Loopholes and unclear definitions
Some supporters warned the new framework still needed tighter definitions and a formal review so industry self-classification would not create loopholes or perverse incentives in ratings decisions.
Classification (Publications, Films and Computer Games) Amendment (Industry Self-Classification and Other Measures)
Current status
This bill became law on Sep 14th, 2023.
Policy area
Transport & communications
What does this bill do?
Australia now lets trained, accredited people classify films and computer games for release, so publishers have another lawful path beyond the government boardThe government board that classifies content and can replace an accredited classifier's decision if the rating or consumer advice is wrong. and automated tools.
Why was it introduced?
Rapid growth in online films and games left Australia's classification schemeThe cooperative system used to classify films, computer games and publications for Australian audiences. struggling to keep up and created repeat classification and access bottlenecks. This bill lets trained industry classifiers rate more content, expands boardThe government board that classifies content and can replace an accredited classifier's decision if the rating or consumer advice is wrong. oversight safeguards, recognises some existing broadcast classifications, and exempts some low-risk library material.
Broader context
Australia’s national classification schemeThe cooperative system used to classify films, computer games and publications for Australian audiences. had operated since 1995, but the surge in online films and games left a boardThe government board that classifies content and can replace an accredited classifier's decision if the rating or consumer advice is wrong.-centred system struggling with volume and duplication, even as new tools such as Spherex were introduced in November 2022 to speed some decisions. After the government announced a first stage of reform on 30 March 2023, this bill created an accredited industry self-classification pathway with boardThe government board that classifies content and can replace an accredited classifier's decision if the rating or consumer advice is wrong. safeguards, recognised some existing broadcast classifications and eased access to low-risk library material, with the changes commencing on 15 March 2024.
Key criticism
The main criticism was that the bill’s self-classification changes were only a partial fix and could leave loopholes, unclear definitions and weak protections for higher-risk game content if the rules were not tightened and reviewed. These concerns were raised only in a limited, conditional way by MPs who still supported the bill, and no party represented in the debate opposed it.
Who supported it?
Hon Michelle Rowland MP introduced this bill. It passed on the voices.
Introduced in House 22 June 2023
Passed House 09 Aug 2023
Passed Senate 04 Sept 2023
Became law 14 Sept 2023
Did it become law?
Yes
Became law 14 Sept 2023
Final passage
Passed without a counted vote
Members called out ‘aye’ or ‘no’ — no individual votes were recorded.
Passage speed
84 days
From introduction to the latest recorded parliamentary step
Meaning
What does this bill do?
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Australia now lets trained, accredited people classify films and computer games for release, so publishers have another lawful path beyond the government boardThe government board that classifies content and can replace an accredited classifier's decision if the rating or consumer advice is wrong. and automated tools.
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Accredited classifiers cannot decide the highest-restriction material, so films or games likely to be refused classificationThe highest restriction category, used for content that cannot be legally released in ordinary Australian classification channels. or given an X 18+A restricted adult classification. The bill keeps likely X 18+ material outside the accredited-classifier pathway. rating still have to go through the government boardThe government board that classifies content and can replace an accredited classifier's decision if the rating or consumer advice is wrong..
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The Classification BoardThe government board that classifies content and can replace an accredited classifier's decision if the rating or consumer advice is wrong. can cancel an accredited classifierA trained person who can classify eligible films and computer games for publishers under the self-classification reforms.’s decision if it thinks the rating is wrong or the warning labels are misleading, and then the boardThe government board that classifies content and can replace an accredited classifier's decision if the rating or consumer advice is wrong. must issue its own classification.
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Films already classified for broadcast under the Broadcasting Services Act, ABC Act or SBS Act can also count as classified for other release, which cuts repeat classification where the film has not already been classified under this law.
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Some low-risk non-English films can be supplied through public libraries and university libraries without classification, helping communities access more cultural content.
Show source excerpts
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(1) Subject to subsection (4), an accredited person may, on request of the publisher or proposed publisher of a film or computer game, classify the film or computer game for the Australian Capital Territory.
Classification (Publications, Films and Computer Games) Amendment (Industry Self-Classification and Other Measures) Act 2023 final Act text -
(4) If a film or computer game, if classified, would be likely to be classified RC or X 18+, an accredited person may not classify the film or computer game.
Classification (Publications, Films and Computer Games) Amendment (Industry Self-Classification and Other Measures) Act 2023 final Act text -
(4) If, after considering any submission received within that period, the Board decides to revoke the classification, the Board must classify the film or computer game.
Classification (Publications, Films and Computer Games) Amendment (Industry Self-Classification and Other Measures) Act 2023 final Act text -
(a) the film has been classified under the Broadcasting Services Act 1992, the Australian Broadcasting Corporation Act 1983 or the Special Broadcasting Service Act 1991 at R18+ or a lower classification; and
Classification (Publications, Films and Computer Games) Amendment (Industry Self-Classification and Other Measures) Act 2023 final Act text -
The Bill expands classification exemptions to include films in languages other than English (LOTE) distributed through public libraries. This will reduce the regulatory burden for distributors and increase community access to content, especially for culturally and linguistically diverse communities. As a risk-mitigation measure, only content that would be classified either G (General) or PG (Parental Guidance) will be granted this exemption.
Classification (Publications, Films and Computer Games) Amendment (Industry Self-Classification and Other Measures) explanatory memorandum
Context
Broader context for this bill
Australia’s national classification schemeThe cooperative system used to classify films, computer games and publications for Australian audiences. had operated since 1995, but the surge in online films and games left a boardThe government board that classifies content and can replace an accredited classifier's decision if the rating or consumer advice is wrong.-centred system struggling with volume and duplication, even as new tools such as Spherex were introduced in November 2022 to speed some decisions. After the government announced a first stage of reform on 30 March 2023, this bill created an accredited industry self-classification pathway with boardThe government board that classifies content and can replace an accredited classifier's decision if the rating or consumer advice is wrong. safeguards, recognised some existing broadcast classifications and eased access to low-risk library material, with the changes commencing on 15 March 2024.
- 1995
National Classification SchemeThe cooperative system used to classify films, computer games and publications for Australian audiences. begins
Australia’s cooperative national scheme started operating in 1995, setting up the framework later criticised as too slow and rigid for digital distribution.
Department of Infrastructure ↗ - 07 Nov 2022
Spherex classification tool is adopted to cut delays
The new tool was reported as reducing classification turnaround for streaming services from up to 20 days to about 24 hours, highlighting pressure to process much larger content volumes faster.
Australian Financial Review ↗ - 30 Mar 2023
Government announces first stage of classification reform
The government said it would modernise the scheme in two stages so classification information remained reliable across modern platforms and online content.
Department of Infrastructure ↗ - 22 June 2023
Bill is introduced to expand classification options
The bill was introduced to help the scheme handle rapid growth in online content by adding accredited industry classifiers, reducing duplicate classifications and widening access to some library material.
Parliamentary timeline ↗ - 04 Sept 2023
Parliament passes the bill
Both houses passed the measure, clearing the way for trained accredited classifiers to operate alongside the Classification BoardThe government board that classifies content and can replace an accredited classifier's decision if the rating or consumer advice is wrong. and approved tools.
Parliamentary timeline ↗ - 14 Sept 2023
Royal Assent makes the bill law
Royal Assent turned the bill into an Act, locking in the legal basis for the first stage of the government’s classification reforms.
Parliamentary timeline ↗ - 15 Mar 2024
Industry self-classification reforms commence
When the Act commenced, industry gained a new lawful pathway to classify films and computer games using trained accredited classifiers under boardThe government board that classifies content and can replace an accredited classifier's decision if the rating or consumer advice is wrong. oversight.
Department of Infrastructure ↗
Legislative route
How did it move through Parliament?
House Senate
Introduced 22 June 2023
The bill was formally presented to the chamber and read a first time, which starts its parliamentary journey.
Introduced and read a first time
Second reading opened 22 June 2023
A minister or sponsoring member moved the second reading, opening the main debate on the bill's purpose and principles.
Second reading moved
Second reading debate 01 Aug 2023
The bill reached this recorded parliamentary step.
Sent to Federation Chamber for debate 01 Aug 2023
The bill reached this recorded parliamentary step.
Referred to Federation Chamber
Returned to House for further consideration 08 Aug 2023
The bill reached this recorded parliamentary step.
Second reading debate 09 Aug 2023
The bill reached this recorded parliamentary step.
House second reading agreed 09 Aug 2023
The chamber agreed to the bill at second reading, meaning it accepted the bill in principle and allowed it to continue.
Second reading agreed to
House agreed to amendment packages 09 Aug 2023
The chamber considered amendments before the bill moved to the next stage.
Consideration in detail debate
House third reading agreed 09 Aug 2023
The chamber agreed to the bill at third reading, which completed passage through that chamber.
Third reading agreed to
Introduced 10 Aug 2023
The bill was formally presented to the chamber and read a first time, which starts its parliamentary journey.
Introduced and read a first time
Second reading opened 10 Aug 2023
A minister or sponsoring member moved the second reading, opening the main debate on the bill's purpose and principles.
Second reading moved
Second reading debate 04 Sept 2023
The bill reached this recorded parliamentary step.
Senate second reading agreed 04 Sept 2023
The chamber agreed to the bill at second reading, meaning it accepted the bill in principle and allowed it to continue.
Second reading agreed to
Senate third reading agreed 04 Sept 2023
The chamber agreed to the bill at third reading, which completed passage through that chamber.
Third reading agreed to
Passed both houses 04 Sept 2023
Both houses passed the bill in the same form, completing parliamentary passage.
Finally passed both Houses
Assent 14 Sept 2023
The Governor-General gave Royal Assent, turning the bill into an Act.
Key criticism
The main case against this bill
The main criticism was that the bill’s self-classification changes were only a partial fix and could leave loopholes, unclear definitions and weak protections for higher-risk game content if the rules were not tightened and reviewed. These concerns were raised only in a limited, conditional way by MPs who still supported the bill, and no party represented in the debate opposed it.
Criticism was narrow and focused on drafting, safeguards and follow-up reform rather than rejecting the bill’s aim.
Stronger protections for risky games still needed
Some MPs said broader reform was still needed for games with loot boxes, simulated gambling and similar features, arguing the bill did not by itself settle how stronger consumer protections should work for higher-risk content.
Further sources
Votes
Recorded votes
How the bill itself passed
The bill passed both chambers on the voices, so there is no list of individual Aye and No votes for final passage.
Passed House passed the bill
House agreed to the bill's third reading on the voices, so there is no list of individual Aye and No votes for final passage in that chamber.
Passed
House passed the bill
Passed on the voices
In a voice vote, members call out Aye or No and the presiding officer judges which side has it. Individual names are only recorded if a formal division is called.
Passed Senate passed the bill
Senate agreed to the bill's third reading on the voices, so there is no list of individual Aye and No votes for final passage in that chamber.
Passed
Senate passed the bill
Passed on the voices
In a voice vote, members call out Aye or No and the presiding officer judges which side has it. Individual names are only recorded if a formal division is called.
Amendments at a glance
Amendments grouped by chamber. Where APH reports aggregate counts, the package card summarizes the matching public amendment sheets by source theme.
House
Carried Government package: 14 amendments
Government amendments extend classification provisions to the ABC and SBS Acts as well as the Broadcasting Services Act 1992, clarifying the bill’s coverage for the national broadcasters.
Carried
Government package: 14 amendments
Passed on the voices
The chamber agreed to this amendment package without a counted vote. APH records the agreed count by amendment, while the source documents are grouped into amendment sheets.
Parliamentary debate
Who spoke, and what they said
Start here — lead voices
Sponsor speech Supports
Michelle Rowland
Rowland supports the bill and says it is the first stage of overdue classification reform that will modernise the scheme, expand industry self-classification, and reduce unnecessary duplication while keeping safeguards in place.
Read in Hansard ↗ Lead supporting voice Supports
Pat Conaghan
Pat Conaghan says the coalition will support the bill as a good first step to modernise classification and reduce bottlenecks, especially through industry self-classification and a classifies-once approach.
Read in Hansard ↗ Lead voice Supports
Matt Burnell
Burnell supports the bill and says it modernises an outdated classification schemeThe cooperative system used to classify films, computer games and publications for Australian audiences. by allowing industry self-classification, reducing duplication and red tape, and easing the regulatory burden.
Read in Hansard ↗ Lead voice Supports
Tim Watts
Tim Watts supports the bill, arguing that Australia needs a modern classification system for online and digital content that still gives parents and consumers useful information while better reflecting the needs of creative industries such as video games.
Read in Hansard ↗All speeches by bloc
Labor
13 speakers · 14 contributions · 13 support
Labor
13 speakers · 14 contributions · 13 support
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Matt Burnell ★ Burnell supports the bill and says it modernises an outdated classification schemeThe cooperative system used to classify films, computer games and publications for Australian audiences. by allowing industry self-classification, reducing duplication and red tape, and easing the regulatory burden.
“It comes as no surprise that I rise to speak in favour of the Classification (Publications, Films and Computer Games) Amendment (Industry Self-Classification and Other Measures) Bill 2023.”
Read the full speech in Hansard ↗ -
Tim Watts ★ Tim Watts supports the bill, arguing that Australia needs a modern classification system for online and digital content that still gives parents and consumers useful information while better reflecting the needs of creative industries such as video games.
“The bill before the House really recognises that video games, online streaming platforms—the myriad ways that we now enjoy digital content—have changed radically since the establishment of the National Classification Scheme in the 1990s, and we need our classification scheme to respond to this new world. That's what this bill is doing: creating the information parents need in order to guide their decisions on what content their kids consume as well as what content any Australians consume, but doing it in a way that also recognises the incredible economic opportunities our creative industries represent. I commend the bill to the House.”
Read the full speech in Hansard ↗ -
Luke Gosling Gosling supports the bill and says it is needed to modernise an outdated classification system, make self-classification easier for industry, and improve access to cultural content while protecting children.
“This bill supports the implementation of that first stage of the government's classification reforms, by introducing a number of changes to existing classification arrangements, and delivers on key elements of the government's first stage of classification reforms.”
Read the full speech in Hansard ↗ -
Susan Templeman Templeman supports the bill as an early step to modernise the classification system, saying it will put the scheme on the right path and help develop broader reforms.
“These are the initial steps to bring this classification system into the 21st century. With the staged process, in this bill we've prioritised the things that are needed to help set the scheme on the right path. It also gives us the opportunity to work with key stakeholders to develop a more comprehensive second-stage set of reforms that will allow us to clarify the purpose and scope of the scheme. It will also help establish fit-for-purpose regulatory and governance arrangements and ensure that classification criteria are aligned with and responsive to evolving community standards and expectations.”
Read the full speech in Hansard ↗ -
Dan Repacholi Repacholi supports the bill, saying the classification schemeThe cooperative system used to classify films, computer games and publications for Australian audiences. is outdated and needs reform to better fit online content and modern community expectations.
“This bill will address this issue, specifically by expanding options for industry to self-classify content to make it easier for content providers, particularly online content providers, to comply with classification regulations and reduce classification time frames and costs for their business.”
Read the full speech in Hansard ↗ -
Brian Mitchell Mitchell supports the bill and says it modernises an outdated classification system so industry can self-classify more content, cut delays and costs, and still keep safeguards and oversight.
“This bill supports the implementation of the first stage of this process by introducing a number of changes to modernise the system. These changes will help us improve the capacity to deal with large volumes of online content, increase access to cultural content and promote industry compliance.”
Read the full speech in Hansard ↗ -
Tony Zappia Zappia supports the bill and says it will modernise an outdated classification system by making self-classification faster and cheaper while keeping review and safeguard powers in place.
“Nevertheless, this legislation comes to us now, after the reviews, as legislation that seeks to bring us up to date with today's acceptable standards across society, and I commend it to the House.”
Read the full speech in Hansard ↗ -
Peta Murphy Peta Murphy supports the bill and says it is a good first step in updating the classification schemeThe cooperative system used to classify films, computer games and publications for Australian audiences. and reducing harm from loot boxes and simulated gambling.
“I'm very pleased that we have a government that's acting on the Stevens review and will be taking classification seriously and working with industry to make sure it works. I commend this piece of legislation and congratulate the government and the minister for their commitment to continuing with this process.”
Read the full speech in Hansard ↗ -
Steve Georganas Georganas supports the bill and says Labor welcomes it because it updates an outdated classification schemeThe cooperative system used to classify films, computer games and publications for Australian audiences., makes self-classification easier and cheaper for industry, and gives families clearer guidance.
“I commend this bill to the House. I'd hope that every member would be voting for it. It is a good bill, a bill that makes sense, and a bill that gives families and parents the opportunity to rely on classifications so that they can make informed decisions on what they view as a family or what their children are viewing—and that's always a scary point when you think about it.”
Read the full speech in Hansard ↗ -
Tim Ayres Ayres supports the bill, saying it is the first stage of overdue classification reform and will help the system handle online content more efficiently while improving compliance and access to cultural material.
“This Bill supports the implementation of the first stage of the Government's classification reforms by introducing a number of changes to existing classification arrangements. These changes will improve the capacity of the Scheme to deal with large volumes of online content, promote industry compliance, and increase access to cultural content in public libraries and approved cultural institutions.”
Read the full speech in Hansard ↗ -
Michelle Rowland ★ 2 contributions Rowland supports the bill and says it is the first stage of overdue classification reform that will modernise the scheme, expand industry self-classification, and reduce unnecessary duplication while keeping safeguards in place.
Hansard records 2 separate contributions by Michelle Rowland on this bill. They are grouped here so the speaker is listed once.
Minister's second reading speech
Rowland supports the bill and says it is the first stage of overdue classification reform that will modernise the scheme, expand industry self-classification, and reduce unnecessary duplication while keeping safeguards in place.
“This bill supports the implementation of the first stage of the government's classification reforms by introducing a number of changes to existing classification arrangements. These changes will improve the capacity of the Scheme to deal with large volumes of online content, promote industry compliance, and increase access to cultural content in public libraries and approved cultural institutions.”
Read this contribution in Hansard ↗Second reading speech
Michelle Rowland supports the bill and says it is a long overdue first step in modernising the classification schemeThe cooperative system used to classify films, computer games and publications for Australian audiences. for online media. She argues it will let industry self-classify more content with safeguards, reduce duplication, and make compliance easier.
“This bill is part of the government's first stage of classification reforms. It expands options for industry to self-classify content with appropriate safeguards and oversight of these decisions by the Classification Board. It also extends exemptions from classification for low-risk cultural content and removes the requirement to reclassify material that has already been classified for broadcast television. These reforms will improve the capacity of the scheme to classify growing volumes of online content and make it easier for industry to comply with classification requirements. It also removes unnecessary duplication and introduces a 'classify once' principle for content that has already been classified for broadcast as a step towards harmonising media regulation for a converged media environment.”
Read this contribution in Hansard ↗ -
Anne Stanley Stanley supports the bill as the first stage of the Albanese government's overhaul of the classification system, saying it will modernise an outdated framework, speed up classification and reduce costs while keeping proper safeguards.
“I commend the work of the Minister for Communications, both on the bill that is currently before the House and on the extensive consultation process that is continuing. The Australian community expects a robust, responsive and modern classification framework, and that is what the Albanese government is delivering. I commend the bill to the House.”
Read the full speech in Hansard ↗ -
Carol Brown Brown supports the bill, saying the classification schemeThe cooperative system used to classify films, computer games and publications for Australian audiences. is long overdue for reform and needs to be modernised for online content and a converged media environment.
“These amendments are important and necessary to modernise Australia's National Classification Scheme and ensure that it remains a trusted and reliable source of information to all Australians. Once again, I thank Senator Smith for his contribution and commend this bill to the Senate.”
Read the full speech in Hansard ↗
Coalition
3 speakers · 3 support
Coalition
3 speakers · 3 support
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Pat Conaghan ★ Pat Conaghan says the coalition will support the bill as a good first step to modernise classification and reduce bottlenecks, especially through industry self-classification and a classifies-once approach.
“With that said, I agree with my colleagues that this bill represents a good first step to tackle some of the less contentious issues around classification and I hope to see a more finite detail around the harder aspects of the Stevens review in coming months as the planned phases are rolled out.”
Read the full speech in Hansard ↗ -
David Coleman Coleman says the coalition supports the bill because it modernises the classification system, speeds up processing and lowers costs, while keeping safeguards in place.
“As I said at the outset, the coalition will support this bill. These changes pick up on the work we commenced to update Australia's classification systems. They are also in line with our election commitment that the classifications system should be modernised to keep pace with content being produced today and tomorrow.”
Read the full speech in Hansard ↗ -
Dean Smith Dean Smith says the coalition will support the bill because it modernises Australia’s classification system and implements part of the Stevens review.
“On that basis, the coalition will support the passage of the bill.”
Read the full speech in Hansard ↗
Record
Full record
- Act title
- Classification (Publications, Films and Computer Games) Amendment (Industry Self-Classification and Other Measures) Act 2023
- Act number
- Act No. 65, 2023
- Became law
- 14 Sept 2023
- Takes effect
- The whole of this Act A day or days to be fixed by Proclamation. However, if any of the provisions do not commence within the period of 6 months beginning on the day this Act receives the Royal Assent, they commence on the day after the end of that period.
- Registered
- 15 Sept 2023
- Administered by
- Department of Infrastructure, Transport, Regional Development, Communications, Sport and the Arts
- Royal Assent was 14 Sep 2023; departmental commencement material says the first-stage classification reforms commenced on 15 Mar 2024.
- Final law metadata was collected from APH and commencement was cross-checked against the Act text and departmental commencement source.
- Status
- Act -- Collected from the APH bill page.
- Originating house
- House of Representatives
- 22 June 2023
House · Introduced and read a first time
Introduced
The bill was formally presented to the chamber and read a first time, which starts its parliamentary journey.
- 22 June 2023
House · Second reading moved
Second reading opened
A minister or sponsoring member moved the second reading, opening the main debate on the bill's purpose and principles.
- 01 Aug 2023
House · Second reading debate
Second reading debate
The bill reached this recorded parliamentary step.
- 01 Aug 2023
House · Referred to Federation Chamber
Referred to Federation Chamber
The bill reached this recorded parliamentary step.
- 08 Aug 2023
House · Returned to House for further consideration
Returned to House for further consideration
The bill reached this recorded parliamentary step.
- 09 Aug 2023
House · Second reading debate
Second reading debate
The bill reached this recorded parliamentary step.
- 09 Aug 2023
House · Second reading agreed to
Second reading agreed
The chamber agreed to the bill at second reading, meaning it accepted the bill in principle and allowed it to continue.
- 09 Aug 2023
House · Consideration in detail: amendments considered
Amendment packages agreed
The chamber considered amendments before the bill moved to the next stage.
- 09 Aug 2023
House · Third reading agreed to
Third reading agreed
The chamber agreed to the bill at third reading, which completed passage through that chamber.
- 10 Aug 2023
Senate · Introduced and read a first time
Introduced
The bill was formally presented to the chamber and read a first time, which starts its parliamentary journey.
- 10 Aug 2023
Senate · Second reading moved
Second reading opened
A minister or sponsoring member moved the second reading, opening the main debate on the bill's purpose and principles.
- 04 Sept 2023
Senate · Second reading debate
Second reading debate
The bill reached this recorded parliamentary step.
- 04 Sept 2023
Senate · Second reading agreed to
Second reading agreed
The chamber agreed to the bill at second reading, meaning it accepted the bill in principle and allowed it to continue.
- 04 Sept 2023
Senate · Third reading agreed to
Third reading agreed
The chamber agreed to the bill at third reading, which completed passage through that chamber.
- 04 Sept 2023
Parliament · Finally passed both Houses
Passed both houses
Both houses passed the bill in the same form, completing parliamentary passage.
- 14 Sept 2023
Assent · Assent
Assent
The Governor-General gave Royal Assent, turning the bill into an Act.