INQUIRY INTO AN INDEPENDENT INTEGRITY COMMISSION S ELECT C OMMITTEE ON AN I NDEPENDENT I NTEGRITY C OMMISSION OCTOBER 2017 INQUIRY INTO AN INDEPENDENT INTEGRITY COMMISSION COMMITTEE MEMBERSHIP Mr Shane Rattenbury MLA (Chair) Mrs Giulia Jones MLA (Deputy Chair) Ms Bec Cody MLA Ms Elizabeth Lee MLA Mr Chris Steel MLA SECRETARIAT Dr Andréa Cullen AGIA ACIS Committee Secretary Dr Brian Lloyd [Assistance with summarising views put forward at hearings] Ms Lydia Chung Administrative assistance CONTACT INFORMATION Telephone 02 6205 0142 Post GPO Box 1020, CANBERRA ACT 2601 Email [email protected] Website www.parliament.act.gov.au i SELECT COMMITTEE ON AN INDEPENDENT INTEGRITY COMMISSION RESOLUTION OF APPOINTMENT At its meeting on Thursday, 15 December 2016, the Assembly passed the following resolution: "That: (1) a select committee be established to inquire into the most effective and efficient model of an independent integrity commission for the ACT and that the committee make recommendations on the appropriateness of adapting models operating in other similarly-sized jurisdictions, as well as: (a) the personnel structure of the commission to ensure the appropriate carriage of workload; (b) governance and funding that delivers independence; (c) the powers available to a commission; (d) the educative functions of a commission; (e) issues regarding retrospectivity, including human rights, and the timeframes around which former actions can be assessed; (f) the relationship between any commission and existing accountability and transparency mechanisms and bodies in the ACT; and (g) any other relevant matter; (2) the select committee shall consist of the following number of members, composed of: (a) two Members to be nominated by the Government; (b) two Members to be nominated by the Opposition; (c) one Member to be nominated by the Crossbench; and (d) the Chair shall be a Crossbench member; (3) the select committee be provided with necessary staff, facilities and resources; (4) the select committee to report by the end of August 2017 1; (5) if the Assembly is not sitting when the committee has completed its inquiry, the committee may send its report to the Speaker or, in the absence of the Speaker, to the Deputy Speaker, who is authorised to give directions for its printing, publishing and circulation; (6) the foregoing provisions of this resolution, so far as they are inconsistent with the standing orders, have effect notwithstanding anything contained in the standing orders; and (7) nominations for membership of the committee be notified in writing to the Speaker within two hours following conclusion of the debate on the matter." 2 1 On 6 June 2017, at its meeting, the Assembly agreed to amend the reporting date to by the end of October 2017. 2 Legislative Assembly for the ACT, Debates, 15 December 2016, pp. 253–254. ii INQUIRY INTO AN INDEPENDENT INTEGRITY COMMISSION TABLE OF CONTENTS Committee membership ............................................................................................. i Secretariat ................................................................................................................... i Contact information ..................................................................................................... i Resolution of appointment .......................................................................................... ii E XECUTIVE SUMMARY .....................................................IX R ECOMMENDATIONS ..................................................... XIII P ART 1 — C ONTEXT TO THE I NQUIRY ...................................... 1 1 I NTRODUCTION AND CONDUCT OF INQUIRY ........................... 1 Inquiry referral and terms of reference ........................................................................ 1 Conduct of the Inquiry ................................................................................................. 2 Structure of the Committee’s report ............................................................................ 5 Acknowledgements ..................................................................................................... 6 2 I NQUIRY CONTEXT ...................................................... 7 Purpose of anti-corruption/integrity bodies ................................................................. 7 An anti-corruption/integrity body for the ACT? .......................................................... 10 P ART 2 — V IEWS FROM SUBMITTERS ..................................... 21 3 V IEWS OF SUBMITTERS ................................................ 21 Introduction .............................................................................................................. 21 Common themes ....................................................................................................... 22 Whether the establishment of an independent integrity body is needed in the ACT .... 22 Considerations regarding design, form and functions of an independent integrity body in the ACT ........................................................................................................ 25 Ensuring the effectiveness of an independent integrity body in the ACT ..................... 29 Appointment of commissioner(s) ............................................................................... 31 Funding arrangements ............................................................................................... 33 Jurisdiction of an independent integrity body in the ACT ............................................ 33 Should jurisdiction be extended to include ACT Policing? ........................................... 35 Scope of conduct and definition of corruption and misconduct ................................... 38 Relationships with other integrity stakeholders ......................................................... 40 iii SELECT COMMITTEE ON AN INDEPENDENT INTEGRITY COMMISSION Powers of an independent integrity body in the ACT .................................................. 41 Power to hold hearings .............................................................................................. 45 Civil liberty concerns around the use of investigative and coercive powers ................. 49 Corruption prevention and public education functions ............................................... 50 Citizen participation in the work of an independent integrity body in the ACT ............ 51 Retrospectivity .......................................................................................................... 53 Oversight and governance of an independent integrity body in the ACT ..................... 53 Complaints, complainants (including vexatious complainants) and protections ........... 56 Application of other legislation to an independent integrity body in the ACT .............. 58 Distributed integrity measures .................................................................................. 59 Committee comment ................................................................................................ 61 P ART 3 — V IEWS PUT FORWARD IN HEARINGS ........................... 63 4 V IEWS PUT FORWARD IN HEARINGS— PUBLIC SECTOR INTEGRITY STAKEHOLDERS ........................................................ 63 Role of the Audit Office in the current public sector integrity framework .................... 63 Role of the Ombudsman in the current public sector integrity framework .................. 66 Role of the Public Sector Standards Commissioner ..................................................... 68 Views on gaps and vulnerabilities in the current public sector integrity framework ..... 68 Inter-institutional cooperation and information-sharing ............................................. 68 Complaints-handling ................................................................................................. 70 Definitions of fraud and corruption ............................................................................ 74 The role of the Director of Public Prosecutions ........................................................... 77 Findings of misconduct and corruption versus prosecutions ....................................... 78 Public or private hearings .......................................................................................... 79 Inadmissible knowledge and subsequent proceedings ................................................ 81 5 V IEWS PUT FORWARD IN HEARINGS— PARLIAMENTARY INTEGRITY STAKEHOLDERS ........................................................ 83 Gaps and vulnerabilities in the current parliamentary integrity framework ................. 83 Parliamentary privilege ............................................................................................. 86 Refusal to cooperate ................................................................................................. 89 Persons under contract to government ...................................................................... 90 Ethics and Integrity Advisor’s model for an anti-corruption commission ..................... 91 Whether an anti-corruption commission should conduct public investigations ........... 93 Whether an ACT anti-corruption commissioner should be an Officer of Parliament ..... 97 iv INQUIRY INTO AN INDEPENDENT INTEGRITY COMMISSION 6 V IEWS PUT FORWARD IN HEARINGS— KEY INTEREST GROUPS AND ORGANISATIONS ....................................................... 99 Inner South Canberra Community Council