant A r t i c l e 1 0 r e q u i r e s e g r e g a t i o n o f p r i s o n e r s : a c c u s e d p e r s o n s from t h o s e a l r e a d y c o n v i c t e d , and j u v e n i l e o f f e n d e r s from a d u l t s ( w i t h a p p r o p r i a t e

t L e a t m e n t f o r j u v e n i l e s ) . I n t h e Covenan t t h e f i r s t o f t h e s e

r e q u i r e m e n t s i s t o o p e r a t e " s a v e i n e x c e p t i o n a l c i r c u m s t a n c e s " ;

t h e s econd i s a b s o l u t e . Botn r e q u i r e m e n t s a r e implemented by

A r t i c l e 30:2, b u t i n b o t h c a s e s o n l y " s o f a r a s i s p r a c t i c a b l e " .

T h e o b j e c t i v e h e r e i s t o e n c o u r a g e moves a l r e a d y under way i n A u s t r a l i a n p r i s o n a d m i n i s t r a t i o n s t o w a r d s s t r i c t c o m p l i a n c e w i t h t h e C o v e n a n t , b u t t o do s o w i t h due a l l o w a n c e f o r t h e p r a c t i c a l

e x i g e n c i e s w h i c h S t a t e a d m i n i s t r a t i o n s may e n c o u n t e r i n t h e s h o r t

t e r m .

6 . 2 5 A r t i c l e 3 1 ( p r o h i b i t s t o r t u r e and innuman t r e a t m e n t ,

and m e d i c a l e x p e r i m e n t a t i o n w i t h o u t c o n s e n t , and implemen t s

Covenant A r t i c l e 7 . Though t o r t u r e i s n o t a c u r r e n t human r i g h t s

p rob lem i n A u s t r a l i a , t h e p r o h i b i t i o n s h o u l d be implemented

b e c a u s e i t i s f u n d a m e n t a l t o a g e n e r a l s t a t e m e n t of human d i g n i t y .

-

- 12 -

JUDICIAL ENFORCEMENT OF THE BILL OF RIGHTS 1. The effect of the Australian Bill of Rights (ABR). is limited to protecting individuals (sub-clause 9 ( 3 ) ) against violations of their rights by the-impact of laws or by the actions of governmental institutions (sub-clause 9 ( 2 ) ) . It does not affect the rights of individuals in relation to each other. 2. The ABR is to operate in tne first instance as a "rule of construction". This means that, in construing any law (Commonwealth, State or Terrltory) the courts a r e to seek an interpretation that does not conflict with the ABR (clause 10). (Sub-clause lG(2) makes it clear that the same approach is to be applied when interpreting the terms in which power is given for the,making of statutory instruments). 3. In construing the ABR itself, a court may find that two of its provisions are in conflict. (For example, one person's right to privacy may conflict with another person's right to a public hearing). In resolving such conflicts the courts are to have regard to the objects of the ABR Act, and in particular to the "paramount objectives" of the freedom and dignity of the human person, and of full and free participation by all Australians in public affairs and public debate (clause 4(3), read with clause 3(d)). 4. The ABR "operates and has effect as a law of the Commonwealth": i.e., it has statutory force (sub-clause 9 (1)). This means that it overrides any inconsistent colmon law rule; it operates (to the extent of inconsistency) as an implied repeal of any earlier Commonwealth law; and it overrides (by virtue of s.109 of the Constitution) any inconsistent State law. 5. The operation of the ABR as an implied re;?eal of any earlier inconsistent Cormonwealth law is spelled out in clause 11. 6. To the extent of the Parliament's power to do so, it is also intended to prevent any violation'of human rights by future Commonwealth laws. In order to override the ABR, a future law will have to state expressly that it is intended to do so. Thus, while a future Parliament inoy derogate from the ABR, it cannot do so by accident and it cannot do so in secret. Any derogation would have to be exposed to full parliamentary and puolic

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s c r u t i n y . 7 . T h i s r e q u i r e m e n t i s s p e l l e d o u t i n c l a u s e 1 2 . T e c h n i c a l l y ,

c l a u s e 1 2 p r o v i d e s t h a t i f a f u t u r e law p r o v e s i n c o n s i s t e n t w i t h

t h e B i l l o f R i g h t s , and d o e s n o t - c o n t a i n s u c h a n e x p r e s s

s t a t e m e n t , i t w i l l n o t be i n v a l i d b u t i n o p e r a t i v e ( t h o u g h o n l y t o

t h e e x t e n t o f t h e i n c o n s i s t e n c y ) .

C o n v e r s e l y , i f a f u t u r e law d o e s c o n t a i n s u c h an e x p r e s s s t a t e m e n t , t h e i n t e n t i o n i s t h a t i t will n o t o p e r a t e t o r e p e a l

t h e A B R , b u t t h a t t h e ABR i t s e l f w i l l t h e n become i n o p e r a t i v e

( t h o u g h a g a i n o n l y t o t h e e x t e n t o f t h e i n c o n s i s t e n c y ) .

8 . O f c o u r s e , a f u t u r e law w h i c h d i d e x p r e s s l y r e p e a l t h e

e n t i r e ABR c o u l d e f f e c t i v e l y d o s o . T h e ABR w i l l h a v e o n l y

s t a t u t o r y f o r c e , n o t c o n s t i t u t i o n a l f o r c e . O n t h a t b a s i s , t h e l imi t s i n c l a u s e 1 2 on t h e o p e r a t i o n of f u t u r e l a w s a r e t h e

s t r o n g e s t t h a t can be d e v i s e d . 9 . S i m i l a r l y , s u b o r d i n a t e l e g i s l a t i o n ( i n c l u d i n g T e r r i t o r y

e n a c t m e n t s ) made under a f u t u r e Commonwealth A c t c o u l d be made t o

p r e v a i l o v e r t h e ABR by a n e x p r e s s s t a t e m e n t of i n t e n t i o n ; b u t

o n l y i f a n i n t e n t i o n t o t h a t e f f e c t were formed and e x p r e s s e d by

t h e P a r l i a m e n t i t s e l f i n t h e a u t h o r i z i n g A c t ( c l a u s e 1 3 ) .

1 0 . I f a c o u r t f i n d s t h a t a p a s t Commonwealth law i s i n c o n f l i c t

w i t h t h e ABR ( and h a s t h e r e f o r e been r e p e a l e d by t h e A B R ) , t h e

c o n s e q u e n c e s m i g h t some t imes be c h a o t i c . S i m i l a r c o n s e q u e n c e s

migh t somet imes e n s u e i f a c o u r t f i n d s t h a t a f u t u r e Commonwealth

law i s i n c o n f l i c t w i t h t h e ABR ( a n d i s t h e r e f o r e i n o p e r a t i v e ) .

I n b o t h i n s t a n c e s , i t m i g h t t u r n o u t t h a t a c o u r t c o n f r o n t e d w i t h

s u c h a p r o s p e c t migh t t h e r e f o r e f e e l d r i v e n t o a d o p t a nar row c o n s t r u c t i o n of t h e ABR. I n b o t h i n s t a n c e s , t h e r e f o r e , c l a u s e 1 4

s e e k s t o o f f e r t h e c o u r t s an a l t e r n a t i v e , w h i c h would e n a b l e t h e m

t o a v o i d s u c h r e s u l t s w h i l e s t i l l g i v i n g t h e ABR p r o v i s i o n s a

broad i n t e r p r e t a t i o n . To t h i s e n d , c l a u s e 1 4 w i l l g i v e t h e

c o u r t s t h e power t o make a d e c l a r a t i o n ( b a s e d on “ g r a v e p u b l i c

i n c o n v e n i e n c e o r h a r d s h i p ” ) w h i c h w i l l have t h e f o l l o w i n g e f f e c t s :

( a ) The normal o p e r a t i o n of t h e law (and i t s l e g a l

c o n s e q u e n c e s ) w i l l be p r e s e r v e d o r r e i n s t a t e d up t o t h e

d a t e of t h e C o u r t ’ s d e c i s i o n .

( b ) The normal o p e r a t i o n of t h e law (and i t s l e g a l

- 1 4 -

c o n s e q u e n c e s ) may De p r e s e r v e d or r e i n s t a t e d ( a c a i n on

g r o u n d s o f " g r a v e p u b l i c 1nconvenienc .e o r n a r d s h i p " )

f o r a f u r t h e r p e r i o d o f t h r e e months a f t e r t h e C o u r t ' s

. . d e c i s i o n . T h i s would a l l o w s u f f i c i e n t t i m e f o r t h e

P a r l i a m e n t t o p a s s an a p p r o p r i a t e law t o d e a l w i t h t h e

s i t u a t i o n , e . g . by amending o r t r a n s i t i o n a l p r o v i s i o n s .

( c ) I n any s u c h c a s e t h e p o s i t i o n would be t h a t a p e r s o n had s u c c e s s f u l l y a r g u e d t h a t a law was i n c o n s i s t e n t

w i t h t h e A B R ; y e t ( a ) and ( b ) above would deny t h a t

p e r s o n " t h e f r u i t s o f v i c t o r y " . To a v o i d t h i s u n f a i r

s i d e - e f f e c t , an e x c e p t i o n would be made t o t h e e f f e c t s

o f any d e c l a r a t i o n u n d e r ( a ) and ( b ) , s o a s t o a l l o w

t h e ABR t o have a n immedia t e o p e r a t i o n l i m i t e d t o t h e i s s u e s i n t h e i n d i v i d u a l c a s e .

11. S u b - c l a u s e 14(3) w i l l a l l o w t h i s p r o c e d u r e t o be used ( t o

s i m i l a r e f f e c t ) i n a c a s e where a T e r r i t o r y e n a c t m e n t i s found t o

be i n c o n s i s t e n t w i t h t h e ABR.

1 2 . C l a u s e 1 5 w i l l a l l o w a s i m i l a r p r o c e d u r e t o b e used ( t o

s i m i l a r e f f e c t ) i n a c a s e wnere a S t a t e law i s f o u n d t o be

i n c o n s i s t e n t w i t h t h e ABR. T h e r e a r e two main v a r i a t i o n s :

( a ) A S t a t e law which i s i n c o n s i s t e n t w i t h t h e ABR w i l l n o t

b e i n v a l i d a t e d by t h e o p e r a t i o n of any p r o v i s i o n t o

t h a t e f f e c t i n t h e ABR B i l l , b u t r a t h e r by t h e

o p e r a t i o n of s.109 o f t h e C o n s t i t u t i o n - w h i c h c o n e s

i n t o p l a y s i m p l y b e c a u s e t h e ABR i s "a l a w of t h e Commonwealth". N e v e r t n e l e s s , f o r t h e s a k e o f g i v i n g a

c o m p l e t e p i c t u r e o f how t h e ABR i s l i k e l y t o a f f e c t

S t a t e laws (and a s a s t a r t i n g - p o i n t f o r t h e s a v i n g p r o c e d u r e ) , sub-c1s ;use 15(1) rr,akes a d e c l a r a t i o n of t h e P a r l i a m e n t ' s i n t e n t i o n t h a t any c o n f l i c t of a S t a t e law

w i t h t h e ABR shall be t a k e n t o be " i n c o n s i s t e n c y " i n

t h e c o n s t i t u t i o n a l s e n s e .

( b ) S i n c e t h e i n v a l i d i t y o f a S t a t e law i n s u c h a c a s e

f o l l o w s from t h e C o n s t i t u t i o n , t h e " s a v i n g " p roced i l r e

c a n n o t work by r e s t o r i n g t h e o p e r a t i v e e f f e c t o f t h e

S t a t e law. I n s t e a d , s u b - c l a u s e 15(4) ( f o r a p e r i o d up

t o t h e d a t e o f t h e c o u r t ' s d e c i s i o n ) and s u b - c l a u s e

- 15 -

1 5 ( 7 ) ( f o r a f u r t h e r p e r i o d o f t h r e e months) p r o v l d e

t h a t - f o r t n a t p e r i o d o n l y , and o n l y t o t h e e x t e n t o f

t h e i n c o n s i s t e n c y - t h e A B R s h a l l n o t o p e r a t e o r have

. e f f e c t a s a law o f the-Commonwealth.

1 3 . C l a u s e 1 6 makes i t c l e a r t h a t t h e ABR B i l l i s n o t i n t e n d e d t o e x c l u d e o r l i m i t t h e o p e r a t i o n o f a law o f a S t a t e o r T e r r i t o r y t h a t f u r t h e r s t h e o D j e c t s o f t h e I n t e r n a t i o n a l Covenan t

on C i v i l and P o l i t i c a l R i g h t s and i s c a p a b l e of o p e r a t i n g c o n c u r r e n t l y w i t h t n e Commonwealth scheme. 1 4 . P r i m a r i l y , j u d i c i a l i n t e r p r e t a t i o n s of l aws i n t h e l i g h t o f

t h e ABR, and j u d i c i a l d e t e r m i n a t i o n s o f t h e c o n s e q u e n c e s of a

c o n f l i c t w i t h t h e A B R , w i l l a r i s e b e c a u s e t h e law i n q u e s t i o n i s impugned i n c o u r t p r o c e e d i n g s a l r e a d y p e n d i n g . For example , a

p e r s o n c h a r g e d w i t h i n f r i n g e m e n t o f a p a r t i c u l a r law may w i s n t o

a r g u e by way o f d e f e n c e t h a t t h e law i s i n v a l i d ; o r i n o p e r a t i v e

by v i r t u e o f c l a u s e 1 2 ; o r h a s been r e p e a l e d by c l a u s e 11. I t i s

n o t i n t e n d e d t o make any s p e c i f i c p r o v i s i o n e n a b l i n g s u c h a

p e r s o n t o a r g u e s u c h a d e f e n c e ; i t s a v a i l a b i l i t y w i l l a r i s e

s imply from t h e e x i s t e n c e o f t h e ABR a s a law of t h e

Commonwealth. Nor w i l l s p e c i f i c p r o v i s i o n be made f o r o t h e r c a s e s i n which ABR i s s u e s may a r i s e i n t h e c o u r s e of p e n d i n g p r o c e e d i n g s

15. However, t h e r e may be c a s e s i n w h i c h a p e r s o n w i s h e s t o rrlake

use of t h e " s h i e l d " p r o v i d e d by the^ ABR i n a c o n t e x t w h i c h d o e s - n o t i n v o l v e p r o c e e d i n g s a l r e a d y p e n d i n g b e f o r e a c o u r t . ( O n e

s h o u l d n o t n e c e s s a r i l y have t o be a r r e s t e d i n o r d e r t o v i n d i c a t e

o n e ' s r i g h t s ) . A c c o r d i n g l y , c l a u s e 1 7 c r e a t e s a p r o c e d u r e by w h i c h a p e r s o n can a p p l y f o r a d e c l a r a t i o n a s t o t h e impac t o f

t h e ABR on any law w h i c h h a s a l l e g e d l y i n f r i n g e d t h a t p e r s o n ' s

r i g h t s , o r i s l i k e l y t o do s o " i n t h e immedia te f u t u r e " . A s t o

Commonwealth l aws s u c h an a p p l i c a t i o n would be made t o t h e

F e d e r a l C o u r t ; a s t o S t a t e l a w s , t o t h e F e d e r a l C o u r t o r t o t h e

Supreme C o u r t o f t h e S t a t e ; a s t o T e r r i t o r y l a w s , t o t h e F e d e r a l

Cour t o r t o t h e Supreme C o u r t o f t h e T e r r i t o r y .

1 6 . S p e c i a l p r o v i s i o n i s n e c e s s a r y f o r A r t i c l e 1 2 ( w h i c h d e a l s

w i t h t h e r i g h t t o p r i v a c y , i n c l u d i n g u n l a w f u l s e a r c h 2nd s e i z u r e )

and D i v i s i o n 6 of t h e A B R ( w h i c h d e a l s p r i m a r i l y w i t h t h e r i g n t s

- 16 -

of a p e r s o n a c c u s e d of a c r i m i n a l o f f e n c e ) . \<inere t n o s e r i g h t s

have been i n f r i q g e d , c l a u s e 1 8 w i l l c o n f e r a j u d i c i a l d i s c r e t i o n

t o make s u c h o r d e r a s t h e c o u r t c o n s i d e r s " a p p r o p r i a t e and j u s t

i n a l l a t h e c i r c u m s t a n c e s " , f o r t h e p u r p o s e of e n s u r i n g " t h a t t h e a d m i n i s t r a t i o n o f j u s t i c e i s n o t . . . b r o u g h t i n t o d i s r e p u t e " .

Where e v i d e n c e was o b t a i n e d i n a manner w h i c h i n f r i n g e d t h o s e r i g h t s t h e o n u s w i l l be on t h e p a r t y t e n d e r i n g t h a t e v i d e n c e t o

show t h a t t h e a d m i n i s t r a t i o n o f j u s t i c e would n o t b e b r o u g h t i n t o

d i s r e p u t e by i t s a d m i s s i o n . 1 7 . The I;BR i s i n t e n d e d a s a s h i e l d , n o t a sword . C l a u s e 1 9

w i l l make i t c l e a r t h a t , e x c e p t a s e x p l a i n e d a b o v e , no one c a n

s u e o r be s u e d (or be p r o s e c u t e d ) on t h e b a s i s o f a n i n f r i n g e m e n t of t h e ABR.

1 8 . P a r t I V w i l l p r o v i d e f o r a p r o c e d u r e f o r r e m o v a l o f ABR

i s s u e s f rom a f e d e r a l , S t a t e or T e r r i t o r y C o u r t i n t o t h e F u l l

C o u r t o f t h e F e d e r a l C o u r t . Removal w i l l n o t be p e r m i t t e d f rom a

c o u r t of f i r s t i n s t a n c e , b u t a t any s t a g e of f i r s t or l a t e r

a p p e a l . P r o v i s i o n i s a l s o made f o r i n t e r v e n t i o n by

A t t o r n e y s - G e n e r a l .

1 9 . P a r t V I w i l l e n s u r e t h a t , f o r c o n s t i t u t i o n a l p u r p o s e s ,

c e r t a i n p r o v i s i o n s a r e " s e v e r a b l e " .

2 0 . C l a u s e 5 0 w i l l e n a b l e t h e A t t o r n e y - G e n e r a l t o a u t h o r i z e t h e

g r a n t of l e g a l a i d , i n c a s e s o f h a r d s h i p and p u b l i c i n t e r e s t , t o

any p e r s o n i n v o k i n g t h e ABR.

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FUNCTIONS OF H U M A R RIGHTS COWYISSIOK UKDER THE AUSTRALIAN BILL OF RIGHTS BILL

1. At present under the Human Riahts Commission Act 1981 (HRC A c t ) the Human Rights Commission (HRC) has the power to investigate the acts and practices of Commonwealth Departments and statutory authorities and to examine the legislation of the Commonwealth for consistency with the human rights in the International Covenant on Civil and Political Rights and in tne Declarations of the Rights of the Child, of Mentally Retarded , Persons and of Disabled Persons. 2. Under the Australian Bill of Rights Bill, (ABR Bill) the HRC

I * ,

'will be given the power to investigate the acts and practices of Commonwealth and Scate departments and statutory authorities and local government councils to see if they abrogate, abridge or infringe any of the rights or freedoms set out in the Articles of the Australian Bill of Rights (ABR) and, where appropriate, to endeavour by conciliation to effect a settlement. The HRC will also have the power to examine Commonwealth, State and local government legislation to ascertain whether it is in conflict with the ABR. At present the HRC cannot examine proposed enactments without a request from the Minister. Under the - ABR Bill the HRC will be able to undertake such examination of its own motion. These functions of the HRC are set out in clause 28(a) and (d). The other functions of the HRC in that clause mirror their existing functions in Section 9 of the HRC Act, adapted to apply to the rights and freedoms set out in the A E R .

These functions include promotion of acceptance and understandins of these rights and freedoms, research and education in relation to promotion, and advice to the Minister about legislative 2nd other action that should be taken in relation to those rights ~ n i :

,

freedoms. Complaints Procedure 3. Complaints may be made to the HRC alleging that rights cy5 freedoms guaranteed in the ABR have been breached by the a c t s C Y

practices of ComTondealth and State Departments or statutory authorities and local government councils. Cornplaints are 'L<

made in writing, but i f a person nas difficulty either formulating the complaint or reducing i t to writing, then L k v

- 18 -

must provide assistance (clause 2 9 ) .

4. The HRC will investigate acts or practices when requested to do so by the Minister or when a complaint is received (Clause 30(1)). Before commencing an investigation the HRC is'to inform the responsible-Commonwealth or State Minister that the investigation is to take place (clause 3 0 ( 2 ) ) .

5. The HRC may decide not to investigate an act or pgactice, or not to continue an investigation if:

8

it is satisfied that the act or practice is not i n

breach of any of the rights or freedoms in the AB?., it is of the opinion that the person or persons affected by the alleged breach do not want it investigated, the alleged breach occurred more than 12 months prior to the complaint, it is of the opinion that the complaint is frivolous, vexatious, misconceived or lacking in

substance, it is of the opinion that a more appropriate remedy is available to the complainant, or it is of the opinion that the complaint could be more effectively handled by another statutory authority

(clause 3 0 ( 3 ) ) . Where the HRC decides not to investigate a complaint, it must give notice in writing to the person who complained of that decision giving reasons (clause 3 0 ( 4 ) ) . If the decision to investigate a complaint is made, then the HRC i-2s

the power to undertake its inquiry in the manner it thinks fit (s.12 of the HRC Act as applied by clause 47). 6. Any endeavour by conciliation to effect a settlerce-.t a complaint is to proceed on the basis that a settlement s n o u l t

reflect respect for the rights and freedoms in the ABR (clailst 31). 7. The HRC will have the power to call witnesses and tc

ootain the information and tne documents it needs to investi; complaints thoroughly (clause 32). It will also have the F I

if it wishes to use it, to examine witnesses on oath or affirmation (clause 33). To assist it in its efforts to eff

- 19 -

s e t t l e m e n t of a c o m p l a i n t , t h e HRC w i l l have t h e power t o c a l l

and c o n d u c t a compul so ry c o n f e r e n c e ( c l a i i s e s 34 and 3 5 ) . The t i 2 C

w i l l n o t need t o d o t h i s i n e v e r y c a s e . S u c h c o n f e r e n c e s w i l l be

h e l d i n p r i v a t e ana p e r s o n s and c o r p o r a t i o n s will n o t , e x c e p t w i t h t h e c o n s e n t of t h e p e r s o n p ' r e s i d i n g a t t h e c o n f e r e n c e , be

r e p r e s e n t e d by l a w y e r s o r o t h e r a d v i s o r s .

8 . I n d i v i d u a l s Kay n o t r e f u s e , w i t h o u t l a w f u l excuse, a r e q u i r e m e n t of t h e HRC t o a t t e n d , p r o v i d e i n f o r r ( a t i o n o r p r o d u c e

a document ( c l a u s e 3 6 ) . I t i s no e x c u s e t h a t t h i s would

c o n t r a v e n e an A c t , l e a d t o s e l f i n c r i m i n a t i o n o r t h e d i s c l o s u r e

o f l e g a l a d v i c e , however , t h e i n f o r m a t i o n , document o r e v i d e n c e s o o b t a i n e d c a n n o t be used i n e v i d e n c e a g a i n s t t h e i n d i v i d u a l i n

c o u r t p r o c e e d i n g s o t h e r t h a n p r o c e e d i n g s f o r an o f f e n c e a g a i n s t

c l a u s e 38 ( f u r n i s h i n g f a l s e o r m i s l e a d i n g i n f o r n a t i o n ) ( c l a u s e

3 7 ( 3 ) ) . The A t t o r n e y - G e n e r a l o f t h e Commonwealth o r a S t a t e may

c e r t i f y t h a t d i s c l o s u r e o f c e r t a i n documen t s would b e c o n t r a r y t o

t h e p u b l i c i n t e r e s t ( c l a u s e 37(1) and ( 2 ) ) . 9 . I f i t a p p e a r s t o t h e H R C 2s a r e s u l t o f a n i n q u i r y t h a t

an a c t o r p r a c t i c e h a s b r e a c h e d t h e ABR.the p e r s o n who d i d t h e

a c t o r engaged i n t h e p r a c t i c e h a s t h e r i g h t t o a p p e a r b e f o r e t h e HRC w i t h l e g a l a d v i s o r s o r t o m a k e w r i t t e n s u b m i s s i o n s ( c l a u s e

4 0 ) . I f t h e HRC f i n d s a f t e r i n v e s t i g a t i o n t h a t a c o m p l a i n t i s n o t j u s t i f i e d i t s h a l l r e p o r t i t s f i n d i n g s and r e a s o n s t o t h e

p e r s o n who made t h e c o m p l a i n t . R e p o r t i n g S t a g e 1 0 . I f t!3e HRC f inc is t h a t an act o r p r a c t i c e h a s b r e a c h e d

t h e ABR i t w i l l rriake a r e p o r t s e t t i n g o u t i t s f i n d i n g s and r e a s o n s , and i n c l u d i n g any r ecommenda t ions t o p r e v e n t t h e

r e p e t i t i o n o f t h e a c t o r t h e c o n t i n u a n c e o f t h e p r a c t i c e . R e p o r t s w i l l be f u r n i s h e d t o t h e Cormonweal th o r S t a t e M i n i s t e r

r e s p o n s i b l e f o r t h e r e l e v a n t D e p a r t m e n t o r a u t h o r i t y , t h e

M i n i s t e r r e s p o n s i b l e f o r t h e HRC A c t a n d , a t t h e d i s c r e t i o n of

t h e H R C , t o t h e c o 3 p l a i n a n t ( c l a u s e 42(2)). However t h i s r e p o r t

i s n o t t o b e p u b l i s h e d a t t h i s s t a g e and i s i n t e n d e d t o n a v e only t h e l i m i t e d c i r c u l a t i o n r e f e r r e d t o a b o v e .

11. Depar tment or s t a t u t o r y a u t h o r i t y w h i c h i s g. iven s u c h E!

r e p o r t will have 6 0 d a y s t o t a k e a c t i o n t o overcome t h e b r e a c h o r

p r e v e n t i t s r e c u r r e n c e . I f a f t e r t h a t t i m e t h e D e p a r t m e n t o r

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statutory authority nas either not tai;en any action in relation to tne breach or has taKen action which tne HRC does not consider to be satisfactory, tne HRC shall then report again to the Minister responsible for tne HRC Act. Tnis second report will contain the first report, any reSponse provided by the Department or statutory authority, and the views of tne HRC on the actions taken by the Department or statutory authority and why they are not considered to be satisfactory (clause 42(3)). This second report if it relates to a Commonwealth Department or autnority will be tabled in Parliament within 15 sitting days of the expiration of the 60 day period (clause 43). If the report relates to a State or Northern Territory instrumentality the second report will not be tabled in the Parliament until 60 days after that report has been furnished to the Attorney-General of the State o r Northern Territory. When this second report is tabled it will have attached any statenent received from the relevant Attorney-General (clause 43 (2) and (3) ) . 12. Normal provisions are included establishing offences and penalties for failing to comply with the requirements of the - HRC providing misleading information to the HRC and for obstructing or hindering the HRC (clauses 36, 38 and 39). 13. When under the ABR Bill, the HRC examines legislation of the Commonwealth, a State or a local government council to ascertain whether it is in conflict with the ABR, this process will result in a report to the Minister responsible f o r the HRC Act. If as a result of its exapination the HRC conclildes that the legislation is in conflict with the ABR, it will include in

its report recommendations for the amendment of the legislation (clause 4 2 ( l ) ) . Such reports are to be tabled in Parliament (clause 4 3 ( 1 ) ) . Hobi2Ver, in relation to a report concluding that State or local government legislation is in conflict with tne ABR, the Minister responsible for the HRC Act will first forward it to the kttorney-General of the appropriate State or the Northern Territory. After a period of 60 days the Minister will table the report in Parlisxent together with any statement relating to the legislation received from the relevant Attorney-General (see clause 43(2) and ( 3 ) ) .

- 2 1 -

Deleaation 1 4 . The HRC will have power to delegate any of its f unc t ions to a member, a member of the staff assisting the Commission or a person in a prescribed class, and a member will have power to delegate a function to a prescribed person. (clause 4 4 )

( I .-

Arrangements with States 15. It is intended, where possible, to enter into co-operative arrangements with relevant agencies of the States and tne Northern Territory concerning the investigation of complaints under the -- ABR Bill. This will facilitate "one-stop shopping" by which persons concerned about breaches of human rights and discrimination in the States can have their complaints dealt with by the one agency. Clause 46 provides the machinery for entering these arrangements. Miscellaneous 16. Members and persons acting under the autnority of the HRC are constrained from disclosing private information gained in the performance of'the functions of the H R C , except in performance of a duty or function under the Act (clause 4 5 ) .

Persons performing these functions will be protected from civil actions (s.33 of the HRC Act as applied by clause 4 7 ( 2 ) ) .

17. The form of examinations or inquiries are to be at t h e

discretion of the H R C , and it may preserve the anonymity, if necessary, of a person who has rnacie'a complaint or furnished information etc. (s.12 of the HRC Act as applied by clause 07jl)).

(Relevant ABRB draft: 20 June 1984)