House of Representatives Committees

Contents

Foreword
Membership of the Committee
Terms of reference
List of abbreviations
List of recommendations

Chapter 1 Introduction
Chapter 2 Independent contracting
Chapter 3 Labour hire
Chapter 4 Issues to address
Chapter 5 Commercial arrangements
Chapter 6 Future for working arrangements
Dissenting Report
Appendix A: Conduct of the inquiry
Appendix B: List of submissions
Appendix C: List of exhibits
Appendix D: List of hearings and witnesses
Appendix E: Independent contractor or employee?
Appendix F: OHS administering organisations
Appendix G: A proposed redefinition of employment

Foreword

The growth of independent contracting and labour hire employment (in the last fifteen years) clearly indicates that it has become a preferred employment choice for many Australians. Currently over 10 per cent of the workforce identifies themselves as being independent contractors across a wide variety of industries.

The growth in these work arrangements has been attributed to employers’ preferences for an agile workforce that can respond to changing work demands. Additionally, for some workers maximising their independence in determining work options is part of the attractiveness of independent contracting arrangements. For many they perceive that lifestyle and remuneration objectives are more readily achievable than through the rigidity of traditional employment options.

Identifying the future role of less common forms of work than direct employment, such as independent contracting and labour hire, is at the core of different political party perspectives.

It has been a challenging task for the Committee to examine current state and federal workplace relations systems to identify strategies to promote greater consistency across Australia.

This inquiry was conducted at a time of increasing debate on the conditions of Australian workers with possible changes to federal workplace relations legislation affecting the coverage of state legislation.

There has been concern that some employers may design contractual arrangements to craft workers as ‘independent contractors’ and thus avoid legal obligations that would be owed to employees.

The Committee investigated whether labour hire and contracting arrangements are, in some instances, being used to evade responsibilities – particularly in the areas of occupational health and safety and employee entitlements. The lack of comprehensive training and development strategies to meet current and future skills shortage was also examined.

Recommendations are included in the report to address the need for labour hire agencies and host businesses to fulfil their responsibilities for safe working conditions and to meet Australia’s skills requirements. A voluntary industry code of practice is proposed to improve the operation of the labour hire industry.

The need for greater clarity and consistency in distinguishing between an employee and an independent contractor was overwhelmingly presented to the Committee and subsequently considered. A pragmatic strategy using existing national approaches, including the common law and components of the personal services income taxation tests, is considered to provide the most achievable Australian-wide outcome.

It is important to ensure that the advantages of independent contracting and labour hire are not infringed upon while trying to curb the devising of artificial workplace arrangements that do not reflect the true nature of relationships.

Considering independent contractors within commercial relationships provides the framework for supporting and developing independent contractors’ business structures. Improved access to relevant information on rights and responsibilities is a key to ensuring there is informed choice in selecting working arrangements. Additionally, when a dispute arises regarding a contract for service, accessible, affordable resolution procedures are necessary.

It can be expected that there will be objections to some suggested reforms. A balanced approach has been sought to recognise the needs of labour hire agencies, workers, employers, and independent contractors. The Committee believes that what are essentially commercial business relationships should be preserved, while steps are taken to prevent artificial work relationships that seek to avoid important employer responsibilities.

Submissions and witnesses to the inquiry provided very valuable material and we are grateful for their involvement in the process with evidence being received from every state and territory. Once again the Members of this Committee demonstrated considerable commitment to working together to report in a reasonably short time-line. I thank the Members for their dedication to the inquiry. There has been dissent on party lines on some of the recommendations. However, there is unified support for the majority of the report. I also thank the dedicated professionalism of the Inquiry Secretariat for their counsel, assistance and patience throughout the process.

The strategies outlined here are designed to make labour hire and independent contracting arrangements work for Australians and for Australian businesses. They work to make a competitive Australia offering a range of working arrangements to suit industry, occupation, employer and worker requirements.

 

Mr Phillip Barresi MP
Chair

Membership of the Committee

Chair

Mr Phillip Barresi MP

Deputy Chair

Mr Brendan O’Connor MP

Members

Mr Mark Baker MP

 

Mr Tony Burke MP

 

Ms Annette Ellis MP

 

Ms Jill Hall MP

 

Mr Stuart Henry MP

 

Mrs Margaret May MP

 

Mr Don Randall MP

 

Mr Ross Vasta MP

Committee Secretariat

41st Parliament

Secretary Dr Anna Dacre
InquirySecretary Ms Alison Childs
Research Officers Ms Rachelle Mitchell
  Ms Jane Haslam (May 2005)
Administrative Officers Mr Daniel Miletic

Terms of Reference

Inquiry into independent contracting and labour hire arrangements

The terms of reference for the inquiry were adopted on 9 December 2004 by the Committee. The Minister for Employment and Workplace Relations, the Hon Kevin Andrews MP, requested the House of Representatives Standing Committee on Employment, Workplace Relations and Workforce Participation Committee to inquire into and report on:


List of abbreviations

ABN

Australian Business Number

ABR

Australian Business Register

ABS

Australian Bureau of Statistics

ACCC

Australian Competition and Consumer Commission

ACCI

Australian Chamber of Commerce and Industry

ACTU

Australian Council of Trade Unions

Ai Group

Australian Industry Group

AIIT

Australian Institute of Interpreters and Translators Inc

AIRC

Australian Industrial Relations Commission

AMWU

Australian Manufacturing and Workers Union

ANTA

Australian National Training Authority

APESMA

Association of Professional Engineers, Scientists and Managers Australia

ASCC

Australian Safety and Compensation Council

ASU

Australian Services Union

ATO

Australian Tax Office

AWA

Australian Workplace Agreements

AWIRS

Australian Workplace Industrial Relations Survey

CCF

Civil Contractors Federation

CEITT

International Confederation of Temporary Work Businesses

CEPU

Communications, Electricaland Plumbing Union

CFMEU

Construction, Forestry, Mining and Energy Union

Cole Report

The Final Report of the Royal Commission into the Building and Construction Industry

Dawson Review

Review of the competition provisions of the Trade Practices Act 1974

DEST

Department of Education, Science and Training

DEWR

Department of Employment and Workplace Relations

DOCEP

Department of Consumer and Employment Protection

DSP

Disability Support Pension

EBA

Enterprise bargaining agreement

ESS

Australian Bureau of Statistics Employment Services Survey

FOES

Australian Bureau of Statistics Forms of Employment Survey

GTA

Group Training Australia

GTO

Group Training Organisation

HIA

Housing Industry Association

ICA

Independent Contractors of Australia

ILO

International Labour Organisation

IT

Information Technology

MBA

Master Builders Australia

NFF

National Farmers’ Federation

NOHSC

National Occupational Health and Safety Commission

NRCOHSR

National Research Centre for OHS regulation

NSW IR Act

NSW Industrial Relations Act1996

NSW RTA

NSW Road Transport Association

NUW

National Union of Workers

OEA

Office of the Employment Advocate

OHS

Occupational Health and Safety

Owner Drivers Bill

Owner Drivers and Forestry Contractors Bill 2005 ( Vic)

OWS

Office of Workplace Services

PAYG

Pay As You Go

PSI

Alienation of Personal Services Income Act (2000)

QIRC

Queensland Industrial Relations Commission

Qld IR Act

QueenslandIndustrial Relations Act 1999

RCSA

Recruitment and Consulting Services Association

RTBU

Australian Rail, Tram and Bus Union

RTO

Registered Training Organisation

SBDC

Small Business Development Corporation (WA)

TP Bill 2005

The Trade Practices (Amendment) Bill 2005 (Cth)

TPA

Trade Practices Act 1974 (Cth)

TWU

Transport Workers’ Union

VACC

Victorian Automobile Chamber of Commerce

WR Act

Workplace Relations Act 1996 (Cth)

WRMC

Workplace Relations Ministers’ Council

List of recommendations

Inquiry into independent contracting and labour hire arrangements

Chapter 3 Labour hire

Recommendation 1 – Paragraph 3.57

The Committee recommends that the Australian Government Department of Employment and Workplace Relations:

Chapter 4 Issues to address

Recommendation 2 - Paragraph 4.48

The Committee recommends that the Australian Government maintain the common law approach to determine employment status and distinguish between employees and legitimate independent contractors.

Recommendation 3 - Paragraph 4.48

The Committee recommends that the Australian Government, when drafting federal legislation, in addition to the common law position, adopt components of Australian income tax assessment alienation of personal services income legislation tests to identify independent contractors.

Recommendation 4 - Paragraph 4.48

The Committee recommends that the Australian Government, in conjunction with State and Territory governments, pursue through the Workplace Relations Ministers’ Council national consistency in identifying independent contractors. The Committee recommends that this is achieved by, in addition to the common law position, adopting components of Australian income tax assessment alienation of personal services income legislation tests in the drafting of relevant state and territory legislation.

Recommendation 5 - Paragraph 4.72

The Committee recommends that the Australian Government Departments of Employment and Workplace Relations, and Education Science and Training, through the National Skills Shortage Strategy, develop a program of skills development and a best practice guide targeted at the labour hire industry. The development of this program and guide should be in consultation with the Recruitment and Consulting Services Association as the peak industry body, labour hire agencies and relevant employee bodies.

Recommendation 6 - Paragraph 4.107

The Committee recommends that the Australian Government, through the Department of Employment and Workplace Relations, the Australian Safety and Compensation Commission and the Workplace Relations Ministers’ Council, improve occupational health and safety in the labour hire industry through the following national initiatives:

Recommendation 7 - Paragraph 4.107

The Committee recommends that the Australian Government, through the Department of Employment and Workplace Relations, the Australian Safety and Compensation Commission and the Workplace Relations Ministers’ Council, develop initiatives to achieve greater understanding and more clearly delineate responsibilities among labour hire agencies and host businesses in relation to occupational health and safety.

Recommendation 8 - Paragraph 4.109

The Committee recommends that the Australian Government, through the Department of Employment and Workplace Relations, the Australian Safety and Compensation Commission and the Workplace Relations Ministers’ Council, improve occupational health and safety for independent contractors through the following national initiatives:

Recommendation 9 - Paragraph 4.109

The Committee recommends that the Australian Government, through the Department of Employment and Workplace Relations, the Australian Safety and Compensation Commission and the Workplace Relations Ministers’ Council:

Recommendation 10 - Paragraph 4.132

The Committee recommends that the Australian Government Department of Employment and Workplace Relations, through the Australian Safety and Compensation Council review workers’ compensation schemes to assess and improve the consistency of employment services categories measuring the injury rates of labour hire workers and independent contractors compared to direct employees.

Recommendation 11 - Paragraph 4.156

The Committee recommends that the Australian Government, through the relevant departments and peak industry bodies, establish a voluntary labour hire industry code of practice. The Committee recommends that the voluntary code is established by 2007, and endorsed by the Australian Competition and Consumer Commission.

Chapter 5 Commercial arrangements

Recommendation 12 - Paragraph 5.112

The Committee recommends that the Australian Government broaden the description used in the Workplace Relations Act 1996 of an independent contractor and extend it beyond ‘a natural person’.

Recommendation 13- Paragraph 5.114

The Committee recommends that the Australian Government Office of Small Business collate and further develop a series of resources for independent contractors. Collated resources should provide assistance on:

Recommendation 14 - Paragraph 5.116

The Committee recommends that the Australian Government incorporate the following protections when drafting legislation for independent contractors:

Chapter 6 Future for working arrangements

Recommendation 15 - Paragraph 6.86

The Committee recommends that, if constitutional powers are used to implement a national industrial relations system, then the Australian Government ensure that legislation protects legitimate independent contractor arrangements by providing:

Recommendation 16- Paragraph 6.95

The Committee recommends that the Australian Government extend jurisdiction of the Federal Magistrates Court to hear cases associated with dispute resolution of unfair contracts for service.

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