EXPLANATORY STATEMENT
Comptroller‑General of Customs Instrument of Approval No. 11 of 2015
Customs Act 1901
Section 4A of the Customs Act 1901 (the Customs Act), in part, allows the Comptroller‑General of Customs to approve a statement in writing for a purpose under that Act and provides for a statement so approved to be a disallowable instrument for the purposes of section 46A of the Acts Interpretation Act 1901 (see subsections 4A(1A) and (2)). A disallowable instrument approved under section 4A(2) of the Customs Act is declared to be a legislative instrument by operation of subparagraph 6(d)(i) of the Legislative Instruments Act 2003 (the Legislative Instruments Act).
The Instrument, titled the “Comptroller‑General of Customs Instrument of Approval No. 11 of 2015 (the New Instrument), is a legislative instrument made under subsection 4A(1A) of the Customs Act and sets the information to be collected in accordance with subparagraph 64ABAA(5)(c)(i) of that Act.
Background
Section 64ABAA of the Customs Act, amongst other things, provides that when a container is unloaded from a ship at a port, the stevedore whose particulars have been communicated to the Department by the operator of the ship, under section 64AAC of that Act, must communicate electronically to the Department an outturn report in respect of the container (see subsection 64ABAA(2)).
The cargo report may be disclosed by an officer to a stevedore, a depot operator or a person in charge of a Customs place (other than a warehouse) for the purpose of enabling the stevedore, operator or person to communicate to the Department an outturn report in respect of the cargo (subsection 64ABAA(7) refers).
A person who contravenes section 64ABAA commits a strict liability offence punishable, on conviction, by a penalty not exceeding 60 penalty units (see subsections 64ABAA(9) and (10)). However, where a person intentionally contravenes this section, that person commits an offence punishable, on conviction, by a penalty not exceeding 120 penalty units (subsection 64ABAA(8) refers).
Where the outturn report that is communicated to the Department is made under subsection 64ABAA(2) of the Customs Act, that report must amongst satisfying other requirements, be made in accordance with an approved statement.
The communication of the approved statement is made electronically through the Integrated Cargo System.
The previous Instrument, titled “CEO Instrument of Approval No. 60 of 2005” (the previous Instrument), approved a statement under subsection 4A(1A) of the Customs Act for the purpose of communicating electronically an outturn report in respect of a container that has been unloaded from a ship at a port in Australia.
Previously, this information was required to be communicated to the Australian Customs and Border Protection Service (the ACBPS). With the disestablishment of the ACBPS and the integration of its functions into the Department of Immigration and Border Protection (the Department), relevant provisions were amended by the Customs and Other Legislation (Australian Border Force) Act 2015 so that relevant information is now required to be communicated to the Department.
The previous Instrument sunsetted on 1 October 2015 by operation of section 50 of the Legislative Instruments Act and ceased to have any effect on that date. As a result, the New Instrument is necessary to maintain the collection of relevant information in accordance with subparagraph 64ABAA(5)(c)(i) of the Customs Act.
Instrument
The New Instrument approves the new “OUTTURN REPORT (SUBSECTION 64ABAA(2))” statement as an approved statement for the purposes of communicating electronically to the Department, an outturn report in respect of a container that is unloaded from a ship at a port in Australia in accordance with subparagraph 64ABAA(5)(c)(i) of the Customs Act.
The purpose of this instrument is to address the effect of sunsetting under section 50 of the Legislative Instruments Act and to maintain the collection of information in accordance with a requirement under subparagraph 64ABAA(5)(c)(i) of the Customs Act. The New Instrument does not change the scope of information collected for the purpose of the relevant provision.
A Statement of Compatibility with Human Rights has been completed for the New Instrument in accordance with the requirement in paragraph 26(f) of the Legislative Instruments Act, and is at Attachment A.
Consultation
No consultation was undertaken under section 17 of the Legislative Instruments Act before this instrument was made as it is of a minor or machinery nature and does not substantially alter existing arrangements.
Commencement
The instrument commences on 1 October 2015.
ATTACHMENT A
Statement of Compatibility with Human Rights
Prepared in accordance with Part 3 of the Human
Rights (Parliamentary Scrutiny) Act 2011
Comptroller‑General of Customs Instrument of Approval No. 11 of 2015
This legislative instrument is compatible with human rights and freedoms recognised or declared in the international instruments listed in section 3 of the Human Rights (Parliamentary Scrutiny) Act 2011.
Overview of the Legislative Instrument
This Legislative Instrument (the New Instrument) replaces the previous “CEO Instrument of Approval No. 60 of 2005” (the previous Instrument) and is made under subsection 4A(1A) of the Customs Act 1901 (the Customs Act).
The New Instrument sets out information that was specified in the previous Instrument, and maintains the collection of commercial and personal information in accordance with subparagraph 64ABAA(5)(c)(i) of the Customs Act.
The information collected relates to a requirement in ection 64ABAA of the Customs Act, which in part, provides that when a container is unloaded from a ship at a port, the stevedore whose particulars have been communicated to the Department by the operator of the ship, under section 64AAC of that Act, must communicate electronically to the Department an outturn report in respect of the container (see subsection 64ABAA(2)).
The cargo report may be disclosed by an officer to a stevedore, a depot operator or a person in charge of a Customs place (other than a warehouse) for the purpose of enabling the stevedore, operator or person to communicate to the Department an outturn report in respect of the cargo (subsection 64ABAA(7) refers).
A person who contravenes section 64ABAA commits a strict liability offence punishable, on conviction, by a penalty not exceeding 60 penalty units (see subsections 64ABAA(9) and (10)). However, where a person intentionally contravenes this section, that person commits an offence punishable, on conviction, by a penalty not exceeding 120 penalty units (subsection 64ABAA(8) refers).
Where the outturn report that is communicated to the Department is made under subsection 64ABAA(2) of the Customs Act, that report must amongst satisfying other requirements, be made in accordance with an approved statement.
The communication of the approved statement is made electronically through the Integrated Cargo System.
The New Instrument is necessary to maintain the collection of information in accordance with relevant provisions of the Customs Act because the previous Instrument had sunsetted on 1 October 2015 by operation of section 50 of the Legislative Instruments Act 2003 and ceased to have effect on that date.
Human Rights Implications
The New Instrument engages Article 17 of the International Covenant on Civil and Political Rights (the ICCPR).
Article 17 of the ICCPR prohibits unlawful or arbitrary interferences with a person’s privacy. It also prohibits unlawful attacks on a person’s honour or reputation. It provides that persons have the right to protection of the law against such interference or attacks. An interference with privacy will not be arbitrary if it is authorised by law or consistent with the provisions, aims and objectives of the ICCPR and reasonable in the circumstances. Reasonableness, in this context, incorporates notions of proportionality, appropriateness and necessity. In essence, this will require that limitations:
- serve a legitimate objective
- adopt a means that is rationally connected to that objective, and
- the means adopted are not more restrictive than they need to be to achieve that objective.
Article 17 of the ICCPR is engaged by the New Instrument because it collects commercial and personal information in respect of cargo unloaded from a ship (including cargo that has been unloaded from a ship and moved in accordance with a permission under section 71E of the Customs Act). The information collected is used to administer Australian laws (including customs laws) and its collection is authorised by law. The New Instrument does not seek to affect or negate any of the existing protections under Australian laws. Where relevant, information collected may be disclosed to other agencies to enable their administration of their legislation.
As the collection of information is authorised by Australian laws, and the New Instrument does not seek to affect or negate any of the existing protections, the collection of information is lawful and does not cause arbitrary interference.
Conclusion
This New Instrument is compatible with human rights as, although it engages the right to privacy, it maintains all existing protections contained in Australian law and does not seek to limit the right to privacy in anyway.
Roman Quaedvlieg
Comptroller‑General of Customs