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A Bill for an Act to protect the community from terrorism by providing for temporary exclusion orders, and for related purposes
Administered by: Home Affairs
For authoritative information on the progress of bills and on amendments proposed to them, please see the House of Representatives Votes and Proceedings, and the Journals of the Senate as available on the Parliament House website.
Registered 21 Feb 2019
Introduced HR 21 Feb 2019

2016‑2017‑2018‑2019

 

The Parliament of the

Commonwealth of Australia

 

HOUSE OF REPRESENTATIVES

 

 

 

 

Presented and read a first time

 

 

 

 

Counter‑Terrorism (Temporary Exclusion Orders) Bill 2019

 

No.      , 2019

 

(Home Affairs)

 

 

 

A Bill for an Act to protect the community from terrorism by providing for temporary exclusion orders, and for related purposes

   

  

  


Contents

Part 1—Preliminary                                                                                                             1

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

2............ Commencement................................................................................... 2

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

4............ Definitions.......................................................................................... 3

5............ Act extends to external Territories....................................................... 3

6............ Act extends to things outside Australia............................................... 3

7............ Act binds the Crown........................................................................... 3

Part 2—Temporary exclusion orders and return permits                            5

8............ Entering Australia if a temporary exclusion order is in force.............. 5

9............ Permitting use of a vessel or aircraft by person in relation to whom a temporary exclusion order is in force           5

10.......... Making a temporary exclusion order................................................... 6

11.......... Revoking a temporary exclusion order................................................ 7

12.......... Giving a return permit......................................................................... 8

13.......... Varying and revoking a return permit............................................... 12

14.......... Consequences for failing to comply with conditions of return permit 12

15.......... Permitting use of a vessel or aircraft by person in contravention of return permit conditions   12

16.......... Consequences for providing false information or documents........... 13

Part 3—Other matters                                                                                                       14

17.......... Exclusion of procedural fairness....................................................... 14

18.......... Interaction with Australian Passports Act 2005................................ 14

19.......... Rules................................................................................................. 14

 


A Bill for an Act to protect the community from terrorism by providing for temporary exclusion orders, and for related purposes

The Parliament of Australia enacts:

Part 1Preliminary

  

1  Short title

                   This Act is the Counter‑Terrorism (Temporary Exclusion Orders) Act 2019.

2  Commencement

             (1)  Each provision of this Act specified in column 1 of the table commences, or is taken to have commenced, in accordance with column 2 of the table. Any other statement in column 2 has effect according to its terms.

 

Commencement information

Column 1

Column 2

Column 3

Provisions

Commencement

Date/Details

1.  The whole of this Act

The day this Act receives the Royal Assent.

 

Note:          This table relates only to the provisions of this Act as originally enacted. It will not be amended to deal with any later amendments of this Act.

             (2)  Any information in column 3 of the table is not part of this Act. Information may be inserted in this column, or information in it may be edited, in any published version of this Act.

3  Simplified outline of this Act

The Minister may make an order (called a temporary exclusion order) that prevents a person from entering Australia for a specified period, which may be up to 2 years. An order cannot be made unless certain conditions are met, and it can be revoked.

If the person is being deported to Australia or makes an application, the Minister must give the person a permit (called a return permit) that allows the person to enter Australia. The Minister may give a person a permit if satisfied it is appropriate to do so. The permit may contain conditions, such as specifying the period within which and the way in which the person must enter Australia, and requiring the person to give notice of specified things, such as the person’s principal place of residence or place of employment while in Australia. Conditions cannot be imposed unless the Minister is satisfied of specified matters. Conditions can be imposed for a maximum period of 12 months.

A return permit can be varied or revoked.

It is an offence to fail to comply with any conditions contained in a return permit, and to give false or misleading information or documents in purported compliance with such conditions.

4  Definitions

                   In this Act:

Australian travel document has the meaning given by the Australian Passports Act 2005.

listed terrorist organisation has the meaning given by subsection 100.1(1) of the Criminal Code.

return permit means a permit given under subsection 12(1) or 12(2).

rules means the rules made under section 19.

temporary exclusion order means an order made under subsection 10(1).

terrorist act has the meaning given by section 100.1 of the Criminal Code.

5  Act extends to external Territories

                   This Act extends to every external Territory.

6  Act extends to things outside Australia

                   This Act extends to acts, omissions, matters and things outside Australia.

7  Act binds the Crown

             (1)  This Act binds the Crown in each of its capacities.

             (2)  However, this Act does not make the Crown liable to a pecuniary penalty or to be prosecuted for an offence.

Part 2Temporary exclusion orders and return permits

  

8  Entering Australia if a temporary exclusion order is in force

                   A person commits an offence if:

                     (a)  a temporary exclusion order is in force in relation to the person; and

                     (b)  the person enters Australia.

Penalty:  Imprisonment for 2 years.

9  Permitting use of a vessel or aircraft by person in relation to whom a temporary exclusion order is in force

             (1)  A person commits an offence if:

                     (a)  the person is:

                              (i)  an owner, charterer, lessee, operator, agent or master of a vessel; or

                             (ii)  an owner, charterer, lessee, operator or pilot in charge of an aircraft; and

                     (b)  the person permits the vessel or aircraft to be used to convey another person (the second person) to Australia; and

                     (c)  the person knows that a temporary exclusion order is in force in relation to the second person.

Penalty:  Imprisonment for 2 years.

             (2)  Subsection (1) does not apply if the second person is being deported or extradited to Australia.

Note:          A defendant bears an evidential burden in relation to the matter in this subsection (see subsection 13.3(3) of the Criminal Code).

             (3)  Section 15.1 of the Criminal Code (extended geographical jurisdiction—category A) applies to an offence against subsection (1).

10  Making a temporary exclusion order

             (1)  Subject to subsections (2) and (3), the Minister may make an order (a temporary exclusion order) under this subsection in relation to a person if:

                     (a)  the person is located outside Australia; and

                     (b)  the person is an Australian citizen; and

                     (c)  the person is at least 14 years of age; and

                     (d)  a return permit is not in force in relation to the person.

             (2)  The Minister must not make a temporary exclusion order in relation to a person unless either:

                     (a)  the Minister suspects on reasonable grounds that making the order would substantially assist in one or more of the following:

                              (i)  preventing a terrorist act;

                             (ii)  preventing training from being provided to, received from or participated in with a listed terrorist organisation;

                            (iii)  preventing the provision of support for, or the facilitation of, a terrorist act;

                            (iv)  preventing the provision of support or resources to an organisation that would help the organisation engage in an activity described in paragraph (a) of the definition of terrorist organisation in subsection 102.1(1) of the Criminal Code; or

                     (b)  the person has been assessed by the Australian Security Intelligence Organisation to be directly or indirectly a risk to security (within the meaning of the Australian Security Intelligence Organisation Act 1979) for reasons related to politically motivated violence (within the meaning of that Act).

             (3)  If the person is 14 to 17 years of age, the Minister must, before making a temporary exclusion order in relation to the person, have regard to:

                     (a)  the protection of the community as the paramount consideration; and

                     (b)  the best interests of the person as a primary consideration.

             (4)  If the Minister makes a temporary exclusion order, the order must:

                     (a)  be in writing; and

                     (b)  specify the name of the person to whom the order relates; and

                     (c)  specify the period during which the order is to be in force, which must not end more than 2 years after the day on which the order is made; and

                     (d)  if the person to whom the order relates has an Australian travel document—specify whether the person must surrender the document to a specified person or body; and

                     (e)  specify whether the person to whom the order relates is permitted to apply for an Australian travel document; and

                      (f)  specify whether the person to whom the order relates is permitted to obtain an Australian travel document; and

                     (g)  set out the effect of the following sections:

                              (i)  section 8 (offence to enter Australia if temporary exclusion order is in force);

                             (ii)  section 11 (revoking a temporary exclusion order);

                            (iii)  section 12 (return permits).

             (5)  Paragraph (4)(c) does not prevent the making of another temporary exclusion order in relation to the same person.

             (6)  As soon as practicable after a temporary exclusion order is made in relation to a person, the Minister must cause such steps to be taken as are, in the opinion of the Minister, reasonable and practicable, to bring to the attention of the person the content of the order.

             (7)  A temporary exclusion order is not a legislative instrument.

11  Revoking a temporary exclusion order

             (1)  The Minister may, on the Minister’s own initiative or on application by the person to whom the order relates, revoke a temporary exclusion order.

             (2)  As soon as practicable after revoking a temporary exclusion order under subsection (1), the Minister must cause such steps to be taken as are, in the opinion of the Minister, reasonable and practicable, to bring to the attention of the person the revocation of the order.

             (3)  A revocation of a temporary exclusion order under subsection (1) takes effect when the Minister revokes the order.

             (4)  A temporary exclusion order in relation to a person is taken to be revoked if a return permit is given to the person. The revocation takes effect immediately after the return permit is given.

             (5)  This section does not prevent the making of another temporary exclusion order in relation to the same person.

12  Giving a return permit

When a return permit must be given

             (1)  If a temporary exclusion order is in force in relation to a person, the Minister must give a permit (a return permit) under this subsection to the person if:

                     (a)  the person has applied to the Minister, in a form and manner specified by the rules for the purposes of this paragraph, for the permit; or

                     (b)  the person is to be, or is being, deported to Australia.

When a return permit may be given

             (2)  If a temporary exclusion order is in force in relation to a person, the Minister may give a permit (a return permit) under this subsection to the person if the Minister considers it is appropriate to do so.

Return permit may be subject to conditions

             (3)  Subject to subsection (4), the Minister may impose one or more conditions mentioned in subsection (5) or (6) on a return permit.

             (4)  If the person to whom the return permit relates is 14 to 17 years of age, the Minister must, before imposing a condition on the permit, have regard to:

                     (a)  the protection of the community as the paramount consideration; and

                     (b)  the best interests of the person as a primary consideration.

Pre‑entry conditions

             (5)  The conditions in this subsection are as follows:

                     (a)  that the person must not enter Australia during a specified period, which must not end more than 12 months after the permit is given to the person;

                     (b)  that the person must enter Australia within a specified period, which must not end more than 3 months after the permit is given to the person;

                     (c)  that the person must enter Australia on a specified date, which must not be later than 3 months after the permit is given to the person;

                     (d)  that the person enter Australia in a specified manner.

Post‑entry conditions

             (6)  The conditions in this subsection are as follows:

                     (a)  that the person notify a specified person or body of the person’s principal place of residence in Australia;

                     (b)  that the person notify a specified person or body of any change to the person’s principal place of residence in Australia within 24 hours of the change occurring;

                     (c)  that the person notify a specified person or body of the person’s place of employment in Australia;

                     (d)  that the person notify a specified person or body of any change to the person’s place of employment in Australia within 24 hours of the change occurring;

                     (e)  that the person notify a specified person or body of the person’s place of education in Australia;

                      (f)  that the person notify a specified person or body of any change to the person’s place of education in Australia within 24 hours of the change occurring;

                     (g)  that the person notify a specified person or body of any contact with specified individuals (whether within or outside Australia) within 24 hours of the contact occurring;

                     (h)  that the person notify a specified person or body, within a specified period, if the person intends to enter, or enters, a State or Territory that is not the State or Territory in which the person’s principal place of residence is located;

                      (i)  that the person notify a specified person or body, within a specified period, if the person intends to leave, or leaves, Australia;

                      (j)  that, if the person accesses or uses, or intends to access or use, specified forms of telecommunication or other technology in Australia, the person do either or both of the following within a specified period of the access or use, or intended access or use, occurring:

                              (i)  notify a specified person or body of the use or access, or intended use or access;

                             (ii)  provide a specified person or body with sufficient information to enable the specific telecommunications service, account or device to be identified;

                     (k)  that the person notify a specified person or body, within a specified period, if the person intends to apply for an Australian travel document;

                      (l)  if the person has an Australian travel document—that the person must surrender the document to a specified person or body;

                    (m)  that the person is not permitted to apply for an Australian travel document;

                     (n)  that the person is not permitted to obtain an Australian travel document.

             (7)  If a condition is imposed that requires the person to notify a specified person or body of a particular matter, the return permit may specify either or both of the following:

                     (a)  the manner in which the person or body is to be notified;

                     (b)  any documents or information that must be provided to the person or body to substantiate the relevant matter.

Test for imposing conditions

             (8)  One or more conditions mentioned in subsection (5) or (6) must not be imposed on a return permit in relation to a person unless the Minister is satisfied that the imposition of the condition or (if more than one condition is imposed) the conditions taken together are reasonably necessary, and reasonably appropriate and adapted, for the purpose of one or more of the following:

                     (a)  preventing a terrorist act;

                     (b)  preventing training from being provided to, received from or participated in with a listed terrorist organisation;

                     (c)  preventing the provision of support for, or the facilitation of, a terrorist act;

                     (d)  preventing the provision of support or resources to an organisation that would help the organisation engage in an activity described in paragraph (a) of the definition of terrorist organisation in subsection 102.1(1) of the Criminal Code.

Form and contents of permit

             (9)  A return permit must:

                     (a)  be in writing; and

                     (b)  specify the name of the person to whom the permit relates; and

                     (c)  specify the period during which the permit is to be in force, which must not end more than 12 months after the person enters Australia; and

                     (d)  specify the conditions (if any) imposed on the permit; and

                     (e)  if one or more conditions are imposed on the permit—specify, for each condition, the period during which the condition is in force, which must not end after the permit ceases to be in force; and

                      (f)  set out the effect of the following sections:

                              (i)  section 13 (varying and revoking a return permit);

                             (ii)  section 14 (offence for failing to comply with conditions of permit);

                            (iii)  section 16 (offence for providing false information or documents).

Return permit to be served personally

           (10)  The Minister must cause a copy of the return permit to be served personally on the person to whom it relates.

13  Varying and revoking a return permit

             (1)  The Minister may, on the Minister’s own initiative or on application by the person to whom the return permit relates, vary or revoke a return permit.

             (2)  As soon as practicable after varying or revoking a return permit, the Minister must cause such steps to be taken as are, in the opinion of the Minister, reasonable and practicable, to bring to the attention of the person the variation or revocation of the permit.

             (3)  A variation or revocation of a return permit takes effect when the Minister varies or revokes the permit.

14  Consequences for failing to comply with conditions of return permit

             (1)  A person commits an offence if:

                     (a)  a return permit is in force in relation to the person; and

                     (b)  a condition mentioned in subsection 12(5) or (6) is imposed on the return permit; and

                     (c)  the person fails to comply with the condition.

Penalty:  Imprisonment for 2 years.

             (2)  Section 15.2 of the Criminal Code (extended geographical jurisdiction—category B) applies to an offence against this section.

15  Permitting use of a vessel or aircraft by person in contravention of return permit conditions

             (1)  A person commits an offence if:

                     (a)  the person is:

                              (i)  an owner, charterer, lessee, operator, agent or master of a vessel; or

                             (ii)  an owner, charterer, lessee, operator or pilot in charge of an aircraft; and

                     (b)  the person permits the vessel or aircraft to be used to convey another person (the second person) to Australia; and

                     (c)  the person does so knowing that the second person is entering Australia in contravention of a condition of a return permit that is in force in relation to the second person.

Penalty:  Imprisonment for 2 years.

             (2)  Subsection (1) does not apply if the second person is being deported or extradited to Australia.

Note:          A defendant bears an evidential burden in relation to the matter in this subsection (see subsection 13.3(3) of the Criminal Code).

             (3)  Section 15.1 of the Criminal Code (extended geographical jurisdiction—category A) applies to an offence against subsection (1).

16  Consequences for providing false information or documents

             (1)  A person commits an offence if:

                     (a)  the person gives information or produces a document to a person or body; and

                     (b)  the person does so in response to a condition imposed on a return permit given to the person; and

                     (c)  the person does so knowing that the information or document is false or misleading.

Penalty:  Imprisonment for 2 years.

             (2)  Subsection (1) does not apply if the information or document is not false or misleading in a material particular.

Note:          A defendant bears an evidential burden in relation to the matter in this subsection (see subsection 13.3(3) of the Criminal Code).

Part 3Other matters

  

17  Exclusion of procedural fairness

                   The Minister is not required to observe any requirements of procedural fairness in exercising a power under this Act.

18  Interaction with Australian Passports Act 2005

             (1)  If a temporary exclusion order specifies one or more of the following:

                     (a)  that the person must surrender an Australian travel document to a specified person or body;

                     (b)  that the person is not permitted to apply for an Australian travel document;

                     (c)  that the person is not permitted to obtain an Australian travel document;

the person is taken, for the purposes of section 12 of the Australian Passports Act 2005, to be prevented from travelling internationally.

             (2)  If a return permit specifies a condition mentioned in paragraph 12(6)(l), (m) or (n), the person is taken, for the purposes of section 12 of the Australian Passports Act 2005, to be prevented from travelling internationally.

             (3)  This section is enacted for the avoidance of doubt.

19  Rules

             (1)  The Minister may, by legislative instrument, make rules prescribing matters:

                     (a)  required or permitted by this Act to be prescribed by the rules; or

                     (b)  necessary or convenient to be prescribed for carrying out or giving effect to this Act.

             (2)  To avoid doubt, the rules may not do the following:

                     (a)  create an offence or civil penalty;

                     (b)  provide powers of:

                              (i)  arrest or detention; or

                             (ii)  entry, search or seizure;

                     (c)  impose a tax;

                     (d)  set an amount to be appropriated from the Consolidated Revenue Fund under an appropriation in this Act;

                     (e)  directly amend the text of this Act.