The Senate Legal and Constitutional References Committee The road to a republic August 2004 © Commonwealth of Australia 2004 ISBN 0 642 71441 X This document was printed by the Senate Printing Unit, Department of the Senate, Parliament House, Canberra MEMBERS OF THE REFERENCES COMMITTEE Members Senator the Hon Nick Bolkus (Chair), ALP, SA Senator Marise Payne (Deputy Chair), LP, NSW Senator Geoff Buckland, ALP, SA** Senator Brian Greig, AD, WA* Senator Linda Kirk, ALP, SA Senator Nigel Scullion, CLP, NT Substitute Members * Senator Aden Ridgeway to replace Senator Greig for matters relating to the Indigenous Affairs portfolio * Senator Natasha Stott Despoja to replace Senator Grieg for the Committee's inquiry into the establishment of an Australian republic with an Australian Head of State ** Senator Buckland replaced Senator Joseph Ludwig (4 December 2003 - 1 March 2004). Senator Ursula Stephenson (ALP, NSW) was a member prior to 4 December 2003. Participating Members Sen the Hon Eric Abetz, LP, Tas Sen Gary Humphries, LP, ACT Sen Andrew Bartlett, AD, Qld (for DIMIA) Sen Susan Knowles, LP, WA Sen Mark Bishop, ALP, WA Sen Meg Lees, APA, SA Sen George Brandis, LP, Qld Sen Ross Lightfoot, LP, WA Sen Bob Brown, AG, Tas Senator Joseph Ludwig, ALP, Qld Sen Kim Carr, ALP, Vic Sen Sue Mackay, ALP, Tas Sen Grant Chapman, LP, SA Sen Brett Mason, LP, Qld Sen Trish Crossin, ALP, NT Sen Julian McGauran, NPA, Vic Sen Alan Eggleston, LP, WA Sen Shayne Murphy, Ind, Tas Sen Chris Evans, ALP, WA Sen Kerry Nettle, AG, NSW Sen the Hon John Faulkner, ALP, NSW Sen A. Ridgeway, AD, NSW Sen Alan Ferguson, LP, SA Sen the Hon Nick Sherry, ALP, Tas Sen Jeannie Ferris, LP, SA Sen Natasha Stott Despoja, AD, SA Sen Brian Harradine, Ind, Tas Sen Tsebin Tchen, LP, Vic Sen Len Harris, PHON, Qld Sen John Tierney, LP, NSW Sen John Watson, LP, Tas Secretariat Ms Louise Gell Secretary (to June 2004) Mr Phillip Bailey Acting Secretary (from June 2004) Ms Kelly Paxman Acting Principal Research Officer Ms Sophie Chapple Acting Principal Research Officer Ms Julie Dennett Acting Principal Research Officer Ms Alison Kelly Principal Research Officer Mr Mark Stevenson Research Officer Ms Marina Seminara Executive Assistant (from November 2003) Ms Julia Clifford Executive Assistant (to November 2003) Suite S1.61 Telephone (02) 6277 3560 Parliament House Fax: (02) 6277 5794 Email: [email protected] iii TERMS OF REFERENCE (a) the most appropriate process for moving towards the establishment of an Australian republic with an Australian Head of State; and (b) alternative models for an Australian republic, with specific reference to: (i) the functions and powers of the Head of State, (ii) the method of selection and removal of the Head of State, and (iii) the relationship of the Head of State with the executive, the parliament and the judiciary. v TABLE OF CONTENTS MEMBERS OF THE REFERENCES COMMITTEE................................. iii TERMS OF REFERENCE ................................................................................v ABBREVIATIONS ......................................................................................... xiii CHAPTER 1 ........................................................................................................1 INTRODUCTION ....................................................................................................1 Background.............................................................................................................1 Conduct of the inquiry............................................................................................1 Scope of the report..................................................................................................1 Acknowledgement..................................................................................................2 Note on references..................................................................................................2 CHAPTER 2 ........................................................................................................3 BACKGROUND.......................................................................................................3 Brief outline of previous moves towards an Australian republic...........................3 A republic: Yes or No? Views expressed in submissions and evidence................4 In support of a republic........................................................................................4 Against a republic................................................................................................7 CHAPTER 3 ........................................................................................................9 THE PROCESS: THEMES ARISING IN EVIDENCE.......................................9 Introduction ............................................................................................................9 The importance of engagement ..............................................................................9 The need for education .........................................................................................12 Timeframe ............................................................................................................19 CHAPTER 4 ......................................................................................................23 THE PROCESS: COMPONENTS AND PROPOSALS ....................................23 vii Plebiscites .............................................................................................................23 The value of plebiscites.....................................................................................24 A threshold plebiscite question?........................................................................26 A second plebiscite question with a choice of models?....................................28 Other plebiscite questions?................................................................................29 Separate or concurrent plebiscite questions?.....................................................30 Timing of plebiscites: in conjunction with elections or not? ............................33 Plebiscites: compulsory or voluntary voting? ...................................................34 Plebiscites: method of voting? ..........................................................................35 A constitutional convention?................................................................................35 A parliamentary committee ..................................................................................39 Section 128 referendum........................................................................................41 Other proposals.....................................................................................................41 The Corowa Conference adopted model..............................................................43 CHAPTER 5 ......................................................................................................47 FUNCTIONS AND POWERS OF HEAD OF STATE.......................................47 Introduction ..........................................................................................................47 Who is our current head of state?.........................................................................47 Title of head of state.............................................................................................51 Functions of the head of state...............................................................................53 Do we need a separate head of state?................................................................53 Role of a republican head of state ........................................................................55 Powers of a republican head of state ....................................................................56 Governor-General's current functions and powers............................................56 Ordinary powers: the convention of acting on the advice of government ........58 Reserve powers and associated conventions.....................................................59 Powers of the head of state and the judiciary....................................................65 Other specific issues relating to the head of state's powers...............................70 Relationship between powers and selection method............................................71 viii Relationship with executive, parliament and judiciary ........................................73 CHAPTER 6 ......................................................................................................75 SELECTION AND REMOVAL OF HEAD OF STATE ...................................75 Introduction ..........................................................................................................75 Qualifications .......................................................................................................75 Qualifications ....................................................................................................76 Disqualifications................................................................................................79 Political or apolitical head of state? ..................................................................80 Selection of head of state......................................................................................84 Nomination and short listing .............................................................................84