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JC599. A8B74 1998 Ill 1111111111 Ill 3 4067 02207142 6 y- J� 599 ·118 87� 199� S6)J 1111111111111 111 3 4067 02207 142 6 Frank Brennan is Adjunct Fellow of the Research School of Sciences at the Australian National University; an Honorary Visiting Fellow in the Law Faculty of the University of NSW; and Director ofUniya, the Jesuit Social Justice Centre in Sydney, NSW. This book draws fromhis experience in Washington, D.C., where as a Fulbright Scholar in 1995-96 he studied at the Center for Australian and New Zealand Studies at Georgetown University, and observed the Su preme Court and theUnited Nations in session. His first book, Too Much Order with Too Little Law was a study of civil liberties in Queensland. He has written extensively on Aboriginal self-determination, land rights and social justice in arti cles published worldwide, He is the author of several books in the area including: One Land, One Nation; Sharing the Country; Land Rights Queensland Style; and is co-author of" Finding Common Ground and Reconciling Our Differences. In 19lt9.Frank Brennan won the United Nations Association of r. • • ' • • • -: Australia Media Peace Award for articles written in support of Aboriginal rights; and in 1994 he was named by the National Australia Day Council as an Achiever of the Year for his contribution to the Aboriginal Community. He was made an Officer of the Order of A4s�alia (AO) in 1995 for services to Aboriginal Australians; and in 1997 was listed by the National Trust as a Living National Treasl:lre. Frank Brennan joined the Jesuits in 1975, was admitted to the Queensland Bar in 1977 and ordained a Catholic priest in 1985. He has had a longstanding interest in the contributionChristian churches can make throughout the world to the formulation of public policy and the recognition of the human rights of marginalised groups, especially indigenous peoples and refugees. Otherbooks by Frank Brennan Too Much Order with Too Little Law LandRights Queensland Style Sharing the Country One Land, One Nation Co-author of: Finding Common Ground: An Assessment of the Bases ofAboriginal Land Rights Reconciling Our Differences A Bill of Rights for Australia? A provocative and timely proposal to balance the public good with individual freedom FRANK BRENNAN SJ University of Queensland Press ss&H L- 5544 • 0 1·=·9 J (Monogr--aphs 1998 RlES QUEENSLAND LlBRA r=DC.ItlTV I OF 1HE.UNl V.-nv ..,� ANDL'ffi Ri\� • � OF··�·.t�� r.e.F.NSL �� · 'tio�·.-.-..n "' • _ --r · ·- ·L\ , ·· �·r- ( " . .. � 1. · Tf Th"'� .. • • 'v - '\- < \ •. • r"' ....ll"lYf"t D T,V .:. .. ·J - • • v r· ,. : �-.•; • .n L \ l U l''' J"\· ('"• � . , '·· � J ('...,J4 ....., C J• • �-. 0 'v v \ Fii-Stp ublishe4 I �9!ttyll.t riiversity of Queensland Press Box 42, St Lucia, Queensland4067 Australia @ FrankBrennan 1998 This book is copyright. Apartfrom any fair dealing for the purposes of private study, research, criticism or review, as permitted under the Copyright Act, no partmay be reproduced by any process without written permission. Enquiries should be made to the publisher. Typeset by University of Queensland Press Printed inAustralia by McPherson's Printing Group Distributed in the USA and Canadaby International Specialized Book Services, Inc., 5804 N.E. Hassalo Street, Portland, Oregon 97213-3640 Cataloguing in PublicationData National Libraryof Australia Brennan, Frank, 1954- Legislating liberty. Includes index. 1. Civil rights - Australia. 2. Human rights - Australia. I. Title. 342.94085 ISBN 0 7022 3011 1 To the late Justice William J. Brennan Jr (1906-1997), (US Supreme Court Justice 1956-1990) � who inspired me in his judicial espousal of human rights without altogether converting me to the constitutional entrenchment of such rights Contents ... Acknowledgments Vlll . Foreword by Tony Fitzgerald AC QC lX Introduction 1 1. Public discourse about right and wrong, rights and freedoms /3 2. Australian proposals for a bill of rights 2/ 3. The United States Supreme Court: determining what is right for the United States 47 4. The quandary: Australia, the United States and gay rights - different process, surprising outcome 56 5. The past: Australia, the United States and abortion - different process, similar outcome 73 6. The present: Australia, the United States and euthanasia - similar debate, different forum 95 7. The future: free speech - a fundamental right on shifting sands 124 8. Indigenous rights: moving beyond equality as sameness 146 9. Reconstituting Australia without a bill of rights 169 Endnotes 189 Index 195 Acknowledgments As a Fulbright Scholar in 1995-96 I was privileged to be the first Visiting Research Fellow at the Center for Australian and New Zealand Studies, Georgetown University, Washington DC. I am grateful to the late Justice William J. Brennan and his staff, the Georgetown Law Center, the Jesuit communities at K Street and Georgetown, and the staff at the Australian embassy in Washington and at the Australian mission to the United Nations for their hospitable opening of the doors to the United States and to the world of rights beyond our Australian horizons. Here at home I am grateful to the Research School of Social Sciences at the Australian National University and the Australian Institute of Jesuit Studies for providing me with the opportunity to write. I am grateful to the staff at Uniya, the Jesuit Social Justice Centre, for their assistance and support, especially MargaretPress, Lisa Macdonald and Rachel Hutka. I am indebted to Tony Fitzgerald for his foreword evoking his passionate and judicious concern for what is right for Australia. Foreword Legislating Liberty is an important book by an outstanding Australian. Father Frank Brennan, SJ, AO, D.Univ, is a Catholic priest, lawyer, advocate for Australian Aborigines and Torres Strait Islanders, and expo nent of reconciliation between those peoples and the wider Australian community. His book is a timely reminder of important and difficult issues that have been, or are being, resolved in many countries, but have not been widely considered and discussed in Australia. Regrettably, the 1998 Con stitutional Convention was confined to issues related to Australia's pro gression to a republic (and presumably so too will be the 1999 referendum). By international standards, Australian constitutionalism is severely stunted and its human rights jurisprudence is underdeveloped. Individual and minority rights based on inherent human worth and dignity are widely recognised in international instruments and are protected by the constitu tional rights. The rights of Australians are essentially those which they are permitted to retain or are given by their parliaments, which are virtually supreme, with almost total legislative power. That legislative power, which was divided between the Commonwealth and the States when Australia became a single nation at federation, is subject to only a small number of express and implied constitutional restrictions. There is little political enthusiasm for the general adoption of international human rights prin ciples into Australian law. Although Australia has made numerous inter national commitments to human rights, many have not been implemented by legislation. On the other hand, a Bill to permit Australian officials to ignore international obligations entered by the Australian government which have not been made part of Australia's domestic law has been passed by the House of Representatives and is before the Senate. In countries with constitutionally entrenched individual and minority rights, legislative and executive powers are subject to broad, judicially enforced constraints, and a dynamic judiciary is routinely involved in decisions concerning the nature and extent of government power. Austra lian courts exercise a narrower, more conservative role. The High Court's cautious identification of implied constitutional restrictions on legislative power in the text and structure of the Commonwealth Constitution, more or less contemporaneously with its use of international standards in recognising the ·native title' of indigenous Australians and extending the obligations of administrative decision-makers, provoked political hostility X Foreword towards the judiciary which is unprecedented in recent Australian history. Debate on the appropriate power spheres of legislature, executive govern ment and judiciary is sure to continue, and is almost certain to increasingly include argument on whether there should be an Australian bill of rights, and if so, what its status and contents should be. A number of factors are likely to complicate that debate. Much of the discussion is likely to involve the rhetorical use of ambiguous concepts. For example, democracy is often erroneously spoken of as if it requires or permits majority decisions to be given effect on all issues in all circumstances, and as though government decisions neces sarily reflect majority will. A majority of seats in the lower house (in Queensland the only house) of a parliament does not necessarily depend on the support of a majority of voters. And, even if a government is elected by a majority of voters, usually the only choice which voters had was between the sets of policies of rival parties. Economic issues commonly dominate, often combined with accumulated dissatisfaction with the fail ings of the government that was in power prior to the election. While executive governments are formally responsible to parliaments, factional ism and tight party discipline enable oligarchies to control the political process. In such circumstances, electoral success is a flimsy foundation for a claim to majority support for a law which derogates from individual or minority rights. In any event, a government which perceives political advantage in unjust laws plainly cannot be deterred by an improbable prospect of electoral defeat. Aphorisms which are favoured in the often confused discussion of democracy, human rights and the functions of the legislative, executive and judicial branches of government includethe rule of law, equality under the law and justice according to law. All are importantprinciples, although equality, for example, is an extremely complex and elusive concept.