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New Zealand Law Commission - Government Responses |
Last Updated: 18 September 2016
Government Response to Reports of the Law Commission: Presentation of New Zealand Statute Law and Review of the Statutes Drafting and Compilation Act 1920
Introduction
1. The Government welcomes the Law Commission’s reports:
Presentation of New Zealand Statute Law (the statutes report) and
Review of the Statutes Drafting and Compilation Act 1920 (the 1920 Act
report). They are balanced, thorough, and comprehensive reviews of the
accessibility of New Zealand statute law and
the structure and functions of the
Parliamentary Counsel Office (PCO).
2. The Government makes a combined response to the reports in accordance with
Cabinet Office Circular CO (09) 1.
Background
3. In 2006, the Law Commission agreed to undertake a project, jointly
with PCO, to investigate and recommend methods for making
New Zealand statute
law more accessible. The terms of reference for the project required the Law
Commission, in conjunction
with PCO, to investigate and recommend
methods of making New Zealand statute law more accessible by the introduction of
a more
systematic method of classifying or indexing Acts of Parliament, or doing
both. This included investigating statutory classification
or indexing
initiatives in other jurisdictions, and reviewing electronic subject- based
indexing and searching methods. The statutes
report was tabled in Parliament on
16 December 2008. It makes 23 recommendations in total.
4. In October 2007, the Law Commission also began a review of the
Statutes Drafting and Compilation Act 1920, which establishes
PCO and sets out
its structure and functions. The 1920 Act report was tabled in the House of
Representatives on 4 June 2009. It
contains 13 recommendations.
5. Cabinet Office Circular CO (09) 1 requires the Government to
respond to a Law Commission report within 120 days of the presentation
of the
report to the House. The Government presented an interim response to the
statutes report to Parliament on 29 July 2009,
which confirmed that it would
respond in full to that report and the 1920 Act report by 20 November
2009.
Law Commission Reports and Government Response
The statutes report
6. The report deals with access to statute law, focusing on
availability, navigability, and clarity. The recommendations
are summarised on
pages 10 and 11 of the report.
Recommendation 1: hard copies of Acts
7. The Law Commission recommends that hard copy versions of Acts
should continue to be produced and made available to the public
at a reasonable
cost.
Response
8. The Government agrees that hard copies of Acts should
continue to be produced, and that the State subsidy, which
allows them to be
made available at a reasonable cost, should also continue. This should be the
case until the content of the
New Zealand Legislation website acquires
official status, thereby placing it on an equal footing with hard copies of
legislation.
This will occur once the accuracy of the entire legislative
database has been checked or “officialised”, a process that
is
expected to be completed by the end of 2012. At that point, the need for a
continued State subsidy for hard copy versions should
be reviewed.
Recommendations 2 to 4: digital capture of repealed statutes
9. The Law Commission recommends that all repealed Acts back to 1841
should be captured digitally as soon as possible and made
publicly available
online, with consideration being given to capturing the statutes in a searchable
format that can be integrated
into the New Zealand Legislation website.
Response
10. The repealed statutes are an important component of New
Zealand’s history and are used in legal argument in court and
before the
Waitangi Tribunal. PCO has recently scanned, into PDF format, the most
vulnerable statute books of the 19th century, the
so-called “shattering
statutes” of 1888-1894 (of which 6 public, 42 local and 4 private Acts are
still in force). These
statutes, which in hard copy extend over 2976 pages, can
now be consulted on the Internet, on a website separate from the New Zealand
Legislation website.
11. The Government notes that there are a number of options for
implementing the Law Commission’s recommendations, either
in whole or in
part, and that some options are more costly than others.
12. The Government agrees that all of the repealed statutes should be
preserved in electronic format, and authorises PCO to seek
funding for a project
that will allow PCO to outsource conversion and digitisation into PDF format,
and to host the content on a
website that is linked to the New Zealand
Legislation website.
Recommendations 5 to 9: subject index
13. The Law Commission proposes that the Government should arrange for an index to New Zealand’s Acts to be produced in both paper and electronic forms. The index should be continually updated in electronic format, and a hard copy version produced every two years. The Law Commission suggests
that the Government consider PCO producing an index, or tendering
and contracting the project out.
Response
14. The Government does not agree with this recommendation.
15. The New Zealand Legislation website is updated on a daily basis and
is fully searchable. PCO has an ongoing programme aimed
at maintaining and
improving the systems underlying the Legislation website. PCO is currently
consulting with users of the website
to improve the search functions and the
access provided by the website to the legislation it contains. Electronic
searching technology
is constantly improving. All the advantages provided by
electronic access to legislation apply equally to the on-demand creation
of an
electronic index by a search engine. A good search engine on an Internet site
with data that is properly cross-referenced can
provide a more complete set of
results that are up to date and can be printed by the searcher if
desired.
16. There is no evidence of significant public demand for a subject
index. Hard copy indexes are out of date before they are
published because of
the rate of production of new and amending legislation.
17. The cost implications of implementing the Law Commission’s proposal are
significant, depending on the nature of the method chosen.
18. As an alternative, the Government proposes to instruct PCO to
continue to incrementally enhance the search and browsing capability
of the New
Zealand Legislation website as part of its already funded maintenance programme
of work for the New Zealand Legislation
system.
19. The provision of an index could be re-examined at a future date if
there is an improvement in the Government’s fiscal
position. Any
recommendation would take into account the improvements made to the search and
browsing capabilities of the New
Zealand Legislation website, any
evidence of significant public demand, and the willingness of private sector
providers to
enter into satisfactory arrangements.
Recommendations 10 to 14: reprints
20. PCO currently undertakes an annual programme of reprinting New
Zealand statutes in hard copy with all amendments incorporated.
The Law
Commission proposes that PCO should continue to reprint individual statutes in
hard copy and make the reprinted statutes
available on a print-on-demand basis
without State subsidy.
21. When reprinting statutes, in both electronic format and hard copy, PCO should have enhanced powers to correct errors and make editorial changes. These changes should include replacement of gender-specific language, renumbering of provisions, and the correction of typographical and other similar errors.
Response
22. The Government agrees that until the New Zealand Legislation website
is accorded official status, hard copy versions of reprints
should continue to
be available on a subsidised basis. However, once the New Zealand Legislation
website acquires official status,
State subsidy should cease and hard copy
reprints should be made available to those who want them on a user-pays,
print-on-demand
basis.
23. The Government also agrees that the enhanced editorial powers
recommended by the Law Commission should be available to PCO
when compiling
reprints, as this will contribute to the comprehensibility of statutes. The
current process used to correct minor
errors (the Statutes Amendment Bill) is
resource and time intensive for Ministers, departments, and
Parliament. There
are precedents for introducing reprinting powers of this
kind in the Australian States of Queensland, South Australia, and Tasmania,
and
also in Ontario, without adverse consequences.
Recommendations 15 to 20: revision
24. Revision is the term used by the Law Commission to describe the
process of re-enactment of earlier law. The process involves
redrafting either a
single Act, or a combination of several Acts, the aim being to make the law more
accessible. It is the Law
Commission’s view that PCO should undertake a
triennial programme of statute revision, the aim of which is to make the
statutes more accessible without changing their substance. PCO should have
statutory powers to alter the wording, order, and placement
of the provisions
subject to revision. When a revision is complete, it should be certified by a
committee of senior legal office
holders as changing only the presentation of
the law, and not its meaning or spirit. The revision Bill, once certified,
should be
presented to Parliament by the Attorney-General and passed by a
streamlined parliamentary process. The duty to undertake the programme,
and the
process for passing revision Bills, should be set out in statute.
Response
25. The Government agrees in part with the Law Commission’s recommendations.
There should be a statutory requirement to carry out a programme of revision.
The contents of the programme would be settled by Ministers.
The size of the
programme would depend on the availability of resources to PCO and the
administering departments. The Attorney-General
would then have discretion as to
whether the certified revision Bill should be introduced, rather than a duty, as
recommended in
the statutes report. While there should be statutory provision
for a revision programme, the way in which revision Bills progress
through
Parliament should not be set out in statute. The changes to the House of
Representatives’ legislative procedures can
be achieved by amending
Standing Orders. This will allow for a more flexible approach to the timing of
the passage of Bills and amendments
that involve small policy changes (which
would not be possible if the Law Commission’s recommendation was
accepted
in full).
Recommendation 21: replacement of amended Acts
26. The Law Commission invites those responsible for the
preparation of legislation to note that it is desirable that,
if a proposal for
amending an Act makes substantial and far-reaching changes to the Act,
the Act should generally be repealed
and completely replaced.
Response
27. The Government agrees that the replacement of an Act may be
desirable in cases where there have been numerous amendments
or where they are
proposed. However, this is resource intensive and, as a result, may not be
possible in every case where it would
be desirable.
Recommendation 22: codification
28. The Law Commission notes that the prospect of codification
should be considered at such time as a programme of
revision has been completed
or nearly completed.
Response
29. The Government agrees that codification would have to wait until
there had been a complete, or near complete, programme of
revision of the whole
statute book.
Recommendation 23: Legislation Act
30. The Law Commission recommends that there should be a new Legislation
Act combining the provisions of the Interpretation Act
1999, the Acts and
Regulations Publication Act 1989, the Regulations (Disallowance) Act 1989, and
the Statutes Drafting and
Compilation Act 1920 (or its modern
equivalent), and containing new provisions to give effect to any remaining
recommendations
contained in the report that require legislative change.
Response
31. The Government proposes that a new Legislation Bill should replace
and amend all of the Acts mentioned above, except for
the Interpretation Act
1999, and implement those changes recommended above that require further
legislation.
32. The Government does not agree that the Interpretation Act 1999 should be re- enacted. It is the Government’s view that that Act is not capable of a simple re-enactment, and should be subject to a review of the underlying policy. There is a growing body of case law on the Act, and the Act should be reviewed in light of that case law with a view to making any necessary
improvements. Changes should only be made after full consultation with legal
practitioners and Judges.
33. The Government notes that the Interpretation Act 1999 is of a
somewhat different character from the other Acts mentioned
above (as its primary
emphasis is the interpretation of legislation, rather than procedural or
publishing requirements).
The 1920 Act report
34. This report reviews the statute that establishes PCO and sets out its functions.
It considers questions such as the legal status and functions of PCO, and
whether it should remain under the Attorney-General’s
control. The
recommendations are summarised on pages 28 and 29 of the report.
35. The recommendations can be summarised as follows:
(a) PCO should remain under the control of the Attorney-General: (b) PCO should remain outside the core public service:
(c) the Chief Parliamentary Counsel should be appointed by the Governor-
General for a fixed term:
(d) other Parliamentary Counsel should be appointed by the Chief
Parliamentary Counsel:
(e) the legislation should list the functions of PCO:
(f) one of the stated purposes of the legislation should be to facilitate
legislation of high quality:
(g) the Government should consider moving the responsibility for tax law
drafting to PCO (from IRD, where it is currently).
36. The Government accepts all of the Law Commission’s
recommendations as summarised above, but records the outcome of
its
consideration of the recommendation mentioned in paragraph 35(g) in paragraph
38.
37. IRD has its own tax law drafting unit.
38. Rather than leaving things as they are, or moving tax law drafting
to PCO, the Government favours a third option. This is
to retain a separate tax
drafting unit within the IRD at least for the foreseeable future, while
encouraging closer interaction
between PCO and the IRD drafting unit,
and providing more diverse and shared work experiences for drafters. In the
Government’s
view, this option is most likely to ensure that tax
drafting arrangements are consistent with achieving whole of Government
objectives, minimising fiscal and other risks to the Crown, and it builds on,
rather than undermines, the strength of the existing
arrangements.
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URL: http://www.nzlii.org/nz/other/lawreform/NZLCGovResp/2009/104.html