The commercial sex industry in NSW continues to attract media attention as
communities throughout the State grapple with the vexed issue of where to
locate legal brothels. The difficulty of closing illegal brothels is a major
issue that has been addressed since 1999. Issues still of concern include the
vetting of brothel applicants as to their fame and character and the licensing
of prostitutes and brothels. The incidence of street prostitution and the
involvement of illegal immigrants in the sex industry continue to be of concern.
The Disorderly Houses Amendment Act 1995 legalised brothels and
living off the earnings of a prostitute. With the passage of the legislation, a
brothel then became a commercial business requiring local council approval
under the Environmental Planning and Assessment Act 1979.
Current debate centers not so much on the morality of legalised prostitution
and brothels, although this is still an issue, but more on how to close down
brothels that are illegal. There are two mechanisms for local councils to close
down an illegal brothel: the council, or any other person, may apply to the
Land and Environment Court to remedy or restrain the breach of the relevant
planning legislation; the second mechanism for a local council to close a
brothel is through the Disorderly Houses Act . Under s.17 of the Act, a
council may make an application to the Land and Environment Court for an order
to close a brothel if the council has received sufficient complaints about the
brothel to warrant making the application.
A Brothel Task Force was established by the Government, and reported in
November 2001. The Task Force concluded that the regulation of brothels through
the planning system can be an effective means of control, but that local
government needed further support to optimise the potential of the planning
system. In response, the Government established the Brothels Planning Advisory
Panel. The Task Force also recommended amending the Disorderly Houses Act
to clarify what evidence is needed in the Land and Environment Court to
determine that a premise is operating as an (illegal) brothel. Amendments,
allowing circumstantial evidence to prove that premises were operating as a
brothel, were subsequently passed by the Parliament.
The brothel regulatory environment in other states is reviewed. In South
Australia and Tasmania prostitution is illegal, while in the Northern Territory
brothels are illegal but prostitution is not. In those States that have
legalised prostitution and brothels, one of the main areas of debate is how
restrictive the regulatory environment should be. Victoria, Queensland and the
proposed reforms in Western Australia provide for a strict regulatory
environment, requiring brothels to have both town planning permission and be
licensed by a separate licensing authority. In NSW, brothels need town planning
permission only. Somewhat ironically, critics of the ‘lax’
regulatory environment in NSW make reference to the enforcement regime in other
jurisdictions. In other states, critics of the claimed restrictive regulatory
environment hold NSW as the model for legislation.