Customs and Other Legislation Amendment (Illicit Tobacco Enforcement Modernisation and Other Measures) Bill 2026

High-Level Summary
This Bill modernises the enforcement framework for illicit tobacco in Australia. It introduces new offences based on "reasonable suspicion," creates aggravated offences for large-scale operations, and streamlines the seizure and forfeiture process for illegal tobacco products. Additionally, it strengthens the Proceeds of Crime Act 2002 to better recover profits from organised criminal activity. The Bill responds to reports from the Illicit Tobacco and E-cigarette Commissioner, which highlighted that current penalties are often treated as a mere cost of doing business by criminal syndicates. By aligning tobacco offences with other serious border crimes, the government aims to disrupt the supply chains that fund organised crime and undermine public health initiatives.

Summary
The Bill addresses the rapid expansion of the illicit tobacco market and its links to organised criminal activity. It introduces five key measures to the Customs Act 1901 and three to the Proceeds of Crime Act 2002 (POCA). Key provisions include:
  • New Offences: Schedule 1 introduces "reasonable suspicion" offences for the unlawful importation or possession of tobacco, alongside aggravated offences for large-scale operations involving quantities of 100kg or more, or duty liabilities exceeding $200,000.
  • Evidentiary Presumptions: To overcome "known evidentiary barriers," the Bill creates presumptions that goods in cigarette form are tobacco and allows for representative sampling of homogenous seizures [Explanatory Memo page 104].
  • Seizure and Forfeiture: Schedule 4 streamlines enforcement by allowing the seizure of tobacco imported in breach of permit conditions without a warrant and enabling "immediate forfeiture" to the Crown at the time of seizure [Explanatory Memo page 65].
  • Licensing Obligations: Schedule 5 requires depot and warehouse operators to take "all reasonable steps" to prevent their facilities from facilitating illicit trade [Explanatory Memo page 70].
  • Proceeds of Crime: Schedule 6 strengthens POCA by clarifying that pecuniary penalty orders should be based on a "gross benefit" approach, ensuring "ill-gotten gains are removed from serious and organised criminal enterprises" [Explanatory Memo page 154].
The amendments are intended to ensure that penalties are no longer merely "absorbed and offset" as a "cost of doing business" by criminal syndicates [Explanatory Memo page 8].

Argument For
Normative Bases
  1. Utilitarian Ground Truth
  2. Hobbesianism
  3. Communitarianism / Pro-Conformity

The "For" case rests on the urgent need to disrupt a "low-risk, high-reward" criminal enterprise that undermines both public health and national security. As noted in the explanatory memo, "Illicit tobacco importation has expanded rapidly in recent times and is increasingly linked to organised criminal activity" [Explanatory Memo page 2]. By modernising the offence framework, the Bill ensures that the law keeps pace with "sophisticated supply chains" and "deliberate fragmentation" used by criminal groups to evade detection [Explanatory Memo page 8].

From a utilitarian perspective, the Bill protects the community from unregulated tobacco products that "bypass important controls and standards relating to manufacturing, plain packaging and health labelling" [Explanatory Memo page 109]. These products often contain "potentially poisonous ingredients" and pose significant environmental risks. Furthermore, the current reliance on pecuniary penalties is insufficient, as they are often "comfortably absorbed as a cost of doing business" [Explanatory Memo page 114]. Introducing custodial sentences and "aggravated offences" for large-scale operations provides a genuine deterrent that reflects the "objective seriousness of the offending" [Explanatory Memo page 14].

Finally, the Bill strengthens the integrity of Australia's borders and revenue systems. By extending customs control over "duty-refundable tobacco" and imposing proactive obligations on warehouse operators, the legislation closes loopholes that allow for the "diversion of tobacco products into illicit domestic supply chains" [Explanatory Memo page 105]. This ensures that the state maintains its authority over regulated goods and that the profits of crime are effectively disgorged through a strengthened proceeds of crime framework.


Argument Against
Normative Bases
  1. Legal Principle: Presumption of Innocence
  2. Individual Autonomy
  3. Value-Neutral / Epistemic Objection

The "Against" case focuses on the Bill's significant erosion of fundamental legal protections and the expansion of executive power. Central to these concerns is the introduction of "reasonable suspicion" offences supported by "evidentiary presumptions" that effectively reverse the onus of proof [Explanatory Memo page 2]. Under these provisions, a defendant may bear an "evidential burden" to prove that a suspicion was not reasonable, which is "generally considered undesirable in criminal law" because the prosecution should prove every element beyond reasonable doubt [Explanatory Memo page 34].

Furthermore, the Bill applies "absolute liability" to the reasonable suspicion element of certain offences, meaning the prosecution does not need to prove fault and no "defence of reasonable mistake of fact" is available [Explanatory Memo page 125]. This represents a harsh departure from standard criminal responsibility. The expansion of the "special forfeited goods" regime also allows for the "warrantless search and seizure" of tobacco products imported in breach of permit conditions, which may result in "interference with an individual’s private sphere" and property [Explanatory Memo page 136].

Finally, the Bill removes the "claim process for the return of seized illicit tobacco," denying owners the ability to contest the seizure through administrative channels [Explanatory Memo page 3]. While the government argues this is necessary for efficiency, it removes a layer of procedural fairness. The "gross benefit" approach to pecuniary penalty orders also ignores the reality of business expenses, potentially leading to disproportionate financial outcomes that exceed the actual profit derived from an offence. Collectively, these measures prioritise administrative convenience and enforcement speed over the "right to the presumption of innocence" and the protection of individual rights against arbitrary state action [Explanatory Memo page 116].


Date:

2026-09-10

Chamber:

House of Representatives

Status:

Before House of Representatives

Sponsor:

Unspecified

Portfolio:

Home Affairs

Categories:

Criminal Law Reform, National Security, Taxation

Timeline:
10/09/2026

Comments (0)