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[2006] HCA 28
High Court of Australia
2006-06-14
Emmett J, Black CJ, Allsop JJ, Gleeson CJ, Crennan JJ
Original judgment source is linked above.
GUMMOW, KIRBY, HAYNE, CALLINAN, HEYDON AND CRENNAN JJ
R C Kenzie QC with S E J Prince for the applicants (instructed by Michaela Byers)
D M J Bennett QC, Solicitor-General of the Commonwealth of Australia with M A Perry QC and K C Morgan for the respondents (instructed by Australian Government Solicitor)
Notice: This copy of the Court's Reasons for Judgment is subject to formal revision prior to publication in the Commonwealth Law Reports.
Constitutional Law - Naturalization and aliens - Meaning of "aliens" - Children born in Australia to parents who were neither Australian citizens nor permanent residents - Children entitled to acquire foreign citizenship by registration - Whether children are "aliens" within the meaning of s 51(xix) of the Constitution - Whether children are nationals of Australia for constitutional purposes.
Constitutional Law - Construction and interpretation - Meaning of "aliens" - Relevance of possible statelessness to status of child - Whether Convention on the Reduction of Statelessness and other provisions of international law relevant.
Citizenship, immigration and emigration - Detention and removal of unlawful non-citizens from Australia - Meaning of "aliens" - Children born in Australia to parents who were neither Australian citizens nor permanent residents - Children entitled to acquire foreign citizenship by registration - Provisions of Australian Citizenship Act 1948 (Cth) relating to stateless persons not alleged to be engaged - Status of children.
Australian Citizenship Act 1948 (Cth), ss 10(2), 23D.
(1) Are the applicants "aliens" within the meaning of s 51(xix) of the Constitution?
(2) If the answer to (1) is "No", is s 198 of the Migration Act 1958 (Cth) capable of valid application to the applicants?
(3) If the answer to (1) is "No", are ss 189 and 198 of the Migration Act 1958 (Cth) capable of valid application to the applicants?
"3. Pursuant to s 12(1) of the Constitution of the Fiji Islands ('Fiji'), as amended on 25 July 1997, a child born outside Fiji on or after the date of commencement of the Constitution may become a citizen by registration if, at the date of the child's birth, either parent was a citizen of Fiji.
"Clearly the Parliament cannot, simply by giving its own definition of 'alien', expand the power under s 51(xix) to include persons who could not possibly answer the description of 'aliens' in the ordinary understanding of the word."
"3. Pursuant to s 12(1) of the Constitution of the Fiji Islands ('Fiji'), as amended on 25 July 1997, a child born outside Fiji on or after the date of commencement of the Constitution may become a citizen by registration if, at the date of the child's birth, either parent was a citizen of Fiji.
"(1) Subject to this section, a person born in Australia after the commencement of this Act shall be an Australian citizen.
(2) Subject to subsection (3), a person born in Australia after the commencement of the Australian Citizenship Amendment Act 1986 [(Cth)] shall be an Australian citizen by virtue of that birth if and only if:
(a) a parent of the person was, at the time of the person's birth, an Australian citizen or a permanent resident; or
(b) the person has, throughout the period of 10 years commencing on the day on which the person was born, been ordinarily resident in Australia.
(3) Subject to subsection (5), a person shall not be an Australian citizen by virtue of this section if, at the time of the person's birth, a parent of the person was an enemy alien and the birth occurred in a place then under occupation by the enemy.
(5) Subsection (3) does not apply in relation to a person if, at the time of the person's birth, a parent of the person:
(a) was an Australian citizen or a permanent resident; and
(6) A reference in this section to a permanent resident does not include a reference to a person who is, for the purposes of the Migration Act 1958 [(Cth)], an exempt non‑citizen."
"An individual may be without nationality knowingly or unknowingly, intentionally or through no fault of his own. Even by birth a person may be stateless, as where an illegitimate child is born in a state which does not apply ius soli to an alien mother under whose national law the child does not acquire her nationality, or where a legitimate child is born in such a state to parents who have no nationality themselves."
"The dearth of direct authority in English law upon this point is not to be wondered at. In truth the question of statelessness can have seldom arisen as an important or practical question. The division into subjects and aliens is clear and sufficient for the ordinary purposes of the common law; and the stateless person would be one of the aliens. But the present case has raised the question, and, upon consideration of the arguments addressed to me and the statutory enactments before referred to, I hold that the condition of a stateless person is not a condition unrecognized by the municipal law of this country."
The objects of the power conferred by s 51(xix) of the Constitution thus may properly be seen to include as aliens those who are stateless persons of no nationality or who are, at least, ineligible to acquire a nationality.
"The Minister shall, upon application made in accordance with the approved form for the grant of Australian citizenship to a person under this subsection and if the Minister is satisfied that the person:
(b) is not, and has never been, a citizen of any country; and
(c) is not, and has never been, entitled to acquire the citizenship of a foreign country;
register that person as prescribed as an Australian citizen, and the person is an Australian citizen as from the date upon which the registration is effected."
"Where the Minister is satisfied that a person has or had reasonable prospects, at a particular time, of acquiring the citizenship of a foreign country if the person were to apply, or to have applied, at that time for the grant of such citizenship, the person shall be taken, for the purposes of subsection (1), to be or to have been entitled to acquire the citizenship of that country at that time."
"Clause 8 of the Bill [which amended s 23D of the Citizenship Act] will ensure that a child born in Australia, who is not eligible to acquire Australian citizenship by birth, is an Australian citizen provided the child is not and never had been eligible to acquire the nationality or citizenship of another country. This will fulfil Australia's international obligations to prevent statelessness."
"A Contracting State shall grant its nationality to a person born in its territory who would otherwise be stateless. Such nationality shall be granted:
(b) upon an application being lodged with the appropriate authority, by or on behalf of the person concerned, in the manner prescribed by the national law. Subject to the provisions of paragraph 2 of this Article, no such application may be rejected[[26]].
A Contracting State which provides for the grant of its nationality in accordance with sub‑paragraph (b) of this paragraph may also provide for the grant of its nationality by operation of law at such age and subject to such conditions as may be prescribed by the national law."
(2) No one shall be arbitrarily deprived of his nationality nor denied the right to change his nationality."
"Every child has the right to acquire a nationality."
"7.1 The child shall be registered immediately after birth and shall have the right from birth to a name [and] the right to acquire a nationality …
7.2 States Parties shall ensure the implementation of these rights in accordance with their national law and their obligations under the relevant international instruments in this field, in particular where the child would otherwise be stateless.
8.1 States Parties undertake to respect the right of the child to preserve his or her identity, including nationality … as recognized by law without unlawful interference.
8.2 Where a child is illegally deprived of some or all of the elements of his or her identity, States Parties shall provide appropriate assistance and protection, with a view to re-establishing speedily his or her identity."
"(1) A child born outside Fiji … may become a citizen by registration if, at the date of the child's birth, either parent was a citizen.
(4) An application for registration under subsection (1) … may be made at any time during the child's lifetime and, if he or she is under the age of 21 at the date of the application, may be made on his or her behalf by a parent or guardian."
(2004) 78 ALJR 1383 at 1384-1386 [3]-[11], 1416 [146], 1427 [204]-[205], 1427 [207], 1438 [272]; 209 ALR 355 at 357-360, 400, 416, 432. ↑
(2004) 78 ALJR 1383 at 1391-1392 [30], 1424 [190], 1435 [252]; 209 ALR 355 at 366-367, 411-412, 427-428. ↑
(2004) 78 ALJR 1383 at 1391-1392 [30]; 209 ALR 355 at 366. ↑
(2004) 78 ALJR 1383 at 1416 [142]; 209 ALR 355 at 400. ↑
Re The Minister for Immigration and Multicultural Affairs; Ex parte Te (2002) 212 CLR 162 at 171 [24]. ↑
Singh v Commonwealth (2004) 78 ALJR 1383 at 1384-1385 [4]; 209 ALR 355 at 357. ↑
Singh v Commonwealth (2004) 78 ALJR 1383 at 1425 [193]; 209 ALR 355 at 413. ↑
Al-Kateb v Godwin (2004) 219 CLR 562 at 571 [1]. ↑
Koroitamana v Commonwealth (2005) 142 FCR 391. ↑
(2004) 78 ALJR 1383 at 1391‑1392 [30], 1422‑1423 [178]-[184], 1435‑1436 [253]; 209 ALR 355 at 366‑367, 409‑410, 428. ↑
Singh v The Commonwealth (2004) 78 ALJR 1383 at 1391‑1392 [30], 1419 [162], 1426 [200], 1437‑1438 [266]; 209 ALR 355 at 366‑367, 404, 414, 431. ↑
Singh v The Commonwealth (2004) 78 ALJR 1383 at 1386 [11], 1392 [32], 1427 [203]-[205], 1438 [272]; 209 ALR 355 at 359‑360, 367, 415‑416, 432. ↑
(2004) 78 ALJR 1383 at 1406‑1407 [99]-[100], 1415 [139]; 209 ALR 355 at 387‑388, 399. See also (2004) 78 ALJR 1383 at 1446‑1447 [317] per Callinan J; 209 ALR 355 at 443‑444. ↑
"A Contracting State may make the grant of its nationality in accordance with sub‑paragraph (b) of paragraph 1 of this Article subject to one or more of the following conditions:
(a) that the application is lodged during a period, fixed by the Contracting State, beginning not later than at the age of eighteen years and ending not earlier than at the age of twenty-one years, so, however, that the person concerned shall be allowed at least one year during which he may himself make the application without having to obtain legal authorization to do so;
(b) that the person concerned has habitually resided in the territory of the Contracting State for such period as may be fixed by that State, not exceeding five years immediately preceding the lodging of the application nor ten years in all;
(c) that the person concerned has neither been convicted of an offence against national security nor has been sentenced to imprisonment for a term of five years or more on a criminal charge;
(d) that the person concerned has always been stateless." ↑
Re Minister for Immigration and Multicultural Affairs; Ex parte Te (2002) 212 CLR 162 at 173 [31], 180 [58], 188‑189 [90], 192 [108]-[109], 215‑216 [193]-[194], 219‑220 [210]-[211], 229 [229]. ↑
Constitution, s 51(xix) (Naturalization and aliens). ↑
Rubenstein, Australian Citizenship Law in Context, (2002) at 8, 10, 35. See Singh v The Commonwealth (2004) 78 ALJR 1383 at 1428 [214]; 209 ALR 355 at 417-418. ↑
Renamed the Australian Citizenship Act 1948 (Cth) by the Australian Citizenship Act 1973 (Cth), s 1(3). ↑
The status of "British subject" was removed by the Australian Citizenship Amendment Act 1984 (Cth), ss 7, 33 and 34. These provisions entered into force on 1 May 1987: s 2(2) and Commonwealth of Australia Gazette, S68, 24 April 1987. See Re Paterson; Ex parte Taylor (2001) 207 CLR 391 at 442 [153]. ↑
Constitution, s 34(ii) (House of Representatives); cf s 8 (Senate). ↑
Constitution, s 44(i). See Sue v Hill (1999) 199 CLR 462 at 473 [5], 504 [100]. ↑
Singh (2004) 78 ALJR 1383 at 1428 [209]; 209 ALR 355 at 416-417, citing Citizenship Act 1955 (India), s 4 (as in 1998). ↑
Now given effect by the Convention on the Reduction of Statelessness, done at New York on 30 August 1961 in accordance with General Assembly Resolution 896(IX), 4 December 1954 and entered into force with respect to Australia on 13 December 1975: see [1975] ATS 46. ↑
Al-Kateb v Godwin (2004) 219 CLR 562 at 624 [174]-[175] referring to Newcrest Mining (WA) Ltd v The Commonwealth (1997) 190 CLR 513 at 658. ↑
Trop v Dulles 356 US 86 at 102-103 (1958); cf Roper v Simmons 543 US 551 at 575 (2005). ↑
Adopted by the United Nations General Assembly, Resolution 217(III)(A), 10 December 1948. ↑
Adopted and opened for signature by the United Nations General Assembly, Resolution 2200(XXI), 16 December 1966; entered into force on 23 March 1976 in accordance with Art 49. Entered into force with respect to Australia on 13 November 1980: see [1980] ATS 23. ↑
Adopted and opened for signature by the United Nations General Assembly, Resolution 44/25, 20 November 1989; entered into force on 2 September 1990 in accordance with Art 49. Entered into force with respect to Australia 16 January 1991: see [1991] ATS 4. ↑
See reasons of Gummow, Hayne and Crennan JJ at [44]. ↑
Bropho v Western Australia (1990) 171 CLR 1 at 20; Project Blue Sky Inc v Australian Broadcasting Authority (1998) 194 CLR 355 at 381-382 [69]-[71]; Al-Kateb (2004) 219 CLR 562 at 622-624 [167]-[176]. ↑
(2004) 78 ALJR 1383 at 1384 [2] per Gleeson CJ, 1416 [142] per Gummow, Hayne and Heydon JJ; 209 ALR 355 at 356, 400. ↑
(2004) 78 ALJR 1383 at 1428 [210]; 209 ALR 355 at 417. ↑
Citizenship (Amendment) Act 2003 (India) noted in Gazette of India [2004] AIR (Acts) 7. ↑
Citizenship (Amendment) Act 2003 (India), s 4(1). ↑
Koroitamana
Commonwealth of Australia
(2005) 142 FCR 391
(2004) 78 ALJR 1383
(2002) 212 CLR 162
(1982) 151 CLR 101
(2004) 219 CLR 562
(2001) 207 CLR 391
(1999) 199 CLR 462
(1988) 165 CLR 178
(2003) 218 CLR 28
(2005) 79 ALJR 1309
(1997) 190 CLR 513
(1990) 171 CLR 1
(1998) 194 CLR 355