Radiation Amendment Bill 2013 Introduction Print EXPLANATORY MEMORANDUM General The Bill amends the Radiation Act 2005 to further provide for the security of certain radioactive material and to prohibit the commercial operation of tanning units and for other purposes. Clause Notes Clause 1 sets out the purpose of the Bill. The Radiation Amendment Bill amends the Radiation Act 2005 to provide for the introduction of security plans for the possession and transport of high consequence sealed sources and high consequence groups of sealed sources and to prohibit the commercial operation of tanning units. The Bill will also provide that the Secretary may issue improvement and prohibition notices in the case of a contravention, or likely contravention, of the Act or regulations. The Bill also makes minor and consequential amendments to the Act. Clause 2 is the commencement provision. The Bill will come into effect on a day to be proclaimed, or on 1 June 2014 if not proclaimed before that date. However, the prohibition in relation to the commercial operation of tanning units will come into effect on 1 January 2015 which will allow businesses operating a commercial tanning unit sufficient time to prepare for the prohibition. Clause 3 571159 provides that in this Act, the Radiation Act 2005 is called the Principal Act. 1 BILL LA INTRODUCTION 20/8/2013 Clause 4 inserts a number of new definitions in section 3(1) of the Principal Act. The most important new definitions are as follows— category 1 group of sealed sources means 2 or more sealed sources that when kept at the same place and secured in the same way at that place, or when transported in the same vehicle, have an aggregate activity ratio of greater than or equal to 1000; category 2 group of sealed sources means 2 or more sealed sources that when kept at the same place and secured in the same way at that place, or when transported in the same vehicle, have an aggregate activity ratio of less than 1000 but greater than or equal to 10; category 3 group of sealed sources means 2 or more sealed sources that when kept at the same place and secured in the same way at that place, or when transported in the same vehicle, have an aggregate activity ratio of less than 10 but greater than or equal to 1; category 1 sealed source means a sealed source that has an activity ratio of greater than but equal to 1000; category 2 sealed source means a sealed source that has an activity ratio of less than 1000 but greater than or equal to 10; category 3 sealed source means a sealed source that has an activity ratio of less than 10 but equal to 1; high consequence group of sealed sources means a category 1 group of sealed sources, a category 2 group of sealed sources or a category 3 group of sealed sources; high consequence sealed source means a category 1, 2 or 3 sealed source; identification document, in relation to a person, means a document that— verifies the identity of a person; and is prescribed; 2 The Bill also inserts definitions into the Principal Act of the following terms—activity ratio, approved assessor, approved security plan, approved transport security plan, assessor's approval, security compliance certificate, security plan, security standard, tanning unit, transport security plan and vehicle. Subsection (2) amends the definition of facility construction licence in the Principal Act to specify that such a licence is required when a person changes the use of land or an existing building to that of a radiation facility. Subsection (3) makes a technical amendment to the definition of use licence holder in the Principal Act. Clause 5 inserts a new section 3A into the Act which sets out the formula for determining the activity ratio for sealed sources. That formula is as follows— A D where— Clause 6 A is the activity of the sealed source's prescribed radionuclide in gigabecquerel units; and D is the value specified in the regulations for the prescribed radionuclide. amends the functions of the Secretary in section 9 of the Principal Act. When the Bill commences, the Secretary will have the following new functions— approve assessors of security plans and transport security plans; specify security standards for high consequence sealed sources and high consequence groups of sealed sources; and issue improvement notices or prohibition notices in relation to contraventions or likely contraventions of the Principal Act or the regulations. 3 Clause 7 amends section 14(1)(b) of the Principal Act which prohibits construction of radiation facilities in certain cases. The amended offence will now prevent an owner or occupier of land from changing the use of land or a building that they own or occupy to use for a radiation facility unless they hold a facility construction licence that is in force that allows them to use that land or building for a radiation facility. This provision, which already exists in the Principal Act and prohibits construction, or allowing construction on land without a facility construction licence, carries a penalty of 600 penalty units for a natural person and 3000 penalty units for a body corporate. Clause 8 amends section 16(1)(b) of the Principal Act, which sets out certain exemptions from holding a licence. The amendment will enable the Secretary to exempt by notice a person or class of persons from the requirement to have a facility construction licence in respect of a radiation source specified in the notice. This provision in the Principal Act already enables the Secretary to exempt by notice a person or a class of persons from the requirement to have a use licence or a management licence in respect of the radiation source or radiation practice specified in the notice. Clause 9 inserts new section 16A into the Principal Act, which enables the Secretary, by notice published in the Government Gazette, to exempt a management licence holder from preparing and providing to the Secretary an approved transport security plan and security compliance certificate. The Secretary may only exempt a licence holder under this provision if he or she is satisfied that transportation of the high consequence sealed source or high consequence group of sealed sources will not pose a significant threat to the health or safety of any person or the safety of the environment. Clause 10 inserts three new offences into the Principal Act. New section 23A makes it an offence for a management licence holder to direct, request or allow a person to use a high consequence sealed source that the licence holder possesses or controls knowing that the licence holder has not verified the identity of the person using an identification document. 4 Subsection (2) of new section 23A states that a person does not commit an offence under this provision if the person uses the high consequence sealed source while accompanied by a person whose identity has been verified by the management licence holder using an identification document. New section 23B makes it an offence for a management licence holder to direct, request or allow a person to transport a high consequence sealed source or high consequence group of sealed sources that the licence holder possesses or controls knowing that the licence holder has not verified the identity of the person using an identification document. Subsection (2) of new section 23B states that a person does not commit an offence under this provision if the person transports the high consequence sealed source or high consequence group of sealed sources while accompanied by a person whose identity has been verified by the management licence holder using an identification document. New section 23C makes it an offence for a management licence holder to direct, request or allow a person to access a high consequence sealed source or high consequence group of sealed sources that the licence holder possesses or controls knowing that the licence holder has not verified the identity of the person using an identification document. Subsection (2) of new section 23C states that a person does not commit an offence under this section if the person accesses the high consequence sealed source or high consequence group of sealed sources while— accompanied by a person whose identity has been verified by the management licence holder using an identification document; or subject to surveillance at all times. Subsection (3) of new section 23C inserts definitions of access and surveillance for the purposes of this section. access includes having the means to unlock a building, room, container, tank, vehicle or any other thing or place in which a high consequence sealed source or high consequence group of sealed sources is situated. 5 surveillance includes recorded surveillance by any of the following— a monitored closed circuit television camera; a motion sensor camera; anti-stay behind detection and alarms based on motion detection; or any other measure prescribed in the regulations. The penalty for each of these offences will be 1200 penalty units for a natural person, and 6000 penalty units in the case of a body corporate. Clause 11 inserts new 23D into the Principal Act. New section 23D makes it an offence to conduct a commercial tanning practice. That is, a person must not provide, or offer to provide for fee or reward the use of a tanning unit; or operate or offer to operate for fee or reward, a tanning unit. The penalty for breach of this offence is 60 penalty units for a natural person and 300 penalty units for a body corporate. tanning unit is defined in clause 4 of the Bill as an electrically powered radiation apparatus designed to produce tanning of the human skin by utilising ultraviolet radiation. Clause 12 amends the Principal Act by amending the penalty for the offence in section 27(1) from 600 penalty units to 60 penalty units. This clause also deletes section 27(2) so that the offence of issuing a certificate of compliance without being an approved tester is no longer indictable. This is because it is not appropriate for an offence with low penalty units to be indictable. Clause 13 inserts new Part 5A into the Principal Act. Part 5A deals with approved assessors of security plans and transport security plans. New section 36A outlines the role of approved security plan and transport security plan assessors. Their role is to— assess a security plan to determine whether the plan meets the requirement set out in section 67C for security plans or section 68H for transport security plans; and 6 assess whether the plan meets the standards specified by the Secretary under section 67N; and issue security compliance certificates in respect of security plans and transport plans if the plans meet the specified standards. New section 36B makes it an offence for an approved assessor to knowingly, recklessly or negligently fail to comply with every condition of their assessor's approval. Failure to comply with this section attracts a penalty of 600 penalty units, and is an indictable offence. New section 36C makes it an offence for a person to issue a security compliance certificate in relation to a security plan or a transport security plan unless they hold an assessor's approval that is in force. New section 36D makes it an offence for a person to directly or indirectly represent that they are an approved assessor unless they are an approved assessor. Both of these new offences attract a penalty of 60 penalty units. New section 36E makes it an indictable offence for an approved assessor to issue a security compliance certificate knowing that it is false or misleading in a material particular. This offence attracts a penalty of 600 penalty units. Clause 14 amends section 37(2)(b) of the Principal Act to specify that only a natural person can apply to the Secretary for an assessor's approval. Clause 15 amends section 39 of the Principal Act to list the further information required to be submitted with management licence applications if the radiation practice to be conducted includes possession or transport of a high consequence sealed source or high consequence group of sealed sources. In the case of possession of a high consequence sealed source or high consequence group of sealed sources, new section 39(c) requires the application to include— a copy of an approved security plan and security compliance certificate issued by an approved assessor for that source or group of sealed sources; and 7 if the applicant is a natural person, evidence of the person's identity; and if the applicant is a body corporate, evidence of the identity of a person who is to be responsible for the security of the high consequence sealed source or high consequence group of sealed sources under the licence. In the case of transport of a high consequence sealed source or high consequence group of sealed sources, new subsection 39(d) requires the application to include— if the applicant is a natural person, evidence of the person's identity; and if the applicant is a body corporate, evidence of the identity of a person who is to be responsible for the security of the high consequence sealed source or high consequence group of sealed sources under the licence. This clause also inserts a new 39(2) into the Principal Act, which states that evidence of a person's identity that is required under section 39(1)(c) or 39(1)(d) must be in accordance with the guidelines prepared under section 67A. Clause 16 is similar to clause 15. It amends section 41 of the Principal Act to list the further information required to be submitted with facility construction licence applications. Section 41(c) stipulates that, in the case of land to be used for, or a building that is to be used as, a radiation facility that is owned or occupied by a person other than the applicant, the application must be accompanied by written evidence of the consent of the owner or occupier of the land or building proposed to be used as a radiation facility for that facility. Section 41(d) stipulates that, in the case of a radiation facility to be constructed or used that will house a high consequence sealed source or high consequence group of sealed sources, the application must include— a copy of the an approved security plan and security compliance certificate issued by an approved assessor for that source or group of sealed sources; and if the applicant is a natural person, evidence of the person's identity; and 8 if the applicant is a body corporate, evidence of the identity of the person who is to be responsible for the security of a high consequence sealed source or high consequence group of sealed sources under the licence. This clause also inserts a new 41(2) into the Principal Act, which states that evidence of a person's identity that is required under section 41(1)(d)(ii) or (iii) must be in accordance with the guidelines prepared under section 67A. Clause 17 inserts new section 42A into the Principal Act, which will require an application under section 37 for an assessor's approval to include evidence of the applicant's qualifications (if any) that may be relevant to an approved assessor carrying out their duties under this Act or regulations. Clause 18 amends section 66(2) of the Principal Act to list the additional information required to be submitted with an application for variation of an authority to possess or transport a high consequence sealed source or a high consequence group of sealed sources. In the case of possession of a high consequence sealed source or high consequence group of sealed sources, new section 66(2)(c) requires the application to vary to include— a copy of an approved security plan and security compliance certificate issued by an approved assessor for that source or group of sources; and if the applicant is a natural person, evidence of the person's identity; and if the applicant is a body corporate, evidence of the identity of the person who is to be responsible for the security of the high consequence sealed source or high consequence group of sealed sources under the licence. In the case of transport of a high consequence sealed source or high consequence group of sealed sources, new subsection 66(2)(d) requires the application to include— if the applicant is a natural person, evidence of the person's identity; and 9 if the applicant is a body corporate, evidence of the identity of a person who is to be responsible for the security of the high consequence sealed source or high consequence group of sealed sources under the licence. This clause also inserts a new 66(2A) into the Principal Act, which states that evidence of a person's identity that is required under section 66(2)(c) or 66(2)(d) must be in accordance with the guidelines prepared under section 67A. Clause 19 inserts new Division 5 of Part 6 into the Principal Act. Division 5 consists of section 67A, which deals with guidelines on evidence as to identity. New section 67A(1) enables the Secretary to prepare guidelines for the purpose of guiding applicants for authorities as to what is required for the purposes of the sections in the Principal Act that include verification of identity requirements. Verification of identity requirements are included in the offences in new sections 23A, 23B and 23C of allowing unverified persons to access or use or transport high consequence sealed sources or high consequence groups of sealed sources. There are also new identity verification requirements in sections 39 and 41 for applicants applying for management or facility construction licences in relation to high consequence sealed sources and high consequence groups of sealed sources, and in section 66 for licence holders who apply to the Secretary for variation of a licence in relation to high consequence sealed sources or high consequence groups of sealed sources. Subsection (2) of new section 67A requires that the guidelines be published in the Government Gazette. Clause 20 inserts new Part 6A into the Principal Act, which deals with security plans and transport security plans. Division 1 of new Part 6A deals with security plans. New section 67B requires the following people to prepare and submit a security plan to an approved assessor for approval— an applicant for a management licence who intends to conduct a radiation practice involving possession of a high consequence sealed source or a high consequence group of sealed sources; 10 an applicant for a facility construction licence who intends to construct or use a radiation facility that will house a high consequence sealed source or high consequence group of sealed sources; a management licence holder who intends to make an application to vary their licence in order to possess a high consequence sealed source or high consequence group of sealed sources. New section 67C sets out the required contents of a security plan. A security plan prepared and submitted under new section 67B must— address the security standards specified by the Secretary under section 67N for the high consequence sealed source or high consequence group of sealed sources in relation to which the applicant for, or holder of, a management licence will conduct a radiation practice; and set out the security measures to be implemented to control any issues identified in the security standard; and include any other matters specified by the Secretary in accordance with subsection (2); and be in the form specified by the Secretary. Subsection (2) of section 67C states that the Secretary, by notice published in the Government Gazette, may specify any additional matters that must be addressed by the security plan. New section 67D requires management licence holders to at all times have an approved security plan in place for every high consequence sealed source or high consequence group of sealed sources the holder is licensed to possess. Failure to have an approved security plan is an offence which carries 1200 penalty units in the case of a natural person or 6000 penalty units in the case of a body corporate. New section 67E states that management holders who are licensed to possess a high consequence sealed source or a high consequence group of sealed sources must not knowingly fail to provide to the Secretary, within 30 days after receiving a security 11 compliance certificate for a security plan relating to the high consequence sealed source or high consequence group of sealed sources, a copy of the approved security plan. Failure to do so attracts a penalty of 60 penalty units for a natural person or 300 penalty units for a body corporate. New section 67F requires approved security plans to be reviewed in certain circumstances. A management licence holder who is licensed to possess a high consequence sealed source or high consequence group of sealed sources must submit to the Secretary a revised security plan that has been approved by an approved assessor as soon as practicable after— a significant change in the operation of, or to the environment in which, the radiation practice involving the high consequence sealed source or high consequence group of sealed sources is being conducted; or the licence holder has been notified of an amendment to the security standard under section 67O. Failure to comply with these requirements attracts a penalty of 60 penalty units for a natural person and 300 penalty units for a body corporate. Subsection (2) of new section 67F elaborates on what is meant by a significant change to the operation of, or to the environment in which, the radiation practice involving the high consequence sealed source or high consequence group of sealed sources is being conducted. An approved security plan is not required to be revised, approved and submitted if the only change is— the name of the natural person who is responsible for implementing the plan; any change to the details of the management licence that do not relate to possession or transport of a high consequence sealed source or high consequence group of sealed sources; an amendment to the plan that is prescribed by the regulations for the purposes of this subsection. 12 Division 2 of new Part 6A concerns transport security plans. New section 67G states that a management licence holder must prepare and submit to an approved assessor for approval a transport security plan each time the licence holder proposes to transport a high consequence sealed source or high consequence group of sealed sources. Subsection (2) of new section 67G clarifies that in the case of a proposal to transport similar category 2 or category 3 sealed sources, or a category 2 group of sealed sources or category 3 group of sealed sources, using a series of shipments, a single transport security plan may be prepared if the plan includes details for each shipment. New section 67H sets out what a transport security plan is required to contain. A transport security plan must— address the security standard specified under section 67N for the high consequence sealed sources or high consequence group of sealed sources proposed to be transported; and set out the security measures to be implemented to control any issues identified in the security standard; include any other matters specified by the Secretary in accordance with subsection (2); and be in the form specified by the Secretary. Subsection (2) of new section 67H states that the Secretary may, by notice published in the Government Gazette, specify any additional matters that must be addressed by the transport security plan. New section 67I requires a management licence holder who is licensed to transport a high consequence sealed source or high consequence group of sealed sources in respect of which there is an approved transport plan that provides for a series of shipments, to submit to the Secretary a revised transport security plan that has been approved by an approved assessor as soon as practicable after a significant change to the manner in which a high consequence sealed source or high consequence group of sealed sources is to be transported. 13 Failure to do so will result in a penalty of 60 penalty units for a natural person and 300 penalty units for a body corporate. New section 67J makes it an offence for a management licence holder to transport a high consequence sealed source or high consequence group of sealed sources whilst knowing that there is not an approved transport security plan for that high consequence sealed source or high consequence group of sealed sources, or that a copy of the transport security plan and security compliance certificate has not been submitted to the Secretary within the requisite timeframe. For the purposes of this offence, the requisite time frame for submission to the Secretary is— in the case of a proposal to transport a category 1 sealed source or category 1 group of sealed sources, at least 7 days before the transport is proposed to take place; or in the case of a proposal to transport a category 2 or category 3 sealed source, or a category 2 group of sealed sources or a category 3 group of sealed sources, at least 7 days before the transport (or first transport in the case of a series of shipments) is proposed to take place. This offence carries a penalty of 1200 penalty units for a natural person and 6000 penalty units for a body corporate. Division 3 of new Part 6A deals with assessment of security plans and transport security plans. New section 67K sets out the process for review and approval of security plans and transport security plans. Subsection (1) of new section 67K states that, on receipt of a security plan or transport security plan, an approved assessor must assess the plan against the applicable security standard. These are specified by the Secretary in accordance with section 67N. Subsection (2) of new section 67K states that if, after the assessment, the assessor is of the view that the security plan or transport security plan meets the applicable security standard, the approved assessor must issue a security compliance certificate in respect of that security plan or transport security plan. 14 Subsection (3) of new section 67K requires a security compliance certificate to— be in the form approved by the Secretary; and contain any information required by the Secretary; and be given to the person who requested the assessment of the security plan or transport security plan. New section 67L requires an approved assessor to provide to the Secretary the information contained in the security compliance certificate in writing and within 7 days after issuing the certificate. Division 4 of new Part 6A deals with compliance with security plans and transport security plans. New section 67M makes it an offence for a management licence holder who is licensed to possess or transport a high consequence sealed source or high consequence group of sealed sources to knowingly fail to comply with the most recent approved security plan or approved transport security plan for that source or group of sealed sources. This offence attracts a penalty of 1200 for a natural person and 6000 for a body corporate. Division 5 of new Part 6A deals with standards for security plans and security transport plans and security compliance certificates. New section 67N(1) requires the Secretary to specify a security standard that a security plan or transport security plan must meet in respect of high consequence sealed sources and high consequence groups of sealed sources, in order to be approved by an approved assessor. Subsection (2) of new section 67N states that a security standard specified under this section must set out security measures that must be met according to the level of threat from terrorist activity in relation to radiation sources. On specifying a security standard, subsection (3) of new section 67N requires the Secretary to publish notice of that specification in the Government Gazette and the security standard on the internet. 15 Subsection (4) of new section 67N makes it clear that a security standard specified under this section takes effect on and from the date on which notice of its specification is published in the Government Gazette or a later date that is specified in the notice. New section 67O applies if the Secretary amends a security standard and the amendment relates to a security measure set out in the standard. In that event, subsection (2) of new section 67O states that the Secretary must in writing, notify the following persons of the amendment of the security standard and the details of the amendment— every management licence holder who possesses a high consequence sealed source or high consequence group of sealed sources, if the approved security plan relating to that source contains matter to which the amendment relates; every management licence holder who is allowed to transport a high consequence sealed source or high consequence group of sealed sources, if the approved transport security plan relating to that source contains matter to which the amendment relates; and every approved assessor. Clause 21 inserts new Division 7A into Part 7 of the Principal Act, which relates to improvement notices and prohibition notices. New section 90A enables the Secretary to issue improvement or prohibition notices in certain circumstances. Subsection (1) of new section 90A lists those circumstances as being either that a person has contravened a provision of the Principal Act or the regulations in circumstances that make it likely that the contravention is continuing or will reoccur, or a person is likely to contravene a provision of the Principal Act or the regulations. If the circumstances in subsection (1) apply, new section 90A(2) enables the Secretary to issue to the person— an improvement notice requiring the person to remedy the contravention or likely contravention or the matters or activities causing the contravention or likely contravention; or 16 a prohibition notice prohibiting the carrying on of the activity or the carrying on of the activity in a specified way, until the Secretary has certified in writing that the contravention has ceased or that the likelihood of the contravention has passed. Subsection (3) of new section 90A requires an improvement notice or prohibition notice to— state the grounds on which the issue of the notice is based; specify the provision of the Principal Act or the regulations that the Secretary considers has been or is likely to be contravened; specify the actions or measures that the person is required to take and the period within which the actions or measures are to be completed; set out the penalty for contravening the notice; state how the person may seek review of the issue of the notice; include a statement as to the effect of section 90C, which relates to the impact of notices on proceedings for offences. Subsection (4) of new section 90A states that an improvement notice or prohibition notice issued under this section remains in force until the Secretary notifies, in writing, the person who received the notice that it is no longer in force. New section 90B(1) requires a person to whom an improvement notice or prohibition notice is issued for a contravention of the Principal Act to comply with the improvement notice or prohibition notice. Failure to do so attracts a penalty of 120 penalty units for a natural person or 600 penalty units for a body corporate. Subsection (2) of new section 90B requires a person to whom an improvement notice or prohibition notice is issued for a contravention of the regulations to comply with the improvement notice or prohibition notice. Failure to do so attracts a penalty of 20 penalty units. 17 New section 90C(1) states that the issue of an improvement notice or a prohibition notice does not affect any proceedings for an offence against this Principal Act or the regulations in connection with any matter in respect of which the improvement notice or prohibition notice was issued. However this is subject to subsection (2) of new section 90C. Subsection (2) states that if a person fulfils all the requirements of an improvement notice or a prohibition notice, at the expiry of the notice, no proceeding may be commenced for the offence against the Principal Act or regulations constituted by the contravention or alleged contravention to which that improvement notice or prohibition notice related. Clause 22 amends the definition of eligible person in section 10 of the Principal Act, to include a person to whom an infringement notice or prohibition notice has been issued under new section 90A. This clause also amends the definition of reviewable decision in section 100 of the Principal Act to include, in relation to a person to whom an improvement notice or a prohibition notice has been issued under new section 90A, a decision of the Secretary to issue the notice. These amendments make it possible for a person who has been issued an improvement notice or a prohibition notice under new section 90A to seek internal review and further review at the Victorian Civil and Administrative Review Tribunal. Clause 23 amends section 136(1) of the Principal Act to enable information held by the Secretary to be disclosed to Victoria Police and to the Australian Security Intelligence Organisation and other intelligence agencies. This provision will render such disclosures for a secondary purpose as being authorised by law for the purposes of the Information Privacy Act 2000 and the Health Records Act 2001. Clause 24 inserts a new regulation making power in the Principal Act by inserting section 139(1)(da) to enable regulations to be made requiring a management licence holder to keep records of the names of persons whose identity they have verified for the purposes of section 23A, 23B or 23C and the identification documents used for that purpose. 18 Clause 25 inserts a transitional provision into the Principal Act. New section 148 will make it clear that Part 6A—which relates to security plans and transport security plans—will not apply to a licence holder who, immediately before the commencement of Part 6A, was licensed to possess, or possess and transport, one or more high consequence sealed sources or high consequence group of sealed sources until 12 months after that commencement date. Clause 26 inserts a transitional provision into the Principal Act. New section 149 will require the Secretary to cancel all management licences authorising the conduct of a radiation practice involving a tanning unit on and from the commencement of new section 23D, which will prohibit the operation of such practices. On the cancellation of such management licences, the former holder of that licence will be entitled to a refund of any amount paid or the licence that is for a period that falls after the cancellation. Clause 27 provides for the automatic repeal of this amending Act on 1 January 2016. The repeal of this Act does not affect in any way the operation of the amendments made by this Act (see section 15(1) of the Interpretation of Legislation Act 1984). 19