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The beginnings of the AFP

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30 August 2023, 9:33am

The beginnings of the AFP

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On 13 February 1978, a bomb ripped apart a garbage truck outside Sydney’s Hilton Hotel, killing 3 people. Inside, official delegates were gathered for the Commonwealth Heads of Government Regional Meeting. Minutes later, they were caught up in one of Australia’s first terrorist attacks.

Garbage collectors Alex Carter and William Favell died after a bomb hidden in a bin exploded as it was emptied into their truck. On duty police constable Paul Birmistriw was also injured and later died in hospital. 

13 February 1978: Bombing outside the Hilton hotel in Sydney AFPM4407
13 February 1978: Bombing of garbage truck outside Sydney's Hilton Hotel
13 February 1978: Cleaning up after the bombing outside the Hilton Hotel in Sydney
Reward leaflet for more information on the Hilton bombing (1978)

While the incident was one of the major reasons that 3 law enforcement agencies merged to form the Australian Federal Police (AFP) on 19 October 1979, the push towards a Commonwealth police force had been moving since 1917.

Federal policing in Australia can trace its origins to a single incident in November 1917 when Queensland Police refused to follow Prime Minister William Hughes’s directions, who was in the state campaigning to enact military conscription.

Waiting for the Prime Minister at Warwick Railway Station in the state’s south were protestors, with eggs in hand, who threw them at Mr Hughes. After the assault, the Prime Minister was frustrated when the attending Queensland Police wouldn't arrest the offenders under federal law.

Returning to Parliament, he drafted legislation to create the Commonwealth Police Force (CPF). The 'Warwick Incident' was the last straw for the Prime Minister, who had a range of struggles with the Queensland Government at the time.

While the CPF operated for only 2 years, it was the first time the Australian Government clearly recognised that it needed a federal law enforcement agency.

Later developments

In the years after, a variety of federal agencies were created to meet the Government's law enforcement needs, including the Commonwealth Police (Federal Capital Territory), which was formed in 1927 after Federal Parliament was installed in Canberra. It was then renamed the Australian Capital Territory (ACT) Police.

In 1960 a third Commonwealth Police was created by combining the Commonwealth Investigation Service and the Peace Officer Guard.

Further attempts to consolidate all federally-funded law enforcement agencies emerged in the mid-1970s, but were abandoned after the 1975 Whitlam Government was dismissed. Following the Hilton hotel bombing, the Commonwealth formed the Australian Bomb Data Centre. Created within months of the event, it would later be absorbed into the future AFP.

The bombing revived the idea of a single federal law enforcement agency and saw the amalgamation of the Commonwealth Police, ACT Police and the Narcotics Bureau to form the AFP in 1979.

Down through the years

Since 1979, the AFP has proven its policing credentials in international, national and community environments, quickly adapting and responding to ever-changing law enforcement challenges. In the 44 years since the formation of the AFP, it has evolved from a small agency with a defined remit to a $1.9 billion enterprise with a broad range of responsibilities.

The AFP’s policing and law enforcement responsibilities now range from countering international organised crime to community policing, deterring and prosecuting terrorists to international peacekeeping, and bringing financial and child exploitation offenders to justice. The AFP has explored, and will continue to explore, opportunities and challenges in the current and future global environment.

The AFP has always sought to protect Australians and their way of life, minimising impact and disrupting threats at the first opportunity. Efficiently responding to the manifestation of threats is the most effective way to minimise harm, enable recovery, and promote community resilience.

The AFP enforces criminal law and assists its state and international partners to enforce the rule of law.

The AFP – key moments across the decades

A brief snapshot of some of the key moments in the history of the AFP. Note: this isn't an exhaustive list. For more detail on what the AFP has been involved in recently visit our News Centre.

  • 1979 – Sir Colin Woods is sworn in as the AFP’s first commissioner (1979-1982).
  • 19 October 1979 – first day of AFP operations.
  • 1979 – ­ Commissioner Woods sets up cooperative arrangements with Australian law enforcement agencies.
Kenny Koala visiting Commissioner Woods in his office, circa 1981 AFPM2131
Kenny Koala visiting Commissioner Woods in his office AFPM2131

  • 1981 – The AFP sends 250 officers to assist the Victoria Police secure a Commonwealth Heads of Government Meeting in Melbourne.
  • 1982 – 100 kgs of heroin imported by a Thai syndicate seized during Operation Toggle.
  • 1982 – For the first time an AFP recruit training course was comprised of significantly more women than men. There were 16 women and 7 men in the intake. 
29 November 1982: For the first time an AFP recruit training course was comprised of significantly more women than men. There were 16 women and 7 men in this intake. Photo courtesy of ACT Heritage Library: Canberra Times Collection
AFP recruit training course. Photo courtesy of ACT Heritage Library: Canberra Times Collection
  • 1982 - 1983 – After several royal commissions, the AFP takes on a large number of investigations into organised crime and drug trafficking.
  • 1983 – Ron Grey is sworn in as AFP Commissioner (1983-1988).
AFP Commissioner Ron Grey being sworn in by Sir H. Gibbs in 1983 AFPM6480
AFP Commissioner Ron Grey being sworn in by Sir H. Gibbs in 1983 AFPM6480
  • 1983 – The AFP builds its international police liaison posts to include London, Bangkok, Kuala Lumpur, Jakarta, Los Angles and New Zealand.
  • 1983 - 1984 – Many significant wins over 12 months in major crime, including the seizure of 112 kgs of heroin, 12 kgs of cocaine and almost 3 tonnes of cannabis products. There are also major investigations into medical insurance fraud and the 'bottom of the harbour' tax avoidance scheme.
  • 1985 - 1986 – Operation Lavender results in the arrests of 20 people and the end of a major criminal drug trafficking syndicate.
Units of cannabis resin on a tarp in the back of a car from Operation Lavender AFPM9139
Units of cannabis resin on a tarp in the back of a car from Operation Lavender 1985 AFPM9139
  • 1988 – Peter McAulay sworn in as AFP Commissioner (1988-1994).
  • 1989 – The remains of a woman missing for 13 years are found in a car dragged from Canberra’s Lake Burley Griffin.
  • 1989 – Assistant Commissioner Colin Winchester is killed on duty. More than 2,000 family members, friends and colleagues attend his funeral in Canberra.

  • 1990 – 997 kilograms of compressed cannabis are seized and 7 people arrested on a Perth beach during Operation Whalkers. 
  • 1991 – 234 people are arrested and 40 AFP members are injured trying to control violent protestors at the Australian International Defence Equipment Exhibition (AIDEX) in Canberra.
  • 1992 – 10 AFP officers join the United Nations Transitional Authority in Cambodia to supervise the country’s first democratic elections.
AFP peacekeepers handing out sweets to a group of children in Cambodia, 1993 AFPM4727
AFP peacekeepers with a group of children in Cambodia AFPM4727
  • 1992 - 1993 – Commissioner Peter McAulay calls on the AFP to counter an emerging use of technology to commit crime.
  • 1994 – Mick Palmer is sworn in as AFP Commissioner (1994 - 2001).
  • 1994 – 13 people are charged after AFP-United States Operation Wafer stops a criminal enterprise from producing and distributing $US5 million in counterfeit 100 dollar notes along Australia’s east coast.
  • 1996 – AFP officers hold back 2,000 angry post Federal Budget protestors trying to enter Parliament House in Canberra.
  • 1997 – A 13-member AFP team rushes to the site of a landslide that has flattened 2 ski lodges in Thredbo NSW. 18 people die and 1 person survives.
  • 1997 – Operation Quokka investigates the death of Canberra girl Katie Bender, who was struck by flying debris while watching the publicised implosion of the old Royal Canberra Hospital.
  • 1998 – 4 people are arrested and almost 225 kgs of cocaine seized from an 18-metre boat near Coffs Harbour in NSW during Operation Gentle.
  • 1998 – 390 kgs of heroin are seized near Port Macquarie on NSW mid-north coast during Operation Linnet.
  • 1999 – The AFP sends a contingent of 22 officers to East Timor to assist with their ballot for self-determination.

  • 2000 – A busy 12 months sees the AFP assist with the security overlay of the 2000 Olympics in Sydney, the seizure of 357 kgs of heroin bound for Australia, and the arrest and sentencing of 300 people on people smuggling charges.
  • 2001 – Mick Keelty is sworn in as AFP Commissioner (2001 - 2009).
  • 2001 - 2002 – The AFP international network expands to 33 officers in 21 countries.
  • 2001 – Post the September 11 terror attacks in the US, the AFP begins transitioning to an organisation re-defined by its increased role in all aspects of counter-terrorism.
  • 2002 – AFP Operation Alliance members assist the Indonesian National Police to investigate the Bali bombings, which killed 202 people, including 88 Australians. The initial AFP team comprises forensic scientists, pathology experts, and family support teams.
  • 2003 – The AFP assists with evacuations after a firestorm kills 4 people and destroys 500 houses in Canberra.
  • 2004 – AFP disaster victim identification teams assist in the wake of the Boxing Day tsunami in the Indian Ocean.
  • 2005 - 2006 – The AFP and partner agencies prevent more than 1 tonne of illicit drugs reaching Australian streets.
  • 2007 – The AFP becomes only the second policing agency in the Southern Hemisphere to sign a law enforcement agreement with Europol.
  • 2007 – An AFP Online Child Exploitation Team operation leads to the arrest of 9 people and the seizure of computer equipment containing one million child abuse images.
  •  2008 – A 12-month investigation by a range of law enforcement agencies resulted in the world’s largest single seizure of ecstasy worth $440 million concealed in a shipment of 3000 tomato tins. The investigation led to 16 arrests in Australia.
Police officers seize shipment of ecstasy AFPM11517
At the time, the world’s largest single seizure of ecstasy worth $440 million concealed in a shipment of 3000 tomato tins AFPM11517
  • 2008 - 2009 – The AFP joins the Australian Tax Office to investigate tax fraud as part of Project Wickenby.
  • 2009 – Tony Negus is sworn in as AFP Commissioner (2009 - 2014).

  • 2010 – AFP members remember fallen officers during the first ‘Wall to Wall Ride for Remembrance’.
The Wall to Wall riders crossing King’s Avenue bridge AFPM11834
Wall to Wall riders crossing King’s Avenue bridge. Wall to Wall is held to remember those police officers who have died in service across Australia AFPM11834
  • 2012 – The AFP Operational Response Group and ACT Policing’s Specialist Response and Security Teams merge to form the Specialist Response Group.
  • 2013 – A people smuggling ring is smashed during Operation Delphinium.
  • 2014 – Malaysia Airlines flight MH17 is shot down, killing all 298 on board, including 38 Australians. AFP Operation Arew is set up to investigate.
Sworn members of the ACT Policing Disaster Victim Identification (DVI) team, Specialist Response Group and Protective Service Officers searching the flight MH17 crash zone for evidence AFPM10558
Sworn members of the ACT Policing Disaster Victim Identification (DVI) team, Specialist Response Group and Protective Service Officers searching the flight MH17 crash zone for evidence AFPM10558
  • 2015 – Andrew Colvin sworn in as AFP Commissioner (2015 - 2019).
  • 2016 – 4 people are charged over the importation and manufacture of 720 litres of ‘Ice’, with an estimated potential street value of more than a billion dollars.
  • 2017 – The AFP and its law enforcement partners arrest 17 people in Sydney, Dubai and Europe after the seizure of 1.9 tonnes of narcotics destined for Australian streets.
  • 2018 – The AFP dive team participates in the rescue of soccer team players trapped in the rising waters of a Thai cave system.
  • 2018 – A joint AFP-Australian Border Force operation results in the seizure of one of the largest hauls of 'liquid ecstasy'.
  • 2019 – Reece Kershaw is sworn in as AFP Commissioner (2019 - present).
  • 2019 – The AFP arrests 5 members of a criminal syndicate for allegedly defrauding the National Disability Insurance Scheme (NDIS) of millions of dollars. 
  • 2020 – An AFP proceeds of crime investigation sees almost one million dollars seized from a Perth drug trafficker is given to the Commonwealth.

  • 2021 – An AFP-led operation charges more than 100 organised crime members after developing a world-leading capability to see encrypted communications used exclusively by crime syndicates.
  • 2021 – Following AFP investigations, 14 children, aged between 2 and 17, are rescued from alleged child sexual abuse ring in the Philippines.
  • 2022 – A Sydney man is the final person to be convicted of a terrorism offence under the multi-agency Operation Appleby.
  • 2023 ­– AFP Forensic experts deployed to Papua New Guinea have helped retrieve and recover human remains, personal items and artefacts of Australian World War 2 soldiers at a remote burial site.
AFP Forensic experts in Papua New Guinea (PNG) have assisted with the retrieval and recovery of human remains, personal items and artefacts of Australian World War II soldiers from a remote burial site.
AFP Forensic experts in PNG assisting with the retrieval and recovery of human remains, personal items and artefacts of Australian World War II soldiers from a remote burial site.

To 2030 and beyond

The AFP of today reflects more than 104 years of growth and evolution of the role, function and responsibilities of federal policing.

While AFP’s core functions have largely endured more than 40 years, the scope of the AFP’s responsibilities has significantly increased as a result of expanding Commonwealth laws and the evolving threat environment.

Criminal and non-criminal threats are increasingly rendering borders, geography and technology constraints irrelevant. The AFP’s geographical reach, specialist capabilities and partnerships uniquely positions it to lead and coordinate policing responses to address future threats.

Crime and technology are increasingly indistinguishable, with successful employment of technology being key to the AFP’s future operational effectiveness and efficiency. As a policing agency with a global footprint, the AFP is uniquely positioned to amass critical insights into threats and opportunities confronting Australia and our international neighbours.

The AFP’s success rests heavily on the strengths of its people. Its future ability to attract and retain skills and experience in an increasingly tight labour market will be heavily dependent on the AFP’s positive employer credentials.

Organisational flexibility and agility has been key to the AFP past successes and will be increasingly important to its future successes in the face of rapid changes in the operating and threat environment.

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