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Document 1
Submission
For decision
PDMS Ref. Number: MS24-000978
Date of Clearance: 02/09/2024
To
Minister for Home Affairs, Minister for Immigration and Multicultural 
Affairs, Minister for Cyber Security
Subject
Australian Victim of Terrorism Overseas Payment (AVTOP) 
Declaration – Bamyan shooting, Afghanistan
Timing
For consideration by 25 September 2024.
Recommendations
That you:
1. note on 17 May 2024 the Islamic State-Khorasan Province
noted / please discuss
(IS-KP) conducted an attack on a group of foreign tourists in
Bamyan Province, Afghanistan. The Department of Foreign
Affairs and Trade (DFAT) confirmed that s. 47F(1)
wounded in the attack;
2. agree to recommend to the Prime Minister, the Hon Anthony
agreed / not agreed
Albanese MP, that the shooting in Bamyan Province,
Afghanistan be declared as an ‘overseas terrorist act’ for the
purposes of the Australian Victim of Terrorism Overseas
Payment (AVTOP) scheme; and
3. sign the letter to the Prime Minister at Attachment A
signed / not signed
 
recommending that the shooting in Bamyan Province,
Afghanistan be declared an ‘overseas terrorist act’ for the
purposes of the AVTOP scheme, attaching the package of all
required documents for a declaration.
Minister for Home Affairs, Minister for Immigration and 
Multicultural Affairs, Minister for Cyber Security
Signature………………………………………………
Date:……/……./ 2024
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Minister’s Comments
Key Issues
Commonwealth roles under AVTOP
1. You are the responsible Minister for administering the Australian Victim of Terrorism 
Overseas Payment (AVTOP) scheme under Part 2.24AA of the Social Services Act 1991 (the 
Act). The AVTOP scheme provides financial assistance to Australian residents who are harmed 
or whose close family member is killed as a direct result of an overseas terrorist act.
2. The Prime Minister is responsible for declaring incidents as a ‘declared overseas terrorist act’ 
pursuant to subsection 35B(1) of the Act. You provide advice to the Prime Minister to support 
decision-making on declarations.
3. AVTOP claim assessments and payments are facilitated by the Department of Social Services.
Bamyan Shooting, Afghanistan
4. On 17 May 2024, Islamic State-Khorasan Province (IS-KP) conducted a shooting attack on 
a group of foreign tourists in Bamyan Province, Afghanistan. There were six fatalities and 
seven wounded from the attack.
5. The Department of Foreign Affairs and Trade (DFAT) has confirmed that s. 47F(1)  
 
s. 47F(1)  wounded in the attack. DFAT has provided consular assistance to s. 47F(1)  
s. 47F(1) . The Department of Home Affairs (the Department) is not aware of any other 
Australians directly involved, or Australians who have close family members that have been 
affected by this attack.
6. DFAT, the Minister for Social Services and the Prime Minister’s Office have received 
ministerial correspondence asking for a declaration to be made for the purposes of AVTOP, to 
enable the affected s. 47F(1)
 to make a claim.
• The s. 47F(1)
 may be eligible for AVTOP, subject to other criteria being met, 
should the attack be declared.
Departmental assessment and recommendation
7. The Department has assessed the incident for whether it could be considered a ‘terrorist act’ 
under subsection 100.1(1) of the Criminal Code Act 1995 for the purposes of declaring the 
incident as a ‘declared overseas terrorist’ attack under subsection 35B(1) of the Act. Details of 
this assessment are at Attachment E.
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8. The Department has assessed that the Prime Minister could be satisfied that the Bamyan 
attack was a terrorist attack. The Department of Prime Minister and Cabinet (PM&C) and DFAT 
have been consulted at the working level and agree with this assessment.
9. The Department recommends you write to the Prime Minister recommending he declare the 
Bamyan attack as an ‘overseas terrorist act’ for the purposes of the AVTOP scheme. A letter to 
the Prime Minister is attached (Attachment A refers).
• To appropriately support the Prime Minister’s consideration of the incident as a potential 
AVTOP declaration, and the further responsibilities of the Prime Minister for making of an 
instrument under the Act, the following documents are attached to the letter: a draft 
Declaration (Attachment B), Explanatory Statement and Statement of Compatibility with 
Human Rights (Attachment C), the AVTOP Declaration Criteria (Attachment D), and 
AVTOP Declaration Assessment (Attachment E).
• The draft Declaration and Explanatory Statement and Statement of Compatibility with 
Human Rights will be tabled in Parliament if the Prime Minister decides to declare the 
incident an overseas terrorist attack. The Declaration is a disallowable legislative 
instrument.
• The AVTOP Declaration Criteria lists the factors the Prime Minister may have regard to 
when making the decision to declare an incident an ‘overseas terrorist act’. The AVTOP 
Declaration Assessment assesses the incident against the AVTOP Declaration Criteria and 
has been consulted with DFAT and PM&C.
Background
10. Once the Prime Minister has declared an overseas terrorist act under the AVTOP scheme, 
Services Australia is responsible for receiving and processing applications, including making 
payments to eligible claimants.
11. Declarations under the AVTOP scheme are legislative instruments that are subject to 
disallowance under section 42 of the Legislation Act 2003. Once signed by the Prime Minister 
 
and registered on the Federal Register of Legislation, a copy of the instrument must be laid 
before both Houses of Parliament within six sitting days after registration. This process is 
managed by the Office of Parliamentary Counsel.
Eligibility Criteria
12. The AVTOP scheme provides for non-means tested financial assistance of up to $75,000. 
Under section 1061PAA of the Act, a person is qualified for AVTOP if they:
• were harmed, as a direct result of a declared overseas terrorist act; or
• are a close family member of a person who was in the place where the terrorist act 
occurred and that person died within 2 years, as a direct result of the terrorist act; and
• were an Australian resident at the time of the terrorist act, or are covered by 
a determination under subsection 1061PAA(6) of the Act.
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Other considerations
13. Afghanistan in its entirety is subject to longstanding ‘do not travel’ advice from DFAT, which 
was in place at the time of the incident. This is a factor taken into account by Services 
Australia in deciding the amount of an AVTOP scheme payment, pursuant to s 12(2) of the 
Social Security (Australian Victim of Terrorism Overseas Payment Principles) Determination 
2023 (the 2023 AVTOP Principles Determination). If the incident were declared, this could 
limit the amount of financial assistance for which s. 47F(1)
 could be eligible.
Previous Declarations
14. From the AVTOP scheme’s inception in 2013 until 8 August 2024, successive Prime Ministers 
have declared 49 overseas terrorist acts for purposes of the AVTOP scheme relating to events 
that have occurred since 2001.
15. The most recent declaration for the purposes of the AVTOP scheme is Social Security 
(Declared Overseas Terrorist Act – Hamas Terrorist Attacks – 7 October 2023) Declaration 
2024, dated 2 February 2024 and relating to the Hamas terrorist attacks at 15 sites in Israel on 
7 October 2023.
Consultation – internal/external
16. Internal – Legislation Branch, International Law & Protection Obligations (Legal Group), 
External Costings section and the Chief Financial Officer were consulted on matters relating to 
this submission.
17. External – Attorney-General’s Department; s. 7(2A)
; 
Department of Finance; Department of Foreign Affairs and Trade; Department of the Prime 
Minister and Cabinet; Treasury; and Services Australia were consulted on matters relating to 
this submission.
Consultation – Secretary
 
18. The Secretary was not consulted on this submission.
Client service implications
19. The administration of the AVTOP application and payment processes is managed by Services 
Australia.
Risks and Sensitivities
Media - handling strategy
20. As this declaration is likely to impact s. 47F(1)
 publicly announcing this 
declaration via a media release is likely to impact on the privacy of s. 47F(1)
.
21. In lieu of a media release, the Department recommends that, should the Prime Minister 
declare the Bamyan shooting an overseas terrorist act, the Department will contacts. 47F(1) 
of the declaration. This contact would be in the form of 
a Departmental response to the letter sent by s. 47F(1)
 to the Prime Minister on 
12 June 2024.
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22. To manage any media queries, the Department will provide talking points to your Office. 
Copies will be provided to officials at the Department of the Prime Minister and Cabinet, 
DFAT, Services Australia, the Attorney-General’s Department and s. 7(2A)
.
Representations to date
23. On 22 May 2024, DFAT notified the Department that the Minister for Foreign Affairs, 
Senator the Hon Penny Wong, had received correspondence from s. 47F(1)  MP, 
requesting the incident be declared a terrorist act, to allow s. 47F(1)
 to apply for 
the AVTOP scheme.
24. On 28 May 2024, the Department was notified by staff from the office of s. 47F(1) 
 MP that they had been contacted bys. 47F(1)  about receiving s. 47F( AVTOP 
payment for this incident.
• In this correspondence, the Department was informed that s. 47F(1)
 MP had 
additionally contacted the Minister for Social Services, the Minister for Foreign Affairs and 
the Prime Minister’s Office.
25. On 12 June 2024, the Department was notified that the Prime Minister had received 
correspondence directly from s. 47F(1)
.
26. The information contained in this submission is classified and should not be publicly released 
without the authority of the Department of Home Affairs.
Financial implications
27. The Department is currently aware of s. 47F(1)
 in the 2024 Bamyan 
attack and may be found eligible ass. 47F(1)
. The maximum cost of payings. 47F(1) 
28. It is possible that Australian residents may have close family members who died in the attack 
and could come forward as AVTOP claimants. Although unlikely, this could potentially result in 
 
additional costs.
29. If the Prime Minister declares the 2024 Bamyan attack an overseas terrorist act for the 
purpose of the AVTOP scheme, the Department will work with the Department of Finance to 
settle the financial impactions through an increase to the AVTOP special appropriation to 
make the payment.
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Attachments
Attachment A
Letter to the Prime Minister
Attachment B
Social Security (Declared Overseas Terrorist Act—Bamyan 2024) Declaration 
2024
Attachment C
Explanatory Statement and the Statement of Compatibility with Human Rights
Attachment D
Prime Minister’s Declaration Criteria for AVTOP
Attachment E
AVTOP Declaration Criteria Assessment
Authorising Officer
Cleared by:
Gemma Smyth
First Assistant Secretary Counter-Terrorism Coordination Centre
National Security and Resilience Group
Date: 02/09/2024
Ph:s. 22(1)(a)(ii)
Mob: s. 22(1)(a)(ii)
Contact Officer (minimum SES Band 1) Alisha Warner, Assistant Secretary Counter-Terrorism Strategic Policy
Mob s. 22(1)(a)(ii)
Through
Chief Finance Officer
CC
Secretary
DS Chief Operating Officer
DS National Security and Resilience
DS Executive
Group Manager Legal
 
Chief Finance Officer
FAS Executive Coordination
Assistant Secretary Legislation
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OFFICIAL: Sensitive
Document 1.1
The Hon Tony Burke MP
Minister for Home Affairs
Minister for Immigration and Multicultural Affairs
Minister for Cyber Security
Minister for the Arts
Leader of the House
Ref No: MS24-000978
The Hon Anthony Albanese MP
Prime Minister
Parliament House
CANBERRA  ACT  2600
Dear Prime Minister
I write to recommend that you declare the 17 May 2024 shooting in Bamyan, 
Afghanistan an ‘overseas terrorist act’ for the purposes of the Australian Victim of 
Terrorism Overseas Payment (AVTOP) scheme.
Under subsection 35B(1) of the Social Security Act 1991 (Social Security Act), you 
may declare an incident as one to which the AVTOP scheme applies if you are 
satisfied that the incident meets the definition of a ‘terrorist act’ in the Criminal Code 
 
Act 1995 (Criminal Code).
On 17 May 2024 several gunmen belonging to a listed terrorist organisation, namely 
Islamic State-Khorasan Province, conducted an attack against a group of tourists in 
Bamyan, Afghanistan. Six people were killed and seven injured. The Department of 
Foreign Affairs and Trade has confirmed that s. 47F(1)
 injured.
Having regard to all available information, I recommend that you declare the 
shooting on 17 May 2024 in Bamyan, Afghanistan as an ‘overseas terrorist act’ 
under the Criminal Code for the purposes of the AVTOP scheme in your capacity as 
decision maker under subsection 35B(1) of the Social Security Act. My 
recommendation has been informed by consultations and agreement across relevant 
Commonwealth agencies, as led by the Department of Home Affairs.
Parliament House Canberra  ACT  2600  Telephone: (02) 6277 7860
OFFICIAL: Sensitive

OFFICIAL: Sensitive
2
Document 1.1
The AVTOP Declaration Criteria (attached) outlines what to consider when making 
a declaration. Several factors in support of making a declaration in relation to this 
incident are present:
• The attack targeted foreign tourists, including s. 47F(1)
, who suffered 
injuries as a result of the attack;
• The attack had a direct impact on at least s. 47F(1)
;
• The attack was committed by the listed terrorist organisation Islamic State 
Khorasan Province; and
• The attack received media coverage in Australia.
Further information on the attack and the extent to which it satisfies the definition of 
‘terrorist act’ within the Criminal Code is contained in the Declaration Assessment 
attached.
Attached to this letter is an Explanatory Statement and Statement of Compatibility 
with Human Rights which further articulates the grounds for listing this terrorist 
attack, and an instrument to give effect to a decision to list should you agree with my 
s. 47F(1)
recommendation. The Department has advised that the maximum cost of paying 
 
, in accordance with the 
Social Security (Australian Victim of Terrorism Overseas Payment Principles) 
Determination (LIN 23/059) 2023.
Should you agree to my recommendation, the Department will work with the 
Department of Finance to settle the financial implications. Consistent with previous 
practice, no offsets should be required to meet the costs of payments made under 
the Special Appropriation (Social Security (Administration) Act 1999, section 242).
 
I have copied this letter to the Attorney-General, the Hon Mark Dreyfus KC MP; the 
Minister for Finance, Senator the Hon Katy Gallagher; the Minister for Foreign 
Affairs, Senator the Hon Penny Wong; the Treasurer, the Hon Dr Jim Chalmers MP; 
and the Minister for Government Services, the Hon Bill Shorten MP.
Yours sincerely
TONY BURKE
/
/ 2024
Encl. Declaration Criteria, Declaration Assessment, Explanatory Statement and 
Statement of Compatibility with Human Rights, draft Declaration
OFFICIAL: Sensitive


Document 1.2
Social Security (Declared Overseas Terrorist 
Act—Bamyan 2024) Declaration 2024
I, ANTHONY NORMAN ALBANESE, Prime Minister, make the following declaration.
Dated
2024
Anthony Albanese 
Prime Minister
 

Document 1.2
Contents
1  Name ........................................................................................................................................1
2  Commencement........................................................................................................................1
3  Authority ..................................................................................................................................1
4  Definitions ................................................................................................................................1
5  Declared overseas terrorist act .................................................................................................1
 
Social Security (Declared Overseas Terrorist Act—Bamyan 2024) Declaration 
i
2024

Document 1.2
1  Name
This instrument is the Social Security (Declared Overseas Terrorist Act— 
Bamyan 2024) Declaration 2024.
2  Commencement
This instrument commences on the day after it is registered.
3  Authority
This instrument is made under subsection 35B(1) of the Social Security Act 
1991.
4  Definitions
In this instrument, terrorist act has the same meaning as in subsection 100.1(1) 
of the Criminal Code.
5  Declared overseas terrorist act
The following terrorist act is a declared overseas terrorist act:
(1) the shooting at approximately 6pm (local time) in Bamyan Province,
Afghanistan on 17 May 2024.
Note:
If the Prime Minister makes a declaration under subsection 35B(1) of the Social Security 
Act 1991, then subsection 35B(2) provides that the Minister is taken to have made a 
determination under subsection 36(1) that the terrorist act is a major disaster.
 
Social Security (Declared Overseas Terrorist Act—Bamyan 2024) Declaration 
1
2024

Document 1.3
EXPLANATORY STATEMENT
Issued by authority of the Prime Minister
Social Security Act 1991
Social Security (Declared Overseas Terrorist Act—Bamyan 2024) Declaration 2024
The Social Security (Declared Overseas Terrorist Act— Bamyan 2024) Declaration 2024 (the 
Declaration) is made under subsection 35B(1) of the Social Security Act 1991 (the Act) by the 
Prime Minister.
Background
Part 2.24AA of the Act provides a scheme for financial assistance to Australian residents and 
certain other persons who are victims of a declared overseas terrorist act, known as the 
Australian Victim of Terrorism Overseas Payment (AVTOP) scheme.
Victims of terrorist acts who either were an Australian resident on the day the terrorist act 
occurred, or are covered by a determination made by the Minister under subsection 
1061PAA(6) of the Act, may be eligible for an AVTOP payment (see subsection 
1061PAA(1)). Under subsection 1061PAA(6), the Minister may determine a specified class 
of persons by legislative instrument for the purposes of subparagraph 1061PAA(1)(c)(ii).
The AVTOP scheme only applies to overseas terrorist acts that are the subject of a 
declaration by the Prime Minister. Subsection 35B(1) of the Act authorises the Prime Minister 
to declare a terrorist act to be a declared overseas terrorist act. Subsection 23(1) of the Act 
provides that a terrorist act has the same meaning as in subsection 100.1(1) of the 
Criminal Code.
Section 5 of the Declaration declares the shooting in Bamyan Province, Afghanistan that 
occurred at approximately 6pm (local time) on 17 May 2024 to be a terrorist act that is 
 
declared overseas terrorist act for the purposes of the AVTOP scheme.
A terrorist act is relevantly defined in section 100.1 of the Criminal Code. A terrorist act is 
an action, or a threat to commit an action, that is done or made with the intention of 
advancing a political, religious or ideological cause, and the action is done or the threat is 
made with the intention of coercing or influencing by intimidation a government, or 
intimidating the public or a section of the public. The action must also:
• cause death or serious physical harm to a person
• endanger another person’s life
• cause serious damage to property
• create a serious risk to the health or safety of the public or a section of the public, or
• seriously interfere with, seriously disrupt or destroy an electronic system such as an
information system, telecommunications system, financial system, system used for
the delivery of essential government services, or system used for or by an essential
public utility or transport system.
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A terrorist act does not cover engaging in advocacy, protest, dissent or industrial action that 
is not intended to cause a person’s death or serious physical harm, or to endanger the life of 
another person, or to create a serious risk to the health or safety of the public or a section of 
the public.
In considering whether to declare a terrorist act that occurs outside Australia to be a declared 
overseas terrorist act for the purposes of the AVTOP scheme, the Prime Minister has regard 
to the factors outlined in the Australian Victim of Terrorism Overseas Payment Declaration 
Criteria (the Declaration Criteria).
The factors that may support the Prime Minister making a declaration are:
• whether the terrorist act targeted Australia or Australian interests or had a direct or 
indirect impact on Australia or Australians (including incidents that target Western 
interests more broadly)
• whether a terrorist organisation or member of a terrorist organisation has claimed 
responsibility for the terrorist act, particularly where the organisation is listed under 
the Criminal Code or a United Nations Security Council Resolution
• the nature or extent to which the terrorist act attracted broad media coverage and is of 
national significance, and
• whether the Australian Security Intelligence Organisation or a foreign security or 
intelligence agency has assessed that a terrorist organisation is responsible for the 
incident.
Other factors that do not support a declaration being made are also outlined in the Declaration 
Criteria.
Australian residents or, where applicable, persons covered by a subsection 1061PAA(6) 
determination who are harmed as a direct result of a declared overseas terrorist act or whose 
close family member dies as a direct result of a declared overseas terrorist act can apply for 
financial assistance of up to $75,000 under the AVTOP scheme.
 
Purpose
The Declaration triggers the application of the AVTOP scheme to the overseas terrorist act 
specified in the Declaration.
Explanation and effect of provisions
Section 1 – Name
Section 1 sets out the title of the Declaration as the Social Security (Declared Overseas 
Terrorist Act— Bamyan 2024) Declaration 2024.
Section 2 – Commencement
Section 2 provides that the Declaration commences on the day after it is registered on the 
Federal Register of Legislation.
Section 3 – Authority
Section 3 provides that the Declaration is made under subsection 35B(1) of the Act.
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Document 1.3
Section 4 – Definitions
Section 4 sets out the defined terms that are relevant to the Declaration, and provides that 
terrorist act has the same meaning as in subsection 100.1(1) of the Criminal Code.
Section 5 – Declared overseas terrorist act
Section 5 of the Declaration provides that the shooting that occurred at approximately 6pm 
(local time) in Bamyan Province, Afghanistan on 17 May 2024 is a declared overseas 
terrorist act for the purposes of the Act.
Consultation
Consultation on this Declaration was undertaken with key stakeholders. In particular, the 
Department of Home Affairs consulted with:
• Attorney-General’s Department;
• Department of Finance;
• Department of Foreign Affairs and Trade;
• the Department of the Prime Minister and Cabinet;
• the Department of the Treasury; 
• Services Australia.
The Declaration is a legislative instrument for the purposes of the Legislation Act 2003.
The Declaration is compatible with the human rights and freedoms for the purpose of the 
Human Rights (Parliamentary Scrutiny) Act 2011. A statement of compatibility with human 
rights is included in the Attachment.
 
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Document 1.3
ATTACHMENT
Statement of Compatibility with Human Rights
Prepared in accordance with Part 3 of the Human Rights (Parliamentary Scrutiny) Act 2011
Social Security (Declared Overseas Terrorist Act—Bamyan 2024) Declaration 2024
This Disallowable Legislative Instrument is compatible with the human rights and freedoms 
recognised or declared in the international instruments listed in section 3 of the Human Rights 
(Parliamentary Scrutiny) Act 2011.
Overview of the Disallowable Legislative Instrument
Part 2.24AA of the Social Security Act 1991 (the Act) provides a scheme for financial 
assistance to Australian residents or certain other persons who are victims of a declared 
overseas terrorist act, known as the Australian Victim of Terrorism Overseas Payment 
(AVTOP) scheme.
Victims of terrorist acts who either were an Australian resident on the day the terrorist act 
occurred, or are covered by a determination made by the Minister under subsection 
1061PAA(6) of the Act, may be eligible for an AVTOP payment (see subsection 
1061PAA(1)). Under subsection 1061PAA(6), the Minister may determine a specified class 
of persons by legislative instrument for the purposes of subparagraph 1061PAA(1)(c)(ii).
The AVTOP scheme only applies to overseas terrorist acts that are the subject of a 
declaration by the Prime Minister. Subsection 35B(1) of the Act authorises the Prime Minister 
to declare a terrorist act to be a declared overseas terrorist act. Section 23 of the Act 
provides that a terrorist act has the same meaning as in subsection 100.1(1) of the 
Criminal Code.
Section 5 of the Declaration declares the shooting in Bamyan Province, Afghanistan that 
occurred at approximately 6pm (local time) on 17 May 2024 to be a terrorist act that is a 
 
declared overseas terrorist act for the purposes of the AVTOP scheme.
In considering whether to declare a terrorist act to be a declared overseas terrorist act for the 
purposes of the AVTOP scheme, the Prime Minister has regard to the factors outlined in the 
Australian Victim of Terrorism Overseas Payment Declaration Criteria. The factors that may 
support the Prime Minister making a declaration are:
• the terrorist act targeted Australia or Australian interests or had a direct or indirect 
impact on Australia or Australians (including incidents that target Western interests 
more broadly)
• a terrorist organisation or member of a terrorist organisation has claimed 
responsibility for the terrorist act, particularly where the terrorist organisation is 
listed under the Criminal Code or a United Nations Security Council Resolution
• the nature or extent of the terrorist act attracted broad media coverage and is of 
national significance, and
• the Australian Security Intelligence Organisation or a foreign security or intelligence 
agency has assessed that a terrorist organisation is responsible for the incident.
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Document 1.3
Australian residents or, where applicable, persons covered by a subsection 1061PAA(6) 
determination who are harmed as a direct result of a declared overseas terrorist act or whose 
close family member dies as a direct result of a declared overseas terrorist act are able to 
apply for financial assistance of up to $75,000 under the AVTOP scheme.
Human rights implications 
The Declaration engages the following rights:
• the right to social security (Article 9, International Covenant on Economic, Social and 
Cultural Rights (ICESCR) and Article 26, Convention on the Rights of the Child 
(CRC))
• the right to family life (Article 10, ICESCR)
• the right to an adequate standard of living (Article 11, ICESCR and Article 27, CRC)
• the right to health (Article 12, ICESCR and Article 24, CRC), and
• the rights of persons with a disability under the Convention on the Rights of Persons 
with Disabilities (CRPD), particularly:
o
Article 25 – the right to the enjoyment of the highest attainable standard of 
health without discrimination on the basis of disability, and
o
Article 26 – effective and appropriate measures, including through peer 
support, to enable persons with disabilities to attain and maintain maximum 
independence, full physical, mental, social and vocational ability, and full 
inclusion and participation in all aspects of life.
The Declaration activates the AVTOP scheme to apply to Australian residents or persons 
covered by a subsection 1061PAA(6) determination who are victims of the terrorist act listed 
in section 5 of the Declaration.
Terrorist attacks impose a heavy burden on those harmed by the attack, as well as the family 
members of those harmed or killed. In some cases, the burden on both the person and the 
person’s family will endure for life.
 
Primary victims of declared overseas terrorist act are individuals who are harmed as a direct 
result of the declared overseas terrorist act, and who were in the place where that act 
occurred. Such persons may:
• require medical treatment
• require ongoing domestic care and assistance
• lose some or all of their capacity to work and earn income, and
• experience mental health problems.
Secondary victims of declared overseas terrorist act are individuals whose close family 
member was in the place where the declared overseas terrorist act occurred and died as a 
direct result of that act within 2 years of the date of the act. Such persons (such as a partner, 
child, parent, sibling, or legal guardian of a deceased person) may:
• lose one or more family members, and
• experience a loss of support that they received from their now deceased family 
member.
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Document 1.3
The Declaration takes steps to promote the economic and social rights of victims of terrorism 
and members of their families as follows.
Right to social security in Article 9 of the ICESCR and Article 26 of the CRC
Article 9 of ICESCR and Article 26 of the CRC require States to recognise the right of 
everyone to social security, including social insurance. This includes establishing a social 
security system and, within the State’s maximum available resources, ensuring access to a 
social security scheme that provides a minimum essential level of benefits to all individuals 
and families that will enable them to acquire at least essential health care, basic shelter and 
housing, water and sanitation, foodstuffs, and the most basic forms of education. 
The Declaration promotes the rights of people, including children, who are primary and 
secondary victims of the declared overseas terrorist act in a number of ways, including in 
acknowledging a victim’s right to social security.
Under the AVTOP scheme, financial assistance to Australian residents or persons covered by 
a subsection 1061PAA(6) determination who are harmed as a direct result of the terrorist act 
is awarded on a sliding scale, with larger payments being available to victims who experience 
physical or psychological harm that is severe and enduring. The maximum amount payable to 
a person in relation to the harm they suffer is $75,000.
A maximum amount of $75,000 is payable to the close family members of a person who is 
killed as a direct result of the terrorist act, where those family members were resident in 
Australia at the time of the incident. The amount is apportioned between family members 
using rules modelled on succession laws.
The financial assistance provided does not replace other forms of welfare that might be 
available to the person. Rather, it is designed to facilitate the person’s access to necessary 
goods and services, including, but not limited to, health care.
The financial assistance provided to Australian residents or persons covered by a 
 
subsection 1061PAA(6) determination harmed in the declared overseas terrorist act or whose 
close family member dies as a result of the terrorist acts is not compensation or damages.
On this basis, the Declaration promotes the right to social security.
Right to family life in Article 10 of the ICESCR
Article 10(1) of the ICESCR requires States to recognise the widest possible protection and 
assistance to the family as the fundamental and natural unit of society, requiring the full 
protection of the state. Article 10(3) also recognises that States must take special measures to 
protect and assist children and young persons without discrimination for reasons of parentage 
and other conditions.
The AVTOP scheme enables financial assistance to be provided to close family members of a 
person who died as a direct result of the overseas terrorist act. The AVTOP scheme gives 
priority of payment to a deceased person’s partner and child or children, followed by their 
parent or parents, and finally the person’s sibling or siblings.
On this basis, the Declaration promotes the right of protection of, and assistance to, the 
family.
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Document 1.3
Right to an adequate standard of living in Article 11 of the ICESCR and Article 27 of the 
CRC
Article 11(1) of the ICESCR and Article 27 of the CRC require States to recognise and adopt 
measures to realise an individual and his or her family’s right to an adequate standard of 
living, including adequate food, clothing and housing and to the continuous improvement of 
living conditions.
The AVTOP scheme provides financial assistance for Australian residents or persons covered 
by a subsection 1061PAA(6) determination, including children, who have been injured or 
whose close family member died as a direct result of the terrorist act. The AVTOP scheme 
acknowledges the economic impact of an injury on a primary or secondary victim’s lifestyle.
Financial assistance provided under the AVTOP scheme could be used by an individual or a 
family for the purposes of improving their overall living conditions, particularly where they 
have suffered physical or mental harm or trauma as a direct result of the overseas terrorist 
act.
On this basis, the Declaration promotes the right to an adequate standard of living.
Right to health in Article 12 of the ICESCR and Article 24 of the CRC
Article 12(1) of ICESCR and Article 24 of the CRC provide for the right to the enjoyment of 
the highest attainable standard of physical and mental health.
The AVTOP scheme provides for a higher amount of financial assistance to be provided to 
victims, including children, who suffer greater harm as a direct result of the terrorist act. This 
includes physical injuries and emotional trauma that could require extensive and ongoing 
treatment, as well as domestic care and assistance. The AVTOP scheme also provides for 
financial assistance to be paid to secondary victims of a deceased person giving priority to the 
deceased person’s partner and child, followed by their parent, then sibling. The financial 
assistance available under the AVTOP scheme supplements other Government benefits for 
 
which the person may be eligible.
The Declaration promotes the right to the highest attainable standard of health by providing 
financial assistance to victims that they can use in any way, including for the purposes of 
medical and psychological treatment.
Rights of persons with a disability in Articles 25 and 26 of the CRPD
The CRPD promotes, protects and ensures the full enjoyment of all human rights and 
fundamental freedoms, by all persons with disabilities.
Article 25 of the CRPD requires States to promote the right to the enjoyment of the highest 
attainable standard of health without discrimination on the basis of disability.
Article 26(1) of the CRPD requires States to adopt effective and appropriate measures, 
including through peer support, to enable persons with disabilities to attain and maintain 
maximum independence, full physical, mental, social and vocational ability, and full inclusion 
and participation in all aspects of life.
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Document 1.3
The AVTOP scheme does not discriminate on the basis of disability, but provides for the 
availability of financial assistance to all Australian residents or persons covered by a 
subsection 1061PAA(6) determination harmed as a direct result of a declared overseas 
terrorist attack, or whose close family member dies as a direct result of such an attack. The 
financial assistance provided takes into account factors specified in the AVTOP Principles 
made under section 1061PAF of the Act, including in relation to physical and psychological 
injuries suffered by the primary victim.
The AVTOP scheme does not prescribe the manner in which funds received by a victim 
should be used. The financial assistance may be used by the victim to enable that person to 
attain maximum independence, inclusion and participation in all aspects of life, following 
their injury sustained as a direct result of the terrorist act. The financial assistance does not 
replace other forms of assistance to which a person with a disability may also have access.
On this basis, the Declaration promotes the rights of persons with a disability.
Conclusion 
The Declaration is compatible with human rights and specifically promotes those human 
rights outlined above.
 
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Document 1.4
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Assessment for a Declaration under the AVTOP scheme – 
Bamyan shooting (Bamyan Province, Afghanistan)
Background
At approximately 6pm local time on 17 May 2024, several gunmen opened fire in a bazaar in Bamyan, 
Afghanistan.1 . The targets of the attack were tourists and their local guides. Bamyan is the top tourist 
destination in Afghanistan as the area is home to a United Nations world heritage site and the remains of two 
giant Buddha statues. One of the victims has stated to the press that a gunman on foot approached the 
group's vehicles and opened fire.2 
Six fatalities have been confirmed, with three Spanish nationals and three locals confirmed as the 
deceased.3 According to Abdul Mateen Qani, a spokesman for the Taliban's interior ministry, seven other 
people, including four foreign nationals, were wounded in the attack.4 A local non-governmental organisation 
reported that the persons injured consists of nationals from Spain, Lithuania, Norway, Australia, and 
Afghanistan.5
Seven suspects were arrested at the scene. Islamic State-Khorasan Province (IS-KP) claimed responsibility 
for the attack.6
On 22 May 2024, the Department of Foreign Affairs and Trade (DFAT) notified the Department of Home 
Affairs (the Department) that the Minister for Foreign Affairs had received correspondence from s. 47F(1)  
MP, requesting the incident be declared a terrorist act, to allow s. 47F(1)
 family to apply for 
the AVTOP scheme.
Assessment that the incident meets definition of ‘terrorist attack’ for the 
purposes of S35B of the Social Security Act
 
An incident may be declared as an incident to which the AVTOP scheme applies if it is declared by the Prime 
Minister to be a ‘declared overseas terrorist act’. The incident must satisfy the definition of ‘terrorist act’ and 
have occurred outside of Australia. For the purposes of the legislation, a ‘terrorist act’ has the same meaning 
as in subsection s100.1(1) of the Criminal Code Act 1995 (‘Criminal Code’)
1 Hindeleh, Basil, s. 47F(1)  Injured in deadly shooting in central Afghanistan.’ ABC News, 17 May 2024, 
<https://www.abc.net.au/news/2024-05-18/s. 47F(1) njured-in-afghanistan-deadly-shooting/103865146> 
2 SBS News, s. 47F(1)
 injured in Afghanistan shooting reportedly in stable condition.’ SBS, 18 May 
2024, <https://www.sbs.com.au/news/articles. 47F(1)
-injured-in-afghanistan-shooting-reportedly-in-
stable-condition/8crpcnpis>
3 Gul, Ayaz, ‘Taliban raise death toll to 6 in gun attack on Western Tourists’, VOA News, 18 May 2024,  
https://www.voanews.com/a/taliban-raise-death-toll-to-6-in-gun-attack-on-western-tourists/7617367.html
4 Al Jazeera, ‘Three Afghans, three Spanish tourists killed in Bamyan shooting.’ Al Jazeera, 18 May 2024, 
<https://www.aljazeera.com/news/2024/5/18/three-afghans-three-spanish-tourists-killed-in-bamyan-
shooting> 
5 EMERGENCY International, ‘Five wounded in Bamiyan armed attack receive treatment at EMERGENCY’s 
surgical centre in Kabul.’ EMERGENCY International NGO press release, 22 May 2024, 
<https://en.emergency.it/press-releases/five-wounded-in-bamiyan-armed-attack-receive-treatment-at-
emergencys-surgical-centre-in-kabul/> 
6 Faiez, Rahim, ‘The Islamic State claims attack in Afghanistan that killed 3 Spanish citizens and 3 Afghans.’ 
AP News, 20 May 2024, <https://apnews.com/article/islamic-state-claim-shooting-spanish-citizens-
bfb9f9293922a53bb5adc1f647c48d7b>
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Document 1.4
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The Bamyan incident satisfies the following elements of a terrorist attack:
•
The action was made with the intention of advancing a political, religious or ideological cause
(s100.1(1)(b))
•
The action was made with the intention of intimidating the public or a section of the public
(s100.1(1)(c)(ii))
•
The action caused serious harm that is physical harm to a person (s100.1(2)(a)) AND
•
The action caused a person’s death (s100.1(2)(c)) AND
•
The endangered a person’s life, other than the life of the person taking the action (s100.1(2)(d))
•
The act does not fall within s100.1(3) of the Criminal Code as legitimate advocacy, protest, dissent
or industrial action.
Assessment against the Prime Minister’s Declaration Criteria
The terrorist act targeted Australia or Australian interests or had a direct or indirect impact 
on Australia or Australians.
• DFAT has confirmed that s. 47F(1)
 suffered injuries in the attack in Bamyan, Afghanistan.
• The Hon s. 47F(1)  MP has written to Senator the Hon Penny Wong, Minister for Foreign Affairs,
asking for a declaration to be made, noting that s. 47F(1)
 was
impacted by the incident.
A terrorist organisation has claimed responsibility for the terrorist act
• IS-KP released a statement on 19 May 2024, claiming responsibility for the attack and declaring that it 
came pursuant to the directives of IS officials to "target nationals of coalition states wherever they are."7
• Australia has listed IS-KP as a terrorist organisation under the Criminal Code since November 2017.
The nature or extent of the terrorist act attracted broad media coverage and is of national 
 
significance
• The attack received moderate media coverage with articles about the known s. 47F(1)
 being
published in mainstream media outlets including the ABC,8 SBS,9 and Sky News.10
• The Spanish Ministry of Foreign Affairs said in a statement that three Spaniards died in the attack and at
least one more was injured. The Spanish Prime Minister also made a social media post condemning the
attack and confirming that the victims were tourists.
7 SITE Intelligence, ‘ISKP Claims Armed Attack on Foreign Tourists in Bamyan (Afghanistan)’, SITE Intel 
Group, 19 May 2024, <https://ent.siteintelgroup.com/Jihadist-Threat-Statements/iskp-claims-armed-attack-
on-foreign-tourists-in-bamyan-afghanistan.html> 
8 Basil, s. 47F(1)  injured in deadly shooting in central Afghanistan’, ABC News, 17 May 2024, 
<https://www.abc.net.au/news/2024-05-18s. 47F(1) -injured-in-afghanistan-deadly-shooting/103865146>
9 SBS News, s. 47F(1)
 injured in Afghan shooting reportedly in stable condition.’ SBS, 18 May 2024. 
https://www.sbs.com.au/news/articles. 47F(1)
-injured-in-afghanistan-shooting-reportedly-in-stable-
condition/8crpcnpis
10 Godsell, Oscar, ‘s. 47F(1)
 injured in horrific Afghanistan attack, six dead and eight injured.’ Sky 
News, 19 May 2024, <https://www.skynews.com.au/australia-news/s. 47F(1)
-injured-in-horrific-
afghanistan-attack-six-dead-and-eight-injured/news-story/6dd17c68077b87e60335fdbc6485cdfb>
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