Note: Where available, the PDF/Word icon below is provided to view the complete and fully formatted document
 Download PDFDownload PDF 

Previous Fragment    Next Fragment

   30   MESSAGE FROM THE SENATE— Home Affairs Legislation Amendment (Miscellaneous Measures) Bill 2018

Message No. 493, 6 December 2018, from the Senate was reported returning the Home Affairs Legislation Amendment (Miscellaneous Measures) Bill 2018 with amendments.

 

 

 

Statement by the Speaker

The Speaker made the following statement:  

I wish to make a statement about the constitutional implications of the Senate’s amendments to this bill. This statement follows the receipt by me of advice from the Attorney-General and the Solicitor-General which I tabled just prior to the MPI.

In essence the advice to me is that the Senate’s amendments increase a ‘charge or burden on the people’ contrary to the requirements of section 53 of the Constitution. Further, I am advised that those amendments do not comply with the requirement of section 56 of the Constitution; namely that a proposed law for the appropriation of revenue or moneys shall not be passed unless the purpose of the appropriation has in the same session been recommended by a message of the Governor-General to the House in which the proposal originated. Thus the Senate’s amendments should have been made to the House as requested amendments.

Specifically the advice I have received is that the amendments, by creating a new Independent Health Advice Panel, would engage a standing appropriation in the Remuneration Tribunal Act 1973 in that a number of members of the Panel would hold public offices for which the Remuneration Tribunal would need to determine remuneration. The remuneration would be paid out of the Consolidated Revenue Fund which is appropriated for this purpose by a standing appropriation in the Remuneration Tribunal Act. The direct legal effect of the Senate’s amendments thus would be to dictate an increase in expenditure under that existing appropriation. In terms of the test that the House has used, as referred to in House of Representatives Practice - what are the probable, expected or intended practical consequences of the proposed amendment? - the advice to me is that section 53 is engaged by the proposed amendments.

In addition, as the Senate amendments would increase expenditure under a standing appropriation, the amendments would require a message to be reported from the Governor-General recommending an appropriation for them under section 56 of the Constitution.

The advice from the Attorney-General also referred to the importance of the House adhering to the requirements of sections 53 and 56 as otherwise, to quote the Attorney-General, ‘the Senate would be given the power to dictate the expenditure of public revenue, with potentially crippling effects on public finances’. This reflects the important constitutional principle of the financial initiative of the Crown which rests with the House of Representatives and executive government.

Issues to do with section 53 of the Constitution have been matters of difference between the Houses since the early years of Federation. As it is generally recognised that the provisions of sections 53 and 56 are matters for the Houses themselves and may not be determined by the courts, the point has been made that this provides some flexibility. In considering the application of the third paragraph of section 53 of the Constitution, the House Standing Committee on Legal and Constitutional Affairs stated:

The Committee considers that the Houses do, in some ways, have more flexibility in approaching the interpretation and application of the third paragraph of section 53 than if it were a strictly legal question.

In this respect, I note that the practice in relation to the creation of statutory offices and the reporting of messages under section 56 of the Constitution has at times varied. However, the Committee also noted that it did not follow that the Parliament should give the section any meaning it chose. The Attorney-General and the Solicitor-General have pointed to the direct link between an amendment proposed by the Senate and the engaging of additional expenditure under a standing appropriation in this particular case.

It is a matter for the House as to how it wishes to proceed with the Senate’s amendments. The matter for consideration is not so much one of the privileges and rights of the two Houses, as one of the observance of the requirements of the Constitution concerning the appropriation of revenue. I will leave it in the House’s hands as to how it wishes to proceed.

Mr Porter (Attorney-General) moved—That:

(1)        the House endorse the statement of the Speaker in relation to the constitutional questions raised by Message No. 493 transmitted by the Senate in relation to the Home Affairs Legislation Amendment (Miscellaneous Measures) Bill 2018; and

(2)        that consideration of the Senate’s amendments be made an order of the day for the next sitting.

Mr Burke moved, as an amendment—That all words after “That” be omitted with a view to substituting the following words:

“(1)  the House notes the statement of the Speaker in relation to the constitutional questions raised by message transmitted by the Senate in relation to the Home Affairs Legislation Amendment (Miscellaneous Measures) Bill 2018;

(2)    the House, having regard to the fact that the public interest demands the early enactment of the legislation, refrains from the determination of its constitutional rights in respect of the Senate message; and

(3)    the amendments be considered immediately.”

Debate ensued.

Closure

Mr Burke moved—That the question be now put.

Question—That the question be now put—put.

The House divided (the Speaker, Mr A. D. H. Smith, in the Chair)—

AYES, 75

Mr Albanese

Mr Danby

Dr M. J. Kelly

Dr Phelps

Dr Aly

Mr Dick

Mr Keogh

Ms Plibersek

Mr Bandt

Mr Dreyfus

Mr Khalil

Ms Rishworth

Ms Banks

Mrs Elliot

Ms C. F. King

Ms Rowland

Ms Bird

Ms Ellis

Ms M. M. H. King

Ms Ryan*

Mr Bowen

Mr Fitzgibbon

Ms Lamb

Ms Sharkie

Ms Brodtmann

Dr Freelander

Dr Leigh

Mr Shorten

Mr Burke

Mr Georganas

Ms McBride

Mr Snowdon

Ms Burney

Mr Giles

Ms McGowan

Ms Stanley

Mr M. C. Butler

Mr Gorman

Ms Macklin

Mr Swan

Ms T. M. Butler

Mr Gosling

Mr Marles

Ms Swanson

Mr Byrne

Mr Hart

Mr B. K. Mitchell

Ms Templeman

Dr Chalmers

Mr Hayes

Mr R. G. Mitchell

Mr Thistlethwaite

Mr Champion

Mr Hill

Mr Neumann

Ms Vamvakinou

Ms L. M. Chesters

Ms Husar

Mr O’Connor

Mr Watts

Mr Clare

Mr Husic

Ms O’Neil

Mr Wilkie

Ms Claydon

Mr Jones

Ms O’Toole

Mr J. H. Wilson

Ms Collins

Ms Kearney

Ms Owens

Mr Zappia

Mr Conroy

Ms Keay

Mr Perrett*

 

NOES, 74

Mr Abbott

Mr Fletcher

Ms M. L. Landry

Ms Price

Mr Alexander

Ms Flint

Mr C. A. S. Laundy

Mr Pyne

Mrs K. L. Andrews

Mr Frydenberg

Mr Leeser

Mr Ramsey*

Mr K. J. Andrews

Mr Gee

Ms Ley

Mr Robert

Ms Bishop

Dr Gillespie

Mr Littleproud

Mrs Sudmalis

Mr Broad

Mr Goodenough

Mr McCormack

Mr Sukkar

Mr Broadbent

Mr Hartsuyker

Dr McVeigh

Mr Taylor

Mr Buchholz

Mr Hastie

Mrs Marino

Mr Tehan

Mr D. J. Chester

Mr Hawke

Mr Morrison

Mr Tudge

Mr Christensen

Ms Henderson

Mr Morton

Mr van Manen

Mr Ciobo

Mr Hogan

Mr Ted O’Brien

Mr Vasta

Mr Coleman

Mr Howarth

Mr L. S. O’Brien

Mr Wallace

Mr Coulton

Mr Hunt

Mr O’Dowd

Mrs Wicks

Mr Crewther

Mr Irons

Ms O’Dwyer

Mr R. J. Wilson

Mr Drum*

Mr Joyce

Mr Pasin

Mr T. R. Wilson

Mr Dutton

Mr Katter

Mr Pitt

Mr Wood

Mr Entsch

Mr Keenan

Mr Porter

Mr Wyatt

Mr Evans

Mr C. Kelly

Mrs Prentice

Mr Zimmerman

Mr Falinski

Mr Laming

 

* Tellers

And so it was resolved in the affirmative.

And the question—That the amendment moved by Mr Burke be agreed to—being accordingly put—

The House divided (the Speaker, Mr A. D. H. Smith, in the Chair)—

AYES, 75

Mr Albanese

Mr Danby

Dr M. J. Kelly

Dr Phelps

Dr Aly

Mr Dick

Mr Keogh

Ms Plibersek

Mr Bandt

Mr Dreyfus

Mr Khalil

Ms Rishworth

Ms Banks

Mrs Elliot

Ms C. F. King

Ms Rowland

Ms Bird

Ms Ellis

Ms M. M. H. King

Ms Ryan*

Mr Bowen

Mr Fitzgibbon

Ms Lamb

Ms Sharkie

Ms Brodtmann

Dr Freelander

Dr Leigh

Mr Shorten

Mr Burke

Mr Georganas

Ms McBride

Mr Snowdon

Ms Burney

Mr Giles

Ms McGowan

Ms Stanley

Mr M. C. Butler

Mr Gorman

Ms Macklin

Mr Swan

Ms T. M. Butler

Mr Gosling

Mr Marles

Ms Swanson

Mr Byrne

Mr Hart

Mr B. K. Mitchell

Ms Templeman

Dr Chalmers

Mr Hayes

Mr R. G. Mitchell

Mr Thistlethwaite

Mr Champion

Mr Hill

Mr Neumann

Ms Vamvakinou

Ms L. M. Chesters

Ms Husar

Mr O’Connor

Mr Watts

Mr Clare

Mr Husic

Ms O’Neil

Mr Wilkie

Ms Claydon

Mr Jones

Ms O’Toole

Mr J. H. Wilson

Ms Collins

Ms Kearney

Ms Owens

Mr Zappia

Mr Conroy

Ms Keay

Mr Perrett*

 

 



 

NOES, 74

Mr Abbott

Mr Fletcher

Ms M. L. Landry

Ms Price

Mr Alexander

Ms Flint

Mr C. A. S. Laundy

Mr Pyne

Mrs K. L. Andrews

Mr Frydenberg

Mr Leeser

Mr Ramsey*

Mr K. J. Andrews

Mr Gee

Ms Ley

Mr Robert

Ms Bishop

Dr Gillespie

Mr Littleproud

Mrs Sudmalis

Mr Broad

Mr Goodenough

Mr McCormack

Mr Sukkar

Mr Broadbent

Mr Hartsuyker

Dr McVeigh

Mr Taylor

Mr Buchholz

Mr Hastie

Mrs Marino

Mr Tehan

Mr D. J. Chester

Mr Hawke

Mr Morrison

Mr Tudge

Mr Christensen

Ms Henderson

Mr Morton

Mr van Manen

Mr Ciobo

Mr Hogan

Mr Ted O’Brien

Mr Vasta

Mr Coleman

Mr Howarth

Mr L. S. O’Brien

Mr Wallace

Mr Coulton

Mr Hunt

Mr O’Dowd

Mrs Wicks

Mr Crewther

Mr Irons

Ms O’Dwyer

Mr R. J. Wilson

Mr Drum*

Mr Joyce

Mr Pasin

Mr T. R. Wilson

Mr Dutton

Mr Katter

Mr Pitt

Mr Wood

Mr Entsch

Mr Keenan

Mr Porter

Mr Wyatt

Mr Evans

Mr C. Kelly

Mrs Prentice

Mr Zimmerman

Mr Falinski

Mr Laming

 

* Tellers

And so it was resolved in the affirmative.

Question—That the motion, as amended, be agreed to—put.

The House divided (the Speaker, Mr A. D. H. Smith, in the Chair)—

AYES, 75

Mr Albanese

Mr Danby

Dr M. J. Kelly

Dr Phelps

Dr Aly

Mr Dick

Mr Keogh

Ms Plibersek

Mr Bandt

Mr Dreyfus

Mr Khalil

Ms Rishworth

Ms Banks

Mrs Elliot

Ms C. F. King

Ms Rowland

Ms Bird

Ms Ellis

Ms M. M. H. King

Ms Ryan*

Mr Bowen

Mr Fitzgibbon

Ms Lamb

Ms Sharkie

Ms Brodtmann

Dr Freelander

Dr Leigh

Mr Shorten

Mr Burke

Mr Georganas

Ms McBride

Mr Snowdon

Ms Burney

Mr Giles

Ms McGowan

Ms Stanley

Mr M. C. Butler

Mr Gorman

Ms Macklin

Mr Swan

Ms T. M. Butler

Mr Gosling

Mr Marles

Ms Swanson

Mr Byrne

Mr Hart

Mr B. K. Mitchell

Ms Templeman

Dr Chalmers

Mr Hayes

Mr R. G. Mitchell

Mr Thistlethwaite

Mr Champion

Mr Hill

Mr Neumann

Ms Vamvakinou

Ms L. M. Chesters

Ms Husar

Mr O’Connor

Mr Watts

Mr Clare

Mr Husic

Ms O’Neil

Mr Wilkie

Ms Claydon

Mr Jones

Ms O’Toole

Mr J. H. Wilson

Ms Collins

Ms Kearney

Ms Owens

Mr Zappia

Mr Conroy

Ms Keay

Mr Perrett*

 

 



 

NOES, 74

Mr Abbott

Mr Fletcher

Ms M. L. Landry

Ms Price

Mr Alexander

Ms Flint

Mr C. A. S. Laundy

Mr Pyne

Mrs K. L. Andrews

Mr Frydenberg

Mr Leeser

Mr Ramsey*

Mr K. J. Andrews

Mr Gee

Ms Ley

Mr Robert

Ms Bishop

Dr Gillespie

Mr Littleproud

Mrs Sudmalis

Mr Broad

Mr Goodenough

Mr McCormack

Mr Sukkar

Mr Broadbent

Mr Hartsuyker

Dr McVeigh

Mr Taylor

Mr Buchholz

Mr Hastie

Mrs Marino

Mr Tehan

Mr D. J. Chester

Mr Hawke

Mr Morrison

Mr Tudge

Mr Christensen

Ms Henderson

Mr Morton

Mr van Manen

Mr Ciobo

Mr Hogan

Mr Ted O’Brien

Mr Vasta

Mr Coleman

Mr Howarth

Mr L. S. O’Brien

Mr Wallace

Mr Coulton

Mr Hunt

Mr O’Dowd

Mrs Wicks

Mr Crewther

Mr Irons

Ms O’Dwyer

Mr R. J. Wilson

Mr Drum*

Mr Joyce

Mr Pasin

Mr T. R. Wilson

Mr Dutton

Mr Katter

Mr Pitt

Mr Wood

Mr Entsch

Mr Keenan

Mr Porter

Mr Wyatt

Mr Evans

Mr C. Kelly

Mrs Prentice

Mr Zimmerman

Mr Falinski

Mr Laming

 

* Tellers

And so it was resolved in the affirmative.

Mr Pyne (Leader of the House) moved—That the Senate amendments be disagreed to.

Mr Shorten (Leader of the Opposition) moved, as an amendment—That all words after “That” be omitted with a view to substituting the following words:

“the Senate amendments be agreed to with the amendments as set out in the schedule circulated to honourable Members.”

Debate ensued.

Closure

Mr Burke moved—That the question be now put.

Question—That the question be now put—put.

The House divided (the Speaker, Mr A. D. H. Smith, in the Chair)—

AYES, 75

Mr Albanese

Mr Danby

Dr M. J. Kelly

Dr Phelps

Dr Aly

Mr Dick

Mr Keogh

Ms Plibersek

Mr Bandt

Mr Dreyfus

Mr Khalil

Ms Rishworth

Ms Banks

Mrs Elliot

Ms C. F. King

Ms Rowland

Ms Bird

Ms Ellis

Ms M. M. H. King

Ms Ryan*

Mr Bowen

Mr Fitzgibbon

Ms Lamb

Ms Sharkie

Ms Brodtmann

Dr Freelander

Dr Leigh

Mr Shorten

Mr Burke

Mr Georganas

Ms McBride

Mr Snowdon

Ms Burney

Mr Giles

Ms McGowan

Ms Stanley

Mr M. C. Butler

Mr Gorman

Ms Macklin

Mr Swan

Ms T. M. Butler

Mr Gosling

Mr Marles

Ms Swanson

Mr Byrne

Mr Hart

Mr B. K. Mitchell

Ms Templeman

Dr Chalmers

Mr Hayes

Mr R. G. Mitchell

Mr Thistlethwaite

Mr Champion

Mr Hill

Mr Neumann

Ms Vamvakinou

Ms L. M. Chesters

Ms Husar

Mr O’Connor

Mr Watts

Mr Clare

Mr Husic

Ms O’Neil

Mr Wilkie

Ms Claydon

Mr Jones

Ms O’Toole

Mr J. H. Wilson

Ms Collins

Ms Kearney

Ms Owens

Mr Zappia

Mr Conroy

Ms Keay

Mr Perrett*

 

NOES, 74

Mr Abbott

Mr Fletcher

Ms M. L. Landry

Ms Price

Mr Alexander

Ms Flint

Mr C. A. S. Laundy

Mr Pyne

Mrs K. L. Andrews

Mr Frydenberg

Mr Leeser

Mr Ramsey*

Mr K. J. Andrews

Mr Gee

Ms Ley

Mr Robert

Ms Bishop

Dr Gillespie

Mr Littleproud

Mrs Sudmalis

Mr Broad

Mr Goodenough

Mr McCormack

Mr Sukkar

Mr Broadbent

Mr Hartsuyker

Dr McVeigh

Mr Taylor

Mr Buchholz

Mr Hastie

Mrs Marino

Mr Tehan

Mr D. J. Chester

Mr Hawke

Mr Morrison

Mr Tudge

Mr Christensen

Ms Henderson

Mr Morton

Mr van Manen

Mr Ciobo

Mr Hogan

Mr Ted O’Brien

Mr Vasta

Mr Coleman

Mr Howarth

Mr L. S. O’Brien

Mr Wallace

Mr Coulton

Mr Hunt

Mr O’Dowd

Mrs Wicks

Mr Crewther

Mr Irons

Ms O’Dwyer

Mr R. J. Wilson

Mr Drum*

Mr Joyce

Mr Pasin

Mr T. R. Wilson

Mr Dutton

Mr Katter

Mr Pitt

Mr Wood

Mr Entsch

Mr Keenan

Mr Porter

Mr Wyatt

Mr Evans

Mr C. Kelly

Mrs Prentice

Mr Zimmerman

Mr Falinski

Mr Laming

 

* Tellers

And so it was resolved in the affirmative.

And the question—That the amendment moved by Mr Shorten be agreed to—being accordingly put—

The House divided (the Speaker, Mr A. D. H. Smith, in the Chair)—

AYES, 75

Mr Albanese

Mr Danby

Dr M. J. Kelly

Dr Phelps

Dr Aly

Mr Dick

Mr Keogh

Ms Plibersek

Mr Bandt

Mr Dreyfus

Mr Khalil

Ms Rishworth

Ms Banks

Mrs Elliot

Ms C. F. King

Ms Rowland

Ms Bird

Ms Ellis

Ms M. M. H. King

Ms Ryan*

Mr Bowen

Mr Fitzgibbon

Ms Lamb

Ms Sharkie

Ms Brodtmann

Dr Freelander

Dr Leigh

Mr Shorten

Mr Burke

Mr Georganas

Ms McBride

Mr Snowdon

Ms Burney

Mr Giles

Ms McGowan

Ms Stanley

Mr M. C. Butler

Mr Gorman

Ms Macklin

Mr Swan

Ms T. M. Butler

Mr Gosling

Mr Marles

Ms Swanson

Mr Byrne

Mr Hart

Mr B. K. Mitchell

Ms Templeman

Dr Chalmers

Mr Hayes

Mr R. G. Mitchell

Mr Thistlethwaite

Mr Champion

Mr Hill

Mr Neumann

Ms Vamvakinou

Ms L. M. Chesters

Ms Husar

Mr O’Connor

Mr Watts

Mr Clare

Mr Husic

Ms O’Neil

Mr Wilkie

Ms Claydon

Mr Jones

Ms O’Toole

Mr J. H. Wilson

Ms Collins

Ms Kearney

Ms Owens

Mr Zappia

Mr Conroy

Ms Keay

Mr Perrett*

 

 



 

NOES, 74

Mr Abbott

Mr Fletcher

Ms M. L. Landry

Ms Price

Mr Alexander

Ms Flint

Mr C. A. S. Laundy

Mr Pyne

Mrs K. L. Andrews

Mr Frydenberg

Mr Leeser

Mr Ramsey*

Mr K. J. Andrews

Mr Gee

Ms Ley

Mr Robert

Ms Bishop

Dr Gillespie

Mr Littleproud

Mrs Sudmalis

Mr Broad

Mr Goodenough

Mr McCormack

Mr Sukkar

Mr Broadbent

Mr Hartsuyker

Dr McVeigh

Mr Taylor

Mr Buchholz

Mr Hastie

Mrs Marino

Mr Tehan

Mr D. J. Chester

Mr Hawke

Mr Morrison

Mr Tudge

Mr Christensen

Ms Henderson

Mr Morton

Mr van Manen

Mr Ciobo

Mr Hogan

Mr Ted O’Brien

Mr Vasta

Mr Coleman

Mr Howarth

Mr L. S. O’Brien

Mr Wallace

Mr Coulton

Mr Hunt

Mr O’Dowd

Mrs Wicks

Mr Crewther

Mr Irons

Ms O’Dwyer

Mr R. J. Wilson

Mr Drum*

Mr Joyce

Mr Pasin

Mr T. R. Wilson

Mr Dutton

Mr Katter

Mr Pitt

Mr Wood

Mr Entsch

Mr Keenan

Mr Porter

Mr Wyatt

Mr Evans

Mr C. Kelly

Mrs Prentice

Mr Zimmerman

Mr Falinski

Mr Laming

 

* Tellers

And so it was resolved in the affirmative.

Question—That the motion, as amended, be agreed to—put.

The House divided (the Speaker, Mr A. D. H. Smith, in the Chair)—

AYES, 75

Mr Albanese

Mr Danby

Dr M. J. Kelly

Dr Phelps

Dr Aly

Mr Dick

Mr Keogh

Ms Plibersek

Mr Bandt

Mr Dreyfus

Mr Khalil

Ms Rishworth

Ms Banks

Mrs Elliot

Ms C. F. King

Ms Rowland

Ms Bird

Ms Ellis

Ms M. M. H. King

Ms Ryan*

Mr Bowen

Mr Fitzgibbon

Ms Lamb

Ms Sharkie

Ms Brodtmann

Dr Freelander

Dr Leigh

Mr Shorten

Mr Burke

Mr Georganas

Ms McBride

Mr Snowdon

Ms Burney

Mr Giles

Ms McGowan

Ms Stanley

Mr M. C. Butler

Mr Gorman

Ms Macklin

Mr Swan

Ms T. M. Butler

Mr Gosling

Mr Marles

Ms Swanson

Mr Byrne

Mr Hart

Mr B. K. Mitchell

Ms Templeman

Dr Chalmers

Mr Hayes

Mr R. G. Mitchell

Mr Thistlethwaite

Mr Champion

Mr Hill

Mr Neumann

Ms Vamvakinou

Ms L. M. Chesters

Ms Husar

Mr O’Connor

Mr Watts

Mr Clare

Mr Husic

Ms O’Neil

Mr Wilkie

Ms Claydon

Mr Jones

Ms O’Toole

Mr J. H. Wilson

Ms Collins

Ms Kearney

Ms Owens

Mr Zappia

Mr Conroy

Ms Keay

Mr Perrett*

 

 



 

NOES, 74

Mr Abbott

Mr Fletcher

Ms M. L. Landry

Ms Price

Mr Alexander

Ms Flint

Mr C. A. S. Laundy

Mr Pyne

Mrs K. L. Andrews

Mr Frydenberg

Mr Leeser

Mr Ramsey*

Mr K. J. Andrews

Mr Gee

Ms Ley

Mr Robert

Ms Bishop

Dr Gillespie

Mr Littleproud

Mrs Sudmalis

Mr Broad

Mr Goodenough

Mr McCormack

Mr Sukkar

Mr Broadbent

Mr Hartsuyker

Dr McVeigh

Mr Taylor

Mr Buchholz

Mr Hastie

Mrs Marino

Mr Tehan

Mr D. J. Chester

Mr Hawke

Mr Morrison

Mr Tudge

Mr Christensen

Ms Henderson

Mr Morton

Mr van Manen

Mr Ciobo

Mr Hogan

Mr Ted O’Brien

Mr Vasta

Mr Coleman

Mr Howarth

Mr L. S. O’Brien

Mr Wallace

Mr Coulton

Mr Hunt

Mr O’Dowd

Mrs Wicks

Mr Crewther

Mr Irons

Ms O’Dwyer

Mr R. J. Wilson

Mr Drum*

Mr Joyce

Mr Pasin

Mr T. R. Wilson

Mr Dutton

Mr Katter

Mr Pitt

Mr Wood

Mr Entsch

Mr Keenan

Mr Porter

Mr Wyatt

Mr Evans

Mr C. Kelly

Mrs Prentice

Mr Zimmerman

Mr Falinski

Mr Laming

 

* Tellers

And so it was resolved in the affirmative.