Parliamentary Joint Committee on Human Rights - Report 5 of 2020 Human rights scrutiny report of COVID-19 legislation - Parliament of Australia
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Parliamentary Joint Committee
on Human Rights
Human rights scrutiny report of COVID-19
legislation
Report 5 of 2020
29 April 2020© Commonwealth of Australia 2020 ISSN 2204-6356 (Print) ISSN 2204-6364 (Online) PO Box 6100 Parliament House Canberra ACT 2600 Phone: 02 6277 3823 Fax: 02 6277 5767 Email: human.rights@aph.gov.au Website: http://www.aph.gov.au/joint_humanrights/ This report can be cited as: Parliamentary Joint Committee on Human Rights, Report 5 of 2020: Human rights scrutiny of COVID-19 legislation; [2020] AUPJCHR 63. This document was prepared by the Parliamentary Joint Committee on Human Rights and printed by the Senate Printing Unit, Department of the Senate, Parliament House, Canberra.
Membership of the committee
Members
Senator the Hon Sarah Henderson, Chair Victoria, LP
Mr Graham Perrett MP, Deputy Chair Moreton, Queensland, ALP
Senator Patrick Dodson Western Australia, ALP
Mr Steve Georganas MP Adelaide, South Australia, ALP
Mr Ian Goodenough MP Moore, Western Australia, LP
Senator Nita Green Queensland, ALP
Ms Celia Hammond MP Curtin, Western Australia, LP
Senator Nick McKim Tasmania, AG
Senator Andrew McLachlan CSC South Australia, LP
Dr Anne Webster MP Mallee, Victoria, Nats
Secretariat 1
Anita Coles, Committee Secretary
Sevda Clark, Principal Research Officer
Charlotte Fletcher, Principal Research Officer
Ingrid Zappe, Legislative Research Officer
External legal adviser
Associate Professor Jacqueline Mowbray
1 The human rights committee secretariat is staffed by parliamentary officers drawn from the
Department of the Senate Legislative Scrutiny Unit (LSU), which usually includes two principal
research officers with specialised expertise in international human rights law. LSU officers
regularly work across multiple scrutiny committee secretariats.
iiiiv
Table of contents
Membership of the committee ......................................................................... ii
Committee information ................................................................................... vi
Chapter 1 — Human rights scrutiny of COVID-19 legislation.............................. 1
Response required
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic
Potential) (Emergency Requirements for Remote Communities) Determination 2020
[F2020L00324] and Biosecurity (Human Biosecurity Emergency) (Human
Coronavirus with Pandemic Potential) (Emergency Requirements for Remote
Communities) Amendment (No. 1) Determination 2020 [F2020L00415] .................. 6
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic
Potential) (Emergency Requirements) Determination 2020 [F2020L00267] and
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic
Potential) (Emergency Requirements) Amendment Determination (No. 1) 2020
[F2020L00339]........................................................................................................... 10
Biosecurity (Human Health Response Zone) (Howard Springs Accommodation
Village) Determination 2020 [F2020L00107]............................................................. 13
Biosecurity (Human Health Response Zone) (Swissotel Sydney)
Determination 2020 [F2020L00313] ........................................................................ 16
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic
Potential) (Overseas Travel Ban Emergency Requirements) Determination 2020
[F2020L00306]........................................................................................................... 19
Biosecurity (Human Health Response Zone) (North West Point Immigration
Detention Centre) Determination 2020 [F2020L00087] and Biosecurity (Human
Health Response Zone) (Royal Australian Air Force Base Learmonth)
Determination 2020 [F2020L00086] ......................................................................... 22
Biosecurity (Exit Requirements) Determination 2020 [F2020L00323] and
Biosecurity (Exit Requirements) Amendment (Nauru) Determination 2020
[F2020L00388]........................................................................................................... 26
CASA EX57/20 — Licensing, and Operator Training and Checking (Extensions of Time
Due to COVID-19) Exemptions Instrument 2020 [F2020L00337] and CASA EX63/20
— Licensing, and Operator Training and Checking (Extensions of Time Due to
COVID-19) Exemptions Amendment Instrument 2020 (No. 1) [F2020L00412] ........ 29
Coronavirus Economic Response Package (Payments and Benefits) Rules 2020
[F2020L00419]........................................................................................................... 32
Coronavirus Economic Response Package Omnibus Bill 2020................................... 35
vFair Work Amendment (Variation of Enterprise Agreements) Regulations 2020
[F2020L00432]........................................................................................................... 38
Foreign Acquisitions and Takeovers Amendment (Threshold Test)
Regulations 2020 [F2020L00435] .............................................................................. 42
Public Service (Terms and Conditions of Employment) (General wage increase
deferrals during the COVID-19 pandemic) Determination 2020 [F2020L00418] ...... 45
Appendix 1 — COVID-19 related legislation .................................................... 47
viCommittee information
Under the Human Rights (Parliamentary Scrutiny) Act 2011 (the Act), the committee
is required to examine bills, Acts and legislative instruments for compatibility with
human rights, and report its findings to both Houses of the Parliament. The
committee may also inquire into and report on any human rights matters referred to
it by the Attorney-General.
The committee assesses legislation against the human rights contained in the
International Covenant on Civil and Political Rights (ICCPR) and the International
Covenant on Economic, Social and Cultural Rights (ICESCR); as well as five other
treaties relating to particular groups and subject matter. 1 A description of the rights
most commonly arising in legislation examined by the committee is available on the
committee's website. 2
The establishment of the committee builds on Parliament's established tradition of
legislative scrutiny. The committee's scrutiny of legislation is undertaken as an
assessment against Australia's international human rights obligations, to enhance
understanding of and respect for human rights in Australia and ensure attention is
given to human rights issues in legislative and policy development.
Some human rights obligations are absolute under international law. However, in
relation to most human rights, prescribed limitations on the enjoyment of a right
may be permissible under international law if certain requirements are met.
Accordingly, a focus of the committee's reports is to determine whether any
limitation of a human right identified in proposed legislation is permissible. A
measure that limits a right must be prescribed by law; be in pursuit of a legitimate
objective; be rationally connected to its stated objective; and be a proportionate
way to achieve that objective (the limitation criteria). These four criteria provide the
analytical framework for the committee.
A statement of compatibility for a measure limiting a right must provide a detailed
and evidence-based assessment of the measure against the limitation criteria.
1 These are the International Convention on the Elimination of All Forms of Racial
Discrimination (ICERD); the Convention on the Elimination of Discrimination against Women
(CEDAW); the Convention against Torture and Other Cruel, Inhuman or Degrading Treatment
or Punishment (CAT); the Convention on the Rights of the Child (CRC); and the Convention on
the Rights of Persons with Disabilities (CRPD).
2 See the committee's Short Guide to Human Rights and Guide to Human Rights,
https://www.aph.gov.au/Parliamentary_Business/Committees/Joint/Human_Rights/Guidance
_Notes_and_Resources
viiWhere legislation raises human rights concerns, the committee's usual approach is to
seek a response from the legislation proponent, or draw the matter to the attention
of the proponent and the Parliament on an advice-only basis.
More information on the committee's analytical framework and approach to human
rights scrutiny of legislation is contained in Guidance Note 1, a copy of which is
available on the committee's website. 3
3 See Guidance Note 1 – Drafting Statements of Compatibility,
https://www.aph.gov.au/Parliamentary_Business/Committees/Joint/Human_Rights/Guidance
_Notes_and_Resources
viiiReport 5 of 2020 Page 1
Chapter 11
Human rights scrutiny of COVID-19 legislation
1.1 The mandate 2 of the Parliamentary Joint Committee on Human Rights (the
committee) is to examine all Commonwealth bills and legislative instruments 3 that
come before either House of the Parliament for compatibility with human rights, 4
and to report to both Houses of the Parliament on that issue. The committee
undertakes its scrutiny function as a technical inquiry relating to Australia's
international human rights obligations, and does not consider the broader policy
merits of legislation. Its mandate is strictly limited to considering Commonwealth
legislation, and as such, it does not review any state or territory legislation.
1.2 The COVID-19 pandemic has required governments across the globe to
introduce legislative measures seeking to contain the outbreak and respond to its
impacts. At the Commonwealth level, on 21 January 2020 the Director of Human
Biosecurity first added 'human coronavirus with pandemic potential' to the list of
human diseases, to allow measures to be taken under the Biosecurity Act 2015 to
manage and respond to risks to human health caused by the virus. 5 Since then
numerous legislative instruments and Acts have been made to respond to the
impacts of COVID-19. As part of its legislative scrutiny functions, the committee has
resolved to report on legislation that has been made in response to, or because of,
the COVID-19 pandemic.
1.3 This report provides an assessment of the human rights compatibility of
legislation made in response to the COVID-19 pandemic, specifically:
• bills introduced into the Parliament on 23 March 2020 and 8 April 2020;
1 This section can be cited as Parliamentary Joint Committee on Human Rights, Human rights
scrutiny of COVID-19 legislation, Report 5 of 2020; [2020] AUPJCHR 64.
2 Under paragraph 7(a) of the Human Rights (Parliamentary Scrutiny) Act 2011.
3 This includes instruments that are not subject to disallowance under section 42 of the
Legislation Act 2003.
4 'Human rights' is defined in section 3 of the Human Rights (Parliamentary Scrutiny) Act 2011
to mean the rights and freedoms recognised or declared by seven international instruments:
International Convention on the Elimination of all Forms of Racial Discrimination; International
Covenant on Economic, Social and Cultural Rights; International Covenant on Civil and Political
Rights; Convention on the Elimination of All Forms of Discrimination Against Women;
Convention Against Torture and Other Cruel, Inhuman or Degrading Treatment or
Punishment; Convention on the Rights of the Child; and Convention on the Rights of Persons
with Disabilities.
5 See Biosecurity (Listed Human Diseases) Amendment Determination 2020 [F2020L00037].
Human rights scrutiny of COVID-19 legislationPage 2 Report 5 of 2020
• legislative instruments registered on the Federal Register of Legislation
between 21 January and 21 April 2020.
1.4 See Appendix 1 for a list of all legislation considered in this report, including
legislation on which the committee makes no comment, on the basis that the
legislation does not engage, or only marginally engages, human rights; promotes
human rights; and/or permissibly limits human rights.
1.5 The committee considers that legislation taken to control the entry,
establishment or spread of COVID-19 is likely to promote and protect the rights to
life and health. The right to life requires the State to take positive measures to
protect life. 6 The United Nations Human Rights Committee has stated that the duty
to protect life implies that State parties should take appropriate measures to address
the conditions in society that may give rise to direct threats to life, including life
threatening diseases. 7
1.6 The right to health is the right to enjoy the highest attainable standard of
physical and mental health. 8 Article 12(2) of the International Covenant on
Economic, Social and Cultural Rights requires that State parties shall take steps to
prevent, treat and control epidemic diseases. 9 The United Nations Committee on
Economic, Social and Cultural Rights has stated that the control of diseases refers to
efforts to:
make available relevant technologies, using and improving epidemiological
surveillance and data collection on a disaggregated basis, the
implementation or enhancement of immunization programmes and other
strategies of infectious disease control. 10
1.7 In addition, legislative responses to help manage the impact of the COVID-19
pandemic on jobs and the economy are likely to engage and promote a number of
human rights, including rights to work, an adequate standard of living and social
security. 11
1.8 While the committee considers the Australian government has obligations
under international human rights law to take action to control the COVID-19
pandemic within Australia, it also recognises that legislation in response to this
6 International Covenant on Civil and Political Rights, article 6.
7 See United Nations Human Rights Committee, General Comment No. 36, Article 6 (Right to
Life) (2019), [26].
8 International Covenant on Economic, Social and Cultural Rights, article 12(1).
9 International Covenant on Economic, Social and Cultural Rights, article 12(2)(c).
10 United Nations Committee on Economic, Social and Cultural Rights, General Comment No. 14:
The Right to the Highest Attainable Standard of Health (Art. 12) (2000), [16].
11 See International Covenant on Economic, Social and Cultural Rights, articles 6 and 7 (work);
article 11 (adequate standard of living) and article 9 (social security).
Human rights scrutiny of COVID-19 legislationReport 5 of 2020 Page 3
pandemic may limit other human rights. In particular, the committee considers such
legislation is likely to engage and may limit rights to freedom of movement and
liberty, privacy, equality and non-discrimination, and freedom of assembly.
1.9 International human rights law recognises that reasonable limits may be
placed on most rights and freedoms – there are very few absolute rights which can
never be legitimately limited. 12 For all other rights, limitations may be imposed on
the right provided certain standards are met. In general, any measure that limits a
human right must comply with the following criteria:
• be prescribed by law (have a clear legal basis and be sufficiently accessible
and precise);
• be in pursuit of a legitimate objective (one that is necessary and addresses
an area of public and social concern that is pressing and substantial enough
to warrant limiting the right);
• be rationally connected to (that is, likely to be effective to achieve) its stated
objective; and
• be proportionate to the objective sought to be achieved (which includes
considering if there are other less restrictive ways to achieve the same aim, if
there are effective safeguards or controls over the measure and if it provides
sufficient flexibility to consider individual circumstances).
1.10 This assessment applies even in times of emergency. While under
international human rights law, certain treaties 13 allow a State to suspend or restrict
the exercise of certain rights in times of emergency that 'threatens the life of the
nation', such restrictions can only be to the extent 'strictly required by the exigencies
of the situation' and only when a state of emergency is officially proclaimed.
Australia has not officially proclaimed an intention to derogate from its human rights
obligations during this pandemic. In undertaking an analysis of legislation during this
time the usual limitation criteria set out above continues to apply.
1.11 In undertaking its assessment of legislation, the committee's approach is to
first consider the legislation proponent's assessment as to the compatibility of the
legislation with Australia's human rights obligations, as set out in the statement of
compatibility. Where further information is required to determine questions as to
compatibility, the committee writes to the sponsor of the legislation seeking
12 Absolute rights include the right not to be subjected to torture, cruel, inhuman or degrading
treatment; right not to be subjected to slavery; right not to be imprisoned for inability to fulfil
a contract; right not to be subject to restrospective criminal laws; and the right to recognition
as a person before the law.
13 Only some human rights treaties contain a derogation clause: see for example article 4 of the
International Civil and Political Rights. In contrast, the Convention on the Rights of Persons
with Disabilities includes a special clause on the obligation to comply with the Convention also
during emergencies.
Human rights scrutiny of COVID-19 legislationPage 4 Report 5 of 2020
clarification and publishes its concerns in its report to the Parliament. The committee
considers statements of compatibility are essential to the examination of human
rights in the legislative process. While the committee assesses all legislative
instruments for compatibility with human rights, the Human Rights (Parliamentary
Scrutiny) Act 2011 only requires statements of compatibility to be provided for
legislative instruments that are subject to disallowance. 14 However, given the
potential impact on human rights of legislative instruments dealing with the COVID-
19 pandemic, the committee considers it would be appropriate for all such legislative
instruments to be accompanied by a detailed statement of compatibility.
Biosecurity Act 2015
1.12 Much of the response taken by the Australian government to control the
entry, establishment or spread of COVID-19 has been taken under the powers set out
in the Biosecurity Act 2015 (Biosecurity Act). As such, in assessing that legislative
response, it is useful to understand the powers available under this Act. The
Biosecurity Act is the primary legislative means for the Australian government to
manage the risk of diseases entering Australian territory and causing harm to human
health. The Biosecurity Act sets out a number of powers that can be taken to prevent
a listed human disease from entering, or establishing itself or spreading in, an
Australian territory. These include empowering the making of legislative instruments
that:
• prescribe entry and exit requirements to and from Australia; 15
• determine preventative biosecurity measures, including banning or
restricting, or requiring, a behaviour or practice; 16
• specify an area as a human health response zone, that specifies any
requirements for individuals entering or leaving the zone and/or that
specifies classes of individuals that must not enter the zone; 17 and
• specify certain zones to monitor whether a disease may pose an
unacceptable level of biosecurity risk, or manage any such risks. 18
1.13 In addition, section 475 provides that the Governor-General may declare that
a human biosecurity emergency exists if the Health Minister is satisfied that a listed
human disease is posing a severe and immediate threat, or is causing harm, to
human health on a nationally significant scale and the declaration is necessary to
prevent or control the entry of or emergence, establishment or spread of the listed
14 Human Rights (Parliamentary Scrutiny) Act 2011, section 9.
15 See Biosecurity Act 2015, sections 44-46.
16 See Biosecurity Act 2015, sections 51-52.
17 See Biosecurity Act 2015, sections 113-116.
18 See Biosecurity Act 2015, sections 365, 384 and 395.
Human rights scrutiny of COVID-19 legislationReport 5 of 2020 Page 5
human disease. Such an emergency was declared in Australia in relation to COVID-19
on 18 March 2020. 19 Under section 477 of the Biosecurity Act 2015 the Health
Minister may determine emergency requirements during a human biosecurity
emergency, that include requirements:
• that apply to persons, goods or conveyances when entering or leaving
specified places;
• that restrict or prevent the movement of persons, goods or conveyances in
or between specified places; and
• for specified places to be evacuated.
1.14 Before determining such requirements the Health Minister must be satisfied
that the period during which the requirement is to apply is only as long as is
necessary and that the requirement:
• is likely to be effective in, or contribute to, achieving the purpose for which it
is to be given;
• is appropriate and adapted to achieve the purpose for which it is to be given;
and
• is no more restrictive or intrusive than is required in the circumstances (and
how it is to be applied is no more restrictive or intrusive than required in the
circumstances). 20
1.15 During a human biosecurity emergency period the Health Minister may also
give any direction to any person to comply with any requirements imposed under a
determination made under section 477, or to close premises or prevent access to
premises. 21 It is an offence for a person to fail to comply with any such requirement
or direction, subject to imprisonment of up to five years or 300 penalty units, or
both.
1.16 In addition, under Chapter 2, Part 3 of the Biosecurity Act, a human
biosecurity control order can be imposed on an individual if the individual may have
a listed human disease. A human biosecurity control order that is in force in relation
to an individual may require the individual to comply with certain biosecurity
measures. Part 3 sets out what those measures are, and they include vaccination,
restricting the individual’s behaviour and ordering the individual to remain isolated.
19 See Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic
Potential) Declaration 2020 [F2020L00266].
20 Biosecurity Act 2015, subsection 477(4).
21 Biosecurity Act 2015, section 478.
Human rights scrutiny of COVID-19 legislationPage 6 Report 5 of 2020
Response required
1.17 The committee seeks a response from the relevant minister with respect to
the following bill and instruments.
Biosecurity (Human Biosecurity Emergency) (Human
Coronavirus with Pandemic Potential) (Emergency
Requirements for Remote Communities)
Determination 2020 [F2020L00324]
Biosecurity (Human Biosecurity Emergency) (Human
Coronavirus with Pandemic Potential) (Emergency
Requirements for Remote Communities) Amendment
(No. 1) Determination 2020 [F2020L00415]1
Purpose These instruments determine requirements to prevent or
control the entry or spread of COVID-19 in designated remote
communities in Australia, including establishing requirements
for entry to these areas. The instruments commenced on
26 March 2020 and 8 April 2020 respectively, and remain in
force for the duration of the human biosecurity emergency
period
Portfolio Health
Authorising legislation Biosecurity Act 2015
Disallowance These instruments are exempt from disallowance (see
subsection 477(2) of the Biosecurity Act 2015)
Rights Life; health; freedom of movement; equality and non-
discrimination
Status Seeking additional information
1 This entry can be cited as: Parliamentary Joint Committee on Human Rights, Biosecurity
(Human Biosecurity Emergency) (Human Coronavirus with Pandemic Potential) (Emergency
Requirements for Remote Communities) Determination 2020 [F2020L00324], Report 5 of
2020; [2020] AUPJCHR 65.
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic Potential) (Emergency Requirements for
Remote Communities) Determination 2020 [F2020L00324]
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic Potential) (Emergency Requirements for
Remote Communities) Amendment (No. 1) Determination 2020 [F2020L00415]Report 5 of 2020 Page 7
Controlling entry to certain remote communities
1.18 The Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with
Pandemic Potential) (Emergency Requirements for Remote Communities)
Determination 2020 (first instrument) designates a number of geographical areas in
Western Australia, Queensland, South Australia and the Northern Territory for the
purposes of the Biosecurity Act 2015 (Biosecurity Act), and establishes that persons
cannot enter these areas except in specified circumstances.
1.19 The Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with
Pandemic Potential) (Emergency Requirements for Remote Communities)
Amendment (No. 1) Determination 2020 amends the first instrument to amend the
circumstances in which a person can enter.
1.20 These instruments are made under section 477(1) of the Biosecurity Act,
which provides that during a human biosecurity emergency period, the Health
Minister may determine emergency requirements, or give directions, that they are
satisfied are necessary to prevent or control the entry, emergence, establishment or
spread of the disease in Australian territory. Failure to comply with such a direction is
a criminal offence punishable by five years' imprisonment, or a penalty of up to
$63,000.
Preliminary international human rights legal advice
Rights to life, health, freedom of movement and equality and non-discrimination
1.21 The explanatory statement notes that the purpose of designating these
geographical areas for the purpose of the Biosecurity Act is to prevent or control the
entry or spread of COVID-19 in these areas. 2 As the measure is intended to prevent
the spread of COVID-19, which has the ability to cause high levels of morbidity and
mortality, it would appear that the measure may promote the rights to life and
health. 3 However, by restricting entry to these locations the instrument may also
limit the right to freedom of movement. Furthermore, the restrictions of entry would
appear to apply to anyone who lives in the designated area, and would mean that
they would need to be granted permission to re-enter their community subject to
the requirements stipulated by the instruments, thereby potentially limiting their
freedom of movement. It appears that these remote geographical areas may have a
high proportion of Indigenous people living there, although this has not been
specifically addressed in the explanatory materials. As such, the restrictions may
have a disproportionate impact on Indigenous persons. Consequently, the measure
2 Explanatory statement, p. 1.
3 Right to life: Iinternational Covenant on Civil and Political Rights, article 6. Right to health:
Iinternational Covenant on Economic, Social and Cultural Rights, article 12.
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic Potential) (Emergency Requirements for
Remote Communities) Determination 2020 [F2020L00324]
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic Potential) (Emergency Requirements for
Remote Communities) Amendment (No. 1) Determination 2020 [F2020L00415]Page 8 Report 5 of 2020
may also engage the right to equality and non-discrimination, 4 which provides that
everyone is entitled to enjoy their rights without distinction based on a personal
attribute (for example, race). 5
1.22 These rights may be subject to permissible limitations where the limitation
pursues a legitimate objective, is rationally connected to that objective and is a
proportionate means of achieving that objective.
1.23 As there is no statement of compatibility accompanying the explanatory
statement to this instrument, 6 no assessment of the compatibility of this measure
with any human rights has been provided. Further information is required as to the
compatibility of these measures with human rights, particularly the rights to freedom
of movement, and equality and non-discrimination.
Committee view
1.24 The committee notes that these instruments determine requirements to
prevent or control the entry or spread of COVID-19 in designated remote
communities in Australia, including establishing requirements for entry to these
areas, for the duration of the period of emergency under the Biosecurity Act 2015.
1.25 The committee considers that the measure, which is designed to prevent
the spread of COVID-19, is likely to promote and protect the rights to life and
health, noting that the right to life requires Australia to take positive measures to
protect life and the right to health requires Australia to take steps to prevent, treat
and control epidemic diseases. The committee notes that the measure may also
limit the rights to freedom of movement and equality and non-discrimination.
These rights may be subject to permissible limitations if they are shown to be
reasonable, necessary and proportionate.
4 International Covenant on Civil and Political Rights, articles 2 and 26. See also International
Convention on the Elimination of All Forms of Racial Discrimination.
5 The prohibited grounds of discrimination are race, colour, sex, language, religion, political or
other opinion, national or social origin, property, birth or other status. Under 'other status' the
following have been held to qualify as prohibited grounds: age, nationality, marital status,
disability, place of residence within a country and sexual orientation. The prohibited grounds
of discrimination are often described as 'personal attributes'.
6 Noting that section 9 of the Human Rights (Parliamentary Scrutiny) Act 2011 only requires
rule-makers to prepare a statement of compatibility in relation to a legislative instrument that
is subject to disallowance under section 42 of the Legislation Act 2003.
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic Potential) (Emergency Requirements for
Remote Communities) Determination 2020 [F2020L00324]
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic Potential) (Emergency Requirements for
Remote Communities) Amendment (No. 1) Determination 2020 [F2020L00415]Report 5 of 2020 Page 9
1.26 As no statement of compatibility has been provided, the committee seeks
the minister's advice as to the compatibility of these measures with human rights,
particularly the rights to freedom of movement and equality and non-
discrimination. 7
7 The committee's consideration of the compatibility of a measure which limits rights is assisted
if the response addresses the limitation criteria set out in the committee's Guidance Note 1,
pp. 2-3.
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic Potential) (Emergency Requirements for
Remote Communities) Determination 2020 [F2020L00324]
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic Potential) (Emergency Requirements for
Remote Communities) Amendment (No. 1) Determination 2020 [F2020L00415]Page 10 Report 5 of 2020
Biosecurity (Human Biosecurity Emergency) (Human
Coronavirus with Pandemic Potential) (Emergency
Requirements) Determination 2020 [F2020L00267]
Biosecurity (Human Biosecurity Emergency) (Human
Coronavirus with Pandemic Potential) (Emergency
Requirements) Amendment Determination (No. 1) 2020
[F2020L00339]1
Purpose The Biosecurity (Human Biosecurity Emergency) (Human
Coronavirus with Pandemic Potential) (Emergency
Requirements) Determination 2020 prohibits international
cruise ships from entering Australian ports. This instrument
commenced on 18 March 2020
The Biosecurity (Human Biosecurity Emergency) (Human
Coronavirus with Pandemic Potential) (Emergency
Requirements) Amendment Determination (No. 1) 2020
prevents cruise ships from entering Australian territory and
requires that foreign cruise ships leave Australian territory
before 15 June 2020, subject to limited exceptions, to prevent
or control the entry or spread of COVID-19 in Australian
territory. This instrument commenced on 27 March 2020
Portfolio Health
Authorising legislation Biosecurity Act 2015
Disallowance These instruments are exempt from disallowance (see
subsection 477(2) of the Biosecurity Act 2015)
Rights Life; health; freedom of movement
Status Seeking additional information
1 This entry can be cited as: Parliamentary Joint Committee on Human Rights, Biosecurity
(Human Biosecurity Emergency) (Human Coronavirus with Pandemic Potential) (Emergency
Requirements) Determination 2020 [F2020L00267] and Biosecurity (Human Biosecurity
Emergency) (Human Coronavirus with Pandemic Potential) (Emergency Requirements)
Amendment Determination (No. 1) 2020 [F2020L00339], Report 5 of 2020; [2020]
AUPJCHR 66.
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic Potential) (Emergency Requirements)
Determination 2020 [F2020L00267]
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic Potential) (Emergency Requirements)
Amendment Determination (No. 1) 2020 [F2020L00339]Report 5 of 2020 Page 11
Prohibiting entry to Australian ports and requiring exit from Australian
territory
1.27 The Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with
Pandemic Potential) (Emergency Requirements) Determination 2020 requires that
international cruise ships with the capacity to carry 100 or more passengers, and
which are on a voyage from a port outside Australian territory, must not enter an
Australian port before 15 April 2020 except in limited circumstances. 2
1.28 The Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with
Pandemic Potential) (Emergency Requirements) Amendment Determination (No. 1)
2020 requires that cruise ships with the capacity to sleep 100 or more passengers,
and which enter Australian territory before 15 June 2020 on an overnight voyage,
must immediately leave Australian territory. Foreign cruise ships which are already in
Australian territory before 15 June 2020 must cause the ship to leave Australian
territory. The limited exceptions to these rules apply where permission has been
given for the ship to remain in place or undertake travel, or for matters related to
safety, performance of maintenance, or the exercise of the right to innocent passage.
1.29 These instruments are made under section 477(1) of the Biosecurity
Act 2015, which provides that during a human biosecurity emergency period, the
Health Minister may determine emergency requirements, or give directions, that
they are satisfied are necessary to prevent or control the entry, emergence,
establishment or spread of the disease in Australian territory. A person who fails to
comply with a requirement or direction may commit a criminal offence
(imprisonment for maximum 5 years, or 300 penalty units). 3
Preliminary international human rights legal advice
Rights to life, health and freedom of movement
1.30 Preventing the entry of cruise ships into Australia ports or territory, including
of their passengers, and requiring that foreign cruise ships leave Australian territory,
may engage a number of human rights. As these measures are intended to prevent
the spread of COVID-19, which has the ability to cause high levels of morbidity and
mortality, it would appear that the measure may promote the rights to life and
health. 4
2 These are where permission has been given for such entry because the ships is in distress,
extraordinary circumstances exist, or the ship departed a port outside Australian territory
before the end of 15 March 2020 (by legal time in the Australian Capital Territory) and, when
it departed that port, was bound directly for a port in Australian territory.
3 Biosecurity Act 2015, section 479.
4 Right to life: International Covenant on Civil and Political Rights, article 6. Right to health:
International Covenant on Economic, Social and Cultural Rights, article 12(1).
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Determination 2020 [F2020L00267]
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1.31 However, these measures may also limit the right to freedom of movement
of the passengers and crew on these ships. The right to freedom of movement
includes the right to move freely within a country. 5 Limitations on the right to
freedom of movement may be permissible where the measure pursues a legitimate
objective, is rationally connected to that objective and is proportionate to that
objective. 6
1.32 As there is no statement of compatibility accompanying the explanatory
statements to these instruments, 7 no assessment of the compatibility of these
measures with any human rights has been provided. Further information is required
as to the compatibility of these measures with human rights, particularly the right to
freedom of movement.
Committee view
1.33 The committee notes that these instruments prohibit cruise ships from
entering Australian ports and Australian territory, and require that foreign cruise
ships leave Australian territory.
1.34 The committee considers that the measures, which are designed to prevent
the spread of COVID-19, is likely to promote and protect the rights to life and
health, noting that the right to life requires Australia to take positive measures to
protect life and the right to health requires Australia to take steps to prevent, treat
and control epidemic diseases. The committee notes that the measure may also
limit the right to freedom of movement. This right may be subject to permissible
limitations if it is shown to be reasonable, necessary and proportionate.
1.35 As no statements of compatibility have been provided, the committee
seeks the minister's advice as to the compatibility of these measures with human
rights, particularly the right to freedom of movement. 8
5 International Covenant on Civil and Political Rights, article 12.
6 UN Human Rights Committee, General Comment No. 27: Article 12 (Freedom of movement)
[21]. A person cannot be arbitrarily deprived of the right to enter their own country. There are
few, if any, circumstances in which deprivation of the right to enter one's own country could
be reasonable. A State party must not, by stripping a person of nationality or by expelling an
individual to a third country, arbitrarily prevent this person from returning to his or her own
country.
7 Noting that section 9 of the Human Rights (Parliamentary Scrutiny) Act 2011 only requires
rule-makers to prepare a statement of compatibility in relation to a legislative instrument that
is subject to disallowance under section 42 of the Legislation Act 2003.
8 The committee's consideration of the compatibility of a measure which limits rights is assisted
if the response addresses the limitation criteria set out in the committee's Guidance Note 1,
pp. 2-3.
Biosecurity (Human Biosecurity Emergency) (Human Coronavirus with Pandemic Potential) (Emergency Requirements)
Determination 2020 [F2020L00267]
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Amendment Determination (No. 1) 2020 [F2020L00339]Report 5 of 2020 Page 13
Biosecurity (Human Health Response Zone) (Howard Springs
Accommodation Village) Determination 2020
[F2020L00107]1
Purpose The instrument specifies the Howard Springs Accommodation
Village as a human health response zone for the purposes of the
Biosecurity Act 2015 and sets requirements for individuals
entering and leaving the zone. It operates for three months
from 8 February 2020
Portfolio Health
Authorising legislation Biosecurity Act 2015
Disallowance This instrument is exempt from disallowance (see
subsection 113(7) of the Biosecurity Act 2015)
Rights Life; health; freedom of movement; equality and non-
discrimination
Status Seeking additional information
Determining a human health response zone for the purposes of the
Biosecurity Act 2015
1.36 The Biosecurity Act 2015 (Biosecurity Act) enables the Director of Human
Biosecurity to determine that a specified area is a human health response zone, if the
Director is satisfied that it is necessary to do so for the purposes of preventing, or
reducing the risk of, a listed human disease emerging, establishing itself or spreading
in Australian territory or a part of Australian territory. 2 Such a determination must
specify any requirement for individuals entering or leaving the zone and/or a
requirement that specified classes of individuals must not enter the zone.
1.37 This instrument lists the Howard Springs Accommodation Village (Howard
Springs) in the Northern Territory as a human health response zone, and specifies
that only the following people can enter the zone: a person (including a person
accompanying a child or incapable person) who has entered Australia on an aircraft
carrying passengers being transported to Australia due to COVID-19; a biosecurity
officer; and an individual who has authority from the person who has operational
1 This entry can be cited as: Parliamentary Joint Committee on Human Rights, Biosecurity
(Human Health Response Zone) (Howard Springs Accommodation Village) Determination 2020
[F2020L00107], Report 5 of 2020; [2020] AUPJCHR 67.
2 Biosecurity Act 2015, section 113.
Biosecurity (Human Health Response Zone) (Howard Springs Accommodation Village) Determination 2020 [F2020L00107]Page 14 Report 5 of 2020
control over Howard Springs to enter. It also provides that a person (other than a
child or incapable person) who is in the zone after having entered Australia on an
aircraft due to COVID-19 must, before leaving the zone, communicate, or attempt to
communicate, their intention to leave the zone to the person who has operational
control over Howard Springs. 3 A civil penalty of 30 penalty units applies for failure to
comply with a requirement under the Determination. 4
Preliminary international human rights legal advice
Rights to life, health, freedom of movement, and equality and non-discrimination
1.38 The designation of Howard Springs as a human health response zone, and
the corresponding limitation on persons who may enter the zone, engages a number
of human rights. As the measure is intended to prevent the spread of COVID-19,
which has the ability to cause high levels of morbidity and mortality, it would appear
that the measure may promote the rights to life and health. 5
1.39 The explanatory statement notes that Howard Springs will temporarily house
individuals who requested repatriation from Wuhan city, China in isolation, with
medical care and supervision, for approximately 14 days. 6 By restricting entry to and
exit from this location, this measure may limit the right to freedom of movement,
which includes the right to move freely within a country for those who are lawfully
within the country. 7 Further, as this measure only applies to persons being
repatriated from Wuhan in China, it may disproportionately impact on persons of a
particular nationality. Consequently, the measure may also engage the right to
equality and non-discrimination, 8 which provides that everyone is entitled to enjoy
their rights without distinction based on a personal attribute (for example,
nationality). 9
3 Note also that subsection 113(5) of the Biosecurity Act 2015 provides that the determination
does not specify as a requirement a biosecurity measure that may be included in a biosecurity
control order applied to an individual. These biosecurity measures, set out at sections 85-97 of
the Biosecurity Act 2015, may also include measures which restrict a person's behaviour.
4 Biosecurity Act 2015, section 116.
5 Right to life: International Covenant on Civil and Political Rights, article 6. Right to health:
International Covenant on Economic, Social and Cultural Rights, article 12.
6 Explanatory statement, p. 1.
7 ICCPR, article 12.
8 Articles 2 and 26 of the International Covenant on Civil and Political Rights.
9 The prohibited grounds of discrimination are race, colour, sex, language, religion, political or
other opinion, national or social origin, property, birth or other status. Under 'other status' the
following have been held to qualify as prohibited grounds: age, nationality, marital status,
disability, place of residence within a country and sexual orientation. The prohibited grounds
of discrimination are often described as 'personal attributes'.
Biosecurity (Human Health Response Zone) (Howard Springs Accommodation Village) Determination 2020 [F2020L00107]Report 5 of 2020 Page 15
1.40 These rights may be subject to permissible limitations where the limitation
pursues a legitimate objective, is rationally connected to that objective and is a
proportionate means of achieving that objective.
1.41 As there is no statement of compatibility accompanying the explanatory
statement to this instrument, 10 no assessment of the compatibility of this measure
with any human rights has been provided. Further information is required as to the
compatibility of this measure with human rights, particularly the rights to freedom of
movement, and equality and non-discrimination.
Committee view
1.42 The committee notes that this instrument specifies the Howard Springs
Accommodation Village in the Northern Territory as a human health response zone
for the purposes of the Biosecurity Act 2015, which sets requirements for
individuals entering and leaving the zone, and operates for three months from
8 February 2020.
1.43 The committee considers that the measure, which is designed to prevent
the spread of COVID-19, is likely to promote and protect the rights to life and
health, noting that the right to life requires Australia to take positive measures to
protect life and the right to health requires Australia to take steps to prevent, treat
and control epidemic diseases. The committee notes that the measure may also
limit the rights to freedom of movement and equality and non-discrimination.
These rights may be subject to permissible limitations if they are shown to be
reasonable, necessary and proportionate.
1.44 As no statement of compatibility has been provided, the committee seeks
the minister's advice as to the compatibility of this measure with human rights,
particularly the rights to freedom of movement, and equality and
non-discrimination. 11
10 Noting that section 9 of the Human Rights (Parliamentary Scrutiny) Act 2011 only requires
rule-makers to prepare a statement of compatibility in relation to a legislative instrument that
is subject to disallowance under section 42 of the Legislation Act 2003.
11 The committee's consideration of the compatibility of a measure which limits rights is assisted
if the response addresses the limitation criteria set out in the committee's Guidance Note 1,
pp. 2-3.
Biosecurity (Human Health Response Zone) (Howard Springs Accommodation Village) Determination 2020 [F2020L00107]Page 16 Report 5 of 2020
Biosecurity (Human Health Response Zone) (Swissotel
Sydney) Determination 2020 [F2020L00313]1
Purpose The instrument specifies the Swissotel Sydney as a human
health response zone for the purposes of the Biosecurity Act
2015 and sets requirements for individuals entering and leaving
the zone. The instrument commenced on 25 March 2020 and is
in force for three months from that day
Portfolio Health
Authorising legislation Biosecurity Act 2015
Disallowance This instrument is exempt from disallowance (see subsection
113(7) of the Biosecurity Act 2015)
Rights Health; life; liberty; freedom of movement
Status Seeking additional information
Determining a human health response zone for the purposes of the
Biosecurity Act 2015
1.45 The Biosecurity Act 2015 (Biosecurity Act) enables the Director of Human
Biosecurity to determine that a specified area is a human health response zone, if the
Director is satisfied that it is necessary to do so for the purposes of preventing, or
reducing the risk of, a listed human disease emerging, establishing itself or spreading
in Australian territory or a part of Australian territory. 2 Such a determination must
specify any requirement for individuals entering or leaving the zone and/or a
requirement that specified classes of individuals must not enter the zone.
1.46 This instrument designates the Swissotel at 68 Market Street, Sydney, New
South Wales, as a human health response zone for three months. It specifies that
only the following people can enter the zone: a person (including a person
accompanying a child or incapable person) who has entered Australia on an aircraft
carrying passengers being transported to Australia due to COVID-19; a biosecurity
officer; a member of the New South Wales Police; and an individual who has
authority from the person who has operational control over the zone. It also
provides that a person (other than a child or incapable person) who is in the zone
after having entered Australia due to COVID-19 must, before leaving the zone,
1 This entry can be cited as: Parliamentary Joint Committee on Human Rights, Biosecurity
(Human Health Response Zone) (Swissotel Sydney) Determination 2020 [F2020L00313],
Report 5 of 2020; [2020] AUPJCHR 68.
2 Biosecurity Act 2015, section 113.
Biosecurity (Human Health Response Zone) (Swissotel Sydney) Determination 2020 [F2020L00313]Report 5 of 2020 Page 17
communicate, or attempt to communicate, their intention to leave the zone to the
person who has operational control over the zone. 3 A civil penalty of 30 penalty units
applies for failure to comply with a requirement under the Determination. 4
Preliminary international human rights legal advice
Rights to life, health, liberty and freedom of movement
1.47 The designation of the Swissotel as a human health response zone, and the
corresponding limitation on persons who may enter and leave the zone, engages a
number of human rights. As the measure is intended to prevent the spread of
COVID-19, which has the ability to cause high levels of morbidity and mortality, it
would appear that the measure may promote the rights to life and health. 5
1.48 The explanatory statement notes that the Swissotel Sydney will temporarily
house individuals who are returning to Australia by aircraft after having been
passengers on the Norwegian Jewel cruise ship to undertake 14 days of isolation and
that, subject to medical clearances, they will then be able to return to their homes in
Australia. 6 By providing for the compulsory isolation of these passengers within the
Swissotel for 14 days, this measure engages and may limit the rights to liberty and
freedom of movement. The right to liberty prohibits the arbitrary and unlawful
deprivation of liberty. 7 The notion of 'arbitrariness' includes elements of
inappropriateness, injustice and lack of predictability. Any detention must not only
be lawful, it must also be reasonable, necessary and proportionate in all of the
circumstances. Regular review must be available to scrutinise whether the continued
detention is lawful and non-arbitrary. The right to freedom of movement includes
the right to move freely within a country for those who are lawfully within the
country. 8 The right may be subject to permissible limitations in particular
circumstances, including where it is necessary and proportionate to achieve the
objectives of protecting the rights and freedoms of others, national security, public
health or morals, and public order. Measures that limit the right to freedom of
movement must also be rationally connected and proportionate to these legitimate
objectives.
3 Note also that subsection 113(5) of the Biosecurity Act 2015 provides that the determination
does not specify as a requirement a biosecurity measure that may be included in a biosecurity
control order applied to an individual. These biosecurity measures, set out at sections 85-97 of
the Biosecurity Act 2015, may also include measures which restrict a person's behaviour.
4 Biosecurity Act 2015, section 116.
5 Right to life: International Covenant on Civil and Political Rights, article 6. Right to health:
International Covenant on Economic, Social and Cultural Rights, article 12.
6 Explanatory statement, p. 1.
7 International Covenant on Civil and Political Rights, article 9.
8 International Covenant on Civil and Political Rights, article 12.
Biosecurity (Human Health Response Zone) (Swissotel Sydney) Determination 2020 [F2020L00313]Page 18 Report 5 of 2020
1.49 As there is no statement of compatibility accompanying the explanatory
statement to this instrument, 9 no assessment of the compatibility of this measure
with any human rights has been provided. Further information is required as to the
compatibility of this measure with human rights, particularly the rights to liberty and
freedom of movement.
Committee view
1.50 The committee notes that this instrument specifies the Swissotel Sydney as
a human health response zone for the purposes of the Biosecurity Act 2015, which
sets requirements for individuals entering and leaving the zone, and is in force for
three months from 25 March 2020.
1.51 The committee considers that the measure, which is designed to prevent
the spread of COVID-19, is likely to promote and protect the rights to life and
health, noting that the right to life requires Australia to take positive measures to
protect life and the right to health requires Australia to take steps to prevent, treat
and control epidemic diseases. The committee notes that the measure may also
limit the rights to liberty and freedom of movement. These rights may be subject to
permissible limitations if they are shown to be reasonable, necessary and
proportionate.
1.52 As no statement of compatibility has been provided, the committee seeks
the minister's advice as to the compatibility of this measure with human rights,
particularly the rights to liberty and freedom of movement. 10
9 Noting that section 9 of the Human Rights (Parliamentary Scrutiny) Act 2011 only requires
rule-makers to prepare a statement of compatibility in relation to a legislative instrument that
is subject to disallowance under section 42 of the Legislation Act 2003.
10 The committee's consideration of the compatibility of a measure which limits rights is assisted
if the response addresses the limitation criteria set out in the committee's Guidance Note 1,
pp. 2-3.
Biosecurity (Human Health Response Zone) (Swissotel Sydney) Determination 2020 [F2020L00313]Report 5 of 2020 Page 19
Biosecurity (Human Biosecurity Emergency) (Human
Coronavirus with Pandemic Potential) (Overseas Travel Ban
Emergency Requirements) Determination 2020
[F2020L00306]1
Purpose This instrument prohibits an Australian citizen or permanent
resident from travel outside Australia (by air or sea or as the
operator of an outgoing aircraft or vessel), unless an exemption
is granted to them. The instrument commenced at 12.00 pm on
25 March 2020 and is in force for an initial period of 4 weeks.
Portfolio Health
Authorising legislation Biosecurity Act 2015
Disallowance period This instrument is exempt from disallowance (see subsection
477(2) of the Biosecurity Act 2015)
Rights Health; freedom of movement
Status Seeking additional information
Prohibiting travel outside Australia
1.53 This instrument prohibits an Australian citizen or permanent resident from
travel outside Australia (by air or sea or as the operator of an outgoing aircraft or
vessel), for an initial period of four weeks unless an exemption is granted to them.
These exemptions include circumstances where a person is ordinarily resident in a
country outside Australia or whose travel is associated with specific types of work.
1.54 This instrument is made under section 477 of the Biosecurity Act 2015
(Biosecurity Act), which provides that during a human biosecurity emergency period,
the Health Minister may determine emergency requirements, or give directions, that
they are satisfied are necessary to prevent or control the entry, emergence,
establishment or spread of the disease in Australian territory. A person who fails to
comply with this determination may commit a criminal offence (punishable by
imprisonment for a maximum of 5 years, or 300 penalty units). 2
1 This entry can be cited as: Parliamentary Joint Committee on Human Rights, Biosecurity
(Human Biosecurity Emergency) (Human Coronavirus with Pandemic Potential) (Overseas
Travel Ban Emergency Requirements) Determination 2020 [F2020L00306], Report 5 of 2020;
[2020] AUPJCHR 69.
2 Biosecurity Act 2015, section 479.
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