Chapter 1
Introduction and background
Referral
1.1
On 20 August 2015, the Senate referred the following matter to the
Senate Legal and Constitutional Affairs References Committee (committee) for
inquiry and report by 16 September 2015:
The matter of a popular vote, in the form of a plebiscite or
referendum, on the matter of marriage in Australia, with particular reference
to:
- an
assessment of the content and implications of a question to be put to electors;
- an
examination of the resources required to enact such an activity, including the
question of the contribution of Commonwealth funding to the 'yes' and 'no'
campaigns;
- an
assessment of the impact of the timing of such an activity, including the
opportunity for it to coincide with a general election;
- whether such
an activity is an appropriate method to address matters of equality and human
rights;
- the
terms of the Marriage Equality Plebiscite Bill 2015 currently before the
Senate; and
- any
other related matters.[1]
Conduct of the inquiry
1.2
Details of the inquiry were placed on the committee's website at: www.aph.gov.au/senate_legalcon.
1.3
The committee also directly contacted a number of relevant organisations
to notify them of the inquiry and invite submissions by 4 September 2015. The committee
received 77 submissions and these are listed at Appendix 1. The committee
resolved not to publish form or campaign letters.
1.4
The committee held a public hearing at Parliament House in Canberra on
10 September 2015. A list of witnesses who appeared at the public
hearing is listed in Appendix 2.
Background
1.5
The Marriage Act 1961 (Cth) defines marriage as 'the union of a
man and a woman to the exclusion of all others, voluntarily entered into for
life'.[2]
This definition was inserted into the Marriage Act in 2004.
1.6
Since the introduction of the current definition of marriage into the
Marriage Act in 2004, there have been numerous bills introduced into Parliament
to amend the definition. A research paper by the Parliamentary Library provides
the following summary:
Since the 2004 amendment to the [Marriage Act] which inserted
the current definition of marriage, 17 bills dealing with marriage equality or
the recognition of overseas same-sex marriages have been introduced into the
federal Parliament. Not all bills have come to a vote and no bill has
progressed past the second reading stage. Consequently no bill has been debated
by the second chamber. To date, the bills have been introduced by members of
parliament representing the Australian Democrats, Australian Greens, Australian
Labor Party, Liberal Democratic Party, Liberal Party of Australia and by
Independents.[3]
1.7
Some of those bills have been the subject of inquiries by parliamentary
committees, including this committee.[4]
1.8
More recently, the focus has moved from a parliamentary vote on the
issue of marriage to a debate about the potential of a popular vote on the
issue. Specifically, on 12 August 2015, the then Prime Minister, the Hon Tony
Abbott MP, stated:
[T]he only way to successfully and satisfactorily settle this
matter [of same-sex marriage], given that it is so personal and given that so
many people have strong feelings on either side of this, the only way to settle
it with the least rancour, if you like, is to ask the people to make a choice
because all of us are instinctive democrats. We don't always get what we want
but we accept in our country that the people's vote settles things.[5]
1.9
In terms of the mechanisms for a 'popular vote', the options are for a
referendum or a plebiscite. Professor Anne Twomey, Professor of Constitutional
Law, The University of Sydney, explained the two types of vote:
In Australia, the term 'referendum' is used to describe a
formal vote by the people to authorise the amendment of the Commonwealth
Constitution or a State Constitution. The only choice is a Yes/No choice as to
whether to approve the proposed constitutional amendments. If the proposed
changes are approved by a majority of electors overall and by majorities in a
majority of States (four out of six states) then the Governor-General gives
assent to the proposed changes and they take effect upon the relevant
commencement date. There is no need for any further action by Parliament to
give them effect.
The term plebiscite is used to describe a vote of the people
on any subject, which indicates to the relevant government the view of the
people on a particular question. It may involve choosing from amongst a range
of options...or it may involve a Yes/No choice, such as whether to approve
daylight saving. The criteria for the passing of a plebiscite would normally be
approved by a simple majority of voters (although this could be changed by
legislation).[6]
Procedure for a referendum
1.10
The mechanism for a referendum is set out in the Constitution, as the Australian
Electoral Commission (AEC) website explains:
Section 128 of the Constitution provides that any proposed
amendment to the Constitution must be passed by an absolute majority in both
Houses of the Commonwealth Parliament.
...
At the referendum the proposed alteration must be approved by
a 'double majority'. That is:
-
a national majority of voters in the states and territories
-
a majority of voters in a majority of the states (i.e. at least
four out of six states).[7]
1.11
In a joint opinion, Mr Bret Walker SC and Mr Perry Herzfeld, explained
the implications of a successful referendum:
If a referendum is carried, subject to Royal assent, the
Constitution is amended accordingly. But a referendum does not, of itself,
enact, repeal or amend any legislation. In particular, if an amendment to the
Constitution confers additional legislative power on the Federal Parliament, it
remains for the Parliament to decide whether or not to exercise that power.[8]
1.12
Voting in referendums is compulsory for enrolled voters. The rules
governing referendums are set out in the Referendum (Machinery Provisions)
Act 1984 (Referendum Act).[9]
Procedure for a plebiscite
1.13
The AEC noted that a 'plebiscite' is not defined in the Constitution,
the Commonwealth Electoral Act 1918 or the Referendum Act.[10]
The Centre for Comparative Constitutional Studies described a plebiscite as a
'national vote on questions that do not involve constitutional change'.[11]
1.14
Mr Walker and Mr Herzfeld explained the implications where a plebiscite
is 'carried' by a majority:
[U]nlike a referendum, the vote does not, of its own force,
cause an amendment of the Constitution. Its purpose is to determine the
'national view' on a question, as the foundation for action by the Federal
Parliament.[12]
1.15
As a number of submissions noted, the outcome of a plebiscite does not
bind the Parliament.[13]
1.16
As Professor Twomey explained, the mechanism for a plebiscite does not
need to be as 'strict' as the provisions for a referendum:
If a plebiscite were to be held, then the Parliament would
need to legislate to set the rules for it. Questions to consider would include
the criterion for approval (eg a simple majority or a special majority),
whether or not voting is compulsory or voluntary, when it was to be held, the
method for holding it, whether a Yes/No case is necessary or appropriate and
whether Commonwealth funding should be given to either side of the question and
whether limits should be imposed upon campaign expenditure. The strict rules in
[section] 128 of the Constitution would not apply to a plebiscite and there may
be reason for altering other rules given that no constitutional amendment is
involved. For example, as there are no technical constitutional changes that
need an explanation, it is arguable that there is no need for a formal Yes or
No case.[14]
1.17
The AEC explained that it could also conduct a plebiscite as a
fee-for-service election:
[W]ith the AEC entering into 'an agreement, on behalf of the
Commonwealth, for the supply of goods or services to a person or body'. The
rules for a plebiscite or fee-for-service election are normally contained in
the terms of the agreement between the AEC and the person funding the election.[15]
1.18
Submissions noted that there have been three national plebiscites. In
1916 and 1917, plebiscites were held on the question of conscription, both of
which were defeated. In 1977, a plebiscite was held so that voters could
express a preference on a National Song.[16]
Marriage Equality Plebiscite Bill
2015
1.19
The Marriage Equality Plebiscite Bill 2015 (the bill) is a private
senators' bill, sponsored by Senators Rice, Lazarus, Leyonhelm, Lambie, Muir
and Xenophon, introduced into the Senate on 19 August 2015.[17]
The bill provides for a national plebiscite on the issue of same-sex marriage,
to be conducted at the next general election.[18]
The question to be put at the plebiscite is:
Do you support Australia allowing marriage between 2 people
regardless of their gender?[19]
1.20
If the majority of electors respond in the affirmative to the question
at the plebiscite, the bill states that it is the intention of Parliament to
pass the necessary legislation to allow marriage between two people regardless
of their gender, within six months of the result of the plebiscite.[20]
1.21
The bill provides for the Referendum Act to apply to the
submission of the question and the scrutiny of the result for the plebiscite.[21]
Specifically, the bill provides that Commonwealth funding for the 'yes' and
'no' cases will be provided as set out in the Referendum Act:
This means only the basic materials containing arguments in
favour of and opposed to the proposed question would be distributed to
electors.[22]
1.22
The bill also contains a note that voting under the Referendum Act is
compulsory.[23]
Structure of the report
1.23
Chapter 2 of the report outlines the merits and drawbacks of a
referendum, a plebiscite and a parliamentary vote. Chapter 3 contains a
discussion on the conduct of a plebiscite, including issues in relation to the
bill. Chapter 4 sets out the committee view and recommendations.
Navigation: Previous Page | Contents | Next Page