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Australian Federal Integrity Commission Bill 2020

2019-2020

 

The Parliament of the

Commonwealth of Australia

 

HOUSE OF REPRESENTATIVES

 

 

 

 

Presented and read a first time

 

 

 

 

Australian Federal Integrity Commission Bill 2020

 

No.      , 2020

 

(Dr Haines)

 

 

 

A Bill for an Act to establish the Australian Federal Integrity Commission, and for related purposes

   

   

   



Contents

Part 1—Preliminary                                                                                                              1

1............ Short title............................................................................................. 1

2............ Commencement................................................................................... 1

3............ Simplified outline of this Act.............................................................. 2

4............ Objects of Act..................................................................................... 5

5............ Saving of powers, privileges and immunities...................................... 7

6............ Act binds the Crown........................................................................... 7

7............ Application of Act............................................................................... 7

8............ Definitions.......................................................................................... 7

9............ Meaning of corrupt conduct ............................................................. 21

10.......... Meaning of corruption issue ............................................................. 25

Part 2—The Australian Federal Integrity Commission                                26

Division 1—Establishment                                                                                        26

11.......... Establishment.................................................................................... 26

Division 2—Functions and powers of the Federal Integrity Commissioner and Commissioners             28

12.......... Definition of federal integrity commissioner functions ..................... 28

13.......... Definition of law enforcement integrity commissioner functions ...... 30

14.......... Definition of whistleblower protection commissioner functions ....... 30

15.......... Functions and powers of the Federal Integrity Commissioner.......... 32

16.......... Functions and powers of the Law Enforcement Integrity Commissioner 33

17.......... Functions and powers of the Whistleblower Protection Commissioner 33

18.......... Functions and powers of the Assistant Federal Integrity Commissioner for Research and Public Interest              34

19.......... Functions and powers of the Assistant Federal Integrity Commissioner for Assessment, Investigations and Inquiries.......................................................................................................... 34

20.......... Functions and powers of the Assistant Federal Integrity Commissioner for Education, Training and Prevention   34

Part 3—Corruption prevention, research and coordination                      36

Division 1—Promoting integrity in public administration and Australia              36

21.......... Role of the Federal Integrity Commissioner...................................... 36

22.......... Role of AFIC.................................................................................... 37

Division 2—Commonwealth integrity and anti-corruption plans        38

23.......... Preparation of integrity and anti-corruption plans............................. 38

24.......... Audit Committee to monitor plans.................................................... 38

25.......... Federal Integrity Commissioner to receive plans on request............. 39

26.......... Consideration of adequacy of plans.................................................. 39

Division 3—Corruption prevention inquiries                                                 41

27.......... Federal Integrity Commissioner may conduct inquiries.................... 41

28.......... Scope and powers of inquiries.......................................................... 41

29.......... Reports of inquiries........................................................................... 42

Division 4—Education, training and advice                                                    43

30.......... Agency heads to provide training...................................................... 43

31.......... Role of Federal Integrity Commissioner........................................... 43

Division 5—Research and intelligence                                                               44

32.......... Research functions............................................................................ 44

33.......... Research strategy—consultation and implementation........................ 44

34.......... Relationship between research and operations.................................. 45

Division 6—Commonwealth cooperation and coordination                   46

35.......... Principles of operation of Federal Integrity Commission.................. 46

36.......... Cooperation and coordination with other Commonwealth agencies.. 46

37.......... Commonwealth Integrity Coordination Committee........................... 47

38.......... Functions of the Commonwealth Integrity Coordination Committee 48

Division 7—National cooperation and coordination                                  50

39.......... Role of the Federal Integrity Commissioner...................................... 50

40.......... National Integrity and Anti-corruption Plan...................................... 51

41.......... Preparation of plan............................................................................ 52

42.......... Examination of plan.......................................................................... 53

43.......... National Integrity and Anti-Corruption Advisory Committee........... 53

44.......... Functions of the advisory committee................................................. 54

Part 4—Dealing with corruption issues                                                                   55

Division 1—Referring corruption issues to Federal Integrity Commissioner     55

45.......... Referral of corruption issues............................................................. 55

46.......... Referral under section 45 by person in custody................................ 56

47.......... Public officials must refer corruption issues..................................... 58

48.......... Federal Integrity Commissioner may enter into agreements etc. with head of Commonwealth agency    58

Division 2—How Federal Integrity Commissioner deals with corruption issues              60

Subdivision A—General                                                                                          60

49.......... How Federal Integrity Commissioner may deal with corruption issues 60

50.......... Alleged contraventions of the Commonwealth Parliamentary Standards Act 2020 61

51.......... Criteria for deciding how to deal with a corruption issue.................. 62

52.......... Dealing with multiple corruption issues............................................ 63

Subdivision B—Federal Integrity Commissioner dealing with referred corruption issues         63

53.......... Federal Integrity Commissioner must make a decision..................... 63

54.......... Advising person who refers corruption issue of decision about how to deal with corruption issue         66

55.......... Advising person to whom referred corruption issue relates of decision about how to deal with corruption issue    66

Subdivision C—Federal Integrity Commissioner dealing with corruption issues on own initiative          66

56.......... Federal Integrity Commissioner may deal with corruption issues on own initiative 66

57.......... Advising head of Commonwealth agency of decision to deal with corruption issue on own initiative     68

58.......... Advising person of decision to deal with corruption issue on own initiative            69

Subdivision D—Reconsidering how to deal with a corruption issue            69

59.......... Reconsidering how to deal with a corruption issue........................... 69

Division 3—Information sharing when decision made on how to deal with corruption issue     71

60.......... If Commonwealth agency to conduct, or continue conducting, investigation of corruption issue             71

61.......... If Commonwealth agency has already commenced investigating corruption issue   72

Part 5—Investigations and public inquiries by the Federal Integrity Commissioner        73

Division 1—Investigations                                                                                        73

62.......... Application of Division..................................................................... 73

63.......... Federal Integrity Commissioner to determine manner of conducting investigation   73

64.......... Information sharing for joint investigation........................................ 73

65.......... Opportunity to be heard.................................................................... 74

Division 2—Reporting in relation to investigations                                    76

Subdivision A—Reporting during investigation                                               76

66.......... Federal Integrity Commissioner may keep person who referred corruption issue informed of progress of investigation.......................................................................................................... 76

Subdivision B—Reporting at the end of investigation                                     76

67.......... Report on investigation..................................................................... 76

68.......... Federal Integrity Commissioner to give report to Minister................ 78

69.......... Advising person who referred corruption issue of outcome of the investigation      79

70.......... Advising person whose conduct is investigated of outcome of the investigation     79

71.......... Standalone reports for critical views or reputational risks................. 80

Division 3—Conducting a public inquiry                                                          82

72.......... Federal Integrity Commissioner may conduct public inquiry............ 82

73.......... Publicising inquiry............................................................................ 82

Division 4—Reporting in relation to public inquiries                                 83

74.......... Report on public inquiry................................................................... 83

75.......... Giving report to Minister.................................................................. 84

76.......... Standalone reports for critical views or reputational risks................. 85

Part 6—Federal Integrity Commissioner’s powers in conducting investigations and public inquiries 86

Division 1—Requiring people to give information or produce documents or things       86

Subdivision A—Requirement by Federal Integrity Commissioner              86

77.......... Notice to give information or to produce document or thing............. 86

78.......... Compliance with notice..................................................................... 87

79.......... Federal Integrity Commissioner may retain documents and things... 88

Subdivision B—Prohibitions against disclosing information about notices 88

80.......... Disclosure of notice may be prohibited............................................. 88

81.......... Offences of disclosure...................................................................... 90

Subdivision C—Offence and related provisions                                               93

82.......... Failure to comply with notice............................................................ 93

83.......... Legal practitioner not required to disclose privileged communications 94

84.......... Self-incrimination etc........................................................................ 95

85.......... Protection of person required to give information or produce documents or things 96

Division 2—Conducting hearings                                                                          98

Subdivision A—General provisions                                                                     98

86.......... Federal Integrity Commissioner may hold hearings.......................... 98

87.......... Federal Integrity Commissioner may summon person.................... 100

88.......... Federal Integrity Commissioner may take evidence outside Australia 102

Subdivision B—Procedure at hearing                                                               102

89.......... Who may be represented at a hearing.............................................. 102

90.......... Who may be present at a hearing..................................................... 102

Subdivision C—Taking evidence at hearing                                                    104

91.......... Evidence on oath or by affirmation................................................. 104

92.......... Examination and cross-examination of witnesses........................... 104

93.......... Person may request that particular evidence be given in private...... 105

94.......... Directions in relation to confidentiality............................................ 106

Subdivision D—Prohibitions against disclosing information about a summons            108

95.......... Disclosure of summons may be prohibited..................................... 108

96.......... Offences of disclosure.................................................................... 110

Subdivision E—Offences in relation to hearings                                            113

97.......... Offences.......................................................................................... 113

98.......... Contempt of AFIC.......................................................................... 114

99.......... Federal Court or Supreme Court to deal with contempt.................. 116

100........ Conduct of contempt proceedings................................................... 117

101........ Federal Integrity Commissioner may withdraw contempt application 117

102........ Double jeopardy.............................................................................. 117

103........ Legal professional privilege—answer to question........................... 118

104........ Legal professional privilege—documents or things........................ 118

105........ Offences relating to claims for legal professional privilege............. 119

106........ Self-incrimination etc...................................................................... 120

Subdivision F—Court orders for delivery of witness’s passport and witness’s arrest   122

107........ Federal Integrity Commissioner may apply for order that witness deliver passport 122

108........ Court orders.................................................................................... 123

109........ Applying for a warrant to arrest witness......................................... 125

110........ Warrant for arrest............................................................................ 125

111........ Powers of Judge in relation to person arrested................................ 127

Subdivision G—Miscellaneous                                                                            128

112........ Federal Integrity Commissioner may retain documents or things.... 128

113........ Person may apply for legal and financial assistance........................ 128

114........ Protection of Federal Integrity Commissioner etc........................... 130

115........ Protection of witnesses etc.............................................................. 130

Division 3—Search warrants                                                                                132

Subdivision A—Preliminary                                                                                132

116........ Application to things under the control of a person......................... 132

Subdivision B—Applying for a search warrant                                              132

117........ Authorised officer may apply for a search warrant......................... 132

Subdivision C—Issue of a search warrant                                                        134

118........ When search warrants may be issued.............................................. 134

119........ Content of warrants......................................................................... 136

120........ Application by telephone etc. and issue of warrant......................... 139

121........ The things authorised by a search warrant in relation to premises... 141

122........ The things authorised by a search warrant in relation to a person... 142

123........ Restrictions on personal searches.................................................... 143

124........ When warrant may be executed etc................................................. 144

Subdivision D—General provisions about executing a search warrant    144

125........ Announcement before entry............................................................ 144

126........ Availability of assistance and use of force in executing a warrant... 144

Subdivision E—Specific provisions about executing a warrant in relation to premises               145

127........ Application...................................................................................... 145

128........ Copy of warrant to be shown to occupier etc.................................. 145

129........ Occupier entitled to watch search.................................................... 146

130........ Specific powers available to person executing a warrant................. 146

131........ Use of equipment to examine or process things.............................. 146

132........ Use of electronic equipment at premises without expert assistance. 148

133........ Use of electronic equipment at premises with expert assistance...... 149

134........ Person with knowledge of a computer or a computer system to assist access etc.    151

135........ Accessing data held on other premises—notification to occupier of those premises                152

136........ Compensation for damage to electronic equipment......................... 152

137........ Copies of seized things to be provided............................................ 153

138........ Receipts of things seized under warrant.......................................... 154

Subdivision F—Specific provisions about executing a warrant in relation to a person                154

139........ Copy of warrant to be shown to person.......................................... 154

140........ Conduct of an ordinary search or a frisk search.............................. 154

Subdivision G—Offences                                                                                      154

141........ Making false statements in warrants............................................... 154

142........ Offence for stating incorrect names in telephone warrants.............. 155

143........ Offence for unauthorised form of warrant...................................... 155

144........ Offence for executing etc. an unauthorised form of warrant........... 155

145........ Offence for giving unexecuted form of warrant.............................. 156

Subdivision H—Miscellaneous                                                                            156

146........ Other laws about search, arrest etc. not affected.............................. 156

147........ Law relating to legal professional privilege not affected.................. 156

Division 4—Powers of arrest                                                                                157

148........ Authorised officers may exercise powers of arrest......................... 157

Division 5—Authorised officers                                                                           158

149........ Appointment of authorised officers................................................. 158

150........ Identity cards................................................................................... 158

Part 7—Dealing with evidence and information obtained in investigation or public inquiry      160

151........ Evidence of offence or liability to civil penalty................................ 160

152........ Evidence that could be used in confiscation proceedings................ 161

153........ Evidence of, or information suggesting, wrongful conviction......... 162

Part 8—Investigations by other Commonwealth agencies                         164

Division 1—Nominated contact for investigations by Commonwealth agencies               164

154........ Nominating contact for investigation............................................... 164

Division 2—Managing or overseeing investigations by Commonwealth agencies           165

155........ Managing an investigation.............................................................. 165

156........ Overseeing an investigation............................................................ 165

Division 3—Reporting                                                                                               166

Subdivision A—Reporting by Commonwealth agencies during investigations               166

157........ Federal Integrity Commissioner may request individual progress report  166

158........ Federal Integrity Commissioner may request periodic progress reports 166

Subdivision B—Reporting by Commonwealth agencies at end of investigations           167

159........ Final report on investigation............................................................ 167

160........ Federal Integrity Commissioner may comment on final report........ 168

161........ Advising person who referred corruption issue of outcome of the investigation      170

162........ Advising person whose conduct is investigated of outcome of the investigation     171

Division 4—Federal Integrity Commissioner to pass on information relevant to agency            172

163........ Federal Integrity Commissioner to pass on information relevant to agency investigation         172

Part 9—Whistleblower Protection                                                                            173

Division 1—Disclosures, information or requests                                      173

164........ Receipt of disclosures, information or requests............................... 173

165........ Person making disclosure or request under section 164 may elect to be kept informed            174

166........ Public officials must refer whistleblower protection issues............. 175

167........ Whistleblower Protection Commissioner may enter into agreements etc. with head of Commonwealth agency      175

168........ General information, advice, guidance and assistance..................... 176

Division 2—How Whistleblower Protection Commissioner deals with disclosures of wrongdoing and whistleblower protection issues                                                  179

Subdivision A—General                                                                                        179

169........ How Whistleblower Protection Commissioner may deal with disclosures of wrongdoing      179

170........ How Whistleblower Protection Commissioner may deal with whistleblower protection issues               180

171........ Criteria for deciding how to deal with a disclosure of wrongdoing or whistleblower protection issue     181

172........ Dealing with multiple whistleblower protection issues................... 182

Subdivision B—Whistleblower Protection Commissioner dealing with referred whistleblower protection issues                                                                                                        183

173........ Whistleblower Protection Commissioner must make a decision..... 183

174........ Advising person who raises whistleblower protection issue of decision about how to deal with issue    184

175........ Advising person to whom referred whistleblower protection issue relates of decision about how to deal with issue........................................................................................................ 186

Subdivision C—Whistleblower Protection Commissioner dealing with whistleblower protection issues on own initiative                                                                                       187

176........ Whistleblower Protection Commissioner may deal with whistleblower protection issues on own initiative            187

177........ Advising head of Commonwealth agency of decision to deal with whistleblower protection issue on own initiative........................................................................................................ 188

178........ Advising person of decision to deal with whistleblower protection issue on own initiative     189

Subdivision D—Reconsidering how to deal with a whistleblower protection issue         190

179........ Reconsidering how to deal with a whistleblower protection issue.. 190

Division 3—Information sharing when decision made on how to deal with whistleblower protection issue                                                                                                                     191

180........ If Commonwealth agency to conduct, or continue conducting, investigation of whistleblower protection issue      191

181........ If Commonwealth agency has already commenced investigating whistleblower protection issue            192

Division 4—Investigations and public inquiries by the Whistleblower Protection Commissioner           193

182........ Manner and powers of investigation............................................... 193

Division 5—Investigations by other Commonwealth agencies            194

183........ Dealing with, managing or overseeing investigations..................... 194

Division 6—Remedial functions and powers                                                 195

184........ Additional recommendations........................................................... 195

185........ Proceedings and applications.......................................................... 196

186........ Mediation and arbitration................................................................ 197

187........ Enforceable undertakings relating to contraventions of civil remedy provisions      198

Division 7—Special Account                                                                                  200

188........ Whistleblower Protection Special Account..................................... 200

189........ Credits to the Account..................................................................... 200

190........ Purposes of the Account................................................................. 200

Part 10—Administrative provisions relating to AFIC                                  202

Division 1—Federal Integrity Commissioner                                               202

191........ Appointment of Federal Integrity Commissioner............................ 202

192........ General terms and conditions of appointment................................. 203

193........ Other paid work.............................................................................. 203

194........ Remuneration.................................................................................. 203

195........ Leave of absence............................................................................. 204

196........ Resignation..................................................................................... 204

197........ Removal from office....................................................................... 204

198........ Acting appointments....................................................................... 205

199........ Disclosure of interests..................................................................... 206

Division 2—Law Enforcement Integrity Commissioner                         207

200........ Appointment etc. of Law Enforcement Integrity Commissioner..... 207

Division 3—Whistleblower Protection Commissioner                             208

201........ Appointment of Whistleblower Protection Commissioner.............. 208

202........ General terms and conditions of appointment................................. 209

203........ Other paid work.............................................................................. 209

204........ Remuneration.................................................................................. 209

205........ Leave of absence............................................................................. 210

206........ Resignation..................................................................................... 210

207........ Removal from office....................................................................... 210

208........ Acting appointments....................................................................... 211

209........ Disclosure of interests..................................................................... 212

Division 4—Assistant Federal Integrity Commissioners                        213

210........ Appointment of Assistant Federal Integrity Commissioners........... 213

211........ General terms and conditions of appointment................................. 214

212........ Other paid work.............................................................................. 215

213........ Remuneration.................................................................................. 215

214........ Leave of absence............................................................................. 215

215........ Resignation..................................................................................... 216

216........ Removal from office....................................................................... 216

217........ Acting appointments....................................................................... 217

218........ Disclosure of interests..................................................................... 217

Division 5—Chief Executive Officer                                                                 219

219........ CEO................................................................................................ 219

220........ Functions of the CEO..................................................................... 219

221........ Powers of the CEO......................................................................... 219

222........ Commission may give directions to CEO....................................... 219

223........ Appointment of CEO...................................................................... 220

224........ Appointment of acting CEO............................................................ 220

225........ Remuneration of the CEO............................................................... 221

226........ Leave of absence of the CEO.......................................................... 221

227........ Other paid work of the CEO........................................................... 222

228........ Resignation of the CEO.................................................................. 222

229........ Termination of appointment of the CEO......................................... 222

230........ Other terms and conditions of the CEO.......................................... 223

Division 6—Staff, consultants and delegations                                            224

231........ Staff................................................................................................ 224

232........ Consultants..................................................................................... 224

233........ Delegation—Federal Integrity Commissioner................................. 225

234........ Delegation—Whistleblower Protection Commissioner................... 225

235........ Delegation—CEO........................................................................... 226

Division 7—Public reporting                                                                                 227

236........ Annual report.................................................................................. 227

237........ Reports on investigations and public inquiries................................ 228

238........ Special reports................................................................................. 229

239........ Contents of annual or special report................................................ 230

240........ Public reporting—Whistleblower Protection Commissioner........... 231

Division 8—Confidentiality requirements                                                      232

241........ Confidentiality requirements for National Integrity Commission staff 232

242........ Exceptions to confidentiality requirements...................................... 233

243........ Disclosure by Federal Integrity Commissioner in public interest etc. 234

244........ Opportunity to be heard.................................................................. 235

245........ National Integrity Commission staff generally not compellable in court proceedings               236

246........ Confidentiality requirements—Whistleblower Protection Commissioner 237

Part 11—Parliamentary Joint Committee on the Australian Federal Integrity Commission      239

247........ Definitions...................................................................................... 239

248........ Parliamentary Joint Committee on the Australian Federal Integrity Commission     239

249........ Powers and proceedings of the committee...................................... 241

250........ Duties of the committee................................................................... 241

251........ Committee may approve or reject recommendation for appointment 244

252........ Disclosure to committee by Federal Integrity Commissioner.......... 246

253........ Parliamentary Joint Committee—Whistleblower Protection Commissioner             247

254........ Disclosure to committee by Law Enforcement Integrity Commissioner 248

255........ Disclosure to committee by Minister............................................... 249

256........ Ombudsman to brief committee about controlled operations........... 250

Part 12—Parliamentary Inspector of the Australian Federal Integrity Commission       251

Division 1—Establishment and functions and powers of the Parliamentary Inspector of the Australian Federal Integrity Commission                                                    251

257........ Parliamentary Inspector of the Australian Federal Integrity Commission 251

258........ Functions of the Parliamentary Inspector........................................ 251

259........ Matters arising from a conduct investigation................................... 252

260........ Report on conduct investigations conducted by Parliamentary Inspector 253

261........ Parliamentary Inspector cannot be required to disclose particular information         254

Division 2—Audits, investigations, reviews and reports                        255

262........ Process for conducting an audit, investigation or review................ 255

263........ Contents of reports on results of performance of functions............ 255

264........ Parliamentary Inspector may require information etc...................... 255

265........ Privilege against self-incrimination................................................. 255

Division 3—Administrative provisions relating to the Parliamentary Inspector              256

266........ Appointment of Parliamentary Inspector......................................... 256

267........ General terms and conditions of appointment................................. 257

268........ Other paid work.............................................................................. 257

269........ Remuneration.................................................................................. 257

270........ Leave of absence............................................................................. 258

271........ Resignation..................................................................................... 258

272........ Termination of appointment............................................................ 258

273........ Acting appointments....................................................................... 259

274........ Disclosure of interests..................................................................... 260

275........ Assistance to Parliamentary Inspector............................................. 260

Part 13—Miscellaneous                                                                                                   261

276........ Offence of victimisation.................................................................. 261

277........ Legal and financial assistance in relation to applications for administrative review  261

278........ Immunity from civil proceedings.................................................... 262

279........ Immunities from certain State and Territory laws............................ 263

280........ Miscellaneous—Whistleblower Protection Commissioner............. 263

281........ Review relating to the Law Enforcement Integrity Commissioner etc. 263

282........ Review relating to judicial integrity................................................. 264

283........ Review of operation of Act............................................................. 265

284........ Schedules........................................................................................ 266

285........ Regulations..................................................................................... 266

Schedule 1—Amendments                                                                                             268

Law Enforcement Integrity Commissioner Act 2006                                         268

Ombudsman Act 1976                                                                                              269

Public Interest Disclosure Act 2013                                                                     270

 



A Bill for an Act to establish the Australian Federal Integrity Commission, and for related purposes

The Parliament of Australia enacts: