Post on 04-Jun-2020
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21Chapter 21VCAT
465
CONTENTSIntroduction� 466
Current�law� 466
Other�jurisdictions� 475
Community�responses� 477
The�Commission’s�views�and�conclusions� 484
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21Chapter 21 VCAT
INTROduCTION21.1 TheVictorianCivilandAdministrativeTribunal(VCAT)playsacentralroleinVictorian
guardianshiplaw.Itsprimaryfunctionistodecidewhetherguardiansoradministratorsshouldbeappointedforpeoplewhoareunabletomaketheirowndecisions.
21.2 VCATisaverylarge‘supertribunal’thatdealswithmanydifferentlegalmattersrangingfromtenancydisputestodisciplinaryandlicensingmattersforvariousprofessionsandbusinesses.BeforetheestablishmentofVCATin1998,aseparatetribunal—theGuardianshipandAdministrationBoard—dealtwithguardianshipandadministrationmatters.1NearlyallVictoriantribunalswerebroughtwithintheVCATstructurein1998.2
21.3 VCAThasthreedivisions:civil,administrativeandhumanrights.Eachdivisionhasanumberofsectionscalled‘lists’thatspecialiseinhearingparticulartypesofcases.TheGuardianshipListispartoftheHumanRightsDivision.
21.4 TheCommissionhasbeenaskedtoconsider:
TheroleandpowersoftheVictorianCivilandAdministrativeTribunalinrelationtoguardiansandadministratorsandtheefficacyofitsprocessesfortheappointmentofguardiansandadministratorsundertheActandtheVictorian Civil and Administrative Tribunal Act 1998 andRules.3
21.5 VCATisundergoinginternalreviewandreorganisation.TheVCATPresident’sreview,releasedinNovember2009,containedarangeofproposedreforms.4Manyoftheseproposedreformsformedthebasisoftherecentthree-yearstrategicplanreleasedbyVCAT’sPresident,JusticeIainRoss,in2010.ThisstrategicplanisknownasTransforming VCAT.5
21.6 TheCommissionhasalsobeenaskedtoconsiderwhetherVictoria’sguardianshiplawsadequatelydealwiththeissueofconfidentiality.6StrikinganappropriatebalancebetweenconfidentialityandtransparencyisamatterthatsometimesarisesinguardianshipmattersatVCAT.
21.7 Thischapter,whichdealswithVCATprocesses,containsrecommendationsinrelationto:
• pre-hearingprocesses
• attendanceandrepresentationathearings
• reviewsandappeals
• confidentiality.
CuRRENT LawROLE aNd pOwERS Of VCaT21.8 VCAT’sgeneralpowersandproceduresaregovernedbytheVictorian Civil and
Administrative Tribunal Act 1998 (Vic)7(VCATAct)andtheVictorian Civil and Administrative Tribunal Rules2008(Vic).8TheGuardianship and Administration Act 1986(Vic)(G&AAct)alsodealswithsomeproceduresinguardianshipmatters.
1 ThisBoardwasestablishedunderpt2oftheGuardianship and Administration Board Act 1986(Vic),asrepealedbyTribunals and Licensing Authorities (Miscellaneous Amendments) Act1998(Vic)s117.
2 Therearesimilar‘supertribunals’inWesternAustralia,QueenslandandtheAustralianCapitalTerritory.3 VictorianLawReformCommission,Guardianship Review Terms of Reference(May2009)3(g)(‘Guardianship Review Terms of Reference’).4 JusticeKevinBell,One VCAT: President’s Review of VCAT(2009).5 JusticeIainRoss,Transforming VCAT Three Year Strategic Plan 2010/11–2012/13 (2010).6 Guardianship Review Terms of Reference,aboven3,3(k).7 Victorian Civil and Administrative TribunalAct1998(Vic).8 Victorian Civil and Administrative TribunalRules2008(Vic).
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21.9 In2010–11,VCAThadover200memberswhodealtwithnearly87,000applications.9ThePresidentofVCATmustbeajusticeoftheSupremeCourtofVictoria.10VCAThasseveralVicePresidentswhomustbejudgesoftheCountyCourtofVictoria.11VCATalsohasDeputyPresidents12whoareresponsibleformanagingoneofVCAT’sthreedivisions,oroneofthelistswithinthesedivisions.13
21.10 ThemainfunctionsoftheGuardianshipListare:
• decidingwhetherguardiansshouldbeappointed,appointingguardiansandreassessingguardianshiporders
• decidingwhetheradministratorsshouldbeappointed,appointingadministratorsandreassessingadministrationorders
• providingadvicetoguardians,administratorsandthepersonresponsibleabouthowtheyexercisetheirpowers14
• decidingwhethertorevokeanattorney’sappointment,orvarying,suspendingormakinganotherorderinrelationtoanenduringpowerofattorney(financial)undertheInstruments Act 1958(Vic)
• decidingwhethertorevokeorsuspendanenduringpowerofattorney(medicaltreatment)underthe Medical Treatment Act 1988 (Vic)
• decidingwhethertoconsenttoa‘specialprocedure’inrelationtomedicaltreatment.
21.11 VCATisalsoresponsibleforhearingapplicationsinrelationtovariousmattersgovernedbytheDisability Act 2006 (Vic).15 TheseapplicationsdonotdirectlyrelatetotheCommission’sreviewoftheG&AAct,buttherelationshipbetweentheG&AActandtheDisabilityActisconsideredinChapter23.
21.12 In2010–11,theGuardianshipListfinalised12,258mattersandheard10,893initiations,makingitoneofthebusiestlistsatVCAT.16Ofthesematters,29percentwereoriginatingapplicationsand71percentreassessmentapplications.17In2009–10,10,771matterswerecommencedand12,493matterswerefinalisedintheGuardianshipList.18
21.13 WhilemostGuardianshipListhearingsoccuratVCAT’spremisesinthecityofMelbourne,hearingsalsooccuratanumberofsuburbanandregionallocationsthroughoutVictoria.GuardianshipListhearingsarealsosometimesheldawayfromVCATvenues,suchasathospitals.
9 VictorianCivilandAdministrativeTribunal,Annual Report 2010/11(2011)5(‘VCAT,Annual Report 2010/11’).10 Victorian Civil and Administrative TribunalAct1998(Vic)s10.11 Ibids11.12 Ibids12.13 VCAT,Annual Report 2010/11,aboven9,4.TheGuardianshipListispartoftheHumanRightsDivision.14 VCATmayprovideadvicetoenduringguardians,thepersonresponsibleandadministratorseitherbyrequestoronitsowninitiative:
Guardianship and Administration Act 1986(Vic)ss35E,42I,42W,55.WhileVCATprovidesadvicetoguardiansunderonrequestunders30,thereisnoprovisioninthelegislationforVCATprovidingadvicetoguardiansonitsowninitiative.However,VCATmayorderareassessmentofaguardianshipappointmentonitsowninitiativeatwhichitcouldprovideadvicetoguardians:atss61(2),63.
15 ThesemattersincludeapplicationstoVCATundertheDisability Act 2006 (Vic) to:reviewdecisionsbytheSecretarytotheDepartmentofHumanServicestoadmitapersonwithanintellectualdisabilitytoaresidentialinstitution:ats88;reviewdecisionsabout‘restrictiveinterventions’(thatis,therestraintorseclusionofapersonwithadisability):ats146;makeordersaboutresidentialtreatmentfacilities,includingaresident’streatmentplansandleaveofabsence:atss154–7;makeordersabout‘securityresidents’(peoplewithanintellectualdisabilitytransferredfromprisontoanotherfacility),includingsecurityresidents’treatmentplansandleaveofabsence:atss168–71;makeandreviewsupervisedtreatmentordersforpeoplewithanintellectualdisabilityifsatisfiedthat,amongotherthings,thepersonmustbedetainedtopreventseriousharmtoanotherperson:atss189,191–9.
16 VCAT,Annual Report 2010/11,aboven9,43.17 Ibid.18 VictorianCivilandAdministrativeTribunal,Annual Report 2009/10(2010)46.
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21Chapter 21 VCAT21.14 TheGuardianshipListmembersmaybefull-timeorsessional,andmayworkinother
VCATlistsaswellastheGuardianshipList.AlthoughmanyGuardianshipListmembersarelawyers,thisisnotessentialformostmatters.19MembersreceiveongoingtrainingandprofessionaldevelopmentatVCATandtheJudicialCollegeofVictoria.
21.15 BecauseVCATisatribunalratheracourt,itsmembersdonothavethesametenureasjudgesandmagistrates,anditsproceduresaredesignedtobelessformalthanthosefollowedincourts.Forexample,VCATisnotboundbytherulesofevidence.20TheVCATActdirectsthathearingsmustbeconductedwith‘aslittleformalityandtechnicality’and‘asmuchspeed’asthelawandaproperconsiderationofthematterallows.21However,VCATisboundbytherulesofnaturaljustice.22Thismeansthatthepartiesmustbegivenafairhearingandhavetheircasedeterminedbyanimpartialdecisionmaker.23VCAT’svisionistobe‘aninnovative,flexibleandaccountableorganisationwhichisaccessibleanddeliversafairandefficientdisputeresolutionservice’.24
21.16 UnlikemostAustraliancourts,VCATseekstooperateasan‘inquisitorial’bodythattakesanactiveroleindeterminingthefactsofamatterbeforethetribunal,usuallybyaskingquestionsandsometimesbydirectingthePublicAdvocatetoconductinvestigations.25In2010–11,thePublicAdvocateconducted563investigationsforVCAT.26
21.17 Thereisnoautomaticrighttolegalrepresentationinmostguardianshipmatters—theconsentofVCATorallthepartiesisrequiredforapersontoberepresentedbyaprofessionaladvocateatahearing.27InterpretersareprovidedfreeofchargeatVCAThearingsuponrequest.
procedures in Guardianship List matters21.18 AnypersoncanapplytoVCATforaguardianshiporadministrationorderinrelation
toanotherperson.28Thereisnoapplicationfee.Inpractice,mostapplicationsaremadebyamemberoftheproposedrepresentedperson’sfamily,orbyasocialworker.Applicantsmustfilloutanapplicationform,includingcontactdetailsfortheproposedrepresentedperson,anyprimarycarer,andanyknownrelativesand/orotherinterestedparties.29Theformmustalsoincludedetailsofthedisabilityoftheproposedrepresentedperson,includingsupportingevidencesuchascurrentmedicalrecords.30
21.19 Theapplicantisaskedtosendacopyofthecompletedformtotheproposedrepresentedpersonandallotherinterestedpersons,includinganyprimarycarer,thenearestrelativeandanyexistingorproposedguardianoradministratorbeforelodgingtheform.31Consequently,theapplicantdetermineswhoisinitiallynotifiedofanapplicationforaguardianshiporadministrationorder.
19 Victorian Civil and Administrative TribunalAct1998(Vic)sch1cl31(1).20 Ibids98(1)(b).21 Ibids98(1)(d).22 Ibidss97,98(1)(a).23 RogerDouglas,Douglas and Jones’s Administrative Law(FederationPress,5thed,2006)480.24 VCAT,Annual Report 2010/11,aboven9,2.25 VCATmayrequestinvestigationsbythePublicAdvocatepursuanttoVictorian Civil and Administrative Tribunal Act 1998(Vic)sch1cl35.26 OfficeofthePublicAdvocate(Victoria),Annual Report 2010//11(2010)11.27 Victorian Civil and Administrative TribunalAct1998(Vic) s62.28 Guardianship and Administration Act 1986 (Vic) ss19(1),43(1).29 SeeVictorianCivilandAdministrativeTribunal,Application to Appoint an Administrator, Guardian or to Make Orders Regarding
Enduing Powers of Attorney/Guardianship (21December2011),2–3<http://www.vcat.vic.gov.au/CA256DBB0022825D/page/Guardianship+and+Admin-Applications-Forms+-+Guides?OpenDocument&1=60-Guardianship+and+Admin~&2=10-Applications~&3=10-Forms+-+Guides~>(‘Application to Appoint an Administrator, Guardian or to Make Orders’).
30 Ibid2.31 Ibid1.
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Parties and people entitled to notice21.20 Thelegislationdistinguishesbetweenpeoplewhoarepartiestoproceedingsand
thosewhoareentitledtonoticeoftheproceedings.TheVCATActandtheG&AActprovidesomeguidanceaboutwhoistobeapartyinaguardianshiporadministrationmatter.UndertheVCATAct,partiesincludetheapplicant,theproposedrepresentedperson,andanypersonjoinedasapartybyVCATorspecifiedundertheG&AAct.32TheG&AActidentifiestheproposedrepresentedpersonandtheproposedguardianoradministratorasautomaticpartiestoaproceeding.33
21.21 TheG&AActalsolistspeoplewhoareentitledtobenotifiedwhenapersonhasmadeanapplicationforaguardianshiporadministrationorder,ofthedateofthehearing,andofanyordermadebyVCATrelatingtotheapplication.Thesepeoplearedescribedas‘personsentitledtonotice’.34
21.22 Peopleentitledtonoticeofanapplicationforaguardianshiporderarethenearestrelative(otherthantheapplicant,ortheproposedguardianoranadministrator),theprimarycarer,thePublicAdvocateandanyadministratorappointedfortheperson.35Peopleentitledtonoticeofanapplicationforanadministrationorderarethenearestrelative,theprimarycarer,thePublicAdvocate,anyguardianappointed,and‘anypersonwhohadadvisedtheTribunalofaninterestinthepersoninrespectofwhomtheapplicationismadeorinhisorherestate’.36
21.23 PartiestoanyVCATproceedingshavetherighttoinspectdocumentsheldbyVCATrelatingtoaproceeding,includingVCAT’sregisteroftheproceeding,freeofcharge.37Otherpeople,includingthoseentitledtonotice,mayinspectorobtainacopyofanypartofthefileorregisterforaprescribedfee,subjecttocertainconditions.38
Pre-hearing procedures21.24 TheVCATRegistryscreensapplicationswhentheyarelodged.TheCommission
understandsthattheregistryconfirmswhetherappropriatemedicalorotherexpertreportshavebeenprovidedandarecurrent,followsuprelevantinformationwiththeapplicantandotherrelevantpeople,andensuresthatappropriatearrangementsaremadeforthehearing—forexample,ensuringthelocationisappropriate,andthatinterpretersarearrangedwherenecessary.
21.25 MorecomplexmattersarereferredtothePublicAdvocate’sVCATDutyOfficerforexaminationandadvice.39TheCommissionunderstandsthattheVCATDutyOfficermaycontacttheapplicantorproposedrepresentedpersontoexplainthehearingprocessortomakefurtherenquiries.Insomecases,themattermaybereferredbacktoVCATforprioritylisting.Ifamatterisparticularlycomplicated,orrequiresin-depthinvestigation,thePublicAdvocatemayconductaformalinvestigationintothematterbeforethehearing.Ifaproposedrepresentedpersonisunabletoattendthehearing,thePublicAdvocate’sinvestigationreportmayindicatetheirviewsabouttheapplication.
32 Victorian Civil and Administrative Tribunal Act 1998(Vic)s59(1)(a).33 SeeGuardianship and Administration Act 1986(Vic)ss19(2),43(3),61(4).34 Seeibidss20,44.35 Guardianship and Administration Act 1986(Vic)s20.36 Ibids44.37 Victorian Civil and Administrative Tribunal Act 1998(Vic)ss144(3)146(2).38 Guardianship and Administration Act 1986(Vic)ss144(4),146(3).39 Examplesofmorecomplexmattersmayincludeapplicationsfortemporaryorders,arevocationofanenduringpowerofattorney(financial)
andappointmentofadministrator,‘specialprocedures’,applicationsthatindicatesignificantconcernsabouttheperson’swelfare,applicationswheremedicalreportsastocompetenceareunclearorinadequate,matterswherethereisuncertaintyaboutjurisdiction,ormatterswherethePublicAdvocatehasalreadybeeninvolved.
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21Chapter 21 VCAT21.26 VCATdoesnothaveaninvestigativearm.Itrelieslargelyonmaterialpresentedtoitby
theapplicant,orbythePublicAdvocateinthosecasesinwhichitisinvolved.Evidenceusuallyconsistsofreports,whichmaycomefrommedicalprofessionals,socialworkers,thePublicAdvocateandothers,aswellasoralevidencefrompeoplesuchastheproposedrepresentedpersonormembersoftheirfamily.
21.27 VCATisrequiredtolistguardianshipandadministrationmattersforhearingwithin30daysofreceivingtheapplication.40Moreurgentmattersaregivenpriority.VCATsendsnoticesofhearingdatestothosepeoplewhoareentitledtonoticeundertheG&AAct.41
21.28 OneVCATmembersittingalonehearsmostGuardianshipListcases.42TheCommissionunderstandsthatwhileatypicalinitialguardianshiporadministrationhearingmaytakesomewherebetween45and75minutes,morecomplicatedmattersmaytakeseveralhoursor,insomeexceptionalcases,days.
21.29 Whileitisclearlydesirablethattheproposedrepresentedpersonispresentatthehearing,thispractice,whichisnotexpresslyrequiredbytheG&AAct,doesnotoccurinmanycases.43Itappearsthattherearemanyreasonsfornon-attendanceoftheproposedrepresentedperson—sometimesthepersonmaynotwanttoattend,thepersonmaybephysicallyunabletoattend,orattendancemaybeundulydistressingfortheperson.VCATsometimessitsatnursinghomes,hospitalsorotherhealthcaresettingssothattheproposedrepresentedpersoncanattendthehearing.
Special powers in relation to a person with a disability21.30 Ifapersonwhoisthesubjectofaguardianshipapplicationisbeingdetained
unlawfullyorisatseriousriskofharm,VCATmayempowerthePublicAdvocateoranotherpersontovisitthepersoninthepresenceofapoliceofficerinordertoprepareareportforVCAT.44Followingthisreport,VCATmayorderthatthepersonbetakentoanotherplaceuntiltheguardianshipapplicationisheard.45
Supervision of personal appointments21.31 Whilepersonalappointmentsofsubstitutedecisionmakers,suchas‘attorneys’
appointedundertheInstruments Act 1958 (Vic),‘agents’appointedundertheMedical Treatment Act 1988(Vic) andenduringguardiansappointedundertheG&AAct,arenotdirectlysupervisedbyVCAT,itdoeshavesomepowerstosetasideoralterappointmentsthatarenotoperatingwell.VCAThasthepowertohearapplicationstorevoketheappointmentofanenduringguardian,46suspendorrevoketheauthorityofanagent47andrevoke,varyorsuspendthepowerofanenduringattorney.48
40 Guardianship and Administration Act 1986 (Vic) ss21,45.41 Ibidss20,44.42 Originally,theGuardianshipandAdministrationBoardsatin‘divisions’ofthreeorfivemembers:seeGuardianship and Administration Board
Act 1986(Vic)sch2cl2,asrepealedbyTribunals and Licensing Authorities (Miscellaneous Amendments) Act 1998(Vic)s129(3)(j).PriortothereplacementoftheBoardwithVCAT,therequirementtohaveeitherthreeorfivememberssittingoneachdivisionwasreplacedin1989byanewrequirementthatdivisionsoftheBoardbecomposedofdivisionsofoneorthreemembers,withthesizeofthedivisiontobedeterminedbythePresident:seeGuardianship and Administration Board Act 1986(Vic)sch2cl2,asamendedbyGuardianship and Administration Board (Amendment) Act 1989(Vic)s8.
43 VCATdoesnotcollectdatainrelationtotheattendanceofrepresentedpeopleathearings:emailfromVCATGuardianshipListRegistrytoVictorianLawReformCommission,15December2010.However,theCommissionhasbeentoldbyanumberofinterestedgroupsthatnon-attendanceiscommon:Foreg,consultationswithVillamantaDisabilityRightsLegalService(19April2010),MentalHealthLegalCentre(28April2011),SeniorsRightsVictoria(2May2011),roundtablewithseniors(inpartnershipwithCouncilontheAgeing)(5May2011);SubmissionIP23(MentalIllnessFellowshipVictoria).
44 Guardianship and Administration Act 1986(Vic)s27(1).45 Ibidss27(2).46 Ibids35D(1).47 Medical Treatment Act 1988(Vic)s5C.48 Instruments Act 1958(Vic)ss125V,125X–125ZB.
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Medical treatment21.32 Inadditiontoitspowertosuspendorrevoketheauthorityofamedicalagent,VCAT
hasthepowerto:
• hearapplicationsinrelationtomedicalanddentaltreatmentdecisionsforpeoplewhoareunabletoconsenttotreatment,andmakeordersaboutwhoshouldmakeadecision,aswellasprovidedirection,declarationsandadvicearoundthesedecisions49
• consenttothecarryingoutof‘specialmedicalprocedures’,whicharepermanentsterilisations,abortions,anddonationoftissuetoanotherperson50
• provideadviceordirectiontothepersonresponsible,eitheronrequestoruponitsownmotion.51
21.33 VCATcanhearapplicationsandmakearangeofordersinrelationtoissuesanddisputesinconnectionwithmedicalresearchprocedures.52WediscussmedicalanddentaltreatmentforpeoplewhocannotconsentinmoredetailinChapter13,andmedicalresearchproceduresinvolvingpeoplewhocannotconsentinChapter14.
duration of orders and rehearings21.34 TheG&AActdoesnotimposeanylimitsonthedurationofguardianshipand
administrationorders.Itisnecessary,however,forVCATtoreassessanorderwithin12monthsoffirstmakingit(unlessitordersotherwise)andthereafteratleastonceeverythreeyears(unlessitordersotherwise).53Inpractice,guardianshipordersareusuallyreassessedannuallyandadministrationordersareusuallyreassessedeverythreeyears,butthiscanvarydependingonthecircumstancesofthecase.54Whenanorderisreassessed,itcanbecontinued,changed,replacedorrevokedasVCATseesfit.55AswithpreviousyearsreassessmentsofadministrationordersaccountforthevastmajorityofhearingsontheguardianshiplistatVCAT.56DataprovidedtotheCommissionbyVCATrevealedtherewere1103guardianshipreassessmentsand5865administrationreassessmentsin2009–10.57
21.35 VCATmayalsomakea‘self-executingorder’,whichexpiresafteradesignatedperiod,unlessanapplicationismadetoextendtheorder.Thesearemorecommonforguardianshipthanadministrationorders.58
49 Guardianship and Administration Act 1986(Vic)s42N.50 Ibidss3,42E.51 Ibidss42I,42W.52 Ibids42V.53 Ibids61(1).54 Anstat,Victorian Civil and Administrative Tribunal: Guardianship and Administration(pt6–6atSeptember2008)[61.01].StateTrustees
reportsthatthevastmajorityofordersappointingitasadministratoraremadeforathree-yearperiod,andtheaveragedurationofappointments(includingthosecurrentlyinforce)is6.72years:emailfromStateTrusteestoVictorianLawReformCommission,4November2010.
55 Guardianship and Administration Act 1986(Vic)s63(1).56 Reassessmentapplicationsaccountedfor71%ofapplicationstotheGuardianshipList:VCAT,Annual Report 2010/11,aboven9,42.57 EmailfromVCATGuardianshipListRegistrytoVictorianLawReformCommission,15December2010.58 Anstat,Victorian Civil and Administrative Tribunal: Guardianship and Administration(September2008)pt6–6[61.01].
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21Chapter 21 VCAT21.36 Inmostcases,apartytoahearing,orapersonentitledtonoticeofaguardianship
oradministrationapplication,mayapplyforarehearingofanapplicationwithin28daysoftheorderbeingmade.59Atarehearing,VCATconsiderstheapplicationforguardianshiporadministrationagain,usuallybeforeamoreseniormemberofVCAT.60VCATmayagreewiththeoriginaldecision,itmaychangepartsofit,oritmaymakeadifferentdecision.61Therewere59rehearingsin2009–10.62
appeal21.37 ApartytoaguardianshiporadministrationproceedingmayappealtotheSupreme
CourtofVictoriaagainstanyordermadebyVCATonthegroundthatVCATmadeanerroroflaw.63Itisnotpossibletoappealonthegroundthatthedecisionwassimplywrongandthatanotherdecisionshouldhavebeenmade.Therewere11appealsin2009–10.64Thoughappealsarerare,someSupremeCourtjudgmentshaveplayedanimportantroleinthedevelopmentofguardianshiplaws.65
Reasons for decisions21.38 VCATmustgivereasonsforitsdecisions.Usuallythisisdoneorallyatthehearingbut
VCATmustgivewrittenreasonsforanyorderitmakes(otherthananinterimorder)ifrequestedbyapartytothehearing.66VeryfewwrittenreasonsfordecisionsinGuardianshipListcasesarepublished.
CONfIdENTIaLITy
Information disclosed in the course of a hearing21.39 WhiletheVCATActprovidesthatitshearingsmustbeconductedinpublic,section
101oftheActallowsVCATtodirectthatahearing,orpartofahearing,beheldinprivate.67
21.40 Section101oftheActalsopermitsVCATtoorderthatanyinformationprovidedatahearingmustnotbepublishedexceptinamannerspecifiedbythetribunal.68Indecidingwhethertoprohibitthedisclosureorpublicationofinformationrelevanttoaproceeding,VCATmustconsiderifitisnecessarytodoso‘intheinterestsofjustice’.69
21.41 Thepublicationorbroadcastofanyreportofaguardianshiphearingthatcouldreasonablyleadtotheidentificationofthepartiesisalsoprohibited,unlessVCATordersthatitisinthepublicinterestforthisinformationtobereported.70Evenifitmakessuchanorder,VCATmustspecifythatnopicturesbetakenofanyparty.71
59 Guardianship and Administration Act1986 (Vic)s60A.ItisimpossibletoapplyforarehearingofanorderifitwasmadebythePresidentofVCAT,aninterimortemporaryorder,oranorderforarehearingorforpermissionfromVCATtoapplyforarehearing.Arehearingisalsoimpossibleinrelationtosomemedicalanddentaltreatmentandmedicalresearchapplications:ats60A(1)(6).
60 Victorian Civil and Administrative Tribunal Act 1998(Vic)sch1cl31(3).61 Guardianship and Administration Act1986(Vic)s60C.62 EmailfromVCATGuardianshipListRegistrytoVictorianLawReformCommission,15December2010.63 Victorian Civil and Administrative Tribunal Act 1998(Vic)s148.64 EmailfromVCATGuardianshipListRegistrytoVictorianLawReformCommission,15December2010.65 See,eg,XYZ v State Trustees Ltd [2006]VSC444(22November2006).66 Victorian Civil and Administrative Tribunal Act 1998(Vic)s117.Whereoralreasonsareprovided,apartymayrequestwrittenreasons
fromVCATwithin14days,andVCATordinarilyhas45daystocomplywithsucharequest.A‘party’toaguardianshiporadministrationproceedingincludesthepersonaboutwhomtheapplicationismadeandthepersonproposedasguardianoradministrator:seeGuardianship and Administration Act1986 (Vic)ss19(2),43(3).Italsoincludesthepersonwhomadetheapplicationtothetribunal,andanyotherpersonjoinedasapartytotheproceedingbyVCAT:seeVictorian Civil and Administrative Tribunal Act 1998(Vic)s59(1)(a).
67 Victorian Civil and Administrative Tribunal Act 1998(Vic)ss101(1)–(2).ApplicationsforprivatehearingscanbemadebyapartytotheproceedingorbyVCATitself.
68 Victorian Civil and Administrative Tribunal Act 1998(Vic)s101(3).69 Ibids101(4).70 Ibidsch1cls37(1)–(2).71 Ibidsch1cl37(3).
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Information kept on file at VCaT21.42 VCATisrequiredtomaintainaregisterofproceedings72andkeepafileofall
documentslodgedinaproceeding.73Partiestoaproceedingmayinspectthefileorthepartoftheregisterthatrelatestotheproceedingwithoutcharge.74Anyotherpersonmayinspectorobtainacopyofanypartofthefileorregisterforaprescribedfee,75butsubjectto:
• anyconditionsspecifiedintherules76
• anydirectionofthetribunaltothecontrary77
• anyorderofthetribunalundersection101oftheVCATAct(whichallowsVCATtoordermaterialnottobemadepublic,asnotedabove)78
• anycertificateundersections53and54oftheVCATAct(relatingtoCabinetdocumentsormatterssubjecttoCrownprivilege).79
21.43 Inpractice,VCATexercisesdiscretioninallowingorrestrictingaccessbymembersofthepublictoVCATfiles,and,indoingso,considerswhetherthecontentsoftherequesteddocumentswilladverselyaffectpeople’sinterests.80
TRaNSfORMING VCaT21.44 In2010,VCAT’sPresidentpublishedathree-yearstrategicplancalledTransforming
VCAT.81ReformsthatsoughttoimproveVCAT’saccessibilitytotheVictoriancommunity included:
• developingandimprovingproceduresandpracticesformemberswhendealingwithself-representedparties
• workingwithprobonolegalservicestoimprovethedeliveryoftheseservices
• regionalisationofVCATthroughtheestablishmentofmetropolitanhubs,increasedVCATstaffinginregionalareas,andtheallocationofmemberstokeyregionalareas
• upgradingtheVCATwebsiteandimprovingthematerialVCATprovidestothecommunity
72 Ibids144.Inrelationtoguardianshipproceedings,theregisterofproceedingscontainsthefollowing:(a)thenumberidentifyingtheproceeding;(b)thedateofcommencement;(c)thenamesoftheparties;(d)iftheproceedingiswithdrawn,thedateofthewithdrawal: Victorian Civil and Administrative Tribunal Rules 2008(Vic)O6pt5r6.16.
73 Victorian Civil and Administrative Tribunal Act 1998(Vic)s146.Afileofdocumentslodgedinaproceedingmustbekeptforfiveyearsafterthedetermination.
74 Victorian Civil and Administrative Tribunal Act 1998(Vic)ss144(3),146(2).75 Ibidss144(4),146(3).76 Ibidss144(5)(a),146(4)(a).However,thepowergrantedtotheRulesCommitteeofVCATtomakerulesislimitedtotheregulationof
‘practiceandprocedure’:ats157(1).TheSupremeCourthasfoundthatruleswhichdenyastatutoryrighttoaccessfilesarenotrulesof‘practiceandprocedure’,andarethereforebeyondthepoweroftheRulesCommittee:Herald and Weekly Times Pty Ltd v Victorian Civil and Administrative Tribunal(2005)11VR422,427(BongiornoJ).Inthiscase,theCourtfoundthatseveralrulesthattheVCATRulesCommitteemadewhichlimitedaccesstofilesweremadeultra viresandwerethereforeofnoeffect:at429.
77 Victorian Civil and Administrative Tribunal Act 1998(Vic)s146(4)(b).Thisprovisiononlyappliestogainingaccesstoorcopiesofafileofdocumentslodgedinaproceeding.Inconsideringthisprovision,theVictorianSupremeCourtofAppealhasupheldVCAT’spowertomakedirectionsinrelationtoaccesstofiles.However,indoingso,VCATisobligedtoprovidenaturaljusticetothepartyseekingaccesstothefile:Herald and Weekly Times Pty Ltd v Victorian Civil and Administrative Tribunal[2006]VSCA7(9February2006)[26]–[42](MaxwellP,withwhomNettleJAandEamesJAagreed).TheCourtofAppealstatedthatthecontentofnaturaljusticecannotbeprescribedinadvance,andvarieswitheverycircumstance,however‘intheordinarycaseunders146(4)(b)…itshouldbesufficientfortheTribunaltogivewrittennoticetothepersonseekingaccessthatitproposedtogiveacontrarydirection,theeffectofwhichwouldbetodenyaccess,andtoinvitetheaccess-seekertoadvanceargument(inwriting)astowhysuchadirectionshouldnotbemade’:at[41].
78 Victorian Civil and Administrative Tribunal Act 1998(Vic)ss144(5)(b),146(4)(c).79 Ibidss144(5)(c),146(4)(d).Section53providesthatdisclosureofinformationoramattercontainedinadocumentmaybecertifiedbythe
PremierasbeingcontrarytothepublicinterestbecauseitwouldinvolvedisclosureofCabinetdeliberations.Section54makesprovisionforsimilarcertificationbytheAttorney-GeneralinrelationtoCrownprivilege.Thetribunalmustensurethatinformationtowhichsuchacertificateappliesisnotdisclosedtoanypersonotherthanatribunalmember:atss53(2),54(2).
80 ConsultationwithVCATmembers(2June2010).81 Ross,aboven5,4.
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21Chapter 21 VCAT• theuseoftwilighthearings,andhearingsinnon-traditionalsettingssuchas
shoppingcentresandcommunitycentres
• furtherconsultationwithculturallyandlinguisticallydiversecommunitiesandIndigenouscommunitiesaboutbarriersthatfacethematVCAT
• recordingallhearings,andprovidingaccesstotranscriptsforasmallfee
• amoreresponsiveandeffectivecomplaintsmechanism.82
21.45 SomeofthereformsthathavebeenimplementedthatarerelevanttotheGuardianshipListinclude:
• areviewofallformsandnoticesintheGuardianshipList,andthedevelopmentofaninformationsheettoaccompanyhearingnotices
• thedevelopmentof‘VCATinaBox’toassistmemberstoconducthearingsinthecommunity
• consultationsspecificallyrelatedtotheGuardianshipList
• theintroductionofaFairHearingObligationPracticeNote(discussedlaterinthischapter).83
21.46 VCATiscurrentlyconsideringthedesirabilityoflegislativereforms,including:
• introducing‘objects’intotheVCATAct,suchascommunitylegaleducation,accesstojustice,andapplyingtherapeuticapproachestotheadministrationofjustice
• allowingmemberstoreferquestionsoflawtoVCAT’sPresident,andallowingVCATtodeliverguidelinejudgments
• theintroductionofaninternalappealstribunal
• rulesrequiringVCATtoensurethatallpartiestoamatter(includingunrepresentedparties)understandwhatisgoingonandareprovidedwithassistance
• allowingVCATorderstobeenforcedwithoutbeingfiledinacourt
• anupgradedroleforalternativedisputeresolutioninVCATlegislation.84
21.47 Recently,VCAThasallowedGuardianshipListapplicationstobelodgedonline,andhasalsosoughttomaketheannual‘AccountbyAdministrator’processmoreaccessiblebyallowingadministratorstocompletethisformonline.85
21.48 VCATisalsocurrentlyworkingtoimproveitsalternativedisputeresolutionprocesses,86developprocessestobettermanageandassistlitigantsinperson,87andbuilditscapacitytodealwiththeanticipatedgrowthinthenumberofguardianshipandadministrationcasesinthefuture.88
82 Ibid22–33.83 VictorianCivilandAdministrativeTribunal,Transforming VCAT: Report Card April(2011)2.84 Ross,aboven5,50–2.85 VictorianCivilandAdministrativeTribunal,Guardianship and Administration: Forms - Guides(21December2011)<http://www.
vcat.vic.gov.au/CA256DBB0022825D/page/Guardianship+and+Admin-Applications-Forms+-+Guides?OpenDocument&1=60-Guardianship+and+Admin~&2=10-Applications~&3=10-Forms+-+Guides~>.
86 VictorianCivilandAdministrativeTribunal,Transforming VCAT: Promoting Excellence(2011)20(‘Transforming VCAT: Promoting Excellence’).87 Ibid16.88 Ibid28.
475
OThER juRISdICTIONS21.49 VictoriawasthefirstAustralianstatetocreatea‘supertribunal’,amalgamating
arangeofadministrativeandciviltribunalsintotheonetribunal.Sincethistime,WesternAustralia,theAustralianCapitalTerritoryandQueenslandhavealsoestablished‘supertribunals’thathavejurisdictioninguardianshipandadministrationmatters.89SouthAustralia,NewSouthWalesandTasmaniastillhavespecialistguardianshiptribunals.90IntheNorthernTerritory,guardianshipmattersareheardinthelocalcourt,whichisadvisedbyaguardianshippanel.91
NEw SOuTh waLES GuaRdIaNShIp TRIbuNaL21.50 TheNewSouthWalesGuardianshipTribunaldiffersfromtheVCATGuardianshipList
inanumberofimportantways.Someofthesedifferencesinclude:
• apre-hearinginvestigativearmknownasthe‘CaseManagementUnit’
• multi-memberpanelsforinitialhearings
• tribunalappointmentsof‘separaterepresentatives’forsomepeople
• thevenuesusedforhearings.
Case Management unit21.51 TheCaseManagementUnit(formerlyknownasthe‘CoordinationandInvestigation
Unit’)assistswiththepreparationofGuardianshipTribunalhearings.TheUnitcomprisesanInformationTriageTeam,threeApplicationManagementTeamsandaHearingSupportTeam.92
21.52 TheInformationTriageTeamprovidesinformationtoapplicantsandthecommunity,andassessesallnewapplicationsbasedontheimmediacyandseverityofrisktotheperson.93TheApplicationManagementteamsassistthepersonwhoisthesubjectoftheapplicationtounderstandthetribunal’sprocedures.Theyliaisewiththeapplicantandotherpartiespriortothehearing,explaintribunalprocesses,gatherinformationrelevanttothehearing(particularlyinrelationtothecapacityanddecision-makingneedsoftheperson)andprepareareportforthetribunal.94Insomecases,staffmayalsoassistwiththeinformalresolutionofmatterspriortohearings.95TheHearingSupportTeamliaiseswithtribunalmembersandisresponsibleforschedulingmatters,preparingforandprovidingsupportforhearings,anddistributingordersandreasonsfordecisions.96CaseManagementUnitstaffcomefromarangeofbackgrounds,includingdisabilityadvocates,lawyers,psychiatristsandsocialworkers.97
89 ThesearetheStateAdministrativeTribunalinWesternAustralia,establishedbytheState Administrative Tribunal Act 2004(WA);theACTCivilandAdministrativeTribunal,establishedbytheACT Civil and Administrative Tribunal Act 2008(ACT);theQueenslandCivilandAdministrativeTribunal,establishedbytheQueensland Civil and Administrative Tribunal Act 2009(Qld).
90 ThesearetheGuardianshipBoardofSouthAustralia,establishedundertheGuardianship and Administration Act 1993(SA)pt2div1–2;theNewSouthWalesGuardianshipTribunal,establishedundertheGuardianship Act 1987(NSW)pt6;theGuardianshipandAdministrationBoardinTasmania,establishedundertheGuardianship and Administration Act 1995(Tas)pt6.TheNSWLegislativeCouncilStandingCommitteeonLawandJusticeiscurrentlyundertakinganInquiryintoOpportunitiestoConsolidateTribunalsinNewSouthWales,andisduetoreporton29February2012.OneofseveraloptionsidentifiedbytheMinisterialIssuesPaperwhichaccompaniedtheTermsofReferenceoftheReviewistheconsolidationofvariousNSWTribunals—includingtheNSWGuardianshipTribunal—intoacomprehensive‘NCAT’Tribunal.SeeNSWMinisterforFinanceandServices,NSWAttorney-General,NSWMinisterforFairTrading,Issues Paper: Review of Tribunals in New South Wales (2011)9–10,<http://www.parliament.nsw.gov.au/Prod/parlment/committee.nsf/0/26F389FCA46D6134CA25792F007FF407?open&refnavid=CO3_1>.
91 Adult Guardianship Act (NT)ss9,11–12.92 NewSouthWalesGuardianshipTribunal, Annual Report 2010–2011(2011)10(‘NSWGuardianshipTribunal,Annual Report 2010–11’).93 Ibid;consultationwithMalcolmSchyvens—PresidentandEstherCho—LegalOfficer,NewSouthWalesGuardianshipTribunal(16March
2011).94 ConsultationwithNewSouthWalesGuardianshipTribunal(24August2010).95 NSWGuardianshipTribunal, Annual Report 2010–2011,aboven92,10.96 Ibid.97 ConsultationwithNewSouthWalesGuardianshipTribunal(24August2010).
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21Chapter 21 VCAT
Multi-member panels21.53 Athree-memberpanelhearsallinitialguardianshipandfinancialmanagement
applications.98Thepanelcomprisesonelegallyqualifiedmember,oneprofessionalmember(suchasadoctor,psychologistorsocialworkerwithexperienceindisability)andonecommunitymemberwithpersonalorprofessionalexperienceindisability.99Whilemostreviewsofordersareheardbeforeasinglemember,morecomplexreviewsmaybereferredtoamulti-memberpanel.100
Separate representative21.54 Theleaveofthetribunalisrequiredbeforelawyersmayappearforanyoftheparties
intheNewSouthWalesGuardianshipTribunal.101However,thetribunalmayordertheappointmentofa‘separaterepresentative’forsomeonewhoisthesubjectofanapplicationorreviewif‘itappearstotheTribunalthatthepersonoughttobeseparatelyrepresented’.102
21.55 Separaterepresentativesareusuallylawyers.Theirroleisnottoactontheinstructionsoftheperson,butrathertoseekandpresenttheviewsoftheperson,andmakerepresentationsthatareintheperson’sbestinterests.103
21.56 In2009–10,6.4percentofhearingsinvolvedlegalrepresentationand152separaterepresentativeswereappointed.104
hearing venues21.57 LikeVCAT,theNewSouthWalesGuardianshipTribunalholdssomehearingsin
suburbanandregionalareasoutsideofitsmaintribunalbuildinginSydney.105However,unlikeVictoria,wherehearingssometimesoccurinregionalcourtvenues,theNewSouthWalesGuardianshipTribunaldoesnothearcasesincourtrooms.106ThispracticeistheresultofaverydeliberateattemptbytheTribunaltoavoidassociationwithcourtprocessesandcourtroomenvironments.107Attimes,theTribunalusesvideo-linktechnologytoconducthearingsinsomeregionalareas.
REVIEw juRISdICTION Of NEw SOuTh waLES adMINISTRaTIVE dECISIONS TRIbuNaL21.58 TheNewSouthWalesAdministrativeDecisionsTribunal(ADT)hearssome
guardianshipcases.TheADThearsappealsfromdecisionsmadebytheGuardianshipTribunal.108ItalsoreviewsdecisionsmadebytheNewSouthWalesPublicGuardian(similartotheVictorianPublicAdvocate)andtheNewSouthWalesTrusteeandGuardian(whichhasabroadlysimilarroletoStateTrusteesinrelationtoadministration).109WediscussthisjurisdictioninmoredetailinChapter19.
98 Guardianship Act 1987(NSW)s51(1).Reviewsofordersandmattersrelatingtoconsenttomedicaltreatmentmaybeheardbeforeoneortwomembers:ats51A(1).
99 Guardianship Act 1987(NSW)s51(1).100 ConsultationwithMalcolmSchyvens—DeputyPresidentandEstherCho—LegalOfficer,NewSouthWalesGuardianshipTribunal(16March
2011).101 Guardianship Act 1987(NSW)s58(1).In2009–10,therewere224applicationsforleaveforlegalrepresentation,165ofwhichwere
granted:consultationwithMalcolmSchyvens—DeputyPresidentandEstherCho—LegalOfficer,NewSouthWalesGuardianshipTribunal(16March2011).
102 Guardianship Act 1987(NSW)s58(3).ThereisaPracticeNotethatdealswiththecircumstancesinwhichaseparaterepresentationordermightbemade:NewSouthWalesGuardianshipTribunal,Practice Note No 1 of 2009—Legal Practitioners and Guardianship Proceedings(2009)6.
103 NewSouthWalesGuardianshipTribunal,Practice Note No 1 of 2009—Legal Practitioners and Guardianship Proceedings(2009)6.104 ConsultationwithMalcolmSchyvens—DeputyPresidentandEstherCho—LegalOfficer,NewSouthWalesGuardianshipTribunal(16March
2011).105 HowevertheGuardianshipListinVictoriausessignificantlymorehearingvenuesthantheNewSouthWalesGuardianshipTribunal,which
usesbetween10–14venuesstate-wide.ThisreflectsthefactthatVCATutilisesVictoria’sexistingregionalcourtinfrastructuretoconducthearings,whereastheNewSouthWalesGuardianshipTribunaldoesnot:consultationwithMalcolmSchyvens—DeputyPresidentandEstherCho—LegalOfficer,NewSouthWalesGuardianshipTribunal(16March2011).
106 ConsultationwithMalcolmSchyvens—DeputyPresidentandEstherCho—LegalOfficer,NewSouthWalesGuardianshipTribunal(16March2011).
107 ConsultationwithNewSouthWalesGuardianshipTribunal(24August2010).108 Guardianship Act 1987(NSW)s67A.109 Ibids80A;NSW Trustee and Guardian Act 1997(NSW)s62.
477
appeal from decisions made by the New South wales Guardianship Tribunal21.59 ItispossibletoappealfrommanydecisionsoftheGuardianshipTribunaltotheADT.
Theseincludethemakingofguardianshiporfinancialmanagementorders,andthereviewoftheseorders.110In2010–11,therewere13appealslodgedwiththeADTfromdecisionsoftheNewSouthWalesGuardianshipTribunal.111ItisalsopossibletoappealtotheSupremeCourtofNewSouthWalesfromdecisionsoftheGuardianshipTribunalasofrightonquestionsoflaw,andonanyothergroundswiththeleaveoftheSupremeCourt.112
21.60 TheNewSouthWalesGuardianshipTribunaladvisedtheCommissionthatitconsiderstheADT’scapacitytoreviewitsdecisionstobeofgreatassistancetoitsworkbyprovidinggreaterfocusandguidance,particularlyinrelationtocomplexissuesofproceduralfairness.113
COMMuNITy RESpONSESVCaT pRE-hEaRING pROCESSES21.61 Intheconsultationpaper,theCommissionproposedthatapplicationsinthe
GuardianshipListbepreparedmorethoroughlypriortohearing,andcitedtheNewSouthWalesGuardianshipTribunal’sCoordinationandInvestigationUnit(nowknownastheCaseManagementUnit)asanexampleofhowthiscouldbedone.114
21.62 Therewaswidespreadsupportformorethoroughpre-hearingpreparation.TheAgedCareAssessmentService(ACAS)said:
ACASsupportacomprehensivepreparationofmatterspresentingtoVCAT.Thoughthisisresourceintense,itmayreduceunnecessaryhearings,andsupporttheproposedrepresentedpersoninpreparingforthehearing.115
21.63 Therewasbroadsupportformorethoroughpre-hearingprocessesinanumberofareas,including:
• triagingofapplications,includingreferralstoappropriatealternativedisputeresolutionprocesseswhereappropriate116
• investigations,toavoidhearingsbeingconductedwithlittleinformation,orbeingadjournedinordertoobtainextrainformation117
• preparationofparties,andparticularlytheproposedrepresentedperson,forthehearing.118
21.64 StateTrusteessawvalueinplacinganInvestigationUnitwithinVCAT:
TheengagementofanInvestigationUnitwouldmoreoftenthannotensurethatVCATwasbetterinformedaboutthosematterspresentedforconsideration.Weunderstandsuchaunitcanalsoassistinbetter‘triaging’ofcases,sothaturgentmattersareexpedited.Itisalsoarguablethataunitthatis(unlike[thePublicAdvocate])notacandidateforappointmentunderthelegislationcantakeamoreconsideredandobjectivestanceonparticularmattersrequiringVCAT’sattention.119
110 Forafulllistofreviewabledecisions,seeGuardianship Act 1987(NSW)s67A.111 AdministrativeDecisionsTribunal(NSW), Annual Report 2010/2011(2011)16.112 Guardianship Act 1987(NSW)s67(1). However,appealtotheNewSouthWalesSupremeCourtisnotavailableifanappealregardingthe
samedecisionhasalreadybeenmadetotheAdministrativeDecisionsTribunal:ats67(1A).113 ConsultationwithMalcolmSchyvens—DeputyPresidentandEstherCho—LegalOfficer,NewSouthWalesGuardianshipTribunal(16March
2011).114 VictorianLawReformCommission,Guardianship,ConsultationPaperNo10(2011)400–1,403–4.115 SubmissionCP57(AgedCareAssessmentServiceinVictoria).116 Foreg,consultationwithWomenwithDisabilitiesVictoria(11March2011).117 Foreg,consultationwithRoyalDistrictNursingService(9March2011).118 Foreg,consultationwithMentalHealthLegalCentre(28April2011).119 SubmissionCP70(StateTrusteesLimited).
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21Chapter 21 VCAT
pLaNNING CONfERENCES21.65 WhiletheCommissiondidnothaveaspecificproposalforplanningconferencesinthe
consultationpaper,theconceptwasraisedinthesubmissionfromCarersVictoria.120CarersVictoriaproposedthattheseconferences,whichtheycalledfamilymeetings,shouldbeconvenedbyarepresentativeofthePublicAdvocateandshouldfocusonarangeofissuesaboutwhatsortsofarrangementsshouldbesetuptoassistthepersonwiththedisabilityinrelationtotheirfuturedecisionmaking.Theconvenorwouldthensubmitareportoftheconference’soutcomestoVCAT,whichcouldratifythemasaformalorder.121
LOCaTION Of hEaRINGS21.66 Someconcernswereexpressedaboutthelocationofhearings,particularlyinregional
Victoriawherecourthousesareoftenused.Someofthesubmissionsstressedtheneedformoreinformal,user-friendlyhearinglocations.122
paRTICIpaTION aT hEaRINGS21.67 IntheconsultationpapertheCommissionsoughtsuggestionsabouthowtoachieve
betterattendanceoftherepresented(orproposedrepresented)personathearings.SomeofthesuggestionsputtotheCommissionincluded:
• Requiretheattendanceoftherepresentedperson.123
• ProvidemoreadviceandsupporttothepersonfromVCATbeforethehearing.124
• Provideclearerpre-hearinginformation,includinginformationaboutavailablelegalassistance,inmoreaccessibleformats.125
• Providemoremobilehearings,anduseofremotetechnology,suchasinternetconferencing.126
• Providemoreflexiblehearingprocessesandtimes,includingafter-hourshearingssothatcarerscanattendwhenthepersonneedssupporttoparticipateinthehearing.127
• Providemoreon-sitehearings,particularlyatresidentialservices128andincludinginpeople’sownhomes.129
REpRESENTaTION aT hEaRINGS21.68 Intheconsultationpaper,theCommissionraisedfouroptionsdealingwiththeissueof
advocacyfortherepresented(orproposedrepresented)personathearings.Theywere:
• Provideallproposedrepresentedpersonswithinformationandreferralsaroundadvocacyservicebeforehearings.
• Amendsection62oftheVCATActtogivearepresentedpersonoraproposedrepresentedpersonarighttolegalrepresentationinallGuardianshipListmatters.
120 SubmissionCP59(CarersVictoria).121 Ibid.122 Foreg,roundtablewithserviceproviders(inpartnershipwithNationalDisabilityServices(Victoria))(28March2011)andGippslandCarers
Association(19April2011).123 SubmissionCP56(DisabilityDiscriminationLegalService).124 SubmissionCP19(OfficeofthePublicAdvocate)andCP45(ScopeVic).125 SubmissionCP71(SeniorsRightsVictoria),CP73(VictoriaLegalAid)andCP77(LawInstituteofVictoria).126 SubmissionCP22(Alzheimer’sAustraliaVic).127 SubmissionCP24(AutismVictoria).128 SubmissionCP33(EasternHealth)andCP70(StateTrusteesLimited).129 SubmissionCP57(AgedCareAssessmentServiceinVictoria).
479
• CreateastatutorypowerforVCATtoorderthatapersonbeprovidedwithrepresentationwhenVCATbelievesthisstepisnecessary.
• Establishanetworkofcommunityvolunteerstoprovideassistanceathearings.
21.69 ThePublicAdvocatesuggestedthatthefirstthreeoptionsbecombined:
Proposedrepresentedpeoplecurrentlyreceiveinsufficientindependentlegalassistanceandadvocacysupport.CombiningOptionsA,BandCinthissectionoftheConsultationPaperwouldprovidethebestremedy.130
21.70 Otherssupportedtheproposalforanetworkofvolunteeradvocates,butstressedtheimportanceofthisassistancebeingprovidedbypeoplewhounderstandthedisabilitiesofthepeopletheyaresupporting:
Establish[ing]anetworkofcommunityvolunteerstoprovideassistanceatVCAThearingsisgoodinprinciplehoweveragainthesevolunteersneedtobewelltrainedinunderstandingandcommunicatingwithpeoplewhohaveaneurologicaldisabilitysuchasautismsothesystemproposediseffective.Otherwisetherewillstillremain‘gapsinservice’forpeoplewiththisdisability.131
21.71 VictoriaLegalAidexpressedconcernsaboutvolunteeradvocates,withparticularreservationsaboutthequalityandconsistencyoftheadvocacythatwouldbeprovided.132
21.72 VCATsupportedaclearerrighttolegalrepresentationforproposedrepresentedpersonsathearings,andnotedthattheVCATActalreadyallowsthis,fromaprofessionaladvocate,inrelationtosomehearingsbeforetheResidentialTenanciesList.133VCATalsonotedthatwhileithasthepowerundersection62(6)oftheVCATActtoorderthatapersonbelegallyrepresented,itisnotfundedtoprovidesuchlegalservices.134
ENfORCEMENT Of ORdERS21.73 GuardiansandadministratorsinformedtheCommissionthatthirdpartiessometimes
failtorecogniseandimplementdecisions.135ThePublicAdvocatesupportedVCAThavingthepowertoissueanenforcementorderinthesecircumstances:
Guardianssometimeshavedifficultyingettingthirdpartiestoaccepttheirdecision-makingauthority.AllowingguardiansandadministratorstoapplytoVCATforanorderthatathirdpartycomplywiththeirdecision—withthethirdpartybeinggivennoticeoftheenforcementapplicationandanopportunitytobeheard—wouldenhancetheabilityofguardiansandadministratorstoenforcetheirdecisions(aswellasallowingareviewofanyobjections).TheenforcementorderwouldonlybeavailablefollowinganapplicationtoVCAT.136
21.74 StateTrusteesalsoindicatedthatthiscanbeanimportantissueforadministrators:
StateTrustees’effortstoinvestigateandresolvecomplexissuescanoftenbefrustratedbynon-compliancewithrequestsforinformationfromthirdparties.Sometimesthenon-complianceismerelyanagency‘srestrictiveinterpretationofprivacylegislation,butmoreoftenitisevidenceofathirdparty‘sperceptionthatanadministrationorderhasnoreal‘weight’andthatnon-compliancedoesnotattractanysanction.137
130 SubmissionCP19(OfficeofthePublicAdvocate).131 SubmissionCP24(AutismVictoria).132 SubmissionCP73(VictoriaLegalAid).133 SubmissionCP80(VictorianCivilandAdministrativeTribunal).134 Ibid.135 Foreg,roundtablewithmetropolitancarers(24March2011).136 SubmissionCP19(OfficeofthePublicAdvocate).137 SubmissionCP70(StateTrusteesLimited).
Victorian Law Reform Commission – Guardianship: Final Report 24480
21Chapter 21 VCAT21.75 Itwasalsoargued,however,thatsuchenforcementordersshouldnotcompelathird
partytodoanythingthattherepresentedpersonthemselveswouldnotbeabletocompelthemtodo.138
21.76 NotwithstandingthebenefitsofallowingVCATtoissueenforcementorders,itwasalsonotedthat,whereverpossible,alternativedisputeresolutionprocessesshouldbeattemptedfirst.139
21.77 VCATsuggestedthattherearealreadyavenuesforenforcementofthedecisionsofguardiansandadministrators,andthatacivilpenaltyregimewouldbeinappropriate.140
MuLTI-MEMbER paNELS21.78 Therewasarangeofresponsestotheissueofwhethermulti-memberpanelsshould
becomestandardpracticeforGuardianshipListhearings.
21.79 Somerespondentsnotedthepotentialofmulti-memberpanelstogivebetterdecisions,141whileothersnotedthatalargerpanelcanbeintimidating.142
21.80 ACASsupportedmulti-memberpanels:
Multimemberpanelsshouldbeastandardpracticeespeciallyforinitialguardianshipapplications.Panelsthathavelegal,professionalandcommunityrepresentationmayalsoimprovetheinterfacebetweenVCATandthecommunity.143
21.81 AutismVictoriasuggestedthattheskillsandtrainingofVCATmemberswasthemostimportantissue:
Ratherthangoingtothecostofmulti-memberpanelsitmaybemorecosteffectivetohaveindividualsprocessingapplicationswhospecialiseinaparticulartypeofdisabilityorbewelltrainedinparticularitiesofdementia,mostcommonmentalillnesses(schizophreniaetc),acquiredbraininjury,mildtosevereautism,physicaldisabilityimpactingcommunicationofwishesofsomepeoplewithCerebralPalsyandsuch.MentalIllnessdisordersareoftensubjecttofluctuatinglevelsofcapacitytomakedecisionssoVCATstaffwouldreallyneedtobewelltrainedtounderstandsuchdisordersandtheimplicationofsuchondecisionmakingcapacity.144
21.82 TheVictorianCoalitionofABIServiceProvidersmadeasimilarpointinitssubmission.145
REVIEw Of ORdERS21.83 TherewassupportfortheCommission’sproposalthatarepresentedpersonshould
berequiredtooptoutof,ratherthanoptinto,areassessmentofaguardianshiporadministrationorder,146althoughStateTrusteesexpressedsomeconcernaboutthepossibleresourcingimplicationsforVCAT.147
21.84 Therewasalsosupportforeasieraccesstounscheduledreassessments(orreviews)forrepresentedpersons.VictoriaLegalAidnoted:
138 SubmissionCP47(DrMichaelMurray).139 SubmissionsCP73(VictoriaLegalAid)andCP75(FederationofCommunityLegalCentres(Victoria)).140 SubmissionCP80(VictorianCivilandAdministrativeTribunal).141 ConsultationwithCollegeofClinicalNeuropsychologistsoftheAustralianPsychologicalSociety(Victoria)(23March2011).142 ConsultationwithJohnBillings(23February2011);SubmissionCP45(ScopeVic).143 SubmissionCP57(AgedCareAssessmentServiceinVictoria).144 SubmissionCP24(AutismVictoria).145 SubmissionCP46(VictorianCoalitionofABIServiceProviders).146 Foreg,SubmissionsCP71(SeniorsRightsVictoria),CP73(VictoriaLegalAid),CP75(FederationofCommunityLegalCentres(Victoria)),CP
77(LawInstituteofVictoria)andCP78(MentalHealthLegalCentre).147 SubmissionCP70(StateTrusteesLimited).
481
VLAbelievesthatarepresentedpersonshouldbeentitledtoreturntoVCATforreassessmentoftheorderatanytimeduringtheoperationoftheorder.UndertheMentalHealthAct,apersonsubjecttoaninvoluntarytreatmentordercanappealtotheMentalHealthReviewBoardforareviewoftheorderatanytimeandwithoutlimit.VLAbelievesthisapproachshouldapplyinrelationtobothguardianshipandadministrationordersasitisafundamentalrighttobeabletoseekreviewofordersthataffectsuchkeyhumanrightsastheabilitytomanageyourownfinancesandmakedecisionsaboutyourlifestyleormedicaltreatment.148
21.85 VCATreferredtotheresourceimplicationsofhavingan‘optout’ratherthanan‘optin’approachtoreviewhearings:
Alargeproportionofpersonssubjecttoordersareunabletoparticipateinhearingsinameaningfulway.TheresourceimplicationsforVCATholdinghearingsthatareunattendedaregreat.Werewefundedtodoso,ourpreferencewouldbethatoneshouldhavetooptoutofahearingandweshouldthenendeavourtomeeteachpersonfacetoface.Theabilitytodothiswillbedependentonadequateresourcing.149
REhEaRINGS Of VCaT ORdERS21.86 Mostsubmissionssupportedtheproposaltoextendtheperiodwithinwhicha
rehearingcanbesoughtafteraGuardianshipListorderismade.Forexample,thePILCHHomelessPersons’LegalClinicsuggestedthat:
theperiodinwhichanapplicationforarehearingcanbemadebeextendedbeyondthecurrent28daylimit(to60days),andthatVCATshouldberequiredtoinformpartiesoftherighttoseekarehearing.VCATshouldalsoberequiredtoinformthepersonofthetimeframeforapplyingforarehearingandtoprovidethemwithalistofservicesthatcanproviderelevantlegalornon-legalsupportoradvice.150
21.87 VCATsubmittedthattherehearingprovisionsintheG&AActareunnecessarybecausesection120oftheVCATActallowsforarehearinginsomeinstancesandsection61oftheG&AActallowsforreassessmentofanorderatanytime.151
CONfIdENTIaLITy ISSuES
Material presented to VCaT for use in a hearing21.88 Manypeopleraisedconcernsaboutthedifficultyofbalancingcompetinginterests
whendealingwithaccesstoconfidentialinformationbefore,duringandafterVCAThearings.
21.89 TheNewSouthWalesGuardianshipTribunalsubmittedthat‘proceduralfairnessisarightwhichshouldbeaffordedtoallpartiesbeforeaguardianshiptribunalandthisshouldincludedisclosureofdocumentsbeingconsideredbythetribunal’.152Otherssupportedthisview,arguingthattransparencyisof‘paramountimportance’,153particularlybecausetherighttoafairhearingincludesbeingabletorespondtomaterialpresentedtoVCAT.154
148 SubmissionCP73(VictoriaLegalAid).149 SubmissionCP80(VictorianCivilandAdministrativeTribunal).150 SubmissionCP74(PILCHHomelessPersons’LegalClinic).151 SubmissionCP80(VictorianCivilandAdministrativeTribunal).152 SubmissionIP32(NSWGuardianshipTribunal).153 SubmissionIP43(VictoriaLegalAid).154 Ibid.SeealsoSubmissionsIP5(SouthwestAdvocacyAssociation)andIP47(LawInstituteofVictoria).Therighttoafairhearingisoutlinedin
s24oftheCharter of Human Rights and Responsibilities Act 2006(Vic).
Victorian Law Reform Commission – Guardianship: Final Report 24482
21Chapter 21 VCAT21.90 Somesubmissionsexpressedconcernsabouttheextentofthedisclosureof
confidentialinformation.155Itwasnotedthatpeoplehavearighttomaintaintheconfidentialityofsomeinformationaboutthem.156Forexample,theDisabilityAdvocacyResourceUnitstateditwassometimesimportantforadvocatestobeabletoprovideinformationtoVCATonaconfidentialbasis.157TheLawInstituteofVictoriasaidtheremaybecaseswhereapersoncouldfearreprisalsiftheinformationtheygivetoVCATisdisclosed.158TheMentalHealthLegalCentrearguedthatanyrestrictionsonproceduralfairnessshould‘onlybeimposedwherereasonable,justified,proportionateandnecessary,inaccordancewitharticle7oftheVictorianCharterofHumanRightsandResponsibilities’.159
Closing guardianship matters to the public21.91 IntheconsultationpapertheCommissionsuggestedthatGuardianshipListhearings
couldbeclosedtothepublicunlessVCATdeterminesotherwise.TheCommissionalsosuggestedthattherighttoinspectorobtaincopiesoffilescouldbelimitedtothepartiestoaproceeding,withVCATbeingpermittedtolimitaparty’saccesstomaterialsinexceptionalcircumstances.
21.92 TherewasstrongsupportforthesuggestionthatVCATGuardianshipListfilesbeclosedtothepublicunlessVCATdeterminesotherwise.160VCATsupportedlegislativechange.Itstatedthatthecurrentregime‘failstotakeaccountoftheverysensitivepersonalnatureofthematerialonthefilesofveryvulnerablepeople’.161VCATwasoftheviewthatfilesshouldbeclosedwitharightofaccessto‘limitedpersonssuchastheapplicantandrepresentedorproposedrepresentedpartyortheirlegalrepresentativesandarighttootherstoapplyforleavetoinspect’.
21.93 StateTrusteesnotedthatclosingthefilesisnecessaryduetothe‘verypersonalandprivatedimensionofthemattersheardbytheTribunal’.162ThePublicAdvocatehadasimilarviewandsuggestedaseriesofconsiderationstobeincludedinnewlegislationtoassistVCATmembersinmakingdecisionsaboutdisclosure.Suchconsiderationsincludedtheneed:
• fortransparencyintribunalhearings
• forfairnessinallowingindividualstorebutallegationsagainstthem
• toprotectreputationsandtoprotectinformationrelatingtopersonalaffairs
• toprotecttheconfidentialityunderwhichinformationmayoriginallyhavebeensupplied
• nottocauseseriousharmtoanyperson’ssafetyorhealth
• nottodamagethepersonalrelationshipsofrepresentedpersons/proposedrepresentedpersons.163
155 Forexample,AlfredHealthraisedconcernsaboutonecaseinparticularwherematerialwasreleasedtoeveryoneatthehearing,includinganeighbourwhohadbehavedinanaggressivemannertowardshospitalstaff:SubmissionIP26(TheAlfred).
156 ConsultationwithFionaSmith(18March2010);SubmissionsIP5(SouthwestAdvocacyAssociation),IP32(NSWGuardianshipTribunal)andIP50(ActionforCommunityLiving).
157 ConsultationwithDisabilityAdvocacyResourceUnit(5May2010).158 SubmissionIP47(LawInstituteofVictoria).159 SubmissionIP58(MentalHealthLegalCentre).160 Foreg,consultationwithmetropolitancarers(inpartnershipwithCarersVictoria)(24March2011);SubmissionCP19(OfficeofthePublic
Advocate),CP22(Alzheimer’sAustraliaVic),SubmissionCP24(AutismVictoria),CP27(CatholicArchdioceseofMelbourne),CP33(Easternhealth),CP59(CarersVictoria),CP70(StateTrusteesLimited),CP71(SeniorsRightsVictoria),CP73(VictoriaLegalAid),CP77(LawInstituteofVictoria),CP75(FederationofCommunityLegalCentres(Victoria)),CP78(MentalHealthLegalCentre)andCP80(VictorianCivilandAdministrativeTribunal).
161 SubmissionCP80(VictorianCivilandAdministrativeTribunal).162 SubmissionCP70(StateTrusteesLimited).163 SubmissionsIP8(OfficeofthePublicAdvocate)andCP19(OfficeofthePublicAdvocate).
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parties’ access to confidential information21.94 Intheconsultationpaper,theCommissionaskedwhetherVCATshouldberequiredto
adviseapersonwhoprovidesthemwithconfidentialinformation,suchasamedicalreport,thatthismaterialmaybemadeavailabletothepartiesinaGuardianshipListmatter.Therewaswidespreadsupportforthisproposal.164StateTrusteesandthePublicAdvocatenotedthatmanypeopleprovidematerialtoVCATwithoutconsideringwhetherotherpeoplemighthaveaccesstothatinformation.165
21.95 SomeorganisationssuggestedthatVCATshouldretainsomediscretionaboutwhetherpartiestoaproceedingshouldbegivenaccesstoallofthematerialsonafile.166Manyorganisationsreferredtotheprinciplesofproceduralfairness,whichprovidethatapersonisentitledtoknowwhatisbeingsaidaboutthemwhentheirrightsorinterestsmaybeaffectedbyadecision.167TherewaswidespreadsupportforthesuggestionthatapersonwhowishestheinformationtheyprovidetoVCATtobewithheldfromotherpartiesshouldprovideajustificationforthisrequest.168
RIGhT TO a faIR hEaRING
Charter of human Rights and Responsibilities act 2006 (Vic)21.96 Section24oftheCharter of Human Rights and Responsibilities Act 2006(Vic)(the
Charter)providesthatpartiestocivilproceedings(suchasguardianshipmatters)havetherighttohavetheproceedingdecidedbya‘competent,independentandimpartialcourtortribunalafterafairandpublichearing’.169TheCharter’sfairhearingrightissimilartoVCAT’snaturaljustice(orproceduralfairness)obligationsunderbothsection98(1)(a)oftheVCATActandatcommonlaw.
VCaT fair hearing practice Note21.97 VCAThasrecentlyreleasedaPracticeNote,170providingproceduralguidancein
relationtoitsfairhearingobligationundertheCharter171andtheVCATAct.172ThisPracticeNoteoutlinestheobligationsofmembersto:
• identifythedifficultiesexperiencedbyanyparty,whetherduetoalackofrepresentation,literacydifficulties,ethnicorigin,religion,disabilityoranyothercause,andfindwaystoovercomethosedifficulties
• insomecasesinterveneinproceedingstoclarifyuncertainty,identifyrelevantissues,ensurehearingsareconductedefficientlyandcost-effectively,askquestionstoelicitrelevantinformationanddealwithinappropriatebehaviour
164 Foreg,SubmissionsCP19(OfficeofthePublicAdvocate),CP22(Alzheimer’sAustraliaVic),CP33(EasternHealth),CP59(CarersVictoria),CP70(StateTrusteesLimited),CP71(SeniorsRightsVictoria),CP73(VictoriaLegalAid)andCP75(FederationofCommunityLegalCentres(Victoria)).
165 SubmissionsCP19(OfficeofthePublicAdvocate)andCP70(StateTrusteesLimited).166 SubmissionsCP70(StateTrusteesLimited),CP73(VictoriaLegalAid)andCP77(LawInstituteofVictoria).167 Foreg,SubmissionCP22(Alzheimer’sAustraliaVic),CP73(VictoriaLegalAid),CP75(FederationofCommunityLegalCentres(Victoria)),CP
78(MentalHealthLegalCentre)andCP81(TheElderLawandSuccessionCommittee,LawSocietyofNSW).168 Foreg,SubmissionCP19(OfficeofthePublicAdvocate),CP22(Alzheimer’sAustraliaVic),CP59(CarersVictoria),CP71(SeniorsRights
Victoria),CP73(VictoriaLegalAid),CP77(LawInstituteofVictoria),CP75(FederationofCommunityLegalCentres(Victoria))andCP78(MentalHealthLegalCentre).
169 Charter of Human Rights and Responsibilities Act 2006(Vic)s24(1).Thisrighthasbeenfoundtoapplytocivilmattersthatareboth‘judicial’and‘administrative’incharacter,andVCAThasbeenfoundtobea‘competentindependentandimpartialtribunal’:seeKracke v Mental Health Review Board[2009]VCAT646(23April2009)[418],[447].
170 VictorianCivilandAdministrativeTribunal,Practice Note PNVCAT 3 (Fair Hearing Obligation)(1October2010)(‘Practice Note PNVCAT 3’).171 Charter of Human Rights and Responsibilities Act 2006(Vic)s24(1).172 SeeVictorian Civil and Administrative TribunalAct1998(Vic)ss97–102.
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21Chapter 21 VCAT• dependingonthecircumstances,assistpartiestoensuretheyareprovidedwith
afairhearing—includingthroughexplainingtherelevantlaw,identifyingkeyissues,askingquestionstoelicitrelevantinformation,anddrawingattentiontothedifferencebetweenunswornandswornevidence—andadjournhearingsincircumstanceswhereitwouldbeunfairtoproceed
• takeparticularresponsibilitywhendealingwithself-representedlitigantstoensuretheyreceiveafairhearing,especiallyinmatterssuchasthoseintheGuardianshipList,whereaperson’sfreedomandautonomyisatstake.173
21.98 ThePracticeNotemakesitclearthatwhendealingwithself-representedparties,themembercannotbecomeanadvocatefortheparty,andmustbalancetheneedtoenablepartiestoparticipatefullywiththeneedtopreserveVCAT’simpartiality.174
21.99 ThePracticeNotealsooutlinestheobligationsofpartiesandtheirrepresentativesinhearings,includingrequirementstoactcourteously,honestly,cooperativelyandpromptly,minimisecosts,andtousereasonableendeavourstoresolvedisputeswhereengagedinalternativedisputeresolution.175
International approaches to guardianship hearings21.100 TheAustralianmodelofhavingatribunaldeterminewhetherapersonneeds
assistancewithdecisionmakingisunusual.IncomparablejurisdictionssuchasEngland,NewZealand,CanadaandtheUnitedStates,guardianshipproceedingsareconductedincourts.Thoughthesecourtsoftenhavespecialistexpertise,176theyareunabletooffertheaccessibilityandinformalityofAustralia’stribunalapproachtoguardianshipmatters.TheCommissiondidnotreceiveanysuggestionsaboutmovingawayfromatribunal-basedapproachtoguardianshiplawmatters.
ThE COMMISSION’S VIEwS aNd CONCLuSIONSThE IMpORTaNCE Of INfORMaLITy aNd aCCESSIbILITy21.101 VCATdescribesitspurposeasbeing‘toprovideVictorianswithalowcost,accessible,
efficientandindependenttribunaldeliveringhighqualitydisputeresolution’.177VCATisdirectedbyitsgoverninglegislationto:
conducteachproceedingwithaslittleformalityandtechnicality,anddetermineeachproceedingwithasmuchspeed,astherequirementsofthisActandtheenablingenactmentandaproperconsiderationofthemattersbeforeitpermit.178
21.102 ItisdifficulttoimplementtheseaspirationsinatribunalthatisboundbytherulesofnaturaljusticewhenitisdealingwithissuesinGuardianshipListmattersthat‘gototheheartofanindividual’shumanrights—totheirautonomyandcapacitytomanagetheirlives’.179
21.103 TheissuesfacedbyVCATwhenconductingGuardianshipListmattersareparticularlychallengingbecausemostcasesdonotfallwithinVCAT’sowndescriptionofitsvisionandpurpose.Whenconductingahearingtodecidewhethertoappointaguardianoradministratorforaperson,VCATisnotusuallyrequiredtoprovidean‘efficientdisputeresolutionservice’becausethereisnodisputebetweenlitigantstoresolve.
173 Practice Note PNVCAT 3,aboven170,3–4.174 Ibid4.175 Ibid5.176 InEngland,forexample,guardianshiphearingsareconductedinthe‘CourtofProtection’.InNewZealandguardianshiphearingsare
conductedintheFamilyCourtofNewZealand.177 VCAT,Annual Report 2010/11,aboven9,2.178 Victorian Civil and Administrative TribunalAct1998(Vic)s98(1)(d).179 Ross,aboven5,13.
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21.104 VCATisbeingaskedtoactastherepresentativeofthestateindecidingwhetherapersonisunabletomaketheirowndecisionsbecauseofadisabilityandwhetheranotherpersonshouldbeappointedtomakethosedecisionsforthem.Thistaskisnotwellservedbyemployingtraditional—orevenmoremodern—‘disputeresolution’processes.TheCommissionbelievesthatthistaskwouldbebetterservedbyacknowledgingtheuniquenatureofGuardianshipListmattersandbydesigningspecialprocessesforuseinthesecasesthatareasinformalandaccessibleaspossible.
21.105 WhileAustralia’stribunal-basedapproachtoguardianshiphasbeenoneofitsstrongestfeaturesandshouldcontinue,180itrequiresongoingdevelopment,particularlyduringanerawhenguardianshipmatterswillcontinuetobedeterminedinVictoriabya‘onestopshop’tribunal181withanunderstandablepreferenceforefficiencyinitsvariouslists.AsVCAT’sPresidentrecentlywrote:
WhileadegreeofstructureandformalityisrequiredinallhearingsweshouldrepeatedlyaskourselveswhethertheneedsoftheTribunalaretakingpriorityovertheneedsofthepeoplewhoappearbeforeus.182
21.106 WhiletheCommissionbelievesthatVCATshouldcontinuetoexerciseexclusivejurisdictioninstatutoryguardianshipmatters,weencourageVCATtobeinnovativeinconfrontingthechallengesposedbythefactthatmostGuardianshipListcasesdonotsitcomfortablywithinabodythatseesitselfasprovidinga‘disputeresolutionservice’.183
RECOMMENdaTIONVCAT’s jurisdiction
347.VCATshouldcontinuetohaveexclusivejurisdictioninrelationtothefollowingmatters:
(a) hearingapplicationsfortheappointmentofapersonalguardianandafinancialadministrator
(b) reassessingpersonalguardianshipordersandfinancialadministrationorders
(c) providingadvice,eitheruponrequestoronitsownmotioninthecourseofanyproceeding,topersonalguardiansandfinancialadministratorsandenduringappointeesandhealthdecisionmakersabouthowtheyshouldexercisetheirpowers
(d) revokingpersonalappointmentsofsubstitutedecisionmakers
(e) decidingwhethertoconsenttoa‘specialprocedure’inrelationtomedicaltreatment.
VCaT pRE-hEaRING pROCESSES21.107 Asnotedearlierinthischapter,manypeoplefeelthatbetterpre-hearingprocesses
couldsignificantlyenhancetheirexperienceoftheGuardianshipListatVCAT.
21.108 TheCommissionbelievesthatthefollowingpre-hearingprocesseswouldbebeneficial:
• carefulcoordinationandmanagementofmatters(triaging),includingdiversiontoalternativeprocessessuchasmediationandfamilyconferences
180 TerryCarneyandDavidTait,The Adult Guardianship Experiment: Tribunals and Popular Justice (FederationPress,1997)19–17.181 ThisishowVCATdescribesitselfinitsAnnualReport:VCAT,Annual Report 2010/11,aboven9,2.182 Ross,aboven5, 12.183 VCAT,Annual Report 2010/11,aboven9,2.
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21Chapter 21 VCAT• earlycollectionofrelevantinformationtoenablethetribunaltomakedecisions
withoutneedingtoadjournthehearing
• improvednotificationtopartiesofthedetailsofthehearing,particularlytotheproposedrepresentedperson,includinginformationaboutwhatthehearingisabout,whatitwillinvolve,whatitspossibleoutcomesmaybe,andtheperson’srights,includingtheirrighttoadviceandadvocacy.
21.109 TheCommissionrecognisesthattheVCATregistryalreadyseekstoperformthesefunctions,butasVCAThasitselfacknowledged,itcoulddomoreifprovidedwithadditionalresources.184
21.110 TheCommissionbelievesthatVCATshouldbeappropriatelyfundedtoundertakethefollowingactivitiesinGuardianshipListmatters:
• athoroughexaminationoftheapplicationtoensurethatitissupportedbymaterialthetribunalneedstodecidethematter
• ananalysisoftheapplicationtodeterminewhetheritshouldproceeddirectlytohearingorbereferredtoanalternativeprocess
• liaisonwiththeparties,particularlytheapplicantandtheproposedrepresentedperson,toensurethattheyareproperlypreparedforthehearingorforanyalternativeprocessesthatarerecommended.
RECOMMENdaTIONVCAT pre-hearing processes
348.VCAT’sroleinthepreparationofGuardianshipListmattersshouldbeexpandedtoensurethatinallcases:
(a) mattersareproperlyprioritised,andurgentmattersaredealtwithasquicklyaspossible
(b) theappropriatemechanismfordealingwiththematterischosen
(c) thepersonwhoisthesubjectoftheapplicationisabletoparticipateinthehearingprocesstotheextentthattheyareableandwishtodoso,andhasaccesstoindependentadvocacywhereneeded
(d) allpartiesareadequatelyinformedofthenatureandpossibleoutcomesofVCAThearings
(e) VCAThasadequateinformationuponwhichtobaseitsdecisions.
Notification of proceedings21.111 Currently,theapplicantadvisesotherinterestedpeopleofanapplicationfororders
undertheG&AAct.185Thisraisesanumberofissues.First,theapplicant,notVCAT,isresponsiblefordeterminingwhoisan‘interestedperson’forthepurposesoftheapplication.Secondly,sendingthecompletedformtoallpeoplewhomtheapplicantconsiders‘interestedpeople’mayunnecessarilydisclosepersonalinformationabouttheproposedrepresentedperson,asanapplicationformmaycontainpersonalmatterssuchasmedicalandfinancialinformation.
184 SubmissionCP80(VictorianCivilandAdministrativeTribunal).185 Application to Appoint an Administrator, Guardian or to Make Orders,aboven29,1.
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21.112 TheCommissionbelievesthattheapplicationformshouldfirstgotoVCATonlytoensuretheconfidentialityofanypersonalinformation.OncetheVCATregistryhasreceivedanapplicationform,theregistrarshouldmakeapreliminarydeterminationofpartiestotheproceedingandpeopleentitledtonoticebasedontheinformationprovidedintheapplication.ThislevelofinvolvementbythetribunalisappropriateinGuardianshipListproceedings,whicharefarremovedfromtraditionalcivillitigationwheretheplaintiff,orothermovingparty,isrequiredtonotifytheotherpartiesoftheproceedingsandprovidethemwithinformationabouttheclaimsmadeandtheoutcomessoughtinthecase.
21.113 VCATshouldberesponsibleforidentifyingandnotifyingpartiesandotherpeopleentitledtonoticeofanimpendingGuardianshipListproceeding.Thisstepcouldbetakenbyprovidingthesepeoplewithanoticeoftheapplicationandthehearingdate,togetherwithadviceabouthowtheycanseekaccesstofurtherinformationaboutthecase.
RECOMMENdaTIONSNotification of VCAT proceedings
349.NewguardianshiplegislationshouldprovidethatanypersonapplyingforapersonalguardianshiporfinancialadministrationordershouldberequiredtoprovideVCATwithdetailsofanyotherpeoplewithadirectinterestintheoutcomeoftheapplication,suchasfamilymembersandprimarycarers.
350.VCATshouldmakeapreliminarydeterminationofpotentialpartiestotheproceedingandpeopleentitledtonoticebasedoninformationprovidedintheapplication,andprovidenoticeoftheapplicationtothesepeople.
351.Notificationtothepartiesshouldinclude:
(a) theapplicationandcopiesofanyinformationfiledinsupportunlessdisclosureofthisinformationisormightberesistedongroundsofconfidentiality
(b) alistoftheotherpartiesandpeopleentitledtonotice
(c) thehearingdate
(d) theirrelevantrights.
352.Notificationtopeopleentitledtonoticeshouldinclude:
(a) theapplication
(b) alistoftheotherpartiesandpeopleentitledtonotice
(c) thehearingdate
(d) theirrights,includingtheprocedureforapplyingtoVCATtobemadeapartyintheproceedings.
parties and people entitled to notice21.114 Thepartiestoaguardianshipproceedingshouldincludetheapplicant,ortheperson
whorequestedthereview,theproposedorcurrentrepresentedperson,thesubstitutedecisionmakerandco-decisionmakerorsupporter,186aswellasanyotherpersonVCATconsidersshouldbeapartytotheproceeding.
186 Totheextentthattheirroleisrelevanttotheproceeding.
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21Chapter 21 VCAT21.115 Itisalsoimportantthatotherpeoplewithaninterestinamatter,suchasthedomestic
partneroftheproposedrepresentedperson,benotifiedofimpendingproceedingsandadvisedoftheirrighttoapplytoVCATtobecomeaparty.
RECOMMENdaTIONSParties to proceedings
353.Undernewguardianshiplegislation,thefollowingpeopleshouldbepartiestoanyproceedingbeforeVCATconcerninganapplicationtomakeorreviewanorder:
(a) theapplicantorthepersonwhorequestedthereview
(b) theproposedorcurrentrepresentedperson
(c) theproposedorcurrentsubstitutedecisionmaker
(d) theproposedorcurrentco-decisionmakerorsupporter,totheextentthattheirroleisrelevanttotheproceeding
(e) anyotherpersonwhoVCATconsidersshouldbeapartytotheproceeding
(f) anyotherpersonwhoVCATconsidershasasufficientinterestinthematter.
People entitled to notice
354.Thefollowingpeopleareentitledtonoticeofthedateuponwhichanapplicationorreviewwillbeheard:
(a) allpartiesintheproceeding
(b) thedomesticpartneroftheproposedrepresentedperson,ifinacloseandcontinuingrelationship
(c) theprimarycareroftheproposedrepresentedperson
(d) thenearestrelative(otherthantheapplicant,ortheproposedsubstitutedecisionmaker)ifknown
(e) aco-decisionmakerorsupporterifnotaparty
(f) thePublicAdvocate.
Involving the parties21.116 Ensuringthatpartiesreceiveappropriateinformationaboutthehearingisan
importantpartofthepre-hearingprocess,particularlyinthosecaseswherethereisconflictbetweenpeople.
21.117 TheCommissionbelievesthattheworkoftheNewSouthWalesGuardianshipTribunal’sCaseManagementUnitisparticularlyimpressiveandshouldbestudiedcloselybyVCATinordertoensurethatVictoriansreceiveasmuchassistanceinpreparingforGuardianshipListhearingsaspeopleinvolvedinsimilarcasesinNewSouthWales.
489
RECOMMENdaTIONSInforming parties about the hearing
355.VCATshouldhaveprimaryresponsibilityfornotifyingallpartiesoftheapplicationandthehearingdate,includingtakingstepstoensurethatthepartiesunderstandwhatthehearingisabout,andwhattoexpectonthedayofthehearing,withaparticularemphasisonensuringthattheproposedrepresentedpersonismadeawareof:
(a) thescheduledtimeandplaceofthehearing
(b) whatthehearinginvolves
(c) theirrightsinrelationtothathearing,includingtheirrighttoactivelyparticipate
(d) thepotentialoutcomesofthehearing
(e) theiroptionsinrelationtoobtainingindependentadviceandadvocacy.
356.VCATshouldalsoseektomaximiseopportunitiesfortheproposedrepresentedperson’sparticipationinthehearingtotheextenttheyareabletoandwishtodoso.
Ensuring adequate information is included with the application21.118 OneofthemostimportanttasksundertakenbytheNewSouthWalesGuardianship
Tribunal’sCaseManagementUnitisensuringthatthetribunalhassufficientinformationtodetermineanapplicationwithoutadjourningforfurtherevidence.WhilethePublicAdvocatesometimesfulfilsthistaskincomplexcases,itisnotroutine.TheCommissionbelievesthatmuchmorecouldbedonetoprovideVCATwiththeinformationnecessarytodealwithGuardianshipListmatters.
RECOMMENdaTIONSGathering information about the application
357.VCATshouldensurethatadequateinformationisavailabletomemberstoconductahearing,includingrelevantmedicalorotheropinioninrelationtotheperson’scapacityandpersonalorfinancialcircumstances.
358.Wheretheapplicationappearstoinvolveparticularlycomplexmatters,VCATshouldrefertheapplicationtothePublicAdvocateforinvestigation.
Triaging21.119 TherewasbroadsupportfortheCommission’sproposalthattherebemoreactive
triagingofapplicationsbeforetheyarelistedforhearingbyVCAT.ThispracticewillbecomeevenmoreimportantinthefutureiftheCommission’srecommendationsforgreateruseofalternativemechanismssuchasmediation,familyconferencingandplanningconferencesareimplemented.
21.120 TheCommissionproposesastrongertriagingroleforVCATregistrystaff,whichinvolvesathoroughassessmentofanapplicationbeforeallocatingittooneofanumberofchannels,including:
• urgenthearingbyVCAT
• normalVCAThearing
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21Chapter 21 VCAT• furtherinformationgatheringbytheregistry
• independentinvestigationbythePublicAdvocate
• alternativedisputeresolution
• planningconference.
Disputes about services provided under the Disability Act 2006 (Vic)21.121 TheDisabilityServicesCommissionerhasastatutoryfunctioninrelationtohandling
complaintsaboutservicesprovidedundertheDisabilityAct.
21.122 WhereguardianshipapplicationsarisebecauseofdisputesbetweencarersandservicesprovidersundertheDisabilityAct,theCommissionbelievesthatVCATshouldconsiderreferringmattersofthisnaturetotheDisabilityServicesCommissionerforpossiblemediationbeforeappointingasubstitutedecisionmaker.TheCommissionproposesthatprotocolsbedevelopedbetweenVCATandtheDisabilityServicesCommissionertofacilitateappropriatereferralsbetweenthetwobodies.
RECOMMENdaTIONSTriaging
359.Whenprocessinganapplication,VCATshouldseektoidentifymattersthat:
(a) areurgent,andinneedofahearingimmediately
(b) arerelativelyclearandunproblematic,andcanproceedquicklytohearingwithlittleornofurtherpreparationbyVCAT
(c) aremorecomplexandrequirefurtherpreparatoryworktobeundertakenbyVCATbeforeproceedingtohearing
(d) aremorecomplexandneedtobereferredtothePublicAdvocateforindependentinvestigation
(e) involveconflictthatmightberesolvableifthematterwasdivertedtoappropriatedisputeresolutionprocesses
(f) wouldbemoreappropriatelydealtwithbyconsentataplanningconference.
Disputes in relation to services
360.VCATshoulddevelopprotocolswiththeDisabilityServicesCommissionertoallowapplicationsinvolvingdisputesabouttheprovisionofdisabilityservicestobedivertedtotheDisabilityServicesCommissionercomplaintsprocesses,withtheconsentoftheparties.
pLaNNING CONfERENCES21.123 BecausemostGuardianshipListmattersarenottraditionalcivildisputes,the
Commissionbelievesthatitisdesirabletodevelopnewinformalmechanismsfordealingwithsomeofthesecases.Oneofthesemechanismsisaplanningconference.
21.124 WenotethatVCATalreadyadoptsanumberofinformalmechanisms(includingintheGuardianshipList)andthattheseprocesseswilllikelyformaconsiderablepartoftheirfutureapproachtoresolvingmatters.187VCATistrainingmorememberstoconductmediation,rollingoutseveralinitiatives,suchastelephonemediation,and‘supportingMemberstodeliver“settlementtalks”beforehearingmattersnotsubjecttoformal
187 VCAT,Annual Report 2010/2011,aboven9,20.SeealsothediscussionofADRinRoss,aboven5.In2009,formerPresidentJusticeBellrecommendedthattheVictorian Civil and Administrative Tribunal Act 1998 (Vic)beamendedtoaffordgreaterprominencetoADR:at85–7.
491
ADRprocesses’.188WhileVCATmembersusemediationinthecontextofanticipateddisputes,theskillsmembersrequiretoconductitarerelevanttoemployingotherinformalmechanismswherethereisnodispute,suchastheconceptofaplanningconference.
21.125 TheplanningconferencerecommendedbytheCommissionisamodifiedversionofaproposaldevisedbyCarersVictoria.189Thiswouldbeaninformalmeetingattendedbytheproposedrepresentedperson,membersoftheirfamilyand,often,carersandclosefriends.AmemberofVCATstaffwouldconvenethemeeting,sometimesinaresidentialfacilityorattheproposedrepresentedperson’shome.Inbroadterms,theseconferenceswouldresemblefamilygroupconferences,whicharebecomingincreasinglyimportantinchildprotectionmatters.190
21.126 Aprimaryobjectiveoftheplanningconferencewouldbetoseewhetheritispossibletoachieveconsensusabouttheassisteddecision-makingneedsoftheproposedrepresentedperson.Ifconsensusisachieved,theoutcomesoftheconferencecouldbepresentedtoamemberoftheGuardianshipListwhocouldeitherdecidetoadopttheplanningconference’srecommendationswithouthearingandmaketheappropriateorders,orproceedtoahearing.
21.127 AplanningconferenceshouldbeconductedwiththeconsentofthepartieswhereVCATbelievesthatitwouldbeaproductivemeansofexploringtheissuesrelevanttotheapplication.Ingeneral,aplanningconferenceisappropriatewhen:
• itseemslikelythattherewillbebroadconsensusamongthepartiesaboutthemainissuesthatneedtobeconsidered
• thoseinvolvedcouldbenefitfromaninformalexplorationofpossibleoutcomes.
21.128 TheCommissionsuggeststhatplanningconferencesarelikelytobeaparticularlysuitablemeansofexploringissueswherecarerswhoarecurrentlyplayinganinformalsubstitutedecision-makingroleareapplyingtohavetheirrolerecognisedformallybecauseoffutureneed.191
RECOMMENdaTIONSPlanning conferences
361.NewguardianshiplegislationshouldprovideforanappropriatememberofVCATstafftoconveneaplanningconferenceinrelationtoanyapplicationtoVCATfortheappointmentofadecision-makingsupporter,aco-decisionmaker,apersonalguardianorafinancialadministrator.
362.AplanningconferencemaybeconvenedbyVCATonitsownmotionorattherequestoftheapplicantorotherinterestedpersonatanytimepriortomakingordersdisposingofanapplication.
363.Theaimofaplanningconferenceshouldbetoascertainwhetheritispossibletoreachaconsensusamongallinterestedpeopleaboutanoutcometotheapplicationthatwouldbestpromotethepersonalandsocialwellbeingoftheproposedrepresentedperson.
188 VCAT,Annual Report 2010/2011,aboven9,20.189 SubmissionCP59(CarersVictoria).190 TheCommissionconsideredfamilygroupconferencesatlengthinarecentreport:VictorianLawReformCommission,Protection Applications
in the Children’s Court,FinalReportNo17(2010)236–267.191 TheserecommendationsarediscussedinChapter12.
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21Chapter 21 VCAT
364.Theplanningconferenceshouldbeattendedbytheproposedrepresentedpersonandclosefamilymembers,carers,friendsoradvocateswhohaveagenuineinterestintherepresentedperson’spersonalandsocialwellbeing.
365.Theplanningconferenceshouldbeheldataplaceandconductedinamannerthatwillenabletheparties,particularlytheproposedrepresentedperson,toparticipateandidentifytheoutcomethatwillbestpromotethepersonalandsocialwellbeingoftheproposedrepresentedperson.
366.ThepersonwhoconvenesshouldprepareareportforVCATthatidentifiesthemajorissuesinvolvedintheapplicationandtheconsensusview(ifany)thatwasreachedregardingthepreferredoutcomeoftheapplication.
367.Uponreceiptofthereport,VCATmay:
(a) maketheorderssoughtbythepeoplepresentattheplanningconference,or
(b) proceedtodeterminetheapplicationfollowingahearing.
LOCaTION aNd TIMING Of hEaRINGS21.129 ManypeopleexpressedconcernstotheCommissionabouttheplacesinwhichVCAT
holdsGuardianshipListhearings,particularlysuburbanandregionalcourthouses.
21.130 Whilecourt-likeroomsmightbeappropriatevenueswithinwhichtodeterminemanycivilandadministrativedisputes,theydonotencouragetheinformalityandaccessibilityrequiredinmostGuardianshipListmatters.TheCommissionnotesthepracticeoftheNewSouthWalesGuardianshipTribunalinchoosingnottoconductproceedingsincourt-likeroomsotherthaninexceptionalcircumstances.
21.131 TheCommissionencouragesVCATtotakefurtherstepstoconductGuardianshipListhearingsinsuitableroomsatitscitypremisesandinsuburbanandregionallocations.TheCommissionnotesthatVCATisnowmakingmoreuseofhospitalsandnursinghomesasvenuesforhearingsandsupportsthecontinuationofthispractice.
21.132 TheG&AActrequiresVCATtocommencehearingaguardianshiporanadministrationapplicationwithin30daysaftertheapplicationisreceivedatthetribunal.Whilethereisgreatmeritinrequiringapplicationstobeheardquickly,theCommissionbelievesthatVCATshouldbegivensomeflexibilityabouttiming,becausesomeGuardianshipListmattersshouldbereferredtoplanningconferenceswhileotherswouldbenefitfromgreateruseofmediationandothersimilarmechanismsforseekingagreedoutcomes.
RECOMMENdaTIONSLocation of hearings
368.VCATshouldcontinuetoconductGuardianshipListhearingsinappropriatesettingsotherthancourtroomswhereverpossible.
Date of hearing
369.NewguardianshiplegislationshouldcontinuetorequireVCATtocommencehearingaguardianshiporanadministrationapplicationwithin30daysaftertheapplicationisreceivedatthetribunal,unlessVCATreferstheapplicationtoaplanningconference,mediationorsomeothermechanismforseekinganagreedoutcome.
493
paRTICIpaTION aT hEaRINGS21.133 ThereiswidespreadconcernaboutthenumberofhearingsthatVCATconducts
withouttheproposedrepresentedpersonbeingpresent.192
21.134 WhiletheCommissionacknowledgesthechallengesassociatedwithconductinghearingsinthepresenceofapersonwithimpairedcapacityinsomecircumstances—suchaswhendealingwithapersonwhoisbedridden,orwhoisdistressedoragitated—theCommissionbelievesthereshouldbeastatutorypresumptionthatallinitialGuardianshipListapplicationsbeheardinthepresenceoftheproposedrepresentedperson.Apresumptionofthisnatureisappropriatebecause,asthePresidentofVCAThaspointedout,GuardianshipListhearings‘gototheheartofanindividual’shumanrights’.193TheCommissionbelievesthatlegislationshoulddeclarethattherepresentedpersonhavetheopportunitytobepresentwhenadecisionwillbemadeabouttheircapacitytomaketheirownpersonalorfinancialdecisions.
21.135 Itshouldbepossible,however,forVCATtodepartfromthispresumptionincaseswherethepresenceoftheproposedrepresentedpersonisimpracticalorunreasonable,ortheopportunityisdeclined.Theconceptof‘presence’shouldnotrequirephysicalpresenceinthesameroomasthememberormemberscomprisingVCAT.Itshouldbepossibleforapersontobepresentbytelephone,videolinkorotherelectronicmeansofcommunication.
RECOMMENdaTIONSParticipation in hearings
370.NewguardianshiplegislationshouldprovidethatallinitialapplicationsinGuardianshipListmattersshouldbeconductedinthepresenceoftheproposedrepresentedpersonunlessVCATissatisfiedthattherepresentedpersondoesnotwishtoattendorthatthereissomeotherjustifiablereasonforthehearingtoproceedintheirabsence.
371.VCATshouldmakereasonablearrangementstoensurethataproposedrepresentedpersonwhoisunabletobephysicallypresentattheplacewherethehearingisheldisabletobepresentthroughothermeanssuchasvideolinkortelephone.
REpRESENTaTION aT hEaRINGS21.136 Atpresent,noneofthepartiesinGuardianshipListmatters—includingtheproposed
representedperson—hasarighttolegalrepresentationduringthehearing.TheconsentofVCATortheagreementofallthepartiesisrequiredbeforeaprofessionaladvocatecanrepresentapersonatahearing.194
21.137 TheCommissionbelievesthatallpartiestoGuardianshipListmattersshouldhavearighttorepresentationbyalegalpractitionerandtheyshouldbeentitledtoberepresentedbyanyotherprofessionaladvocatewiththeleaveofVCAT.
21.138 WhiletheCommissionisunawareofanycircumstancesinwhichalegalpractitionerhasbeenrefusedleavetoappearforapartyinaGuardianshipListmatter,giventhenatureoftheissuesatstakeitishighlydesirablethattheproposedrepresentedpersonhaveaclearrighttolegalrepresentation.Thereisnogoodreasonwhythisrightshouldnotextendtootherpartiestotheproceeding.
192 Roundtablewithseniors(inpartnershipwithCouncilontheAgeing)(5May2011);SubmissionsCP71(SeniorsRightsVictoria)andCP78(MentalHealthLegalCentre).
193 Ross,aboven5,13.194 Victorian Civil and Administrative TribunalAct1998(Vic) s62.
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21Chapter 21 VCAT21.139 TheCommissionnotesthattheVCATFairHearingPracticeNotereferstoVCAT’s
dutytoassistself-representedparties,anddrawsparticularattentiontothedifficultbalancingactinvolved.ThePracticeNotepointsoutthatthisdifficultyarisesparticularlyinrelationtotheneedtoensureproceduralfairnesstoallpartieswhileprovidingextraassistancetoself-representedpartieswhomaylosesubstantialfreedomsandpersonalautonomy,suchasintheGuardianshipList.195TheCommissionacknowledgesthedifficultiesinstrikingthisbalanceandsuggeststhatreferraltoexternalagenciesforlegalassistancemayoftenbethemostappropriatestep.
21.140 VCAT’spowerundersection62(6)oftheVCATActtoappointarepresentativeforapersondoesnotappeartobeusedveryofteninGuardianshipListmatters.WhileVCAThassubmittedthatitisnotfundedtopayforparties’representation,theCommissionsuggeststhatitconsultVictoriaLegalAidandvariousotherorganisationsthatofferprobonolegalservicesinordertogivesomecontenttoitspowertoappointarepresentativeforaparty.
RECOMMENdaTIONSRepresentation at hearings
372.Section62oftheVictorian Civil and Administrative Tribunal Act 1998(Vic)shouldbeamendedtoprovidethatarepresentedpersonoraproposedrepresentedpersonandanyotherpartyinaGuardianshipListmatterhasarighttorepresentationbyalegalpractitionerinthoseproceedingsandmayberepresentedbyanyotherprofessionaladvocatewiththeleaveofVCAT.
373.NewguardianshiplegislationshouldrequireVCATtoprovidethesubjectofaGuardianshipListapplicationwithinformationabouttheavailabilityofrepresentation.
Power to appoint a legal representative
374.VCATshouldseektoenterintoarrangementswithVictoriaLegalAid,communitylegalcentres,theLawInstituteofVictoria,theVictorianBarAssociation,andprovidersofprobonolegalservicestoenablearepresentativetobeappointedforapersonundersection62(6)oftheVictorian Civil and Administrative Tribunal Act 1998(Vic)whenrequired.
ENfORCEMENT Of ORdERS21.141 Asnotedabove,guardiansandadministratorssometimesexperiencedifficulty
havingtheirdecisionsrecognisedandimplementedbythirdparties.Courtorderscanbesoughttoenforcemanyofthesedecisionsbyrelyingonthecommonlawandstatutoryrightsoftherepresentedperson,whichhavebecomevestedinorareexercisablebythesubstitutedecisionmaker.Butthisprocessisaninefficientanduneconomicalmeansofgivingeffecttolegitimatedecisionsmadebyaguardianoranadministrator.
21.142 Whileitisgenerallypreferabletoresolvetheseconflictsthroughinformalprocesses,theCommissionacceptsthattherewillbesomeinstanceswhereaformaltribunalorderwillbenecessarytocompelathirdpartytocomplywithavaliddecisionofasubstitutedecisionmakerconcerningthepersonalorfinancialaffairsoftherepresentedperson.
195 Practice Note PNVCAT 3, above n 170.
495
21.143 Asamatteroffairness,thethirdpartyshouldbegivennoticeoftheapplicationtoVCATforanenforcementorderandshouldhaveanopportunitytobeheardbeforeanyordersaremade.Becauseitishighlylikelythatthesematterscanberesolvedbyagreement,VCATshouldconsiderdirectingtheuseofalternativedisputemechanismsbeforelistinganapplicationofthisnatureforhearing.
21.144 Ifestablished,co-decisionmakersandsupportersarealsolikelytoexperienceenforcementdifficulties,especiallywhenseekingaccesstoconfidentialinformationabouttherepresentedperson.TheCommissionproposesthatVCATenforcementprocessesbeavailabletoco-decisionmakersandsupportersaswellassubstitutedecisionmakers.
21.145 WhileVCATshouldhavebroadpowerswhenmakingenforcementordersagainstthirdparties,itshouldnotbepermittedtomakeanorderdirectingcompliancewithadecisionthattherepresentedorsupportedpersonwouldnothavethepowertoenforce.
21.146 TheCommissionnotesthatfailuretocomplywithanenforcementorderwouldbeanoffenceundersection133oftheVCATAct,punishablebyimprisonmentorfine.
RECOMMENdaTIONSEnforcement of orders
375.Asupporter,co-decisionmakerorsubstitutedecisionmakermayapplytoVCATforanenforcementorderagainstathirdpartywhorefusestorecogniseorimplementavaliddecisionmadebytheapplicantaboutthepersonalorfinancialaffairsoftherepresentedperson.
376.Thethirdpartyshouldbegivennoticeoftheapplicationforanenforcementorderandanopportunitytobeheardbeforeanyorderismade.
377.VCATshouldconsiderdirectingtheuseofalternativedisputemechanisms,suchasmediation,beforelistinganapplicationofthisnatureforhearing.
378.VCATshouldmakeanenforcementorderonlyifitissatisfiedthattheorderwouldpromotethepersonalandsocialwellbeingoftherepresentedperson.
379.VCATshouldnotbepermittedtomakeanorderenforcingadecisionthattherepresentedorsupportedpersonwouldnothavethepowertoenforce.
MuLTI-MEMbER GuaRdIaNShIp LIST paNELS21.147 Intheconsultationpaper,theCommissionaskedwhethermulti-memberpanels,with
membersdrawnfromarangeofbackgrounds,shouldbethestandardpracticeforinitialguardianshipandadministrationapplications.
21.148 VCAThasadiscretionarypowertodeterminehowmanymemberswillhearaparticularcase.Section64oftheVCATActpermitsthePresidentofVCATtodeterminehowmanymembersofVCAT(betweenoneandfive)willcomprisethetribunalforthepurposesofaparticularproceeding.FinancialconsiderationsprobablyinfluencemanyofthesedecisionsaboutthenumberofVCATmembersassignedtoparticularcases.
21.149 TheCommissionunderstandsthatVCATusuallyassignsonlyonemembertohearGuardianshipListmatters.InsomeotherareasofVCAT’soperations,suchasprofessionaldisciplinarymatters,three-memberpanelsareoftenused.
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21Chapter 21 VCAT21.150 InitssubmissiontotheCommission,VCATdescribedmulti-memberpanelsas‘agold
standard’andobservedthatitwouldpreferanyadditionalfundingto:
bedirectedtoenhancingourintakeprocess,withVCATtakingamoreactiveroleinthepre-hearingprocessandhavingtheopportunityandresources,forexample,toobtainspecialistgeriatricianorneuropsychologicalreports.196
21.151 TheCommissionsuggeststhatVCATmaywishtoconsiderallocatingaregularday,perhapsonceamonth,formulti-memberhearingsandlistingsomeofthemorecomplexmattersforthatday.
RECOMMENdaTIONMulti-member panels
380.ThePresidentofVCATshouldretainadiscretionarypowerinrelationtothecompositionofthetribunalforGuardianshipListhearings.However,VCATshouldconsidermakinggreateruseofmulti-memberpanelsformorecomplexmatterswherearangeofexpertisewouldbebeneficial.
MEMbER TRaINING21.152 Asnotedearlier,theneedfortrainingofVCATmemberswasraisedinthe
Commission’sconsultationphase,particularlyinresponsetotheissueofmulti-memberpanels.SomepeoplehighlightedtheneedforGuardianshipListmemberstohaveabetterunderstandingofthedisabilitiesofthepeopleappearingbeforethem.
21.153 TheCommissionnotesthatVCATacknowledgestheimportanceoftrainingitsmembers.197TheCommissionsuggeststhatthecomponentsofatrainingprogramforGuardianshipListmembersshouldincludeinformationabout:
• thevariousdisabilitiesthataffectdecision-makingcapacity
• theexperiencesofpeoplewhoappearbeforeVCAT,andinparticularpeoplewhoarethesubjectofapplications
• ‘capacity’,‘capacityassessment’andtheoptionsthatexisttosupportpeopleintheexerciseofcapacity
• theserviceandsupportnetworksthatassistpeoplewithimpaireddecision-makingability
• theexperienceoffamilyandcarersofpeoplewithimpaireddecision-makingability
• culturaldiversity,andthedifferentwaysinwhichAboriginal,TorresStraitIslanderandculturallyandlinguisticallydiversecommunitiessupportpeoplewithimpaireddecision-makingability.
RECOMMENdaTIONMember training
381.VCATGuardianshipListmembersshouldhavespecialisedknowledgeofissuesassociatedwithimpaireddecision-makingabilityand,wheneverpossible,memberswithexperienceandexpertiseinrelevantdisability-relatedissuesshouldconducthearings.VCATGuardianshipListmembertrainingprogramsshouldconsiderabroadrangeofdisabilityissues.
196 SubmissionCP80(VictorianCivilandAdministrativeTribunal).197 VictorianCivilandAdministrativeTribunal,Transforming VCAT: Report Card December(2011)6.
497
REVIEw Of ORdERS
Reassessments and rehearings21.154 TheG&AActprovidesforreassessmentsandrehearingsofordersmadebythe
GuardianshipList.TheVCATActdealswithappealsfromanyordersmadebyVCAT.
21.155 Thereissomeoverlapbetweenreassessmentsandrehearings.Reassessmentsservetwopurposes:theyrequireVCATtoreviewtheneedforongoingguardianshipandadministrationordersandtheyallowtherepresentedperson(oranyotherinterestedperson)toseekreviewofanorderatanytime.Thereappearstobeanunstatedstatutoryassumptionthattherepresentedperson(oranyotherinterestedperson)shouldonlyapplyforareassessmentifthecircumstanceshavechangedsincetheorderwasmade.
21.156 Thereisalsosomeoverlapbetweenrehearingsandappeals.Rehearingsoperateasinternaldefactoappeals.Any‘partyorapersonentitledtonotice’mayapplyforarehearingofanordermadeundertheG&AAct(otherthananinterimortemporaryorder)within28daysoftheorderbeingmade.WhilenotrequiredbytheG&AAct,theCommissionunderstandsthatamoreseniorVCATmemberthanthememberwhooriginallymadetheorderconductstherehearing.
21.157 Twoissuesarisewhenconsideringreassessments.Thefirstconcernsthemannerinwhichtheyareconductedandthesecondconcernstheoverlapbetweenreassessmentsandrehearings.
21.158 Asdiscussedearlierinthechapter,VCATisrequiredtoregularlyreassessallguardianshipandadministrationordersthatoperateformorethan12months.198Therepresentedpersonoranyotherinterestedpersoncanseekareassessmentofanorderatanytime.
21.159 TheCommissionbelievesthattheprocessofmakingongoingordersshouldcontinueandthatVCATshouldberequiredtoreviewthecontinuingneedfortheseordersonaregularbasis.VCATshouldcontinuetohaveadiscretionarypower,subjecttosomestatutoryguidance,abouttheintervalsatwhichordersarereviewed.
21.160 Currently,mostordersarereassessedwithoutaformalVCAThearing.Periodicreassessmentsarepresentlyconductedonan‘optin’basis—iftherepresentedpersondoesnotindicateawishtoattendahearing,theorderisreassessedbyaVCATmember‘onthepapers‘withoutanyformalhearing.WhiletheCommissionacknowledgesthechallengesassociatedwiththenumberofordersthatVCATmustreassess—nearly7000casesin2009–10—theCommissionbelievesthatmoreeffortshouldbemadeinthefuturetoencouragesomeinvolvementbytherepresentedpersoninthereassessmentprocessbecauseoftheimportanceoftheinterestsinvolved.
21.161 Itwillbeachallengingtasktosecuregreaterinvolvementbyrepresentedpersonsinthisprocess.TherearesignificantresourceimplicationsforVCATbecause71percentofthemattersithandlesintheGuardianshipListarereassessmentsoforders.199Inthosecaseswheretheongoingneedforanorderisquiteclear,theremaybelimitedbenefitinconductingahearing.However,theCommissionbelievesthatthecurrentprocessesappeartobetooheavilyweightedinfavourofadministrativeconvenienceratherthanthoroughreviewoftheperson’scurrentcircumstances.
198 Guardianship and Administration Act 1986(Vic)ss61–3199 VCAT,Annual Report 2010/2011,aboven9,43.
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21Chapter 21 VCAT21.162 Newguardianshiplegislationshouldregulatetheprocessofreassessingpersonal
guardianshipandfinancialadministrationordersinmoredetailthaniscurrentlyprovidedforintheG&AAct.TheCommissionbelievesitispreferabletousetheterm‘review’ratherthan‘reassessment’todescribeperiodicexaminationsoftheongoingneedfordecision-makingassistance,becauseitmoreclearlyconveysthepurposeofthisactivity.
21.163 TheCommissionproposesthatnewguardianshiplegislationshouldrequireVCATtodeterminethemostappropriatemannerinwhichtoreviewanorder.VCATshouldseektocontacttherepresentedpersontoinformthemoftheforthcomingreviewandinformthemoftheirrightstoparticipateinthereview.
21.164 Indecidingthemostappropriatewaytoconductthereview,VCATshouldalsoconsultthosepeoplewhowerepartiestotheoriginalapplication.Iftherepresentedpersonisunabletoexpressapreferenceabouttheformatofthereview,VCATshouldonlydealwithmatters‘onthepapers’whereitissatisfiedthatahearingisunnecessary.Greaterusecouldbemadeoftelephoneandvideolinkreviews.
21.165 Subjecttothecommentsbelowaboutchangestotheappealprocess,theCommissionagreeswithVCAT’ssubmissionthatrehearingsareunnecessarybecausetheyduplicatethereassessmenthearingprocess.200Therehearingandreassessmentprocessescouldbemerged.Ifthisstepistakenitshouldbepossibleforarepresentedperson,oranyotherpersonwithsufficientinterest,toseekareviewofaGuardianshipListorderatanytime.
RECOMMENdaTIONSReview of orders
382.NewguardianshiplegislationshouldrequireVCATtoreviewallongoingpersonalguardianshipandfinancialadministrationordersatregularintervalsdeterminedbyVCAT,whichshouldordinarilybenotlessthanannuallyforpersonalguardianshipordersandnotlessthaneverythreeyearsforfinancialadministrationorders.
383.ThedecisiontoconductareviewhearingshouldnotbedependentontherepresentedpersonorotherinterestedpeoplerequestingareviewhearingfromVCAT.
384.VCATshouldassessthemostappropriatemeansforconductingeachreviewbyattemptingtocontacttherepresentedpersonandbyconsideringwhether:
(a) afullreviewhearingisnecessary
(b) themattercanbedealtwithbyatelephonehearing
(c) themattercanbedealtwith‘onthepapers’basedontheinformationavailabletoVCAT.
385.VCATshouldalsoinformthosepeoplewhowerepartiestotheoriginalapplicationaboutthependingreviewandconsidertheirresponseswhendeterminingthemostappropriatemeansforconductingthereview.
386.Whentherepresentedpersonisunabletoexpressapreferenceabouttheformatofthereview,VCATshouldonlydealwithmatters‘onthepapers’whereitissatisfiedthatahearingisunnecessary.
200 SubmissionCP80(VictorianCivilandAdministrativeTribunal).
499
applications for unscheduled reviews21.166 Therepresentedpersonshouldhavearighttoseekreviewofanorderatanytime.The
summarydisposalpowersinsection75oftheVCATActaresufficienttoenabletheGuardianshipListtorespondadequatelytopeoplewhopersistentlyapplyforarevieweventhoughtheircircumstanceshavenotchanged.AninterestedpersonshouldbepermittedtoseekreviewofanorderatanytimewiththeleaveofVCAT.
21.167 IninstanceswhereVCATdismissesarepresentedperson’sapplicationforreviewofanorderbecauseoflackofevidenceofchangedcircumstancessincetheorderwasmade,VCATshouldrefertherepresentedpersontoorganisationsthatmightassistthemtogatherevidenceinsupportoftheapplication.
RECOMMENdaTIONSApplications for unscheduled reviews
387.ArepresentedpersonshouldbepermittedtoseekreviewofanordermadebytheGuardianshipListatanytime.
388.ApersonwithaninterestintheaffairsofarepresentedpersonshouldbepermittedtoseekreviewofanordermadebytheGuardianshipListatanytimewiththeleaveofVCAT.
389.WhereanapplicationforanunscheduledreviewbyarepresentedpersonisrefusedbecauseVCATconcludesthatthereisinsufficientevidenceuponwhichtoreviewtheorder,VCATshouldadvisetherepresentedpersonoforganisationsthatmightassistthemtogatheradditionalevidence.
appeals21.168 Asalreadynoted,itispossibleforapartytoproceedingsintheGuardianshipListto
invoketherighttoappealtotheSupremeCourtonaquestionoflaw.ThisrightisrarelyexercisedinGuardianshipListmatters,nodoubtbecauseofthecostsanddelayassociatedwithSupremeCourtappeals.
21.169 InviewoftheissuesatstakeinGuardianshipListproceedings—mattersthataffectpeople’s‘autonomyandcapacitytomanagetheirlives’—itissurprisingthatthereisnogeneralrightofappealfromordersappointingaguardianoranadministrator.BeforeVCATassumedjurisdictioninmattersundertheG&AAct,therewasageneralrightofappealfromordersoftheGuardianshipandAdministrationBoardtotheformerVictorianAdministrativeAppealsTribunal.201ItispossibletoappealfromanydecisionsoftheMentalHealthReviewBoard.202
21.170 TherehearingprovisionsintheG&AActaremostlikelyintendedtobeasubstituteforageneralrightofappeal.WhilearehearingisquickerandcheaperthanappealingtotheSupremeCourtundersection148oftheVCATAct,itdoesnotprovidethesamedisciplineasoverturninganincorrectdecisiononappealandnorhasitproducedausefulbodyofcaselawabouttheG&AAct.Itisusefulforalljudicialofficersandtribunalmemberstobesubjectedtoregularscrutinybyahigherauthority,especiallywhentheymakediscretionarydecisionsthatalterpeople’slives.
201 Thisrightwasprovidedforins67oftheGuardianship and Administration Board Act 1986(Vic)andwasrepealedbys129(3)(a)oftheTribunals and Licensing (Miscellaneous Amendment) Act 1998 (Vic).
202 Mental Health Act 1986(Vic)s120.
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21Chapter 21 VCAT21.171 Forthisreason,theCommissionbelievesitwouldbedesirablefortheAttorney-
GeneralandthePresidentofVCATtoconsideramechanismforconductingappealsinGuardianshipListmatters.SomeotherlargeAustraliantribunalshaveinternalappealsdivisions,whichappeartobeacost-effectivemeansofdeterminingappealsbyabodywithexpertiseinthematterinquestion.203
21.172 VCAThasrecentlyconsideredtheestablishmentofaninternalappealsdivision.TheformerVCATPresident,JusticeKevinBell,supportedthisproposalinhis2009reviewofVCAT.204ThecurrentPresident,JusticeIainRoss,hasexpressed‘reservations’aboutthisproposalbecauseofthe‘significantriskofincreasedcostanddelay’andbecausetheproposalseems‘antitheticaltothenotionofVCATasaproviderofquickandaffordablejustice’.205WhiletheseconsiderationsareclearlyrelevantwhenconsideringVCAT’sbroaderroleasa‘disputeresolutionservice’,206theyseemlessrelevantwhenconsideringGuardianshipListmattersandservetohighlighthowdifferenttheGuardianshipLististoothermattersthatfallwithinVCAT’sjurisdiction.
21.173 OneofthemostimportantshortcomingsofcurrentVictorianguardianshiplawisthelackofausefulbodyofcaselawthatexplainshowbroadly-phrasedstatutoryprovisionsarebeinginterpretedandwhichindicateshowthemanydiscretionarypowersintheG&AActarebeingapplied.VCAThasnottakenanyactivestepstoproduceandpublishanextensivebodyofcaselaw,especiallyinthepastfewyears.ThenewguardianshiplegislationproposedbytheCommissionwillalsobebroadlyphrasedandcontainnumerousdiscretionarypowers.Itappearshighlyunlikelythattherewillbeanyhelpfulelaborationofthatlegislationwithoutanaccessibleandactiveappealsmechanism.TheCommissionurgestheAttorney-GeneralandthePresidentofVCATtoconsiderthismatterwhenevaluatingtheneedforamodernmechanismforconductingappealsinGuardianshipListmatters.
21.174 ThereshouldcontinuetobearightofappealtotheSupremeCourtfromGuardianshipListmattersonquestionsoflaw,regardlessofwhetherVCAThasitsowninternalappealsmechanism.Whileitishighlylikelythatthisavenueofappealwillcontinuetoberarelyusedbecauseofcost,itisclearlydesirablethatthestate’shighestcourtcontinuestoplayasupervisoryruleinGuardianshipListmatters.
21.175 TheCommissionbelievesthattherehearingprovisionsintheG&AActshouldberetainediftherecontinuestobenointernalappealsmechanismatVCAT.Whileitispossibletomergetheexistingreassessmentandrehearingprovisions,thereviewsproposedbytheCommissionareintendedtoprovideanopportunitytoreconsideranorderifcircumstanceshavechanged.Theyarenotdesignedtobeaprocessbywhichapersoncantestthecorrectnessofanordertheybelievetobeincorrect.IntheabsenceofaninternalappealsmechanismatVCAT,rehearingswouldcontinuetobeameansbywhichpeoplecantestthecorrectnessofanorderwithwhichtheydisagree.
203 Administrative Decisions Tribunal Act 1997(NSW)ch7pt1;Queensland Civil and Administrative Decisions Tribunal Act 2009 (Qld)ch2div4.204 Bell,aboven4,55–60.205 Ross,aboven5,51.206 Ibid2.
501
RECOMMENdaTIONSAppeals
390.TheAttorney-GeneralandthePresidentofVCATshouldconsiderthemeritsofestablishinganinternalappealsdivisionwithinVCATtohearappealsfromGuardianshipListmatters.
391.IfanappealsdivisionofVCATisestablished,itshouldbepossibletoappealfromanorderoftheGuardianshipListasofrightonaquestionoflawandwithleavewhenchallengingthemeritsoftheorder.
392.IfanappealsdivisionofVCATisestablished,newguardianshiplegislationshouldnotreproducetheexistingprovisionsintheGuardianship and Administration Act 1986(Vic)concerningrehearings.
393.IfanappealsdivisionofVCATisnotestablished,newguardianshiplegislationshouldreproducetheexistingprovisionsintheGuardianship and Administration Act 1986(Vic)concerningrehearings.
394.ItshouldcontinuetobepossibletoappealtotheSupremeCourtfromordersmadeintheGuardianshipListonquestionsoflaw.
CONfIdENTIaLITy ISSuES21.176 Therearetwopossiblereasonsforthecurrentdifficultiesassociatedwithaccesstothe
confidentialandsensitivematerialsthatarefiledwithVCATinmanyGuardianshipListmatters:
• ThereisalackofclarityinsomeinstancesaboutwhoarethepartiestosomeGuardianshipListapplications.
• Theprovisionsinsection146oftheVCATActconcerningaccesstothematerialsonallVCATproceedingfilesdonotappeartohavebeendesignedwithGuardianshipListmattersinmind.
21.177 Otherthaninexceptionalcircumstances,peoplewhoarepartiestoanyformoflitigationusuallyhaveaccesstoallofthematerialsthatthecourtortribunalconsidersinreachingadecision.Thisrightultimatelyflowsfromthecourtortribunal’snaturaljusticeobligationtoconductafairhearing.TheCommissiondoesnotproposeanychangestoVCAT’snaturaljusticeobligationsinGuardianshipListmatters.However,itdoesproposethatVCATtakethetimetoidentifythepartiestoanyGuardianshipListmatterssothatthesepeoplecanbeclearlydistinguishedfrompeoplewhoareentitledtonoticeofahearing.
21.178 WhilepartiesshouldcontinuetohaveaccesstoallofthematerialsthatVCATconsidersinreachingadecision,otherthaninexceptionalcircumstances,peoplewhoareentitledtonoticeofahearingshouldnotenjoysucharight.TheyshouldbesubjecttothesamerulesasmembersofthepublicwhenseekingaccesstoaVCATproceedingfile.VCATshouldtakethetimeatthecommencementofeveryhearingtoindicatethosepeoplewhoarepartiestotheproceedingandtoexplaintothosepeopletheirrightsasaparty.
21.179 TheCommissionbelievesthatVCATfilesinGuardianshipListmattersshouldbeclosedtothepublicunlessVCATdeterminesotherwise.TherewasnogeneralrightofaccesstoGuardianshipBoardfilesundertheGuardianship and Administration Board Act 1986(Vic).Itdoesnotappearthatthoughtwasgiventothemattersthatareusually
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21Chapter 21 VCATincludedinGuardianshipListfiles,suchasmedicalreports,whentheVCATActwasdevised.TheissuesofpublicdisclosurethatappearedtohaveinfluencedthegeneralrightofaccesstoVCATproceedingfilesinsection146(3)oftheVCATActshouldnotapplyinGuardianshipListmatters.
21.180 Itisnotinthepublicinterestforallmembersofthecommunitytohaveaccesstohighlysensitivematerialaboutapersonwhomightbefoundtolackthecapacitytomaketheirowndecisionsbecauseofadisability.TheCommissionnotesthatVCATsupportsthisrecommendation.207
21.181 VCATshouldadviseanindividualororganisationholdinginformationaboutapersonoftheimplicationsofproducingthatinformation.ApersonwhoprovidesconfidentialinformationtoVCATshouldbeabletorequestthatitnotbeprovidedtosomeorallofthepartiestotheproceeding,andprovideajustificationforthisrequest.VCATshoulddeterminerequestsofthisnatureinthelightofitsnaturaljusticeobligationsinsection97oftheVCATAct.
RECOMMENdaTIONSAccess to documents in VCAT files
395.Section146(3)oftheVictorian Civil and Administrative Tribunal Act 1998 (Vic)shouldbeamendedtoprovidethatitdoesnotapplytoGuardianshipListmatters.
396.Toavoiddoubt,newguardianshiplegislationshouldspecifythatpeopleentitledtonoticeofaGuardianshipListproceeding,whoarenotpartiesinaproceeding,donothavearightofaccesstodocumentsrelatingtotheproceedingheldbyVCAT.
Information provided to VCAT
397.IfVCATorthePublicAdvocaterequestswritteninformationfromanindividualororganisationtoassistwithaguardianshiphearingorinvestigation,VCATorthePublicAdvocatemustadvisethepersonholdingtheinformationabouttheusethatcouldbemadeofthatinformation.Theadvicemustbegivenatthetimetheinformationisrequestedandincludeadviceabout:
(a) thepeoplewhomightbegivenaccesstothatinformation
(b) theproceduretofollowiftheholderoftheinformationrequeststhatsomeoralloftheinformationbewithheldfromsomeorallofthepartiestotheproceeding.
398.ApersonororganisationmayrequestthatinformationprovidedtoVCATinrelationtoaGuardianshipListproceedingnotbedisclosedtosomeorallpartiestotheproceeding.VCATmustdeterminethisrequestaccordingtolawbeforeprovidinganyoftheinformationinquestiontoanyofthenominatedparties.
adVICE fuNCTION21.182 TheG&AActcurrentlyenablesguardians,enduringguardians,administratorsand
thepersonresponsibletoseekadvicefromVCATaboutanymatterthatfallswithinthescopeoftheirappointment.208VCATmayalsodeliveradviceonitsownmotiontoenduringguardians,thepersonresponsibleandadministrators,209butnottoguardians.
207 SubmissionCP80(VictorianCivilandAdministrativeTribunal).208 Guardianship and Administration Act 1986(Vic)ss30(1),35E(1),42I(1),42W(1),55(1).209 Ibidss35E(3),42I(4),42W(4),55(4A).
503
21.183 TheCommissionbelievesthattheseareusefulpowersthatshouldbereplicatedandextendedinnewguardianshiplegislation.VCATshouldhavethepowertoofferadviceonapplication,oronitsownmotion,tobothtribunal-appointedandpersonallyappointedsubstitutedecisionmakers,co-decisionmakersandsupporters.
RECOMMENdaTIONSAdvice function
399.NewguardianshiplegislationshouldpermitVCATtoprovideadvicetoanysubstitutedecisionmaker,co-decisionmakerorsupporteraboutthemannerinwhichtheyshouldorshouldnotexercisetheirpowers.
400.ThispowershouldbeexercisableontheapplicationofanypersonwithaninterestintheaffairsoftherepresentedpersonorbyVCATonitsownmotion.
OThER MaTTERS
accessibility for Indigenous Victorians21.184 TheissueofaccessibilityofguardianshiptoIndigenousVictorianshasbeenidentified
inanumberofsubmissionsandconsultations.210Recentacademicworkintheareahassuggestedthat,whilethereisasignificantgapinresearchinthearea,itispossibleguardianshiplawsmaynotbemeetingIndigenouspeople’sneedsbecauseof‘culturalbarriers,suchasthemisfitbetweenthelegislationandIndigenousconceptssuchasculturalobligation’.211
21.185 VCAThasacknowledgedthatitisunder-utilisedgenerallybyIndigenouscommunitiesandiscurrentlyconsultingfurtheronwaystoidentifyaccessbarriers.212OneoptionidentifiedintheOne VCATreviewwastheintroductionofaKooriLiaisonOfficer.213TheCommissionbelievesthatthiscouldbeparticularlybeneficialinrelationtosensitive,personalareassuchasguardianship.TheproposalforaKooriliaisonofficerwassupportedinanumberofsubmissions.214
21.186 TheCommissionthereforerecommendsthataspartofVCAT’seffortstoimproveaccessibilityofthetribunaltoIndigenousVictorians,apositionofKooriLiaisonOfficershouldbeestablishedatVCAT,andassistwithGuardianshipListmatterswhereappropriate.
RECOMMENdaTIONAccessibility for Indigenous Victorians
401.VCATshouldestablishaKooriLiaisonOfficerpositiontoassistwithGuardianshipListmatterswhereappropriate.
210 Foreg,SubmissionsCP19(OfficeofthePublicAdvocate)andCP73(VictoriaLegalAid).211 NatalieClements,JayneClaptonandLesleyChenoweth,‘IndigenousAustraliansandImpairedDecision-MakingCapacity’(2010)45(3)
Australian Journal of Social Issues383,390.212 Transforming VCAT: Promoting Excellence,aboven86,17.213 Bell,aboven4,25.214 SubmissionsCP22(Alzheimer’sAustraliaVic),CP33(EasternHealth)andCP57(AgedCareAssessmentServiceinVictoria).