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Report No. 1 Annual Report 1995

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Report No. 1 Annual Report 1995 LEGISLATIVE ASSEMBLY OF QUEENSLAND SCRUTINY OF LEGISLATION COMMITTEE Annual Report 1995 - 1996 October 1996 Report No. 1 SCRUTINY OF LEGISLATION COMMITTEE Membership and Staff 48TH PARLIAMENT FIRST SESSION CHAIRMAN: Mr J H Sullivan MLA, Member for Caboolture DEPUTY CHAIRMAN: Mr G E Malone MLA, Member for Mirani OTHER MEMBERS: Mr S D Bredhauer MLA, Member for Cook Mrs E A Cunningham MLA, Member for Gladstone Mr N S Roberts MLA, Member for Nudgee Hon D Wells MLA, Member for Murrumba Mr L S Woolmer MLA, Member for Springwood RESEARCH DIRECTOR: Ms Louisa Pink EXECUTIVE ASSISTANT: Mrs Lisa Shuttleworth 48TH PARLIAMENT SECOND SESSION CHAIRMAN: Mr J A Elliott MLA, Member for Cunningham DEPUTY CHAIRMAN: Mr J H Sullivan MLA, Member for Caboolture OTHER MEMBERS: Mrs E A Cunningham MLA, Member for Gladstone Mr N S Roberts MLA, Member for Nudgee Mr F J Tanti MLA, Member for Mundingburra Hon D Wells MLA, Member for Murrumba RESEARCH DIRECTOR: Ms Louisa Pink SENIOR RESEARCH OFFICER: Mr Simon Yick EXECUTIVE ASSISTANT: Mrs Lisa Shuttleworth MEMBERS OF THE SCRUTINY OF LEGISLATION COMMITTEE 48TH PARLIAMENT SECOND SESSION Back Row L to R: Neil Roberts MLA, Jon Sullivan MLA (Deputy Chairman), Front Row L to R: Liz Cunningham MLA, Tony Elliott MLA (Chairman), Frank Tanti MLA Inset: The Honourable Dean Wells MLA Table of Contents TABLE OF CONTENTS CHAIRMANS FOREWORD ..................................................................................................................... I 1. ESTABLISHMENT AND TERMS OF REFERENCE .......................................................................1 ESTABLISHMENT OF THE SCRUTINY OF LEGISLATION COMMITTEE........................................1 Recognising the Need for a Scrutiny of Legislation Committee ..................................................................1 Establishment of the Committee..................................................................................................................1 TERMS OF REFERENCE ............................................................................................................................2 Role of the Committee ................................................................................................................................2 Area of Responsibility ................................................................................................................................2 Fundamental Legislative Principles.............................................................................................................4 Sufficient Regard to Fundamental Legislative Principles ............................................................................4 Does the Committee enquire into matters of policy? ...................................................................................6 Precedent ....................................................................................................................................................7 Avoiding Politics.........................................................................................................................................7 2. SCRUTINY OF BILLS - FIRST YEAR IN REVIEW.........................................................................9 OVERVIEW OF THE COMMITTEE’S SCRUTINY OF BILLS................................................................9 COMMENT UPON SIGNIFICANT ISSUES ARISING DURING THE YEAR ......................................10 Sufficiently clear and precise drafting? - section 4(3)(k) Legislative Standards Act 1992 ........................11 unambiguous drafting..........................................................................................................................11 drafting practices of concern...............................................................................................................11 Legislation adversely affecting rights and liberties, or imposing obligations retrospectively......................12 Delegation of administrative power only in appropriate cases and to appropriate persons ........................12 Right to silence .........................................................................................................................................13 Special or transitional regulation making power .......................................................................................15 Whether there had been an appropriate delegation of legislative power ............................................16 Whether rights and liberties would be retrospectively affected or obligations retrospectively imposed16 Whether the clause allowed amendment of an Act only by another Act (“Henry VIII clause”)..........16 IMPACT OF THE SCRUTINY OF LEGISLATION COMMITTEE ON PRINCIPAL LEGISLATION IN QUEENSLAND......................................................................................................................................17 3. SCRUTINY OF SUBORDINATE LEGISLATION - YEAR IN REVIEW ....................................19 GENERAL OVERVIEW .............................................................................................................................19 Enforcement of fundamental legislative principles ....................................................................................20 RESULTS OF SCRUTINY OF SUBORDINATE LEGISLATION...........................................................20 Statistics on the results of scrutiny of Subordinate Legislation..................................................................21 4. MONITORING THE OPERATION OF DESIGNATED LEGISLATION ...................................23 BACKGROUND..........................................................................................................................................23 PROVISIONS OF THE LEGISLATIVE STANDARDS ACT 1992..............................................................23 Meaning of Fundamental Legislative Principles (FLPS)...........................................................................23 Explanatory Notes ....................................................................................................................................24 Explanatory notes for Bills ..................................................................................................................24 Explanatory notes for significant subordinate legislation...................................................................25 Table of Contents PROVISIONS OF THE STATUTORY INSTRUMENTS ACT 1992............................................................25 GUIDELINES FOR REGULATORY IMPACT STATEMENTS.........................................................26 Background ..............................................................................................................................................26 When is an RIS required? .........................................................................................................................26 Contents of a regulatory impact statement ................................................................................................28 When is preparation of an RIS not necessary?..........................................................................................28 Monitoring of the RIS Guidelines by the Committee.................................................................................29 Experience of the New South Wales Regulation Review Committee ........................................................31 Experience of the Victorian Scrutiny of Acts and Regulations Committee................................................31 Review of the first 12 months of operation of the Queensland RIS guidelines...........................................32 Sufficiency of Part 5 - Guidelines for RISs...............................................................................................34 Results of general monitoring of RIS Guidelines.......................................................................................35 5. INQUIRIES INITIATED BY THE SUBORDINATE LEGISLATION COMMITTEE ..............37 BACKGROUND..........................................................................................................................................37 Henry VIII Report ....................................................................................................................................38 Scrutiny of Fees in Subordinate Legislation..............................................................................................38 The Current Status of the Doctrine of Ultra Vires in Queensland.............................................................38 Matter more appropriate to subordinate legislation...................................................................................38 Effective scrutiny of National Scheme Legislation....................................................................................38 FEES IN SUBORDINATE LEGISLATION...............................................................................................39 Background ..............................................................................................................................................39 Terms of Reference...................................................................................................................................40 Power to impose fees ................................................................................................................................40 Difference Between
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