This bill did not become law and is no longer proceeding.
Welfare & housing
Australia would get an independent National Housing Supply and Affordability CouncilThe proposed independent body that would advise the federal government on housing supply, affordability and related planning. to give the federal government expert advice on how to improve housing supply and make housing more affordable.
Housing policy was being guided by an interim bodyA temporary advisory group that was doing the job before this bill tried to set up a permanent council., leaving no permanent independent council to research supply and affordability problems, improve housing data, and advise on Housing Australia Future FundA federal housing fund the council would advise on, especially when money is being allocated through the budget process. spending. This bill creates a permanent council that can investigate housing issues, report to the minister on its own initiative, and advise on funding priorities and national planning.
After the government announced a housing package in the October 2022-23 budget, federal housing policy was still relying on an interim advisory body even as MPs described a national housing crisis marked by record-low rental vacancies, rising rents and growing homelessness. The bill responded by trying to replace that temporary setup with a permanent independent council to research supply and affordability and advise on Housing Australia Future FundA federal housing fund the council would advise on, especially when money is being allocated through the budget process. priorities, but it was introduced on 2 August 2023 and then lapsed when Parliament was dissolved on 28 March 2025.
The main criticism was that the bill set up a useful advisory body but did not do enough on its own to guarantee strong independence, accountability or representation of the communities most affected by the housing crisis. Those concerns came mainly from crossbenchMPs and senators who are not in the main government or opposition parties, often including independents and minor parties. and independent MPs who still backed the bill, while Coalition speakers largely supported it but warned appointments should go to practical housing and planning experts.
Hon Julie Collins MP introduced this bill. Speeches supporting it came from Labor, Greens, Jacqui Lambie Network.
Did it become law?
No
The bill did not complete passage through Parliament.
Final passage
No final passage
The bill has not completed passage and is no longer proceeding.
Time before failure
604 days
From introduction to the final recorded step before the bill stopped proceeding
Meaning
Australia would get an independent National Housing Supply and Affordability CouncilThe proposed independent body that would advise the federal government on housing supply, affordability and related planning. to give the federal government expert advice on how to improve housing supply and make housing more affordable.
The National Housing Supply and Affordability CouncilThe proposed independent body that would advise the federal government on housing supply, affordability and related planning. would be able to research housing issues and report to the minister both when asked and on its own initiative.
The National Housing Supply and Affordability CouncilThe proposed independent body that would advise the federal government on housing supply, affordability and related planning. would advise the housing minister on how money from the Housing Australia Future FundA federal housing fund the council would advise on, especially when money is being allocated through the budget process. should be allocated through the budget processThe government process for deciding how public money is allocated each year..
The new council would replace the interim bodyA temporary advisory group that was doing the job before this bill tried to set up a permanent council. with a permanent panel of 6 to 9 appointed members and a TreasuryThe Commonwealth department that manages economic and budget advice, and would have a representative on the council. representative.
The National Housing Supply and Affordability CouncilThe proposed independent body that would advise the federal government on housing supply, affordability and related planning. would work with governments and other groups to improve national housing data and help shape the National Housing and Homelessness PlanThe national planning document the council would help shape for housing and homelessness policy..
The Housing Council Bill establishes the Council as an independent statutory advisory body to inform the Commonwealth’s approach to housing policy by delivering independent advice to the Government on options to improve housing supply and affordability across the housing spectrum.National Housing Supply and Affordability Council explanatory memorandum
The council will help the Commonwealth play a leadership role in improving housing supply and affordability. In addition to providing independent expert advice to government, the council will research and report on matters relating to housing supply and affordability. Both advice and reporting may be requested by the minister, and the council will have the discretion to initiate its own research and reporting to the minister.Minister's second reading speech
As well as its reporting and general advisory role, the council will provide advice to the minister on the allocation of disbursements from the Housing Australia Future Fund. This advice will inform government consideration of disbursements as part of the annual budget process.Minister's second reading speech
Following passage of this bill or from 1 July 2023, the interim council will cease, and the council will commence operating as an independent statutory advisory body. The permanent council will consist of a minimum of six and up to a maximum of nine appointed members with skills and experience in a range of fields relating to housing supply and affordability. Increasing the potential number of appointed council members (compared to the interim council) responds to stakeholder feedback to ensure that there is the right range of skills and experience on the council. The council will also include an ex officio member from the Commonwealth Treasury.Minister's second reading speech
An important function of the council will be to work collaboratively with other Commonwealth bodies, state, territory and local governments, and other stakeholders, to support the collection and publication of nationally consistent data on housing supply and affordability.Minister's second reading speech
Context
After the government announced a housing package in the October 2022-23 budget, federal housing policy was still relying on an interim advisory body even as MPs described a national housing crisis marked by record-low rental vacancies, rising rents and growing homelessness. The bill responded by trying to replace that temporary setup with a permanent independent council to research supply and affordability and advise on Housing Australia Future FundA federal housing fund the council would advise on, especially when money is being allocated through the budget process. priorities, but it was introduced on 2 August 2023 and then lapsed when Parliament was dissolved on 28 March 2025.
Budget announces a new housing package and council plan
The minister later told Parliament that creating the council was announced as part of the Safer and More Affordable Housing measure in the October 2022-23 budget.
Hansard ↗Parliament debates a housing crisis with record-low rental vacancies
During debate on the housing package, MPs described a national housing crisis and cited a 0.9 per cent rental vacancy rateThe share of rental homes that are empty, used here as a sign of how tight the rental market is. and sharp rent increases as signs of worsening pressure.
Hansard ↗Bill introduced to replace the interim housing advisory body
The bill was introduced to establish a permanent independent National Housing Supply and Affordability CouncilThe proposed independent body that would advise the federal government on housing supply, affordability and related planning. to advise government on housing supply, affordability and Housing Australia Future FundA federal housing fund the council would advise on, especially when money is being allocated through the budget process. priorities.
Parliamentary timeline ↗Bill lapses when Parliament is dissolved
Because the bill had not completed its passage before dissolution, the proposed permanent council was not created by this measure.
Parliamentary timeline ↗Legislative route
The bill was formally presented to the chamber and read a first time, which starts its parliamentary journey.
Introduced and read a first time
A minister or sponsoring member moved the second reading, opening the main debate on the bill's purpose and principles.
Second reading moved
Referred to Committee (10/08/2023): Senate Economics Legislation Committee; Committee report (24/10/2023)
Referred to committee
APH bill page notesThe bill reached this recorded parliamentary step.
Key criticism
The main criticism was that the bill set up a useful advisory body but did not do enough on its own to guarantee strong independence, accountability or representation of the communities most affected by the housing crisis. Those concerns came mainly from crossbenchMPs and senators who are not in the main government or opposition parties, often including independents and minor parties. and independent MPs who still backed the bill, while Coalition speakers largely supported it but warned appointments should go to practical housing and planning experts.
Criticism was limited and mostly about design safeguards, appointments and coverage rather than opposition to the council itself.
Independence and accountability safeguards
Some crossbenchMPs and senators who are not in the main government or opposition parties, often including independents and minor parties. MPs argued the council needed stronger independence, clearer governance and better accountability so it would not become another advisory body without enough transparency or a clear role.
Appointments could be too political or too narrow
Coalition and independent speakers warned the council would only be credible if members were chosen for real housing, planning and industry expertise, rather than for political connections or an overly narrow insider perspective.
Regional needs might be overlooked
Helen Haines argued the bill should more clearly protect regional, rural and remote interests, warning those areas could miss out if the council's work, infrastructure thinking and reporting were not explicitly designed to cover them.
Further sources
Votes
No recorded votes were found before this bill stopped proceeding.
Parliamentary debate
Start here — lead voices
Collins supports the bill, saying it will create an independent housing council to give expert advice, improve nationally consistent data, and help shape a national housing and homelessness planThe national planning document the council would help shape for housing and homelessness policy..
Read in Hansard ↗Gerard Rennick opposes the bill, saying the proposed housing fund is just a risky financial gamble that will not solve the shortage.
Read in Hansard ↗Waters says the Greens will let the bill pass, but only after forcing the government to add $3 billion in direct social and affordable housingHomes that are cheaper than market rent and aimed at people who cannot easily afford private housing. funding and to put renters' rights on the agenda.
Read in Hansard ↗Tyrrell supports the bill and says the crossbenchMPs and senators who are not in the main government or opposition parties, often including independents and minor parties. improvements make it much better, especially the guaranteed 1,200 homes for Tasmania.
Read in Hansard ↗All speeches by bloc
12 speakers · 11 support · 1 unclear
“The housing council bill establishes the National Housing Supply and Affordability Council. This will be an independent statutory advisory body which will inform the government's approach to housing policy by delivering independent advice on housing supply and affordability.”Read the full speech in Hansard ↗
“We've gone on to establish the National Housing Supply and Affordability Council and we've given it the status of an independent statutory advisory body. The council has a critical role. It's going to inform the Commonwealth's approach to housing policy by delivering independent advice to the government on housing supply and affordability, and that will assist renters. So any discussion here in the chamber that tries to suggest one party as the champions of renters is creating a myth that should not be allowed to stand. Supply is the answer for everybody in Australia who needs a house, whether it's one that they purchased through a mortgage, one that they live in mortgage-free, one that they aspire to have and are saving towards or one that they live in as a renter.”Read the full speech in Hansard ↗
“So, combined, this bill will see 30,000 social and affordable homes built in the next five years. That's what those opposite will be voting against. Let's be very clear: that's 30,000 social and affordable homes over the next five years—homes for victims of domestic violence and homes for essential workers priced out of their own communities—and those opposite are going to vote against it.”Read the full speech in Hansard ↗
“Nevertheless, it's a relief to have this legislation on its way to being passed in the parliament. Unfortunately, we cannot solve all the problems Australia's housing market faces overnight, nor can the Labor government undo in one year what has been 10 years of delay and neglect by the coalition government more focused on themselves than on Australia. But what we can do is take the massive $10 billion investment in the form of the Housing Australia Future Fund that will deliver 20,000 new social rentals the first five years plus 10,000 affordable homes and run with it. That will make a difference; that will have an impact. It is for that reason I'm pleased that senators in this place will work with the government on this reform and not stand in the way of delivering a better life for Australians who are homeless or on the brink of homelessness.”Read the full speech in Hansard ↗
“These bills will make a real difference in the lives of thousands of Tasmanians. The wait time for social housing in Tasmania has blown out because we simply do not have enough houses to meet the demand. In places around Australia that are facing the same problem, this suite of bills will help to combat this.”Read the full speech in Hansard ↗
“I hope the Senate will support this bill.”Read the full speech in Hansard ↗
“We are here today to bring forward a coherent housing policy for our nation, for which Labor has done a great deal of work and for which this bill is the next plank. It's a strong reason all our nation states, as well as the Northern Territory and the ACT, have been so firmly onboard with this bill.”Read the full speech in Hansard ↗
“The National Housing Supply and Affordability Council Bill 2023 establishes the National Housing Supply and Affordability Council as an independent statutory advisory body with independence a central feature of its operation. The council will inform the Commonwealth's approach to housing policy by delivering independent advice to the government on housing supply and affordability. Establishing the council will ensure that the Commonwealth can play a leadership role in improving housing supply and affordability.”Read the full speech in Hansard ↗
“The passage of the Housing Australia Future Fund Bill will be an incredibly important step forward and a moment for this place to really fight to turn the tide on housing affordability in this country.”Read the full speech in Hansard ↗
“It's clear what the Senate now needs to do, and that is end the delays and support these bills right now.”Read the full speech in Hansard ↗
“The National Housing Supply and Affordability Council Bill 2023 (bill) establishes the National Housing Supply and Affordability Council (council) as an independent statutory advisory body. The council will inform the Commonwealth's approach to housing policy by delivering independent advice to the government on housing supply and affordability.”Read the full speech in Hansard ↗
“I am delighted to stand here and support these bills, these bills that are going to fundamentally make a difference. Is a gambling? No. We have a range of this type of funding across government that has been running well for many years, thank you very much. All of the scaremongering and the hoo-ha is just a disgrace. This is just political grandstanding. We are standing here with a series of bills and a policy that are going to make a fundamental difference to housing in this country, and that is something we should all get behind.”Read the full speech in Hansard ↗
8 speakers · 6 oppose · 1 mixed · 1 unclear
“So I say to the Labor Party: don't move this bill—this bill is silly and you have to change your mind. This is not the way forward.”Read the full speech in Hansard ↗
“I rise to speak on the Housing Australia Future Fund Bill 2023 and related bills. The coalition does not support these bills, and not for the reasons Senator Sheldon just outlined.”Read the full speech in Hansard ↗
“This, in isolation, would potentially be something that the coalition could support. Let's be honest: this Labor government seems to have absolutely no idea of their own on housing, so the idea of having a body that can provide them with some advice is not perhaps the worst one that has come before this chamber. That said, there are still questions to answer on this, and the first one that pops to mind of course is why does the government not have faith in the Treasury to provide that independent advice?”Read the full speech in Hansard ↗
“I think it is a very disappointing outcome and will be voting against this bill.”Read the full speech in Hansard ↗
“The bill lacks crucial detail for Australians in a number of ways, and it fails to define key terms, including probably the three most important. Those opposite have not defined social housing. That's a bit of a surprise in legislation that they're saying will assist social housing. They haven't defined affordable housing. Again, there's no definition of social housing, no definition of affordable housing and no definition of acute housing. I cannot believe that the Greens have struck a deal with Labor on something they care so passionately about when the legislation doesn't define social housing, doesn't define affordable housing and does not define acute housing.”Read the full speech in Hansard ↗
“This will cause some good, I grant you that, but not for some time. Don't sell it as an answer to everything, because really it's an answer to very little.”Read the full speech in Hansard ↗
“This bill is an absolute con job. It is an attempt to make a claim of spending $10 billion on housing when in actual fact this government will be doing no such thing.”Read the full speech in Hansard ↗
“We're voting against this bill because it is bad policy.”Read the full speech in Hansard ↗
6 speakers · 5 support · 1 unclear
“So we now have an additional $3 billion of direct funding to go to build social and affordable housing. Of course, $2 billion of that was announced with the Social Housing Accelerator a couple of months back, and then just yesterday a further $1 billion was announced by the Prime Minister as a result of negotiation with the Greens. This is in addition, of course, to the agreement to have a minimum spend of $500 million from the Housing Australia Future Fund, even if the gamble on the stock market doesn't pay off for you that year. What we've really shown is that pressure works. We have secured an additional $3 billion for social and affordable homes, building thousands of homes for low-income renters, and we will now allow the HAFF to pass through the Senate this sitting week.”Read the full speech in Hansard ↗
“We're going to support the passage of these bills this week, but we are putting the government on notice. The Greens absolutely are now turning our attention to fighting for the rights of renters—renters who have been left behind by these bills.”Read the full speech in Hansard ↗
“I rise to speak on this Housing Australia Future Fund Bill 2023. At the outset, I want to commend the work that the member for Griffith has done over months and months on this bill in building pressure on the government.”Read the full speech in Hansard ↗
“So I say to Senator Lambie and Senator Tyrrell, I say to the Labor Party, I say to the LNP opposition and I say to all the media and political pundits around the country who said that we should simply roll over and pass Labor's package unamended: there are three billion reasons why you were wrong. Pressure works, and you will never see a better example of that than this evening.”Read the full speech in Hansard ↗
“Together, we took on an intransigent, corporate owned government and extracted $3 billion and vital changes to the program, and we will continue until rents are frozen and affordable.”Read the full speech in Hansard ↗
“Solutions for our housing crisis demand action, particularly in relation to our most vulnerable citizens. The scale of the crisis for renters, for those who want to buy and for people without homes of any kind is huge. The proposals before us—the HAFF and the $3 billion on the table, resulting from pressure from the Greens—are not enough, but they are an important advance on what we had nine months ago. We need to fight on, and we will, for rent caps and for more public housing, but I point out that, without our efforts today—the work of Greens campaigners in cities and regions across our country and the actions within this parliament and place, pushing hard—we would not have the propositions that we have before us this evening.”Read the full speech in Hansard ↗
1 speaker · 1 oppose
“These bills do not address the cause of the national housing and rental crisis and, in terms of increasing housing supply, they are worthless. One Nation will not support this legislation.”Read the full speech in Hansard ↗
1 speaker · 1 support
“It's not where I would have started. But, for where we've ended up, I'm over the moon. This will mean so much for those who need it. I won't delay it a minute longer.”Read the full speech in Hansard ↗
Record
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.
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.
House · Lapsed at dissolution
Lapsed at dissolution
The bill reached this recorded parliamentary step.
Senate Economics Legislation Committee; Committee report (24/10/2023)
Referred to committee
Referred to Committee (10 Aug 2023): Senate Economics Legislation Committee; Committee report (24 Oct 2023)
APH bill page notes
