Commonwealth of Australia Explanatory Memoranda Commonwealth of Australia Explanatory Memoranda[Index] [Search] [Download] [Bill] [Help]
2010-2011-2012
THE PARLIAMENT OF THE COMMONWEALTH OF AUSTRALIA
HOUSE OF REPRESENTATIVES
NATIONAL GAMBLING REFORM BILL 2012
NATIONAL GAMBLING REFORM (RELATED MATTERS) BILL (No. 1) 2012
NATIONAL GAMBLING REFORM (RELATED MATTERS) BILL (No. 2) 2012
EXPLANATORY MEMORANDUM
(Circulated by the authority of the
Minister for Families, Community Services and Indigenous Affairs,
Minister for Disability Reform, the Hon Jenny Macklin MP)
NATIONAL GAMBLING REFORM BILL 2012
NATIONAL GAMBLING REFORM (RELATED MATTERS) BILL (No. 1) 2012
NATIONAL GAMBLING REFORM (RELATED MATTERS) BILL (No. 2) 2012
OUTLINE
The National Gambling Reform Bill 2012, the National Gambling Reform
(Related Matters) Bill (No. 1) 2012, and the National Gambling Reform
(Related Matters) Bill (No. 2) 2012 deliver on the Government's commitments
to reduce the harm caused by gaming machines to problem gamblers and to
the families and communities of problem gamblers, as announced on
21 January 2012.
The object of the National Gambling Reform Bill 2012 is to reduce the harm
caused by gaming machines to problem gamblers, and those at risk of
experiencing that harm and to the families and communities of problem
gamblers, and those at risk of experiencing that harm.
The Bills require that:
· new machines manufactured or imported from end of 2013 be capable
of supporting precommitment;
· all gaming machines are part of a state-wide precommitment system,
and display electronic warnings, by 2016, with longer implementation
timelines for small venues; and
· a $250 a day ATM withdrawal limit for gaming venues (other than
casinos).
The Bills establish the requirements for precommitment systems in order for
gaming machines to be compliant. The Bills also include provisions for the
ATM withdrawal limits in gaming venues (excluding casinos) and for dynamic
warnings requirements.
The Bills provide for the monitoring and investigation of compliance with the
new requirements. The Regulator performs this function and these Bills also
set out enforcement measures, including civil penalty orders, infringement
notices, injunctions, enforceable undertakings and compliance notices.
The Bills provide that the Regulator may charge fees for services, and also
establish two levies to support this package of measures. The supervisory
levy will be determined by regulations. The purpose of the supervisory levy is
to recover the costs to the Commonwealth of administering these Bills. The
Government will be consulting industry on the development of the regulations.
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The gaming machine regulation levy is payable only in certain instances
(where a person is not a constitutional corporation) where the person has
made available a gaming machine which is not compliant with the reforms.
The Bills provide for the Commonwealth to delegate the regulatory function to
the States and Territories with approval of the relevant State or Territory
Minister, and this remains the Government's preferred approach. The Bills
also make clear that the requirements in Commonwealth legislation are the
minimum requirements only, and do not interfere with stricter requirements in
State or Territory legislation. The Government's intention is for these Bills to
be capable of operating concurrently with a law of a State or Territory.
Finally, these Bills provide for the Productivity Commission to undertake two
independent inquiries. One in relation to any trial of mandatory
precommitment systems, and a second inquiry into the progress that is being
made by gaming machine premises towards complying with the
precommitment system and dynamic warning requirements and ATM
withdrawal limits and the progress being made by manufacturers and
importers in meeting the manufacturing and importing requirements. The Bills
also establish an Australian Gambling Research Centre within the Australian
Institute of Family Studies.
FINANCIAL IMPACT STATEMENT
The Commonwealth is likely to begin incurring regulatory costs in relation to
these Bills from 2012-13. However, the regulatory role is likely to increase
towards 2016. There will also be a start-up cost for the Regulator. The
combination of an industry fee for service and a supervisory levy will be used
to recover the costs of the Regulator.
STATEMENT OF COMPATIBILITY WITH HUMAN RIGHTS
The statement of compatibility with human rights appears at the end of this
explanatory memorandum.
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NATIONAL GAMBLING REFORM BILL 2012
NATIONAL GAMBLING REFORM (RELATED MATTERS) BILL (No. 1) 2012
NATIONAL GAMBLING REFORM (RELATED MATTERS) BILL (No. 2) 2012
NOTES ON CLAUSES
Background
These Bills implement a package of harm minimisation measures in relation to
gambling on gaming machines. These Bills are the first ever national
legislation for gaming machines.
The measures are precommitment systems, dynamic warnings requirements,
and limitations on withdrawals from automatic teller machines located in
gaming premises (excluding casinos). The Bills also ensure that new gaming
machines that are manufactured or imported are capable of providing for
precommitment.
The Bills establish a Regulator, a penalty regime, a monitoring and
enforcement regime and arrangements to support the privacy of gaming
machine users.
The Bills also establish an Australian Gambling Research Centre, and
establish requirements for two further Productivity Commission inquiries into
gambling issues.
These changes to gaming venues are part of a substantial national gambling
reform package announced by the Prime Minister on 21 January 2012.
The remaining measures announced on 21 January 2012 including the
proposed trial of mandatory precommitment in the Australian Capital Territory,
and the additional financial counsellors are non-legislative.
These reforms are based on the recommendations of the 2010 Productivity
Commission inquiry into gambling in Australia. The Productivity Commission
undertook an extensive independent inquiry into gambling in Australia over
18 months.
The Productivity Commission found that precommitment is a strong, practical
and ultimately cost-effective tool for harm minimisation in relation to gambling.
The Productivity Commission further recommended dynamic warnings on
gaming machines and a $250 daily withdrawal limit from gaming venues
(excluding casinos).The Productivity Commission also recommended that an
independent gambling research centre be established.
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NATIONAL GAMBLING REFORM BILL 2012
Chapter 1 - Preliminary
Part 1 - Preliminary
Clause 1 - Short title
Clause 1 sets out how the new Act is to be cited, that is, as the National
Gambling Reform Act 2012.
Clause 2 - Commencement
Clause 2 provides that the new Act will commence on Royal Assent. Part 2
of this Chapter provides for the application of the new Act setting out when the
provisions contained in the Act will come into operation.
Clause 3 - Guide to this Act
Clause 3 provides a guide to the new Act.
Clause 4 - Object of this Act
Subclause 4(1) outlines that the object of the new Act is to reduce the harm
caused by gaming machines to problem gamblers and those at risk of
experiencing harm and to the families and communities of problem gamblers,
and those at risk of experiencing harm.
Subclause 4(2) explains that the object of the new Act is to be achieved by:
· requiring precommitment systems that, if a person chooses to register,
they can take greater control, by budgeting the amount of money they
are prepared to lose in a State or Territory;
· the use of electronic warnings during play;
· the placing of limitations on the amount of money that can be
withdrawn from automatic teller machines located in gaming premises
(excluding casinos);
· protecting the privacy of users of gaming machines; and
· ensuring that new gaming machines that are manufactured or imported
are capable of providing for precommitment.
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National Gambling Reform Bill 2012
Chapter 1 - Preliminary
Clause 5 - Definitions
Clause 5 defines certain terms that are used in this Bill. In this explanatory
memorandum, certain defined terms will be addressed in the context in which
they appear.
Clause 6 - Meaning of gaming machine
Subclause 6(1) provides a definition of gaming machine. A gaming
machine is a device (whether wholly or partly mechanically or electronically
operated) that is designed so that:
· it may be used for the purposes of playing a game of chance, or a
mixed game of chance and skill; and
· it may be operated wholly or partly by inserting a token, coin or
banknote, electronically transferring credits or tokens, or using credits
or tokens in the device; and
· because of making a bet on the device, winnings or other rewards may
become payable.
The definition of gaming machine is intended to include devices currently
known as poker machines, electronic gaming machines and slot machines.
This Bill is not intended to cover things such as lotteries, Keno and skill
testers.
Subclause 6(2) confirms that the definition of gaming machine includes part
of a gaming machine, gaming equipment and any device that is:
· designed so that it may be used for the purposes of playing a game of
chance, or a mixed game of chance and skill; and
· designed so that, because of making a bet on the device, winnings or
other rewards may become payable; and
· prescribed by regulations made under these Bills
Gaming equipment is any system, device, equipment, software or hardware
that is used for or in connection with a gaming machine (subclause 6(3)).
This definition is intended to include:
· linked jackpot equipment;
· an electronic monitoring system;
· a security device that is used, or capable of being used, for or in
connection with a gaming machine;
· kiosks;
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National Gambling Reform Bill 2012
Chapter 1 - Preliminary
· card readers/bolt-on devices;
· a centralised credit system; and
· any other subsidiary equipment.
Subclause 6(4) provides that regulations made under clause 201 may
prescribe a thing that is taken not to be a gaming machine for the purposes of
this Act. This is to ensure that something that is developed in the future that
is captured by the definition, but is not intended to fall within the purview of
this Act, is not required to comply with the Act. For examples refer to
subclause 6(1).
Clause 7 - References to premises
Subclause 7(1) provides that a reference to premises on which one or more
gaming machines are made available for use is a reference to the premises to
which an approval or licence under a State or Territory law that regulates
gambling applies or is taken to apply.
Subclause 7(2) provides that the definition of premises set out in
subclause 7(1) above does not apply in relation to the parts of this Act that
relate to ATM withdrawal limits.
Clause 8 - Persons who engage in conduct alone or together with
others
Clause 8 provides that a reference to a person who engages in conduct is a
reference to the person who engages in conduct, whether alone or together
with any other person or persons. The term engages in conduct is to be
read broadly. All references to the term engages in conduct is to be read as
including the situation where that person acts alone or in conjunction with
another person.
Clause 9 - Meaning of small gaming machine premises
Subclause 9(1) provides that premises are small gaming machine
premises if no more than 20 gaming machines are made available for use on
the premises.
The definition of `small gaming machine premises' is included as the
precommitment and dynamic warning provisions of this legislation will
commence at different times for different venues depending on how many
gaming machines the venue makes available for use.
A note following subclause 9(2) directs the attention of the reader to clause 14
in relation to when Parts 2 and 3 of Chapter 2 begin to apply.
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National Gambling Reform Bill 2012
Chapter 1 - Preliminary
Clause 10 - Act binds the Crown
Subclause 10(1) provides that the new Act binds the Crown in each of its
capacities.
The new Act does not make the Crown liable to be prosecuted for an offence,
or subject to civil proceedings for a civil penalty order or given an infringement
notice (subclause 10(2)).
Clause 11 - Concurrent operation with State and Territory laws
Subclause 11(1) provides that the new Act is not intended to exclude or limit
the operation of a law of a State or Territory capable of operating concurrently
with this Act.
In particular, the new Act is intended to set minimum requirements in relation
to precommitment systems for gaming machines, warnings provided by
gaming machines, and automatic teller machines that are on gaming machine
premises other than casinos (subclause 11(2)). This is not intended to limit
the ability of a State or Territory to impose stricter requirements in relation to
gaming machines and automatic teller machines.
Subclause 11(3) confirms that, in addition, the new Act is not intended to
affect the number or distribution of gaming machines in a State or Territory.
A note clarifies that the numbers and distribution of gaming machines in a
State or Territory are regulated by the laws of the State or Territory.
Clause 12- Constitutional limitations
A power conferred by the new Act must not be exercised in such a way as to
discriminate between States or parts of States within the meaning of
subparagraph 51(ii) of the Constitution (paragraph 12(1)(a) or give preference
to one State or any part of a State (paragraph12(1)(b)), and must not be
exercised in such a way that the exercise would infringe section 92 of the
Constitution (subclause 12(2)).
A note confirms that section 92 of the Constitution requires trade among the
States to be absolutely free.
Part 2 - Application of this Act
Clause 13 - Application of precommitment system and dynamic warning
requirements
Clause 13 provides for the application (timing) of the precommitment system
and dynamic warning requirements in Parts 2 and 3 of Chapter 2. Different
application provisions apply, depending upon the number of gaming machines
that are made available for use on gaming machine premises.
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National Gambling Reform Bill 2012
Chapter 1 - Preliminary
Subclause 13(1) provides that the precommitment and dynamic warning
provisions of the legislation will, apply on and after 31 December 2016, in
gaming machine premises other than small gaming machine premises.
Small gaming machine premises is defined in clause 5 by reference to
clause 9 which is outlined above.
The remaining subclauses deal with premises which are small gaming
machine premises.
Subclause 13(2) provides that the precommitment and dynamic warning
provisions of the legislation will apply on and after 31 December 2020 in
relation to any gaming machine that is made available for use on small
gaming machine premises if there are more than 10 gaming machines but no
more than 20 gaming machines made available for use on those premises.
Subclause 13(3) provides that, if there are no more than 10 gaming
machines that are made available for use on small gaming machine premises,
then the precommitment system and dynamic warning requirements apply in
relation to any gaming machine that is first made available for use on the
premises at any time after 31 December 2020.
However, if the business replaces any of its machines with a newly
manufactured or imported machine (from 31 December 2013) without
changing the total number of machines offered for use at the premises, such
that one or more of the machines is offered for use on or after
31 December 2020, then the precommitment system and dynamic warning
requirements will apply in respect of such machines. Example 3 below
illustrates how this provision works.
These provisions deliver on the Government's commitment that very small
venues will be able to introduce these changes in line with their usual
replacement cycle.
Subclause 13(4) deals with premises that gain or lose machines, such that
the total number of machines available for use at the premises changes. It
provides that, if at any time, subclause 13(2) or (3) applies to a particular
gaming machine, but at a later time, the other subclause would apply, then
subclause 13(2) applies to the gaming machine.
The example at the end of subclause 13(4) explains for the reader that, if a
gaming machine premises has 11 gaming machines, and two machines are
removed from the premises (for any reason), leaving the gaming machine
premises with nine machines, the gaming machine premises will continue to
be treated as if it had more than 10 gaming machines, for the purposes of the
start of the precommitment and dynamic warning provisions of this legislation.
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National Gambling Reform Bill 2012
Chapter 1 - Preliminary
However, subclause 13(5) provides that subclause13(4) does not prevent
subclause (1) from applying in relation to a gaming machine if the premises
on which the gaming machine is made available for use cease to be small
gaming machine premises.
Example 1: Venue A has 25 gaming machines available for use on
31 December 2016. The precommitment system and dynamic warning
requirements apply to the premises from 31 December 2016.
Example 2: Venue B has 15 gaming machines available for use on
31 December 2016. The precommitment system and dynamic warning
requirements do not apply to Venue B at that date.
However, Venue B acquires six further gaming machines on or after
31 December 2016, bringing the total number of machines to 21.
Venue B must then comply with the precommitment system and
dynamic warning requirements from the time that their total number of
machines exceeds 20. The precommitment system and dynamic
warning requirements will continue to apply to Venue B even if the
number of gaming machines made available at the premises later
reduces to 20.
Example 3: Venue C has 10 gaming machines available for use on
31 December 2016.
Venue C replaces two machines with machines that are manufactured
or imported from 31 December 2013. These machines must be
precommitment capable because of the operation of Chapter 5 of the
Bill. For these two machines only Venue C will be required to comply
with the precommitment system and dynamic warning requirements
from 31 December 2020.
From 31 December 2020, Venue C will need to comply with
precommitment and dynamic warning requirements as they are
replaced.
Clause 14 - Application of automatic teller machine requirements
Clause 14 provides that Part 4 of Chapter 2 (ATM withdrawal limit) and
related parts of the new Act apply on and after 1 May 2013 in relation to any
automatic teller machine that is on any gaming machine premises.
A note draws to the attention of the reader that Part 4 of Chapter 2 does not
apply in relation to casinos, by reference to subclause 39(3).
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National Gambling Reform Bill 2012
Chapter 1 - Preliminary
Clause 15 - Application of manufacturing and importing requirements
Clause 15 provides that Chapter 5 (requirements for manufacturing and
importing gaming machines), and any other related provision of the new Act,
applies in relation to any gaming machine that is manufactured on or after
31 December 2013 and any gaming machine that is imported on or after
31 December 2013.
Clause 16 - Application of supervisory levy
Clause 16 sets out when the supervisory levy will apply to gaming machines.
The supervisory levy and the National Gambling Reform (Related Matters)
(No 1) Act 2012 will apply the day after this Act receives Royal Assent.
The note at the end of clause 16 confirms for the reader that the supervisory
levy is worked out in accordance with the method that will be prescribed in
regulations made under the National Gambling Reform (Related Matters)
(No. 1) Act 2012. An amount of supervisory levy is not payable until
regulations are made under this section prescribing a method for working out
the amount.
Clause 17 - Application of gaming machine regulation levy
Clause 17 sets out the application of Part 3 of Chapter 6 (gaming machine
regulation levy), and related provisions of the new Act, and the new National
Gambling Reform (Related Matters) Act (No. 2) 2012.
Subclause 17(2) provides that the gaming machine regulation levy provisions
apply on and after 1 January 2017 in relation to any gaming machine that is
made available for use, other than a gaming machine that is made available
for use on small gaming machine premises. The gaming machine regulation
levy is payable in relation to profits of gaming machines in certain instances
where the person making the gaming machine available is not, or is not
sufficiently connected to, a constitutional corporation.
Small gaming machine premises is defined in clause 5 by reference to
clause 9.
Subclause 17(3) deals with premises with 11 to 20 gaming machines. It
provides that the gaming machine regulation levy provisions apply on and
after 1 January 2021 in relation to any gaming machine that is made available
for use on such small gaming machine premises or for any gaming machine
that was manufactured or imported on or after 31 December 2013.
Subclause 17(4) deals with premises with no more than 10 gaming
machines. It provides that the gaming machine regulation levy provisions
apply on and after 1 January 2021 in relation to any gaming machine that is
made available for use on such gaming machine premises that was not made
available for use at those premises prior to that date or for any gaming
machine that was manufactured or imported on or after 31 December 2013.
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National Gambling Reform Bill 2012
Chapter 1 - Preliminary
Subclause 17(5) applies to any small gaming machine premises (that is,
premises with no more than 20 machines) that gain or lose machines. It
provides that, if the gaming machine regulation levy provision,
subclause 17(4), applies in respect of a particular machine, then the gaming
machine regulation levy provisions continue to apply to that machine despite
the number of machines available for use at the premises falling below 11 at
any later time.
Subclause 17(6) provides that subclause 17(5) does not prevent
subclause 17(2) from applying in relation to a gaming machine that is made
available for use on gaming machine premises if the premises cease to be
small gaming machine premises. This means that, if a venue increases the
number of its machines and is no longer considered a small gaming machine
premises, the gaming machine regulation levy provisions apply in respect of
all machines premises from that date.
Clause 18 - Performance of functions etc. after commencement
Clause 18 clarifies that certain functions, powers and actions can be
exercised or undertaken after the Act commences and before the relevant
provisions start to apply as a result of the application provisions in this Part.
This is because certain actions will need to be taken before the provisions of
the Act start to apply to ensure that the Act is fully effective when these
provisions start to apply.
In particular this provision ensures that the following can be undertaken
before the provisions of the Act starts to apply:
(a) an application can be made under the Act;
(b) a function or duty can be performed under the Act; or
(c) a power can be exercised under the Act.
A non-exhaustive list of examples is provided at the end of the clause
regarding the types of things that may occur after the Act commences but
before the application of the various Parts as a result of the provisions in this
Part.
The examples in the clause include:
· the making of regulations regarding exemptions from the ATM
withdrawal limit provision, licencing people or organisations to provide
precommitment systems and the manufacture and importation of
gaming machines;
· the making and determining of applications for exemption from the
ATM withdrawal limit requirements or for approval of precommitment
systems; and
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National Gambling Reform Bill 2012
Chapter 1 - Preliminary
· appointing authorised persons to assist the Regulator to undertake
their functions and powers.
Other examples of the sorts of things that can be done after commencement
but before the start of the provisions includes the making of regulations setting
out the testing procedure for precommitment systems and the licensing of
persons to undertake the testing of precommitment systems.
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Chapter 2 - National gambling reforms
Summary
Chapter 2 explains the concept of a precommitment system and how the
requirements in this Bill combine to establish a State or Territory-wide
precommitment system. This Chapter also includes provisions in relation to
new dynamic warning and automatic teller machine withdrawal limit
requirements.
Background
This Chapter provides for three national gambling reform measures.
The 2010 Productivity Commission Inquiry Report into Gambling found that
precommitment is a strong, practical and ultimately cost-effective tool for harm
minimisation in relation to gambling. Under Part 2, gaming machines must
have a precommitment system that complies with the requirements of Part 2.
A precommitment system allows a user of a gaming machine to set a limit
(called a loss limit) for a State or Territory on the amount that he or she is
prepared to lose during a period (called a limit period) using gaming machines
that are located in that State or Territory.
A person may choose whether to register for a State or Territory
precommitment system. At the time the person chooses to register with a
precommitment system for the State or Territory, the person must indicate
whether he or she wishes to set a loss limit for the State or Territory. If a
person elects to set a loss limit and uses a gaming machine as a registered
user, then once the person's net losses during a limit period reach that loss
limit, the person is prevented from using gaming machines located in the
State or Territory as a registered user for the rest of the person's limit period.
Under Part 3, a gaming machine must provide certain warnings relating to a
specific person's use of gaming machines, or the potential for harm from, and
the cost of, using gaming machines generally. Research has shown that
warning messages can be an effective way to change people's gambling
behaviour, and that users of gaming machines have a higher recall of
dynamic than static warnings.
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National Gambling Reform Bill 2012
Chapter 2 - National Gambling Reform
Under Part 4, automatic teller machines that are on gaming machine premises
(excluding casinos), clause 5 and clause 7 must not allow a person to
withdraw more than the cash limit (which is $250, as increased by indexation).
The Productivity Commission recommended, based on the limited evidence
available, that a daily limit of $250 on withdrawals from automatic teller
machines (excluding casinos) could help address gambling harms without
overly affecting non-problem gamblers and other patrons. They also
suggested that the daily withdrawal limit should be adjusted periodically to
account for inflation. Casinos are excluded due to the nature of their
diversified business environment and, in particular, their role in international
tourism, including as a tourist gambling destination.
Exemptions from the operation of all or specified provisions of this Chapter
are provided for under Part 5.
Part 1 - Guide to this Chapter
Clause 19 - Guide to this Chapter
Clause 19 sets out a brief Guide to this Chapter. The Guide explains that
while all gaming machines are required to have complying precommitment
systems, users may choose to register and use the precommitment system
and set a limit.
Part 2 - Precommitment system
Division 1 - Registration through precommitment system for user who
chooses to register
Clause 20 - When a gaming machine is not compliant
Clause 20 sets out when a gaming machine is not compliant. A gaming
machine will be not compliant if there is no precommitment system for the
gaming machine, or the precommitment system does not comply with the
requirements of this Part, or the precommitment system for the machine is not
an approved precommitment system.
Note 1 at the end of the clause signposts for the reader that approvals of
precommitment systems are dealt with under Division 2 of Part 5.
Note 2 signposts for the reader that a civil penalty provision applies where
gaming machines are not compliant, as set out in Part 2 of Chapter 3.
Clause 21 - Precommitment system to provide for registration and
cancellation
Clause 21 provides that a precommitment system for a State or Territory
must allow a person to choose to register with the system in that State or
Territory and must also allow the user to cancel their registration.
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National Gambling Reform Bill 2012
Chapter 2 - National Gambling Reform
The precommitment system must also prevent a person from re-registering
within that State or Territory within a particular time frame as set out in the
regulations (made under clause 201) if they have previously cancelled their
registration. A person must not be charged a fee for registering, or cancelling
their registration, for the precommitment system.
A person who chooses to register with the precommitment system will have
one registration that applies to them across the particular State or Territory. It
is the intention that, if there is more than one precommitment system within a
State or Territory those systems will link up and communicate to achieve this.
These provisions mean that it does not matter which gaming machine
premises the person first chooses to register at, their registration and loss limit
will apply at all gaming machine premises within the particular State or
Territory.
Clause 22 - Registration process for user who chooses to register
Subclause 22(1) provides that a precommitment system must require a user
who chooses to register to indicate whether they choose to set a loss limit, or
not, for the State or Territory. If the person chooses to set a loss limit, the
precommitment system must allow a person to do so.
The first note at the end of subclause 22(1) refers the reader to section 25,
and confirms that a person may choose to set a loss limit of $0. If a person
sets a loss limit of $0, then they are effectively excluding themselves from
using gaming machines as a registered user.
The second note following subclause 22(1) directs the attention of the reader
to additional rules in relation to registration in subclauses 28(2) to (4).
It is during the registration process that the user is required to consider the
level of the loss limit and the duration of the limit period applying to their loss
limit. This is a key harm minimisation component of the arrangements.
The precommitment system does not determine loss limits or limit periods for
people who choose to register, but is a tool by which users can budget and
set limits of their choice in the interests of consumer sovereignty and then
have a mechanism that assists them to remain within that limit.
Subclause 22(2) provides that the precommitment system must also provide
the person who chooses to register with a limit period. That is the length of
time for which a registered user's loss limit applies.
The note at the end of subclause 22(2) points out that the limit period must
comply with clause 25. At a minimum, the limit period of a State or Territory
must be 24 hours. This is the default limit period however the precommitment
system may allow the user to set the length of the limit period or specify a
period greater than 24 hours.
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Chapter 2 - National Gambling Reform
Subclause 22(3) provides that, if a person chooses to set a loss limit, the
precommitment system must inform a registered user about how the loss limit
and limit period work, including when their limit period starts.
Subclause 22(4) provides that, if a person does not choose to set a loss limit
the precommitment system must confirm that the person has chosen not to
set a limit and that they can change their mind and set a loss limit at any time.
This capability allows users to track their play and receive transaction
statements even if they do not choose to set a limit. This is an additional
harm minimisation option available to players.
Subclause 22(5) provides that the regulations (made under clauses 33
and 201) may prescribe requirements regarding the form, frequency, content
and position of information that must be provided to a registered player in
relation to their loss limit and limit period.
Clause 23 - Identification requirements during registration for user who
chooses to register
Clause 23 sets out the identification requirements for a person who chooses
to register through the precommitment system.
The precommitment system may use a photograph or signature to identify a
person who is registering with the system. The precommitment system
cannot use biometric processes to identify a person. Similarly, a
precommitment system for a State or Territory must not use biometric
processes to identify whether the person is registered for the State or Territory
(subclause 28(3)). An example of a biometric process is an iris scan or
fingerprinting.
The regulations (made under clause 201) may prescribe the method (other
than biometric processes) for identifying a person who chooses to register
through the precommitment system and can prohibit the use of certain
methods of identification. A precommitment system must comply with any
regulations made under this provision.
Clause 24 - Exclusion from system - setting a loss limit of $0
Subclause 24(1) provides that, through the setting of a loss limit of $0 for the
State or Territory, the user may in effect exclude themselves from using
gaming machines as a registered user.
The note at the end of subclause 24(1) confirms that, if a person sets a loss
limit of $0, this prevents the person from playing a gaming machine while a
registered user.
This is intended to be an additional harm minimisation tool to complement
existing arrangements currently operating in States and Territories which
enable people to self-exclude from gaming venues.
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Chapter 2 - National Gambling Reform
Subclause 24(2) provides that the regulations (made under clause 201) may
prescribe conditions for precommitment systems in relation to people who
exclude themselves from the system.
Clause 25 - Requirements for limit periods for user who chooses to
register
Clause 25 establishes the basic requirements for limit periods and confirms
that a precommitment system must ensure that a registered user's limit period
complies with the conditions set out in this clause.
If a precommitment system does not allow a person to nominate the length of
his or her limit period, the limit period must be 24 hours (that is, this is a
minimum). Precommitment systems may allow the user to set the length of
the limit period. Where this is allowed, the user may set a limit, although it
must still be at least 24 hours.
Limit periods may start at a time nominated by the person or at a time set by
the precommitment system for the State or Territory with which the person is
registering. For example a registered user may choose to start their limit
period at 10pm every Monday, or a State may set a nominal time of 6am
every day. The precommitment system may allow the person to change the
time at which a later limit period starts. Subsequent limit periods (other than
their first limit period or later limit period) whose start time has been changed
must start immediately after the end of the previous limit period.
Clause 26 - Changing, revoking and setting loss limits and limit periods
after initial registration
Clause 26 establishes that when a user chooses to take control of their
playing decisions through registering with a precommitment system, setting
loss limits and setting limit periods within a State or Territory, precommitment
systems must have the functionality to give effect to the user's pre-set limits
and help them monitor their play.
Subclause 26(1) provides that a precommitment system must allow a person
who chooses to register to change their loss limit, if they have chosen to set
one, and to set a loss limit if they had not chosen to do so at the time they
registered. In addition, where a precommitment system allows a user to
nominate the length of the limit period, the system must also allow the user to
change the length of the limit period.
The first note at the end of subclause 26(1) confirms for the reader that, if a
person revokes their decision to set a loss limit for a State or Territory, it
means that they do not have a loss limit for that State or Territory.
The second note at the end of subclause 26(1) refers the reader to clause 27
that sets out when changes to a registered user's loss limits take effect.
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Subclause 26(2) provides that, when a person revokes their loss limit, the
precommitment system must inform the registered user of the matters set out
in paragraphs 22(4)(a) and (b) in the same way as when the person
registered for the system.
Subclause 26(3) provides that, when a person chooses to set a loss limit for
a State or Territory the precommitment system must inform them of the
matters set out in paragraphs 22(3)(a) to (c).
Clause 27 - When changes to loss limits or limit periods may take effect
Clause 27 sets out when changes to a person's loss limit or limit period will
take effect.
Subclause 27(2) provides that, if a person wants to revoke their decision to
set a loss limit, increase their loss limit, or decrease their limit period the
precommitment system must ensure that the change does not take effect until
the end of the current limit period.
Subclause 27(3) provides that, if a person wants to set a loss limit, decrease
their loss limit, or increase their limit period, the precommitment system must
enable the change to take effect as soon as practicable. It is intended that the
precommitment system provide for these changes to take place immediately.
Subclause 27(4) confirms that a change set out in subclause 27(3) can take
effect before the end of the limit period (subject to the requirement that a limit
period be at least 24 hours).
Division 2 - Precommitment system requirements if a person chooses
to use a gaming machine as a registered user
Clause 28 - Registration of registered user to comply with requirements
Subclause 28(1) provides that a precommitment system for a gaming
machine located in a State or Territory must prevent a person registered for
the State or Territory from using the gaming machine as a registered user if
that person's registration does not comply with this clause.
The note at the end of subclause 28(1) confirms that a person is not required
to register for the precommitment system.
Subclause 28(2) provides that the precommitment system must be an
approved system for a person to be an appropriately registered user. The
note at the end of subclause 28(2) refers the reader to Division 2 of Part 5 of
in relation to approvals of systems by the Regulator.
Subclauses 28(3)and (4) respectively provide that a person must not be
registered more than once within a particular State or Territory and that a
person's registration through the precommitment system must comply with the
matters set out in clauses 22 to 25 above.
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Clause 29 - Identification of registered user
Clause 29 provides that the precommitment system must prevent a person
who has chosen to be a registered user from using a gaming machine as a
registered user unless they have identified themselves to the precommitment
system. The regulations (made under clause 201) may prescribe or prohibit a
manner of identifying a person as registered for a State or Territory.
A precommitment system cannot use biometric processes to identify a person
as registered.
The regulations may set out other ways (other than biometric processes) in
which a person can identify themselves for the purposes of the
precommitment system. The regulations may also specify that particular
methods of identification cannot be used to identify a person. If regulations
have been made regarding these matters a precommitment system must
comply with the regulations.
Clause 30 -Monitoring and transmitting expenditure and winnings for
registered user
Clause 30 requires that the expenditure and winnings of a registered user are
recorded and transmitted to the precommitment system to allow users to
obtain an accurate record of their playing history and ensures that the loss
limit is upheld. The clause provides that, if a person uses, as a registered
user, a gaming machine, the precommitment system for the gaming machine
must monitor each amount of money or credit that the person spends, and
each amount of money or credit that the person wins during a session, and
transmit the totals of this information at the end of a registered user's session
of play in accordance with the regulations (made under clause 201).
For the purposes of this provision a person spends money or credit when they
press a button or touch the screen to indicate their confirmation (that is,
commit to game play by confirming their bet).
Clause 31 - Precommitment information for registered user
Clause 31 sets out that a precommitment system for a machine must provide
a person using the gaming machine as a registered user with a range of
information about their loss limit, limit period and play.
Subclause 31(2) sets out the information that must be provided to a person
who chooses to play as a registered user before play commences, where that
person has set a loss limit, as follows:
(a) the loss limit;
(b) the limit period;
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(c) the amount that is remaining of the loss limit for the current limit
period; and
(d) any other information that is required by regulations (made under
clause 201) to be given.
Subclause 31(3) provides that in addition to the information set out in
subclause 31(2) above the precommitment system can also allow for the
following information to be provided:
(a) the length of time since the person last set or changed their loss
limit; and
(b) if the system allows the person to nominate a limit period - the
length of time since the person last nominated or changed their limit
period.
Subclause 31(4) sets out the information that must be provided to a person
who chooses to play as a registered user before play commences, where that
person has not set a loss limit, as follows:
(a) the length of time since the person last decided not have a loss limit
for the State or Territory; and
(b) any other information that is required by regulations (made under
clause 201) to be given.
The note at the end of subclause 31(4) refers the reader to clause 5 regarding
when a person decides not to have a loss limit.
Subclause 31(5) provides that, if a registered user uses a gaming machine
for a specified period of time (as prescribed by the regulations) the
precommitment system must inform the person of their net losses for the
current limit period. Further, if a person has chosen to set a loss limit, the
amount remaining of the person's loss limit for the current limit period and any
other information as prescribed in the regulations.
Subclause 31(6) provides that the Regulations can prescribe further matters
in relation to the information that is to be provided to a person who has
chosen to use a gaming machine as a registered user. These other matters
can include, but are not limited to, the form, frequency, content and position of
the information to be provided.
Clause 32- No use of gaming machine by registered user after loss limit
reached
Subclause 32(1) provides that, if a person uses a gaming machine in a State
or Territory as a registered user, the precommitment system must prevent the
person from continuing to use the gaming machine (as a registered user), if
the person has reached their loss limit (if they have chosen to set a loss limit).
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The note at the end of subclause 32(1) confirms for the reader that a person
can recommence play as a registered user in a State or Territory when their
current limit period in that State or Territory has ended.
Subclause 32(2) provides that the precommitment system in a State or
Territory must prevent the person from using a gaming machine in that State
or Territory as a registered user if, after a bet is made, the person's net losses
during the limit period equal or exceed the person's loss limit (if they have
chosen to set a loss limit) for that State or Territory.
Subclause 32(3) provides that a person's loss limit will be reached if a
person uses a gaming machine in a State or Territory as a registered user
and after the bet is made their net losses are equal to or exceed their loss
limit for that State or Territory.
Subclause 32(4) provides that if a person has set a loss limit of $0 for that
State or Territory, the precommitment system must not allow the person to
use a gaming machine in that State or Territory as a registered user. That is,
if a person has set a loss limit of $0 that person is not permitted to use a
gaming machine as a registered user at all. A decision by a person to set a
loss limit of $0 means that that person has elected to preclude themselves
from using a gaming machine as a registered user and is not able to place a
bet on a gaming machine as a registered user.
Clause 33 - Capability requirement for precommitment systems
Subclause 33(1) provides that a precommitment system in a State or
Territory must be capable of preventing a person from using a gaming
machine if the person is not a registered player for that State or Territory.
Subclause 33(2) confirms that although a precommitment system for a State
or Territory must be able to prevent a person who is not a registered user
from using a gaming machine it is not actually required to prevent a person
who is not registered from using a gaming machine. A precommitment
system in a State or Territory will not be required to prevent a person who is
not registered from using a gaming machine unless amendments are made to
this Act requiring all users of gaming machines to be registered.
The Act does not currently require people to register for the precommitment
system and accordingly precommitment systems do not need to prevent
people who choose not to register from using a gaming machine. In the event
that this Act is later amended to require people to register with the
precommitment system subclause 33(1) will ensure that the precommitment
systems already in place will ensure that people who have not registered will
not be able to use gaming machines.
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Division 3 - Other requirements for precommitment systems.
Clause 34 - Transaction statement for registered user
Clause 34 provides that a precommitment system must provide a transaction
statement for a registered user on request. The transaction statement must
be a written statement including the following information, in respect of the
State or Territory:
(a) the person's loss limit, if any;
(b) the length of time since the person last set or changed their loss limit,
or decided not to have a loss limit;
(c) the amount of money or credit that the person has spent and won from
gaming machines during the current limit period and the last 12 months
(or for the entire period the person has been a registered user where
the person has been registered less than 12 months); and
(d) the number of times during the previous 12months that the person was
prevented from using, or continuing to use, a gaming machine as a
registered user.
A transaction statement can be provided to a person in an electronic format, if
they elect to receive it that way, as a result of the operation of the Electronic
Transactions Act 1997.
It is intended that, for the purposes of this clause, the word amount also
includes a nil amount. The regulations (made under clause 201) can
prescribe other matters that are to be included in a transaction statement.
There is to be no fee charged to a registered user for the provision of a
transaction statement.
A registered user can access as many transaction statements as they choose
in any given period. Each transaction statement will provide them with
information in relation to their use of a gaming machine during the previous
12 months.
Clause 35 - Additional requirements for precommitment systems in
regulations
Clause 35 provides that the regulations may prescribe additional
requirements for precommitment systems, and that this power is not limited by
any other clause in this Part.
A note inserted at the end of clause 35 provides that the regulations may not
prescribe requirements that are inconsistent with the scheme that is
established by this Part.
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Clause 36 - No national database of protected information from
precommitment systems
Clause 36 provides that a national database of protected information from
precommitment systems must not be established.
Part 3 - Dynamic warnings
Clause 37 - When a gaming machine is not compliant
Clause 37 provides that a gaming machine is not compliant if the machine
does not provide a warning in accordance with clause 38.
Clause 38 - Dynamic warnings
Clause 38 provides that gaming machines must provide dynamic warnings in
accordance with this clause.
The warnings must relate to the use by a specific person of a gaming machine
or gaming machines, or the potential for harm from, and the cost of, using
gaming machines generally.
Regulations (made under clause 201) may prescribe requirements for
warnings including in relation to the form, frequency, content and position of
the warnings and in relation to warnings more generally under clause 38.
The note at the end of clause 38 confirms that the regulations cannot
prescribe requirements that are inconsistent with this part of the legislation.
Part 4 - ATM withdrawal limit for gaming machine premises (other than
casinos)
Clause 39 - ATM withdrawal limit for gaming machine premises (other
than casinos)
Clause 39 provides that an automatic teller machine on gaming machine
premises must not allow a person to withdraw more than $250 cash in total
using a single card in a period of 24 hours from that or any other automatic
teller machine that is located on those premises. This clause does not apply
to automatic teller machines that are located in premises that are licensed or
approved as a casino and other exempt premises.
Note 1 at the end of subclause 39(1) refers the reader to penalties that can be
imposed where automatic teller machines do not comply with this provision.
Note 2 at the end of subclause 39(1) confirms for the reader that this provision
is not intended to override a State or Territory law that is more restrictive than
this provision (such as not allowing automatic teller machines on gaming
machine premises).
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Clause 40 - Indexation
Clause 40 provides that the limit on the amount of cash that may be
withdrawn under these provisions may be increased through the operation of
regulations (made under clause 201). These regulations may prescribe a
method of working out an increase in the amount of cash that can be
withdrawn by reference to the movement of a specified index.
Clause 41 - Anti-avoidance - determination of gaming machine
premises
Clause 41 provides that the Regulator can determine that a place is a
`gaming machine premises' if it would be concluded that a person has
provided an automatic teller machine at the place for the sole or dominant
purpose of avoiding the withdrawal limit provisions set out in Part 3 of
Chapter 3 or Part 4 of this Chapter.
In determining that a person has provided an automatic teller machine in a
gaming machine premises the Regulator can determine that a particular
location is a gaming machine premises.
A note alerts the reader to the fact a decision to make such a determination is
reviewable under clauses 198 and 199.
A determination by the Regulator under subclause 41(1) is not a legislative
instrument within the meaning of the Legislative Instruments Act 2003.
Subclause 41(3) is inserted to assist readers and is merely declaratory of the
law.
Part 5 - Provisions related to national gambling reform
Division 1 - Exemptions from ATM withdrawal limits
Clause 42 - Exemptions from ATM withdrawal limit - regulations
Clause 42 provides that the regulations (made under clause 201) may
prescribe premises which are exempt from the operation of the automatic
teller machine withdrawal limits specified earlier in this Chapter. The
regulations may also specify conditions that must be complied with to enable
a gaming machine premises to benefit from a determination under this
provision. The note at the end of subclause 42(1) refers the reader to
clause 46 for the effect of an exemption on State or Territory law.
Clause 43 - Exemptions from ATM withdrawal limit - application to
Regulator
Clause 43 provides that a person who occupies gaming machine premises
may make an application to the Regulator for the premises to be exempt from
the automatic teller machine withdrawal limits.
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This provision sets out how an occupier of a gaming machine premises can
apply for an exemption and the basis on which the Regulator can grant the
exemption. It is intended that the Regulator would grant an exemption where
the imposition of a limit would cause unreasonable inconvenience to the
members of the local community in which the gaming premises is located.
In order to ensure members of those communities continue to have
reasonable access to cash withdrawal facilities that enable them to conduct
everyday transactions, there may be cases where an automatic teller machine
in gaming machine premises needs to be exempt from daily withdrawal limits.
For example in rural or regional settings,, gaming machine venues may house
the only available automatic teller machine for those communities or in an
urban setting the automatic teller machine may be situated where it can most
appropriately be accessed by relevant members of the community.
Such an exemption must be granted in writing, and a condition of the
exemption may be varied or revoked, also in writing.
An exemption granted by the Regulator under this provision is not a legislative
instrument. Subclause 43(6) is added to assist the reader and is merely
declaratory of the law as the determination of the Regulator under
subclause 43(3) is not a legislative instrument within the meaning of the
Legislative Instruments Act 2003.
Clause 44 - Process for deciding exemptions
Clause 44 sets out the matters to which the Regulator must have regard
when deciding whether to grant an exemption under clause 43. The
Regulator must consider:
(a) the object of this new Act;
(b) any other facilities available to the community to access cash; and
(c) any other matter that the Regulator considers appropriate.
In considering an application for an exemption, the Regulator may also
consult with other groups as considered appropriate. These other groups
may include the following:
(a) State government;
(b) local government;
(c) community groups;
(d) individuals within the community; and
(e) any other person or body.
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Clause 45 - Effect of exemptions on State or Territory law
Clause 45 provides that an exemption granted under the new Act is not
intended to exclude or limit the operation of a State or Territory law that is
capable of operating at the same time in relation to the gaming machine
premises.
Division 2 - Approvals and licences for precommitment systems
Subdivision A - Approving precommitment systems
Clause 46 - Applications for approvals
Clause 46 provides that a licensed provider of precommitment systems
(the applicant) may apply to the Regulator for approval of a precommitment
system for a State or Territory, or variation to the approved terms and
conditions for the precommitment system for a State or Territory.
Clause 47 - Form of applications
Clause 47 provides that an application under this subdivision must be in the
approved form, and be accompanied by any other documents and fee
prescribed in the regulations.
For an application to approve a precommitment system, the application must
also include any terms and conditions on which the precommitment system
would be provided to gaming machine premises. For example, terms and
conditions may relate to costs and equitable service within a State or
Territory, and the continuous availability and quality of the precommitment
system made available. This is intended to ensure that precommitment
systems are offered on reasonable terms and terms that are fundamentally
consistent across Australia.
For an application to approve a variation to the approved terms and conditions
the application must be accompanied by the proposed variation to those
terms and conditions.
If a precommitment system provider does not make a precommitment system
available on the terms and conditions approved by the Regulator (for example
where the precommitment system is not continuously available or of poor
quality):
· their approval to provide precommitment systems can be revoked by
the Regulator under clause 54 below, and
· they can be subject to a civil penalty, if the licensed precommitment
system provider is a constitutional corporation (clause 55).
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Clause 48 - Requiring further information
Clause 48 provides that the Regulator may, by notice given to the applicant,
require the provision of any further information or documentation that the
Regulator feels is required to enable the Regulator to make a decision on
whether to grant approval to the applicant.
The Regulator is not required to make a decision in relation to the application
until such time as the further requested information is provided by the
applicant.
Clause 49 - Amendment and withdrawal of application
Clause 49 provides that an applicant may amend or withdraw their application
for approval of a precommitment system at any time before the Regulator
makes a decision. Withdrawal of the application does not prevent the
applicant from submitting a new application at a later date. No fee can be
charged to an applicant for amending their application. If an applicant
withdraws their application for approval any application fee paid by the
applicant is to be refunded to them.
Clause 50 - Testing precommitment systems
Clause 50 provides that the Regulator may require that a proposed
precommitment system be tested in accordance with the regulations (made
under clause 201) for determining whether the proposed system meets the
requirements for a compliant precommitment system.
The regulations may provide for a licensing scheme for persons to test the
precommitment system in accordance with the procedure set out in the
regulations.
Clause 51 - Approving precommitment systems and variations to
approved terms and conditions
Clause 51 sets out the circumstances in which the Regulator may give
approval for a precommitment system.
Subclause 51(1) provides that the Regulator may approve, in writing, a
precommitment system if the Regulator is satisfied that the system complies
with the requirements of the new Act, that the applicant has paid the fee
prescribed in the regulations and that the terms and conditions on which the
precommitment system will be provided to people are reasonable, taking into
account the matters prescribed in the regulations.
The note at the end of subclause 51(1) refers the reader to the review
provisions in clause 198 and 199 available in the event that the Regulator
refuses to approve a precommitment system.
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Subclause 51(2) provides that the Regulator can refuse an application for
approval of a precommitment system if the Regulator is satisfied that,
although the system complies with the requirements in Part 2 of Chapter 2 of
the new Act, there are features of the system that are incompatible with the
objects of the new Act.
Subclause 51(3) provides that, if the Regulator approves a precommitment
system for a State or Territory under subclause 51(1) the terms and
conditions that accompanied the application for approval are taken to have
been approved.
The note at the end of subclause 51(3) refers the reader to the civil penalty
provisions in clause 55 that apply to a person who provides a precommitment
system on terms and conditions that are different to the terms and conditions
that were approved by the Regulator.
Subclause 51(4) provides that the Regulator may approve, in writing, a
variation to existing terms and conditions for a particular precommitment
system if the Regulator is satisfied that the new terms and conditions on
which the precommitment system will be provided are reasonable, taking into
account the matters prescribed in the regulations.
The note at the end of subclause 51(4) refers the reader to the review
provisions in clauses 198 and 199 in the event that the Regulator refuses to
approve a variation to the terms and conditions.
Clause 52 - Notification of approvals
Clause 52 sets out that the Regulator must give a copy of the approval to the
applicant as soon as practicable after the approval is granted. The copy of
the approval must state the terms and conditions that were approved for the
precommitment system.
If the Regulator approves a variation to the terms and conditions for a
precommitment system, the Regulator must amend the approval for the
precommitment system accordingly.
The Regulator's approval is valid for ten years, unless it is revoked earlier. A
copy of an approval for a precommitment system, or a variation of that
approval, must be published in a manner deemed appropriate by the
Regulator.
Clause 53 - Changes to precommitment requirements
Clause 53 confirms that, if there is a change to the requirements for a
precommitment system after an approval has been granted, the changes
apply to the precommitment system that has already been approved.
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Clause 54 - Revocation of approvals
Clause 54 provides that the Regulator may revoke the approval of a
precommitment system for a particular State or Territory if the Regulator is
satisfied:
(a) that the precommitment system does not comply with the requirements
in Part 2 of Chapter 2; or
(b) that, although the system complies with the requirements in Part 2 of
Chapter 2 of the new Act, there are features of the system that are
incompatible with the objects of the Act; or
(c) the precommitment system is being provided subject to terms and
conditions other than those that have been approved by the Regulator.
The Regulator must publish a notice revoking the approval of the
precommitment system, and can publish the notice in any manner deemed
appropriate.
The note at the end of subclause 54(1) refers the reader to the review
mechanisms in clauses 198 and 199.
Clause 55 - Civil penalty for failing to provide precommitment system in
accordance with approved terms and conditions
Clause 55 provides that a licensed provider of a precommitment system, that
is a constitutional corporation, must not provide a precommitment system
subject to terms and conditions other than the terms and conditions that have
been approved by the Regulator. The maximum penalty that applies for
breach of this provision is 200 penalty units.
Subdivision B - Licences for providing etc. precommitment systems
Clause 56 - Regulations may provide in relation to licensing persons
who provide etc. precommitment systems
Clause 56 sets out that the regulations (made under clause 201) may provide
for a licensing scheme for persons to provide precommitment systems for
gaming machines.
The regulations can also set out a scheme for licensing persons who may
operate, repair, maintain or install precommitment systems for gaming
machines.
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Chapter 3 - Civil penalty provisions for non-compliance with national
gambling reforms
Summary
This Chapter contains civil penalty provisions in relation to gaming machines
and automatic teller machines that do not comply with the requirements set
out in Chapter 2.
Background
Under Part 2 of this Chapter, a person may contravene a civil penalty
provision if the person makes a non-compliant gaming machine available for
use and the gaming machine is made available for use by a constitutional
corporation or owned, or on premises occupied by, a constitutional
corporation. Part 2 also provides for circumstances under which there are
exceptions.
Under Part 3 of this Chapter, a person may contravene a civil penalty
provision for occupying gaming machine premises (other than casinos) on
which there is a non-compliant automatic teller machine or for providing a
non-compliant automatic teller machine on gaming machine premises (other
than casinos).
Part 1 - Guide to this Chapter
Clause 57 -Guide to this Chapter
This clause sets out a brief guide to this Chapter.
Part 2 - Gaming machines that do not comply with precommitment
systems and dynamic warning requirements
Clause 58 - Making non-compliant gaming machine available for use
Subclause 58(1) provides that a person contravenes a civil penalty provision,
if the person makes a non-compliant gaming machine available for use, and
at that time:
· the person is a constitutional corporation; or
· the gaming machine is owned by a constitutional corporation and an
agent of the constitutional corporation makes the machine available
for use; or
· the gaming machine is owned by a constitutional corporation and is
made available for use in the constitutional corporations business or
activities; or
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· the gaming machine is located on premises occupied by a
constitutional corporation and is made available for use in the
constitutional corporation's business or activities.
The penalty that applies for breach of this provision is 10 penalty units for
each day that the gaming machine is made available for use. A penalty unit is
currently $110. The note at the end of subclause 58(1) confirms for the
reader that in accordance with clause 8 a person can make a gaming
machine available for use alone or together with others.
Subclause 58(2) provides that subclause 58(1) will not apply if a person
makes a gaming machine available for use in Australia, or a gaming machine
is capable of being made available for use in Australia, but there is not an
approved precommitment system that could operate in relation to that gaming
machine and is available to be purchased.
Subclause 58(3) provides that subclause 58(2) will apply whether or not the
gaming machine is one to which subclause 58(1) applies and regardless of
who makes the gaming machine available for use.
Subclause 58(4) makes clear that for the purposes of paragraph 2(b) an
approved precommitment system for a State or Territory could operate in
relation to a gaming machine even if the precommitment system is temporarily
unavailable as a result of an operational or technical issue.
Subclause 58(5) makes clear that subclause 1 does not apply if the
precommitment system fails to comply or the gaming machine fails to comply
and the person does not know and could not reasonably be expected to know
that the precommitment system or the gaming machine does not comply with
the requirements.
Subclause 58(6) makes clear that subclause 1 does not apply if the person
can prove that the failure is as a result of an operational or technical issue, the
failure is not the fault of any person who makes the gaming machine available
for use and remedying the failure is not within the control of any person who
makes the gaming machine available for use.
Subclause 58(7) provides that a person who wishes to rely on subclause (2),
(4) or (5) in proceedings for a civil penalty order bears an evidential burden in
relation to that matter. That is, the defendant is required to prove, on the
balance of probabilities, that there was not an approved precommitment
system available for use in the location where the gaming machine was or
that the person held an honest and reasonable belief that the precommitment
system or gaming machine was compliant with the legislation. This is
appropriate as these matters are peculiarly within the defendant's knowledge
and not available to the prosecution.
The reversal of the onus of proof in these circumstances is considered to be
consistent with Part 4.3.2 of A Guide to Framing Commonwealth Offences,
Infringement Notices and Enforcement Powers.
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National Gambling Reform Bill 2012
Chapter 3 - Civil penalty provisions for non-compliance with national gambling reform
Part 3 - Automatic teller machines that do not comply with
withdrawal limits
Division 1 - Constitutional provisions
Clause 59 - Application of this Part
Clause 59 provides that this Part applies to any automatic teller machine that
dispenses currency.
Clause 60 - Additional operation of this Part
Subclause 60(1) provides that this Part also applies to the extent provided for
in this clause.
Subclause 60(2) provides that this Part has effect as if references to a person
who provides an automatic teller machine were confined to:
(a) a bank other than a State bank; or
(b) any other institution that is engaged in banking.
The provision of an automatic teller machine must be in the course of
banking, which has the meaning as set out in section 51(xiii) of the
Constitution.
Subclause 60(3) provides that this Part has the effect it would have if a
reference to a person who occupies premises or who supplies an automatic
teller machine were limited to a reference to a constitutional corporation.
Clause 61 - Part not to apply to State banking
Clause 61 confirms that this Part does not apply to State banking where that
banking does not extend beyond the limits of the State involved.
Division 2 - Civil penalty provisions
Clause 62 - Occupying premises containing non-compliant automatic
teller machine
Clause 62 provides that a person will contravene this clause if the person
occupies gaming machine premises (other than casinos) and they allow
another person to provide an automatic teller machine that allows people to
withdraw more cash than is permitted by the withdrawal limits.
The penalty for contravening this provision is five penalty units for each day
that the automatic teller machine is available for use on the gaming machine
premises (other than casinos). A penalty unit is currently $110.
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National Gambling Reform Bill 2012
Chapter 3 - Civil penalty provisions for non-compliance with national gambling reform
Note 1 at the end of the clause refers the reader to the exceptions in
clause 65.
Note 2 at the end of the clause confirms for the reader that this provision
applies whether the occupier of the premises shares the premises with others
or not.
Clause 63 - Providing non-compliant automatic teller machine
Clause 63 provides that a person contravenes this clause if they provide an
automatic teller machine on gaming machine premises (other than casinos)
and the automatic teller machine allows a person to withdraw more than the
withdrawal limit.
The penalty for contravening this provision is 10 penalty units for each day
that the automatic teller machine is available for use on the gaming machine
premises. A penalty unit is currently $110.
Note 1 at the end of the clause refers the reader to the exceptions in
clause 65.
Note 2 at the end of the clause confirms for the reader that this provision
applies whether the supplier of the automatic teller machine does so with
others or not.
Clause 64 - Civil penalty provision contravened without a person
withdrawing more than cash limit
Clause 64 is an avoidance of doubt provision, and confirms for the reader that
a person can contravene clause 62 and clause 63 even if nobody withdraws
more than the withdrawal limit from the automatic teller machine in question.
Clause 65 - Exception for premises covered by exemption and casinos
Subclause 65(1) provides that clauses 62 and 63 do not apply to a person
where there is an existing exemption under clause 41 or 43 above regarding
the automatic teller machine and any conditions imposed under those clauses
are being complied with.
Subclause 65(2) provides that clauses 62 and 63 do not apply to premises
licensed or approved as a casino in the State or Territory where the premises
are located.
Subclause 65(3) provides that the burden of proof in relation to the matters
set out in subclauses 65(1) and (2) lies with the defendant. This burden is in
relation to the defences provided for in those subclauses in relation to
contravention of earlier provisions. That is, the defendant is required to prove,
on the balance of probabilities, that they meet the exceptions set out in
subclauses 65(1) and (2), which is information that would be within the
particular knowledge of the defendant.
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National Gambling Reform Bill 2012
Chapter 3 - Civil penalty provisions for non-compliance with national gambling reform
The reversal of the onus of proof in these circumstances is considered to be
consistent with Part 4.3.2 of A Guide to Framing Commonwealth Offences,
Infringement Notices and Enforcement Powers.
32
Chapter 4 - Privacy
Summary
Part 2 of this Chapter creates offences to protect information that has been
obtained under the new Act, including information obtained from
precommitment systems, from unauthorised disclosure or use.
Staff and former staff of the Regulator, any person who obtains information
from a precommitment system, and certain others, may commit an offence for
disclosing or using the information if the disclosure or use is not authorised.
Disclosing and using information is authorised in a number of situations,
including for the purposes of the new Act or law enforcement, or with consent.
Background
A key object of the Act is to ensure that the privacy of users of gaming
machines is protected.
Information about registered users obtained through the precommitment
system (defined as protected information) will be confidential and therefore,
protected against unauthorised disclosure and use. Chapter 4 protects
registered user information by restricting what can be done with such
information and providing offences for unauthorised disclosure or use of
protected information. These rules need to be read in conjunction with
additional rules on personal information contained in the Privacy Act 1988.
The definition of protected information for the purposes of the privacy
provisions in this Bill operates in a similar manner to those definitions in the
A New Tax System (Family Assistance) (Administration) Act 1999 and the
Social Security (Administration) Act 1999. It relates to information about a
person obtained in the course of performing functions and duties under the
new Act, and information contained in the precommitment systems. The
definition includes all information obtained and is in effect `all encompassing',
beyond the definition of personal information in the Privacy Act 1988. The
adoption of a broad definition will afford this information a consistent level of
protection with that provided under the family assistance law and the social
security law. The provisions contained in this Chapter are generally no more
onerous on organisations that the National Privacy Principles contained in the
Privacy Act 1988.
There are however some purposes for which protected information can be
disclosed or used.
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National Gambling Reform Bill 2012
Chapter 4 - Privacy
Part 1 - Guide to this Chapter
Clause 66 - Guide to this Chapter
This clause sets out a brief guide to this Chapter.
Part 2 - Privacy
Division 1 - Offences for unauthorised disclosure or use of protected
information
Clause 67 - Offences for unauthorised disclosure or use of protected
information
Subclause 67(1) provides for an offence where an entrusted person
discloses or uses protected information in a manner that is not authorised
under the new Act. The term entrusted person is defined in subclause 67(4)
below and the term protected information is defined in subclause 67(5)
below.
It is a criminal offence for an entrusted person who obtains protected
information in the course of their functions, duties or powers as an entrusted
person to disclose or use protected information in a manner that is not
provided for under the new Act. The penalty for using or disclosing protected
information without authority is 120 penalty units, two years' imprisonment, or
both. A penalty unit is currently $110.
Subclause 67(2) provides for an offence where a person discloses or uses
information obtained from the precommitment system in a manner that is
not authorised under the new Act. The term precommitment system is
defined in clause 5 in Chapter 1 of this Bill.
It is a criminal offence for a person who obtains information from the
precommitment system to disclose or use protected information in a manner
that is not provided for under the new Act. The penalty for using or disclosing
protected information without authority is 120 penalty units, two years'
imprisonment, or both.
Subclause 67(3) provides for an offence where a person who has obtained
protected information as a result of an authorised disclosure subsequently
discloses or uses that protected information in a manner that is not authorised
under the new Act.
It is a criminal offence for a person who obtains information by way of
authorised disclosure to further disclose or use that protected information in a
manner that is not provided for under the new Act. The penalty for using or
disclosing protected information without authority is 120 penalty units, two
years' imprisonment, or both.
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National Gambling Reform Bill 2012
Chapter 4 - Privacy
Subclause 67(4) defines the term entrusted person. A person will be an
entrusted person if they are, or were:
(a) the Regulator, as defined in clause 104;
(b) an authorised person, as defined in clause 113;
(c) a person assisting, as defined in clause 121;
(d) an officer or employee made available to the Regulator under
clause 108;
(e) a consultant engaged under clause 109; or
(f) a person delegated with functions, duties or powers by the
Regulator under clause 200.
This clause ensures that all people who are likely to obtain protected
information in the course of performing their functions, powers or duties under
the new Act cannot use or disclose that information unless that use or
disclosure is otherwise authorised.
Subclause 67(5) defines protected information. Information is protected
information if it is about a person other than the person who obtains the
information and is obtained:
(a) by a person in the course of performing their functions powers or
duties under the new Act;
(b) from the precommitment system; or
(c) from an authorised disclosure of information that obtained under
paragraphs (a) and (b) above.
Subclause 67(6) defines the term authorised disclosure or use to mean a
disclosure or use that is authorised under a provision contained in Division 1
within Part 2 of Chapter 4 of the Bill. A disclosure of information is an
authorised disclosure if the disclosure is authorised under this Division.
There are a number of authorised disclosures set out in Division 2 of this Part
below.
The note at the end of subclause 67(6) signposts for the reader that, if a
disclosure or use is an authorised disclosure or use as defined in this
subclause, that disclosure or use will be considered to be authorised by law
for the purposes of the Privacy Act 1988.
Subclause 67(7) provides for a definition of authorised disclosure
information for the purposes of this Division. Information will be authorised
disclosure information if it is protected information and has been obtained by
the person pursuant to an authorised disclosure or use as defined in
subclause 67(6) above.
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National Gambling Reform Bill 2012
Chapter 4 - Privacy
Division 2 - Authorised disclosure or use by Regulator, other entrusted
persons and others
Subdivision A - Authorised disclosure or use by Regulator, other entrusted
persons and others
Clause 68 - Authorised disclosure or use - official duties
Subclause 68(1) provides that an entrusted person (as defined in
subclause 67(4) above) may use or disclose protected information, provided
that the use or disclosure is for the purposes of the new Act and the person
still falls within the definition of entrusted person. It is intended that, if a
person is no longer an entrusted person, as defined, they are not permitted to
use or disclose protected information in any way.
Subclause 68(2) provides that any person who obtains protected information
from the precommitment system can only use or disclose that information for
the purposes of the new Act.
Subclause 68(3) provides that any person who obtains protected information
by way of an authorised disclosure is only permitted to use or disclose that
information for the purpose of the new Act.
Clause 69 - Who may disclose or use information in accordance with
sections 70 to 73
Subclause 69(1) provides that:
(a) the Regulator or a person authorised under a delegation;
(b) a person who obtains information from the precommitment system;
and
(c) a person who obtains authorised disclosure information;
can rely on the authorised disclosure provisions in clause 70 to clause 73
below to disclose protected information. A person listed above can also use
protected information in accordance with clause 71.
However, an entrusted person (other than the Regulator or his delegate) is
prevented from disclosing authorised disclosure information or information
obtained from the precommitment system using the authorisation provisions in
clause 70 to clause 73. An entrusted person or an authorised person can
only use or disclose protected information in the course of their duties,
functions or powers.
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National Gambling Reform Bill 2012
Chapter 4 - Privacy
Clause 70 - Authorised disclosure - law enforcement
Clause 70 authorises disclosure of protected information for the purposes of
law enforcement.
Paragraph 70(1)(a) provides that a person referred to in subclause 69(1) can
disclose protected information where they reasonably believe that the
disclosure is necessary for the enforcement of the criminal law, the civil law or
for the protection of the public revenue.
Paragraph 70(1)(b) provides that a disclosure under paragraph 70(1)(a) is
only permitted where the information is disclosed to a Commonwealth, State
or Territory Department, agency or authority, the Australian Federal Police or
the police of a State or Territory.
Paragraph 70(1)(c) provides that disclosure to an organisation set out in
paragraph 70(1)(b) is only authorised where that organisation is responsible
for enforcement of the law.
Subclause 70(2) provides that the Regulator can set out written conditions
that must be adhered to in relation to protected information that is disclosed
under this subclause 70(1). This allows the Regulator to impose conditions
on the use and disclosure of information disclosed under subclause 70(1)
above. These conditions can be issued on a case-by-case basis, depending
on the protected information being disclosed and the law to be enforced.
Subclause 70(3) provides for a criminal offence where the Regulator has
imposed conditions under subclause 70(2) above and a person engages in
conduct that breaches the condition imposed by the Regulator. The penalty
for breaching a condition imposed by the Regulator in relation to the
protection information is 120 penalty units, two years' imprisonment, or both.
A penalty unit is currently $110.
Subclause 70(4) provides that an instrument made under subclause 70(2)
above is not a legislative instrument. This provision is inserted to assist
readers and is merely declaratory of the law. The determination of the
Regulator under subclause 70(2) is not a legislative instrument within the
meaning of the Legislative Instruments Act 2003.
Clause 71 - Authorised disclosure - consent
Clause 71 provides that a person set out in subclause 69(1), can use or
disclose protected information where the person to whom the information
relates consents to that use or disclosure.
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National Gambling Reform Bill 2012
Chapter 4 - Privacy
Clause 72 - Authorised disclosure - threat to life or health
Clause 72 permits disclosure by a person set out in subclause 69(1) of
protected information to prevent, or lessen, a threat to the life or health of a
person. This is very similar to the terms of Information Privacy
Principle 11(1)(c) in section 14 of the Privacy Act 1988 and to provisions
contained in public interest disclosure guidelines in the social security law and
family assistance law.
Clause 73 - Authorised disclosure - publicly available information
Clause 73 permits disclosure by a person set out in subclause 69(1) of
protected information where that information has already been lawfully made
publicly available.
Subdivision B - Authorised disclosure by Regulator
Clause 74 - Authorised disclosure - Minister
Clause 74 permits the Regulator to disclose protected information to the
Minister.
It is intended that this provision would be used to disclose protected
information where that protected information is necessary to brief a Minister:
(a) to enable the Minister to consider complaints or issues by, or on behalf
of a person, and respond to that person accordingly;
(b) for a meeting or forum that the Minister is to attend;
(c) in relation to issues raised, or proposed to be raised by or on behalf of
a person;
(d) so that the Minister can respond by correcting a mistake of fact, a
misleading perception or impression, or a misleading statement; or
(e) about an anomalous or unusual operation of the new Act.
Clause 75 - Authorised disclosure - Commonwealth, State and Territory
agencies
Subclause 75(1) provides that the Regulator can disclose de-identified
protected information to a Department of the Commonwealth, or a State or
Territory to enable that Department to perform its functions or exercise its
powers.
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National Gambling Reform Bill 2012
Chapter 4 - Privacy
Subclause 75(2) provides that the Regulator can set out written conditions
that must be adhered to in relation to protected information that is disclosed
under subclause 75(1). This allows the Regulator to impose conditions on the
use and disclosure of information disclosed under subclause 75(1). Those
conditions can be issued on a case-by-case basis, depending on the
protected information being disclosed and the Department that the information
is being disclosed to.
Subclause 75(3) provides for a criminal offence where the Regulator has
imposed conditions under subclause 75(2) above and a person engages in
conduct that breaches the condition imposed by the Regulator. The penalty
for breaching a condition imposed by the Regulator in relation to the
protection information is 120 penalty units, two years' imprisonment, or both.
Subclause 75(4) provides that an instrument made under subclause 75(2)
above is not a legislative instrument. This provision is inserted to assist
readers and is merely declaratory of the law. The determination of the
Regulator under subclause 75(2) is not a legislative instrument within the
meaning of the Legislative Instruments Act 2003.
Clause 76 - Authorised disclosure - research
Clause 76 provides that the Regulator may disclose protected information
where it has been de-identified and is disclosed to a person or body who
conducts research into gambling for the purposes of the new Act.
Clause 77 - Authorised disclosure - summaries and statistics
Clause 77 provides that the Regulator may disclose summaries and statistics
based on protected information where those summaries and statistics are not
likely to enable the identification of a person.
39
Chapter 5 - Requirements for manufacturing and importing gaming
machines
Summary
This Chapter provides for civil penalties for manufacturing or importing
gaming machines that are not capable of providing for precommitment.
Background
The provisions in this Chapter of the Bill will ensure that all new gaming
machines manufactured in Australia or imported to Australia from
31 December 2013 are precommitment-capable.
While the requirements for precommitment systems are not due to commence
until 31 December 2016, this provision will ensure that new machines to hit
the market from the end of 2013 are precommitment-capable. This will help
minimise the impact of introducing precommitment, as there will be ongoing
machine replacement between 31 December 2013 and 31 December 2016
(31 December 2020 for small gaming machine premises).
Part 1 - Guide to this Chapter
Clause 78 - Guide to this Chapter
This clause sets out a brief guide to this Chapter.
Part 2 - Requirements for manufacturing and importing gaming
machines
Clause 79 - Manufacturing gaming machines
Clause 79 provides that a person will contravene this clause if the person is a
constitutional corporation, the person manufactures a gaming machine in
Australia, and the gaming machine does not comply with any one or more
requirements prescribed by the regulations (made under clause 201) in
relation to the capability of the gaming machine to provide for precommitment.
The penalty for contravening this clause is 10 penalty units. A penalty unit is
currently $110.
The note at the end of the clause refers the reader to clause 8, confirming that
a person can contravene this clause if they manufacture a non-compliant
machine alone or together with another person.
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National Gambling Reform Bill 2012
Chapter 5 - Requirements for manufacturing and importing gaming machines
Clause 80 - Importing gaming machines
Clause 80 provides that a person will contravene this clause if a person
imports a gaming machine that does not comply with the requirements set out
in the regulations (made under clause 201) and, therefore, does not meet
precommitment requirements.
The penalty for contravening this clause is 10 penalty units.
The note at the end of the clause refers the reader to clause 8, confirming that
a person can contravene this clause if they import a non-compliant machine
alone or together with another person.
41
Chapter 6 - Liability for, and collection and recovery of, supervisory and
gaming machine regulation levies
Summary
The Chapter provides for levies to support this Bill. The first of these levies is
the supervisory levy and the second is the gaming machine regulation levy.
This Chapter outlines the supervisory levy, which applies to all gaming
machine premises in relation to covering the cost of the Commonwealth's
regulatory function, and the gaming machine regulation levy (the regulation
levy) which applies, in certain circumstances, to gaming machine premises
which are not constitutional corporations to encourage compliance with the
Act. Gaming machine premises that are owned or operated by or on behalf of
a constitutional corporation will not be subject to the regulation levy, nor will
any premises that are complying with the precommitment system and
dynamic warning requirements set out in this Bill. Government agencies,
bodies or organisations will not be subject to the supervisory or regulation
levies as a result of that agency or body levying a tax or charge calculated by
reference to gaming machine revenue.
Background
The purpose of the supervisory levy is to meet the regulatory costs
established by the Bill, such as the monitoring, investigation and enforcement
functions that are not covered by fee-for-service arrangements. This levy
applies to all persons who make gaming machines available for use. The
Regulator may also charge fees for services provided in the performance of
his or her functions in accordance with the Commonwealth's cost recovery
guidelines.
The National Gambling Reform (Related Matters) Act (No. 1) 2012 provides
that the method for working out the amount of supervisory levy payable will be
determined by regulations made under that Act. It is important that the views
of the industry are taken on board in relation to the levy and the Government
will be consulting with industry to inform the development of the regulations
that will determine the levy.
The purpose of the gaming machine regulation levy is to encourage
compliance with requirements relating to precommitment systems and
dynamic warning requirements by persons who are not constitutional
corporations. The gaming machine regulation levy is determined by reference
to the amount of gaming machine revenue. The levy is not payable if a
gaming machine complies with the precommitment system and dynamic
warning requirements or if the gaming machine is made available by a person
who is, or is sufficiently connected, to a constitutional corporation.
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National Gambling Reform Bill 2012
Chapter 6 - Liability for, and collection and recovery of, supervisory and gaming
machine regulation levies
The National Gambling Reform (Related Matters) Act (No. 1) 2012 will
establish the supervisory levy and the National Gambling Reform (Related
Matters) Act (No. 2) 2012 will establish gaming machine regulation levy.
Part 1 - Guide to this Chapter
Clause 81 - Guide to this Chapter
This clause sets out a brief guide to this Chapter.
Part 2 - Liability for supervisory levy
Clause 82 - Purpose of supervisory levy
Clause 82 provides that the purpose of the supervisory levy is to cover the
cost to the Commonwealth in relation to the administration of this Act and the
two related matters Acts.
Clause 83 - Liability for supervisory levy
Clause 83 provides that a supervisory levy is payable in relation to a
levy period for a gaming machine that is made available for use at any time
during the levy period.
Levy period for the purposes of the supervisory levy is defined in clause 5 of
the Bill and means a three-month period commencing on 1 January, 1 April,
1 July and 1 October of a year.
The amount of the supervisory levy is determined in accordance with
Clause 7 of the National Gambling Reform (Related Matters) Bill (No. 1) 2012.
Although the supervisory levy provisions apply after this Act receives the
Royal Assent, note 1 at the end of clause 83 confirms for the reader that the
supervisory levy will not be payable until regulations have been made under
section 6 of the National Gambling Reform (Related Measures) Act
(No 1) 2012. These regulations will prescribe the method for calculating the
supervisory levy. Accordingly, until the regulations are made no supervisory
levy can be calculated nor become payable.
Note 2 at the end of clause 83 refers the reader to Part 4 of this Chapter for
information on the collection and recovery of the supervisory levy.
Note 3 at the end of clause 83 refers the reader to clause 8, confirming that a
person is liable for the levy if they make a gaming machine available for use,
whether or not they make a gaming machine available alone or together with
another person.
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National Gambling Reform Bill 2012
Chapter 6 - Liability for, and collection and recovery of, supervisory and gaming
machine regulation levies
Clause 84 - Who is liable to pay the supervisory levy
Clause 84 provides that the supervisory levy is payable under clause 83 by
the person who holds a State or Territory licence to operate the gaming
machine during the levy period. If there is no licensee in relation to a gaming
machine during the levy period, the person who makes the gaming machine
available is liable to pay the levy. If more than one person holds a licence to
operate the gaming machine during the levy period, all such persons are
jointly liable to pay the levy.
The note at the end of subclause 84(3) refers the reader to clause 94 for
rights of contribution when two or more persons are jointly liable for the levy.
An agency of the Commonwealth, a State or a Territory or a body established
for a public purpose under a law of the Commonwealth, a State or a Territory
is not liable for the supervisory levy as set out in subclause 84(4).
Part 3 - Liability for gaming machine regulation levy
Clause 85 - Liability for gaming machine regulation levy
Clause 85 provides that the gaming machine regulation levy will be payable in
relation to a levy period if a person makes a gaming machine available for
use at any time during the levy period. However, the levy will not be payable
if during the levy period:
(a) the gaming machine was owned, operated, or made available for use
by, or on behalf of, a constitutional corporation or made available for
use on premises owned or controlled by a constitutional corporation
(subclause 85(2)); or
(b) the gaming machine and the precommitment system that operates in
relation to the gaming machine comply with the provisions of this
legislation (subclause 85(3)); or
(c) a person makes a gaming machine available for use in Australia, or a
gaming machine is capable of being made available for use in
Australia, but there is not an approved precommitment system that
could operate in relation to that gaming machine and is available to be
purchased (subclause 85(4)); or
(d) despite the gaming machine and/or the precommitment system not
complying with the provisions of this legislation the person making the
gaming machine available for use did not know, or could not have
reasonably known, that they did not comply (subclause 85(7)); or
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Chapter 6 - Liability for, and collection and recovery of, supervisory and gaming
machine regulation levies
(e) the gaming machine was found to be non-compliant as a result of an
operational or technical failure by the precommitment system provider,
such a failure is outside the control of the gaming machine operator
(subclause 85(8)) and remedying the failure is not within the control of
any person who makes the gaming machine available for use.
Subclause 85(5) provides that subclause 85(4) applies irrespective of who
makes, or who would make, a gaming machine available for use.
Subclause 85(6) provides that an approved precommitment system for a
State or Territory is available to operate in relation to a particular gaming
machine even if the system is temporarily unavailable as a result of an
operational or technical issue. The example at the end of subclause 85(6)
states that an example of an operational or technical issue is a power outage.
Levy period for the purposes of the gaming machine regulation levy is
defined in clause 5 of the Bill and means a calendar month.
The amount of the gaming machine regulation levy is determined in
accordance with clause 9 of the National Gambling Reform (Related Matters)
(No.2) Bill 2012.
Clause 86 - Who is liable to pay the gaming machine regulation levy
Clause 86 provides that the gaming machine regulation levy is payable under
clause 85 by any person who is entitled to any of the gaming machine
revenue for the levy period. For the purposes of this clause, some outgoings
in relation to the machine must be disregarded. If more than one person is
entitled to any of the profits of the gaming machine during the levy period, all
such persons are jointly liable to pay the levy. A person is required to pay the
levy even if their entitlement to the revenue is not for their own use or benefit.
A note included after subclause 86(3) directs the reader to clause 95 in
relation to the right of contribution if persons are jointly liable.
Clause 5 contains a definition of gaming machine revenue. Gaming
machine revenue means the total amount of bets made in the levy period in
relation to a machine, less outgoings. Outgoings are defined in clause 5 and
are the amounts provided as winnings during the levy period (other than
jackpot winnings paid from a fund to which amounts of money or credit are
paid from the machine and other machines) and amounts of money or credit
paid into a fund used to pay jackpots arising under linked jackpot
arrangements. Monies which are inserted into a machine, but which are
taken out of the machine without having been bet, are not included in the
amount of bets made or in the amount of winnings provided.
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National Gambling Reform Bill 2012
Chapter 6 - Liability for, and collection and recovery of, supervisory and gaming
machine regulation levies
An agency of the Commonwealth, a State or a Territory or a body established
for a public purpose under a law of the Commonwealth, a State or a Territory
is not liable for the supervisory levy as set out in subclause 84(4) or the
gaming regulation levy as set out in subclause 86(5)to ensure that there can
be no suggestion that such an agency or body is liable for the levy because
the agency or body levies a tax or charge which is calculated with reference to
the gaming machine revenue.
Part 4 - Collection and recovery of supervisory and gaming machine
regulation levies
Division 1 - Assessment of levies
Clause 87 - Regulator may make assessment of levies
Clause 87 provides that the Regulator has the power to make an assessment
to calculate the amount of a levy for a levy period, or make a new assessment
if one has already been made.
While it is the transactions on the machine and the actions of the operator that
give rise to the liability to pay the levies (and an assessment is not necessary
to trigger the liability) it may be convenient in certain circumstances for the
administration of the levies for the Regulator to have the power to make
assessments and other persons to have the power to request one.
The note at the end of clause 87 refers the reader to clauses 198 and 199
regarding review of a decision to make an assessment.
Clause 88 - Request for assessment
Subclauses 88(1) and 88(2) provide that a person may request the Regulator
to make an assessment of the levy for a levy period and that such a request
for assessment must be in the approved form.
Subclause 88(3) provides that the Regulator must make an assessment if the
request is made within four years of the end of the levy period or such periods
as the Regulator allows.
Clause 89 - Levy liabilities do not depend on assessment
Clause 89 provides that the underlying liability to pay the levy is not
dependent upon the making of an assessment and is not affected by the
making of an assessment.
The note at the end of the clause refers the reader to clause 93 and confirms
that a notice of assessment can be used as evidence of the liability.
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Chapter 6 - Liability for, and collection and recovery of, supervisory and gaming
machine regulation levies
Clause 90 - Regulator must give notice of the assessment
Clause 90 provides that the Regulator must give a person notice of an
assessment as soon as is practicable after making the assessment.
However, a failure to give the notice does not affect the validity of the
assessment.
Clause 91 - Amendment of assessment
Clause 91 confirms that the Regulator may amend an assessment at any
time. The note at the end of the clause refers the reader to clause 198 and
clause 199 in relation to review of decisions.
Clause 92 - Later assessment prevails in case of inconsistency
Clause 92 provides that, should there be inconsistency between
assessments, the later assessment will prevail.
Clause 93 - Production of assessment is conclusive evidence
Clause 93 provides that a notice of assessment is taken to be conclusive
evidence of the matters contained in the assessment. However, if a review of
the assessment is being undertaken under clause 198 or clause 199, the
notice of assessment is not to be taken as conclusive of the amounts and
particulars contained in that document.
Division 2 - Collection of levies
Clause 94 - Right of contribution if persons are jointly liable
Clause 94 provides that, if two or more persons are jointly liable to pay a levy,
each is liable for the whole amount. If one person has paid an amount of the
liability, they may recover some or all of the amount from another of the liable
persons through a relevant court (defined in clause 5).
Clause 95 - Returns
Clause 95 establishes that persons who are liable to pay a levy (either the
supervisory levy or the gaming machine regulation levy) must lodge a return
with the Regulator for each levy period before the end of 21 days. A person
who would be required to pay a levy if the gaming machine revenue for a
particular period except the gaming machine revenue was nil or negative is
also required to lodge a return for the relevant period.
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Chapter 6 - Liability for, and collection and recovery of, supervisory and gaming
machine regulation levies
The time for lodging a return in the case of the supervisory levy is before the
end of the 21 days after the end of the quarter, and, in the case of the gaming
machine regulation levy, before the end of 21 days after the end of the
calendar month. The return must be an approved form and contain the
information required by the form. Failing to lodge a return may be an offence,
and the note at the end of subclause 95(1) refers the reader to clause 101
regarding the possible offence.
When no regulations have been made in relation to the supervisory levy,, no
return is required.
Clause 96 - When levy due for payment
Clause 96 provides that the levy must be paid 21 days after the levy period.
That is, in the case of the supervisory levy, by the end of the 21 days after the
end of the quarter, and, in the case of the gaming machine regulation levy, by
the end of the 21 days after the end of the calendar month.
Clause 97 - Late payment penalty
Clause 97 provides that a late payment penalty applies to any amounts of
levy payable that are unpaid at the start of a month following the day on which
the levy was due for payment. The levy applies to the amount of levy
outstanding at the start of the month, and applies to each month or part of a
month for which an amount of levy is outstanding. The rate of the penalty for
each month or part of a month is 20 per cent divided by 12. A late payment
penalty for a month is to be paid by the end of that month. However, the
Regulator may specify in writing that the late payment penalty is payable at a
later date.
Clause 98 - Payment of levy and late payment penalty
Clause 98 sets out that the levy and any late payment penalties are to be
paid to the Regulator on behalf of the Commonwealth.
Clause 99 - Recovery of levy and late payment penalty
Clause 99 provides that the levies and late payment penalties (when due and
payable) may be recovered as debts due to the Commonwealth. The
Regulator may take court action to recover these debts on behalf of the
Commonwealth.
Clause 100 - Refunds of overpayments of levy
Clause 100 confirms that, if there is an overpayment of a levy or late payment
penalty, the Regulator may credit the overpayment against another liability of
the person under the new Act. If the overpayment is not so credited, it must
be refunded to the person who paid the levy.
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Chapter 6 - Liability for, and collection and recovery of, supervisory and gaming
machine regulation levies
Division 3 - Miscellaneous
Clause 101 - Offence for failure to lodge a return
Clause 101 provides that it is an offence for a person who is required to lodge
a return in relation to a levy to fail to lodge the return as required. This is a
strict liability offence.
Strict liability is considered appropriate in this circumstance because the
purpose of requiring the person to lodge a return in the timeframe stipulated in
the Bill is to ensure proper accounting for levies that may be imposed and the
timely payment of any such levies to the Government. These conditions will
ensure that the integrity of this regime is maintained and that the revenue is
protected. The offence is punishable by a maximum penalty of 50 penalty
units.
Subclause 101(2) provides that an offence is not committed if the person has
a reasonable excuse. The person has an evidential burden of showing that
there is a reasonable excuse. This approach has been taken because the
particular circumstances that will need to be relied on to establish the
existence of a reasonable excuse will be peculiar to the knowledge of the
defendant.
The burden of showing that the person has a reasonable excuse rests with
that person.
A Guide to Framing Commonwealth Offences, Infringement Notices and
Enforcement Powers cautions against defences of `reasonable excuse', this
approach has been taken to `soften' the impact of the strict liability offence as
there may be legitimate reasons why a person was unable to lodge their
return, such as sickness, power outage or technical failure.
Clause 102 - Regulations may provide in relation to assessment,
collection and recovery
Clause 102 provides for regulations (made under clause 201) in relation to
the assessment, collection and recovery of the supervisory levy and the
gaming machine regulation levy.
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Chapter 7 - Monitoring and investigation
Summary
This Chapter provides for the monitoring and investigation of compliance with
the new Act. The Regulator monitors and investigates compliance, and
appoints authorised persons, who also exercise the monitoring and
investigation powers in this Chapter. Rules relevant to both monitoring and
investigation are also included in this Chapter.
The Regulator can delegate his or her functions, powers and duties (and
portions of duties) in accordance with clause 200 in Chapter 9 of this Bill.
Background
The Regulator
The Regulator has responsibility for a range of functions, including
administration of the new Act, monitoring, investigation and enforcement. The
Regulator is required to cooperate with the States and Territories and other
relevant persons in administering the new Act.
The Regulator may make arrangements with Commonwealth, State or
Territory agencies and engage consultants to assist in performing their
functions.
The Minister may give directions to the Regulator, and the Regulator must
prepare an annual report and give it to the Minister after the end of each
financial year.
The powers and functions granted to the Regulator in this Bill are similar to
and consistent with the powers and functions granted to Regulators in other
Commonwealth regulatory schemes, in particular the Fuel Quality Standards
Act 2000 and the Renewable Energy (Electricity) Act 2000.
Authorised persons
The Regulator may appoint authorised persons, such as government officers,
to assist in exercising the monitoring and investigation powers. All authorised
persons, including the Regulator, must carry an identity card at all times when
exercising their powers.
Inspecting public areas of gaming machine premises
Authorised persons may enter a public area of gaming machine premises
when the premises are open to the public and exercise inspection powers,
including making observations and collecting information in relation to
regulated devices.
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Chapter 7 - Monitoring and investigation
Monitoring
Authorised persons may enter premises by consent or under a warrant to
determine whether a provision of the new Act has been, or is being, complied
with. Other monitoring powers include searching premises, observing activity,
inspecting documents, operating electronic equipment and accessing data.
An authorised person may be assisted by other persons, for example
technicians, if that assistance is necessary and reasonable.
Investigation
If an authorised person has reasonable grounds for suspecting that there may
be evidential material on any premises, they may enter the premises and
exercise the investigation powers. These powers include searching the
premises with the occupier's consent or under an investigation warrant. An
authorised person may also seize certain items in accordance with this
Chapter.
Other provisions
Authorised persons must comply with a number of obligations when entering
premises. Authorised persons may also ask questions, seek production of
documents and open gaming machines.
Part 1 - Guide to this Chapter
Clause 103 - Guide to this Chapter
Clause 103 provides a guide to Chapter 7 of the Bill.
Part 2 - Regulator
Clause 104 - The Regulator
Clause 104 provides that the Regulator is the Secretary of the Department of
the Minister who has portfolio responsibility for the new Act.
Clause 105 - Functions of the Regulator
Clause 105 explains that the Regulator has responsibility for a range of
functions, including administration of the new Act, monitoring and
enforcement of compliance under the new Act, and the monitoring and
evaluating the operation of the new Act. The Regulator is required to
cooperate with the States and Territories and other relevant persons in
administering the new Act.
Clause 106 - Powers of the Regulator
Clause 106 provides that the Regulator has a range of powers to do all things
necessary or convenient to be done in connection with their functions.
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Clause 107 - Regulator may charge for services
The Regulator may, by legislative instrument, specify fees for services
provided in the performance of their functions (subclause 107(1)).
Sections 17 to 19 of the Legislative Instruments Act 2003 deal with rule-maker
consultation, including the circumstances in which consultation may be
unnecessary or inappropriate. The Legislative Instruments Act 2003 does not
make consultation mandatory. However, all Commonwealth agencies are
encouraged to undertake appropriate consultation before making a legislative
instrument, particularly if the proposed instrument is likely to affect business
or restrict competition.
Subclause 107(2) provides that a fee specified for services by the Regulator
must not amount to taxation.
To the extent that the Regulator recovers the costs to the Commonwealth of
administering this Act and the two related Acts through fees for services, the
amount of those costs to be covered by the supervisory levy will be reduced.
Clause 108 - Arrangements with other agencies
Clause 108 provides that the Regulator may make arrangements with
Commonwealth, State or Territory agencies in relation to officers of such
agencies being made available to assist the Regulator in performing their
functions or duties, or exercising their powers.
Clause 109 - Consultants
Clause 109 provides that the Regulator may engage consultants to assist in
performing the Regulator's functions.
Clause 110 - Minister may give directions to the Regulator
The Minister may give directions to the Regulator in relation to the
performance of their functions and exercise of their powers by legislative
instrument (subclause 110(1)).Sections 17 to 19 of the Legislative
Instruments Act 2003 deal with rule-maker consultation, including the
circumstances in which consultation may be unnecessary or inappropriate.
The Legislative Instruments Act 2003 does not make consultation mandatory.
However, all Commonwealth agencies are encouraged to undertake
appropriate consultation before making a legislative instrument, particularly if
the proposed instrument is likely to affect business or restrict competition.
Despite the instrument making power set out above, the Minister must not
give a direction in relation to a particular case (subclause 110(2)).
Subclause 110(3) requires the Regulator to comply with a direction given
under this clause.
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Clause 111 - Annual report
Subclause 111(1) provides that the Regulator must prepare an annual report
and give it to the Minister.
The annual report must be prepared and given to the Minister as soon as
practicable after the end of each financial year (subclause 111(2)).
Subclause 111(3) provides that the annual report must be included in the
Department's annual report.
Subclause 111(4) provides for a non-exhaustive list of the information and
matters that must be included in the annual report as follows:
(a) details of any convictions for offences against this legislation and the
penalty imposed on the person; and
(b) details of any civil penalty orders that were made against a person and
the penalty the person was required to pay; and
(c) details of any enforcement action that was taken in accordance with
this legislation; and
(d) any other matter that is prescribed by regulation.
Part 3 - Authorised persons
Clause 112 - Appointment of authorised persons
Subclause 112(1) provides that the Regulator may appoint an APS employee
or an employee of a State or Territory agency for the purposes of the new Act.
The Regulator must not appoint a person under subclause 112(1) unless
satisfied of certain matters (subclauses 112(2) and (3)).
Subclause 112(4) provides that an authorised person holds office for the
period specified in the relevant instrument of appointment (but not exceeding
four years).
An authorised person must comply with any directions of the Regulator
(subclause 112(5)). Subclause 112(6) is inserted to assist readers and is
merely declaratory of the law. Any direction of the Regulator under
subclause 112(5) is not a legislative instrument within the meaning of the
Legislative Instruments Act 2003.
Clause 113 - The Regulator is an authorised person
Clause 113 provides that the Regulator is an authorised person.
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Clause 114 - Identity cards
The Regulator must issue an identity card to an authorised person
(subclause 114(1)). The Minister must issue an identity card to the Regulator
(subclause 114(2)).
Subclause 114(3) provides that an identity card must be in a form prescribed
by regulation and contain a recent photograph of the authorised person.
An authorised person must carry their identity card at all times when
exercising their powers (subclause 114(4)).
Clause 115 - Offence for not returning identity card
A person commits an offence if they cease to be an authorised person and
does not return the identity card issued to them within 14 days
(subclause 115(1)). This is an offence of strict liability (subclause 115(2)).
Strict liability is considered appropriate in this circumstance because the
purpose of requiring the person to return their identity card in the timeframe
stipulated in the Bill is to reduce the risk of misuse of identity cards. This
condition will ensure that the integrity of the system is maintained. The return
of the identity card is a purely administrative task.
The maximum penalty for breach of this provision is 1 penalty unit. Currently
a penalty unit is $110.
Subclause 115(1) does not apply if the identity card was lost or destroyed
(subclause 115(3)). The note at the end of subclause 115(3) confirms that
the burden of proving the defence in the subclause lies with the person
seeking to rely on the offence. That is, the defendant is required to prove, on
the balance of probabilities, that they lost their card, or that the card was
stolen, which is information that would be within the particular knowledge of
the defendant.
The reversal of the onus of proof in these circumstances is considered to be
consistent with Part 4.3.2 of A Guide to Framing Commonwealth Offences,
Infringement Notices and Enforcement Powers.
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Part 4 - Inspecting public areas of gaming machine premises
Clause 116 - Inspection powers in public areas of gaming machine
premises
Subclause 116(1) enables an authorised person to enter a public area of
gaming machine premises when the premises are open to the public and
exercise certain inspection powers. These inspection powers include
observing the operation of regulated devices, collecting certain information or
documents in relation to regulated devices and discussing regulated devices
with any person. The term regulated device is defined in subclause 116(6).
The powers provided under subclause 116(1) may only be exercised for
certain purposes specified in subclause 116(2).
Subclause 116(3) confirms that, to avoid doubt, if a person is required to be a
member, or otherwise register, to access an area of gaming machine
premises, that area is not a public area of those premises.
Subclause 116(4) provides that subclause 116(1) does not affect any right of
the occupier of the premises to refuse to allow an authorised person to enter,
or remain on, the premises.
Subclause 116(5) provides that subclause 116(1) also does not limit certain
powers of an authorised person or any other power of a person to enter a
public area of gaming machine premises.
Subclause 116(6) defines regulated device as:
(a) a gaming machine; or
(b) a precommitment system; or
(c) an automatic teller machine.
Part 5 - Monitoring
Division 1 - Monitoring powers
Clause 117- Authorised person may enter premises by consent or under
a warrant
Subclause 117(1) provides that an authorised person may enter any
premises and exercise the monitoring powers for either or both of the
following purposes:
· determining whether a provision of the new Act has been, or is being,
complied with;
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Chapter 7 - Monitoring and investigation
· determining whether information given in compliance or purported
compliance with a provision of the new Act is correct.
Subclause 117(2) provides that an authorised person is not authorised to
enter the premises unless the occupier consents and the authorised person
has shown their identity card, or unless entry is made under a monitoring
warrant.
Clause 118 - Monitoring powers of authorised persons
Clause 118 sets out the monitoring powers that an authorised person may
exercise in relation to premises under clause 117. These powers include
searching premises, observing activity on premises and inspecting
documents.
Clause 119 - Operating electronic equipment
Subclause 119(1) provides that monitoring powers also include the power to
operate electronic equipment on the premises and use a storage device that
is on the premises and can be used with the equipment or is associated
with it.
Subclause 119(2) provides that, if information is found in the exercise of the
power under subclause 119(1) that is relevant to determining compliance
under the new Act or confirming whether certain information is correct, the
monitoring powers include further powers set out in subclause 119(3). These
further powers include operating electronic equipment to put relevant data in
documentary form and remove the documents so produced from the
premises.
An authorised person may only operate electronic equipment under this
clause if they believe on reasonable grounds that the operation of the
equipment can be carried out without damage to the equipment
(subclause 119(4)).
Clause 120 - Accessing data held on certain premises - notification to
occupier
If an exercise of power under subclause 119(1) involves operating electronic
equipment on premises to access data held on other premises and it is
practicable to notify the occupier of the premises on which the data is held
that the data has been accessed, the authorised person must do so as soon
as practicable and include other specified information if relevant
(subclause 120(1)).
Subclause 120(2) requires that a notification under subclause 120(1) must
include sufficient information to allow the occupier of the premises on which
the data is held to contact the authorised person.
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Clauses 119 and 120 relate to the exercise of monitoring powers and
therefore do not require reasonable suspicion that the data that may be
accessed constitutes evidential material (as required in section 3L of the
Crimes Act 1914).
Clause 121 - Expert assistance to operate electronic equipment
This clause applies to premises to which a monitoring warrant relates
(subclause 121(1)).
Subclause 121(2) provides that an authorised person may secure any
electronic equipment that is on the premises if the authorised person believes
certain matters based on reasonable grounds. In this case, the equipment
may be secured by any means.
The authorised person must give notice to the occupier of the premises (or
another person who apparently represents the occupier) of their intention to
secure the equipment and the fact that the equipment may be secured for up
to 24 hours (subclause 121(3)). The equipment may be secured until the
earlier of either the 24-hour period ending or the equipment being operated by
an expert (subclause 121(4)).
In certain circumstances and after giving notice to the occupier, the authorised
person may apply to an issuing officer for an extension of the 24-hour period
(subclauses 121(5)-(6)). Provisions relating to the issue of monitoring
warrants apply to the issue of an extension and the 24-hour period may be
extended more than once (subclauses 121(7)-(8)).
Clause 122 - Securing evidence of the contravention of a related
provision
This clause applies if an authorised person enters premises under a
monitoring warrant for either or both of the following purposes:
· determining whether a provision of the new Act has been, or is being,
complied with;
· determining whether information given in compliance or purported
compliance with a provision of the new Act is correct
(subclause 122(1)).
Subclause 122(2) provides that the monitoring powers include the power to
secure a thing for a period not exceeding 24 hours in certain circumstances in
relation to possible contravention of a related provision.
In certain circumstances and after giving notice to the occupier, the authorised
person may apply to an issuing officer for an extension of the 24-hour period
(subclauses 122(3)-(4)). Provisions relating to the issue of monitoring
warrants apply to the issue of an extension and the 24-hour period may be
extended more than once (subclauses 122(5)-(6)).
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Division 2 - Persons assisting authorised persons
Clause 123 - Persons assisting authorised persons
Subclause 123(1) provides that an authorised person may be assisted by
other persons in exercising power or performing certain functions or duties, if
that assistance is necessary and reasonable.
Subclause 123(2) set outs the powers, functions and duties of a person
assisting the authorised person. A power exercised or a function or duty
performed by a person assisting the authorised person is taken to have
occurred as if exercised or performed by the authorised person
(subclauses 123(3) and (4)).
Subclause 123(5) is inserted to assist readers and is merely declaratory of
the law. Any direction given in writing by a person assisting the authorised
person under paragraph 123(2)(c) is not a legislative instrument within the
meaning of the Legislative Instruments Act 2003.
Division 3 - Monitoring warrants
Clause 124 - Monitoring warrants
An authorised person may apply to an issuing officer for a warrant under this
clause in relation to premises (subclause 124(1)).
Subclause 124(2) provides that the issuing officer may issue the warrant if
they are satisfied, by information on oath or affirmation, that it is reasonably
necessary to access the premises for specified purposes. However, the
issuing officer must not issue the warrant unless the authorised person or
some other person has given them such further information required
concerning the grounds on which the issue of the warrant is being sought
(subclause 124(3)).
Subclause 124(4) sets out the required content of a warrant issued in
accordance with this clause.
The warrant provisions in this Chapter are consistent with provisions in other
regulatory regimes, such as those contained in the Financial Transactions
Reports Act 1988, Fuel Quality Standards Act 2000 and Renewable Energy
(Electricity) Act 2000 amongst others. The duration of a monitoring warrant
for up to 6 months is required in order to permit monitoring of premises over a
sustained period of time to determine whether a provision of the Bill has been,
or is being, complied with. In these circumstances, clause 124 is considered
to be consistent with Part 8.7 of A Guide to Framing Commonwealth
Offences, Infringement Notices and Enforcement Powers.
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Chapter 7 - Monitoring and investigation
Part 6 - Investigation
Division 1 - Investigation powers
Clause 125 - Authorised person may enter premises by consent or
under a warrant
If an authorised person has reasonable grounds for suspecting that there may
be evidential material on any premises, they may enter the premises and
exercise the investigation powers set out in clauses 126, 127 and 130
(subclause 125(1)).
However, subclause 126(2) provides that an authorised person is not
authorised to enter the premises unless the occupier of the premises has
consented and the authorised person has shown their identity card if required,
or unless the entry is made under an investigation warrant.
Clause 126 - Investigation powers of authorised persons
Clause 126 sets out the investigation powers that an authorised person may
exercise in relation to premises under clause 126. These powers include
searching the premises with the occupier's consent or under an investigation
warrant. If entry is permitted under investigation warrant, the authorised
person also has seizure powers in relation to evidential material and the
power to inspect, examine and conduct tests on material and equipment on
the premises.
Clause 127 - Operating electronic equipment
Subclause 127(1) confirms that the investigation powers include the power to
operate electronic equipment to access data not held on the premises and
use a storage device that is on the premises and can be used with the
equipment or is associated with it in certain circumstances.
Subclause 127(2) confirms that the investigation powers also include
specified powers in relation to evidential material found in the exercise of the
power under subclause 127(1).
Operation of electronic equipment under subclause 127(1) or (2) may only
occur if the authorised person believes on reasonable grounds that the
operation of the equipment can be carried out without damage
(subclause 127(3)).
An authorised person may only seize equipment or a storage device under
paragraph 127(2)(a) in certain limited circumstances (subclause 127(4)).
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Clause 128 - Accessing data held on certain premises - notification to
occupier
If an exercise of power under subclause 127(1) involves operating electronic
equipment on premises to access data held on other premises and it is
practicable to notify the occupier of the premises on which the data is held
that the data has been accessed, the authorised person must do so as soon
as practicable and include other specified information if relevant
(subclause 128(1)).
Subclause 128(2) requires that a notification under subclause 128(1) must
include sufficient information to allow the occupier of the premises on which
the data is held to contact the authorised person.
Clauses 127 and 128 relate to the exercise of investigation powers and
therefore do not require reasonable suspicion that the data that may be
accessed constitutes evidential material (as required in section 3L of the
Crimes Act 1914).
Clause 129 - Expert assistance to operate electronic equipment
This clause applies to if an authorised person enters premises under an
investigation warrant to search for evidential material (subclause 129(1)).
Subclause 129(2) provides that an authorised person may secure any
electronic equipment that is on the premises if the authorised person believes
certain matters based on reasonable grounds. In this case, the equipment
may be secured by any means.
The authorised person must give notice to the occupier of the premises (or
another person who apparently represents the occupier) of their intention to
secure the equipment and the fact that the equipment may be secured for up
to 24 hours (subclause 129(3)). The equipment may be secured until the
earlier of either the 24-hour period ending or the equipment being operated by
an expert (subclause 129(4)).
In certain circumstances and after giving notice to the occupier, the authorised
person may apply to an issuing officer for an extension of the 24-hour period
(subclauses 129(5) and (6)). Provisions relating to the issue of investigation
warrants apply to the issue of an extension and the 24-hour period may be
extended more than once (subclauses 129(7)-(8)).
Clause 130 - Seizing evidence of contraventions of related provisions
This clause applies if an authorised person enters premises under an
investigation warrant to search for evidential material (subclause 130(1)).
Subclause 130(2) provides that the investigation powers include seizing a
thing that is not evidential material of the kind specified in the warrant in
certain limited circumstances.
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Division 2 - Persons assisting authorised persons
Clause 131 - Persons assisting authorised persons
Subclause 131(1) provides that an authorised person may be assisted by
other persons in exercising power or performing certain functions or duties, if
that assistance is necessary and reasonable.
Subclause 131(2) set outs the powers, functions and duties of a person
assisting the authorised person. A power exercised or a function or duty
performed by a person assisting the authorised person is taken to have
occurred as if exercised or performed by the authorised person
(subclauses 131(3) and (4)).
Subclause 131(5) is inserted to assist readers and is merely declaratory of
the law. Any direction given by a person assisting the authorised person
under paragraph 131(2)(c) in writing is not a legislative instrument within the
meaning of the Legislative Instruments Act 2003.
Division 3 - General provisions relating to seizure
Clause 132 - Copies of seized things to be provided
This clause applies if an investigation warrant is being executed in relation to
premises and an authorised person seizes certain specified items from the
premises under this Part of the Bill (subclause 132(1)).
Subclause 132(2) provides that the occupier of the premises may request the
authorised person to give them a copy of the thing or the information. The
authorised person must comply with such a request as soon as practicable
after the seizure (subclause 132(3)). However, the authorised person is not
required to comply with the request if possession of the item by the occupier
could constitute an offence against a law of the Commonwealth
(subclause 132(4)).
Clause 133 - Receipts for seized things
Subclause 133(1) requires that the authorised person must provide a receipt
for a thing that is seized under this Part of the Bill. One receipt may cover two
or more things seized (subclause 133(2)).
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Clause 134 - Return of seized things
Subclause 134(1) provides that the Regulator must take reasonable steps to
return a thing seized when the earliest of the following happens:
· the reason for the seizure no longer exists;
· it is decided that the thing is not to be used in evidence; or
· the period of 60 days after the seizure ends.
Subclause 134(1) is subject to any contrary order of a court and does not
apply if the thing is forfeited or forfeitable to the Commonwealth or is the
subject of a dispute as to ownership (subclause 134(2)).
Subclause 134(3) provides circumstances in which the Regulator is not
required to take reasonable steps to return a thing because the period of
60 days after the seizure ends.
Subclause 134(4) confirms that a thing required to be returned under this
clause must be returned to the person from whom it was seized (or the owner
if that person is not entitled to possess it).
Clause 135 - Issuing officer may permit a seized thing to be retained
The Regulator may apply to an issuing officer for an order permitting the
retention of a thing seized for a further period in certain specified
circumstances (subclause 135(1)).
Subclause 135(2) provides that, before making an application, the Regulator
must take reasonable steps to discover who has an interest in the retention of
the thing and (if it is practicable to do so) notify each person who has an
interest of the proposed application.
The issuing officer may order that the thing may continue to be retained for a
period specified in the order if they are satisfied that it is necessary for the
thing to continue to be retained for certain specified reasons
(subclause 135(3)). The period specified in the order must not exceed three
years (subclause 135(4)).
Clause 136 - Disposal of seized things
Subclause 136(1) enables the Regulator to dispose of a thing seized if they
have taken reasonable steps to return the thing to a person and either they
have been unable to locate the person or the person has refused to take
possession of the thing. The Regulator may dispose of the thing in such
manner as they think appropriate (subclause 136(2)).
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Clause 137 - Compensation for acquisition of property
Subclause 137(1) provides that, if the operation of clause 136 would result in
an acquisition of property from a person otherwise than on just terms, the
Commonwealth is liable to pay a reasonable amount of compensation.
In these circumstances, where the Commonwealth and the person do not
agree on the amount of compensation, the person may institute proceedings
for the recovery of such reasonable amount of compensation as the relevant
court determines (subclause 137(2)).
Subclause 137(3) provides that acquisition of property and just terms
have the same meaning as in paragraph 51(xxxi) of the Constitution.
Division 4 - Investigation warrants
Clause 138 - Investigation warrants
An authorised person may apply to an issuing officer for a warrant under this
clause in relation to premises (subclause 138(1)).
Subclause 138(2) provides that the issuing officer may issue the warrant if
they are satisfied, by information on oath or affirmation, that there are
reasonable grounds for suspecting that there is, or there may be within the
next 72 hours, evidential material on the premises. However, the issuing
officer must not issue the warrant unless the authorised person or some other
person has given them such further information required concerning the
grounds on which the issue of the warrant is being sought
(subclause 138(3)).
Subclause 138(4) sets out the required content of a warrant issued in
accordance with this clause.
The warrant provisions in this Chapter are consistent with provisions in other
regulatory regimes, such as those contained in the Financial Transactions
Reports Act 1988, Fuel Quality Standards Act 2000 and Renewable Energy
(Electricity) Act 2000 amongst others. In these circumstances clause 138 is
considered to be consistent with Part 8.3 of A Guide to Framing
Commonwealth Offences, Infringement Notices and Enforcement Powers.
Clause 139 - Investigation warrants by telephone, fax etc.
An authorised person may apply to an issuing officer by electronic means for
a warrant under clause 138 in an urgent case or if the delay that would occur
if an application were made in person would frustrate the effective execution
of the warrant (subclause 139(1)). In these circumstances, the issuing officer
may require communication by voice to the extent that it is practicable in the
circumstances (subclause 139(2)).
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Subclause 139(3) provides that, before applying for the warrant, the
authorised person must prepare information of the kind mentioned in
subclause 136(2). If necessary, the authorised person may apply for the
warrant before the information is sworn or affirmed.
The issuing officer may complete and sign the same warrant that would have
been issued under clause 138 if satisfied that there are reasonable grounds
for doing so (subclause 139(4)). After completing and signing the warrant,
the issuing officer must inform the authorised person by electronic means of
the terms of the warrant and the day and time when the warrant was signed
(subclause 139(5)). The authorised person must then undertake certain
actions specified in subclause 139(6) including sending certain information to
the issuing officer within a set timeframe (subclause 139(7)). The issuing
officer must attach this information to the signed warrant (subclause 139(8)).
Clause 140 - Authority of warrant
Subclause 140(1) confirms that a form of warrant completed under
subclause 139(6) is authority for the same powers as authorised by the
warrant signed by the issuing officer under subclause 139(4).
Subclause 140(2) provides certain circumstances in which a court is to
assume (unless the contrary intention is proved) that an exercise of power
was not authorised by a warrant under clause 139.
Clause 141 - Offence relating to warrants by telephone, fax etc.
Clause 141 provides five offences to prohibit certain actions of an
authorised person in relation to an investigation warrants by electronic means.
Each of these offences is punishable by a penalty of imprisonment for
two years.
Clause 142 - Completing execution of investigation warrant after
temporary cessation
This clause applies if an authorised person, and all persons assisting, who are
executing an investigation warrant temporarily cease its execution and leave
the premises (subclause 142(1)). If this occurs, the execution of the warrant
may be completed in certain specified circumstances (subclauses 142(2-3)
and 142(5)).
Subclause 142(4) provides that, before making the application, the
authorised person, or person assisting, must give notice to the occupier of the
premises of their intention to apply for an extension (if it is practicable to do
so).
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Clause 143 - Completing execution of an investigation warrant stopped
by court order
Clause 143 provides that an authorised person may complete the execution
of an investigation warrant that has been stopped by an order of a court if the
order is later revoked or reversed and the warrant is still in force when the
order is revoked or reversed.
Part 7 - General provisions relating to monitoring and investigation
Division 1 - Obligations of authorised persons in entering premises
Clause 144 - Consent
Before obtaining consent from an occupier to enter premises for the purposes
of paragraphs 117(2)(a) or 125(2)(a), an authorised person must inform them
that they may refuse consent (subclause 144(1)). A consent has no effect
unless voluntary (subclause 144(2)).
Subclause 144(3) provides that consent may be expressed to be limited to
entry during a particular period. Consent that is not limited has effect until
withdrawn (subclause 144(4)).
If an authorised person entered premises because of the consent of the
occupier of the premises, they must leave the premises if the consent ceases
to have effect (subclause 144(5)).
Clause 145 - Announcement before entry under warrant
Subclause 145(1) requires an authorised person to announce they are
authorised to enter the premises, show their identity card to the occupier and
give any person at the premises an opportunity to allow entry before entering
premises under a monitoring warrant or an investigation warrant.
An authorised person is not required to comply with subclause 145(1) if they
believe, on reasonable grounds, that immediate entry to the premises is
required to ensure the safety of a person or to ensure that the effective
execution of the warrant is not frustrated (subclause 145(2)). In these
circumstances, if the occupier of the premises is present, the authorised
person must show his or her identity card to them as soon as practicable after
entering the premises (subclause 145(3)).
Clause 146 - Authorised person to be in possession of warrant
An authorised person executing a monitoring warrant must be in possession
of the warrant issued, or a copy of the warrant as so issued
(subclause 146(1)).
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An authorised person executing an investigation warrant must be in
possession of the warrant issued, or a copy of the warrant as so issued, or the
form of warrant completed under subclause 139(6), or a copy of the form as
so completed (subclause 146(2)).
Clause 147 - Details of warrant etc. to be given to occupier
Subclause 147(1) provides that an authorised person must comply with
subclause 147(2) if a monitoring warrant or an investigation warrant is being
executed and the occupier of the premises is present. Subclause 147(2) sets
out certain actions the authorised person executing the warrant must
undertake as soon as practicable.
Division 2 - Other powers of authorised persons
Subdivision A - Asking questions and seeking production of documents
Clause 148 - Authorised person may ask questions and seek production
of documents
Clause 148 applies if an authorised person enters premises for the purposes
of determining whether (subclause 148(1)):
· a provision of the new Act has been, or is being, complied with; or
· information given in compliance or purported compliance with a
provision of the new Act is correct; or
· an authorised person enters premises to search for evidential material.
If the entry is authorised because the occupier consented, the authorised
person may ask the occupier to answer any questions, and produce any
documents, relating to certain matters set out in subclause 148(2).
Similarly, if the entry is authorised by a monitoring warrant or an investigation
warrant, the authorised person may ask the occupier to answer any
questions, and produce any documents, relating to certain matters set out in
subclause 148(3).
Subclause 148(4) provides that a person commits an offence if they are
subject to a requirement under subclause 148(3) and they fail to comply with
the requirement. This offence is punishable by a penalty of 30 penalty units.
Subdivision B - Opening gaming machines
Clause 149 - Authorised person may open gaming machines
Clause 149 applies if an authorised person enters premises and exercises a
monitoring powers or investigation powers (subclause 149(1)).
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Subclause 149(2) provides that, in the course of exercising monitoring
powers or investigation powers, an authorised person may perform certain
actions in relation to a gaming machine including opening the gaming
machine and testing components inside the gaming machine. However, an
authorised person may only open a gaming machine or component if they
have appropriate training and believe on reasonable grounds that this can be
carried out without damage to the machine or component (subclause 149(3)).
Similar requirements apply to another person requested to remove, alter or
break a mark or seal under paragraph 149(2)(d) (subclause 149(4)).
Subclause 149(5) confirms that, to avoid doubt, damage to the machine or
component does not include damage to a mark or seal.
The powers in subclause 149(2) do not limit the monitoring powers or
investigation powers (subclause 149(6)).
Clause 150 - Authorised person to notify about broken seals and reseal
gaming machines
Clause 150 applies if an authorised person has, under clause 149, removed,
altered or broken (or requested the removal, alteration or breaking of) a mark
or seal in relation to a gaming machine (subclause 150(1)).
Subclause 150(2) requires the authorised person to notify the occupier and
the body responsible for regulating gaming machines in the relevant State or
Territory as soon as practicable and reseal the gaming machine.
The regulations (made under clause 201) may provide certain procedures,
prohibit certain actions and provide offences in relation to removing, altering,
breaking seals and resealing on gaming machines (subclause 150(3)).
Clause 201 provides for limits on the penalties that can be imposed by the
regulations.
Clause 151 - Relationship with State or Territory laws
This Subdivision has effect despite any law of a State or Territory to the
contrary (subclause 151(1)). A person does not commit an offence, and is
not liable for any penalty, under an enactment of a State or Territory, as a
result of actions conducted in accordance with clauses 149 or 150.
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Division 3 - Occupier's rights and responsibilities on entry
Clause 152 - Occupier entitled to observe execution of warrant
Subclause 152(1) provides that the occupier of premises (or another person
who apparently represents the occupier) is entitled to observe the execution
of a monitoring warrant or an investigation warrant in relation to the premises
if they are present at that time. This clause also does not prevent the
execution of the warrant in two or more areas of the premises at the same
time (subclause 152(3)).
The right to observe the execution of the warrant ceases if the occupier or
other person impedes that execution (subclause 152(2)).
Clause 153 - Occupier to provide authorised person with facilities and
assistance
Subclause 153(1) provides that the occupier of premises (or another person
who apparently represents the occupier) to which a monitoring warrant or an
investigation warrant relate must provide all reasonable facilities and
assistance to an authorised person and any person assisting the authorised
person for the effective execution of their powers.
Subclause 153(2) provides an offence if the person is subject to
subclause 130(1) and they fail to comply. The penalty for contravention of
this subclause is 30 penalty units.
Division 4 - Miscellaneous
Clause 154 - Powers of issuing officers
A power conferred on an issuing officer by Part 5, 6 or 7 of Chapter 7 is
conferred in a personal capacity and not as a court or member of a court
(subclause 154(1)). The issuing officer need not accept the power conferred
(subclause 154(2)).
Subclause 154(3) provides that an issuing officer exercising a power
mentioned in subclause 154(1) has the same protection and immunity as if
they were exercising the power as the court of which they are a member or as
a member of the court of which the issuing offer is a member.
Clause 155 - Compensation for damage to electronic equipment
This clause applies if the following occurs as a result of electronic equipment
being operated as mentioned in Parts 5 or 6:
· damage is caused to the equipment; or
· the data recorded on the equipment is damaged; or
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· programs associated with the use of the equipment, or with the use of
the data, are damaged or corrupted;
and the damage or corruption occurs because insufficient care was exercised
in selecting the person who was to operate the equipment or insufficient care
was exercised by the person operating the equipment (subclause 155(1)).
Subclause 155(2) provides that the Commonwealth must pay an agreed
amount of reasonable compensation to the owner of the equipment, or the
user of the data or programs. However, if the Commonwealth and the owner
or user fail to agree, certain proceedings may be instituted in a relevant court
(subclause 155(3)).
In determining the amount of compensation payable, regard is to be had to
whether certain parties provided any appropriate warning or guidance on the
operation of the equipment (subclause 155(4)).
Clause 156 - Compensation for damage to gaming machine
This clause applies if the following occurs as a result of a gaming machine, or
a component of the gaming machine, being opened as mentioned in
clause 149:
· damage is caused to the machine or component; and
· the damage is caused because insufficient care was exercised by an
authorised person in selecting the person who was to open the
machine or component or insufficient care was exercised by an
authorised person opening the machine or component
(subclause 156(1)).
Subclause 156(2) provides that the Commonwealth must pay an agreed
amount of reasonable compensation to the owner of the gaming machine.
However, if the Commonwealth and the owner fail to agree, certain
proceedings may be instituted in a relevant court (subclause 156(3)).
In determining the amount of compensation payable, regard is to be had to
whether certain parties provided any appropriate warning or guidance on the
opening of the gaming machine or component (subclause 156(4)).
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Part 8 - Requiring persons to give information, produce documents and
keep records
Clause 157 - Power to require persons to give information, produce
documents or answer questions
Subclause 157(1) provides that the Regulator may give a written notice to a
person under subclause 157(2) if they have reason to believe that the person
has information or a document that is relevant to the administration or
enforcement of the new Act.
The Regulator may require the person to:
· give information to a specified authorised person; or
· produce documents to a specified authorised person; or
· appear before a specified authorised person to answer questions
(subclause 157(2)).
Subclause 157(3) requires the notice to contain certain information
depending on what the Regulator requires of the person under
subclause 157(2).
An authorised person may require answers provided under
paragraph 157(2)(c) to be verified by, or given on, oath or affirmation and
either orally or in writing (subclause 157(4)). An authorised person to whom
information or answers are verified or given may administer the oath or
affirmation (subclause 157(5)).
Subclause 157(6) provides that a person commits an offence if they are
given a notice under this clause and fail to comply. The penalty for
contravention of this subclause is six months' imprisonment or 30 penalty
units, or both.
This clause does not abrogate the common law privilege against
self-incrimination.
Clause 158 - Translation of documents
If a person is required by the new Act to produce a document and the
document is not written in English, an authorised person may request the
person to make available a certified English translation within 28 days
(subclause 158(1)).
Subclause 158(2) provides that a person commits an offence if they refuse or
fail to comply with subclause 158(1). The penalty for contravention is
four penalty units. This offence is one of strict liability (subclause 158(3)).
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Strict liability is appropriate in this case as compliance by a person is not an
onerous or difficult obligation and is an action in the control of the person.
Including a provable fault element would probably undermine the integrity of
the provision, as it would be difficult to prove fault in most instances.
Alternatively, the fault element would need to be drafted to include all states of
mind that could lead to non-compliance, effectively making the offence strict
liability.
Subclause 158(4) provides a definition of certified in relation to a translation
of a document.
Clause 159 - Record keeping requirements
Subclause 159(1) provides that the regulations (made under clause 201) may
prescribe requirements in relation to keeping and retaining records of
specified information that is relevant to the new Act. Such requirements may
be imposed on any or all of the persons specified in subclause 159(2).
Subclause 159(3) provides that a person commits an offence if they are
subject to a requirement under regulations made under this clause and the
person engages in conduct that contravenes the requirement. The penalty for
contravention is four penalty units. This offence is one of strict liability
(subclause 159(4).
Strict liability is appropriate as compliance by a person is not an onerous or
difficult obligation and is an action in the control of the person, and not subject
to reliance on actions of third parties. The purpose of clause 159 is to ensure
people keep records of their compliance with the new Act.
Including a provable fault element would probably undermine the integrity of
the provision, as it would be difficult to prove fault in most instances.
Alternatively, the fault element would need to be drafted to include all states of
mind that could lead to non-compliance, effectively making the offence strict
liability.
The imposition of strict liability in these circumstances is considered to be
consistent with Part 4.3.2 of A Guide to Framing Commonwealth Offences,
Infringement Notices and Enforcement Powers.
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Chapter 8 - Enforcement
Summary
Chapter 8 provides for a range of actions to be taken to enforce the harm
minimisation measures in this Bill, including civil penalty orders, infringement
notices, injunctions, enforceable undertakings and compliance notices, with
the possibility of publication by the Regulator of details of enforcement action
taken under this Chapter.
Background
Civil penalty orders may be sought from a court in relation to contraventions of
civil penalty provisions.
A person can be given an infringement notice in relation to a contravention of
an offence of strict liability.
A person who is given an infringement notice can choose to pay an amount
as an alternative to having court proceedings brought against the person for a
contravention of a provision. If the person does not choose to pay the
amount, proceedings can be brought against the person in relation to the
contravention.
An injunction may be sought to restrain a person from contravening a
provision, or to compel compliance with a provision.
An authorised person may accept from a person an undertaking relating to
compliance with a provision. The undertaking may be enforced by a court
order.
A person may be given a compliance notice if an authorised person
reasonably believes that the person has contravened a provision. The notice
may require the person to take specified action to remedy the contravention.
A failure to comply with a notice may be subject to a civil penalty.
The penalties provided for within this Bill are maximum penalties.
Accordingly, the penalty that might apply in relation to any particular offence
can be adjusted according to the gravity of the contravention, or where there
have been multiple, or repeat, contraventions of the provisions.
The regulator may publicise details of certain enforcement action taken under
Chapter 8.
Part 1 - Guide to this Chapter
Clause 160 - Guide to this Chapter
Clause 160 provides a guide to Chapter 8 of the Bill.
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Part 2 - Civil penalty provisions
Division 1 - Obtaining a civil penalty order
Clause 161 - Civil penalty orders
Subclause 161(1) provides that the Regulator may apply to a relevant court
for an order that a person, who is alleged to have contravened a civil penalty
provision, pay the Commonwealth a pecuniary penalty. Civil penalty
provision is defined in clause 5 to mean a provision of the new Act either that
sets out at its foot a pecuniary penalty, or penalties, indicated by the words
`civil penalty', or that is stipulated by another provision of the new Act to be a
civil penalty provision. Additionally, the provision must be either a subsection,
or a section that is not divided into subsections, or a subregulation, or a
regulation that is not divided into subregulations.
A note alerts the reader that the Regulator cannot apply for an order in certain
cases where an undertaking or compliance notice has been given (see
subclauses 187(6) and 189(5)).
Subclause 161(2) requires that the Regulator make the application to the
court within four years of the alleged contravention.
If the relevant court is satisfied that the person has contravened the civil
penalty provision, subclause 161(3) provides that the court may order the
person to pay to the Commonwealth such pecuniary penalty for the
contravention as the court determines to be appropriate.
Subclause 161(4) provides that an order under subclause (3) is a civil
penalty order.
The amount of the pecuniary penalty is limited by subclause 161(5). If the
person is a body corporate, the limit is five times the pecuniary penalty
specified for the civil penalty provision. Otherwise, the limit is the pecuniary
penalty specified for the civil penalty provision.
Subclause 161(6) provides that, in determining the pecuniary penalty, the
court may take into account all relevant matters, including:
· the nature and extent of the contravention;
· the nature and extent of any loss or damage suffered because of the
contravention;
· the circumstances in which the contravention took place; and
· whether the person has previously been found by a court to have
engaged in any similar conduct.
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Clause 162 - Civil enforcement of penalty
Clause 162 provides for the enforcement of penalty. A pecuniary penalty is a
debt payable to the Commonwealth. The Commonwealth may enforce a civil
penalty order as if it were an order made in civil proceedings against the
person to recover a debt due by the person. The debt arising from the order is
taken to be a judgement debt.
Clause 163 - Conduct contravening more than one civil penalty
provision
Clause 163 deals with the situation where conduct contravenes more than
one civil penalty provision. If conduct constitutes a contravention of two or
more civil penalty provisions, proceedings may be instituted under this Part
against a person in relation to the contravention of any one or more of those
provisions. However, the person is not liable to more than one pecuniary
penalty under this Part in relation to the same conduct.
Clause 164 - Multiple contraventions
Clause 164 provides for multiple contraventions of a civil penalty provision.
Subclause 164(1) provides that a relevant court may make a single civil
penalty order against a person for multiple contraventions of a civil penalty
provision if proceedings for the contraventions are founded on the same facts,
or if the contraventions form, or are part of, a series of contraventions of the
same or a similar character. Subclause 164(2) makes it clear that the
penalty must not exceed the sum of the maximum penalties that could be
ordered if a separate penalty were ordered for each of the contraventions.
Clause 165 - Proceedings may be heard together
Clause 165 provides that a relevant court may direct that two or more
proceedings for civil penalty orders are to be heard together.
Clause 166 - Civil evidence and procedure rules for civil penalty orders
Clause 166 provides that a relevant court must apply the rules of evidence
and procedure for civil matters when hearing proceedings for a civil penalty
order.
Clause 167 - Contravening a civil penalty provision is not an offence
Clause 167 makes it clear that a contravention of a civil penalty provision is
not an offence.
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Division 2 - Civil proceedings and other enforcement action
Clause 168 - Civil proceedings after other enforcement action
Clause 168 provides that a relevant court may not make a civil penalty order
against a person for a contravention of a civil penalty provision (the gambling
contravention) if the person has;
(a) been convicted of a criminal offence (under a law of the
Commonwealth, a State or a Territory); or
(b) been found by a court to have contravened a civil penalty provision
under the law of a State or Territory
that is constituted by conduct that is the same, or substantially the same, as
the conduct that is constituting the gambling contravention.
Clause 169 -Other enforcement action during civil proceedings
Clause 169 provides that proceedings (the gambling proceedings) for a civil
penalty order against a person for a contravention (the gambling
contravention) of a civil penalty provision are stayed if:
· either;
o criminal proceedings are commenced or have already been
commenced against the person for an offence (under a law of
the Commonwealth, a State or a Territory); or
o civil proceedings are commenced or have already been
commenced against the person for an offence under a law of a
State or a Territory; and
· the offence, or civil penalty provision referred to above, is constituted
by conduct that is the same, or substantially the same, as the conduct
alleged to constitute the gambling contravention.
Subclause 169(2) provides that the gambling proceedings may be resumed if
the person is not convicted of the offence or a court does not find the person
breached a civil penalty provision referred to in paragraph 169(1)(a).
Otherwise, the gambling proceedings are dismissed.
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Clause 170 -Other enforcement action after civil proceedings
Clause 170 provides that criminal proceedings (under a law of the
Commonwealth, a State or a Territory), or civil penalty proceedings (of a State
or Territory) may be commenced against a person for conduct that is the
same, or substantially the same, as conduct that would constitute a
contravention of a civil penalty provision, regardless of whether a civil penalty
order under this Bill has been made against the person in relation to the
contravention. It is intended that this provision will apply only to the extent
that the law of the Commonwealth or the relevant State or Territory (as
applicable) would otherwise allow for a civil penalty to be imposed on a
person who has previously been convicted of a criminal offence for conduct
that is the same, or substantially the same, as the conduct giving rise to the
civil offence.
Clause 171 - Evidence given in civil proceedings not admissible in
criminal proceedings
Clause 171 provides that evidence of information given, or evidence of
production of documents, by an individual is not admissible in criminal
proceedings (under a law of the Commonwealth,) against the individual if:
· the individual previously gave the evidence or produced the documents
in proceedings under this Act for a civil penalty order against the
individual for an alleged contravention of a civil penalty provision
(whether or not the order was made); and
· the conduct alleged to constitute the offence is the same, or
substantially the same, as the conduct alleged to constitute the
contravention.
Subclause 171(2) provides that subclause (1) does not apply to criminal
proceedings in relation to the falsity of the evidence given by the individual in
the proceedings for the civil penalty order.
Clause 171 is an evidential rule that applies only to Commonwealth criminal
proceedings. It is not intended that this rule will displace the rules of evidence
as they apply to proceedings brought in a State or Territory. State or Territory
proceedings will be bound by the rules of evidence relating to the State or
Territory in which the proceedings are undertaken.
Division 3 - Miscellaneous
Clause 172 - Ancillary contravention of civil penalty provisions
Clause 172 provides that a person must not:
· attempt to contravene a civil penalty provision; or
· aid, abet, counsel or procure a contravention of a civil penalty
provision; or
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· induce (by threats, promises or otherwise) a contravention of a civil
penalty provision; or
· be in any way, directly or indirectly, knowingly concerned in, or party to,
a contravention of a civil penalty provision; or
· conspire with others to effect a contravention of a civil penalty
provision.
A note alerts the reader to the fact that clause 174 (which provides that a
person's state of mind does not need to be proven in relation to a civil penalty
provision) does not apply to this subclause. Accordingly, a person's state of
mind does need to be proven for a contravention of these provisions.
Subclause 172(2) provides that a person who contravenes subclause (1) in
relation to a civil penalty provision is taken to have contravened the provision.
Clause 173 - Mistake of fact
Clause 173 provides that a person is not liable to have a civil penalty order
made against the person for a contravention of a civil penalty provision if, at or
before the time of the conduct constituting the contravention, the person
considered whether or not facts existed, and was under a mistaken but
reasonable belief about those facts, and, had those facts existed, the conduct
would not have constituted a contravention of the civil penalty provision.
Subclause 173(2) provides that for the purposes of subclause (1), a person
may be regarded as having considered whether or not facts existed if:
· the person had considered, on a previous occasion, whether those
facts existed in the circumstances surrounding that occasion; and
· the person honestly and reasonably believed that the circumstances
surrounding the present occasion were the same, or substantially the
same, as those surrounding the previous occasion.
Subclause 173(3) provides that a person who wishes to rely on subclause (1)
or (2) in proceedings for a civil penalty order bears an evidential burden in
relation to that matter. That is, the defendant is required to prove, on the
balance of probabilities, that they held an honest and reasonable belief in
relation to the mistaken facts relied upon. This is appropriate as mistake of
fact is a matter which is peculiarly within the defendant's knowledge and not
available to the prosecution.
The reversal of the onus of proof in these circumstances is considered to be
consistent with Part 4.3.2 of A Guide to Framing Commonwealth Offences,
Infringement Notices and Enforcement Powers.
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Clause 174 - State of mind
Clause 174 provides that, in proceedings for a civil penalty order against a
person for a contravention of a civil penalty provision (other than
subclause 172(1)), it is not necessary to prove:
· the person's intention; or
· the person's knowledge; or
· the person's recklessness; or
· the person's negligence; or
· any other state of mind of the person.
Subclause 174(2) provides that subclause (1) does not affect the operation of
clause 173 (which is about mistake of fact).
Clause 175 - Civil penalty provisions contravened by employees, agents
or officers
Clause 175 provides that, if an element of a civil penalty provision is done by
an employee, agent or officer of a body corporate acting within the actual or
apparent scope of his or her employment, or within his or her actual or
apparent authority, the element must also be attributed to the body corporate.
Part 3 - Infringement notices
Clause 176 - When an infringement notice may be given
Subclause 176(1) provides that, if the Regulator has reasonable grounds to
believe that a person has contravened a civil penalty provision in Chapter 3
or 5 of the new Act, the Regulator may give an infringement notice to the
person for the alleged contravention.
Subclause 176(2) provides that the infringement notice must be given within
12 months after the day on which the contravention is alleged to have taken
place.
Subclause 176(3) provides that a single infringement notice must relate only
to a single contravention of a single provision.
Clause 177 - Matters to be included in an infringement notice
Clause 177 provides that an infringement notice must:
· be identified by a unique number;
· state the day on which it is given;
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· state the name of the person to whom the notice is given;
· give brief details of the alleged contravention, including the provision
that was allegedly contravened, the maximum penalty that a court
could impose for the contravention, and the time (if known) and day of,
and the place of, the alleged contravention;
· state the amount that is payable under the notice;
· give an explanation of how payment of the amount is to be made; and
· state that, if the person to whom the notice is given pays the amount
within 28 days after the day the notice is given, then (unless the notice
is withdrawn) neither criminal proceedings, nor proceedings for a civil
penalty order, will be brought in relation to the alleged contravention;
· state that payment of the amount is not an admission of guilt or liability;
· state that the person may apply to the Regulator to have the period in
which to pay the amount extended;
· state that the person may choose not to pay the amount and, if the
person does so, the person may be prosecuted in a court, or
proceedings for a civil penalty order may be brought, in relation to the
alleged contravention;
· set out how the notice can be withdrawn;
· state that, if the notice is withdrawn, the person may be prosecuted in a
court, or proceedings for a civil penalty order may be brought, in
relation to the alleged contravention; and
· state that the person may make written representations to the
Regulator seeking the withdrawal of the notice.
Subclause 177(2) provides that the amount that is payable under the notice
is to be different for alleged contraventions of different parts of the new Act.
For an alleged contravention by a person of a provision in Part 2 of Chapter 3
(gaming machines that do not comply with precommitment and dynamic
warning requirements) or of clause 63 (providing a non-compliant automatic
teller machine), or of clause 79 or 80 (manufacturing and importing gaming
machines), 10 penalty units apply to a body corporate, and two penalty units
apply otherwise. A penalty unit is currently $110.
For an alleged contravention by a person of clause 62 (occupying premises
containing a non-compliant automatic teller machine), five penalty units apply
to a body corporate, and one penalty unit applies otherwise.
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Clause 178 - Extension of time to pay amount
Clause 178 provides that a person to whom an infringement notice has been
given may apply to the Regulator for an extension of the period of time to pay
the amount set out in the infringement notice before civil penalty proceedings
are commenced.
Subclause 178(2) provides that, if the application is made before the end of
that period, the Regulator may, in writing, extend that period. The Regulator
may do so before or after the end of that period.
Subclause 178(3) provides that, if the Regulator extends that period, a
reference in this Part, or in a notice or other instrument under this Part, to the
period referred to in clause 177 is taken to be a reference to that period so
extended.
Subclause 178(4) deals with the situation in which the Regulator does not
extend the period, providing that reference to the period in clause 177
becomes the later of the last day of the period or the day that is seven days
after the person is given notice of the Regulator's decision not to extend.
For clarity, subclause 178(5) provides that the Regulator may extend the
period more than once under subclause (2).
Clause 179 - Withdrawal of an infringement notice
Clause 179 allows a person to whom an infringement notice has been given
to make written representations to the Regulator seeking the withdrawal of the
notice.
Subclause 179(2) provides that the Regulator may withdraw an infringement
notice given to a person (whether or not the person has made written
representations seeking the withdrawal).
Subclause 179(3) guides the Regulator when deciding whether or not to
withdraw an infringement notice. The Regulator must take into account any
written representations seeking the withdrawal that were given by the person
to the Regulator. The Regulator may also take into account:
· whether a court has previously imposed a penalty on the person for a
contravention of an offence or civil penalty provision in the new Act;
· the circumstances of the alleged contravention;
· whether the person has paid an amount stated in an earlier
infringement notice, for contravention of a civil penalty provision that is
constituted by conduct that is the same, or substantially the same, as
the conduct alleged to constitute the offence in the relevant
infringement notice;
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· any other matter the Regulator considers relevant.
Subclause 179(4) provides that notice of the withdrawal must be given to the
person. The withdrawal notice must state:
· the person's name and address;
· the day the infringement notice was given;
· the identifying number of the infringement notice;
· that the infringement notice is withdrawn; and
· that the person may be prosecuted in a court, or proceedings for a civil
penalty order may be brought, in relation to the alleged contravention.
Subclause 179(5) provides that, if the Regulator withdraws the infringement
notice and the person has already paid the amount stated in the notice, the
Commonwealth must refund to the person an amount equal to the amount
paid.
Clause 180 - Effect of payment of amount
Subclause 180(1) provides that, if the person to whom an infringement notice
for an alleged contravention of a provision is given pays the amount stated in
the notice before the end of the period referred to in clause 177, then:
· any liability of the person for the alleged contravention is discharged;
· neither criminal proceedings, nor proceedings for a civil penalty order,
may be brought in relation to the alleged contravention;
· the person is not regarded as having admitted guilt or liability for the
alleged contravention; and
· the person is not regarded as having been convicted of the alleged
offence.
Subclause 180(2) provides that subclause (1) does not apply if a notice has
been withdrawn.
Clause 181 - Effect of this Part
Clause 181 provides that this Part does not:
· require an infringement notice to be given to a person for an alleged
contravention of a civil penalty provision;
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· affect the liability of a person for an alleged contravention of a civil
penalty provision if the person does not comply with an infringement
notice given to the person for the contravention, or an infringement
notice is not given to the person for the contravention, or an
infringement notice is given to the person for the contravention and is
subsequently withdrawn; or
· limit a court's discretion to determine the amount of a penalty to be
imposed on a person who is found to have contravened a civil penalty
provision offence.
Part 4 - Injunctions
Clause 182 - Grant of injunctions
Clause 182 provides for restraining and performance injunctions.
Subclause 182(1) provides that, if a person has engaged, is engaging or is
proposing to engage, in conduct in contravention of any provision of the new
Act, a relevant court may, on application by an authorised person, grant an
injunction restraining the person from engaging in the conduct. Additionally,
if, in the court's opinion, it is desirable to do so, the court may require the
person to do a thing.
An authorised person is defined in clause 5 as a person appointed under
clause 112 and the Regulator in his or her capacity as an authorised person
under clause 113.
A relevant court is defined in clause 5 as the Federal Court of Australia, the
Federal Magistrates Court, or a court of a State or Territory that has
jurisdiction in relation to matters arising under the new Act.
Subclause 182(2) provides that, if a person has refused or failed, or is
refusing or failing, or is proposing to refuse or fail, to do a thing, and the
refusal or failure was, is or would be a contravention of a provision of the new
Act, a court may, on application by an authorised person, grant an injunction
requiring the person to do that thing.
Clause 183 - Interim injunctions
Clause 183 allows for the granting of interim injunctions before deciding an
application for an injunction under clause 182. The interim injunction may
restrain a person from engaging in conduct, or require a person to do a thing.
However, subclause 183(2) restricts a court from requiring an applicant for
an injunction under clause 182 to give an undertaking as to damages as a
condition of granting an interim injunction.
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Clause 184 - Discharging or varying injunctions
Clause 184 provides that a relevant court may discharge or vary an injunction
granted by that court under this Part.
Clause 185 - Certain limits on granting injunctions not to apply
Clause 185 guides the grant of restraining and performance injunctions by a
court.
Subclause 185(1) provides that the power of a relevant court under this Part
to grant an injunction restraining a person from engaging in conduct may be
exercised:
· whether or not it appears to the court that the person intends to engage
again, or to continue to engage, in conduct of that kind;
· whether or not the person has previously engaged in conduct of that
kind; and
· whether or not there is an imminent danger of substantial damage to
any other person if the person engages in conduct of that kind.
Subclause 185(2) provides that the power of a relevant court under this Part
to grant an injunction requiring a person to do a thing may be exercised:
· whether or not it appears to the court that the person intends to refuse
or fail again, or to continue to refuse or fail, to do that thing;
· whether or not the person has previously refused or failed to do that
thing; and
· whether or not there is an imminent danger of substantial damage to
any other person if the person refuses or fails to do that thing.
Clause 186 - Other powers of a relevant court unaffected
Clause 186 confirms that the powers conferred on a relevant court under this
Part are in addition to, and not instead of, any other powers of the court,
whether conferred by the new Act or otherwise.
Part 5 - Enforceable undertakings
Clause 187 - Acceptance of undertakings
Clause 187 provides that the Regulator may accept any of the following
undertakings:
· a written undertaking given by a person that the person will, in order to
comply with a provision of the new Act, take specified action;
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· a written undertaking given by a person that the person will, in order to
comply with a provision of the new Act, refrain from taking specified
action;
· a written undertaking given by a person that the person will take
specified action directed towards ensuring that the person does not
contravene a provision of the new Act, or is unlikely to contravene such
a provision, in the future.
Subclause 187(2) provides that the undertaking must be expressed to be an
undertaking under this clause.
Subclause 187(3) provides that the person may, with the written consent of
the Regulator, withdraw or vary the undertaking. They may do so at any time.
Subclause 187(4) provides that the Regulator's written consent is not a
legislative instrument. This provision is inserted to assist readers and is
merely declaratory of the law. The Regulator's written consent is not a
legislative instrument within the meaning of the Legislative Instruments
Act 2003.
Subclause 187(5) provides that the Regulator may, by written notice given to
the person, cancel the undertaking.
Subclauses 187(6) and (7) deal with the relationship between undertakings
and the civil penalty provisions.
Subclause 187(6) provides that the Regulator must not apply for a civil
penalty order in relation to a contravention of a civil penalty provision by a
person if an undertaking given by the person under this clause in relation to
the contravention has not been withdrawn or cancelled.
Subclause 187(7) similarly provides that the Regulator must not accept an
undertaking in relation to a contravention if the person has been given a
notice in relation to the contravention under clause 189.
Clause 188 - Enforcement of undertakings
Clause 188 provides that, if a person has given an undertaking under
clause 187, the undertaking has not been withdrawn or cancelled, and the
Regulator considers that the person has breached the undertaking, the
Regulator may apply to a relevant court for an order under subclause (2).
Subclause 188(2) provides for a relevant court's powers if the court is
satisfied that the person has breached the undertaking. If so, the court may
make any or all of the following orders:
· an order directing the person to comply with the undertaking;
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· an order directing the person to pay to the Commonwealth an amount
up to the amount of any financial benefit that the person has obtained
directly or indirectly and that is reasonably attributable to the breach;
· any order that the court considers appropriate directing the person to
compensate any other person who has suffered loss or damage as a
result of the breach;
· any other order that the court considers appropriate.
Part 6 - Compliance notices
Clause 189 - Compliance notices
Clause 189 empowers an authorised person to give a notice, known as a
compliance notice, to a person in particular circumstances. An authorised
person is defined in clause 5 as a person appointed under clause 112 and the
Regulator in his or her capacity as an authorised person under clause 113.
Subclause 189(1) provides that this clause applies if an authorised person
reasonably believes that a person has contravened any provision of the new
Act.
Subclause 189(2) empowers an authorised person to, except as provided by
subclause (4), give the person a notice requiring the person to do the
following within such reasonable time as is specified in the notice. The
person may be required to take specified action to remedy the direct effects of
the contravention referred to in subclause (1), and/or to produce reasonable
evidence of the person's compliance with the notice.
Subclause 189(3) provides that the notice must also:
· set out the name of the person to whom the notice is given;
· set out the name of the authorised person who gave the notice;
· set out brief details of the contravention;
· explain that a failure to comply with the notice may contravene a civil
penalty provision;
· explain that the person may apply to a relevant court for a review of the
notice on either or both of the grounds that the person has not
committed a contravention set out in the notice or that the notice does
not comply with subclause (2) or this subclause; and
· set out any other matters prescribed by the regulations (made under
clause 201).
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Subclause 189(4) provides that an authorised person must not give a person
a notice in relation to a contravention if the person has given an undertaking
under clause 187 in relation to the contravention, the undertaking has been
accepted by the Regulator and the undertaking has not been withdrawn or
cancelled.
Subclause 189(5) provides that the Regulator must not apply for a civil
penalty order in relation to a contravention of a civil penalty provision by a
person if an authorised person has given the person a notice in relation to the
contravention and either the notice has not been withdrawn, and the person
has complied with the notice, or the person has made an application under
clause 190 in relation to the notice that has not been completely dealt with.
Subclause 189(6) provides that a person who complies with a notice in
relation to a contravention of a civil penalty provision is not taken to have
admitted to contravening the provision or to have been found to have
contravened the provision.
Subclause 189(7) requires that a person must not fail to comply with a notice
given under this clause. This is a civil penalty provision, subject to a penalty
of 30 penalty units.
However, subclause 189(8) provides that the penalty in subclause 189(7)
does not apply if the person has a reasonable excuse. Although A Guide to
Framing Commonwealth Offences, Infringement Notices and Enforcement
Powers cautions against defences of `reasonable excuse' this approach has
been taken because the particular circumstances that will need to be relied on
to establish the existence of a reasonable excuse will be peculiar to the
knowledge of the defendant.
Subclause 189(9) provides that a person who wishes to rely on subclause (8)
in proceedings for a civil penalty order bears an evidential burden in relation
to the matter in that subclause. This means that the person has to prove, on
the balance of probabilities, that the facts upon which they rely are true. This
approach has been taken because the particular circumstances that will need
to be relied on to establish the defence will be peculiar to the knowledge of
the defendant
Clause 190 - Review of compliance notices
Clause 190 provides for review by a court of the giving of a compliance
notice.
Subclause 190(1) provides that a person who has been given a notice under
clause 189 may apply to a relevant court for a review of the notice on grounds
that either the person has not committed a contravention set out in the notice
and/or that the notice does not comply with subclause 189(2) or (3).
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Subclause 190(2) provides that, at any time after the application has been
made, the court may stay the operation of the notice on the terms and
conditions that the court considers appropriate.
Subclause 190(3) then provides that the court may confirm, cancel or vary
the notice after reviewing it.
Part 7 - Miscellaneous
Clause 191 - Regulator may publicise certain offences and
contraventions
Clause 191 empowers the Regulator to publicise, in any way he or she thinks
appropriate, any or all of:
· an offence against the new Act of which a person has been convicted,
and the person's name;
· a contravention of a civil penalty provision in relation to which a civil
penalty order has been made against a person, and the person's
name;
· the acceptance of an undertaking given under clause 187 by a person,
the terms of the undertaking, and the person's name;
· a breach of an undertaking given under clause 187 in relation to which
an order has been made against a person under subclause 188(2), the
terms of the order and the person's name;
· the granting or varying of an injunction under Part 4 restraining a
person from engaging in conduct, or requiring a person to do an act or
thing, the nature of the conduct, act or thing, and the person's name.
A note alerts the reader to the fact that this subclause constitutes an
authorisation for the purposes of other laws, such as the Privacy Act 1988.
Subclause 191(2) clarifies that this clause does not limit the power of the
Regulator or anyone else to publicise a matter or a person's name, prevent
anyone else from publicising a matter or a person's name; or affect any
obligation (however imposed) on anyone to publicise a matter or a person's
name.
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Chapter 9 - Research, reviews and other provisions
Summary
Chapter 9 contains provisions for two separate inquiries by the Productivity
Commission in relation to any trial of mandatory precommitment systems
(including the conditions the Commonwealth places on itself in agreeing to
any trial of mandatory precommitment) and an assessment of the progress
gaming machine premises are making towards complying with the measures
contained in this Bill. This Chapter also establishes a new Australian
Gambling Research Centre within the Australian Institute of Family Studies
and an Expert Advisory Group on Gambling to support it.
This Chapter also provides for the Regulator to delegate all or any powers or
functions under the Bill. If the delegation is made to an employee or body of a
State or Territory the delegation can only be made with the approval of the
relevant Minister of the State or Territory.
It is the Government's preference that the Regulator's functions and powers
be delegated to a relevant employee or body in each of the States or
Territories.
This Chapter also sets out the review and appeal rights that are available from
decisions made by the Regulator, or his or her delegate.
Part 1 - Guide to this Chapter
Clause 192 - Guide to this Chapter
Clause 192 provides a guide to Chapter 9 of the Bill.
Part 2 - Research, reviews and other provisions
Division 1 - Research and reviews
Clause 193 - Productivity Commission review of results of trial if trial
conducted
Subclause 193(1) provides that this clause applies if the Commonwealth
agrees that a trial is to be conducted in relation to the requirements of Part 2
of Chapter 2 (precommitment systems) and the trial requires that all persons
who use a gaming machine that is covered by the trial be registered,
otherwise known as mandatory `full' precommitment.
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Subclause 193(2) sets out that features that must be included in the trial
before the Commonwealth can agree to the trial occurring. These features
confirm that the trial will be robust and independent.
Subclause 193(3) provides that, if a trial is undertaken, once it has been
completed, the Productivity Minister must, under paragraph 6(1)(a) of the
Productivity Commission Act 1988, refer the results of the trial as evaluated
by the independent body, to the Productivity Commission for inquiry.
The note at the end of subclause 193(3) refers the reader to clause 195 for
the requirements in relation to the referral and reports on the inquiry.
Subclause 193(4) provides that, as part of the inquiry the Productivity
Commission must consider whether requiring people to register with the
precommitment system to be able to use a gaming machine provides
sufficient advantages to individuals and communities over a precommitment
system that allows people to choose whether they want to register to justify
implementing that system in all States and Territories.
Clause 194 - Productivity Commission review of assessment of
progress
Clause 194 provides that the Productivity Minister must, under
paragraph 6(1)(a) of the Productivity Commission Act 1988, refer to the
Productivity Commission for inquiry an assessment of the progress gaming
machine premises are making towards complying with Parts 2 and 3 of
Chapter 2 (precommitment systems and dynamic warning systems), ATM
withdrawal limits, Part 2 of Chapter 5 (requirements for manufacturing and
importing gaming machines) and any other matters that the Minister who
administers the Act considers relevant.
The referral of as set out in subclause 194(1) must occur no later than
30 September 2014.
Clause 195 - Requirements for referrals to Productivity Commission and
reports
Subclause 195(1) provides that in referring the matters set out in
subclause 193 or 194 to the Productivity Commission for inquiry, the
Productivity Minister must, under paragraph 11(1)(b) of the Productivity
Commission Act 1988, specify six months as the period within which the
Productivity Commission must submit its report on the inquiry and, under
paragraph 11(1)(d) of that Act, require the Commission to make
recommendations to the Commonwealth Government
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Subclause 195(2) provides that, as soon as practicable after receiving a
report, the Minister who administers the new Act must cause a statement to
be prepared that sets out the Commonwealth Government's response to each
recommendation. That Minister must also cause copies of the statement to a
report to be tabled in each house of the Parliament within three months after
receiving the report (subclause 195(3)).
For the purposes of paragraph 6(1)(a) of the Productivity Commission
Act 1988, the matters referred to in clauses 193 and 194 are taken to be
matters relating to industry, industry development and productivity
(subclause 195(4)) and this clause does not limit the Productivity Minister's
powers under that paragraph (subclause 195(5)).
Clause 196 - Research into gambling
Subclause 196(1) gives additional functions to the Director of the Australian
Institute of Family Studies that establish the Australian Gambling Research
Centre. The new functions of the Director are to undertake or commission
research into, or producing data and statistics about gambling issues and to
increase the capability of researchers to undertake these activities.
The Australian Institute of Family Studies is established by Part XIVA of the
Family Law Act 1975 (the Family Law Act). The Director of the Australian
Institute of Family Studies has the same meaning as section 114A of the
Family Law Act.
Subclause 196(2) confirms for the reader that the new functions of the
Director of the Australian Institute of Family Studies form part of the
Administration of the new Act. This clause has been added to ensure that it is
clear that although the role of Director of the Australian Institute of Family
Studies is established under the Family Law Act, when the Director is
undertaking the functions set out in subclause 196(1) those actions are part of
the new Acts administration and not part of the administration of the Family
Law Act.
Subclause 196(3) provides that when the Director and the Australian Institute
of Family Studies are undertaking the functions set out in subclause 196(1)
above they are to be known as the Australian Gambling Research Centre.
Subclause 196(4) provides that, for the purposes of section 114LD of the
Family Law Act, the functions referred to in subclause 196(1) are to be
considered functions of the Director under Part XIVA of the Family Law Act.
This provision ensures that the Director can delegate the new functions in the
same way as existing functions can be delegated.
Clause 197 - Expert Advisory Group on Gambling
Subclause 197(1) establishes the Expert Advisory Group on Gambling to
support the Australian Gambling Research Centre.
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Subclause 197(2) provides for the functions of the Expert Advisory Group on
Gambling that is established by subclause 197(1). The functions of the
Expert Advisory Group on Gambling are to provide advice to the Director of
the Australian Gambling Research Centre (as set out in subclause 196(3)
above) in relation to:
(a) strategic directions and research plans and programs for undertaking
or commissioning research into, or producing data and statistics about,
gambling; and
(b) strategies for increasing the capability and capacity of researchers to
conduct research into, or produce data and statistics about, gambling.
The note at the end of subclause 197(2) refers the reader to subclause 196(3)
for information regarding the Australian Gambling Research Centre.
Subclause 197(3) sets out how many members of the Expert Advisory Group
on Gambling there will be. The Expert Advisory Group on Gambling will be
comprised of the Director of the Australian Gambling Research Centre and
between 7 and 11 other members.
Subclauses 197(4) to 197(6) set out how the members of the Expert
Advisory Group on Gambling, other than the Director of the Australian
Gambling Research Centre, will be appointed.
The Director of the Australian Gambling Research Centre will be able to
appoint, in writing, members to the Expert Advisory Group on Gambling if the
Director is satisfied that the person to be appointed has relevant expertise.
The Director can also revoke a person's appointment at any time.
Subclause 197(7) provides that the Director of the Australian Gambling
Research Centre can determine, in writing, the terms and conditions of
appointment to the Expert Advisory Group on Gambling. The determination of
the terms and conditions of appointment is not a legislative instrument as it is
covered by item 9 of Schedule 1 to the Legislative Instruments
Regulations 2004. That item provides that instruments of appointment are not
legislative instruments.
Subclause 197(8) confirms for the reader that an appointment to the Expert
Advisory Group on Gambling is not a public office within the meaning of the
Remuneration Tribunal Act 1973. Accordingly, the provisions of that Act do
not apply to the people appointed to the Expert Advisory Group on Gambling.
Subclause 197(9) provides that the Director of the Australian Gambling
Research Centre can give the Expert Advisory Group on Gambling written
directions about how the Group is to carry out its functions and the
procedures that are to be followed at meetings.
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Subclause 197(10) confirms for the reader that directions given to the Expert
Advisory Group on Gambling under subclause 197(9) are not a legislative
instrument. This is merely declaratory of the law, as the directions do not
meet the definition of legislative instrument in section 5 of the Legislative
Instruments Act 2003.
Division 2 - Other provisions
Clause 198 - Internal review of reviewable decisions
Subclause 198(1) provides that, as soon as practicable after a person makes
a reviewable decision, the Regulator must cause a notice in writing to be
given to the person whose interest are affected by the decision containing
certain specified information. A failure to comply with subclause 198(1) in
relation to a decision does not affect the validity of the decision
(subclause 198(2)).
A person whose interests are affected by a reviewable decision may apply in
writing to the Regulator for a review of the decision (subclause 198(3)). An
application for review must be made within 30 days after the day on which the
decision first came to the notice of the applicant (or any other period the
Regulator allows) (subclause 198(4)).
Subclause 198(5) requires the Regulator to review the decision on receiving
the application. The Regulator may make a decision affirming, varying or
revoking the reviewable decision and make any other decision that the
Regulator thinks appropriate (if revoking the decision) (subclause 198(6)).
Clause 199 - AAT review of decisions
If the Regulator makes a decision under subclause 198(6) or makes a
reviewable decision personally, the Regulator must cause a notice in writing
to be given to the person whose interests are affected by the decision
containing certain specified information including a statement to the effect that
application may be made to the Administrative Appeals Tribunal for review
(subclause 199(1)). A failure to comply with subclause 199(1) in relation to a
decision does not affect the validity of the decision (subclause 199(2)).
Subclause 199(3) provides that application may be made to the
Administrative Appeals Tribunal for a review of decisions made under
subclause 198(6) or reviewable decisions made by the Regulator personally.
In clause 199, decision has the same meaning as in the
Administrative Appeals Tribunal Act 1975 (subclause 199(4)).
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Clause 200 - Delegation
Subclause 200(1) provides for the Regulator to delegate all or any powers or
functions under the Bill (other than under clause 113 (Regulator is an
authorised person)) to certain specified persons, that is an SES employee or
acting SES employee in the Department. Powers or functions can also be
delegated to a person occupying or acting in a position that is equivalent to or
higher than an SES employee (in the public service of a State or Territory) or
a body established for a public purposed by or under a law of a State or
Territory.
Subclause 200(2) requires a delegate to comply with any directions of the
Regulator in exercising powers or functions delegated under
subclause 200(1).
The Regulator may not delegate a power or function to a person referred to in
paragraph 200(1)(b) (certain persons occupying or acting in positions in
certain State or Territory positions) without the written agreement of the
relevant Minister of the State or Territory concerned (subclause 200(3)). This
means that any delegation to a State or Territory regulator must be agreed by
the relevant Minister of a State or Territory.
Clause 201 - Regulations
Subclause 201(1) provides that the Governor-General may make regulations
on various matters relating to the new Act.
Without limiting subclause 201(1), the regulations may include offences and
civil penalty provisions, and prescribe penalties for contraventions of such
provision that do not exceed specified penalty unit limits (subclause 201(2)).
It is necessary for offence content to be delegated to regulations due to the
changing nature of the subject matter and technology governed by the
gambling reform measures in this Bill. It is also possible that the information
that may be required to provide other offence content in relation to this subject
matter will involve a level of detail and material of such a technical nature that
it is not appropriate to deal with it in this Bill.
Any offence content proposed for inclusion in regulations made under this
clause would be considered by the Federal Executive Council and are subject
to disallowance by Parliament. This provides an additional layer of scrutiny
and accountability. In these circumstances clause 201 is considered to be
consistent with Part 2.3.4 of A Guide to Framing Commonwealth Offences,
Infringement Notices and Enforcement Powers.
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National Gambling Reform Bill 2012
Chapter 9 - Research, reviews and other provisions
The Legislative Instruments Act 2003 applies to regulations made under
clause 201. Sections 17 to 19 of the Legislative Instruments Act 2003 deal
with rule-maker consultation, including the circumstances in which
consultation may be unnecessary or inappropriate. The Legislative
Instruments Act 2003 does not make consultation mandatory. However, all
Commonwealth agencies are encouraged to undertake appropriate
consultation before making a legislative instrument, particularly if the
proposed instrument is likely to affect business or restrict competition.
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NATIONAL GAMBLING REFORM (RELATED MATTERS) BILL (No. 1) 2012
Summary
This Bill is part of the legislative package providing for national gambling
reform. The purpose of the levy established by this Bill is to meet the costs of
the Commonwealth in relation to the administration of the Bills.
Part 1 - Preliminary
Clause 1 - Short Title
Clause 1 sets out the short title of the new Act. The short title will be the
National Gambling Reform (Related Matters) Act (No. 1) 2012.
Clause 2 - Commencement
Clause 2 sets out the commencement provisions for this Bill. Clause 1 and
clause 2 will commence on the day the new Act receives Royal Assent.
Clauses 3 to 7 will commence at the later of:
(a) when the new National Gambling Reform Act 2012 commences; or
(b) the time at which section 2 of the National Gambling Reform (Related
Matters) Act (No. 2) 2012 commences; or
(c) the start of the day the new Act receives Royal Assent.
However, clauses 3 to 7 will not commence unless the new National
Gambling Reform Act 2012 and section 2 of the National Gambling Reform
(Related Matters) Act (No. 2) 2012 commence.
Clause 3 - Act binds the Crown
Clause 3 provides that the new Act binds the Crown in each of its capacities.
Clause 4 - Expressions from National Gambling Reform Act 2012
Clause 4 provides that any expression used in this Bill has the same meaning
as provided for in the new National Gambling Reform Act 2012.
Clause 5 - Imposition of supervisory levy
Clause 5 imposes the supervisory levy in accordance with section 83 of the
new National Gambling Reform Act 2012.
Clause 6 - Amount of supervisory levy
Clause 6 provides that the method for calculating the amount of the
supervisory levy for a levy period is as prescribed by the regulations.
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National Gambling Reform (Related Matters) Bill (No. 1) 2012
The note at the end of clause 6 indicates that the regulations may prescribe
different methods in relation to different classes of persons.
Clause 7 - Regulations
Clause 7 provides that the Governor-General may make regulations in
relation to the matters in the new Act.
The Legislative Instruments Act 2003 applies to regulations made under
clause 10. Sections 17 to 19 of the Legislative Instruments Act 2003 deal with
rule-maker consultation, including the circumstances in which consultation
may be unnecessary or inappropriate. The Legislative Instruments Act 2003
does not make consultation mandatory. However, all Commonwealth
agencies are encouraged to undertake appropriate consultation before
making a legislative instrument, particularly if the proposed instrument is likely
to affect business or restrict competition.
The Government will consult with industry prior to making these regulations.
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NATIONAL GAMBLING REFORM (RELATED MATTERS) BILL (No. 2) 2012
Summary
This Bill is part of the legislative package providing for national gambling
reform. The purpose of the levy imposed by this Bill is to discourage the
provision, by un-incorporated entities, of gaming machines that do not comply
with the precommitment systems and dynamic warning requirements as
provided for in the National Gambling Reform Bill 2012.
Part 1 - Preliminary
Clause 1 - Short Title
Clause 1 sets out the short title of the new Act. The short title will be the
National Gambling Reform (Related Matters) Act (No. 2) 2012.
Clause 2 - Commencement
Clause 2 sets out the commencement provisions for this Bill. Clause 1 and
clause 2 will commence on the day the new Act receives Royal Assent.
Clauses 3 to 7 will commence at the later of:
(a) when the new National Gambling Reform Act 2012 commences; or
(b) the time at which section 2 of the National Gambling Reform (Related
Matters) Act (No. 1) 2012 commences; or
(c) the start of the day the new Act receives Royal Assent.
However, clauses 3 to 7 will not commence unless the new National
Gambling Reform Act 2012 and section 2 of the National Gambling Reform
(Related Matters) Act (No. 1) 2012 commences.
Clause 3 - Act binds the Crown
Clause 3 provides that the new Act binds the Crown in each of its capacities.
Clause 4 - Expressions from National Gambling Reform Act 2012
Clause 4 provides that any expression used in this Bill has the same meaning
as provided for in the new National Gambling Reform Act 2012.
Clause 5 - Imposition of gaming machine regulation levy
Clause 5 provides that the new Act will impose the gaming machine
regulation levy set out in section 85 of the National Gambling Reform
Act 2012.
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National Gambling Reform (Related Matters) Bill (No. 2) 2012
Clause 6 - Amount of gaming machine regulation levy
Clause 6 sets out how the amount of the levy is determined. The rate of the
levy is 10 per cent. The amount of the levy for each gaming machine is
determined by, first, multiplying the rate of the levy by the gaming machine
revenue from the machine for the levy period. Allowable reductions for the
gaming machine for the levy period are then subtracted from this figure. The
allowable reductions will be determined in accordance with the regulations
(made under clause 7). In the event that gaming machine revenue from a
levy period are less than zero, no levy is payable for that period.
Clause 7 - Regulations
Clause 7 provides that the Governor-General may make regulations in
relation to the matters in the new Act.
The Legislative Instruments Act 2003 applies to regulations made under
clause 7. Sections 17 to 19 of the Legislative Instruments Act 2003 deal with
rule-maker consultation, including the circumstances in which consultation
may be unnecessary or inappropriate. The Legislative Instruments Act 2003
does not make consultation mandatory. However, all Commonwealth
agencies are encouraged to undertake appropriate consultation before
making a legislative instrument, particularly if the proposed instrument is likely
to affect business or restrict competition.
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Statement of Compatibility with Human Rights
Prepared in accordance with Part 3 of the Human Rights (Parliamentary Scrutiny)
Act 2011
National Gambling Reform Bill 2012
National Gambling Reform (Related Matters) Bill (No. 1) 2012
National Gambling Reform (Related Matters) Bill (No. 2) 2012
These Bills are compatible with the human rights and freedoms recognised or
declared in the international instruments listed in section 3 of the
Human Rights (Parliamentary Scrutiny) Act 2011.
Overview of the Bills
The purpose of these Bills is to reduce the risks and harm associated with problem
gambling for people who gamble, their families, and the community.
This is to be achieved by allowing users of gaming machines to limit that harm by:
· providing for precommitment for gaming machines by:
- allowing users of gaming machines to set limits for a State or Territory on
the amount that they are prepared to lose during a period using gaming
machines that are located in that State or Territory;
- preventing a user from continuing to use, as a register user, gaming
machines, once their loss limit has been reached; and
- allowing users to retain control over whether to impose limits on the
amount that they are prepared to lose during a period using gaming
machines that are located in a State or Territory;
· ensuring that warnings are provided electronically on the potential for harm
from, and the cost of, using gaming machines;
· limiting the ability of users of gaming machines to access cash from automatic
teller machines on premises containing gaming machines;
· ensuring the privacy of users of gaming machines is protected; and
· ensuring that new gaming machines that are manufactured or imported are
capable of providing for precommitment.
Human rights implications
These Bills engage the following human rights:
Right to Privacy and Reputation
Article 17 of the International Covenant on Civil and Political Rights (ICCPR)
prohibits arbitrary or unlawful interference with a person's privacy and reputation.
These Bills involve the collection, storage, security, use and disclosure of personal
information.
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Statement of Compatibility with Human Rights
The collection and use of personal information is necessary to achieve the objectives
of these Bills, which includes allowing players to set limits on the amount they are
prepared to lose within a given timeframe. If the information was not collected the
system would not be able to identify players to enable them to restrict their own
losses.
These Bills also protects personal information by restricting what can be done with
collected information and providing offences for unauthorised disclosure or use of
protected information.
Presumption of Innocence
Article 14 of the ICCPR protects the right to be presumed innocent until proven guilty
when charged with a criminal offence. The presumption of innocence is a
fundamental principle of common law and imposes a burden on the prosecution of
proving the charge. Accordingly, where the evidential burden is placed on a
defendant the law may be considered to be inconsistent with human rights.
These Bills provide for a number of civil penalty and criminal offences. In a number
of the provisions the evidential burden is reversed. The reversal of onus shifts the
burden of proof to the respondent requiring the respondent to show that there is a
reasonable likelihood that the matters on which they rely are true. Under international
human rights law, a reverse onus provision does not necessarily violate the
presumption of innocence, provided that the law is not unreasonable in the
circumstances. Reverse onus provisions may be justified where the particular offence
makes it very difficult for the prosecution to prove each element, or it is easier for the
respondent to prove a fact than for the prosecution to disprove it.
All of the provisions in these Bills with a reverse burden of proof are civil penalty
provisions. None of the criminal offence provisions in these Bills involves a reversal
of the evidential burden. Each of the provisions that require a respondent to bear the
evidential burden involves the respondent seeking to rely on a defence, the material
facts of which are peculiarly within the knowledge of the respondent. In each case it
is clearly more practical for the respondent to prove the facts relied upon than for the
prosecution to disprove those facts.
Conclusion
These Bills are compatible with human rights because to the limited extent that it may
impact on human rights, those impacts are reasonable, necessary and proportionate.
Minister for Families, Community Services and Indigenous Affairs,
Minister for Disability Reform, the Hon Jenny Macklin MP
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