Atiorney-General

SimonCorbellMLA

ATIORNEY-GENERAL

MINISTERFORPOLICEANDEMERGENCY SERVICES

MINISTERFORTHEENVIRONMENTANDSUSTAINABLEDEVELOPMENT

MEMBERFORMOLONGLO

TheHonAnthonyWhealyQC Chair

COAGCounter-TerrorismReviewCommittee

SecurityLawBranch

3-5NationalCircuit

BARTON ACT 2600

DearMrWhealy

ThankyouforprovidingtheACTGovernmentanopportunitytomakeasubmissiontothe

CouncilofAustralianGovernments'(COAG)Reviewof Counter-TerrorismLegislation.

Asyoumaybeaware,theACTwillhaveanelectionon20October2012andconsequently, theACTGovernmentwilloperateundercaretakerconventionsfrom14September2012.

Consequently,I writetoprovideyouwithananalysisoftheapproachthattheACThastaken withcounter-terrorism lawstodate.OfparticularimportanceistheACTGovernment's decisiontodepartfromtheapproachesadoptedbytheStatesandtheNorthernTerritory.The ACTGovernmentchosetogiveeffecttoimportantfundamentallegalconceptsandhuman rightswiththeinclusionofprotectionsandsafeguards in itscounter-terrorism law. Iattachto thisletterananalysisontheACTapproachtocounter-terrorismlaws(atAttachment1).

Reviewof theTerrorism(ExtraordinaryTemporaryPowers)Act2006

Whenenacted,theTerrorism(ExtraordinaryTemporaryPowers)Act2006(TETPA),

section100calledonmeasAttorney-Generaltoreviewitsoperationandeffectivenessafterit hadbeeninoperationfor3years,andtopresentareportofthereviewtotheACT's LegislativeAssemblybeforetheendoftheTETPA'sfourthyearofoperation.

The'ReviewoftheTerrorism(ExtraordinaryTemporaryPowers)Act2006'waspresentedto theLegislativeAssemblyon16November2010.AcopyofthereviewisatAttachment2.

Thereviewconsideredthecounter-terrorismlegislativereviewsthathadbeenconductedby Commonwealth,StateandTerritoryjurisdictions,thesecurityenvironmentandthe complementaryroleoftheCommonwealthandStateandTerritorycounter-terrorism legislativeschemes.

Thereviewmade8recommendations, with6ofthoserecommendationsrelatingto amendmentsto theTETPA. TheseamendmentsweregiveneffecttointheTerrorism (ExtraordinaryTemporary Powers)AmendmentAct2011.

ACTLEGISLATIVE ASSEMBLY

London Circuit,Canberra ACT 2601 GPO Box 1020,Canberra ACT 2601

Phone (02) 6205 0000 Fax (02) 6205 0535 Email

Terrorism (ExtraordinaryTemporaryPowers)AmendmentAct2011

TheTerrorism(ExtraordinaryTemporaryPowers)AmendmentAct2011(theAmendment

Act)waspassedbytheLegislativeAssemblyon18October2011.

TheAmendmentActextendedtheoperationoftheTETPAto2016,requirestheGovernment toconductasecondreviewoftheTETPAandmadeanumberofamendmentstoensurethat therightsandresponsibilities thattheTETPAimposeswereclear..

TheseamendmentsweremadetoimprovetheoperationoftheTETPAandtoprovidepolice withadditionalcareconsiderationsifachildisbeingreleasedfrompreventativedetention, clarifiedtheinformationobligationsofpoliceundersection78oftheTETPAandmadean amendmenttoincludeanotethatstatesthatapersonmustbeimmediatelyreleasedfrom preventativedetentioniftheSupremeCourthassetasideapreventativedetentionorder.

IhaveattachedtheAmendmentActandtheExplanatoryStatementatAttachment3.The ExplanatoryStatementcontainsadetailedhumanrightsanalysis,whichprimarilyconsiders theneedforthecontinuationoftheTETPAgiventhesecurityenvironmentasitstoodin

2011andtheACT'sobligationsundertheHRAct.

Itrustthatthisinformationisofassistancetoyou.Shouldyourequireanyfurther information,pleasecontactMsNikkiBenschoftheLegislationandPolicyBranchinmy .

Attorney-General

13 September2012

ACTApproachtoCounter-TerrorismLegislation

1. Terrorism(ExtraordinaryTemporaryPowers)Act2006

TheACT'sTerrorism(ExtraordinaryTemporaryPowers)Act2006(TETPA)wasdeveloped togiveeffecttotheSeptember2005COAGagreementthatjurisdictionswouldenactclearlawstostrengthenAustralia's legislativeresponsetoterrorism.TheACT'sTETPA commencedon19November2006.

TheobjectiveoftheTETPAistoprovidelawenforcementagencieswithappropriatelegal· powerstorespondwherethereisevidencethataterroristactisimminent,orwhereanacthas occurred.TheTETPAprovidesthesepowerstolawenforcementagenciesintwoways.

First,parttwooftheTETPAprovidesforpreventativedetentionpowers.Thesepowersallow policeofficerstobringanapplicationtotheACTSupremeCourtforapreventativedetention order. Apreventativedetentionorderallowsapersontobetakenintocustodyanddetained forupto14days.

Parttwoalsoprovidesproceduraland representationalrightsforpeoplewhoaresubjectto an applicationforapreventativedetention orprohibitivecontactorder. Section48ofthe TETPArequiresthatapersonwhois takenintocustody,ordetailed,istreatedwithhumanity andrespectforhumandignityandisnotsubjectedtocruel,inhumanordegradingtreatment.

Second,part3.providespolicewithadditionalinvestigativepowers.Thesepowers are describedas'authorisations'andaredividedintotwocategories:

•aninvestigativeauthorisation;or

•apreventativeauthorisation;

TheTETPAprovidesthattheseauthorisationsmustbemadebyeithertheMagistratesCourt ortheSupremeCourt.

An investigativeauthorisationwillbemadeundersection73oftheTETPAifacourtis satisfiedonreasonablegroundsthataterroristacthashappenedwithinthelast28days,is happening,orwillhappensometimewithinthenext14daysandtheauthorisationwill substantiallyassistinapprehendingapersonresponsiblefortheterroristact,investigatingthe terroristactorreducingtheimpactof the terroristact.

Apreventativeauthorisationwillbemadeundersection66oftheTETPAifthecourtis satisfiedonreasonablegroundsthata terrorist actishappeningorwillhappeninthe following14daysandtheauthorisationwillassistinpreventingorreducingtheimpactof the terroristact.

1·

Bothinvestigativeandpreventativeauthorisationsallowpoliceofficerstorequirepersonal details,tosearchpeople,tosearch vehicles,tomovevehicles,toenterandsearchpremises,to cordonatargetareaandtoseizethingstheofficersuspectsonreasonablegroundsmaybe used,ormayprovideevidenceof,aterroristactorseriousoffence.

2. HumanRightsAct2004

FollowingtheSeptember2005COAGagreement,the ACTGovernmentcommittedto addresstheinteractionofanycounter-terrorismlegislativeresponsewiththeACT'sHuman Rights Act 2004 (theHumanRightsAct) ina robustandtransparentmanner.

InadditiontotherecognitionbyCOAGthatanynewlawswouldonlybeimplementedwhere necessary,containappropriatesafeguardsagainstabuse,bebasedonevidence,andbe proportionate,theACTGovernmentdeterminedthattheparamountconsiderationswereour humanrightsobligationsand thefundamentalprinciplesofjustice(theruleoflaw, proportionality,respectforlegalprocessandtheseparationofpowers).

FollowingtheCommonwealthGovernmentsinitiallegislativeproposal,theAnti-Terrorism Bill2005, the ACTGovernmentsoughtspecialisthumanrightsadviceontheBillandthe effectontheACT'sobligationsundertheHRActintheeventtheCommonwealth approach wasadoptedbytheACT. ThisadvicewascompletedbyMr LexLasryQC(nowJustice Lasry)andMsKateEastman.ThisadviceisprovidedatAttachmentA.

AsaconsequenceofthisassessmentoftheAnti-TerrorismBill2005,theACTGovernment proposedtheTerrorism(ExtraordinaryTemporaryPowers)Bill2005,whichdeparted significantlyfromtheAnti-TerrorismBill2005.TheACTLegislativeAssemblyStanding CommitteeonLegalAffairsReportontheTETPA1notedthatthereweremanyfeaturesof theACTlegislationthatdistinguisheditfromotherjurisdictions. Thesefeaturesincluded:

•thepreconditionsthatmustbesatisfiedbeforeapreventativedetentionordercanbe approved;

•thecentralroleoftheACTSupremeCourt;

•theInformationthatmustbe giventopeoplewhoarepreventativelydetained;

•theavailabilityofcompensationintheeventofapreventativeorderthatshouldnot havebeenmadeortheexerciseofaspecialauthorisationwhereapersonsuffersloss orexpense;and

•thegeneralcompliancewithinternationalhumanrightsstandards.

TheHumanRightsAct,section37requiresthepreparationofawrittencompatibility statementforpresentationintheLegislativeAssembly. IndeterminingwhethertheTETPA wascompatiblewiththeHumanRightsAct,theACTGovernmentobtainedfurtherlegal

1StandingCommitteeReport onLegalAffairs,RepmionTerrorism(ExtraordinaryTemporaryPowers)Bill

2005-ExposureDraft,February2006

advice. ThisadvicewaspreparedbyMsKateEastmananddeterminedthattheTETPAwas compatiblewithHRAct. ThisadviceisincludedatAttachmentB.

Thepreamble totheTETPArecognisesthecommitmentoftheACTGovernmenttothedual goalsofprotectingtheACTcommunityfromterrorismactivityandrespectingandpromoting theInternationalCovenantonCivilandPoliticalRightsasrecognised in theHumanRightsAct.

Asaresultoftheimportanceplacedonthesefundamentalobligationsandprinciples,the TETPAdiffersinanumberofwaysfromthelegislationenactedinsomeStateandTerritory jurisdictions.Thesedifferencesincludethefollowingfeatures:

2.1Judicial reviewandoversight

Withregardtothepreventativedetentionpowers,thepowertomakebothinterimandfinal preventativedetentionandprohibitedcontactorderswasconferredontheACTSupreme Court.Thisensuresjudicialreviewandoversightofprocesses. Thisprovidesforprocedural fairnessbyallowingtherespondentto callwitnesses,producematerialandmake submissions.

Undersection31 of theTETPA,apersonwhoisdetainedunderapreventativedetention orderisabletoseekareviewofthepreventativedetentionorderatanytime. Unlikesome otherjurisdictions,theACTGovernmentdeterminedthatthisrightshouldnotbe limitedto requireapersonwhoissubjecttoapreventativedetentionordertosatisfyanygroundsprior tobeinggrantedareview.

TheTETPAalsoprovidesthatallinvestigativeandpreventativeauthorisationsaremadeto theMagistratesorSupremeCourts.

2.2Preventativedetentionorders-leastrestrictiveoption

The TETPA includessafeguardstoensurethatpreventativedetentionordersareonly availableiftheyaretheleastrestrictivewayofpreventingaterroristact.

Section16(b) (ii) (applyingforpreventativedetentionorder)providesthattheseniorpolice officerwhoisconsideringmakinganapplicationforpreventativedetentionmustbesatisfied, onreasonablegrounds,thatdetainingthepersonunderapreventativedetentionorderisthe leastrestrictivewayofpreventingthe terroristact. Additionally,section18(4)(c)(making preventativedetentionorder)providesthattheSupremeCourtmustbesatisfied,onreasonablegrounds,thatdetainingthepersonis theleastrestrictivewayofpreventingthe terroristact.

2.3Prohibitionontheadmissibilityofevidenceobtainedfromtorture

Section96oftheTETPAprovidesthatevidenceobtained,directlyorindirectly,fromtorture

isinadmissible.Thesectionappliesregardlessofwhetherthetorturewascarriedoutinside oroutsidetheACT.

2.4Durationofinterimpreventativedetentionorders

Section21(2)oftheTETPAprovidesthattheendtimeforaninterimpreventativedetention ordermustbenolaterthan24hoursafterthepersonisfirstdetainedundertheorder. This

24-hourdurationis shorterthansomeotherAustralianjurisdictions,whoseinterim preventativedetentionordersgenerallyextendfor48hours.

A24-hourperiodisanappropriatebalancebetweentheneedtourgentlydetainapersonand thatperson'srighttobeheardinrelationtothatdetention. Afurtherconsiderationwasthat inajurisdictionthesizeoftheACT,24hoursisadequatetimetopermitarrangementstobe madetoallowtheSupremeCourttoconsidermakingfinalorders.

2.5Prohibitiononrollingwarrantsandquestioningofdetainees

TheTETPAdoesnotallowformultiplepreventativedetentionorders. Section12ofthe TETPAdetailstheserestrictions. Forexample,section 12 (1) ensuresthatwhereapersonis detainedunderapreventativedetentionorder,andthatorderwasmadetoassistwiththe preventionofaterroristacthappeningwithinaparticularperiod,thenasubsequentorder cannotbeappliedfor,ormade,forthepersontopreventthesameterroristactastheoriginal preventativedetentionorder.

However,section26oftheTETPAallowstheSupremeCourttoextend,orfurtherextend, theperiodforwhichapreventativedetentionorderisinforceifsatisfiedonreasonable groundsthattheextensionisreasonablynecessaryforthepurposeforwhichtheorderis made.

Section26(2)providesthattheperiodforwhichthepreventativedetentionorderisextended mustbestatedinthesubsequentorderoftheSupremeCourt. Thisperiodmustend:

•nolaterthan7daysafterthepersonisfirstdetainedundertheorderasextended,or furtherextended;and

•nolaterthan14daysafterthepersonisfirsttakenintocustodyanddetained,or detainedunderanypreventativedetentionorder,orcorrespondingpreventative detentionorder,forthesameterroristact.

2.6Limitationsonthedurationofpreventativedetentionorders

Section21(3)oftheTETPAstatesthattheendtimeforapreventativedetentionordermust be:

•nolaterthan7daysafterthepersonisfirstdetainedundertheorder;and

•nolaterthan14daysafterthepersonisfirsttakenintocustodyanddetained,or detainedunderanypreventativedetentionorder,orcorrespondingpreventative detentionordermadeonthesamebasisforthesameterroristact.

2.7Compensation

Section31(5)oftheTETPAallowstheSupremeCourttoordertheACTGovernmenttopay compensation toapersonifthecourtconsidersthat,becauseoffactsandcircumstancesthat werenotbeforethecourtwhen thepreventativedetentionorderwasmade,extendedorlast extended,theordershouldnothavebeenmade.

Section88oftheTETPAallowsapersontoseekcompensationfollowingtheexerciseofa specialauthorisationifthepersonsufferslossorexpensebecauseoftheexercise,or purportedexerciseofaspecialauthorisation.

2.8Presumptionofconfidentiallegalcommunications

DuringthedevelopmentoftheTETPA,theACTGovernmentwasconcernedthatthe proposedBillsofotherjurisdictionsprovidedthatcontactandcommunicationwitha preventativedetaineeslawyermustonlytakeplaceifconductedinsuchawaythatthe contact,andthecontactandmeaningofthecommunication,couldbeeffectivelymonitored byapoliceofficer.

TheACTGovernmentdeterminedthattheapproachproposedinotherjurisdictionswasin directconflictwithwell-establishedjurisprudenceanddetainees'righttoafairtrial,where subsequentchargesarelaid. Humanrightsstandardsrequirethatdetaineesshouldbeableto consultalawyerassoonasisreasonablypracticable,privatelyandatanytime.

ClearandunambiguoussafeguardsareincludedintheTETPAtoprotectdetainees’rightto consultalawyer. Section52(1)providesthatapersonwhoisdetainedunderapreventative detentionorderisentitledtocontactalawyerprivatelyandatanytimeforthepurposesof:

•obtainingadvicefromalawyerinrelationtoapreventativedetentionandaprohibited contactorder;

•arrangingforalawyertoactforthepersoninrelationtoapreventativedetentionora

prohibitedcontactorder;

•arrangingforalawyertoactforthepersoninrelationtoanyotherproceedingfora remedyinrelationtoapreventativedetentionorder;

•arrangingalawyertoactforthepersoninrelationtoacomplainttotheombudsman oranyotherentityinrelationtothepreventativedetentionorder;

Section52(2)providesthattheformofcontactthatthedetainedpersonmayhavewitha lawyerisinpersonandby phone,faxoremail. ·

Section56providesthatthecontactbetweenapersondetainedunderpreventativedetention andtheirlawyermustnotbe monitoredunlessaseniorpoliceofficer(theChiefPolice

OfficeroranotherofficeroforabovetherankofSuperintendent)directsthatcontactbe monitored. Adirectionmaybemadeiftheseniorpoliceofficerbelieves,onreasonablegrounds,that 1 or moreoftheconsequencesundersection56(2)mayhappenifthecontactis notmonitored.

2.9Assistancewithobtaininglegalrepresentation

Section52oftheTETPAincludesprovisionsthatentitlea personwhoisdetainedundera preventativedetentionordertoberepresentedbythelegalaidcommissionorbeassistedby thelegalaidcommissiontoobtainlegalrepresentation.

2.10·Prohibitiononthedetentionofchildren

TheACTGovernmentrecognisedtheConventionontheRightsoftheChildanddeparted fromthepositionin otherAustralianjurisdictionsbyensuringthatchildrenundertheageof

18yearsmustnotbedetainedunderapreventativedetentionorder.

Section 11oftheTETPAprovidesthatapreventativedetentionordercannotbeappliedfor, ormade,forachild.

2.11Additionalsafeguardsduringdetention

TheACTGovernmentensuredthattheTETPAincludedsafeguardsinrelationtothe detention ofpeopleonpreventativedetention.Thesesafeguardsincludearequirementthata personwhoistakenintocustodyordetainedunderapreventativedetentionordermustbe treatedwithhumanityandrespectfortheinherentdignityofthehumanpersonandmustnot besubjected tocruel,inhumanordegradingtreatment(section48)andspecialcontact provisionsthatapplytopeoplewhohaveimpaireddecision-makingability(section53).

2.12Nodisclosureoffences

TheACTGovernmentdeterminedthattheTETPAwouldnotincludeoffencesthatwould applytoapersonwhodisclosestheexistenceofapreventativedetentionorder.

2.13Publicationofcourtproceedings

TheACTGovernmentdeterminednottoadopttheapproachoftheCommonwealthandsome oftheStatesandTerritoriestoprovidethatproceedingsunderthecounter-terrorism legislativeschemeswereheardintheabsenceofthepublicandthatthecourtmaymakeordersinrelationtothesuppressionofpublicationofthewholeoranypartoftheproceedings oroftheevidencegivenintheproceedings.

TheACTGovernmentdeterminedthatdecisionsrelatingtotheconductofproceedings shouldrestwiththecourtsandthatexistingpowersoftheSupremeCourtwereadequateto determineappropriatepublicationofitsproceedings.

2.14Disclosureintheapplicationprocess

Section17(5)oftheTETPAprovidesthatanapplicationforapreventativedetentionorder mustincludeastatementbytheapplicantthattheapplicationfullydisclosesallmattersof

whichtheapplicantisawarethatare,ormaybe,relevanttothemakingofadecisiononthe application,whetherornottheyarefavourableoradversetoadecisiontomakeanorder.

2.15Public InterestMonitor

TheACTGovernmentadoptedtheQueenslandmodelfortheinclusionofapublicinterest monitor. Section62oftheTETPAprovidesthattheMinistermustappointlawyerstoa publicinterestmonitorpanel.

Thepublicinterestmonitorrepresentsthepublicinterestatahearingforanapplicationfora preventativedetentionorderorprohibitedcontactorder(section14)orwhereaseniorpolice officerhasdirectedthatadetainee's contactwiththeirlawyerismonitored(section56).

2.16HumanRightsTraining

Section93oftheTETPArequiresthattheChiefPoliceOfficermustensurethatpolice officerswhoexercisespecialpowersunderpart3oftheTETPAhaveadequatetrainingabout theirobligationsunderhumanrightslegislationthatappliesintheACT.

2.17ReportingRequirements

Section95oftheTETPArequirestheMinistertoprepareawrittenreportabouttheexercise of specialpowersunderpart3oftheTETPAassoonaspossibleafteraspecialpowers authorisationends.ThisreportmustbepresentedintheLegislativeAssemblynotlaterthan6 sittingdaysaftertheMinisterreceivesthereport.

2.18Conductofpersonalsearches

Schedule1oftheTETPAincludesprovisionsfortheconductofpersonalsearches,which reflecttheACT'shumanrightsframework.