Call for more scrutiny
Coalition speakers supported measures to strengthen health-benefit administration but argued the bill’s effects and possible unintended consequences for healthcare professionals should receive Senate inquiry scrutiny.
This bill became law on Sep 4th, 2025.
Health, care & disability
The Act reduces the usual time limit for claims for bulk-billedA billing arrangement where a practitioner accepts the Medicare benefit as full payment so the patient does not pay an out-of-pocket amount for that service. Medicare and dental services from two years to one year, while preserving discretion to accept late claims in appropriate cases.
The bill was introduced to continue the government’s response to the Philip ReviewThe Independent Review of Medicare Integrity and Compliance undertaken by Dr Pradeep Philip. The government cited it as a major reason for the Medicare integrity parts of the Act. of Medicare integrity and compliance, which identified limits in the compliance framework for detecting, investigating and responding to misconduct, fraud and non-compliance in health-benefit schemes. The official materials also say the bill was needed to manage therapeutic-goods shortages more effectively, strengthen enforcement for unlawful therapeutic and vaping goods, and make implementation fixes to the Tobacco Act after the government’s tobacco and vaping reforms.
The Act sits at the intersection of three policy tracks: Medicare integrity reform after the Philip ReviewThe Independent Review of Medicare Integrity and Compliance undertaken by Dr Pradeep Philip. The government cited it as a major reason for the Medicare integrity parts of the Act., therapeutic-goods and vaping enforcement, and implementation of tobacco-product rules. Debate showed broad support for the bill’s integrity purpose, while amendments tried to use the bill to press wider health issues including dental care, prison health, therapeutic-goods approval transparency and Medicare photo identification.
Debate did not show a major party opposing the bill’s core Medicare integrity measures. Criticism mainly focused on whether the bill should have been scrutinised more closely, whether Medicare access and bulk billingA billing arrangement where a practitioner accepts the Medicare benefit as full payment so the patient does not pay an out-of-pocket amount for that service. were worsening despite the bill’s title, and whether the Senate should use the bill to add wider health-policy measures on dental care, custodial health care, photo identification and therapeutic-goods approval transparency.
Senator Katy Gallagher, for the government introduced this bill. It passed on the voices.
Did it become law?
Yes
Became law 04 Sept 2025
Final passage
Passed without a counted vote
5 recorded amendment or procedural votes were found, but no counted vote on the bill itself was recorded.
Passage speed
43 days
From introduction to the latest recorded parliamentary step
Meaning
The Act reduces the usual time limit for claims for bulk-billedA billing arrangement where a practitioner accepts the Medicare benefit as full payment so the patient does not pay an out-of-pocket amount for that service. Medicare and dental services from two years to one year, while preserving discretion to accept late claims in appropriate cases.
The Act broadens Medicare-related investigation powers so authorised officers can use a more consistent set of powers for suspected health-benefit fraud, including relevant Criminal Code offences and Pharmaceutical Benefits SchemeThe Commonwealth scheme that subsidises many medicines. The Act changes some investigative powers and pharmacy approval processes connected to pharmaceutical benefits. fraud offences.
The Act streamlines pharmacy approval decisions under the National Health Act by replacing a two-stage ministerial discretion process with a single-stage process intended to take up to four months.
The Act strengthens administrative inquiry and recovery powers for health-benefit payments, so decision-makers can obtain information about possible non-compliance and recover amounts that should not have been paid.
The Act allows some Professional Services ReviewA Medicare compliance scheme for reviewing possible inappropriate practice by health practitioners. The Act changes how some material obtained through this scheme can be used. material to be used in more proceedings, including where material is referred to AhpraThe Australian Health Practitioner Regulation Agency. The Act allows some PSR-related material referred to Ahpra or a National Board to be used in health practitioner regulatory proceedings. or a National Board because of a significant threat to life or health or possible non-compliance with professional standards.
The Act changes therapeutic-goods law so regulators can respond earlier to medicine, biological and medical-device shortages, including where substitutes may become unavailable or be in short supply in the reasonably foreseeable future.
The Act also updates therapeutic-goods enforcement, vaping-goods rules and tobacco-product rules, including forfeiture arrangements, enforceable directions, state and territory information powers, vaping advertising provisions, sponsorship prohibitions and phase-in rules for tobacco product requirements.
The Bill changes the usual maximum timeframe (from 2 years to 1 year) during which claims relating to bulk-billed Medicare and dental services may be made. ... The Minister ... and the Chief Executive Medicare ... will continue to have discretion to allow claims to be made after 1 year in appropriate circumstances.Explanatory memorandum
The Bill amends the definition of relevant offence ... to enable a single, consistent suite of investigative powers in relation to Medicare fraud offences. The amended definition incorporates a greater number of criminal offences ... and the offences relating to PBS fraud in the National Health Act.Explanatory memorandum
Under the National Health Act 1953, a pharmacist can request that the Minister ... exercise a discretion to approve the supply of pharmaceutical benefits at particular premises. This is currently a two-stage process, which can take up to six months. ... the two-stage process is proposed to be streamlined and condensed into a single-stage process of up to four months.Minister’s second reading speech
These amendments ... are principally intended to improve powers to obtain information about potential non-compliance and readily ascertain amounts that should not have been paid. This will enhance the ability to recover payments if a health service is not performed in accordance with relevant requirements.Explanatory memorandum
This will also allow Ahpra and Health Practitioner Boards to admit evidence in National Law proceedings if it was referred to them under the legislation for the reasons of a significant threat to life or health or non-compliance with professional standards.Minister’s second reading speech
registered goods that could act as a substitute for the goods ... are unavailable or are in short supply; or ... may, in the reasonably foreseeable future, become unavailable or be in short supply.Enacted Act text
The amendments to the Therapeutic Goods Act are principally intended to ... support compliance and enforcement activities ... in relation to both unlawful therapeutic goods and unlawful vaping goods. ... The Bill amends the Tobacco Act to ... ensure corporations are captured by tobacco and e-cigarette sponsorship prohibitions ... clarify the interaction between the Tobacco Act and the Therapeutic Goods Act regarding e-cigarette ... advertising prohibitions.Explanatory memorandum
Context
The Act sits at the intersection of three policy tracks: Medicare integrity reform after the Philip ReviewThe Independent Review of Medicare Integrity and Compliance undertaken by Dr Pradeep Philip. The government cited it as a major reason for the Medicare integrity parts of the Act., therapeutic-goods and vaping enforcement, and implementation of tobacco-product rules. Debate showed broad support for the bill’s integrity purpose, while amendments tried to use the bill to press wider health issues including dental care, prison health, therapeutic-goods approval transparency and Medicare photo identification.
Government commissions Philip ReviewThe Independent Review of Medicare Integrity and Compliance undertaken by Dr Pradeep Philip. The government cited it as a major reason for the Medicare integrity parts of the Act.
Parliamentary debate says the government commissioned the Independent Review of Medicare Integrity and ComplianceThe Independent Review of Medicare Integrity and Compliance undertaken by Dr Pradeep Philip. The government cited it as a major reason for the Medicare integrity parts of the Act. in November 2022 to respond to concerns about the operation of the Medicare system.
Ministerial and Senate second reading speeches ↗First Medicare integrity laws pass
The minister’s second reading speech said two 2023 Professional Services ReviewA Medicare compliance scheme for reviewing possible inappropriate practice by health practitioners. The Act changes how some material obtained through this scheme can be used. Scheme Acts made priority amendments in response to the Philip ReviewThe Independent Review of Medicare Integrity and Compliance undertaken by Dr Pradeep Philip. The government cited it as a major reason for the Medicare integrity parts of the Act..
Minister’s second reading speech ↗Budget flags shorter bulk-bill claim window
The minister’s speech described the one-year bulk-billedA billing arrangement where a practitioner accepts the Medicare benefit as full payment so the patient does not pay an out-of-pocket amount for that service. claims limit as a 2024-25 budget measure, and the explanatory memorandum said the measure was expected to save up to $33.6 million.
Minister’s speech and explanatory memorandum ↗Tobacco Act starts operating
The second reading speech said the Public Health (Tobacco and Other Products) Act 2023 commenced on 1 April 2024, and this bill made implementation amendments to clarify its intended operation.
Minister’s second reading speech ↗Health ministers release prison health review
Senator McAllister told the Senate that health ministers endorsed the release of the independent National Review of First Nations Health Care in Prisons and a joint response, which became part of the debate on Senator Thorpe’s amendments.
Senate debate ↗Health groups consulted on integrity measures
The explanatory memorandum says the department engaged with more than 30 health professional organisations and peak bodies about the Medicare integrity measures during January and June 2025.
Explanatory memorandum ↗Government introduces the bill
Senator Katy Gallagher introduced the bill in the Senate with measures covering Medicare integrity, pharmacy approvals, therapeutic-goods shortages, vaping enforcement and tobacco implementation fixes.
APH bill page and minister’s speech ↗Senate rejects proposed amendments
The Senate defeated amendments on senior dental benefits, prison health care, therapeutic-goods approval instruments and Medicare photo ID before passing the bill without amendment.
Senate divisions and amendment sheets ↗Legislative route
The government introduced the bill in the Senate.
Introduced and read a first time
The chamber opened debate on the bill’s purpose and principles.
Second reading moved
Members or senators debated the bill and, in the Senate, proposed amendments on dental care, prison health, therapeutic-goods approvals and Medicare photo identification.
Members or senators debated the bill and, in the Senate, proposed amendments on dental care, prison health, therapeutic-goods approvals and Medicare photo identification.
The chamber agreed to the bill at second reading, allowing it to proceed.
Second reading agreed to
The Senate considered committee-stage amendments before the bill was reported without amendment.
Committee of the Whole debate
The Senate considered committee-stage amendments before the bill was reported without amendment.
Committee of the Whole debate
The chamber passed the bill at third reading.
Third reading agreed to
The bill was formally presented to the chamber and read a first time, which starts its parliamentary journey.
Introduced and read a first time
The chamber opened debate on the bill’s purpose and principles.
Second reading moved
Members or senators debated the bill and, in the Senate, proposed amendments on dental care, prison health, therapeutic-goods approvals and Medicare photo identification.
The available local material confirms scrutiny committee consideration but does not provide enough detail to summarise any committee concerns.
Considered
APH bill page notesMembers or senators debated the bill and, in the Senate, proposed amendments on dental care, prison health, therapeutic-goods approvals and Medicare photo identification.
The chamber agreed to the bill at second reading, allowing it to proceed.
Second reading agreed to
The chamber passed the bill at third reading.
Third reading agreed to
Both houses passed the same text, completing parliamentary passage.
Finally passed both Houses
Royal Assent turned the bill into the Health Legislation Amendment (Improved Medicare Integrity and Other Measures) Act 2025.
Assent
Key criticism
Debate did not show a major party opposing the bill’s core Medicare integrity measures. Criticism mainly focused on whether the bill should have been scrutinised more closely, whether Medicare access and bulk billingA billing arrangement where a practitioner accepts the Medicare benefit as full payment so the patient does not pay an out-of-pocket amount for that service. were worsening despite the bill’s title, and whether the Senate should use the bill to add wider health-policy measures on dental care, custodial health care, photo identification and therapeutic-goods approval transparency.
Coalition speakers said they supported stronger administration of health-benefit schemes but wanted more scrutiny and used the debate to criticise the government’s wider Medicare record. Greens, independent and One Nation amendments were defeated and did not change the Act.
Call for more scrutiny
Coalition speakers supported measures to strengthen health-benefit administration but argued the bill’s effects and possible unintended consequences for healthcare professionals should receive Senate inquiry scrutiny.
Medicare access concerns
Opposition speakers used the debate to argue that bulk billingA billing arrangement where a practitioner accepts the Medicare benefit as full payment so the patient does not pay an out-of-pocket amount for that service. and out-of-pocket costs had worsened, while government speakers argued the bill protected Medicare by improving payment integrity and compliance.
Dental care outside Medicare
Greens speakers argued that Medicare could not be universal while dental care remained excluded, and Senator Steele-John moved a defeated amendment calling for a Senior Dental Benefits Scheme.
Health care in custody
Senator Thorpe argued the bill should address health care for First Peoples and other people in custody, including access to Medicare-equivalent services and pharmaceutical benefits in prisons.
Fraud controls and transparency
One Nation amendments sought government photographic identification for Medicare benefits and legislative-instrument treatment for certain therapeutic-goods approvals; both were defeated.
Further sources
Votes
The bill passed both chambers on the voices. The counted divisions below were about amendments or procedure, not final passage.
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 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.
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 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 grouped by chamber. These cards include amendment outcomes recorded without a counted division.
Senate
Moved by Jordon Steele-John (Australian Greens). Defeated 14 to 38. Support came from Greens, Australia's Voice, and minor parties and independents. Opposition came from Labor, Liberal Party, One Nation, UAP, and minor parties and independents.
The vote left the bill to proceed without adding the Greens’ requested statement on seniors dental care.
Moved by Lidia Thorpe (Crossbench). Defeated 13 to 34. Support came from Greens and Australia's Voice. Opposition came from Labor, Liberal Party, One Nation, UAP, and minor parties and independents. Minor-party and independent votes were split.
The vote left the bill to proceed without adding Senator Thorpe’s requested statement on health care for people in custody.
Moved by Malcolm Roberts (Pauline Hanson's One Nation). Defeated 5 to 45. Support came from One Nation, UAP, and minor parties and independents. Opposition came from Labor, Greens, Liberal Party, Australia's Voice, and minor parties and independents.
The vote kept the bill’s existing approach to therapeutic goods shortage approvals rather than requiring those approvals to be legislative instruments.
Moved by Lidia Thorpe (Crossbench). Defeated 13 to 35. Support came from Greens and Australia's Voice. Opposition came from Labor, Liberal Party, One Nation, UAP, and minor parties and independents. Minor-party and independent votes were split.
The vote meant the bill did not add the requested Medicare benefit pathway for specified custodial health services.
Moved by Pauline Hanson (Pauline Hanson's One Nation). Defeated 5 to 39. Support came from One Nation, UAP, and minor parties and independents. Opposition came from Labor, Greens, Liberal Party, Australia's Voice, and minor parties and independents.
The vote meant the bill did not add a photo-identification condition to Medicare benefit payments.
The Senate defeated Senator Thorpe’s amendment on voices; it would have required special arrangements for pharmaceutical benefits in prisons and places of detention.
Defeated on voices
The chamber decided this amendment without a counted division, so there is no list of individual Aye and No votes.
These are amendment votes, not the final passage vote on the bill itself. The bill passed both chambers on the voices.
Parliamentary debate
Start here — lead voices
All speeches by bloc
27 speakers · 31 contributions · 27 unclear
Hansard records 2 separate contributions by Rebecca White on this bill. They are grouped here so the speaker is listed once.
Second reading speech
Read this contribution in Hansard ↗Second reading speech
Read this contribution in Hansard ↗Hansard records 2 separate contributions by Marielle Smith on this bill. They are grouped here so the speaker is listed once.
Second reading speech
Read this contribution in Hansard ↗Second reading speech
Read this contribution in Hansard ↗Hansard records 2 separate contributions by Dorinda Cox on this bill. They are grouped here so the speaker is listed once.
Second reading speech
Read this contribution in Hansard ↗Second reading speech
Read this contribution in Hansard ↗Hansard records 2 separate contributions by Claire Clutterham on this bill. They are grouped here so the speaker is listed once.
Second reading speech
Read this contribution in Hansard ↗Second reading speech
Read this contribution in Hansard ↗12 speakers · 12 unclear
2 speakers · 2 unclear
3 speakers · 5 contributions · 3 unclear
Hansard records 2 separate contributions by Monique Ryan on this bill. They are grouped here so the speaker is listed once.
Second reading speech
Read this contribution in Hansard ↗Second reading speech
Read this contribution in Hansard ↗Hansard records 2 separate contributions by Lidia Thorpe, including an amendment-moving contribution. They are grouped here so the speaker is listed once.
Second reading speech
Read this contribution in Hansard ↗Moved amendment
Read this contribution in Hansard ↗Record
Senate · Introduced and read a first time
Introduced in the Senate
The government introduced the bill in the Senate.
Senate · Second reading moved
Second reading opened
The chamber opened debate on the bill’s purpose and principles.
Senate · Second reading debate
Second reading debate
Members or senators debated the bill and, in the Senate, proposed amendments on dental care, prison health, therapeutic-goods approvals and Medicare photo identification.
Senate · Second reading debate
Second reading debate
Members or senators debated the bill and, in the Senate, proposed amendments on dental care, prison health, therapeutic-goods approvals and Medicare photo identification.
Senate · Second reading agreed to
Senate agreed in principle
The chamber agreed to the bill at second reading, allowing it to proceed.
Senate · Committee of the Whole debate
Senate considered amendments
The Senate considered committee-stage amendments before the bill was reported without amendment.
Senate · Committee of the Whole debate
Senate considered amendments
The Senate considered committee-stage amendments before the bill was reported without amendment.
Senate · Third reading agreed to
Senate passed the bill
The chamber passed the bill at third reading.
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
The chamber opened debate on the bill’s purpose and principles.
House · Second reading debate
Second reading debate
Members or senators debated the bill and, in the Senate, proposed amendments on dental care, prison health, therapeutic-goods approvals and Medicare photo identification.
House · Second reading debate
Second reading debate
Members or senators debated the bill and, in the Senate, proposed amendments on dental care, prison health, therapeutic-goods approvals and Medicare photo identification.
House · Second reading agreed to
House agreed in principle
The chamber agreed to the bill at second reading, allowing it to proceed.
House · Third reading agreed to
House passed the bill
The chamber passed the bill at third reading.
Parliament · Finally passed both Houses
Passed both houses
Both houses passed the same text, completing parliamentary passage.
Assent · Assent
Royal Assent
Royal Assent turned the bill into the Health Legislation Amendment (Improved Medicare Integrity and Other Measures) Act 2025.
Senate Standing Committee for the Scrutiny of Bills
Considered
The available local material confirms scrutiny committee consideration but does not provide enough detail to summarise any committee concerns.
The APH source notes say the bill was considered in Scrutiny Digest 4 of 2025. The local source bundle does not include the committee’s detailed comments.
APH bill page notes