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21Chapter 21VCAT

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Current�law� 466

Other�jurisdictions� 475

Community�responses� 477

The�Commission’s�views�and�conclusions� 484

Victorian Law Reform Commission – Guardianship: Final Report 24466

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.


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.


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].


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.


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).


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).


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).


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).


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).

483

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.


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.

485

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.


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.

487

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.


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


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.


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.


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.


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.


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.


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


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).

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