1. Introduction: Focused review of how the change or suppression practices ban is working
1.1The Attorney-General asked the Victorian Law Reform Commission (Commission) to review the operation and effectiveness of the Change or Suppression (Conversion) Practices Prohibition Act 2021 (Vic) (Act). A review is required under the Act.[1] The review is due to be completed within six months with a final report delivered to the Attorney-General no later than 28 August 2026.
1.2Kerin Leonard has been appointed as an expert to the review. The Attorney-General approved the appointment of Kerin Leonard as a person with appropriate qualifications and expertise, in accordance with the Act.
1.3Since the Act was passed, some other states in Australia have passed similar laws.[2] Recent research has been conducted, increasing understanding of how these practices occur, the harms they do, and how to best support survivors and their loved ones.[3] It is in this context that the Commission has been asked to review how the Act is working and how it might be improved.
Scope of review
1.4The scope of this review is focused on section 57 of the Act and the terms of reference provided by the Attorney-General (see page 4). The review will not consider the purpose of the Act and the desirability of having criminal offences and a civil response scheme.
1.5When introducing the law to Parliament the then Attorney-General stated that the purpose of the review is to ‘enable the impacts of the ban to be assessed and for potential improvements to the legislation to be made.’ [4]
1.6The review will focus on how the current law is operating and whether it is effective in responding to change or suppression practices consistent with the aims and purposes of the Act.
Victoria’s regulatory framework
1.7A change or suppression practice is conduct that seeks to change or hide an individual’s sexual orientation or gender identity. These practices are often referred to as ‘conversion practices’ and can cause life-long harm and trauma.
1.8Change or suppression practices can occur in health and non-health settings and can include teachings, counselling, spiritual care activities or other psychological or medical interventions.
1.9To recognise and respond to the harm caused by change or suppression practices, the Victorian Government introduced the Act to clearly denounce and prohibit (ban) these practices. The Act was designed to ‘clearly communicate that change or suppression practices are not tolerated or supported by the Victorian community in any form.’[5] The Act affirms that ‘all people have characteristics of sexuality, sexual orientation, gender identity and gender expression, and no combination of these characteristics constitutes a disorder, disease, illness, deficiency, disability or shortcoming.’[6]
1.10The Act commenced on 17 February 2022. It consists of two main components:
•a civil response scheme within the Victorian Equal Opportunity and Human Rights Commission (VEOHRC) focused on educative and facilitative functions, with investigation and enforcement powers for serious or systemic practices
•criminal offences relating to engaging in change or suppression practices and related activities.
How to tell us your views
1.11We welcome your views on the questions raised in this paper and invite you to provide comments by 24 March 2026. Submissions must be relevant. We only review the matters detailed in the terms of reference. We recommend using the consultation paper to help guide your submission.
You can find options for making a submission on our website at www.lawreform.vic.gov.au/all-projects/make-a-submission/.
To make a submission:
•complete an online form
•download a submission form and email it to csp@lawreform.vic.gov.au
•Mail your submission form to:
Victorian Law Reform Commission
PO Box 4637
GPO Melbourne VIC 3001
You may answer all or only some of the questions as relevant to you.
1.12This review will also be informed by consultations with individuals and groups with experience or knowledge of the issues.
What we will do with your responses
1.13We will publish public submissions on our website, unless they are offensive, defamatory, or outside the scope of the review. Where a submission is made by an organisation in an official capacity, the organisation will be named unless the submission is made confidentially. We will withhold names so that individuals are not identified when publishing a submission. We will also redact any information which may indirectly identify an individual.
1.14You may also ask us to keep your submission confidential, which means we will not publish confidential submissions on our website or elsewhere. Alternatively, you can provide an anonymous submission. We may refer to a confidential or anonymous submission in our report, without identifying you.
1.15Please note that because of our commitment to transparency, we usually prefer to quote from public submissions. This does not mean that the content of a confidential or anonymous submission will be treated as any less important. Your submission will be read carefully and used to decide on the recommendations and conclusions in the final report. For more information on how we treat submissions see lawreform.vic.gov.au/engage-in-law-reform/submissions-information.
1.16Any request by someone outside the Commission for access to a confidential, anonymous or name withheld submission will be refused unless a formal freedom of information request has been made. Such a request will be determined in accordance with the Freedom of Information Act 1982 (Vic), which is designed to protect personal information and information given in confidence. Further information can be found at: ovic.vic.gov.au
1.17Submissions which contain personal information or personally identifying information will be collected, stored and used in accordance with our Information Privacy Policy, the Privacy and Data Protection Act 2014 (Vic) and other relevant laws. For more information see lawreform.vic.gov.au/information-privacy-policy/
1.18This consultation is not designed to investigate individual experiences, make findings about specific allegations, or initiate regulatory or enforcement action. Participation will not result in an investigation of any individual, organisation or service. You are not expected to disclose personal details or describe specific incidents. You can participate at a general or thematic level, and you may choose how much or how little you share. If you want to make a report or are concerned about someone’s safety, see the reporting options on page 3.
A note on language
1.19The Act relates to change or suppression practices directed towards a person’s sexual orientation or gender identity. To define some of these, we adopt the term Lesbian, Gay, Bisexual, Transgender, Queer and Asexual (LGBTQA).
1.20Change and suppression practices under the Act do not include forced medical interventions on people with intersex variations. Therefore, these practices are outside the scope of this review.
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Change or Suppression (Conversion) Practices Prohibition Act 2021 (Vic) s 57.
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Conversion Practices Ban Act 2024 (NSW); Conversion Practices Prohibition Act 2024 (SA); Noting Queensland and ACT previously enacted legislation prohibiting conversion practices in certain circumstances Public Health Act 2005 (QLD) ss 213E-213I; Sexuality and Gender Identity Conversion Practices Act 2020 (ACT).
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For example, see Timothy, Jones et al, Improving Spiritual Healthcare for LGBTQA+ Australians: Beyond Conversion Practices. A Community Report. (Report, La Trobe University, 2024) <https://doi.org/10.17605/OSF.IO/7439R>.
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Victoria, Parliamentary Debates, Legislative Assembly, 26 November 2020, 3726 (Jill Hennessy, Attorney-General).
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Ibid 3723.
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Ibid.
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