The Royal Commission into the Integrity of Major Public and Civil Infrastructure Construction Projects in Victoria was established by the Honourable Margaret Gardner AC, Governor of Victoria, on 20 August 2026. By Letters Patent, the Governor appointed The Honourable Christopher Kourakis AC as Commissioner to inquire into and report on matters relating to corruption, criminal conduct and serious misconduct on or in relation to major construction projects in Victoria.
The Counsel Assisting team appointed to the Commission are Chris Young KC and Christopher Carr SC.
Solicitors Assisting the Commission are Maddocks.
This Royal Commission has been established to:
- identify the nature and extent of corruption, criminal conduct and serious misconduct on or in relation to Major Construction Projects in Victoria;
- identify any flaws or weaknesses in the operational, contractual, regulatory, licensing and statutory frameworks, organisational and workplace culture and law enforcement that may have allowed any identified corruption, criminal conduct or serious misconduct to occur on Major Construction Projects;
- identify the impacts of corruption, criminal conduct or serious misconduct on Major Construction Projects and understand what measures may be required to address patterns of conduct that also extend to major construction projects commissioned by the private sector for private sector purposes;
- support the Government in improving the operational, contract management, oversight, regulatory, licensing and statutory frameworks, organisational and workplace culture and law enforcement applicable to Major Construction Projects in Victoria to prevent future corruption, criminal conduct or serious misconduct, and rebuild trust in the integrity of the major construction sector in Victoria; and
- to instigate referrals, including by working cooperatively with a Special Prosecutor, to Victoria Police, IBAC, Regulatory and Licensing Authorities or other relevant bodies for the investigation or prosecution of individuals or entities responsible for corruption, criminal conduct or serious misconduct, and to work cooperatively in relation to any other functions conferred on the Special Prosecutor in the future.
The Commissioner is appointed to inquire into and report on the following matters:
- The extent to which corruption, criminal conduct or serious misconduct has occurred on or in relation to any major public and civil infrastructure projects (Major Construction Projects), including any such activity undertaken or instigated by the CFMEU Construction & General Division, construction companies and consortia, sub-contractors, labour-hire companies, Contracting Entities, Suppliers or others.
- Whether the Executive Government of Victoria, and/or Delivery Authorities adequately adhered to their roles and responsibilities in the oversight and governance of Major Construction Projects.
- In relation to corruption, criminal conduct or serious misconduct identified as having occurred on or in relation to any Major Construction Projects:
- Causes: the causes of, and contributing factors to, such conduct, with a focus on systemic causes and contributing factors arising from patterns of conduct by individuals or entities;
- Preconditions: the circumstances which lead to, or are a precondition to, such conduct occurring, including having regard to the legislative and regulatory framework, the contractual arrangements and industry practices with respect to sub-contracting, labour hire, mediation, supply chains and procurement;
- Executive government roles and responsibilities: whether there are any particular features of Major Construction Projects, including executive government procurement and oversight, that contribute to the prevalence of corruption, criminal conduct or serious misconduct on or in relation to Major Construction Projects;
- Contextual Changes: whether there have been any significant changes to policy, industry practice or legislation that contributed to an increased prevalence of corruption, criminal conduct or serious misconduct on Major Construction Projects in any of the following areas: procurement; contractual arrangements between Contracting Entities; labour hire; subcontracting; industrial relations; arrangements with Suppliers; and associated matters; and
- Impacts: the impact of corruption, criminal conduct or serious misconduct on or in relation to any Major Construction Projects, including, but not limited to construction costs (including wastage, misdirected funds, and inflated costs), project delivery, worker safety, contracting and sub-contracting practices, procurement practices, provision of supplies and supply chain structures, industrial relations practices, and productivity, efficiency, and competition.
- The actions (including their adequacy) taken by Contracting Entities to respond to or to mitigate the risk of corruption, criminal conduct or serious misconduct occurring on or in relation to any Major Construction Projects, including immediately responding to emerging risks or allegations.
- The actions (including the adequacy of the policy, reporting, and information-sharing frameworks) taken by the executive government of Victoria (including Delivery Authorities, Regulatory and Licensing Authorities, Victoria Police) to respond to and mitigate the risk of corruption, criminal conduct or serious misconduct occurring on or in relation to any Major Construction Projects, including immediately responding to emerging risks or allegations.
- The effectiveness of measures recommended by, or implemented in response to, Previous Inquiries, including the factors or circumstances that may have limited that effectiveness.
- Measures (including remedies and sanctions) that could be implemented to prevent, reduce, or mitigate the risk of occurrence of corruption, criminal conduct or serious misconduct on or in relation to any Major Construction Projects, including the ability to immediately respond to emerging risks or allegations.
- Measures (including remedies) to recoup funds paid by the State where they have been misappropriated or received as a result of corruption, criminal conduct or serious misconduct on or in relation to Major Construction Projects.
- Measures that could also be implemented to prevent, reduce, or mitigate the risk of occurrence of corruption, criminal conduct or serious misconduct on or in relation to construction of major projects commissioned by the private sector for private sector purposes, excluding domestic or residential construction projects.
- Any other matters reasonably incidental to these Terms of Reference.
The following matters are not within the scope of this inquiry:
- lawful, legitimate and appropriate actions taken by parties under industrial laws and regulations;
- lawful, legitimate and appropriate actions taken by parties under occupational health and safety laws and regulations.
Undefined terms are not otherwise to be taken to be a reference to terms that may be defined in law or elsewhere.
CFMEU
CFMEU means the Construction, Forestry and Maritime Employees Union - Construction & General division (including the Construction, Forestry and Maritime Employees Union - Construction & General division under Administration).
Contracting Entities
Contracting Entities means head-contractors and consortia, sub-contractors, labour-hire companies, third parties who offer mediation or other dispute resolution services and other commercial entities materially involved in Major Construction Projects.
Delivery Authorities
Delivery Authorities includes any State government agency (or its predecessors) responsible for the delivery of Major Construction Projects, including the Suburban Rail Loop Authority, Victorian Infrastructure Delivery Authority, the Victorian School Building Authority and Development Victoria.
IBAC
IBAC means the Independent Broad-based Anti-corruption Commission.
Major Construction Projects
Major Construction Projects means all major public and civil infrastructure construction projects commissioned by the State of Victoria, including any State entities under the Public Administration Act 2004.
Previous Inquiries
Previous Inquiries means any current and previous inquiries into matters related to the subject-matter of this Royal Commission including, any royal commissions or other inquiries at State or Commonwealth level regarding the construction sector.
Regulatory and Licensing Authorities
Regulatory and Licensing Authorities includes Victorian agencies with regulatory or licensing functions in respect of Major Construction Projects, including the Labour Hire Authority, the Workplace Inspectorate Victoria and WorkSafe.
Special Prosecutor
Special Prosecutor means the individual appointed under statute, to act in cooperation and conjunction with this Royal Commission to refer information to Victoria Police and IBAC, and exercise any other powers and functions conferred by legislation on the Special Prosecutor.
Suppliers
Suppliers means any individuals or entities that provide goods or services in relation to Major Construction Projects.
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