This bill became law on Aug 28th, 2025.
Education & skills
The Act is the companion law for the National Higher Education CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. to Prevent and Respond to Gender-based ViolenceViolence, harassment or harmful conduct linked to gender. In this bill package, the term is used for higher education settings, including campuses, work and study environments, and student accommodation..
The bill was introduced because the government was creating a new National Higher Education CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. to Prevent and Respond to Gender-based ViolenceViolence, harassment or harmful conduct linked to gender. In this bill package, the term is used for higher education settings, including campuses, work and study environments, and student accommodation. and needed related changes in higher education funding law. The explanatory memorandum says the broader package responded to evidence that sexual violence and harassment continued at significant rates in higher education, that many students and staff did not know where to seek support or make complaints, and that providers needed stronger accountability. This consequential Act makes compliance with the National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. a quality and accountability requirement under the Higher Education Support ActThe law that governs Commonwealth support and approval arrangements for higher education providers. This consequential Act adds National Code compliance as a quality and accountability requirement under that law., giving the government another tool where serious or sustained non-compliance occurs.
The Act sits inside a wider reform package on gender-based violenceViolence, harassment or harmful conduct linked to gender. In this bill package, the term is used for higher education settings, including campuses, work and study environments, and student accommodation. in Australian higher education. The collected official record links the package to years of evidence about sexual assault and harassment on campus, the Universities Accord process, the Action Plan agreed by education ministers, and the new National Student OmbudsmanA national complaints body for higher education students. The bill materials describe it as another key measure of the Action Plan, alongside the National Code.. The main Act creates the code and enforcement framework; this consequential Act makes code compliance matter under the Higher Education Support ActThe law that governs Commonwealth support and approval arrangements for higher education providers. This consequential Act adds National Code compliance as a quality and accountability requirement under that law..
Most speakers supported the bill's goal, so criticism focused on whether the package was complete and how it would be administered. Coalition speakers argued the government should also create a campus antisemitism code and should have strengthened TEQSA rather than putting a specialist unit inside the Department of Education. Some crossbench speakers supported the bill but warned that delegated legislation, data sharing, accommodation-provider obligations and practical resourcing would determine whether the code worked.
Senator Katy Gallagher, for the government introduced this bill. It passed on the voices.
Did it become law?
Yes
Became law 28 Aug 2025
Final passage
Passed without a counted vote
1 recorded amendment or procedural vote was found, but no counted vote on the bill itself was recorded.
Passage speed
36 days
From introduction to the latest recorded parliamentary step
Meaning
The Act is the companion law for the National Higher Education CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. to Prevent and Respond to Gender-based ViolenceViolence, harassment or harmful conduct linked to gender. In this bill package, the term is used for higher education settings, including campuses, work and study environments, and student accommodation.. It does not set the detailed code itself; it makes compliance with that code a condition in higher education funding law.
The change applies to higher education providers covered by the main National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. Act. Those providers must comply with the National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. once the new Higher Education Support ActThe law that governs Commonwealth support and approval arrangements for higher education providers. This consequential Act adds National Code compliance as a quality and accountability requirement under that law. requirement starts applying to them.
If a provider seriously or persistently fails to comply with the National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument., that failure can also affect the provider's approval under the Higher Education Support ActThe law that governs Commonwealth support and approval arrangements for higher education providers. This consequential Act adds National Code compliance as a quality and accountability requirement under that law., including possible suspension or revocation by the Minister for Education.
The new Higher Education Support ActThe law that governs Commonwealth support and approval arrangements for higher education providers. This consequential Act adds National Code compliance as a quality and accountability requirement under that law. requirement starts for Table A and Table B providersCategories of Australian higher education providers listed in the Higher Education Support Act. The new requirement starts for these providers on 1 January 2026. on 1 January 2026, and for other covered providers on 1 January 2027.
The companion National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. framework is aimed at preventing and responding to gender-based violenceViolence, harassment or harmful conduct linked to gender. In this bill package, the term is used for higher education settings, including campuses, work and study environments, and student accommodation. in higher education, including through provider accountability, student accommodation obligations, reporting, and a specialist unit in the Department of Education.
The government said the package responds to evidence that sexual violence and harassment continue in higher education communities, and that many students and staff do not know where to seek support or are dissatisfied with complaint processes.
The bill passed both Houses without any recorded amendment to its operative provisions. A Senate Opposition second-reading amendmentA parliamentary amendment to the motion that a bill be read a second time. It usually adds a statement or criticism to the debate motion rather than directly changing the bill text. calling for an additional higher education code on antisemitism was defeated 25 votes to 33.
The Act received Royal Assent on 28 August 2025. Because it depended on the main National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. Act, and that Act commenced on 29 August 2025, this consequential Act also took effect on 29 August 2025.
The Consequential Bill amends the Higher Education Support Act 2003 (HESA) to make compliance with the National Code a quality and accountability requirement for higher education providers approved under HESA.Explanatory memorandum
A higher education provider that is a higher education provider within the meaning of the Universities Accord (National Higher Education Code to Prevent and Respond to Gender-based Violence) Act 2025 must comply with the National Higher Education Code.Bill text as passed by both Houses
This means that a higher education provider’s non-compliance with National Code may also have consequences for that provider’s approval under HESA. For example, the Minister for Education could take action to suspend or revoke a provider’s approval under Division 22 of HESA.Explanatory memorandum
This section begins to apply to a higher education provider: (a) if the provider is a Table A provider or a Table B provider—on 1 January 2026; or (b) otherwise—on 1 January 2027.Bill text as passed by both Houses
The Bill will establish a new standalone regulatory framework which seeks to reduce the incidence of gender-based violence, prioritise safety, proactively strengthen prevention efforts, improve the response to gender-based violence and hold providers accountable for their performance, including in student accommodation.Explanatory memorandum
Over the last several years evidence has shown that gender-based violence – and in particular sexual violence and harassment – continues to occur in higher education communities at significant rates. Many students and staff do not know where to seek support or make a formal complaint to their higher education provider, and those that do are often dissatisfied with the process.Explanatory memorandum
Question—That the amendment be agreed to—put. The Senate divided— AYES, 25 Senators— ... NOES, 33 Senators— ... Question negatived. Main question put and passed.Senate Journal, 31 July 2025
The whole of this Act The later of: (a) the start of the day after this Act receives the Royal Assent; and (b) the commencement of the Universities Accord (National Higher Education Code to Prevent and Respond to Gender-based Violence) Act 2025.Bill text as passed by both Houses
Context
The Act sits inside a wider reform package on gender-based violenceViolence, harassment or harmful conduct linked to gender. In this bill package, the term is used for higher education settings, including campuses, work and study environments, and student accommodation. in Australian higher education. The collected official record links the package to years of evidence about sexual assault and harassment on campus, the Universities Accord process, the Action Plan agreed by education ministers, and the new National Student OmbudsmanA national complaints body for higher education students. The bill materials describe it as another key measure of the Action Plan, alongside the National Code.. The main Act creates the code and enforcement framework; this consequential Act makes code compliance matter under the Higher Education Support ActThe law that governs Commonwealth support and approval arrangements for higher education providers. This consequential Act adds National Code compliance as a quality and accountability requirement under that law..
Human Rights Commission documents campus sexual violence
Several speakers pointed to the Australian Human Rights Commission's Change the course report as an early national marker showing sexual assault and sexual harassment at Australian universities and recommending stronger university action.
House of Representatives Hansard, 25 August 2025 ↗National student survey reinforces safety concerns
Speakers repeatedly cited the 2021 National Student Safety Survey, including figures that one in 20 students reported sexual assault and one in six reported sexual harassment in a university context.
Senate and House debate speeches ↗Draft action plan consultation begins
The explanatory memorandum says public consultation on the idea of a National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. occurred as part of consultation on the draft Action Plan, including targeted consultation with students, victim-survivor advocates, experts, the higher education sector and agencies.
Explanatory memorandum ↗Education ministers agree the action plan
The explanatory memorandum says all education ministers agreed to the Action Plan Addressing Gender-based ViolenceViolence, harassment or harmful conduct linked to gender. In this bill package, the term is used for higher education settings, including campuses, work and study environments, and student accommodation. in Higher Education, with the National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. and National Student OmbudsmanA national complaints body for higher education students. The bill materials describe it as another key measure of the Action Plan, alongside the National Code. as key measures.
Explanatory memorandum ↗Draft code consultation tests the regulatory model
Further public consultation considered the draft National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. and proposed monitoring and enforcement framework, with targeted consultation continuing through June to August 2024 and an Expert Reference Group.
Explanatory memorandum ↗National Student OmbudsmanA national complaints body for higher education students. The bill materials describe it as another key measure of the Action Plan, alongside the National Code. opens to students
The explanatory memorandum says the National Student OmbudsmanA national complaints body for higher education students. The bill materials describe it as another key measure of the Action Plan, alongside the National Code. commenced on 1 February 2025, giving higher education students a way to escalate complaints about providers, including gender-based violenceViolence, harassment or harmful conduct linked to gender. In this bill package, the term is used for higher education settings, including campuses, work and study environments, and student accommodation. complaints.
Explanatory memorandum ↗Government reintroduces the code package
Senator Katy Gallagher introduced the main National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. bill and this consequential bill in the Senate for the re-elected government.
APH bill page and Senate second-reading speech ↗Senate rejects separate antisemitism code call
The Senate defeated Senator Duniam's Opposition second-reading amendmentA parliamentary amendment to the motion that a bill be read a second time. It usually adds a statement or criticism to the debate motion rather than directly changing the bill text., which urged the government to establish an additional higher education code to prevent and respond to antisemitism, by 25 votes to 33.
Senate Journal, 31 July 2025 ↗Legislative route
The government introduced the bill in the Senate as the consequential companion to the main National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. bill.
Introduced and read a first time
Debate opened on the bill's purpose and principles.
Members or senators debated the bill and its companion National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. framework.
Members or senators debated the bill and its companion National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. framework.
Members or senators debated the bill and its companion National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. framework.
The chamber accepted the bill in principle and allowed it to proceed.
Second reading agreed to
The chamber passed the bill at third reading.
Third reading agreed to
The Senate bill was introduced in the House after passing the Senate.
Introduced and read a first time
Debate opened on the bill's purpose and principles.
Members or senators debated the bill and its companion National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. framework.
Members or senators debated the bill and its companion National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. framework.
The chamber accepted the bill in principle and allowed it to proceed.
Second reading agreed to
The chamber passed the bill at third reading.
Third reading agreed to
Both houses passed the bill in the same form.
Finally passed both Houses
The Governor-General gave Royal Assent, turning the bill into an Act.
Assent
Key criticism
Most speakers supported the bill's goal, so criticism focused on whether the package was complete and how it would be administered. Coalition speakers argued the government should also create a campus antisemitism code and should have strengthened TEQSA rather than putting a specialist unit inside the Department of Education. Some crossbench speakers supported the bill but warned that delegated legislation, data sharing, accommodation-provider obligations and practical resourcing would determine whether the code worked.
The main criticism did not stop passage. The Senate defeated the Opposition antisemitism-code amendment 25 to 33, then passed the bill; the House later passed it without amendment.
No antisemitism code
Opposition speakers supported the gender-based violenceViolence, harassment or harmful conduct linked to gender. In this bill package, the term is used for higher education settings, including campuses, work and study environments, and student accommodation. code but said the government should also establish a separate higher education code to prevent and respond to antisemitism on campus.
Department rather than TEQSA
Several Coalition speakers said the government should strengthen the independent higher education regulator TEQSA instead of giving regulatory responsibility to a specialist unit inside the Department of Education.
Delegated code detail
Some speakers said too much of the scheme depended on a minister-made legislative instrument, leaving important detail to delegated legislation and making scrutiny and implementation especially important.
Implementation burden
Crossbench concern focused on practical delivery, including data sharing, guidance, timeframes, staff capability and support for smaller student accommodation providers expected to comply with the code.
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.
Recorded amendment and procedural votes grouped by chamber. Expand a vote to see the party breakdown.
Senate
Moved by The Hon Jonathon Duniam (Liberal Party of Australia). Defeated 25 to 33. Support came from Liberal Party, Nationals, One Nation, UAP, and minor parties and independents. Opposition came from Labor and Greens.
The Senate defeated the statement 25 votes to 33, so the bill proceeded without adding the Opposition call for a separate antisemitism code.
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
Katy Gallagher introduced the Senate bills for the government.
Read in Hansard ↗Allegra Spender supported the bill and credited student advocates for pushing campus sexual-violence reform.
Read in Hansard ↗Kate Chaney supported the bill in principle but focused on implementation risks.
Read in Hansard ↗Julian Leeser supported the bills and moved a House second-reading amendmentA parliamentary amendment to the motion that a bill be read a second time. It usually adds a statement or criticism to the debate motion rather than directly changing the bill text. calling for an additional code on antisemitism.
Read in Hansard ↗All speeches by bloc
15 speakers · 16 contributions · 15 support
Hansard records 2 separate contributions by Jason Clare on this bill. They are grouped here so the speaker is listed once.
Second reading speech
Jason Clare supported the earlier House version as the government minister. He said this bill was the consequential part of a two-bill package to implement the National Higher Education CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. to Prevent and Respond to Gender-based ViolenceViolence, harassment or harmful conduct linked to gender. In this bill package, the term is used for higher education settings, including campuses, work and study environments, and student accommodation..
“This bill makes consequential amendments necessary to implement the measures in the main bill, which I just introduced.”Read this contribution in Hansard ↗
Second reading speech
Jason Clare supported the bills for the government and rejected the House second-reading amendmentA parliamentary amendment to the motion that a bill be read a second time. It usually adds a statement or criticism to the debate motion rather than directly changing the bill text. at that time. He said the package implemented the Action Plan on gender-based violenceViolence, harassment or harmful conduct linked to gender. In this bill package, the term is used for higher education settings, including campuses, work and study environments, and student accommodation. while existing and forthcoming processes dealt with antisemitism and racism at universities.
“The government will not be supporting the second reading amendment as proposed at this time.”Read this contribution in Hansard ↗
“Statistics show that one of them will be sexually harassed. Even worse, one in 20 university students is sexually assaulted.”Read the full speech in Hansard ↗
“Everyone deserves to feel safe at work and when they're studying at university ... we've taken this step to ensure that higher education providers are proactive.”Read the full speech in Hansard ↗
“This is a bill that should have been introduced long ago, because, for too many years, female students have endured violence, harassment and abuse on our campuses.”Read the full speech in Hansard ↗
“It is devastating that, for way too many young women, this journey can later turn into devastating physical and mental harm through sexual assault and rape.”Read the full speech in Hansard ↗
“These bills give the National Student Ombudsman the authority it needs. They establish enforceable standards to prevent harm, respond effectively when incidents occur and hold universities accountable.”Read the full speech in Hansard ↗
“We now know from years of evidence that gender based violence ... continues to occur at alarming, unbelievable and unacceptable rates.”Read the full speech in Hansard ↗
“This legislation means so much to so many people, and it marks just the beginning of more accountability for our universities.”Read the full speech in Hansard ↗
“I rise to lend my strong support to this landmark piece of legislation ... that addresses a critical issue facing our universities.”Read the full speech in Hansard ↗
“We are debating legislation shaped by the stories of students and staff who have endured the unthinkable in places that should serve as safe harbours of learning and growth.”Read the full speech in Hansard ↗
“The National Student Ombudsman is just the first step. This bill and its companion bill are the next steps.”Read the full speech in Hansard ↗
“This legislation will essentially bring forward a more robust framework to address gender based violence in universities.”Read the full speech in Hansard ↗
“No student should be forced to choose between their education and their safety.”Read the full speech in Hansard ↗
“The National Student Ombudsman was another key measure of the action plan which kicked off in February. These measures ... help ensure greater oversight and accountability.”Read the full speech in Hansard ↗
“The government will not be supporting the second reading amendment as proposed at this time.”Read the full speech in Hansard ↗
7 speakers · 9 contributions · 1 support · 6 mixed
Hansard records 2 separate contributions by Julian Leeser on this bill. They are grouped here so the speaker is listed once.
Second reading speech
Julian Leeser supported the bills and moved a House second-reading amendmentA parliamentary amendment to the motion that a bill be read a second time. It usually adds a statement or criticism to the debate motion rather than directly changing the bill text. calling for an additional code on antisemitism. He said success would depend on implementation, outcomes and campus safety for all students and staff.
“The coalition supports these bills and, of course, their purpose, which is to establish a national code to prevent and respond to gender based violence in higher education.”Read this contribution in Hansard ↗
Second reading speech
Julian Leeser supported the bill but argued that campus safety also required a dedicated antisemitism response. He linked his support to the Coalition second-reading amendmentA parliamentary amendment to the motion that a bill be read a second time. It usually adds a statement or criticism to the debate motion rather than directly changing the bill text. calling for an additional higher education code on antisemitism.
“I want to conclude by reiterating the coalition's support for this bill ... safety on campus is for everyone.”Read this contribution in Hansard ↗
“The coalition does strongly support ... this bill ... However, there is one glaring oversight ... the antisemitism crisis on university campuses.”Read the full speech in Hansard ↗
“The coalition does have some concerns about placing regulatory responsibility within the Department of education rather than strengthening the independent regulator, TEQSA.”Read the full speech in Hansard ↗
“The opposition supports these bills and the intent of these bills. Fundamentally, these bills are about protecting the rights and dignity of university students.”Read the full speech in Hansard ↗
“While the coalition does have some concerns about giving regulatory authority to the Department of Education ... we are supportive of this bill.”Read the full speech in Hansard ↗
“I am very, very, very pleased to have the opportunity to speak in favour of the Universities Accord ... Bill 2025.”Read the full speech in Hansard ↗
Hansard records 2 separate contributions by Leah Blyth on this bill. They are grouped here so the speaker is listed once.
Second reading speech
Leah Blyth said the Coalition supported the bill's goal but raised early concerns about serious consequences for providers and whether the government's regulatory approach was appropriate.
“Creating a national code ... is, of course, a noble intention, and the coalition is supporting the ... Bill 2025.”Read this contribution in Hansard ↗
Second reading speech
Leah Blyth continued her criticism of the bill's design, arguing that the code was too much delegated legislation, added bureaucracy and should have been paired with a stronger antisemitism response.
“The Senate Standing Committee for the Scrutiny of Bills questioned the appropriateness of this.”Read this contribution in Hansard ↗
2 speakers · 2 support
“The Greens are proud to support this bill. We have worked for years with advocates and activists and welcome this step.”Read the full speech in Hansard ↗
“The Greens support this bill, and we welcome this next step in both preventing and tackling sexual violence on campus.”Read the full speech in Hansard ↗
4 speakers · 3 support · 1 mixed
“These are all good steps, but the devil is in the detail. The bill delegates much of the substance to the national code.”Read the full speech in Hansard ↗
“I rise to speak in support ... with a strong sense of urgency because ... the scale of harm facing students demands serious and sustained action.”Read the full speech in Hansard ↗
“It's well past time that our government intervened to create stronger measures to combat gender based violence on university campuses.”Read the full speech in Hansard ↗
“While this bill is a welcome step to stamping out gender based violence on campuses, policy alone is not enough.”Read the full speech in Hansard ↗
Record
Senate · Introduced and read a first time
Introduced in the Senate
The government introduced the bill in the Senate as the consequential companion to the main National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. bill.
Senate · Second reading moved
Second reading moved
Debate opened on the bill's purpose and principles.
Senate · Second reading debate
Second reading debate
Members or senators debated the bill and its companion National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. framework.
Senate · Second reading debate
Second reading debate
Members or senators debated the bill and its companion National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. framework.
Senate · Second reading debate
Second reading debate
Members or senators debated the bill and its companion National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. framework.
Senate · Second reading agreed to
Second reading agreed
The chamber accepted the bill in principle and allowed it to proceed.
Senate · Third reading agreed to
Third reading agreed
The chamber passed the bill at third reading.
House · Introduced and read a first time
Received in the House
The Senate bill was introduced in the House after passing the Senate.
House · Second reading moved
Second reading moved
Debate opened on the bill's purpose and principles.
House · Second reading debate
Second reading debate
Members or senators debated the bill and its companion National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. framework.
House · Second reading debate
Second reading debate
Members or senators debated the bill and its companion National CodeThe National Higher Education Code to Prevent and Respond to Gender-based Violence. The companion main Act lets the Minister for Education make this code as a legislative instrument. framework.
House · Second reading agreed to
Second reading agreed
The chamber accepted the bill in principle and allowed it to proceed.
House · Third reading agreed to
Third reading agreed
The chamber passed the bill at third reading.
Parliament · Finally passed both Houses
Passed both Houses
Both houses passed the bill in the same form.
Assent · Assent
Royal Assent
The Governor-General gave Royal Assent, turning the bill into an Act.
