The government then approached Ian Callinan to head the inquiry, but he refused on the basis that he was perceived to be too close to the government. Callinan recommended Fitzgerald as a suitable head. He also drafted the terms of reference for the inquiry and represented the Queensland Government before it. While the terms of reference were initially narrow, restricted only to the specific allegations raised against specific persons named in the media over a period of just five years, Fitzgerald used his moral authority to expand the inquiry to examine any relevant matter. As a result, the terms of reference of the Commission were extended twice.