The PRESIDENT (Senator the Hon. Sue Lines ) took the chair at 12:00, made an acknowledgement of country and read prayers.
Administrative Review Tribunal (Miscellaneous Measures) Bill 2024
Whilst the Law Council is pleased to have obtained an extension to 2 February 2024 to lodge its submission, it remains very concerned that the Committee's truncated inquiry period will undermine or diminish the democratic and proper scrutiny of the Bills.
The Law Council's concerns are exacerbated by the sheer level of scrutiny required, given that the Bills comprise more than 550 pages, excluding more than 500 pages of explanatory materials.
The Albanese Government inherited an AAT that is not on a sustainable financial footing, that is beset by delays and an extraordinarily large and growing backlog of applications and that is operating multiple and ageing electronic case management systems …
(1) Clause 2, page 2 (table item 2), omit the table item, substitute:
(2) Schedule 2, page 21 (before line 4), before item 65, insert:
64A Subsection 124(3)
Omit "AAT's", substitute "ART's".
(3) Schedule 2, page 35 (after line 11), after item 113, insert:
113A Subsection 245AYK(9) (heading)
Omit " Appeals ", substitute "Review ".
113B Subsection 245AYK(9)
Omit "Tribunal", substitute "ART".
113C Subsection 245AYK(9) (note)
Omit "Section 27A of the Administrative Appeals Tribunal Act 1975 ", substitute "Section 266 of the ART Act".
(4) Schedule 2, items 115 to 119, page 35 (line 18) to page 37 (line 2), omit the items, substitute:
115 Paragraph 347(3)(a)
Omit "7 days", substitute "14 days".
(5) Schedule 2, Part 12, page 37 (after line 5), at the end of the Part, add:
120A Paragraph 375A(2)(b)
Omit "Tribunal", substitute "ART".
(6) Schedule 2, Part 13, page 39 (after line 4), at the end of the Part, add:
Wine Australia Act 2013
127A At the end of section 40ZAQ
Add:
Timing of applications for review to the Administrative Review Tribunal
(4) Regulations made for the purposes of subsection (1) may modify the operation of sections 18 and 19 of the Administrative Review Tribunal Act 2024 (which deal with when applications for review may be made) as they apply in relation to a determination made under those regulations.
127B At the end of section 40ZAT
Add:
Timing of applications for review to the Administrative Review Tribunal
(3) Regulations made for the purposes of subsection (1) may modify the operation of sections 18 and 19 of the Administrative Review Tribunal Act 2024 (which deal with when applications for review may be made) as they apply in relation to a determination made under those regulations.
(7) Schedule 2, page 40 (before line 3), before the heading specifying New Vehicle Standards Efficiency Act 2024 , insert:
Classification (Publications, Films and Computer Games) Act 1995
127C Section 22R (heading)
Omit "AAT", substitute "ART".
127D Section 22R
Omit "Appeals", substitute "Review".
The committee divided. [13:31]
(The Chair—Senator McLachlan)
All I'm asking is that they—
make it top of their aim to address the childcare deserts before we lavish more on the rest of Australia.
I want to see the minister responsible for this important portfolio area focusing some of her attention on addressing the childcare deserts …
… there is nothing to address the childcare deserts that occur, particularly in regional areas and regional electorates. We would like the government to look very closely at that.
A memorial is a sacred place—it's meant for reflection, remembrance, and respect. The fact that Nathan's chair has been vandalised, especially when another—
memorials in the same area remain untouched—
speaks volumes about the level of disregard and racism still present.
… … …
It's not just a bench; it's a symbol of justice, love, and a legacy that shouldn't be tainted by racial prejudice ignorance and hate.
Stronger accountability and greater awareness are key to challenging and eliminating these disgraceful racial practices—not just in the ACT, but across Australia.
No one should have to fight to protect a memorial, especially one honoring a lost loved one. The fact that this kind of desecration is happening shows that racism is still deeply embedded in parts of our society.
From Werribee to Wanneroo, ordinary Australians living in the outer suburbs are actually the people most likely to take advantage of and benefit from the discount to battery EVs and plug in hybrids provided through the FBT exemption and novated leasing. We're also seeing strong pick up among workers living in regional centres including Ballarat and Toowoomba.
If Australia had fuel efficiency standards in line with comparable nations, estimates of the fuel saving per passenger vehicle could be above $500 per year, or nearly $28 billion in total by 2040.
Offering production tax incentives for hydrogen production and critical mineral processing sends a clear message to investors that Australia is serious about seizing the opportunities presented by the global energy transition.
Offering production tax incentives for hydrogen production and critical mineral processing sends a clear message to investors that Australia is serious about seizing the opportunities presented by the global energy transition.
You judge a society not just by how it looks after the most wealthy, how it looks after the Gina Rineharts of this world, but how it looks after the vulnerable.
We are working with the states and territories as we speak. The new minister, Clare O'Neil, is working very hard to get movement on that project.
As is well recognised in the Westminster system, it is in the public interest to preserve the confidentiality of cabinet deliberations to ensure the best possible decisions are made following thorough consideration and informed discussion of relevant proposals within cabinet. It is not in the public interest to disclose information about the cabinet's deliberations, as it may impact in the future upon government's ability to receive confidential information and to make appropriately informed decisions impacting upon the Australian community.
That the Senate take note of the statement.
That the Senate take note of answers to all questions that were asked by coalition senators.
We have a plant. We're not changing the fence line, we're not changing the stuff that's inside the plant. If anything we're going to be improving the emissions performance.
That the Senate take note of the answer given by the Minister for Indigenous Australians (Senator McCarthy) to a question without notice I asked today relating to the Macquarie Point precinct.
That the Senate records its sadness at the death, on 14 December 2024, of the Honourable Kevin James Andrews AM, former Minister for Ageing, Employment and Workplace Relations, Immigration and Citizenship, Social Services and Defence, and member for Menzies, places on record its gratitude for his service to the Parliament and the nation, and tenders its sympathy to his family in their bereavement.
A career is about the individual; a vocation is about a cause …
I grew up in a racing family; my father was secretary of a country race club for probably the best part of twenty-five years. We went to the races every Saturday when I was a kid … And from a very early age I used to go up the back of the grand stand and start practicing calling the races and eventually took it up for a while.
… if I didn't go to the races on Saturday I would sit down and listen to the radio stations, I'd study the techniques of, in those days Bill Collins, Bert Bryant, Joe Brown and the likes, and … I was very serious about it.
We must stand economically, strategically and militarily with those nations and states, however imperfect, that seek to uphold the dignity and the freedom of the individual against totalitarian regimes …
He was a staunch defender of the family unit and a true Liberal.
Kevin Andrews dedicated his life to the things he cared for most: family, faith, community and nation.
While we were opposed on many political fronts, I respected that he always fought for his values: what you saw was what you got. He was a gentleman who wore his faith with pride. In his final term, he did excellent work charing the Joint Committee on the NDIS on a bi-partisan basis as an experienced parliamentarian committed to the best interests of NDIS participants.
Australia's present social and economic woes owe much to the dead hand of socialism, which stifles individualism and withers enterprise in this country at its roots. Rampant unionism hinders the vaunted but little recognised and little realised micro-economic reform in this nation and continues to keep our economy uncompetitive with its wasteful work practices. A plethora of taxes, including a tax on employment itself, punishes anyone in this country who is foolhardy enough to invest the capital and to work around the clock. People such as that are the people who employ over half the Australian work force.
Three decades ago I gave up a career in law to pursue a vocation. A career is about the individual; a vocation is about a cause, and my cause has been the peace, the welfare and the happiness of the people of Australia.
… for all his achievements on the national stage, it's the family that Kevin and Margaret have built, inside their home—with five wonderful children and their spouses, and seven adored grandchildren—that will stand as his legacy, as much as anything he did in Canberra.
This, I believe, is the great Australian dream—to hand on to the next generation an even better nation than the one which we've inherited. I've always believed that a successful society is a compact across generations. We prosper because of the wise choices, the sacrifices and the hard work of previous generations, and, in turn, it's our duty to use our industry and judgement to ensure the best for future generations of Australians.
That general business order of the day No. 63, Human Rights (Parliamentary Scrutiny) Amendment (Consideration of UNDRIP) Bill 2023, be considered at the time for private senator's bills on Thursday 13 February 2025.
That the following matter be referred to the Finance and Public Administration References Committee for inquiry and report by 5 August 2025:
The operation and appropriateness of the superannuation and pension schemes for current and former members of the Australian Defence Force (ADF), with particular reference to:
(a) whether the legislative framework governing superannuation and pension schemes for current and former members of the ADF is fit for purpose;
(b) whether the Military Superannuation and Benefits Scheme (MSBS) enables veterans to preserve savings to deliver income for a dignified retirement in an equitable and sustainable way;
(c) the structure and governance of the Commonwealth Superannuation Corporation (CSC), including an examination of its services to current and former members of the ADF and the identification of strategies to address complaints and improve service delivery;
(d) whether CSC account holders have the same rights and protections as other Australians in relation to their superannuation, including the ability to withdraw funds, receive appropriate returns, change superannuation providers and receive transparent information about return on investments;
(e) mechanisms for veterans to have their discharge reclassified from administrative to medical, particularly in cases involving psychological injuries, and whether current appeal processes and discretion practices by the Department of Defence and the CSC adequately protect veterans' entitlements and recognition of service-related mental health issues;
(f) the operation and effectiveness of the MSBS, Defence Force Retirement and Death Benefits Scheme, Defence Forces Retirement and Benefits Scheme, Australian Defence Force Superannuation Scheme and Australian Defence Force Cover Scheme and whether these schemes are operating in the best interests of current and former members of the ADF;
(g) targeted initiatives and education for current and former members of the ADF to preserve superannuation savings, improve understanding of superannuation and increase participation in these schemes; and
(h) any other related matters.
Whistleblower Protection Authority Bill 2025
That the following bill be introduced: A Bill for an Act to establish the Whistleblower Protection Authority, and for related purposes.
That this bill may proceed without formalities and be now read a first time.
That this bill be now read a second time.
Thirty years ago, a Senate Select Committee on Public Interest Whistleblowing handed down a report titled In the Public Interest .
A centrepiece of the report was a recommendation to create a dedicated body to protect whistleblowers and act on their disclosures. The recommendation was, in effect, for the establishment of a Whistleblower Protection Authority.
The idea of a Whistleblower Protection Authority was considered radical in 1994. Back then, whistleblowers were too often cast as traitors—people to shun, not celebrate.
Fast-forward thirty years, and things have changed. Now, we better understand the true value of whistleblowers. They are an important part of accountability and a healthy democracy—risking their jobs, reputations, and safety to shine a light on wrongdoing.
But for all that risk, we've fallen short. For decades, whistleblowers have had to fend for themselves. And today, the need for a Whistleblower Protection Authority is greater than ever.
It's time we finally gave whistleblowers the support they deserve—because when they are protected, all of us benefit.
Since the publication of In the Public Interest thirty years ago, there are many who have pushed for better protections for whistleblowers, and I would like to acknowledge the incredible work of advocates for a Whistleblower Protection Authority across the Parliament.
Andrew Wilkie, the Member for Clark, has been at the forefront, drawing on his own experience as a whistleblower to push for change with conviction and courage.
Dr Helen Haines, the Member for Indi, embedded a Whistleblower Protection Authority in her Federal Integrity Commission Bill, showing the foresight needed to create lasting integrity.
And the Greens, including Senator Shoebridge, have been calling for better protections too.
The urgency of this issue becomes painfully clear when you hear the stories of whistleblowers—people who tried to do the right thing but paid a heavy price. These are not theoretical debates—these are real lives, with real consequences.
Jeannie-Marie Blake, a Centrelink employee, saw the warning signs of the Robodebt disaster long before it exploded into public view.
She tried to stop it, raising concerns about the harm it would cause to Australia's most vulnerable all the way back in 2016. But instead of support, she was met with silence—and worse, denial.
Her managers were unwilling to listen to her and effectively told her to "stop complaining" or find another job.
But she couldn't let it go. Testifying before the Royal Commission into Robodebt seven years after she first raised concerns, Blake described the toll of standing against unethical practices, all while trying to support her family as a single mother of three children.
She told the Commission that she "couldn't sleep at night knowing what we were doing."
Despite the immense personal cost, she kept fighting, guided by the moral compass her father instilled in her. But by the time her voice was heard, it was too late for the many people who lost their lives or faced life-altering hardships because of Robodebt.
Imagine how different things could have been if a Whistleblower Protection Authority had existed—empowering Jeannie-Marie to raise the alarm before it was too late.
We know that hundreds, if not thousands, of Australians died due to Robodebt. How many lives could have been saved? How much suffering could have been prevented if whistleblowers had been properly supported? .Then there's Richard Boyle, who—as many of us know—blew the whistle on aggressive debt-collection tactics harming small businesses.
Boyle has paid an incredibly high cost of speaking out.
The ATO and Federal Police raided his home, and he faces criminal charges that could put him behind bars for up to 46 years.
As a Senator, I've witnessed firsthand the consequences of not having a Whistleblower Protection Authority.
Dozens of people have contacted my office in the past couple of years, hoping to use parliamentary privilege as their last resort to expose wrongdoing.
One example involves an employee of Santos, who came forward after witnessing a 25,000-litre oil spill off Varanus Island in Western Australia.
This spill likely caused the deaths of dolphins and other marine life, but Santos downplayed it as a "minor incident."
Frustrated by the lack of investigation, the whistleblower collected documents and videos, ultimately bringing them to my office to be tabled in the Parliament.
Nearly two years later, they still live in fear of legal retribution from Santos.
While I am grateful to use my platform to advocate for whistleblowers, parliamentarians are no substitute for greater whistleblower protections in our laws and a dedicated Whistleblower Protection Authority.
Parliamentarians often lack the resources and expertise to properly support whistleblowers and protect them from retaliation.
As the title suggests, this Bill establishes the Whistleblower Protection Authority, an independent statutory authority responsible for providing information, advice, assistance, guidance and support to whistleblowers and potential whistleblowers.
The Authority will consist of a Whistleblower Protection Commissioner, Deputy Commissioners, a Chief Executive Officer and appropriately experienced and trained staff. It will be empowered to receive and facilitate the investigation of whistleblower disclosures; assist whistleblowers and potential whistleblowers; investigate the mistreatment of whistleblowers; and undertake enforcement activities as necessary. Importantly, the Authority will conduct research and policy work in relation to the efficacy of Australia's whistleblower protection laws; and will monitor, educate and advise on how to prevent detrimental actions against whistleblowers.
The Bill also establishes a Whistleblower Protection Advisory Board to provide advice to the Commissioner, and the Parliamentary Joint Committee on the Whistleblower Protection Authority to appoint the Commissioner, and to monitor and review the performance of the Commissioner.
This Bill has been drafted in consultation with experts who specialise in whistleblower protections. In particular, I would like to thank Kieran Pender and Madeleine Howle from the Human Rights Law Centre, and Professor AJ Brown AM from Griffith University, who is also Chair of Transparency International Australia, for their engagement on this Bill.
A Whistleblower Protection Authority is long overdue and something the Labor Party promised before the 2019 Election. My crossbench colleagues and I are ready to work collaboratively with the Government to reform our country's whistleblower protection laws, and it starts today with this Bill. I urge the Government to get on board or get out of the way, so we can ensure whistleblowers are protected, not punished, prosecuted or imprisoned.
I commend this Bill to the Senate.
That there be laid on the table by the Minister representing the Minister for Education, by no later than 4 pm on 13 February 2025:
(a) a breakdown of the data used to calculate the Government's claims, published on 28 January 2025, that families have saved $2,768 in childcare costs since September 2023;
(b) the modelling used to calculate the above total, including using other income cameos;
(c) a breakdown of the data used to calculate the Government's claims, published on 3 February 2025, that more than 100,000 families across Australia will have access to more subsidised care, and more than 66,000 families will be better off with changes to provide 3 days of subsided childcare; and
(d) correspondence between the Department of Education and the Minister for Education's office regarding the production of this data.
Great Australian Bight (World Heritage Protection) Bill 2025
That the following bill be introduced: A Bill for an Act to protect the Great Australian Bight, and for related purposes.
That this bill may proceed without formalities and be now read a first time.
That this bill be now read a second time.
For more than a decade, South Australians, ocean and nature lovers, surfers, the tourism and fishing industries, communities across the country, and the Australian Greens, have been fighting to protect the Great Australian Bight from Big Oil and Gas. We've fought off BP, Chevron and Equinor, and now we must win the ultimate protection—World Heritage Listing.
The Great Australian Bight is an SA icon and is home to a vast array of unique marine life, including treasured whale species and sea lions. 85 percent of the species that live in the Bight are found nowhere else on Earth. It is an essential calving sanctuary for southern right whales, and a feeding ground for threatened sea lions, sharks, tuna and migratory sperm whales.
Modelling has shown that an oil spill in the Bight would impact many Matters of National Environmental Significance. This would include up to 177 marine species, 47 species classified as vulnerable, endangered and critically endangered, and 50 coastal wetlands.
Thirty-eight marine reserves would be covered in sludge, resulting in the mortality of hundreds of thousands of seabirds and thousands of marine animals, including endangered southern right whales, blue whales, killer whales, dolphins, and endemic and endangered Australian sea lions. Hundreds of sea turtles would be dead. Hundreds—potentially thousands—of kilometres of shoreline would be covered in oil, causing extreme harm to both the birds that live on the coast and those that visit nearby.
This environmental devastation isn't the end of it. The Bight plays host to over ten thousand fishing and tourism jobs. These industries would be decimated and may never recover. That is why, all along the coast, local councils voted against drilling in the Bight.
Traditional Owners of the Nullarbor Plain, the spectacular Bunda Cliffs and the pristine waters of the Bight, the Mirning people, have staunchly defended their land, air and sea and the place of the great white Dreamtime whale Jeedara against Big Oil.
All of those directly impacted by oil and gas drilling in the Bight are supported in their opposition by more than two-thirds of South Australians.
We love our beaches and coastline and we want to keep them clean and pristine. South Aussies know that our beautiful Bight and coastline is worthy of protection and deserves World Heritage status to protect it forever.
We must ensure it is not put at risk again by any Government greenlighting new gas and oil developments. Right now, there are no active licences for oil and gas exploration in the Bight. There is no better time to protect it for good.
In 2019, our South Australian community stood up to big oil and told them they were not welcome. We won that battle, but now it's time to win the war.
This Bill would help protect our Bight from all offshore drilling for good. South Australians, and indeed the rest of the country and world, are already experiencing the impacts of climate change, and opening a new oil and gas field would only make that worse.
No longer should our coastal communities live with uncertainty, or have any risk of oil muck washing up on their pristine beaches. Any suggestions that our coastline, marine life and fishing and tourism industries should be put at risk for the profits of big oil and gas will be met with strong opposition.
Both the Federal and State Governments have been too slow to act, so the Greens are once again.
Our planet is on the verge of environmental and climate collapse. There is no time to lose in taking the action needed to save nature and humanity.
This Bill would give the Bight the protection it deserves, as well as ruling out new fossil fuels in this biodiversity hotspot, which is the only way we will stop irreversible global warming.
I urge Labor and Liberal to listen to voters and do the right thing for our environment, jobs, and economy—support this Bill and protect the Great Australian Bight for good.
That there be laid on the table by the Minister representing the Treasurer, by 9 am on Wednesday, 12 February 2025, all the submissions made to the 2019 superannuation binding death benefit nominations and kinship structures consultation process.
That there be laid on the table by the Minister representing the Minister for Social Services, by no later than 5 pm on Monday, 17 February 2025, a list of all individuals and groups/organisations consulted and a copy of all submissions to the Future of Income Management consultation period (22 November 2023 to 6 December 2024).
That the Senate—
(a) notes that the Minister representing the Minister for the Environment and Water has failed to comply with order for the production of documents no. 746, agreed to on 5 February 2025, relating to correspondence with Senators Hanson-Young and David Pocock in relation to the Government's Nature Positive bills; and
(b) requires the Minister representing the Minister for the Environment and Water to comply with the order by no later than 9 am on 12 February 2025.
That the Senate—
(a) notes that:
(i) on 28 November 2024, the Minister for Education requested more time to comply with order for the production of documents no. 719, relating to drafts of the Universities Accord final report, and
(ii) a response has not yet been provided and therefore the Minister representing the Minister for Education has failed to comply with the order; and
(b) requires the Minister representing the Minister for Education to comply with the order by no later than 4 pm on 12 February 2025.
That the Senate—
(a) notes that the Minister representing the Minister for Infrastructure, Transport, Regional Development and Local Government has failed to comply with:
(i) order for the production of documents no. 756, agreed to on 6 February 2025, relating to Rex Airlines,
(ii) order for the production of documents no. 761, agreed to on 6 February 2025, relating to the Stronger Communities Program, and
(iii) order for the production of documents no. 762, agreed to on 6 February 2025, relating to Federation Funding Agreements; and
(b) requires the Minister representing the Minister for Infrastructure, Transport, Regional Development and Local Government to comply with the orders by no later than midday on Wednesday, 12 February 2025.
That there be laid on the table by the Minister representing the Treasurer, by no later than midday on 21 February 2025, all written or digital correspondence, briefing notes, file notes, meeting notes, meeting agendas or minutes or other records of interaction from 1 July 2024 to 7 February 2025, between:
(a) the Australian Securities and Investments Commission and the Australian Financial Complaints Authority;
(b) the Australian Securities and Investments Commission and the Assistant Treasurer or their office; and
(c) the Assistant Treasurer or their office and the Treasurer or their office;
in relation to the deadline imposed by the Australian Financial Complaints Authority for lodging complaints about mis-sold add-on insurance.
That the Senate—
(a) notes that:
(i) the response to order for the production of documents no. 656, relating to the implementation of the recommendations in the Australian Competition and Consumer Commission's digital platform services inquiry, was due on 4 December 2024, and
(ii) the Minister representing the Treasurer has failed to comply with the order; and
(b) requires the Minister representing the Treasurer to comply with the order by no later than 3 pm on Thursday, 13 February 2025.
That the Senate—
(a) notes that order for the production of documents no. 750, relating to the Better and Fairer Schools Agreement, has not been complied with;
(b) notes that the Minister for Education has made a public interest immunity claim on the basis that complying with the order may prejudice relations between the Commonwealth and the states;
(c) rejects the public interest immunity claim made by the Minister, noting that:
(i) the minister has disclosed publicly several of the key terms of the bilateral agreements referred to in the order for the production of documents no. 750,
(ii) it is usual practice to publish bilateral agreements once announced,
(iii) when a claim of public interest immunity is made on the basis that it would adversely impact relations between the Commonwealth and states and territories, the agreement of the states to disclose the information should be sought and they should be invited to give reasons for any objection, and
(iv) no such agreement has been sought, nor has the Senate been advised of any objections from the states and territories; and
(d) requires the Minister representing the Minister for Education to comply with the order by no later than 4 pm on 12 February 2025.
That leave of absence be granted to me for 10 February, for personal reasons.
Pursuant to standing order 75, I give notice that today I propose to move "That, in the opinion of the Senate, the following matter is a matter of urgency:
The need for the Albanese Labor Government to support the Greens plan to tax Australia's billionaires and use the revenue to help fund urgent cost of living relief, including getting dental into Medicare and making it free to see the GP."
That, in the opinion of the Senate, the following is a matter of urgency:
The need for the Albanese Labor Government to support the Greens plan to tax Australia's billionaires and use the revenue to help fund urgent cost of living relief, including getting dental into Medicare and making it free to see the GP.
The Senate divided. [17:42]
(The Acting Deputy President—Senator O'Sullivan)
Pursuant to standing order 75, I propose that the following matter of public importance be submitted to the Senate for discussion:
"Hard-working households, families and small businesses are suffering under an Albanese Labor Government, and things will only get worse under an Albanese-Bandt minority government."
It just causes undue stress for people. That's not necessary when the job is stressful enough.
That so much of the standing orders be suspended as would prevent me moving that the documents be tabled.
The Senate divided. [18:28]
(The President—Senator Lines)
National Organic Standard Bill 2024
Australian Government response to the Senate Community Affairs References Committee report: Ending the postcode lottery—Addressing barriers to sexual, maternity and reproductive healthcare in Australia
2025
Overview
On 28 September 2022, the Senate referred the issue of universal access to reproductive healthcare to the Senate Community Affairs References Committee for inquiry and report.
Supporting, protecting, and promoting the sexual and reproductive health and rights of all Australians is critical to the Australian Government. The Government recognises the importance of ensuring access to sexual and reproductive health information, treatment and services that empower individuals to have choice and control in decision-making about their bodies. Ensuring appropriate access to sexual and reproductive health services and information is a key priority in the National Women's Health Strategy 2020-2030 (Women's Health Strategy) and the National Men's Health Strategy 2020-2030.
The Government is committed to health equity and is supporting access to sexual and reproductive healthcare and services and maternity services. Through the 2024-25 Budget, the Government is investing over $160 million in measures which support a number of recommendations from the inquiry and demonstrates the Government's commitment to supporting the sexual and reproductive health needs of women. In addition, a range of initiatives are being implemented to respond to the Strengthening Medicare Taskforce, which recommended significant changes to how primary care is funded and delivered.
The recommendations aim to enable quality, integrated and person-centred care for all Australians. The package of reforms includes a review of scope of practice to ensure all health professionals are utilising their skillset, including being able to effectively support individuals, families, and communities with their reproductive health needs.
The Government will invest an additional $124.6 million over three years from 2025-26 with ongoing funding of $44.7 million per annum from 2028-29 to remove access and affordability barriers for long-acting reversible contraception (LARCs). This includes increasing the LARC item fees on the Medicare Benefits Schedule (MBS) and creating new items for Nurse Practitioners in line with advice from the MBS Review Advisory Committee. A MBS loading item will also be implemented which can be claimable where a provider provides a bulk-billed LARC MBS service. The Government will also build on its commitment to increase training for health professionals in LARC insertion and removal by establishing Centres of Training Excellence.
The Government, supported by expert advice from the Therapeutic Goods Administration (TGA) and Pharmaceutical Benefits Advisory Committee (PBAC), has also introduced changes to the dispensing and prescribing of mifepristone and misoprostol (MS-2 Step [©] ) to make medical termination of pregnancy more accessible to those in need. The Committee's report highlights the roles of all levels of government in addressing the barriers to sexual and reproductive healthcare access in Australia.
Some of the recommendations (12) fall within areas of state and territory responsibility or require collaboration between the Australian Government and jurisdictions. In-principle support indicates agreement with these recommendations but recognises state and territory governments are responsible for their funding and implementation. These recommendations were discussed at the 10 November 2023 Health Ministers' Meeting and all Health Ministers agreed in-principle to support the 12 recommendations related to jurisdictional areas of responsibility.
For a number of other recommendations where in-principle support is given, they may relate to matters where further collaboration with stakeholders is required or where there are existing activities underway which go to addressing the intent of the recommendation.
The Government response supports (or supports-in principle) 36 of the 40 recommendations, while 4 responses are noted.
The Government acknowledges other women related policies, such as Working for Women: A Strategy for Gender Equality and the Senate inquiry into issues related to menopause and perimenopause which also reflect the Government's commitment to improve outcomes for women.
Recommendation 1
1: The Committee recommends that the Therapeutic Goods Administration reviews its approval processes to ensure that Australian consumers have timely access to the latest and safest contraceptive methods available internationally.
The Australian Government supports in-principle this recommendation.
For a therapeutic good to be authorised for use and supply in Australia, the sponsor of the product needs to make an application to the Therapeutic Goods Administration (TGA) to register the good on the Australian Register of Therapeutic Goods (ARTG). The Government cannot compel a sponsor to make an application for registration of a new medicine or medical device.
The TGA works collaboratively with other international partners and has strong working relationships with many international agencies and overseas regulators. For new therapeutic goods, including contraceptives, the TGA is able to use assessments from comparable overseas regulators and international assessment bodies, in the regulation of medicines and medical devices. This can streamline the approval process and reduce the duplication of effort where an assessment has been completed internationally. Depending on the scope of the assessment provided to the TGA, the need for a new evaluation may be reduced or removed.
The TGA is a member of the Access Consortium along with Health Canada, Health Sciences Authority of Singapore, Swissmedic and the United Kingdom's Medicines and Healthcare products Regulatory Agency. A key focus of the Access Consortium is to work collaboratively during the evaluation of a new registration application to minimise regulatory burden, by completing a global evaluation used by each partner participating in this work-sharing arrangement.
Generally, therapeutic goods must be included in the ARTG before they can be imported into, supplied in or exported from Australia. Therapeutic goods not included in the ARTG (described as 'unapproved') have not been evaluated by the TGA for quality, safety, efficacy or performance. The TGA encourages the use of medicines which have been approved in Australia and included in the ARTG.
It is recognised there are times when approved and available products may not meet the needs of all patients and clinical situations. There are provisions which allow health practitioners and patients to access therapeutic goods not included in the ARTG. These provisions include the Special Access Scheme, Authorised Prescriber or Personal Importation Schemes, and Clinical Trials. It is the responsibility of the prescribing health practitioner to determine the most suitable pathway for supply.
Recommendation 2
2: The Committee recommends that the National Scope of Practice Review considers, as a priority, opportunities and incentives for all health professionals working in the field of sexual and reproductive healthcare to work to their full scope of practice in a clinically safe way.
The Australian Government supports this recommendation.
The independent Unleashing the Potential of our Health Workforce (Scope of Practice) Review was released on 5 November 2024. This review made recommendations to all Health Ministers regarding enabling health professionals, including Nurse Practitioners, to work to their full scope of practice.
This includes recommendations relevant to health professionals working in the field of sexual and reproductive health such as:
The Government will carefully consider the findings and recommendations of this review alongside other recently released primary care and workforce reviews.
Recommendation 3
3: The Committee recommends that state and territory governments work towards aligning supply quantities of Pharmaceutical Benefits Scheme (PBS) and non-PBS oral contraceptive pills allowed under state and territory emergency supply legislation.
The Australian Government supports in-principle this recommendation.
The Government will explore opportunities to work with states and territories to align jurisdiction emergency supply legislation to ensure equitable access for all Australians. The supply quantities of PBS and non-PBS oral contraceptive pills allowed under emergency supply legislation is a decision for state and territory governments. Health Ministers considered this recommendation through the Health Ministers' Meeting in November 2023, and all Health Ministers agreed in-principle support for the recommendation.
The emergency supply legislation ensures the supply of medicine when there is an immediate need and a patient cannot obtain a script. For PBS medicines, this is covered by national Continued Dispensing arrangements where the person has previously been supplied the medicine under the PBS in the last three months, their condition is stable, and the PBS prescriber is unable to be contacted or is unable to provide an electronic or owing PBS prescription.
Oral contraceptives subsidised under the PBS have been able to be supplied since the commencement of Continued Dispensing in 2013.
Supply of non-PBS medicines relies on jurisdictional emergency supply legislation. Depending on the jurisdiction, this ranges from three to seven days' worth of supply, or the minimum standard pack. New South Wales (NSW), South Australia (SA) and Tasmania have permanently expanded pharmacist scope of practice to allow for the resupply of the oral contraceptive pill without a prescription. The Australian Capital Territory (ACT), Queensland, Victoria and Western Australia (WA) have established pilots to trial the prescribing of the oral contraceptive pill without a prescription.
In late 2023, NSW expanded their Pharmacy Trial to allow eligible women to visit a participating pharmacy to get a resupply of their oral contraceptive pill. In November 2023, the ACT also commenced a 12-month pilot program which is being implemented through an agreement with the NSW Government to participate in their trial. NSW announced in September 2024 that the trial would transition to usual practice.
In September 2023, Queensland announced an expansion of their pharmacy prescribing trial to cover the whole state, initially slated for Northern Queensland only, and to also include the oral contraceptive pill. Pharmacists who take part in the trial are required to undergo extra training and have suitable private consulting spaces. The trial will roll out over 2024 and 2025.
From October 2023, Victoria commenced a 12-month state-wide pilot for participating and appropriately trained community pharmacists to provide continued supply of select oral contraceptive pills without a prescription for women under a structured prescribing model. The trial has subsequently been extended to June 2025.
In May 2024, SA and WA announced that pharmacists who have completed appropriate training will be able to provide resupply of oral contraceptives as part of usual practice. Tasmania announced similar arrangements in July 2024.
Recommendation 4
4: The Committee recommends that the Australian Government reviews, considers and implements options to make contraception more affordable for all people.
The Australian Government supports in-principle this recommendation.
The Government supports increasing access to affordable contraception. The Government provides relevant subsidised healthcare services through the MBS and some subsidised contraception options through the PBS. The MBS provides patient rebates for professional services delivered in private healthcare settings. There are a number of MBS items which provide patient rebates relevant to contraception services, including general attendance consultations during which contraception counselling could occur, as well as specific items that provide a rebate for the insertion and removal of long-acting reversible contraception (LARCs).
In the 2024-25 Budget, the Government committed $5.2 million over three years to support health professionals, including regional and remote practitioners, to undertake free LARC training. Funding will ensure cost is not a barrier to health professionals—including GPs, Nurse Practitioners, Registered Nurses, midwives and Aboriginal and Torres Strait Islander health practitioners—in undertaking LARC training, including if they need to travel to participate. This will ensure a larger number of providers can provide LARC services across Australia and support increased uptake of LARCs, particularly for women living in regional and remote locations.
Also in the 2024-25 Budget, the Government committed to a review or 'gender audit' of the MBS items available for LARC insertion and removal as well as diagnostic imaging. Women should not face higher out-of-pocket costs for health services simply due to their gender, and this audit is examining these specific items and any gender bias in the rates of Medicare rebates and payments.
From 2025-26, the government will build on the 2024-25 Budget workforce measure by providing an additional $17.5 million over three years with ongoing funding of $6.6 million per annum from 2028-29 to create LARC Centres of Training Excellence. The LARC Centres of Training Excellence will leverage existing infrastructure to provide training for health professionals in LARC insertion and removal. This training will further enhance health professionals' ability to deliver appropriate care to a patient for LARC insertion and removal, including effective pain management options.
The Centres of Training Excellence will also provide LARC services to the community for patients wanting a LARC inserted and removed and will be a referral point for providers not trained or confident in delivering these services. An outreach component will be included as part of this model to alleviate the barriers for both health professionals in accessing training and patients accessing LARC services in rural and remote areas.
In addition to this, Government will invest an additional $124.6 million over three years from 2025-26 with ongoing funding of $44.7 million per annum from 2028-29 to remove access and affordability barriers for LARCs. This includes increasing the LARC item fees on the MBS and creating new items for Nurse Practitioners in line with advice from the MBS Review Advisory Committee (MRAC). A MBS loading item will also be implemented which can be claimed where a provider provides a bulk-billed LARC MBS service.
Contraception can be accessed through primary care providers, gynaecology medical specialist practices, family planning services, and some sexual health services and hospital run contraceptive clinics.
There are currently a range of contraceptive medicines listed on the PBS, including combined oral contraceptive pills, progestogen-only pills, intrauterine devices (IUD), hormonal implants and injections.
Medicines dispensed through the PBS are subject to a patient contribution, known as a co-payment. The co-payment is the amount the patient pays towards the cost of their PBS medicine. The Government pays the remaining cost. Contraceptives that are not PBS-listed are dispensed as private prescriptions, and patient charges for private prescriptions are a matter for each pharmacy to determine. Prices can vary between pharmacies.
Under legislation, a medicine cannot be listed on the PBS unless the PBAC makes a recommendation in favour of listing. The PBAC is an independent and expert body, comprising doctors, health professionals, health economists and consumer representatives.
When considering a medicine proposed for PBS listing, the PBAC is legally required to consider the comparative effectiveness and cost-effectiveness of the medicine compared to other available therapies. The PBAC's consideration is generally initiated when the pharmaceutical company responsible for a medicine applies for PBS listing for specific conditions. Pharmaceutical companies usually hold scientific data and other information necessary to inform the PBAC's consideration.
Pharmaceutical companies are private entities, and each company makes its own decisions about availability of its medicines, pricing of its medicines in the private market (outside the PBS), and whether it will apply for PBS listing. In March 2024, the Department of Health and Aged Care wrote to pharmaceutical companies with contraceptive medicines that are TGA registered and available on the private market in Australia, requesting they consider applying to the PBAC to list these products on the PBS. The Department of Health and Aged Care has since met with various companies to discuss potential applications to list their contraceptive products on the PBS. However, the Government cannot compel companies to apply for PBS listing.
The Government recognises the need for more contraceptive options to be listed for PBS subsidy. The Government is considering options for reform (including those made by the Health Technology Assessment (HTA) Policy and Methods Review) to encourage pharmaceutical companies to apply for PBS listing of medicines which address an unmet clinical need (which would include different contraceptive medicines).
The Government also provides funding contributions through the National Health Reform Agreement (NHRA) to assist states and territories with the cost of delivering public health and hospital services, including for contraception services delivered through emergency departments, admitted and non-admitted care, subacute care and some community health settings.
Recommendation 5
5: The Committee recommends that the Australian Government ensures that there is adequate remuneration, through Medicare, for general practitioners, nurses, and midwives to provide contraceptive administration services, including the insertion and removal of long-acting reversible contraceptives.
The Australian Government supports this recommendation.
In the 2024-25 Budget, the Government committed to a review or 'gender audit' of the MBS items available for LARC insertion and removal as well as a review of any gendered differences in MBS items for diagnostic imaging services. As part of the review, consideration is being given to the appropriateness of the items to support equitable and affordable access for women to high quality, safe services provided by appropriately trained health practitioners, including doctors, Nurse Practitioners, midwives and nurses.
The MRAC commenced this work and provided preliminary recommendations to the Government in August 2024.In line with the MRAC's advice, Government committed to investing an additional $124.6 million over three years from 2025-26 with ongoing funding of $44.7 million per annum from 2028-29 to remove access and affordability barriers for LARCs. This includes increasing the LARC item fees on the MBS and creating new items for Nurse Practitioners in line with advice from the MBS Review Advisory Committee. A MBS loading item will also be implemented which can be claimed where a provider provides a bulk-billed LARC MBS service. This better recognises the costs incurred by the range of providers involved in delivering these services.
The MRAC's review work is ongoing to consider how a broader range of health professionals may be well placed to support access for patients for LARC insertion and removal, as well as to consider more broadly how the MBS may unintentionally create disincentives for health professionals to address women's health.
Medicare rebates are benefits paid to patients to provide financial assistance towards the costs of their health services. On 1 November 2023, new general attendance items for consultations of 60 minutes or more (known as level E) became available to support improved access and service affordability for patients with complex needs. These new general attendance items were accompanied by a tripling of the bulk billing incentives for patients with a Commonwealth Concession Card and children under 16 years of age for the most common GP consultation items that is:
The tripled bulk billing incentive reflects the incentive scaling based on the rurality of the practice. This means the incentive increases for patients attending practices in regional, rural and remote communities. This investment increases benefits for healthcare provision for eligible patients for consultations which may include counselling and the prescribing of contraception, such as the oral contraceptive pill. For procedural items, such as the introduction of an IUD, standard bulk billing incentives continue to apply.
From 1 November 2024, Nurse Practitioners will have expanded requesting rights that will allow them to request further ultrasound services under Medicare to assist with patient care, including the before and after care requirements of the MS-2 Step medical abortion program.
Nurse Practitioners and Endorsed Midwives (EMs) have access to the MBS. Nurse Practitioners have time tiered items and EMs have several MBS items that may be applied to address contraception administrative services and counselling. From 1 July 2024, MBS rebates for Nurse Practitioners general attendance items increased by 30 per cent as part of the Strengthening Medicare Taskforce reforms. From 1 March 2025, new general attendance items for Nurse Practitioners consultations of 60 minutes or more (to be known as level E) will be available to support improved access and service affordability for LARCs.
The ability of Registered Nurses and midwives to distribute, prescribe and administer medicines listed within the Schedules to the Poisons Standard, including some contraceptives, is regulated by state and territory legislation.
In addition to renumeration, there are a range of Government supported programs and incentives to improve the availability of GPs with advanced skills and broader scopes of practice as part of a rural healthcare team, through the National Rural Generalist Pathway.
The Workforce Incentive Program—Practice Stream (WIP-PS) aims to improve access to multidisciplinary care at a community level by providing financial incentives to help general practices with the cost of engaging nurses, midwives, allied health professionals, and Aboriginal and Torres Strait Islander health practitioners and health workers. In the 2023 -24 Budget, an additional $445.1 million over 5 years was allocated under the WIP-PS to help improve the financial sustainability of multidisciplinary general practice and support more accountability and transitions to new models of care that are responsive to community needs. This is on top of the financial incentives of more than $400 million per year already available through the WIP-PS.
Nurses are the largest health professional type engaged under the WIP-PS and are an integral and central part of many multidisciplinary teams around the country. As at the end of August 2024, there were 13,804 Registered Nurses and 266 Nurse Practitioners engaged under the WIP-PS program.
Recommendation 6
6: The Committee recommends that the Department of Health and Aged Care and the Pharmaceutical Benefits Advisory Committee work with the pharmaceutical industry to consider options to improve access to a broader range of hormonal contraceptives that are not currently Pharmaceutical Benefits Scheme subsidised, including newer forms of the oral contraceptive pill, the emergency oral contraceptive pills and the vaginal ring.
The Australian Government supports in-principle this recommendation.
The listing of medicines on the PBS generally occurs at the request of the pharmaceutical company responsible for the supply of the medicine in Australia (the sponsor) via an application to the PBAC.
Under legislation, a medicine cannot be listed by the Government on the PBS unless the PBAC makes a recommendation to the Minister in favour of listing. To make a recommendation, the PBAC is required by the legislation to consider the comparative clinical effectiveness and costs of the proposed medicine with that of alternative therapies. The PBAC and the PBS listing process relies in part on the scientific assessment of evidence regarding safety and clinical effectiveness undertaken by the TGA when it evaluates medicines for approval and inclusion in the ARTG. Medicines are only listed on the PBS for the treatment of conditions for which they are registered by the TGA. The TGA does not make recommendations for listing medicines on the PBS.
Government can encourage sponsors to come forward, and in March 2024 the Department of Health and Aged Care wrote to sponsors of oral contraceptive pills and the vaginal ring which are not currently subsidised through the PBS to invite applications to the PBAC. However, as noted in response to recommendations 1 and 4, pharmaceutical companies are private entities and cannot be compelled by the Government to apply for PBAC consideration or list their medicines on the PBS. It is important to note that the Government does not interfere with the PBAC's considerations or processes to develop recommendations to Government.
In October 2024, at the request of the Minister for Health and Aged Care, the PBAC convened a stakeholder meeting to discuss evidence available that may demonstrate additional benefits of newer contraceptives compared to older generation oral contraceptives. Invited participants included those representing professional organisations, pharmaceutical companies responsible for newer contraceptives, individuals representing PBAC and Department representatives. The outcomes from the stakeholder meeting are available on the PBS website.
At its November 2024 meeting, the PBAC recommended listing drospirenone 4 mg tablets (Slinda) on the PBS. The PBAC also provided further advice to its July 2024 recommendation to list the combined oral contraceptives 3 mg drospirenone with 20 micrograms ethinylestradiol (Yaz) and 3 mg drospirenone with 30 micrograms ethinylestradiol (Yasmin) on the PBS. When the PBAC recommends PBS listing and the sponsor agree to the terms of listing, the Government would support the sponsor to finalise arrangements and proceed to a PBS listing as quickly as possible.
Recommendation 7
7: The Committee recommends that the Department of Health and Aged Care considers and implements an option to subsidise the non-hormonal copper intrauterine device to improve contraceptive options for people with hormone-driven cancers and people for whom hormonal contraception options may not be suitable.
The Australian Government supports in-principle this recommendation.
Copper IUDs are regulated by the TGA as medical devices and, unlike hormonal IUDs, do not contain medicines. As such, they are not appropriate for subsidy through the PBS, which subsidises medicines or medicinal preparations.
The Government will consider this recommendation in the context of the implementation of the Australian Cancer Plan. The plan aims to improve the lives of all Australians affected by cancer. The plan includes a focus on improving survivorship care, to better manage the longer-term impacts of cancer treatment.
There are a number of MBS items which provide patient rebates specifically for access to IUD services. These include MBS item 35503 which provides a patient rebate for the insertion of any type of IUD, including a copper IUD, used for contraceptive purposes, and item 35506 which provides a patient rebate for the removal of any type of IUD when an anaesthetic is required. GPs, Nurse Practitioners and EMs attendance items, as well as specialist consultation items, may also provide a patient rebate for consultations associated with insertion and removal of IUDs. These items are being reviewed as a part of the 'gender audit' of LARC insertion and removal MBS items.
Recommendation 8
8: The Committee recommends the Australian Government works with the Royal Australian College of General Practitioners and the Royal Australian and New Zealand College of Obstetricians and Gynaecologists to improve access to workforce training for the insertion and removal of long-acting reversible contraceptives to support their increased utilisation in Australia.
The Australian Government supports in-principle this recommendation.
In the 2024-25 Budget, the Government committed $5.2 million over three years to support health professionals, including regional and remote practitioners, to undertake free LARC training. Funding will ensure cost is not a barrier to health professionals—including GPs, Nurse Practitioners, Registered Nurses, midwives and Aboriginal and Torres Strait Islander health practitioners—in undertaking LARC training, including if they need to travel to participate. This will support a larger number of healthcare providers to provide LARC services across Australia and support increased uptake of LARCs, particularly for women living in regional and remote locations.
The Government will provide a further $17.5 million over three years from 2025-26 and ongoing funding of $6.6 million per annum from 2028-29 to create LARC Centres of Training Excellence. The LARC Centres of Training Excellence will leverage existing infrastructure to provide training for health professionals in LARC insertion and removal. This training will enhance health professionals' ability to deliver appropriate care to a patient for LARC insertion and removal, including effective pain management options.
The Centres of Training Excellence will also provide LARC services to the community for patients wanting a LARC inserted and removed and will be a referral point for providers not trained or confident in delivering these services. An outreach component will be included as part of this model to alleviate the barriers for both health professionals in accessing training and patients accessing LARC services in rural and remote areas.
The Government has also provided $107.1 million between 2019-20 and 2025-26 for the Rural Procedural Grant Program (RPGP) to cover related costs of continuing professional development (CPD) for procedural GPs working in rural and regional (defined as Modified Monash Model 3-7) locations to ensure these communities have access to highly qualified health professionals. Under the RPGP, GPs with procedural skills in anaesthetics, obstetrics and surgery can access a grant of up to $2,000 per day for up to 10 days each year for CPD activities in their procedural discipline.
Health professionals in Australia are trained according to the accreditation standards for their specific profession which is approved by the profession's National Board.
The Australian Medical Council is responsible for the development of training standards and the assessment of training programs for medical professionals including GPs.
Medical colleges are responsible for maintaining standards for quality clinical practice, education and training, and research in Australia.
The Royal Australian and New Zealand College of Obstetricians and Gynaecologists (RANZCOG) sets standards for specialist training in obstetrics and gynaecology, including LARC training principles and standards for health practitioners.
The Australian College of Rural and Remote Medicine (ACRRM) and the Royal Australian College of General Practitioners (RACGP) set the training curriculum for GP registrars and practice requirements, including for CPD. Both colleges require trainees to achieve competency in contraception advice, with the ACRRM curriculum requiring that trainees should be competent in the insertion of subcutaneous and intra-uterine contraceptive devices (IUCD). RACGP trainees who do advanced training in obstetrics and gynaecology gain competency in LARC insertion.
Recommendation 9
9: The Committee recommends that the Australian Government considers the continuation of funding for the Australian Contraception and Abortion Primary Care Practitioner Support Network (AusCAPPS) to provide ongoing support and professional development for practitioners.
The Australian Government supports this recommendation.
In the 2023-24 MYEFO, $1.1 million was provided to support the continued operation of the AusCAPPS Network to December 2026. This funding will ensure the AusCAPPS Network are able to continue providing essential support and professional development to providers of LARC and medical abortion services.
Recommendation 10
10: The Committee recommends that the Australian Government considers and implements a separate Medicare Benefits Schedule item number for contraceptive counselling and advice for all prescribers, including midwives.
The Australian Government supports in-principle this recommendation.
The Government is committed to ensuring Australians have access to contraceptive counselling and advice. Relevant prescribers have existing MBS items which can be used for contraceptive counselling and advice. To support doctors to provide general practice services to patients, there are a number of service items and payments available under the MBS. These include time-tiered general attendance items, which are designed to allow doctors to use their clinical judgement and to support flexibility and responsiveness in providing patient centred care.
As per recommendation 5, from 1 November 2023 new general attendance items for consultations of 60 minutes or more (known as level E) became available to support improved access and service affordability for patients with complex needs. Medical practitioners can also access higher bulk billing incentives for general attendance items when they bulk bill patients under 16 years of age and Commonwealth Concession Card holders.
Telehealth services by GPs and prescribed medical practitioners specifically for blood borne viruses and sexual and reproductive health transitioned to permanent MBS items on
1 July 2024. These items are exempt from the existing relationship rule to allow patients to access health services relevant to their needs despite location or medical practitioner availability.
Nurse Practitioners can use time tiered general attendance items to discuss the contraceptive needs of their patients. The schedule fee for these items increased by 30 per cent on 1 July 2024. From 1 March 2025, the Government will introduce two new general attendance MBS items for Nurse Practitioners (face-to-face and telehealth) of at least 60 minutes duration. These items will further support service provision for LARCs. EMs can use the existing postnatal MBS items to discuss the contraceptive needs of their patients.
Recommendation 11
11: The Committee recommends that the Australian Government and/or relevant organisations support research into the availability and development of contraceptive options for males.
The Australian Government supports in-principle this recommendation.
The Government is committed to health and medical research and is investing in Australian research and its translation into practice to ensure Australia's entire health system is prepared for current and future challenges. The Government provides direct support for health and medical research through the complementary Medical Research Future Fund (MRFF) and the National Health and Medical Research Council (NHMRC):
Decisions regarding the expenditure of disbursements from the MRFF are guided by the Australian Medical Research and Innovation Strategy 2021-2026 and related set of Australian Medical Research and Innovation Priorities (2024-2026) (Priorities) developed by the independent and expert Australian Medical Research Advisory Board following national consultation in accordance with the Medical Research Future Fund Act 2015 . The Government is required to consider the Priorities that are in force when making decisions on MRFF disbursements.
Between 2000 and 2023 the NHMRC expended $24.9 million towards research relevant to male contraception, including investigating male hormonal and biochemical contraceptive targets, sexual health education and reproductive health policy frameworks.
Since its inception, the MRFF expended $1.5 million towards research relevant to male contraception, including a clinical trial of a next generation condom that has the potential to reduce condom avoidance.
Recommendation 12
12: The Committee recommends that the Australian, state, and territory governments ensure that maternity care services, including birthing services, in non-metropolitan public hospitals are available and accessible for all pregnant women at the time they require them. This is particularly important for women in rural and regional areas.
The Australian Government supports in-principle this recommendation.
The planning and delivery of Australian maternity services is undertaken by states and territories with the Government providing significant funding through the NHRA to assist states and territories with the costs of public hospital and community health services, including maternity services.
The Government supports this recommendation through its contribution to states and territories towards the costs of delivering safe and quality public health services under the NHRA. In return, the states and territories have agreed to the Medicare Principles, under which they have committed to provide all Medicare-eligible persons with the choice to receive public hospital services free-of-charge, on the basis of clinical need and within a clinically appropriate period. The NHRA also requires states and territories to ensure arrangements are in place to allow for equitable access to necessary reproductive health services, regardless of geographical location.
The Woman-centred Care: Strategic directions for Australian maternity services (2019) (Woman-centred Care Strategy) recognises the diversity of funding and delivery arrangements underpinning maternity services in Australia. Of primary importance is that Australian families have access to safe, high quality, respectful maternity care. The Woman-centred Care Strategy is wide-reaching. On 21 April 2023, all Australian Health Ministers agreed the six priority areas for implementation of the Woman-centred Care Strategy. One of these priority areas is improving access to, and understanding the awareness of, maternity models of care to support greater choice for women in maternity care. This also includes midwifery continuity of care and maternity continuity of carer models.
To support implementation of the Woman-centred Care Strategy, Health Ministers tasked the Health Workforce Taskforce to develop a National Maternity Workforce Strategy.
A National Maternity Workforce Strategy is being developed and co-led by Queensland and NSW.
Recommendation 13
13: The Committee recommends that the Australian Government implements outstanding recommendations made by the Participating Midwife Reference Group to the Medicare Benefits Schedule (MBS) Review Taskforce regarding midwifery services and continuity of care.
The Australian Government supports this recommendation.
The MBS Review Taskforce endorsed eight recommendations made by the Participating Midwives Reference Group. Three recommendations have been implemented and the remaining five were funded in the 2024-25 Budget and will be implemented on 1 March 2025. These include:
The Participating Midwife Reference Group also recommended that the need for mandated Collaborative Arrangements be removed. Following a review of the evidence, as recommended by the MBS Review Taskforce, and extensive stakeholder consultation, the Australian Government introduced the Health Legislation Amendment (Removal of Requirement for a Collaborative Arrangement) Bill 2024 to the House of Representatives on 20 March 2024. The Bill removes the legislated requirement for eligible midwives and eligible Nurse Practitioners to be in a specified collaborative arrangement with a medical practitioner, for that eligible midwife or eligible Nurse Practitioners to prescribe certain PBS medications or provide services under Medicare. This change came into effect from 1 November 2024.
Midwives in Australia are educated and highly skilled to deliver specialised sexual, reproductive, maternal, and newborn healthcare including care of women and newborns with complex needs, working collaboratively within a multidisciplinary team. Midwifery continuity of care, with the same known midwife across the childbearing continuum to
6-weeks postnatal, is the gold standard of maternity care and is demonstrated to have the best outcomes for women and their babies. Midwifery continuity of care is known to be of additional benefit for women at higher risk of stillbirth, First Nations women, and women from disadvantaged groups. Midwifery continuity of care improves clinical outcomes for both the woman and her baby, promotes maternal and midwifery workforce satisfaction and is cost effective, especially in rural settings.
Australian Health Ministers developed the Woman-centred Care Strategy to provide national strategic directions to support Australia's high-quality maternity care system and enable improvements in line with contemporary practice, evidence and international developments. The Woman-centred Care Strategy prioritises improving access to, and understanding and awareness of, maternity models of care available to women in their region, to support greater choice in maternity care, including midwifery continuity of care and other maternity continuity of carer models.
Recommendation 14
14: The Committee recommends that the Australian Government works with the sector to increase birthing on country initiatives and other culturally appropriate continuity of care models.
The Australian Government supports this recommendation.
Research has demonstrated that where trialled, Birthing on Country models of care contribute to better health outcomes for First Nations mothers and babies including a 50 per cent reduction in preterm birth rates and a reduction in child removals at birth.
These outcomes directly contribute towards achieving Closing the Gap Outcome and Target 2, that babies are born healthy and strong within a healthy birthweight range.
In guiding the nation's maternity services, the Woman-centred Care Strategy recognises the importance of developing and implementing culturally safe, evidence-based maternity models of care in partnership with Aboriginal and Torres Strait Islander and culturally and linguistically diverse (CALD) women and communities, including but not limited to Birthing on Country models of care. Health Ministers have agreed a priority area of focus for implementation of the Woman-centred Care Strategy is the review and expansion of information available online to ensure information is culturally appropriate.
The Government has invested $169.2 million over four years (2021-22 to 2024-25) under the Commonwealth's Closing the Gap Implementation Plan to support Outcome 2: babies are born healthy and strong and Target 2: by 2031, the proportion of Aboriginal and Torres Strait Islander babies with a healthy birthweight increases to 91 per cent. This investment includes:
The Government announced in the 2024-25 Budget measures to address longstanding gaps in insurance coverage for privately practising midwives providing intrapartum care, including homebirths. This will include coverage of these services provided under Birthing on Country models of care.
In addition, the Government is funding the National Aboriginal Community Controlled Health Organisation (NACCHO) to undertake the development of an Aboriginal and Torres Strait Islander Antenatal to School Ready Health Plan 2024-2034 (due October 2024). This work will guide future investment in culturally safe models of care across the perinatal and early-childhood period.
The National Aboriginal and Torres Strait Islander Health Workforce Strategic Framework and Implementation Plan 2021-31 (Workforce Plan) was co-designed in genuine partnership with the sector and has been endorsed by the Commonwealth, territory and state Health Ministers. The Workforce Plan sets the target that Aboriginal and Torres Strait Islander peoples are fully represented in the health workforce by 2031 and aims to strengthen the cultural safety of the health system more broadly.
Underpinned by the National Agreement on Closing the Gap, the Workforce Plan outlines a number of recommendations and contains comprehensive information on retention barriers and enablers (across all health disciplines) specific to Aboriginal and Torres Strait Islander people in rural and remote areas. The Workforce Plan will directly impact multiple Closing the Gap targets, including Target 2: by 2031, the proportion of Aboriginal and Torres Strait Islander babies with a healthy birthweight increases to 91 per cent.
Recommendation 15
15: The Committee recommends that all public hospitals within Australia be equipped to provide surgical pregnancy terminations, or timely and affordable pathways to other local providers. This will improve equality of access, particularly in rural and regional areas and provide workforce development opportunities.
The Australian Government supports in-principle this recommendation.
State and territory governments are the system managers of their public hospitals systems, responsible for the day-to-day administration and performance of their public hospitals.
This management role includes determining the availability, types, and range of their public hospital services, including reproductive health services and the locations where they can be delivered safely in their jurisdiction.
The Government does not have the power to direct states and territories to provide public hospital services at specific locations. The Government, however, remains committed to contributing to the cost of reproductive health services provided by states and territories in public hospitals
States and territories are also required to have arrangements in place to ensure equitable access to such services, regardless of geographic location.
The Government is committed to improving access to health and hospital services so that all Australians receive appropriate health care when and where they need it, particularly in regional, rural, and remote areas. The Government also supports efforts to increase pathways to timely and affordable surgical pregnancy terminations.
Most reproductive health services are considered public hospital services, and the Government makes a contribution towards the costs of services delivered by states and territories.
The Government is in ongoing discussion with states and territories regarding public hospital activity, demand, and performance. The scope for states and territories to increase the provision of surgical pregnancy terminations in public hospitals, and to better identify pathways to other local providers and support patients to access them where appropriate, was discussed at the Health Ministers' Meeting in November 2023. All state and territory Health Ministers gave in-principle support and committed to working together on the 12 recommendations that cross into their respective jurisdictional responsibilities.
Recommendation 16
16: The Committee recommends that the Australian Government develops an implementation plan for the National Women's Health Strategy 2020-2030 with annual reporting against key measures of success. This could include establishing a taskforce as part of the implementation plan.
The Australian Government supports this recommendation.
The Government has established the National Women's Health Advisory Council to provide strategic advice and recommendations directly to Government to improve health outcomes for Australian women and girls. The Council will also perform the role of a taskforce in providing advice on the implementation of the Women's Health Strategy.
A Monitoring and Reporting Framework for the Women's Health Strategy has been developed and will support implementation of the Strategy. It includes performance indicators to assess and report against key measures of success and implementation of Women's Health Strategy actions. An initial assessment using the Monitoring and Reporting Framework has also been developed to serve as a baseline scorecard to determine the Women's Health Strategy's progress to date. The Monitoring and Reporting Framework and baseline reporting were completed in late-2024 and will inform the Council's advice on implementation of the Strategy.
Recommendation 17
17: The Committee recommends that the Australian Government, in consultation with state and territory governments, implements a national support, information, and referral model for sexual and reproductive healthcare services.
The committee envisages that such a national telephone service would leverage the experiences of existing initiatives, such as 1800 My Options and healthdirect, to ensure that it is fit for purpose, delivers accurate local information, and builds on the experiences of services operating in those jurisdictions.
The Australian Government supports in-principle this recommendation.
There are well-established and known services (such as 1800 My Options or Children by Choice), and there is a risk that a new national model could duplicate these services and create confusion for health consumers.
The Australian Government will work with Healthdirect to improve advice (through web and phone services), and work with the sector to improve service information available through Healthdirect's Service Finder.
The Australian Government will progress a feasibility study with jurisdictions on the concept of a national model, to be considered by Health Ministers in 2025.
Recommendation 18
18: The Committee recommends that the Australian Government reviews the existing Medicare arrangements which support medical termination consultations with the aim of ensuring adequate remuneration for practitioners to deliver these services while also ensuring patient privacy.
The Australian Government supports in-principle this recommendation.
From 1 November 2023, new general attendance items for general practice consultations of 60 minutes or more (to be known as level E) are available to support improved access and service affordability for patients with complex needs.
GP general attendance items can be used to support medical termination consultations. Government policy in relation to GP general attendance items (Level A to D consultations and, from 1 November 2023, Level E consultations) support complex consultative care across the full range of patient presentations, including patients who require support in association with a termination procedure.
As contained in the response to recommendation 5, the Government is supporting GPs to bulk bill their patients by providing a bulk billing incentive for services for patients with a Commonwealth Concession Card and children under 16 years of age, and from
1 November 2023 the bulk billing incentive was tripled for the most common GP consultation items, that is:
Following investment in the 2024-25 Budget, the Medicare GP telehealth item for blood borne viruses and sexual or reproductive health became permanent from 1 July 2024. This helps to ensure adequate remuneration for practitioners, while also providing a vital service—often for rural and regional women who seek privacy if they require a medical termination.
Also from 1 July 2024, MBS rebates for Nurse Practitioners general attendance items increased by 30 per cent as part of the Strengthening Medicare Taskforce reforms.
From 1 November 2024, requesting rights for Nurse Practitioners will be expanded to enable them to request additional ultrasound items to support patients in the before and after care requirements of MS-2 Step [©] .
From 1 March 2025, new general attendance items for Nurse Practitioners consultations of 60 minutes or more (to be known as level E) will be available to support improved access and service affordability for patients with complex needs.
Authorised Nurse Practitioners and Authorised Eligible Midwives with the appropriate qualifications and training are able to prescribe MS-2 Step [©] through the PBS, subject to state and territory prescribing rights.
Recommendation 19
19: The Committee recommends that the Australian Government continues current Medicare Benefits Schedule telehealth items for sexual and reproductive healthcare, including pregnancy support counselling and termination care.
The Australian Government supports in-principle this recommendation.
The Medicare GP telehealth item for blood borne viruses and sexual or reproductive health (BBVSRH) became permanent from 1 July 2024. This continuation will enable accessibility to time-critical treatments including medical termination and specialised medicines including pre-exposure prophylaxis (PrEP) for human immunodeficiency virus (HIV). The availability of these telehealth services will ensure patients' access to approved prescribers and help patients who have privacy concerns about discussing sexual-health matters with their regular GP. Patients can continue to receive telehealth consultations for BBVSRH from any GP or prescribed medical practitioner, if safe and clinically appropriate.
The BBVSRH services complement a range of other GP telehealth services which may also provide information and access to medical termination if appropriate, including non- directive pregnancy support counselling and non-specific general attendances. From
1 July 2024, GP non-directive pregnancy support counselling telehealth services have the requirement for an established clinical relationship that applies to most common telehealth services. This means eligible patients have received at least one face-to-face service from their telehealth practitioner in the 12 months preceding the telehealth attendance, or from another medical practitioner who is located at the same medical practice. Where clinically relevant, BBVSRH items, which are not subject to the established clinical relationship requirement, can be used instead of non-directive pregnancy counselling items. For services relating to antenatal care which cannot be performed under BBVSRH items, GPs may consider specific antenatal items available to them. For perinatal mental health care, the Better Access items may also be a consideration.
These changes implement recommendations from the independent clinician-led MRAC Post Implementation Review of MBS Telehealth. The review considered the range of telehealth services, their efficacy, safety and potential access issues. The MRAC provided interim advice to the Government in late 2023, and a final report in May 2024.
Recommendation 20
20: The Committee recommends that the Therapeutic Goods Administration and MS Health review barriers and emerging evidence to improve access to MS-2 Step, including by:
The Australian Government supports this recommendation.
The TGA has approved an application from the sponsor of MS-2 Step [©] amending restrictions to prescribing and dispensing MS-2 Step[©] . From 1 August 2023, healthcare practitioners with the appropriate qualifications and training, including Nurse Practitioners are able to prescribe MS-2 Step[©] subject to state and territory prescribing rights and pharmacists no longer require certification to dispense. Nurse Practitioners (as of 1 August 2023) and EMs (as of 1 September 2023) are now able to prescribe MS-2 Step[©] through the PBS, subject to state and territory prescribing rights.
State and territory laws regulate the safe storage, prescribing, supply, and use of medicines in their jurisdiction. These jurisdictional laws describe who can lawfully distribute, prescribe, and administer scheduled substances. Legislative amendments to enable Nurse Practitioners and EMs to prescribe MS-2 Step [©] are being considered by jurisdictions. A key action in the Nurse Practitioner Workforce Plan (the Plan) is to review regulations that allow Nurse Practitioner medication prescribing, with the outcome to remove variations and limitations on Nurse Practitioners' ability to prescribe medication. Endorsed by Government, the Plan was released in May 2023 and implementation has commenced.
Further consideration of expansion of the prescribing workforce to include those without prescribing rights, such as Registered Nurses, Aboriginal and Torres Strait Islander Health Practitioners and Workers, should be discussed with the relevant authorities.
The Nursing and Midwifery Board of Australia (NMBA) has responsibility for developing standards, codes and guidelines which together establish the requirements for professional and safe practice by nurses and midwives in Australia. The Australian Nursing and Midwifery Accreditation Council establishes education standards for nursing and midwifery education on behalf of the NMBA.
Recommendation 21
21: The Committee recommends that the Australian Government, in consultation with relevant training providers, reviews the availability, timing, and quality of sexual and reproductive healthcare training in undergraduate and postgraduate tertiary health professional courses, including vasectomy procedures, terminations and insertion of long-acting reversible contraception.
The Australian Government supports in-principle this recommendation.
The Australian Health Practitioners Regulation Agency regulates Australia's registered health practitioners in partnership with 15 National Boards, to ensure the community has access to a safe health workforce across all professions registered under the National Registration and Accreditation Scheme.
These matters will be referred to the National Boards who are responsible for setting the standards required for educational programs for health practitioners. Accreditation standards for undergraduate and postgraduate training programs are regularly reviewed, best practice is a 5 yearly review, for content and relevant updates can be included in this process.
As outlined in recommendation 8, medical colleges are responsible for relevant medical training, and are also responsible for maintaining the standards for quality clinical practice, education and training in Australia.
The Medical Board of Australia sets codes and guidelines to guide medical practitioners as to what is appropriate professional conduct. In addition to this, some states and territories have specific guidelines which may inform clinical judgements.
Governments do not have the levers to direct accreditation authorities. The Independent review of complexity in the National Registration and Accreditation Scheme is currently underway. Its Terms of Reference include whether additional levers should be available to governments to direct accreditation authorities. The final report is expected in April 2025.
It is acknowledged that there are a range of topics that health students could learn to better align with community expectations. It is important that accreditation standards keep step with advances in health care and community expectation of care and conduct by health practitioners.
Recommendation 22
22: The Committee recommends that the Australian Government commissions work to improve its collection, breadth, and publication of statistical data and information regarding sexual and reproductive healthcare, particularly in relation to pregnancy terminations, both medical and surgical, and contraceptive use across Australia.
The Australian Government supports this recommendation.
The Australian Institute of Health and Welfare (AIHW) receives funding for the National Maternity Data Development Project 2023-26 to provide nationally consistent maternal and perinatal data.
In the recent 2024-25 Budget, the Australian Government invested $8 million for data and evaluation activities on miscarriage, early pregnancy loss, and sexual and reproductive health. This includes:
23: The Committee recommends that the Department of Health and Aged Care works closely with its state and territory counterparts to consider the effectiveness of local programs providing free menstrual hygiene products.
The Australian Government supports in-principle this recommendation.
The Government acknowledges that access to menstrual hygiene products is essential to support full participation for women, girls, and gender-diverse people in education, employment and social activities.
Several states and territories are providing or trialling access to free sanitary products, mainly through schools. State and territory education authorities are responsible for managing schools and ensuring appropriate measures are in place so students can learn in safe, healthy, and supportive environments. Some jurisdictions, for example, NSW, Tasmania, and Victoria, are also providing free menstrual hygiene products in public spaces and/or healthcare settings. It should be noted that any evaluation of the jurisdiction programs to determine effectiveness nationally would require consultation with jurisdictions.
Through the 2024-25 Budget, $12.5 million over four years will be provided to the NACCHO to provide free menstrual hygiene products to rural and remote First Nations women and girls. This will enable NACCHO to facilitate community-led, fit for purpose distribution of free menstrual hygiene products that best meets the needs of rural and remote First Nations communities. In many rural and remote communities' menstrual hygiene products are expensive, the cost is often double that of metropolitan items and can be hard to access.
Recommendation 24
24: The committee recommends that the Australian Government work with the relevant medical and professional colleges to support the development and delivery of training to health practitioners providing sexual, reproductive and maternal healthcare on:
The Australian Government supports this recommendation.
Addressing inequities in healthcare, between and within different priority population groups, is a key focus of the Women's Health Strategy and National Men's Health Strategy 2020-2030. To support this the Government has:
There are a number of existing guidelines and training on providing culturally safe care to First Nations people, and migrants and refugees. These include:
The Government is also supporting the further development of training to provide culturally safe care to CALD, migrant and refugee women. This includes funding of $699,000 over three years (2023-24 to 2025-26) to the Multicultural Centre for Women's Health (MCWH) to establish a national Community of Practice and develop and deliver training for health professionals to increase the Australian health workforce's ability to address the health impacts of Female Genital Mutilation/Cutting (FGM/C).
The Government has invested in several programs to support the development and delivery of training to health practitioners providing trauma informed care. This includes:
The Government has invested in several programs to increase the Aboriginal and Torres Strait Islander workforce, and to support the development and delivery of training to health practitioners providing care to Aboriginal and Torres Strait Islander peoples. This includes:
Further, the National Aboriginal and Torres Strait Islander Health Workforce Strategic Framework and Implementation Plan 2021-31 (Workforce Plan) was co-designed in genuine partnership with the sector and has been endorsed by the Commonwealth, territory and state Health Ministers. The Workforce Plan sets the target that Aboriginal and Torres Strait Islander peoples are fully represented in the health workforce by 2031 and aims to strengthen the cultural safety of the health system more broadly.
Recommendation 25
25: The Committee recommends that the Australian Government consider options and incentives to expand the culturally and linguistically diverse (CALD) sexual and reproductive health workforce including leveraging the success of the 'Health in My Language' program.
The Australian Government supports this recommendation.
The Government is committed to expanding representation of Australia's multicultural population in the health workforce including sexual and reproductive health workforce.
Funding of $18.9 million has been provided over four years (2021-22 to 2024-25) for the delivery of the national bicultural health educator program, Health in My Language (HIML). The program provides people from CALD communities, including migrants and refugees, with opportunities to talk with trained professionals about COVID-19 and other health and wellbeing matters. Through funding provided in the 2024-25 Budget, valued at $5.6 million, the program is pivoting to specifically target CALD women on sexual and reproductive health.
An evaluation of the HIML program is being supported by $0.94 million provided in the 2023-24 Budget to review activities undertaken by multicultural communities to support CALD communities throughout the COVID-19 Vaccine rollout. The Review will build an evidence-base to inform a co-designed COVID-19 engagement strategy to activate culturally safe responses to address factors influencing COVID-19 vaccine uptake across CALD communities and to inform future public health responses.
The 2023-24 Budget provided the Federation of Ethnic Communities' Councils of Australia (FECCA) with $2.5 million over four years in seed funding towards the Australian Multicultural Collaborative (the Collaborative), to support the engagement of health consumers from CALD backgrounds in the design and implementation of the Strengthening Medicare reforms.
Additionally, the 2023-24 Budget allocated $20 million over two years to establish a new PHN Multicultural Access Program for PHNs to commission services to support CALD communities to access primary care services. Sexual and reproductive health services, support, navigation, and information is in scope for the funding if it is identified as a need based on local needs assessments.
Recommendation 26 and Recommendation 27
26: The Committee recommends that the Department of Health and Aged Care consider sexual and reproductive healthcare for LGBTIQA+ people in the context of the 10-year National Action Plan for the Health and Wellbeing of LGBTIQA+ people.
27: The Committee recommends that the Australian Government consult with people with innate variations of sex characteristics regarding surgical interventions in the context of the 10-year National Action Plan on the Health and Wellbeing of LGBTIQA+.
The Australian Government supports these recommendations.
Issues related to sexual and reproductive healthcare for LGBTIQA+ people are highlighted in the 10-year National Action Plan for the Health and Wellbeing of LGBTIQA+ People 2025-2035. The LGBTIQA+ Action Plan was guided by the LGBTIQA+ Health and Wellbeing 10 Year National Action Plan Expert Advisory Group (EAG) and co-designed with LGBTIQA+ people with lived experience through extensive consultations. The LGBTIQA+ Action Plan was delivered by Government in December 2024.
The Government will provide initial investment of $15.5 million to commence system-wide improvements to give LGBTIQA+ people access to safe, appropriate and stigma-free health and wellbeing care. To support the implementation of the Action Plan, the Government has made a series of investments, including:
The Government consulted closely with people with innate variations of sex characteristics regarding surgical interventions in the context of the LGBTIQA+ Action Plan. Intersex Human Rights Australia is a member of the EAG guiding development of the LGBTIQA+ Action Plan.
Recommendation 28
28: The Committee recommends that the Australian Government commissions research into reproductive coercion and abuse with a view to developing clinical guidelines, resources and training for primary care providers.
The Australian Government supports this recommendation.
The Government collaborated with state and territory governments to develop the National Principles to Address Coercive Control in Family and Domestic Violence (National Principles). The National Principles establish a shared understanding of coercive control, including reproductive coercion, and outline guiding considerations to inform responses to coercive control. The National Principles were launched in September 2023.
To inform development of the National Principles, the Government engaged the Australian Institute of Family Studies (AIFS) to conduct a literature review on coercive control, which includes research on reproductive coercion. The literature review is available on the AIFS website (www.aifs.gov.au).
The National Principles are supported by a range of resources, including two quick reference guides for healthcare practitioners to promote and create awareness of coercive control within the health section.
Some practice guidelines already exist which address reproductive coercion, notably the recent AIFS Reproductive coercion and abuse Practice Guide. The Government has also funded the revision of the RACGP White Book, which includes information on reproductive coercion and case studies.
Recommendation 29
29: The Committee recommends that the Australian Government works with the sector to develop sexual and reproductive health education programs and resources for people with disability and their families and carers that are accessible, disability inclusive and empowering for young people with disability.
The Australian Government supports in-principle this recommendation.
The Government is committed to ensuring reproductive health services are disability inclusive and empowering for young people with disability.
A priority of the Women's Health Strategy is to increase access to sexual and reproductive health care information, diagnosis, treatment and services, and acknowledges women and girls living with disability and carers as a priority population.
The National Plan to End Violence against Women and Children 2022-2032 recognises that women and girls with disability are at particular risk of forced or coerced sterilisation, forced contraception or limited/no contraceptive choices, menstrual suppression, poorly managed pregnancy and birth, and forced or coerced abortion. The First Action Plan 2023-2027 (Action Plan) provides a roadmap towards achieving the vision of the National Plan.
Responding to recommendation 8.23 of the Disability Royal Commission, the Government has committed to applying a disability lens to implementation of the Action Plan, to support policy, program and service reform and change that responds to the needs of women and girls with disability, and associated communication material and resources that are accessible.
The National Roadmap for Improving the Health of People with Intellectual Disability (the Intellectual Disability Roadmap) (released in August 2021) includes a short-term action for the Commonwealth to work with PHNs, the National Disability Insurance Agency, and other advocacy organisations to better promote mental health and reproductive health services to people with intellectual disability and connect existing services to a National Centre of Excellence in Intellectual Disability Health (the Centre).
The Government is providing $22 million over four years from 2022-23 to 2025-26 for the Centre. The Centre has been established by a consortium of nine organisations, led by the University of NSW. People with intellectual disability are directly involved in the establishment and running of the Centre.
The Centre's core functions include, but are not limited to:
The response to recommendation 24 contains additional information on support for people with disabilities concerning sexual health, respectful relationships and consent training concerning sexual violence.
Recommendation 30 and Recommendation 31
30: The Committee recommends that the Australian Government, in consultation with state and territory governments, consider options for ensuring the provision of reproductive health and pregnancy care services to all people living in Australia, irrespective of their visa status.
31: The Committee recommends that the Australian Government work with relevant overseas health insurance providers to amend Schedule 4d of the Overseas Student Health Cover Deed to abolish pregnancy care related wait periods.
The Australian Government supports in-principle these recommendations.
Eligibility under Medicare is governed by the Health Insurance Act 1973 and is generally restricted to people who are residing in Australia, and are either:
Visitors to Australia are strongly recommended to make their own arrangements for private health insurance, regardless of whether it is a visa condition, to ensure they are fully covered for any unplanned medical and or hospital care they may need while in Australia.
When an individual requires healthcare assistance in Australia and are not covered by an appropriate level of private health insurance cover, as a non-resident and non-citizen of Australia, a person will be considered a private patient and will be required to pay any costs at the time of treatment. This will apply whether a person seeks healthcare treatment in either the public or private healthcare system. For routine medical treatment in Australia, out-of-hospital treatment from a GP is normally the most cost-effective solution.
As outlined in the response to recommendations 12, the planning and delivery of Australian maternity services is predominantly undertaken by states and territories with the Australian Government providing national direction and supporting efforts to improve care and outcomes, which includes developing and implementing culturally safe and responsive, evidence-based maternity care in partnership with CALD women and communities.
There has been consultation with insurers and international student representative organisations in the context of improvements to the next Deed for Overseas Student Health Cover (OSHC), commencing 1 July 2025. The intention is that the next Deed will remove waiting periods for pregnancy, birth, miscarriage, and termination, for OSHC products with a duration of two years or more. This accounts for the majority of OSHC products.
The benefits paid for pregnancy related conditions are generally significant, requiring higher premiums to ensure adequate cover. The level of benefits paid by insurers reflects the fees charged by doctors and hospitals. Insurers have advised pregnancy related conditions are a key driver of hospital treatment benefits expenditure, particularly public hospitals, given this is the usual setting for care provided to international students. It is anticipated the removal of the waiting period will result in premiums which are slightly higher than otherwise.
Recommendation 32 and Recommendation 33
32: The Committee recommends that the Australian Government explores the feasibility of Medicare rebates for in vitro fertilisation (IVF) services for cohorts not currently eligible for subsidised services.
33: The Committee recommends that the Australian Government implement the recommendations of the Medicare Benefits Schedule Review regarding removal of the exclusion of in vitro fertilisation (IVF) services for altruistic surrogacy purposes.
The Australian Government supports in-principle Recommendation 32 and Recommendation 33.
The Government will further consider implementation issues relating to this recommendation, including the scope of any legislative or other changes that may be required. This will also take into account consideration of recent changes to the sector's definition of infertility adopted by the Australian and New Zealand Society for Reproductive Endocrinology and Infertility, RANZCOG and the Fertility Society of Australia and New Zealand. The Government notes this revised definition encompasses a broader consideration of a patients' sexual orientation, reproductive history and circumstances.
Recommendation 34
34: The Committee recommends that the Australian Government work with jurisdictions to improve the quality of sexual health and relationships education in schools including building capabilities of educators to deliver this training.
The Australian Government supports this recommendation.
The Australian Government has committed $83.5 million through its Consent and Respectful Relationships Education initiative, to partner with jurisdictions and non-government school systems to deliver expert-developed, high quality, age-appropriate, evidence-based respectful relationships education, including consent and sexuality education, in states and territories. This includes, for example, the delivery of whole-school approaches and building capability of educators. Funding will be provided to states, territories and the non-government school sector from 2024.
A National Respectful Relationships Education Expert Working Group was established in June 2023 to support the schooling sector to deliver the Consent and Respectful Relationships Education initiative. Membership includes independent experts and representatives from the Australian Government, state and territory governments, and the Catholic and independent education sectors.
Implementation has been informed by a rapid review on how respectful relationships education is being delivered in schools, identifying gaps and opportunities, and the development of a Respectful Relationships Education Framework. These activities were undertaken by the Monash Gender and Family Violence Prevention Centre at Monash University, in consultation with the National Respectful Relationships Education Expert Working Group.
In addition, under the Australian Curriculum, students study Health and Physical Education from Foundation to Year 10 enabling students to develop skills, understanding and willingness to positively influence the health and wellbeing of themselves and their communities. The relationships and sexuality content in the curriculum addresses physical, social and emotional changes that occur over time and the significant role relationships, identities and sexuality play in these changes. The content supports students to develop positive and respectful practices in relation to their reproductive and sexual health and their identities.
The Fourth National Sexually Transmissible Infections (STI) Strategy 2018-2022, endorsed by Australia's Health Ministers, include the recommendation that effective culturally and age- appropriate sex education should be delivered to Australian school students to improve knowledge and awareness of healthy relationships and STI, and reduce risk behaviours associated with the transmission of STI. The Fifth National STI Strategy 2023-2030 was released for public consultation on 22 November 2024.
Recommendation 35
35: The Committee recommends the Department of Health and Aged Care work with jurisdictions and the health sector to implement options for targeted public awareness and sexual health literacy campaigns in target communities, including for the LGBTIQA+ community, community-led initiatives for First Nations and culturally and linguistically diverse groups, and sexually transmitted infections campaigns in vulnerable cohorts.
The Australian Government supports this recommendation.
As outlined in the response to recommendations 26 and 27, the Government has committed to community investment to support LGBTIQA+ health literacy in implementing the LGBTIQA+ Health and Wellbeing Action Plan.
A national STI campaign, titled 'Beforeplay', launched on 14 January 2024 and aims to educate and raise awareness of STI prevention, with a focus on regular testing and promoting safe sex behaviours. The campaign is highly targeted to priority groups, including members of the LGBTIQA+ community, First Nations people, and CALD populations. In addition, media partnerships with LGBTIQA+ and First Nations publishers extend the reach to these audiences. Specialists in multicultural communication adapted and translated campaign materials, while a tailored public relations strategy for First Nations audiences was developed to engage and educate through trusted voices, community engagement and meaningful content. The Department of Health and Aged Care has undertaken a pilot to collaborate and co-design below the line First Nations assets with the Northern Territory and Queensland governments that can be delivered nationally.
In 2023, the Government established the HIV Taskforce to develop recommendations on priority areas of action that would contribute to the elimination of HIV transmission in Australian by 2030.
The HIV Taskforce discussed a range of issues including education, prevention, testing, treatment, workforce, legal issues, stigma and discrimination, and government relations. These findings were incorporated into the HIV Taskforce Report, which was released on 30 November 2023. The report sets out the Taskforce's finding and recommendations, organised into 6 sections addressing prevention, testing, treatment, awareness, decriminalisation and partnership.
In the 2024-25 Budget, the Government provided $43.9 million to support the implementation of a number of recommendations from the HIV Taskforce. These measures address the most pressing actions required to eliminate the transmission of HIV in Australia.
This includes the establishment of a new program to provide subsided PrEP preventive medication for people who are not eligible for Medicare, as well as a range of initiatives aimed at reducing the transmission of HIV in Australia.
The Budget also included a national rollout of HIV testing vending machines and the expansion of the national HIV self-test mail out program to ensure any individual who wishes to test for HIV is able to do so. These programs are working to bring together community and industry, to reduce barriers to HIV testing nationally.
The Government is funding the University of Queensland to implement the 'Young Deadly Free' (YDF) Program which aims to increase awareness of STIs and blood borne viruses (BBVs) in Aboriginal and Torres Strait Islander communities through sexual health literacy.
The 2017 Action Plan: Enhanced Response to Addressing STI/BBV in Indigenous Populations also considered opportunities to improve sexual health education for 13-19 year olds in schools and investigate options for starting sexual health education from age 10. It found sexual health literacy in Australia was mostly decentralised and controlled by individual states, territories and schools in some instances. In response, the Department of Health and Aged Care partnered with Australian Education Services to upload Aboriginal and Torres Strait Islander sexual health material, developed through the YDF Program, on the Student Wellbeing Hub—which is a repository of information for teachers, parents and students on a wide range of curriculum relevant material.
Recommendation 36
36: The Committee recommends that the Australian Government considers commissioning research and policy responses on the impact of reproductive health on women's participation in the workforce and the adequacy of existing leave entitlements under the National Employment Standards.
The Australian Government supports in-principle this recommendation.
The 2024 MRFF Emergency Priorities and Consumer-Driven Research Initiative Infertility, Pregnancy Loss and Menopause Grant Opportunity closed on 6 November 2024, with funding expected to commence from June 2025. Stream four of this Grant Opportunity has a focus on the impacts of perimenopause and menopause research to investigate impacts on workforce engagement and retention, including on paid and unpaid employment.
The Terms of Reference for the Senate inquiry into the issues related to menopause and perimenopause includes 'the level of awareness amongst employers and workers of the symptoms of menopause and perimenopause, and the awareness, availability and usage of workplace supports'.
The Government funds Jean Hailes for Women's Health to undertake an annual study designed to increase understanding of the issues that affect women in Australia, attitudes and behaviours, and the health information and policy changes that will help improve women's health and wellbeing. The 2023 National Women's Health Survey included questions to assess the impact of reproductive health on women's participation in all areas of life, including work, and attitudes to menopause and menstrual leave. Three reports from the National Women's Health Survey have been published, Pelvic Pain in Australian Women ,The impact of symptoms attributed to menopause by Australian women andAustralian women's attitudes to menstrual and menopause leave .
The Government provides core funding to the Australian Longitudinal Study on Women's Health (ALSWH). The population-based survey examines the health and wellbeing of over 57,000 Australian women across 4 cohorts. The study has provided data on the health of Australian women since 1995 and supports evidence-based policy and practice in many areas of women's health. ALSWH data is being used in a research project examining reproductive events and workforce participation across the life course, with outcomes expected in 2026.
The Fair Work Act 2009 National Employment Standards (NES) provide permanent employees with an entitlement to paid personal/carer's leave, which can be taken when an employee is unfit for work because of a personal illness or injury, or caring responsibilities.
The Government acknowledges that reproductive health leave provisions are being adopted in some workplaces in Australia, directly by employers or through enterprise agreements.The Department of Employment and Workplace Relations has captured IVF/reproductive leave, menstrual leave and menopause leave in its database of approved enterprise agreements since 2023. This information will continue to be captured, providing insights into the implementation of reproductive health leave entitlements in Australian workplaces.
The Fair Work Legislation Amendment (Secure Jobs, Better Pay) Act 2022 amended the Fair Work Act to make gender equality an object of the Fair Work Act, a Modern Awards Objective, and a Minimum Wages Objective.
The Secure Jobs, Better Pay reforms also improved access to bargaining through the supported bargaining stream. This will help workers in lower paid and feminised sectors to negotiate better pay and conditions for themselves. This could include negotiating for more generous leave entitlements, including in relation to reproductive health. Supported bargaining may also assist in influencing the prevalence of leave arrangements within these sectors.
Secure Jobs Better Pay reforms also improved access to flexible work arrangements, which may help individuals manage reproductive health issues in their workplaces. The Fair Work Commission can now deal with disputes about eligible employees' requests for a flexible working arrangement, including by arbitration.
Australian Greens Recommendations
Greens 1: That the Australian Government funds the free provision of all approved contraceptive methods.
The Australian Government notes this recommendation.
Refer to the response to recommendation 4.
Greens 2: That the Australian Government work with states and territories to:
Greens 3: That the Australian, state, and territory governments work towards the harmonisation of pregnancy termination legislation across all Australian jurisdictions, based on best practice models of care.
The Australian Government notes these recommendations.
The Government provides funding for pregnancy termination services via:
Fees charged by private providers are not set or controlled by the Government, but MBS rebates may apply.
Access to pregnancy termination services is a state and territory responsibility and the laws relating to pregnancy termination are a matter for individual jurisdictions. Laws relating to pregnancy termination vary between jurisdictions, including the legal conditions under which a termination can be performed and the requirements for patients to access termination services.
The responses to recommendations 15, 18 and 20 provide further information on pregnancy termination in Australia.
Greens 4: That the Government remove legal barriers to accessing IVF and altruistic surrogacy arrangements by:
The Australian Government notes this recommendation. Refer to the response for recommendations 32 and 33.
The Prohibition of Human Cloning for Reproduction Act 2002 , subsection 12(1) states:
A person commits an offence if the person intentionally creates a human embryo by a process of the fertilisation of a human egg by a human sperm outside the body of a woman, unless either both of the following apply:
(a) the person's intention in creating the embryo is to attempt to achieve pregnancy in a particular woman …
Section 12 is intended to address ethical concerns around the creation of a human embryo outside the body of a woman for reasons beyond an attempt to achieve pregnancy in a particular woman. The feasibility of amending this legislation would depend on whether the broader ethical concerns in the creation of an embryo at a time when a particular woman is not identified for the purposes of achieving pregnancy can be managed in an alternative way.
Abbreviations
AusCAPPS = Australian Contraception and Abortion Primary Care Practitioner Support AIFS = Australian Institute of Family Studies
ART = assisted reproductive technology
ARTG = Australian Register of Therapeutic Goods BBV = blood borne viruses
BBVSRH = blood borne viruses and sexual and reproductive health CALD = culturally and linguistically diverse
CPD = continuing professional development EAG = Expert Advisory Group
FATES = Flexible Approach to Training in Expanded Settings FTE = full time equivalent
GP = general practitioner
HIV = human immunodeficiency virus HWT = Health Workforce Taskforce
Intellectual Disability Roadmap = National Roadmap for Improving the Health of People with Intellectual Disability
IRTP = Integrated Rural Training Pipeline IUD = intrauterine device
IVF = in vitro fertilisation
LARC = long-acting reversible contraception
LGBTIQA+ Action Plan = 10 year National Action Plan on the Health and Wellbeing of LGBTIQA+ people 2025-2035
MBS = Medicare Benefits Schedule
MCWH = Multicultural Centre for Women's Health MRAC = MBS Review Advisory Committee
MRFF = Medical Research Future Fund
MS-2 Step [©] = mifepristone and misoprostol MSAC = Medical Services Advisory Committee MYEFO = Mid-Year Economic and Fiscal Outlook
NACCHO = National Aboriginal Community Controlled Health Organisation National Centre = National Centre of Excellence in Intellectual Disability Health
National Principles = National Principles to Address Coercive Control in Family and Domestic Violence
NES = National Employment Standards
NHMRC = National Health and Medical Research Council NHRA = National Health Reform Agreement
NMWS = National Medical Workforce Strategy NP = Nurse Practitioners
NSW = New South Wales
OSHC = Overseas Student Health Cover PBS = Pharmaceutical Benefits Scheme
PBAC = Pharmaceutical Benefits Advisory Committee PHN = Primary Health Network
PReP = Pre-exposure Prophylaxis
RACGP = Royal Australian College of General Practitioners
RANZCOG = Royal Australian and New Zealand College of Obstetrics and Gynaecology
RN—Registered Nurses
RPGP = Rural Procedural Grant Program STP = Specialist Training Program
TGA = Therapeutic Goods Administration
Woman-centred Care Strategy = Woman-centred care: Strategic directions for Australian maternity services
Women's Health Strategy = National Women's Health Strategy 2020-2030 WIP-PS = Workforce Incentive Program—Practice Stream
YDF = Young Deadly Free
That the Senate take note of the document.
Australian Government response to the Senate Community Affairs References Committee report:
Issues related to menopause and perimenopause
FEBRUARY 2025
Overview
On 6 November 2023, the Senate referred an inquiry into the Issues related to menopause and perimenopause to the Senate Community Affairs References Committee (Committee).
The Committee report highlights the challenges women experience in relation to perimenopause and menopause. This included issues related to accessing adequate healthcare and also the challenges experienced within workplaces. The Australian Government would like to thank those that gave their time and expertise to the Committee, particularly the women who shared their lived experience.
Supporting, protecting and promoting the health of all women, girls and gender diverse people is a key priority for the Government. This includes addressing the key risk factors that can reduce the quality of life, and better manage the varied needs of women, as they age. That is why the Government established the National Women's Health Advisory Council (the Council) in 2023, to bring together diverse expertise to examine the unique challenges that women and girls experience in the health system.
The Council provides advice and recommendations directly to Government to improve health outcomes for women and girls in Australia, along with advice on the implementation of the National Women's Health Strategy 2020-2030 (the Strategy). The Strategy outlines a national approach to improving health outcomes for all women and girls. A key action identified in the Strategy is to support women and their healthcare providers to manage the effects of menopause, which includes increasing training for health professionals. The Government recognises the importance of improving the awareness of, and encouraging further research and support services, for women experiencing perimenopause and menopause.
That is why the Government is investing $64.5 million over three years from 2025-26 to increase access to specialist care for women's health with a focus on perimenopause and menopause. This includes:
The Government is also continuing to invest in treatments for menopause through the Pharmaceutical Benefits Scheme (PBS).
This builds on the Government's 2024-25 Budget investment of over $160 million in a tailored women's health package to tackle gender bias in the health system, upskill medical professionals and improve sexual and reproductive care.
The Government continues to support women experiencing perimenopause and menopause through a number a national policies, funding for public hospitals through the National Health Reform Agreement, MBS rebates for relevant health services including consultation and telehealth, subsidies for approved medications through the PBS, and funding for mental health services outside the MBS.
The Government also provides access to health information, investment for clinical care tools, health professional training, and provides funding for research initiatives and data collections relevant to menopause.
The Government's response supports (or supports in principle) 16 out of the 25 recommendations, and notes 9.
A number of recommendations given in-principle support, may relate to matters where further collaboration with stakeholders is required or where there are existing activities underway which go to addressing the intent of the recommendation.
The Government acknowledges other women-related policies, such as Working for Women: A Strategy for Gender Equality and the Senate inquiry into universal access to reproductive healthcare also reflect the Government's commitment to improve outcomes for women.
Recommendation 1
1: The Committee recommends that the Department of Health and Aged Care commission research to establish a comprehensive evidence base about the impacts of menopause and perimenopause on women in Australia, including:
The research should also establish an understanding of experiences for:
The Australian Government supports this recommendation.
The Government recognises the importance of increasing the evidence base in women's health including the experiences of women from priority populations.
The Government provides direct support for health and medical research though the National Health and Medical Research Council (NHMRC), which focuses on supporting investigator-led research.
Between 2010 and 2023 the NHMRC expended $23.5 million towards research relevant to menopause and perimenopause.
To further support research development, up to $25 million of funding over four years from 2024-25 has been made available for the 2024 Medical Research Future Fund (MRFF) Emerging Priorities and Consumer Driven Research (EPCDR) Infertility, Pregnancy Loss and Menopause Grant Opportunity which includes a focus on perimenopause and menopause research. The Grant Opportunity closed on 6 November 2024. Application outcomes are expected by May 2025, with research projects anticipated to be undertaken from 2025 to 2029.
Through the Grant Opportunity, two streams have a focus on perimenopause and menopause research and applications were invited for a large-scale multidisciplinary project, co-designed with consumers, to identify and evaluate the impacts of perimenopause and menopause on health and wellbeing, that will:
The Government is also investing $5.5 million over three years from 2024-25 for the Australian Institute of Health and Welfare (AIHW) to establish a sexual and reproductive health data set to help inform sexual and reproductive health policy and improve healthcare access outcomes.
Perimenopause and menopause will be a key priority area in this work program, which will include an extensive consultation process to identify the information needs and data gaps (including those identified in the Senate Inquiry report), scope options for improved data collection and commence data development and collection where applicable. This work will contribute to the evidence base on perimenopause and menopause in Australia, including for populations groups such as women from CALD communities, First Nations women, women living with a disability and LGBTQIA+ individuals.
Recommendation 2
2: The Committee recommends that the Australian Government launch a national menopause and perimenopause awareness campaign, providing information and resources for women and communities across Australia. This awareness campaign should be designed in consultation with experts and people with lived experience.
The Australian Government supports this recommendation.
Recognising the low level of awareness and understanding of menopause in the general community, and even at times, the medical community, the Government will invest $12.8 million over two years from 2025-26 to undertake a public health campaign to help raise awareness of perimenopause and menopause symptoms and management options. The campaign will aim to increase understanding of the impact perimenopause and menopause can have on the physical, mental and emotional wellbeing of women, seek to address misinformation, and support women to adopt preventive actions. The campaign will also target health practitioners to increase their understanding of the impacts of this life stage and promote resources for the treatment of menopause symptoms.
The Government continues to support the provision of factual, evidence-based and trusted health information. There are several existing sources of government-funded information on women's health, including through key life stages such as perimenopause and menopause, such as:
Recommendation 3
3: The Committee recommends that, in the next review of the Australian Curriculum, the Australian Curriculum, Assessment and Reporting Authority (ACARA) consider how menopause can be expressly referenced in the menstrual health and reproductive cycles content within the Health and Physical Education learning area.
The Australian Government notes this recommendation.
The Australian Curriculum, Version 9.0 was signed off by Education Ministers on 1 April 2022.
The Australian Curriculum addresses reproductive and sexual health as part of the Health and Physical Education (HPE) curriculum in an age-appropriate way across the years of schooling from Foundation to Year 10.
In HPE, students learn about the different changes and transitions they may experience including physical, social and emotional changes associated with puberty.
Whilst the terms 'menstruation', 'period' and 'menopause' are not mentioned explicitly in the HPE curriculum, it is expected that menstruation and period would form part of the learning about the changes associated with puberty. Menopause may be addressed depending on the needs and interests of the local school context.
Education is a shared responsibility between the Government and state and territory governments. State and territory governments and the non-government school sector have responsibility for the implementation of the curriculum within their schools, including in the choice of resources to support teachers to implement the curriculum.
Recommendation 4
4: The Committee recommends that the Australian Government commission research to undertake a comprehensive study to assess the economic impacts of menopause which clearly delineates the impact of symptoms of menopause on women's workforce participation, income, superannuation, and age of retirement.
The Australian Government supports in-principle this recommendation.
The 2024 MRFF EPCDR Infertility, Pregnancy Loss and Menopause Grant Opportunity (stream four, refer recommendation 1 response) has a focus on perimenopause and menopause research to investigate impacts on workforce engagement and retention, including on paid and unpaid employment. The Grant Opportunity closed on 6 November 2024, with funding expected to commence from June 2025.
The Government provides core funding to the Australian Longitudinal Study on Women's Health (ALSWH). The population-based survey examines the health and wellbeing of over 57,000 Australian women across 4 cohorts. The study has provided data on the health of Australian women since 1995 and supports evidence-based policy and practice in many areas of women's health. ALSWH has commenced collecting data on the potential impact of menopause on workforce participation.
Recommendation 5
5: The Committee recommends that the Australian Government introduce reforms to allow the Workplace Gender Equality Agency (WGEA) to re-commence data collection on the supports employers are providing, and their usage, for employees experiencing menopause and perimenopause, including specific workplace policies.
The Australian Government supports in-principle this recommendation.
The Government is considering options to enable WGEA to collect data on the supports employers are providing for employees experiencing menopause and perimenopause, including specific workplace policies. This may require amendments to WGEA's legislative framework. The Government recognises the need to understand the nature of existing workplace supports and their impact on gender equality and the role WGEA could play in collecting this data as recommended by the Senate Inquiry.
Recommendation 6
6: The Committee recommends that the Australian Government consider amendments to Section 65 of the Fair Work Act 2009, to ensure women can access flexible working arrangements during menopause.
The Australian Government notes this recommendation.
The Government is committed to gender equality and has implemented a number of reforms to help more employees access flexible working arrangements including through the Fair Work Amendment (Secure Jobs, Better Pay) Act 2022 . An independent statutory review of the Secure Jobs, Better Pay Act has commenced. It will consider whether changes to the right to request flexible working arrangements are operating appropriately and effectively and whether there are any unintended consequences of the reforms. Any further changes to flexible work arrangements should be considered in light of the outcomes of this review.
Flexibility entitlements within the Fair Work Act 2009
The National Employment Standards (NES) in the Fair Work Act 2009 include a right to request flexible working arrangements for eligible employees. The Secure Jobs, Better Pay reforms, strengthened the right including by:
Employees who are 55 or older and meet eligibility criteria have the right to request flexible working arrangements.
The Government is also committed to protecting and facilitating workers' access to their entitlements. Recent legislative reform to the Fair Work Act as part of the Fair Work Legislation Amendment (Closing Loopholes No.2) Act 2024 included measures to change the defence to sham contracting and restore a fair, objective definition of employment and casual work which seeks to ensure fewer workers miss out on entitlements, including their right to request flexible working arrangements, due to misclassification.
Other mechanisms for accessing flexible working arrangements
The Government recognises many employees experiencing menopause will be under the age of 55 and may not meet any of the other circumstances to have a right to request flexible working arrangements under the NES. Employees without a right to request flexible working arrangements under the NES may be able to access flexible work in other ways.
In May 2023, employees whose wages are set by modern awards or registered agreements made up 57.2%of Australian employees. These employees can access flexible work through Individual Flexibility Arrangements which enable an employee and employer to agree to vary the effect of the award or agreement to meet the genuine needs of the employee and employer.
Employees may also be able to access flexible working arrangements through workplace policies, conversations with their managers or by bargaining for access to better entitlements.
The Government has improved access to bargaining through the supported bargaining stream which will help workers in lower paid and feminised sectors to negotiate better pay and conditions for themselves.
The Fair Work Commission is currently considering including a working from home term in the Clerks—Private Sector Award 2020 which set the pay for 91,506 employees (80.8%of whom are female) in May 2021. The Fair Work Commission has indicated that this may serve as a model term for other awards.
Recommendation 7
7: The Committee encourages Australian workplaces develop perimenopause and menopause workplace policies in consultation with their employees.
The Australian Government notes this recommendation recognising it is directed towards all Australian workplaces.
As a model employer, the Government supports Australian Public Service (APS) agencies to establish policies that will progress gender equality and contribute to positive economic and work outcomes for Australian women. The Australian Public Service Commission will support APS agencies to develop workplace policies on perimenopause and menopause.
Currently, APS agencies can leverage existing entitlements to support employees experiencing symptoms associated with perimenopause and menopause. This includes the forward leaning ability to request flexible working arrangements and accrual of at least 18 days paid personal leave per year for full-time employees.
Recommendation 8
8: The Committee recommends that the Australian Government task the Department of Employment and Workplace Relations to undertake further research on the impact and effectiveness of sexual and reproductive health leave where it has been implemented in Australia and overseas, while giving consideration to introducing paid gender-inclusive reproductive leave in the National Employment Standards (NES) and modern awards.
The Australian Government notes this recommendation.
The Department of Employment and Workplace Relations monitors and considers developments related to sexual and reproductive health leave using publicly available information. This includes high-level monitoring of domestic and international examples of reproductive health leave.
The Department of Employment and Workplace Relations is aware some countries have legislated menstrual leave and some are considering reproductive leave. The Department of Employment and Workplace Relations will continue to monitor these at a high-level but notes evidence of effectiveness may be limited or inaccessible. The relevancy of international examples may also be low given many countries have very different workplace relations contexts. For example, Spain has implemented menstrual leave however it is social security based not employer funded like
Australian personal/carer's leave entitlements.
The Fair Work Act 2009 NES provide permanent employees with an entitlement to paid personal/carer's leave, which can be taken when an employee is unfit for work because of a personal illness or injury, or caring responsibilities.
The Government acknowledges that reproductive health leave provisions are being adopted in some workplaces in Australia, directly by employers or through enterprise agreements. The Department of Employment and Workplace Relations has captured IVF/reproductive leave, menstrual leave and menopause leave in its database of approved enterprise agreements since 2023. This information will continue to be captured, providing insights into the implementation of reproductive health leave entitlements in Australian workplaces.
The Government notes the Fair Work Commission, Australia's independent industrial relations tribunal, is responsible for setting award wages and conditions for national system employees. While the Government does not have standing to apply to vary modern awards, employees and employers covered by an award, or organisations entitled to represent their industrial interests, can apply to the Fair Work Commission at any time to vary award wages and conditions.
Recommendation 9
9: The Committee recommends that the Australian Government encourage the Australian Medical Council to consider explicitly including menopause and perimenopause in the Graduate Outcome Statements of the Standards for Assessment and Accreditation of Primary Medical Programs. The committee further recommends that menopause and perimenopause be included in graduate outcomes for other health professionals, including nurses and physiotherapists.
The Australian Government supports in-principle this recommendation.
Changes to the Australian Medical Council (AMC) accreditation standards including graduate outcomes will require a consultation process (including public consultation). This is a requirement under the Health Practitioner Regulation National Law Act 2009 as in force in each state and territory. This recommendation links with recommendation 10.
The Department of Health and Aged Care has raised with the AMC opportunities to further strengthen accreditation processes to improve medical practitioner, knowledge and skills on menopause/perimenopause and broader women's health issues. The department has recently written to the AMC requesting formal consultation on improvements to Accreditation standards to include references to menopause and perimenopause.
Recommendation 10
10: The Committee recommends that the Australian Medical Council work with Medical Deans Australia and New Zealand to ensure that menopause and perimenopause modules are included in all medical university curriculums.
The Australian Government supports-in-principle this recommendation.
In its formal request to the Australian Medical Council (AMC), the Government will encourage the AMC to work with the Medical Deans Australia and New Zealand to prioritise health practitioner knowledge and skills in menopause within upcoming accreditation reviews of medical programs of study, undertaken by AMC.
The Medical Deans Australia and New Zealand attended a roundtable on health care to support diverse communities in June 2024, where they discussed strategies to address bias within the health system for women and diverse population groups, including through education curricula.
As part of its 2024-25 workplan, the National Women's Health Advisory Council have agreed to an activity to support an audit of health and medical education curricula to ensure the inclusion of sex and gender awareness, to help address bias in the health system for women and diverse population groups. This could include ensuring that topics specific to women and gender diverse people, like menopause and perimenopause, are included in all medical university curriculums.
This recommendation links with recommendation 9.
Recommendation 11
11: The Committee recommends that all governments and the medical colleges work together to require and facilitate further education on menopause and perimenopause for physicians practising in the public health system across Australia.
The Australian Government supports-in-principle this recommendation.
Medical colleges are independent membership-based organisations. Governments do not have authority to direct medical colleges. The Independent review of complexity in the National Registration and Accreditation Scheme is currently under way. Its Terms of Reference includes whether additional levers should be available to governments to direct accreditation authorities. The final report is expected in April 2025. This recommendation links with recommendation 9.
The Government is also investing $2.9 million over three years from 2025-26 to develop national clinical guidelines for perimenopause and menopause. National clinical guidelines will ensure information for clinicians is nationally consistent, evidence based and readily available to support consistent care for women experiencing perimenopause and menopause.
Recommendation 12
12: The Committee recommends that the Australian Government considers increasing funding and expand the recipient base for the delivery of incentivised continuing professional development to medical practitioners on perimenopause and menopause.
The Australian Government supports this recommendation.
Medical practitioners are responsible for choosing continuing professional development that aligns with their patient and community needs.
The 2024-25 Budget included investment of approximately $1.2 million over two years from 2024-25 to support training for up to 11,000 health professionals to better treat, care and manage women's health during menopause and perimenopause. The measure aims to support placements for health professionals on a Continuing Professional Development (CPD) course on managing menopause, offered by Jean Hailes for Women's Health.
An additional investment of $1.5 million over three years from 2025-26 has been provided for targeted promotion and incentive opportunities to encourage more health professionals to undertake CPD training to prioritise menopause specific professional development.
Recommendation 13
13: The Committee recommends that the Australian Government consider how to expand the scope of practice of nurse practitioners to ensure better support for women experiencing menopause in rural and regional areas.
The Australian Government supports this recommendation.
Nurse practitioners support women with menopause and perimenopause, across all settings, including rural and remote. The Government recognises barriers exist which prevent nurse practitioners providing complete care and health services to women. Accordingly, it has implemented the following measures to increase access to nurse practitioner care:
Initial and subsequent consultations with women experiencing perimenopause and menopause symptoms are often complex and require longer appointments for comprehensive consultation, assessment, planning of care, and any interventions that may be required. Women in rural and remote areas often travel long distances for appointments. From 1 March 2025, the Government will introduce two new general attendance MBS items for nurse practitioners (face-to-face and telehealth) of at least 60 minutes duration. These measures will support the time needed for women seeking support for perimenopause and menopause to engage meaningfully with a nurse practitioner and time for a nurse practitioner to provide comprehensive, high-quality care for women.
In addition, the independent Unleashing the Potential of our Health Workforce (Scope of Practice) Review was released on 5 November 2024. This review made recommendations to all Health Ministers regarding enabling health professionals, including nurse practitioners, to work to their full scope of practice. The Government will carefully consider the findings and recommendations of this review alongside other recently-released primary care and workforce reviews.
Recommendation 14 and Recommendation 15
14: The Committee recommends that the Department of Health and Aged Care, through the Medicare Benefits Schedule (MBS) Continuous Review, review existing MBS item numbers relevant for menopause and perimenopause consultations, including for longer consultations and mid-life health checks, to assess whether these items are adequate to meet the needs of women experiencing menopause.
15: The Committee recommends that the Australian Government consider whether a new MBS item number or the expansion of criteria for the mid-life health check, is needed to support greater access to primary care consultations for women during the menopause transition.
The Australian Government supports these recommendations.
The Government will establish a new MBS health assessment service for women experiencing menopause or perimenopause. The Government has committed funding of $26 million over two years, commencing from 2025-26, to introduce temporary items for this assessment service.
Ongoing arrangements for the item will be informed by outcomes from the review of MBS health assessment services within primary care, expected in 2025.
All MBS health assessment items, including the 45-49-year-old health assessment (referred to by some as the mid-life health check), are currently being reviewed with a view to ensuring they align with current evidence and support contemporary clinical practice. As part of this, a systematic literature review of the evidence base supporting health assessments and a detailed analysis of MBS data have been undertaken. A public consultation period on the items and potential changes closed on 30 September 2024.
The key MBS items for the management of all health conditions in primary care, including menopause are currently under review through the MBS Continuous Review process.
The MBS Review Advisory Committee (MRAC) commenced a review of time-tiered items for primary care in August 2024. The review will consider issues such as item consistency, opportunities to streamline, and whether the current time-tiers appropriately support contemporary clinical practice. The review is anticipated to be finalised and provided to Government at the end of 2025.
As part of the MBS Continuous Review, the Government has also committed to undertake an evidence review on bone densitometry testing for women experiencing menopause. This review will complement other review processes and will ensure existing MBS items are adequate to meet the needs of women experiencing or transitioning to menopause.
Recommendations are expected to be provided to Government in early 2025. Any recommendations will need to improve the framework in relation to alignment with current evidence and supporting contemporary clinical practice.
Recommendation 16
16: The Committee recommends that the Department of Health and Aged Care, including the Therapeutic Goods Administration, consider action to address the shortages of menopause hormonal therapy (MHT) in the Australian market and consider options to secure sufficient supply, including a review of the supply chains and pricing trends of MHT, with a view to enabling universal affordable access to treatment and care.
The Australian Government notes this recommendation.
Medicine shortages
The Therapeutic Goods Administration (TGA) recognises the importance of Menopausal Hormone Therapy (MHT) and Hormone Replacement Therapy (HRT) medicines and the need to have reliable access. Shortages of these medicines have a significant impact on the health and wellbeing of many women in Australia.
Mandatory reporting of medicine shortages commenced in January 2019, with pharmaceutical companies required to report to the TGA any current or anticipated supply disruptions for all prescription medicines and certain over the counter (OTC) medicines. The TGA publishes shortage information on the medicine shortage reports database and works collaboratively with medicine sponsors, wholesalers and health professionals to determine whether additional actions are needed to mitigate supply impacts.
The TGA proactively manages medicine shortages to reduce the impact on patients wherever possible. Depending on the cause of the shortage, the TGA can take the following management actions:
The TGA has been notified of shortages for numerous HRT patches, including all strengths of Estradot, Estraderm MX and Estalis products, as well as the discontinuation of Climara patches.
The ongoing shortages of HRT patches is a global issue and is driven by various factors, including manufacturing issues and unexpected increases in demand. The discontinuation of the Climara brand of patches put additional strain on supply.
To support ongoing access for patients, the TGA has provided temporary approval for the supply of multiple HRT medicines from overseas under section 19A of the Act.
From 1 June 2024, the Estradiol (Sandoz, USA) brand of HRT patches (several strengths) is also listed on the PBS to provide subsidised access to this alternative product.
The Department of Health and Aged Care has also issued a Notice under the Community Service Obligation (CSO) Deed, enabling CSO Distributors (CSODs) to constrain available supplies and facilitate equitable distribution of PBS-listed estradiol transdermal patches. This notice allows individual CSODs to utilise their expertise in relation to the supply of medicines, to independently determine the practices they can adopt to support equitable supply of these patches and prevent stockpiling.
Up-to-date supply details, comprehensive background information, and advice about the HRT patch shortages is available on a dedicated 'HRT shortage' webpage on the TGA website.
There are currently no reported shortages of alternative HRT presentations such as tablets, topical creams or pessaries.
Medicine sponsors are private businesses and make their own decisions regarding if and how to market a product in Australia. The TGA cannot compel them to register, market, manufacture or continue supply of a medicine in Australia. However, the TGA does work with these companies to try to minimise the effects of medicine shortages on patients.
The department continues to consider ways to better anticipate, manage and communicate medicine shortages and discontinuations. Following a 2021 consultation on proposals to help ensure reliable supply of important medicines, the TGA initiated mechanisms to prioritise evaluation of applications for registration of medicines vulnerable to shortage. In 2024, the TGA extensively consulted to better understand challenges and barriers experienced by consumers, health professionals and industry relating to medicine shortages and discontinuations. This feedback is being used to develop a work-plan for potential future reform.
Medicine shortages occur for many reasons and, unfortunately an uninterrupted supply chain can never be guaranteed. Medicine sponsors generally maintain continuity of medicine supply through demand forecasting, stock control, and back-up supply routes. However, situations may arise where a disruption to the supply of a medicine cannot be avoided. The Government administers several policies to ensure pharmaceutical companies supply PBS-subsidised medicines where possible.
For newly listed products on the PBS, pharmaceutical companies are required to provide an assurance of supply, undertaking that sufficient stock of the product to meet demand will be available in time for the first PBS listing day. In addition, Guarantee of Supply requirements outlined in Division C, Part VII of the National Health Act 1953 apply to newly listed brands that are bioequivalent or biosimilar to an existing listed brand and where a pharmaceutical company offers a lower price. The Guarantee of Supply period ends after 24 months or until another brand assumes the obligation.
In the event of a serious shortage, the TGA may also publish a Serious Scarcity Substitution Instrument (SSSI) which allows community pharmacists to substitute specific medicines without prior approval from the prescriber. The Government has implemented changes that allow PBS subsidy in circumstances where the TGA has issued a SSSI. A list of scarce medicines that may be substituted with specific medicines under the PBS is available on the PBS website at: www.pbs.gov.au/info/browse/medicine-shortages.
Where an overseas marketed medicine has been approved under Section 19A of the Act for import or supply in Australia, these medicines (s19A products) may be subsidised on the PBS via one of the following methods:
1. Eligible for existing subsidy: the s19A product may be automatically listed on the PBS, if the drug, form, brand and manner of administration, as well as the cost are all the same as the PBS-listed product in shortage. The responsible person of the PBS-listed product and the s19A product must also be the same.
2. Recommended listing: where the supplier of the s19A product and the PBS-listed product are not the same, or the form, brand and/or manner of administration differ the supplier of the s19A product must make an application to list the item on the PBS. The Pharmaceutical Benefits Advisory Committee (PBAC) advises the Government on whether the s19A medicine should be subsidised through the PBS and under what conditions. The PBAC, an independent expert advisory body, advises the Government about whether the section 19A medicine should be subsidised through the PBS and under what conditions.
Where the TGA has provided temporary approval for supply of an alternative brand of a medicine under s19A, the Government works with the sponsor to expedite subsidisation of that brand through the PBS. However, ultimately it is a decision made by the sponsor to list their s19A product. A sponsor cannot be compelled by the Government to list a medicine on the PBS.
A list of current s19A products that are PBS listed is available on the PBS website at: www.pbs.gov.au/info/browse/section-19A.
To date, there are three strengths of s19A estradiol patches [brand Estradiol Transdermal System (Sandoz, USA)] temporarily listed on the PBS since 1 June 2024 to mitigate the shortages of estradiol patches. The Department of Health and Aged Care is working with s19A suppliers to list additional s19A estradiol patches on the PBS.
Recommendation 17
17: The Committee recommends the Therapeutic Goods Administration continue to monitor the advertising of alternative medicines and treatments in Australia and take action as appropriate. The committee further recommends the Department of Health and Aged Care consider reviewing the labelling of TGA approved medicines.
The Australian Government supports the recommendation for the TGA to continue to monitor advertising alternative medicines and treatments in Australia as appropriate.
Detection and deterrence of the unlawful import, advertising and supply of medicines and medical devices advertised as traditional or alternative treatments remains a TGA compliance priority in the 2024-25 financial year.
The TGA will continue to monitor for potential unlawful advertising of therapeutic goods, including alternative medicine and treatment products, in line with our regulatory compliance framework.
A range of monitoring strategies are used to support the TGA's compliance programs, which are both proactive and responsive. This is important, given that areas of non-compliance are not limited to current compliance priorities.
The TGA will also continue to work with online platforms, including social media platforms, to deter and disrupt potential unlawful advertising via proactive engagement and monitoring of online activity.
The Australian Government notes the recommendation for the Department of Health and Aged Care to consider reviewing the labelling of TGA approved medicines.
The TGA will continue to monitor and review the labelling of TGA-approved medicines in Australia and take action as appropriate. There are legislative requirements governing the information that must be included on the labelling of therapeutic goods. Changes to these requirements would require further consideration and public consultation.
Recommendation 18
18: The Committee recommends that the Australian Government examine options to implement a means of ensuring that MHT items are affordable and accessible, including consideration of domestic manufacturing and alternate means of subsidising costs to the consumer. Such examination should include, but not be limited to, considering ways to encourage pharmaceutical sponsors to list a broader range of MHT items, such as body identical hormone therapy products, on the Pharmaceutical Benefits Scheme to ensure appr opriate access and lowered costs for all women who need it.
The Australian Government notes this recommendation.
The Government understands that there are legitimate concerns from clinicians and consumers about subsidised access to Menopausal Hormonal Therapy (MHT). The Government supports MHT being affordable and accessible for all who need them. The PBS is the main mechanism through which the Government subsidises medicines, including MHT.
Under legislation, the Government cannot list a medicine on the PBS unless the Pharmaceutical Benefits Advisory Committee (PBAC) makes a recommendation in favour of listing. The PBAC is an independent and expert body, comprising doctors, health professionals, health economists and consumer representatives.
To address barriers to accessing MHT, the Minister for Health and Aged Care referred the matter to the PBAC for review.
When considering a medicine proposed for PBS listing, the PBAC is legally required to take into account the comparative effectiveness and cost-effectiveness of the medicine compared to other available therapies.
The PBAC's consideration is generally initiated by the pharmaceutical company responsible for a medicine, applying for the medicine to be considered for PBS listing. Although nothing prevents other stakeholders from lodging PBAC submissions, the responsible pharmaceutical company usually holds the scientific data and other information necessary to inform the PBAC's consideration.
Pharmaceutical companies are private businesses that make their own decisions about whether to apply for subsidy through the PBS. The Government cannot compel pharmaceutical companies to seek PBS subsidies for their medicines.
At its November 2024 meeting, the PBAC recommended PBS listing of estradiol gel (Estrogel®), the micronized progesterone product Prometrium®, and Estrogel Pro, a combination product containing Estrogel and Prometrium . The outcomes from the November 2024 PBAC meeting are available on the PBS website.
Alternate means of subsidy outside the PBS would risk undermining health technology assessment processes that ensure value-for-money for taxpayers. The Government will continue to consider how policies can encourage the appropriate availability of subsidised MHT.
Recommendation 19
19: The Committee recommends that the Pharmaceutical Benefits Advisory Committee (PBAC) reforms comparator selection during evaluation of new MHT items to include quality of life health impacts. The committee also recommends that the PBAC regards body identical hormone therapy products in a separate drug class to remove the lowest cost comparator to synthetic therapies.
The Australian Government notes this recommendation.
Measures of quality of life are routinely considered by the PBAC in its assessment of the clinical effectiveness and cost effectiveness of a new medicine compared to alternative therapies, as required under the National Health Act 1953 . The PBAC considers the information that is provided in submissions, including information on quality-of-life impacts. Comments from consumers and other stakeholders about a medicine are also provided to the PBAC for consideration. The PBAC is committed to understanding consumer perspectives and integrating them into its consideration of medicines.
The PBAC guidelines provide guidance to applicants regarding choice of appropriate comparators. The National Health Act 1953 requires that for the PBAC to recommend PBS listing of medicine that is more costly than alternatives, it must be satisfied that the new medicine delivers better health outcomes than these alternatives.
The Government recognises the importance of ensuring that Health Technology Assessment (HTA) policies and methods are continually evaluated and updated so that they remain fit for purpose, keep pace with rapid advances in health technology, maintain the sustainability of the PBS, and minimise barriers to access. The HTA Policy and Methods Review (HTA Review) was completed on 4 May 2024, and the final report published in September 2024. The HTA Review makes 50 recommendations for reform to the Australia's health technology assessment and funding arrangements. An Implementation Advisory Group chaired by the former Chair of the PBAC, Professor Andrew Wilson, will guide the reform process.
Recommendation 20
20: The Committee recommends the Australasian Menopause Society regularly review and update their guidance for medical practitioners around best practices in the treatment and management of mental health symptoms.
Response:
The Australian Government notes this recommendation, recognising it is directed towards the Australasian Menopause Society.
Recommendation 21
21: The Committee recommends that the Australian Government work with state and territory governments to implement or leverage existing women's health facilities with multidisciplinary care, including in the public health system, to better support women during the menopause transition across Australia.
The Australian Government supports this recommendation.
The National Health Reform Agreement (NHRA) recognises state governments are the system managers of their public hospital systems, responsible for system-wide public hospital service planning and performance, and for determining arrangements for the delivery of public hospital services within their jurisdiction. The NHRA does not provide the Government with a role or powers to intervene in state government decisions regarding the organisation and delivery of their health and hospital systems.
From 2025-26, the Government will invest $19.6 million over three years to expand the number of Endometriosis and Pelvic Pain Clinics (EPPCs) across Australia and continue service delivery for the existing EPPCs. Funding will also enable expanded scope of services to include perimenopause and menopause. The EPPCs deliver improved access to a range of support mechanisms, education, and assessment from a multidisciplinary team. Evidence received from several existing EPPCs highlights an increased confidence in providers to successfully establish and deliver comprehensive and holistic services for women in the community. This will bring the total number of clinics to 33—amounting to one in each Primary Health Network (PHN) across the country.
Funding for the additional EPPCs will be implemented through PHNs with priority given to setting up clinics in locations with greatest need that have been identified through consultation with PHNs and Aboriginal Community Controlled Health Organisations (ACCHOs).
The Government has also committed $79.4 million over four years (2023-24—2026-27) for PHNs to commission multidisciplinary team care, as part of the Strengthening Medicare reforms. All PHNs were eligible to receive this funding to commission allied health professionals, nurses, nurse practitioners, midwives, and/or Aboriginal and Torres Strait Islander Health Workers or Practitioners. Multidisciplinary care will fill an identified need in each PHN region. Each PHN will determine the priority for commissioning based on their health needs assessments.
Recommendation 22
22: The Committee recommends that organisations tasked with improving menopause care utilise learnings from international best practice.
The Australian Government notes this recommendation, recognising that it is directed towards organisations tasked with improving menopause care.
To support best practice and to improve menopause care, the Government is investing $2.9 million over three years from 2025-26 to develop national clinical guidelines for perimenopause and menopause. National clinical guidelines will ensure information for clinicians is nationally consistent, evidence based and readily available to support consistent care for women experiencing perimenopause and menopause.
Recommendation 23
23: The Committee recommends that the Australian Government investigate improvements to the collection and use of data to assist with research into the experience of menopause and perimenopause, and surveillance of the outcomes of the use of MHT.
The Australian Government supports this recommendation.
The Department of Health and Aged Care Data Strategy 2022-25 outlines the Department of Health and Aged Care's commitment to ongoing data quality improvement and data integration activities for evidence-based policy and programs.
The Commonwealth safely and securely shares health data for public benefit. For example, MBS and PBS data are integrated in the National Health Data Hub (managed by the Australian Institute of Health and Welfare (AIHW)) and the Person-Level Integrated Data Asset (PLIDA, managed by the Australian Bureau of Statistics). These types of data linkages enable approved government and non-government researchers to analyse patient journeys and to derive whole-of-life insights about various population groups in Australia, such as the interactions between their characteristics, use of services like healthcare and education, and outcomes like improved health and employment.
Linked data regarding Menopause Hormonal Therapy (MHT), for example specific PBS and/or MBS items (if applicable), could support population-level insights regarding MHT use, trends and health outcomes.
In the 2024-25 Budget the Government provided $5.5 million over three years from 2024-25 for the AIHW to establish a sexual and reproductive health data set to help inform sexual and reproductive health policy and improve healthcare access outcomes. Perimenopause and menopause will be a key priority area in this work program, which will include an extensive consultation process to identify the information needs and data gaps (including those identified in the Senate Inquiry report), scope options for improved data collection and commence data development and collection where applicable. This work will contribute to the evidence base on perimenopause and menopause in Australia.
To further support research development, the Government has made up to $25 million of funding over four years from 2024-25 available for the 2024 Medical Research Future Fund (MRFF) Emerging Priorities and Consumer Driven Research (EPCDR) Infertility, Pregnancy Loss and Menopause Grant Opportunity which includes a focus on perimenopause and menopause research. The Grant Opportunity closed on 6 November 2024. Application outcomes are expected by May 2025, with research projects anticipated to be undertaken from 2025 to 2029.
Recommendation 24
24: The Committee recommends that the Australian Government task the National Women's Health Advisory Council to assist state and territory governments to deliver a National Menopause Action Plan which considers best practices in menopause care.
The Australian Government supports-in-principle this recommendation.
The National Women's Health Advisory Council (Council) was established in 2023 to provide strategic advice and recommendations directly to Government to improve health outcomes for Australian women and girls. The Council also provides advice on the implementation of the National Women's Health Strategy 2020-2030 (Strategy).
The Strategy outlines a national approach to improving health outcomes for all Australian women and girls, particularly those at greatest risk of poor health, and aims to reduce inequities in health outcomes. This includes actions to improve the awareness of, and encourage further research and support services, for menopause.
The Government will consider the feasibility of this recommendation in the context of the Council's advisory capacity and in consultation with relevant stakeholders, including state and territory governments.
Recommendation 25
25: The Committee recommends that the Australian Government task the Department of Health and Aged Care and the Department of Employment and Workplace Relations to monitor international best practices to ensure Australia is at the forefront of menopause and perimenopause care.
The Australian Government supports this recommendation.
The Department of Health and Aged Care and the Department of Employment and Workplace Relations monitor international policies, expert advice and academic publications to inform and shape its health, employment and workplace relations policy advice to Government, including in relation to menopause.
Coalition Senators Recommendation
The Senate Education and Employment Standing Committee to review the adequacy of existing legal frameworks, including Section 65 of the Fair Work Act 2009, to ensure women can access flexible working arrangements during menopause.
The Australian Government notes this recommendation. Decisions on Senate Committee reviews are a matter for the Senate.
That the Senate take note of the document.
That the Senate take note of the report.
That the Senate take note of the document.
That Senator Hodgins-May replace Senator Faruqi on the Education and Employment Legislation Committee for its inquiry into the provisions of the Early Childhood Education and Care (Three Day Guarantee) Bill 2025 and that Senator Faruqi be appointed as a participating member.
Scams Prevention Framework Bill 2025
That this bill may proceed without formalities and be now read a first time.
That this bill be now read a second time.
The Scams Prevention Framework Bill 2024 establishes a world-leading and whole-of-ecosystem approach to combat scams in the Competition and Consumer Act 2010 .
This Bill will lift obligations on industry, enable enforcement action by regulators, and deliver strong protections for consumers.
It will make Australia one of the toughest places in the world for scammers to operate.
The Human Impact of Scams
Over the last two years, I have talked to thousands of Australians across the country.
In every room, so many have been touched by the scourge of scams.
Allow me to share some of these stories:
Investment scams
Mark received advice from what he thought was a legitimate financial advice advertisement which encouraged him to invest in cryptocurrency.
Mark was directed to set up multiple accounts to transfer his investment into. After three payments, he started to get concerned that nothing was appearing in his cryptocurrency account.
He was told he had insufficient funds in the account so needed to make another payment for the crypto to appear.
It was only then that he realised that he'd had over $5,000 stolen by criminal scammers.
Romance scams.
Sam had thousands of dollars stolen in a romance scam. They met online before quickly moving to communicating by text and email.
The criminal scammer claimed to have been locked out of his bank account and needed urgent funds as his sister had been rushed to hospital.
It was only after transferring more than $14,000 that Sam realised that the scammer had been impersonating someone else.
The money was stolen with limited hope of getting anything back.
Online Scams.
Nick found a vehicle advertised online and contacted the seller to make arrangements to purchase.
The criminal scammer sent a through an official-looking invoice and payment details and Nick transferred $18,000 to purchase the car.
The car was being shipped from interstate and the arrival date came and went without a car in sight.
The money was stolen with limited hope of getting anything back.
These stories, and thousands like it, are the product of a non-existent legal framework which has abandoned consumers and does not require businesses within the scams ecosystem to disrupt and prevent scams.
The Scale and Nature of the Problem
These stories point to a criminal pandemic with deep economic and social consequences. It is not a new problem. Losses had been increasing every year since 2016. They became supercharged during the pandemic.
In 2021, scam losses increased by 84%.
In 2022, an extraordinary $3 billion was lost to scammers—a 75% increase on the previous year.
When the Albanese Government came to office, scams were out of control and urgent action was needed. A business-as-usual approach could have seen losses approach $6 billion on their trend at the time.
We moved quickly to establish the National Anti-Scam Centre, a Sender ID registry, and a website take-down capacity with ASIC.
The early results are good. In 2023, scam losses did not increase as they had under the previous government. In fact, they decreased for the first time in nearly a decade to $2.74 billion—but this is still an extraordinary amount stolen by scammers.
Some people still think of scammers as conmen peddling easy-to-spot schemes.
In this framing, it is convenient to blame the victims for falling for 'obvious' scams.
However, this is an outdated view. Scams have become industrialised and promulgated by sophisticated, transnational criminal operations.
I want to give a sense of the magnitude and industrialisation of these operations. In May this year, a report prepared by the ASEAN-Australia Counter Trafficking program looked at the relationship between human trafficking, forced labour and the cyber-scam industry in Cambodia, and found:
"As many as 100,000 people from around Asia, and as far away as East Africa, are trapped in cyber-scam compounds around the country. In these guarded compounds, thousands of individuals, many of whom are recent university graduates, are forced to engage in cybercriminal activities, ranging from romance and cryptocurrency scams to online gambling and fraudulent investment scams, for up to 16 hours per day".
The criminals do not discriminate. There are scams targeted to specific demographics: ticket scams for concert goers, investment scams for retirees—but there are scams across the entire spectrum of age, education and socioeconomic status.
If you have a phone, an email address, a social media account, or a bank account, you are a target.
International Response
International criminal activity of this scale requires a coordinated international response, and we have prioritised our relationships in this area.
Earlier this year, I attended the first international summit convened in the United Kingdom. Signatories to the communique from that summit committed to working together to improve our cooperative efforts, including in the areas of intelligence sharing and money recovery.
I have followed this up in our region, including in a recent visit to Singapore with our colleagues from New Zealand and from the banks where we met with regulators, the Singapore Anti-Scam Centre, digital platform providers and a range of other key stakeholders.
We exchanged information and ideas on regulatory and law enforcement responses to the challenge.
These are all important initiatives.
But there are limitations to a traditional law enforcement.
The Scams Prevention Framework Bill
This Bill sets out what we must do at home.
This Bill is about prevention—and has the consumer at the centre of it. It looks across the entire scams ecosystem which has a requirement to take the fight to scammers. The best approach is to protect a consumer from a scam before it happens.
It also provides clear pathways for redress if a victim is scammed.
The Albanese Government believes the government must play an active role in keeping Australians' money and information safe.
The first phase of our work—establishing the National Anti-Scam Centre (NASC)—is an investment in consumer protection infrastructure to bring together the expertise and capability of government agencies, law enforcement and the private sector to detect, disrupt and prevent scams. The NASC is a function operated within the ACCC. It will have a key role as an information exchange in the operation of the new framework.
This Bill is the next step. It establishes the legal framework setting out the legal obligations for business. The Scams Prevention Framework—the SPF, for short— will drive a significant uplift in the obligations and expectations on businesses to keep the Australian community safe.
Key features of the Scams Prevention Framework (SPF) include:
The definition of scams
Preventing scams means understanding the nature of the threat. Scam activity is quickly evolving and becoming increasingly sophisticated and diverse. There are many different methods scammers use to harm the community.
The Bill recognises this in the definition of scams, by setting a broad definition to capture the wide range of activities which may form part of the deceit and manipulation used by scammers. They are deceptive attempts to engage a consumer, which if successful would cause loss or harm, such as by obtaining personal information or financial benefit, from the consumer or their associate.
The SPF seeks to stop scammers at every step of their deceptive activity, and therefore captures both successful scams which have caused loss or harm, and scam attempts which have not yet resulted in loss or harm.
Who is protected?
The Bill is about protecting consumers, broadly defined. This includes people or small businesses that are provided services by regulated businesses in Australia, as well as people ordinarily residing in Australia that may use a service outside of Australia, where that service is provided by a regulated entity in Australia.
Who are the Regulated Entities?
On a number of occasions, I have described our prevention approach as whole of eco-system. This is an important concept in the preparation and operation of these laws. Our banking system is part of that ecosystem, but there is much more to it.
In December last year the peak international body for Consumer Organisations issued a statement which called on Governments to take this approach:
"We are calling on governments to ensure adequate protection against the growing risks of scams on technology platforms. Governments should require platforms to take effective action in the prevention, disruption and detection of scams, which should be continually improved. There should be significant consequences if technology platforms fail to meet the following essential requirements..."
The essential requirements include measures, disruption strategies and response and support for victims. The statement is endorsed by the Australian Consumer organisations Choice and the Consumer Action Law Centre.
The Government agrees. The SPF will do this.
Just last month the UK's peak consumer body called on their government to implement a cross sectoral scams and fraud reporting framework. A framework that joins up intelligence from government, telco, banking and social media sources.
The Government agrees. This is what the SPF will achieve.
The scam ecosystem looks at the environment in which scams are generated, how they are transmitted, how they reach their intended victim and the location of the money or information which is the end goal of the criminal.
While scam techniques will change over time, they are overwhelmingly distributed through a publication on a social media platform, a call or message sent over the telecommunications network, and a transaction through a bank account.
We understand that the vectors and targets of scam activity will change over time. This is why the Bill provides for the responsible Treasury Minister to designate a sector of the economy that will be subject to the obligations of the Scam Prevention Framework.
Once a sector is designated, the Minister will be able to make an enforceable SPF code that provides the designated sector with prescriptive obligations tailored to that sector.
The Government will designate telecommunication providers, banks and digital platform services relating to social media, paid search engine advertising and direct messaging initially.
Each of these sectors represents a significant vector of scam activity.
The SPF is responsive and adaptable, enabling other sectors to be designated in the future. We have put the superannuation, insurance and cryptocurrency industries on notice that they will be fast followers.
They do not have to wait for Government designation to start the work on improving consumer protections.
SPF Principles
The SPF principles set-out requirements for regulated entities to implement governance arrangements to combat scams and take reasonable steps to prevent, detect, report, disrupt and respond to scams.
SPF Principle 1: Governance. Regulated entities must document and implement policies, procedures, metrics and targets for combatting scams.
SPF Principle 2: Prevent. Regulated entities must take reasonable steps to prevent scams. This is aimed at stopping scams from reaching or impacting consumers.
For banks, this could mean enhanced verification procedures, such as confirmation of payee for transactions. For digital platforms, could require strict advertising policies and require them to verify and validate the advertiser. Is the business legitimate? Is the person placing the ad an authorised representative of that business? If this cannot be validated—then no ad will be able to be placed.
SPF Principle 3: Detect. Regulated entities must take reasonable steps to detect scams both as they are happening and after they have happened. This may include implementing systems and processes to identify suspicious activity, timely investigations of actionable scam intelligence and identifying consumers that may be impacted.
SPF Principle 4: Report. Regulated entities must share actionable scam intelligence with the Australian Competition and Consumer Commission (ACCC), who may then disclose that information to other parties including other regulated entities, regulators, and law enforcement to drive timely disruptive action in response to scam activity.
The Bill makes clear that actionable scam intelligence covers information where it is reasonable to suspect that a communication, transaction or other activity is conduct related to a scam.
SPF Principle 5: Disrupt. Regulated entities must take reasonable steps to disrupt an activity suspected of being a scam and prevent losses to consumers.
The legislation provides a 28-day protection (a safe harbour) for regulated entities taking proportionate action to disrupt scams in good faith. The safe harbour protection enables timely and decisive disruptive action, whilst setting clear guardrails and parameters to ensure third parties are protected from ongoing disruptive action where they are not involved in scam activity.
Detecting and disrupting scams will require investment in advanced monitoring systems and prompt content removal or other relevant disruptive action. It will also involve providing consumers with better education and awareness activities.
SPF Principle 6: Respond. Regulated entities must have an accessible way for consumers to report scams, raise a complaint about a scam or about the regulated entities conduct relating to scam activities.
Internal dispute resolution processes are intended to provide regulated entities with an opportunity to assess their conduct and resolve the consumer's complaint in a timely manner.
Regulated entities must have regard to processes prescribed by the SPF rules and any guidelines for apportioning liability arising from the complaint.
Regulated entities must also be a member of an external dispute resolution scheme authorised by the Minister which provides consumers a pathway to escalate scams related complaints.
The Government has announced that it intends to authorise the Australian Financial Complaints Authority (AFCA) as the single external dispute resolution scheme for the three initial sectors to offer an independent, free, impartial and fair mechanism for consumers to escalate their complaints. AFCA will be required to report serious and systemic scam issues to regulators, as well as report circumstances where parties fail to give effect to a determination in a complaint case.
This will provide clear reporting channels and support for victims. It will also embed transparency and accountability in the process.
Codes
The SPF principles will be supported by SPF codes tailored for each regulated sector.
An SPF code will set out detailed obligations specific to a regulated sector. This recognises that each regulated sector faces unique challenges with respect to scams and enables obligations to reflect those relevant circumstances.
The obligations in an SPF code are not intended to be an exhaustive list of requirements that an entity must follow to comply with SPF principles.
SPF codes create only minimum standards for that sector, which an entity may be required to go beyond to comply with the SPF principles where it is facing a specific, targeted, and heightened risk of scam activity related to its regulated services.
Regulation and Enforcement
The Bill establishes a multi-regulator model for regulation and enforcement which recognises existing regulatory relationships and the existing roles and expertise of various regulators which is valuable for the effective administration of tailored sector obligations.
The Bill imposes strong incentives for regulated entities to prevent, detect and deter scams. Maximum civil penalties—which are currently set at over $50 million per breach—may be imposed in regard to obligations where breaches would be the most egregious and have the most significant impact on consumers.
High penalties are intended to be an effective incentive for compliance across all sectors of the economy and provide a deterrent where higher possible gains could be made by regulated entities by breaching the SPF.
Regulators will also be able to use other compliance tools such as infringement notices, enforceable undertakings, injunctions, public warnings and remedial directions. Additionally, regulators could seek redress for harm or damages on behalf of victims where they pursue court action for the breach of an obligation (s58FZC(2)).
Consumers can also bring claims in court to recover loss or damages, where this occurs courts will be able to consider the role of multiple service providers connected to a scam and apportion liability between them. Courts are required to prioritise payment of redress to the scam victim over payment of penalties for breaches (s58FD).
The SPF is being introduced as part of a broader effort to modernise Australia's laws for the digital age and consumer protection agenda. This includes reforms to Australia's:
This Bill will also support the Government and industry in international engagement and collaboration by enabling the sharing of scam intelligence across regulated entities, law enforcement and regulators in Australia, and supporting international enforcement action to disrupt illicit scam activities.
Finally, the Legislative and Governance Forum on Corporations was consulted in relation to the Bill and has approved them as required under the Corporations Agreement 2002 .
Full details of the measure are contained in the Explanatory Memorandum.
Criminal Code Amendment (Hate Crimes) Bill 2025
That the following matter be referred to the Rural and Regional Affairs and Transport References Committee for inquiry and report by 3 November 2025:
The reasons for the Albanese Government's cancellation of the Hells Gates Dam and any missed opportunities for flood mitigation, drought proofing and economic development in Queensland.
Administrative Review Tribunal (Miscellaneous Measures) Bill 2024
I'll move on to another indicator with respect to whether or not the new ART is dealing quickly and fairly with cases that are coming before it, which was one of the aspirations of the Attorney when he introduced this reform—
If we look into the migration and protection case loads in particular, when the coalition left office, the median time to finalise a refugee matter was 113 weeks. The median time to finalise a protection matter under the Administrative Review Tribunal has now blown out to 232 weeks.
Again, Minister, I ask you: What went wrong? Why has the timeline doubled?
Again, I disagree with your assessment on this, Senator Scarr. The work that the tribunal is doing is important. The Liberals left the AAT critically underfunded. We're still getting through the backlog that you left us. There are old cases that we inherited, and, indeed, thousands of the cases that we're dealing with are more than five years old.
Mr Netanyahu should consider that the bombing of a synagogue in Australia is likely the manifestation of a few despondent radicals who had had enough of the continued aerial bombing of thousands of innocent children and women in Gaza by his single-minded troops. Australia is a robust democracy. We do not encourage violence to those whom we do not warm to. If he continues to blame me and other world leaders, he might well be remembered in history as another hegemon who blamed everyone else for his crime against innocent civilians.
"Your explanation, first blaming someone in Brisbane and then claiming your phone was compromised, raises serious questions …
"Both propositions cannot be true simultaneously. Such discrepancies demand clarification, as they erode trust in your ability to take responsibility for your own communications.
"As a Federal Member of Parliament, you have taxpayer-funded staff and resources to manage your public communications. Despite this, these hateful words have made their way into the public domain, under your name, and the consequences have been damaging.
The Atlas Network vision is of a free, prosperous, and peaceful world where the principles of individual liberty, property rights, limited government, and free markets are secured by the rule of law.
Somerset is economically dependent on the Brisbane Valley Highway, a majority one-star safety-rated road that carries up to 11,000 vehicles per day.
… … …
The condition of this highway is deplorable.
We recognise and appreciate the promise from the LNP to commit a further $20 million towards fixing the Brisbane Valley Highway and welcome this funding with a hope of more funding as time progresses, Cr Wendt said.
We have already secured $40 m through the SEQ City Deal to fix this notorious highway and this additional $20m will be very welcome.