Introduction 350 Current law 351 Community responses 353 ... · Chapter 16 A new registration...

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16Chapter 16A new registration scheme

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CONTENTSIntroduction� 350

Current�law� 351

Community�responses� 353

The�Commission’s�views�and�conclusions� 362

Victorian Law Reform Commission – Guardianship: Final Report 24350

16Chapter 16 A new registration scheme

INTROduCTION16.1 Inthischapter,theCommissionrecommendstheestablishmentofanonlineregister

ofallappointmentsofsubstitutedecisionmakers,co-decisionmakersandsupporters.TheonlineregisterwouldbeanimportantstepinthemodernisationofVictoria’sguardianshiplaws,andwouldactivelyencouragepeopletoappointotherstoassistthemwithdecisionmakingiftheneedaroseinthefuture.

16.2 TheCommission’sproposalsforanonlineregisterofappointmentscomplementtheVictorianParliamentLawReformCommittee’s(ParliamentaryCommittee)recommendationin2010thattherebearegisterforpowerofattorneydocuments.1

16.3 TheCommissionfoundthatthereiswidespreadsupportwithinthecommunityfortheestablishmentofanonlineregister.2TheParliamentLawReformCommitteereachedasimilarconclusion.3

16.4 TheCommissionalsobelievesthatthereisastrongpublicinterestinthegovernmentprovidingfinancialsupportforanonlineregister.RegistrationwillpromoterecognitionandacceptanceofbothpersonalandVCATdecision-makingappointments.Itwillalsoassistinlocating,verifyingandvalidatingpersonalappointments.4

16.5 AstheCommissionhassoughttoemphasisethroughoutthisreport,thepublicsystemofappointingsubstitutedecisionmakersforpeoplewithimpaireddecision-makingabilitywillstruggletocopewithdemandoverthenextfewdecadesunlessmanypeoplechoosetomaketheirownappointmentswhentheyhavethecapacitytodoso.Inaddition,personalautonomyandresponsibilityarepromotedwhenpeopleareencouragedtomakeplansfortheirownassisteddecision-makingneeds.TheCommissionbelievesanonlineregisterwillencouragetheuseofpersonalappointments.

16.6 Thischapterdealswithanumberofimportantissuesassociatedwithonlineregistrationofsubstituteandassisteddecision-makingappointments.Theyare:

• whetherregistrationiscompulsory

• whoholdstheregister

• whatinformationisontheregister

• thetimingofregistration

• howtosearchtheregisterandsafeguardprivacy

• theeffectofregistration

• theeffectoffailingtoregister

• whoisnotifiedwhenappointmentsareactivated

• thecostofregisteringanappointmentandofsearchingtheregister

• transitionalarrangementsforexistingpersonalappointments.

1 Seerecommendation66oftheVictorianParliamentLawReformCommitteeInquiryintoPowersofAttorneyfinalreport:LawReformCommittee,ParliamentofVictoria,Inquiry into Powers of Attorney (2010)232–6.TheGovernmentResponseindicates‘supportinprinciple[for]thedevelopmentandimplementationofaregisterforPOAdocumentstohelpestablishtheexistence,locationandvalidityofPOAs’:VictorianGovernment,Government Response to the Parliament of Victoria Law Reform Committee Inquiry into Powers of Attorney Report(2011)30.

2 Seecommunityresponsestothisproposallaterinthischapter.3 VictorianGovernment,Government Response to the Parliament of Victoria Law Reform Committee Inquiry into Powers of Attorney Report

(2011)230(‘Government Response to the Parliament of Victoria Law Reform Committee Inquiry into Powers of Attorney Report’).4 Ibid226–234.

351

16.7 TheCommissionestablishedaRegistryWorkingGrouptoassistinidentifyingissuesassociatedwiththeestablishmentofanonlineregisterofappointments.ThegroupcomprisedrepresentativesoftheVictorianRegistryofBirths,DeathsandMarriages,StateTrusteesLimited,theAustralianBankers’Association,ANZTrusteesLimited,thePublicAdvocate,theAustralianMedicalAssociation,theLawInstituteofVictoriaandtheRoyalDistrictNursingService.5

16.8 WhiletheCommissionacknowledgesthesignificantcontributionsmadebythemembersofthisgroup,itisimportanttoemphasisethattherecommendationsinthischapteraresolelytheworkoftheCommission.Theserecommendationshavenotbeenendorsedbythemembersofthegrouportheorganisationstowhichtheybelong.

16.9 TheCommissionurgestheAttorney-GeneraltoconsiderreconveningthegroupinordertogainthebenefitoftheirexpertiseiftheVictorianGovernmentdecidestoestablishanonlineregisterofappointments.

CuRRENT Law16.10 ThereisnolawinVictoriawhichrequirespeopletoregistersubstitutedecision-making

appointments.Thereisalsonopracticalmeansofregisteringappointmentsvoluntarily.

16.11 Someotherjurisdictionshavedevelopedregistrationschemesforsubstitutedecision-makingappointments.AlthoughtheCommissionhasbeenunabletoidentifyanyjurisdictionwithanonlineregister,paper-basedregistrationschemesinotherjurisdictionsprovideusefulguidance.

OThER auSTRaLIaN juRISdICTIONS16.12 InmostAustralianjurisdictionsitismandatorytoregisterpowersofattorneyfor

dealingswithlandonly.6IntheNorthernTerritoryitisalsomandatorytoregisterenduringpowersofattorney(financial).7

16.13 Tasmaniaistheonlyjurisdictioninwhichitismandatorytoregisterpersonalappointmentsofsubstitutedecisionmakers.InTasmania,apowerofattorneymustberegisteredwiththeRegistrarofTitlestobeactivated.Anyactiontakenbyanattorneyhasnolegaleffectunlessthepowerofattorneyhasbeenregistered.8Thiscurrentlycosts$126.70.9

16.14 AnappointmentofanenduringguardianmustberegisteredwiththeTasmanianGuardianshipandAdministrationBoard.10Nofeeischargedtoregisteranenduringpowerofguardianship.11Onceregistered,itbecomespubliclyaccessible.

5 TheRegistryWorkingGroupparticipantswereasfollows:HelenTrihas;AlistairCraig;DianeTate;MerciaChapman;ColleenPearce,andJohnChesterman;ElizabethMuhlebachandGeorgeJoseph;LauraHelmandKathyWilson;andLeonieSchweenrespectively.

6 Powers of Attorney Act(NT)s8;Powers of Attorney Act 2003(NSW)s52;Land Title Act 1994(Qld)s132;Land Titles Act 1925(ACT)s130(2);Powers of Attorney Act1980 (NT)s13;Real Property Act 1886(SA)ss155–6;Transfer of Land Act 1893(WA)s143.

7 Powers of Attorney Act 1980 (NT)s13.8 Powers of Attorney Act 2000 (Tas)ss4,9,16.InVictoria,thereusedtobearequirementthatageneralpowerofattorneywasregistered

butthiswasrepealed:Instruments Act 1958(Vic)s105,asrepealedby Instruments (Powers of Attorney) Act 1980(Vic)s2.Therequirementthatpowersofattorneydealingwithrealpropertyareregisteredhasalsobeenrepealedbutpreservedinrelationtopowerscreatedbefore1July1980: Instruments Act 1958(Vic)s105(2).

9 ThePowers of Attorney Act 2000 (Tas)sch2notesthefeeforregistrationis$90.50;however,thefeescontainedinlegislationadministeredbytheRecorderofTitleshaveincreasedto$126.70andtookeffecton1July2011:DepartmentofPrimaryIndustries,Parks,WaterandEnvironment(Tasmania)Fees(14October2011)<http://www.dpiw.tas.gov.au/inter-nsf/WebPages/JGAY-53F2VU?open>.

10 Guardianship and Administration Act 1995(Tas)s32(2)(d).IntheACTandQueensland,itispossibletoregisterenduringpowersofattorneythatgivewelfareandmedicaldecision-makingpowersbutthereisnorequirementtodoso:Powers of Attorney Act 2006(ACT)s29;Powers of Attorney Act 1998(Qld)s60.

11 SeniorsRightsVictoriaendorsesthispractice:SubmissionCP71(SeniorsRightsVictoria).


16Chapter 16 A new registration scheme16.15 TheTasmaniansystemofmandatoryregistrationhasbeeninplaceformanyyears,

andapproximately13,500enduringguardianshipappointmentshavebeenregisteredwiththeTasmanianGuardianshipandAdministrationBoard.12ThePresidentoftheTasmanianGuardianshipandAdministrationBoardhastoldtheCommissionthatshebelievestheTasmanianexperiencewithmandatoryregistrationhasbeenpositiveandassiststheBoardwithitswork.13

ENgLaNd aNd waLES16.16 InEnglandandWales,itismandatorytoregisterlastingpowersofattorneyforboth

personalandfinancialmatters14withthePublicGuardian.15ThePublicGuardianalsomaintainsaregisterofordersmadebytheCourtofProtectionundermentalcapacitylawsappointingsubstitutedecisionmakers(knowasdeputies).16Theregistersarepaper-basedandthereisnocapacitytoconductonlinesearches.

16.17 Alastingpowerofattorneycanberegisteredbythedonorwhentheyhavecapacity,orbytheattorneyatanytimepriortoexercisingtheirpowers.Registrationisexpensive—itcosts£130toregisteranappointment.17Peoplewithlimitedincomesareentitledtoareducedfee.18

16.18 Someinformationontheregisterispubliclyaccessible.Anypersoncanapplytosearchtheregister.19Thesearchfeeis£25.20Informationthatwillberevealedbyaninitialsearchoftheregisterincludes:

• thedateofbirthofthedonor/persontheorderisabout

• thenamesofanydeputies21orattorneys

• thedatetheinstrumentwasmade,registered,revokedorcancelled(ifapplicable)

• whethertheinstrumentrelatesto‘propertyandaffairs’or‘personalwelfare’

• whetherdeputies/attorneyswereappointedjointlyorjointlyandseverally

• whetherthereareconditionsorrestrictionsontheinstrument(butnotdetailsabouttheconditionsorrestrictions).22

16.19 Ifaninitialsearchdoesnotprovidealltheinformationneeded,apersonmayapplyforadditionalinformationusinga‘secondtier’searchrequest.Thepersonmustoutlinewhatfurtherinformationtheyareseeking,thereasonwhytheyareseekingit,andthereasontheyareunabletoobtainthisinformationdirectlyfromthedonor.ThePublic

12 Asat30March2011:consultationwithAnitaSmith—President,GuardianshipandAdministrationBoard,Tasmania(21February2011).13 ConsultationwithAnitaSmith—President,GuardianshipandAdministrationBoard,Tasmania(21February2011).14 Mental Capacity Act 2005(UK)c9,s9(2)(b).‘Enduringpowers’,astheywerepreviouslycalled,madeundertheEnduring Powers of Attorney

Act 1985(UK)c29arestillvalid,butsince1October2007,onlylastingpowersofattorneycanbemade.SeeMental Capacity Act 2005(UK)c9,s66.

15 Mental Capacity Act 2005(UK)c9,sch1para4.16 ThesearetheEnglishandWelshequivalentsofVCATordersappointingaguardianoranadministrator: ibids58(1)(b).NotetheOfficeofthe

PublicGuardianisnotappointedtothisroleintheUK.17 OfficeofthePublicGuardian(UnitedKingdom),LPA120: EPA and LPA fee, exemption and remission guidance(1October2011),1<http://

www.justice.gov.uk/global/forms/opg/lasting-power-of-attorney/index.htm>.18 Apersondoesnothavetopayanyfeesiftheyarereceivinganyofanumberofbenefits,includingincomesupport,employmentandsupport

allowanceandhousingortaxcreditsorbenefits,andhasnotbeenawardeddamagesofmorethan£16,000:OfficeofthePublicGuardian(UnitedKingdom),LPA120: EPA and LPA fee, exemption and remission guidance(1October2011),2<http://www.justice.gov.uk/global/forms/opg/lasting-power-of-attorney/index.htm>.

19 OfficeofthePublicGuardian(UnitedKingdom),OPG100 - Application for a search of the Public Guardian Registers(September2011)<http://sitesearch.justice.gov.uk.openobjects.com/kb5/justice/justice/results.page?qt=OPG+100>.

20 MinistryofJustice(UnitedKingdom),Office of the Public Guardian: Fees 2011/2012(2011)43.21 Thepersonappointedtomakedecisionsonbehalfofapersonwholackscapacitytomakedecisions:Mental Capacity Act 2005(UK)s16(2).22 Formoreinformationsee:OfficeofthePublicGuardian(UK),LPA 109 Office of the Public Guardian Registers(September2011),7–8<www.

justice.gov.uk/downloads/global/forms/opg/lpa109.pdf>.

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Guardianhasadiscretionarypowertogranttherequest,takingintoaccountmatterssuchastherelationshipbetweenthedonorandthepersonmakingtherequest,theinformationrequestedandthereasonsaccesswasrequested.Noadditionalfeeischargedfora‘secondtier’search.23

16.20 ThereisalsoarequirementinEnglandandWalesthatparticularpeoplebenotifiedwhenanapplicationismadetoregisterapowerofattorney.Thesepeoplearethepersonwhomadetheappointment,anyattorneysandanypeoplewhohavebeennominatedtoreceivenotification.24

16.21 Thepeoplewhoarenotifiedhavearighttoobjecttoanapplicationforapowerofattorneytoberegistered.Objectionsmaybemadeifoneofanumberofevents,specifiedbythelegislation,hasoccurredthathavetheeffectofrevokingthepowerofattorney.25Theseincludethat:

• thepowerofattorneyisnotvalid

• thedonorrevokedthepowerofattorneywhentheyhadthecapacitytodoso

• fraudorunduepressurewasusedtoinducethedonortomaketheappointment

• theattorneyproposestobehaveinawaythatwouldcontravenetheirauthorityorwouldnotbeinthedonor’sbestinterests.26

SCOTLaNd16.22 InScotland,itisalsocompulsorytoregisterenduringpowersofattorneyforboth

financialandwelfarematters(calledcontinuingandwelfare).27Theregistrationfeeis£70.28ApowerofattorneymustberegisteredwiththePublicGuardianbeforeitcancomeintoeffect.29

16.23 IfthePublicGuardianissatisfiedtheattorneyispreparedtoaccepttheappointment,acertificateofregistrationisissuedtotheattorney.Thismaytobeusedtoconfirmthevalidityoftheirpowers.30

16.24 TheintentionofcompulsoryregistrationinScotlandistomakeinformationaboutthepowerspubliclyavailable.31Thedetailsofthepersonwhomadetheappointmentandtheattorneyareenteredinthepublicregister.32Thefeetosearchtheregisteris£15.33

16.25 TheScottishlegislationalsoplacesadutyonattorneysandguardianstokeeprecordsoftheexerciseoftheirpowers.34

COmmuNITy RESpONSESONLINE REgISTRaTION16.26 Intheconsultationpaper,theCommissionproposedanonlineregistrationscheme

forpersonalappointmentsthatcouldalsoincludeadvancedirectives.During

23 DirectGov,The Office of the Public Guardian and the Registers of Attorneys and Deputies(20December2011)<http://www.direct.gov.uk/en/Governmentcitizensandrights/Mentalcapacityandthelaw/Mentalcapacityandplanningahead/DG_185924>.

24 Mental Capacity Act 2005(UK)c9,sch1paras6–9.25 Ibidsch1paras13–14.26 SeeCourtofProtection,Application to object to the registration of a Lasting Power of Attorney (LPA) (9December2011)<http://www.

justice.gov.uk/global/forms/opg/lasting-power-of-attorney/index.htm>.27 Adults with Incapacity (Scotland) Act 2000(Scot)asp4,ss15,16.28 OfficeofthePublicGuardian(Scotland),Power of Attorney<http://www.publicguardian-scotland.gov.uk/whatwedo/power_of_attorney.

asp>.29 Adults with Incapacity (Scotland) Act 2000(Scot)asp4,s19.30 Ibids19(2)(b).31 Ibids19;Explanatory Notes, Adults with Incapacity (Scotland) Act 2000(Scot)[75].32 Adults with Incapacity (Scotland) Act 2000(Scot)asp4,s19(2)(a);Explanatory Notes, Adults with Incapacity (Scotland) Act 2000(Scot)[76].33 OfficeofthePublicGuardian(Scotland), Table of Fees(1April2010)<http://www.publicguardian-scotland.gov.uk/whatwedo/fees.asp>.34 Adults with Incapacity (Scotland) Act 2000(Scot)asp4,ss21,65.


16Chapter 16 A new registration schemeconsultations,theCommissionraisedthepossibilitythattheregistercouldalsoincludeVCATappointmentsofguardiansandadministrators.

16.27 Theviewsofpeoplewhorespondedtothisproposalarerecordedatsomelengthbecauseitisimportanttoacknowledgethewidespreadinterestinandsupportfortheestablishmentofanonlineregister.35Manypeoplethoughtthatonlineregistrationwouldimprovetheeffectivenessofpersonalappointmentsbyencouragingtheiruse,bydiscouragingfraudandbyprovidingthirdpartieswithmoreconfidencetorelyuponthem.36ManypeoplealsosupportedtheinclusionofVCATappointmentsofsubstitutedecisionmakersintheregister.37

16.28 Anumberofpeopleandorganisationsconsideredthepossibleadvantagesanddisadvantagesofanonlineregistrationscheme.38TheTrusteeCorporationsAssociationofAustraliasupportedthecreationofaonlineregister,suggestingthat:

theadvantagesofproofofvalidityandspeedofverificationcouldbeexpectedtooutweighcostandprivacyconcerns,providedregistrationandaccessfeesareminimalandaccessisappropriatelycontrolled.39

16.29 TheCollegeofNeuropsychologistsexpressedtheviewthatanonlineregisterwouldenablehealthcareprofessionalsandserviceproviderstobetteridentifythosewiththeauthoritytomakedecisions.40

16.30 TheAustralianPsychologicalSocietyconsideredanonlineregistrationsystem

wouldgreatlyenhancethecapacityofhealthandcommunityproviderstosupporttheirclients,particularlyinhealthcaresituationswherethereistheneedtoaddresstheseissuesinatimelyway.41

16.31 VictoriaPolicesuggestedthat24-houraccesstoanonlineregisterwouldassistthepolicetoquicklyascertainwhoisauthorisedtoprovidedecision-makingsupportforaperson.42

16.32 StateTrusteesidentifiedanumberofbenefitsofanonlineregistrationsystemincluding:

• reducingtheriskofpersonsrelyingoractingoninvaliddocuments

• beingabletoverifywhetheranenduringpowerexistsandiscurrent

• providingtheabilitytoascertainthescopeofthepower,andwhetherithasbeenactivated

• providingscopeformonitoringandimposingaccountabilitiesonappointees

35 Foreg,consultationswithVictorianRegistryofBirths,DeathsandMarriages(16February2011)Alzheimer’sAustraliaVicandroundtablewithpeoplecaringforparentswithdementia(8March2011);SubmissionsCP20(EpworthHealthCare)andCP59(CarersVictoria).

36 Foreg,consultationswithAgedCareAssessmentServiceinVictoria(28February2011),RoyalDistrictNursingService(9March2011),TrusteeCorporationsAssociationofAustralia(15March2011),AustralianBankers’Association(16March2011),serviceprovidersinShepparton(inpartnershipwithRegionalInformation&AdvocacyCouncil)(22March2011),VictorianSectionoftheCollegeofClinicalNeuropsychologistsoftheAustralianPsychologicalSociety(23March2011)andmetropolitancarers(inpartnershipwithCarersVictoria)(24March2011).SeealsoSubmissionsCP16(VictoriaPolice),CP19(OfficeofthePublicAdvocate),CP23(DrKristenPearson),CP28(FinancialOmbudsmanServiceLimited),CP33(EasternHealth),CP58(TheAustralianPsychologicalSociety),CP61(DisabilityServicesCommissioner),CP70(StateTrusteesLimited),CP71(SeniorsRightsVictoria),CP73(VictoriaLegalAid),CP75(FederationofCommunityLegalCentres(Victoria)),CP77(LawInstituteofVictoria),CP78(MentalHealthLegalCentre)andCP80(VictorianCivilandAdministrativeTribunal).

37 ConsultationswithVictorianRegistryofBirths,DeathsandMarriages(16February2011),RoyalDistrictNursingService(9March2011),metropolitancarers(inpartnershipwithCarersVictoria)(24March2011),VictorianSectionoftheCollegeofClinicalNeuropsychologistsoftheAustralianPsychologicalSociety(23March2011)andCarersVictoria(15April2011);SubmissionCP70(StateTrusteesLimited).

38 ConsultationswithVictorianRegistryofBirths,DeathsandMarriages(16February2011),Alzheimer’sAustraliaVicandroundtablewithpeoplecaringforparentswithdementia(8March2011),MentalHealthLegalCentre(28April2011);SubmissionCP67(TrusteeCorporationsAssociationofAustralia),CP81(TheElderLawandSuccessionCommittee,LawSocietyofNSW).

39 SubmissionCP67(TrusteeCorporationsAssociationofAustralia).40 ConsultationwiththeVictorianSectionoftheCollegeofClinicalNeuropsychologistsoftheAustralianPsychologicalSociety(23March2011).41 TheAustralianPsychologicalSocietyexpressedthiscommentinrelationtoguardianshipandadministrationorders:SubmissionCP58(The

AustralianPsychologicalSociety).42 SubmissionCP16(VictoriaPolice).

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• providingtheabilitytodetermineatalaterdatewhetherfinancialtransactionsweremadebythedonorthemselves,orbytherelevantappointee.43

16.33 Itwasalsosuggestedthattheregistermighthelptoresolvedisputesbyclarifyingthenatureandextentofaperson’sauthoritytoactforsomeoneelse.44SeniorsRightsVictoriaarguedthataregistrationsystemcouldleadtoareductionintheincidenceofabusebypreventingpeoplefromrelyingoninvalidpowers.45

16.34 SomeorganisationsurgedtheCommissiontoconsiderwaysofprovidingforcommunitygroupswhomighthaveconcernsaboutordifficultyaccessinganonlineregistrationsystemincludingAboriginalcommunities,CALDcommunities,mentalhealthconsumersandtheelderly.46

16.35 Somewhoopposedtheestablishmentofanonlineregisterforpersonalappointmentssuggestedthatbecausepersonalappointmentsareaprivatematterthebureaucracyassociatedwitharegistermightdeterpeoplefrommakingthem.47

ThE hOLdER Of ThE REgISTER16.36 TheVictorianParliamentLawReformCommitteerecommendedthattheVictorian

RegistryofBirths,DeathsandMarriagesshouldmaintaintheregister.48Manypeopleandorganisationssupportedthisrecommendation.49

16.37 ManyotherpossibleholdersoftheregisterwereidentifiedinsubmissionsandduringconsultationsincludingStateTrustees,50theLandTitlesOfficeandVCAT.51

16.38 AlthoughthePublicAdvocatethoughtthattheVictorianRegistryofBirths,DeathsandMarriageswouldbeanappropriateregisteringauthorityforenduringpowers,shesuggestedthattheRegistrywouldneedtodevelophigher-levelpracticesarounddocumentinvigilationandabuserecognitionbecausetheseskillswouldbeimportantwhenadministeringthistypeofregister.52

16.39 TheTrusteeCorporationsAssociationofAustraliaexpressedasimilarviewtothePublicAdvocate,concludingthatalthoughtheRegistrywouldrequireadditionalresourcesandexpertisetotakeonthisrole,buildingonitsexistinginfrastructurewouldbelessexpensivethanestablishinganewagency.53

43 SubmissionCP70(StateTrusteesLimited).44 SubmissionCP28(FinancialOmbudsmanServiceLimited).45 SubmissionCP71(SeniorsRightsVictoria).46 SubmissionsCP73(VictoriaLegal)andCP78(MentalHealthLegalCentre).47 ConsultationwithAssociateProfessorNicholasTonti-Filipini(3May2011);SubmissionsCP2(StephanieMortimer),CP27(Catholic

ArchdioceseofMelbourne),CP49(RespectingPatientChoicesProgram—AustinHealth)andCP50(MargaretBrown).48 LawReformCommittee,ParliamentofVictoria,Inquiry into Powers of Attorney(2010)247–8(Inquiry into Powers of Attorney’).49 ConsultationswiththeVictorianRegistryofBirths,DeathsandMarriages(16February2011),MaxCampbell–AssociationofIndependent

Retirees(25March2011;SubmissionsCP19(OfficeofthePublicAdvocate),CP65(CouncilontheAgeingVictoria),CP67(TrusteeCorporationsAssociationofAustralia),CP73(VictorianLegalAid),CP75(FederationofCommunityLegalCentres(Victoria))andCP78(MentalHealthLegalCentre).

50 SubmissionCP70(StateTrusteesLimited).51 SubmissionsCP22(Alzheimer’sAustraliaVic),CP24(AutismVictoria),CP35(UrsulaSmith),CP37(MilduraBaseHospital),CP33(Eastern

Health)andCP73(VictoriaLegalAid).52 SubmissionCP19(OfficeofthePublicAdvocate).53 SubmissionCP67(TrusteeCorporationsAssociationofAustralia).



COmpuLSORy OR VOLuNTaRy REgISTRaTION16.40 TheVictorianParliamentLawReformCommitteerecommendedthatregistrationof

enduringpersonalappointmentsshouldbecompulsory.54Mostsubmissionssupportedcompulsoryregistration.55TheTrusteeCorporationsAssociationofAustraliasuggestedthatvoluntaryregistrationwouldprovidelittlesecuritytothirdpartiesbecausetheywouldnotknowifanappointmentisvalidandcurrent.56VictoriaLegalAidexpressedasimilarviewaboutthelimitedbenefitsofvoluntaryregistration.57

16.41 TheLawInstituteofVictoriasupportedcompulsoryregistrationbutacknowledgedthatsomemembersdonotsupportcompulsoryregistrationbecauseit

mightdiscouragesomepeoplefrommakingenduringpowersbecausetheywillbeforcedtocompulsorilydisclosepersonalinformationtoagovernmentagency.Forexample,apersonmightnotwantfamilymemberstoknowthatanenduringpowerhasbeenexecuteduntilitisnecessarytoactivatethepower.Theymightnotwishtodiscloseinstructionsaboutsensitivefinancialassets.58

Status of unregistered appointments16.42 Manypeopleandorganisationsexpressedconcernaboutthelegalstatusofan

otherwisevalidappointmentifregistrationiscompulsory.59TherewassupportforthesuggestionthatVCATshouldhavethepowertoformallyvalidateanydocumentoragreementthathasnotbeenregistered.60

16.43 TheLawInstitutesuggestedthatrequiringVCATtovalidatelateregistrationswouldbetoocumbersomeandwouldunnecessarilywasteresources.61Itspreferredoptionwasforattorneystoregisteranappointmentatanytimeafteractivationwheretheappointmentisotherwisevalid,andtoprovideincentivesforearlyregistrationbasedonstagedpricingstructures.62

16.44 StateTrusteessuggestedthatincircumstanceswherethereisaneedtoimmediatelyregisterandactivateapowerofattorneytheregisteringorganisationcouldissueaninterimcertificateofauthority.63

fEES16.45 Manyorganisationsthoughtregistrationofpersonalappointmentsshouldbefreeof

charge.64Manypeopleagreedthataregistrationfee,evenifminimal,wouldbelikelytodiscourageregistration.65Itwasalsosuggestedthatasearchoftheregisterbythepersonwhohasmadetheappointmentshouldbefree,andthatasearchbyregularuserssuchasbanksandhospitalsshouldbesubjecttoanannualsubscriptionfee.66

54 Seerecommendation67:Inquiry into Powers of Attorney, aboven48,236.55 SubmissionCP19(OfficeofthePublicAdvocate).AlsoroundtablewithserviceprovidersinShepparton(inpartnershipwithRegional

Information&AdvocacyCouncil)(22March2011);SubmissionsCP24(AutismVictoria),CP33(EasternHealth),CP35(UrsulaSmith),CP37(MilduraBaseHospital),CP57(AgedCareAssessmentServiceinVictoria),CP61(DisabilityServicesCommissioner),CP67(TrusteeCorporationsAssociationofAustralia),CP70(StateTrusteesLimited),CP73(VictoriaLegalAid),CP77(LawInstituteofVictoria),CP78(MentalHealthLegalCentre),CP80(VictorianCivilandAdministrativeTribunal),andCP81(TheElderLawandSuccessionCommittee,LawSocietyofNSW).

56 SubmissionCP67(TrusteeCorporationsAssociationofAustralia).57 SubmissionCP73(VictoriaLegalAid).58 SubmissionCP77(LawInstituteofVictoria).59 SubmissionCP73(VictoriaLegalAid).SeealsoSubmissionCP48(CentrefortheAdvancementofLawandMentalHealth—Monash

University).60 SubmissionsCP22(Alzheimer’sAustraliaVic),CP71(SeniorsRightsVictoria),CP73(VictoriaLegalAid),CP75(FederationofCommunity

LegalCentres(Victoria)),CP77(LawInstituteofVictoria)andCP78(MentalHealthLegalCentre).61 SubmissionCP77(LawInstituteofVictoria).62 Ibid.63 SubmissionCP70(StateTrusteesLimited).64 Foreg,SubmissionCP78(MentalHealthLegalCentre).65 ConsultationswithJulianGardner(29March2011),TrusteeCorporationsAssociationofAustralia;ANZTrusteesLtd;EquityTrustees

Ltd;TrustCompanyLtd;PerpetualTrustees(inpartnershipwithTrusteeCorporationsAssociationofAustralia)(4March2011),TrusteeCorporationsAssociationofAustralia(15March2011),AustralianBankers’Association(16March2011)andserviceprovidersinShepparton(inpartnershipwithRegionalInformation&AdvocacyCouncil)(22March2011).

66 Foreg,consultationwithRoyalDistrictNursingService(9March2011).

357

REgISTRaTION TImE LImITS16.46 TheParliamentLawReformCommitteerecommendedthatregistrationshouldoccur

atthetimethedocumentsarecreated.67

16.47 Intheconsultationpaper,theCommissionaskedforresponsesaboutwhenregistrationshouldoccur.Therewasgeneralagreementthatregistrationshouldoccurwhenadocumentisexecutedorshortlyafterwards.68Thetimesuggestedvariedfromtwoweekstosixmonths.

16.48 InurgingtheCommissiontodevelopincentivestoencourageregistrationuponorshortlyafterexecution,theLawInstituteofVictoriapointedoutthatifregistrationisnotrequireduntilactivationtherewillbeariskthatanattorneyisunawareoftheexistenceorlocationofthedocument.TheInstitutesuggestedthattheprescribedformsshouldincludeaclearnoticeabouttherequirementtoregisterthepoweranddetailsaboutwhenandhowtodoso.69

Transitional arrangements for existing appointments16.49 ThePublicAdvocatesuggestedthataworkabletransitionalarrangementforpersonal

appointmentswouldbetonominateadateafterwhichtheywouldneedtoberegisteredinordertobevalid.ThePublicAdvocatealsosuggestedthatitshouldbepossibletoregisterappointmentsmadepriortothenominateddateonavoluntarybasis.70

16.50 TheTrusteeCorporationsAssociationofAustraliasuggestedthatitshouldnotbenecessarytoregisterinactivatedexistingpowersofattorneyuntiltheyareactivated.TheAssociationsaid:

Ourmembersareholdingmanythousandsofun-activatedEPAsandregistrationofthosedocumentswouldinvolveconsiderableadministrativeburden.71

16.51 Itwaswidelynotedthatifregistrationiscompulsory,theprocessmustbeefficient,asadelaymaybedetrimentaltotheprincipalinurgentcases.72

proof of identity and registration16.52 InChapter10,theCommissionnotedthatmanysubmissionsemphasisedthe

importanceofidentitycheckswhenpersonalappointmentsarecreatedinordertoguardagainstfraud.TheCommissionrecommendsinthatchapterthattheprincipalberequiredtoshowdocumentsprovingidentitytotwowitnessesatthetimeofmakingtheappointment,andthatonewitnessshouldberequiredtocertifythattheyhadseenthesedocuments.

16.53 TherewasgeneralsupportfortheCommission’sproposalthatapersonwhomakesanappointmentshouldreceiveacertificateuponregistrationthatmaybeusedasevidencethatanappointmenthasbeenregistered.73Therewasalsosupportforthesuggestionthatpeoplereceiveawalletcarduponregistrationthatwouldservetoalertothersinemergenciesabouttheexistenceofapersonalappointment.74

67 Seerecommendation69:Inquiry into Powers of Attorney, aboven48,238.68 SubmissionsCP19(OfficeofthePublicAdvocate),CP22(Alzheimer’sAustraliaVic),CP33(EasternHealth),CP37(MilduraBaseHospital),

CP48(CentrefortheAdvancementofLawandMentalHealth—MonashUniversity),CP57(AgedCareAssessmentServiceinVictoria),CP67(TrusteeCorporationsAssociationofAustralia),CP70(StateTrusteesLimited),CP71(SeniorsRightsVictoria),CP73(VictoriaLegalAid)andCP77(LawInstituteofVictoria).

69 SubmissionCP77(LawInstituteofVictoria).70 SubmissionCP19(OfficeofthePubicAdvocate).71 SubmissionCP67(TrusteeCorporationsAssociationofAustralia).72 SubmissionCP70(StateTrusteesLimited).Seealso,eg,SubmissionCP67(TrusteeCorporationsAssociationofAustralia).73 SubmissionsCP70(StateTrusteesLimited)andCP71(SeniorsRightsVictoria).74 ConsultationswithVictorianRegistryofBirths,DeathsandMarriages(16February2011),metropolitancarers(inpartnershipwithCarers

Victoria)(24March2011);SubmissionCP59(CarersVictoria).



aCCESS TO ThE REgISTER16.54 Somepeopleexpressedstrongviewsabouttheneedtoensureprotectionofprivacy

whilealsoallowingappropriateaccesstotheregister.ThePrivacyCommissioneremphasisedtheimportanceofsafeguardsgiventheonlinenatureoftheregistrationsystem:

Whiletherearegreatbenefitsinenablingreadyaccesstoregisters,onceinformationisavailableonline,withoutrestriction,itiscapableofbeingcollected,incorporatedwithotherpubliclyavailableinformation,andmisusedbypeoplewithnolegitimateinterestinorusefortheinformation,includingforcriminalactivitysuchasidentityfraudandidentitytheft.75

16.55 TheMentalHealthLegalCentreindicatedsupportfortheEnglishandWelshapproachwhereonlyverylimitedinformationisgiventoapersonconductinganinitialsearchoftheregister.Itsuggestedthatthetwo-tiersystemofreleasinginformationisparticularlyappropriateforadvancedirectives.76

16.56 SeniorsRightsVictoriaproposedthatregularusersandindividualusersoftheregistershouldberequiredtoagreetoabidebythetermsandconditionsofaccessandtosignaprivacyagreement.77

16.57 TheFederationofCommunityLegalCentresarguedthattheimportanceandcomplexitiesofsafeguardingprivacyhighlightstheimportanceofpeoplehavingaccesstofreeoraffordablelegaladvicewhenmakingappointments.78

a layered approach to access16.58 ThePrivacyCommissionersupportedtheCommission’sproposalfora‘layered’or

‘tiered’approachtoaccesstoinformationontheregister.Anumberoforganisationsagreedthatlayeredaccesstotheregisterisanecessaryandpracticalsafeguardtoprotectpeople’sprivateinformation.79

16.59 ThePrivacyCommissionerexplainedhowalayeredapproachtoaccessingandsearchingtheregistermightwork:

Forexampletheregistercouldoperate,asaminimum,asatypeof‘documentverificationsystem’.Whenanindividualororganisationneedstocheckwhetherapowerofattorneydocumentexistsandiscurrent,theyprovidebasicinformationaboutthedocumentpresentedandthesystemrespondsbyverifyingwitha‘yes’or‘no’whetherthedocumentexistsandiscurrent.

Whenthistypeofverificationisavailable,forexample,itmaynotbenecessaryforanorganisation(forexample,abankorotherfinancialinstitution)tohaveaccesstoadditionalpersonalinformationwhichmightbecontainedintheregister,suchasthedonor’sdateofbirthoraddress,orwhetherthedonorhasmadeanappointmentinrelationtohisorhermedicaltreatment,andanydirectionsorrestrictionsinrelationtothatappointment.

However,andasanexampleofanother‘layer’,itmaybeappropriateforahospitalorotherhealthserviceprovidertobeabletoverifythenatureofanappointment,forexample,whetheranenduringpowerofattorney(medicaltreatment),hasbeenmadebyanindividual,whohasbeenappointedtothisrole,andwhetherthereareanyspecificdirectionsorrestrictionsonanysuchappointment.80

75 SubmissionCP60(OfficeoftheVictorianPrivacyCommissioner).76 Submission78(MentalHealthLegalCentre).77 SubmissionCP71(SeniorsRightsVictoria).78 SubmissionCP75(FederationofCommunityLegalCentres(Victoria)).79 Foreg,consultationwithRoyalDistrictNursingService(9March2011);SubmissionCP19(OfficeofthePublicAdvocate),CP24(Autism

Victoria),CP60(OfficeoftheVictorianPrivacyCommissioner),CP73(VictoriaLegalAid)andCP75(FederationofCommunityLegalCentres(Victoria)).

80 SubmissionCP60(OfficeoftheVictorianPrivacyCommissioner).

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authorised access only16.60 Therewaswidespreadsupportfortheviewthattheregistershouldnotbeopentothe

public,andthatonlyauthorisedpeopleandorganisationsshouldhaveaccesstoit.81

16.61 ThePublicAdvocatesuggestedthataccesstotheregistershouldberestrictedtothosepeoplewhoarenamedinthedocumentandthosewhoneedtoverifythedocument’sexistenceinordertoimplementadecisionmadeunderit.82

16.62 IntheconsultationpapertheCommissionsuggestedthatthepersonwhomakesanappointmentandthepersonwhoisappointedcouldbegivenapersonalidentificationnumber(PIN)thatwouldallowthemtoaccesstheregisterasrequiredbutwouldalsoprotectprivacy.Organisationsthatregularlyneedtoknowwhetherapersonhasasubstitutedecisionmaker,suchashospitalsandbanks,couldbegivenbroadaccesstosomeoftheinformationontheregister.Otherpeoplemightbegivenmorerestrictedaccesstoinformationontheregister.

16.63 ThepossibilityofPINaccessreceivedbroadsupport.83Peopleacknowledgedthatthiswouldenabletheprincipalandtherepresentativetoaccesstheregistertodemonstratethattheappointmentisvalidandtodescribethepowersavailabletothesubstitutedecisionmaker.84

16.64 TheLawInstituteofVictoriaexpressedconcernabouttheutilityofanonlinePINsystemforolderpeoplewhomaynotbecomfortablewithelectronictechnology.85

16.65 Someorganisationssuggestedthatwheretheregisterindicatesthatapowerislimitedorconditionalinsomeway,furtherstepswouldneedtobeavailabletoaccessinformationaboutthetermsoftheappointment,suchasbyapplyingtoanexternalbody.86

a gatekeeper to authorise third party access16.66 Duringconsultations,theCommissionsuggestedthatthePublicAdvocatecould

actasa‘gatekeeper’foraccesstotheregisterbyrespondingtorequestsfromthirdpartiesforinformationabouttheexistence,validityandextentofpowersinapersonalappointment.Therewassupportforthisidea.87

16.67 Asignificantpartofthisrolewouldbetolicenseregularusersoftheregistertoaccessanddownloadspecifiedtypesofinformation.88ThePublicAdvocatenotedshewouldbehappytotakeontheproposedgatekeeperrole.89

16.68 TheLawInstituteofVictoriaarguedthataccesstonon-bindinginstructionsorwishescontainedintheappointmentdocumentshouldbelimitedtoattorneys,andthatthirdpartiesshouldnotbeabletoaccessthisinformation.90

16.69 OrganisationssuggestedaspossibleregularusersincludedtheAgedCareAssessmentServiceinVictoria(ACAS);theRoyalDistrictNursingService;VictoriaPolice;

81 ConsultationwithRoyalDistrictNursingService(9March2011);SubmissionsCP19(OfficeofthePublicAdvocate),CP22(Alzheimer’sAustraliaVic),CP24(AutismVictoria),CP35(UrsulaSmith),CP57(AgedCareAssessmentServiceinVictoria),CP70(StateTrusteesLimited)andCP77(LawInstituteofVictoria).

82 SubmissionCP19(OfficeofthePublicAdvocate).83 Foreg,consultationswithAustralianBankers’Association(16March2011),metropolitancarers(inpartnershipwithCarersVictoria),

MaxCampbell—AssociationofIndependentRetirees(25March2011);SubmissionsCP71(SeniorsRightsVictoria),CP75(FederationofCommunityLegalCentresVictoria))andCP78(MentalHealthLegalCentre).

84 Foreg,roundtablewithmetropolitancarers(24March2011).85 SubmissionCP77(LawInstituteofVictoria).86 Foreg,SubmissionCP33(EasternHealth),CP67(TrusteeCorporationsAssociationofAustralia)andCP77(LawInstituteofVictoria).87 Foreg,consultationswithRoyalDistrictNursingService(9March2011),DiannePendergast—AdultGuardian,Queensland(4April2011)and

MentalIllnessFellowshipVictoria(6April2011).88 Foreg,SubmissionCP19(OfficeofthePublicAdvocate).89 SubmissionCP19(OfficeofthePublicAdvocate).90 For,eg,SubmissionCP77(LawInstituteofVictoria).


16Chapter 16 A new registration schemeAmbulanceVictoria;banksandotherfinancialinstitutions;StateTrustees;hospitals;DisabilityServicesCommission;Medicare;Centrelink;insurancecompanies;nursinghomes;medicalpractitionersandlegalpractitioners.

16.70 Therewassupportforasystemauthorisingandlicensingregularuserstopayanannuallicencefeetoviewdesignatedpartsoftheregister.Thiswouldenablethemtocheckwhetheranappointmenthadbeenmade,andthenatureofthepowersthathadbeengranted.91

Notification upon activation16.71 IntheconsultationpapertheCommissionproposedthatthelistofpeoplewhoshould

benotifiedwhenapersonalappointmentisactivatedcouldinclude:

• thepersonwhomadetheappointment

• apublicauthoritysuchasthePublicAdvocateorStateTrustees

• peoplenominatedbythepersonwhomadetheappointment.92

16.72 Notificationprovidesasafeguardagainstabusebyalertingthepersonwhomadetheappointmentandthirdpartiesthattheattorneyorguardianisnowusingthepowersgiventothembytheprincipalforusewhenthatpersondoesnothavethecapacitytomaketheirowndecisions.

16.73 TheParliamentaryCommitteerecommendedthatthepersonmakingtheappointmentshouldbeabletonominatemonitorstooverseetheoperationofanappointment.Itrecommendedthatthesepeoplealsobenotifiedoftheactivationofanappointmentandbeentitledtoobjecttoitsuse.93

16.74 Therewassupportformandatorynotificationtothedonorthatanappointmenthadbeenactivated.Itwasconsidered,however,thatothernotificationsshouldbeamatterofpersonalpreferenceandspecifiedinthedocument.94

16.75 Itwasalsoarguedthattheprincipalshouldbeabletospecifypartieswhotheydonotwishtobenotified.VictoriaLegalAidsuggested:

Peopleshouldbeabletoaskthatsomeonenotbenotified.Providedthereisnologicalreasontonotifytheperson,and/orthedonorhasprovidedgoodreasonsandevidenceastowhythepersonshouldnotbenotified,theirprivacyshouldberespectedandthepersonnotnotified.95

16.76 Therewasnosupportfortheideathatapublicauthorityshouldbenotifiedwhenapersonalappointmentisactivated.StateTrusteessaid:

Notification(asfarasnotificationtotheworldatlargeisconcerned)shouldbetotheorganisationthatmaintainstheregister.Theoveralladvantageofnotificationinbothcasesisthatitwouldincreasegeneraloversight,therebyreducingtheopportunitiesforabuseoftheenduringpower.96

91 Foreg,consultationswiththeRoyalDistrictNursingService(9March2011)andAustralianBankers’Association(16March2011).92 VictorianLawReformCommission,Guardianship,ConsultationPaperNo15(2011)159.93 Seerecommendations75and76:Inquiry into Powers of Attorney,aboven48,250.94 Foreg,SubmissionsCP65(CouncilontheAgeingVictoria),CP71(SeniorsRightsVictoria)andCP75(FederationofCommunityLegal

Centres(Victoria)).95 SubmissionCP73(VictoriaLegalAid).96 SubmissionCP70(StateTrusteesLimited).SeealsoSubmissionsCP63(Shih-NingThen,ProfLindyWillmott&AssocProfBenWhite(QUT)),

CP67(TrusteeCorporationsAssociationofAustralia)andCP78(MentalHealthLegalCentre).

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16.77 ThePublicAdvocateagreedwiththisview:

OPAdoesnotbelieveitshouldbenecessarytorequireapublicauthoritytobenotifiedoftheactivationofanenduringpower.Thiswouldconstituteanotherlayerofbureaucracyoverandaboveregistrationofthedocument,andOPAdoesnotbelievethebenefitsofthisrequirementwouldoutweighthecosts.97

fLuCTuaTINg dECISION-makINg abILITy16.78 Theneedforaregistrationschemetobeabletorespondtoaperson’sfluctuating

decision-makingabilitywasraisedincommunityresponsestotheconsultationpaper.Somepeople’sdecision-makingabilitymayfluctuateonadailybasisorperiodically.Inotherinstances,aperson’slossofcapacitymayonlybetemporary.Inthesecircumstances,theremightbeaneedforconstantnotificationswheneveranappointmentisactivatedanddeactivated.98

16.79 Someorganisationssuggestedthataregistrationsystemshouldprovideforthedeactivationofpowerswhenaprincipalregainscapacity.Thisstepwasseenaspreferabletoobligingtheprincipaltorevoketheappointmentandmakeanotheroneafterregainingcapacity.99

16.80 SeniorsRightsVictoriasuggestedthatnotificationshouldonlyberequiredwhenactivationfirstoccursifaperson’scapacityisfluctuating.100

16.81 ThePublicAdvocatesuggestedthatitshouldbepossibletogainquickaccesstoVCATwhenaperson’scapacityfluctuatesandthereisconcernabouttheactivationoruseofapersonalappointment.

REgISTRaTION Of INSTRuCTIONaL dIRECTIVES16.82 Documentsthatrecordaperson’swishesaboutthefuture—knownasinstructional

oradvancedirectives—arediscussedinChapter11.Somepeopleandorganisationsexpressedviewsaboutwhetherthesedirectivesshouldbeincludedinanonlineregister.

16.83 Themajorreasonsforincludinginstructionaldirectivesintheregisterwereidentifiedinonesubmission:

TheConsultationPaperobservedthatoneofthechallengeswithadvancedirectivesistoensurethattheyareknowntothosewhoaremakingdecisionsabouttreatment.Theremayalsobeanadditionalpracticalproblem,namelythatsomemedicalprofessionalsarereluctanttohaveregardtodirectivesastheyhavephilosophicalconcernsabouttheiruse.

Forthesereasons,webelievethatthereshouldbeanopportunityforindividualstoelectronicallyregistertheiradvancedirective,coupledwithanobligationonmedicalprofessionalstosatisfythemselves(bysearchingtheregister)thatthetreatmentbeinggivenisnotcontrarytotheinstructionsinanadvancedirective.101

16.84 Somepeoplesuggestedtheremaybepotentialforadirectivetoformpartofaperson’selectronichealthrecordshouldsuchanationalsystembeestablished.102

97 SubmissionCP19(OfficeofthePublicAdvocate).98 Foreg,ibidandCP67(TrusteeCorporationsAssociationofAustralia).99 Foreg,SubmissionsCP71(SeniorsRightsVictoria)andCP75(FederationofCommunityLegalCentres(Victoria)).100 SubmissionCP71(SeniorsRightsVictoria).101 SubmissionCP63(Shih-NingThen,ProfLindyWillmott&AssocProfBenWhite(QUT)).SeealsoSubmissionCP78(MentalHealthLegal

Centre).102 SubmissionsCP49(RespectingPatientChoicesProgram—AustinHealth),CP63(Shih-NingThen,ProfLindyWillmott&AssocProfBenWhite

(QUT)),CP68(AustralianNursingFederation)andCP69(AustralianMedicalAssociation(Victoria)).


16Chapter 16 A new registration scheme16.85 Thereweredifferingviewsaboutwhetheritshouldbecompulsorytoregister

instructionaldirectives.103Someexpressedtheviewthatitshouldbecompulsoryforinstructionaldirectivestoberegisteredinordertopromoteautonomy,toemphasisetheimportanceoftheseinstruments,toencourageaccountability,tominimiseabuseandtoavoidconfusion.104

16.86 StateTrusteesarguedthatfailuretoregisteranadvancedirectiveshouldnotrenderthedocumentineffective:

apersonwhohastohandavalidbutunregisteredadvancedirectiveshouldberequiredtogivethedocumentasmuchweightasaregistereddocument.Amorerecentdocumentshouldoutweighanearlierone,totheextentofanyinconsistency.105

16.87 VictoriaLegalAidstressedtheneedtoensurethatdirectivesarereviewedatappropriateintervalstoensuretheystillreflectthewishesoftheprincipal.VictoriaLegalAidnotedthatthisisparticularlyimportantiftheyaretobeenforceable.106Itsuggestedthatreviewscouldbetriggeredbysendingannualreminderstothosewhohaveregisteredinstructionaldirectives.107

16.88 TheMentalHealthLegalCentrenotedthatafurtherissueofimportancewhendealingwithmedicalandlifestyleinstructionaldirectivesisthehighlypersonalnatureofsomeoftheinformationincludedinthem,whichemphasisestheneedforclearaccesspolicies.108

ThE COmmISSION’S VIEwS aNd CONCLuSIONSa NEw VICTORIaN ONLINE REgISTER16.89 TheCommissionbelievesthatthereshouldbeanonlineVictorianregisterof

substitutedecision-makingappointments.Theregistershouldalsoincludeassociatedappointments—suchasthoseofco-decisionmakersandsupporters—andadvancedirectives.Aregisterwouldbeahighlyeffectivemeansofencouragingpeopletoappointotherstoassistthemwithdecisionmaking.Itwouldalsoplayanimportantroleinpromotingunderstandingandacceptanceofthevariousappointmentsbypeopleandorganisationsthatregularlyengageintransactionsrequiringformalauthorisationconcerningpeoplewhohaveimpaireddecision-makingability.

16.90 TheCommission’srecommendationsinthischaptercomplementtheproposalsadvancedbytheVictorianParliamentLawReformCommitteeinAugust2010.109Theyalsoseektoimplementthebroadcommunitysupportfortheestablishmentofaregister.

16.91 WhiletheCommissionagreeswiththeParliamentaryCommitteethatanationalregisterisdesirable,itisunlikelytobeanachievableoptionintheshortterm.110ThemanyVictorianswhowouldbenefitfromtheexistenceofaregistershouldnothavetowaituntilthereisnationalresolveandconsensusforthisstep.Victoriacanprovideleadershipinthisfieldasitdidagenerationagowhentheexistingguardianshiplawswerefirstdeveloped.

103 Foreg,SubmissionsCP20(EpworthHealthCare),CP50(MargaretBrown),CP63(Shih-NingThen,ProfLindyWillmott&AssocProfBenWhite(QUT)),CP70(StateTrusteesLimited),CP71(SeniorsRightsVictoria),CP73(VictoriaLegalAid)andCP78(MentalHealthLegalCentre).

104 Foreg,SubmissionsCP19(OfficeofthePublicAdvocate),CP22(Alzheimer’sAustraliaVic),CP24(AutismVictoria),CP33(EasternHealth),CP35(UrsulaSmith)andCP55(OfficeoftheHealthServicesCommissioner).

105 SubmissionCP70(StateTrusteesLimited).106 SubmissionCP73(VictoriaLegalAid).107 Ibid.108 SubmissionCP78(MentalHealthLegalCentre).109 Inquiry into Powers of Attorney,aboven48,232–6.110 Ibid232–3.

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16.92 GiventhewidespreadpersonalandbusinessuseoftheInternetandtheefficienciesitcreates,itmakessensetoestablishanonlineregisterifthisstepistechnologicallypossible,affordableandsupportedbythepeoplewhowoulduseitregularly.FollowingdetaileddiscussionswiththeRegistryWorkingGroup,theCommissionissatisfiedthatallofthesegoalsareachievablebytheregistrationschemeoutlinedinthischapter.

16.93 Manypeopleandorganisationssuchashospitals,healthprofessionals,banksandotherfinancialinstitutions,andpoliceandemergencyservicesshouldbeabletofindoutwithcomparativeeaseatanytimeofdaywhethersomeonehastheauthoritytomakedecisionsforapersonwithwhomtheyaredealingwhohasimpaireddecision-makingability.Theregisterproposedinthischapterisdesignedtoovercometheproblemthatpeoplecannotbeexpectedtocarrypersonalappointmentdocumentswiththematalltimesandtribunalordersappointingsubstitutedecisionmakersarenoteasilyaccessible.

16.94 TheCommissionbelievesthatanonlineregistrationsystemwouldbefarmoreeffectivethanapaper-basedregisterbecauseitwouldbemorereadilysearchable,continuallyaccessibleandeasytoupdate.

appointments and directives in the register16.95 TheCommissionbelievesthattheregistershouldincludeallofthefollowing

appointmentsandadvancedirectives:

• enduringpersonalguardians

• enduringfinancialadministrators

• supportersforpersonalmatters

• supportersforfinancialmatters

• personalguardiansappointedbyVCAT

• financialadministratorsappointedbyVCAT

• co-decisionmakersappointedbyVCAT

• instructionaldirectives

• personalappointmentsandVCATappointmentsmadeundercurrentlaws.



RECOmmENdaTIONSEstablishment of the register

259.Newguardianshiplegislationshouldestablishanonlineregisterforthefollowingappointmentsanddirectives:

(a) enduringpersonalguardians

(b) enduringfinancialadministrators

(c) supportersforpersonalmatters

(d) supportersforfinancialmatters

(e) personalguardiansappointedbyVCAT

(f) financialadministratorsappointedbyVCAT

(g) co-decisionmakersappointedbyVCAT

(h) instructionalhealthdirectivesandotherinstructionaloradvancedirectives

(i) personalappointmentsandVCATappointmentsmadeunderearlierlaws.

260.Theonlineregistrationschemeshouldbeuser-friendly,cheapandeasytoaccess,andpubliclysubsidised.ItshouldaimtobethemodelforasimilarschemeineveryAustralianstateandterritory.

mandatory registration of appointments16.96 TheCommissionbelievesthatinordertorealisesomeoftheprimarybenefits

ofestablishingaregister—suchaseaseoflocating,verifyingandvalidatingthecontinuingexistenceofanappointment—itshouldbemandatorytoregisterapersonalappointmentforittobevalid.Thiswouldmeanthatanyactperformedunderapersonalappointmentwouldbeofnolegaleffectuntilthedocumentwasregistered.

16.97 Therewillalwaysbecircumstances,however,whenitwouldbeunfairtoinvalidateallactionspurportingtohavebeenauthorisedbyanappointmentthatisnotvalid.ThereareexistingprovisionsintheInstruments Act 1958(Vic)111andtheGuardianship and Administration Act 1986 (Vic)(G&AAct)112thatallowacourtorVCATtodeclarethatactionstakeningoodfaithbyinnocentpeopleinrelianceuponaninvalidappointmentorwithoutawarenessofanappointmentarevalid.VCATshouldhavesimilarcorrectivepowerswhendealingwithactionstakenunderunregisteredpersonalappointments.

16.98 Inaddition,VCATshouldberequiredtoinformtheholderoftheregisterofallrelevantappointmentsthatitmakesundernewguardianshiplawsinordertoensurethattheseordersareaccessibleatalltimes.

Instructional directives16.99 InChapter11theCommissionrecommendsthatinstructionalhealthcaredirectives

shouldbebinding,exceptinsomelimitedcircumstances,andthatotherpersonaldirectivesshouldguideratherthanbinddecisionsabouttheprincipal.

16.100 TheCommissionnotestheAdvanceDirectivesReviewCommittee(SouthAustralia)recommendedthatastateregistrationschemeforadvancedirectivesshouldnotbeintroduced.113TheCommitteearguedthat,astherewasalackofevidencethatsuch

111 Instruments Act 1958(Vic)s125U.112 Guardianship and Administration Act 1986(Vic)s52(3).113 AdvanceDirectivesReviewCommittee(SouthAustralia),Second Report of the Review of South Australia’s Advance Directives(2008)40.

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registerswereaneffectivewayofprotectingpatients’rights,thecostofaregisterwasnotjustified.114

16.101 TheCommitteealsonotedthedifficultiesaround‘activation’basedregisters,particularlygiventhecomplexitiesoffluctuatingcapacityandchanginglifecircumstances.115Itarguedfortheintroductionofotherlessexpensivemeansofindicatingtheexistenceofanadvancedirective,suchastheuseof‘walletcards’.116

16.102 TheCommissiondoesnotbelievethatitshouldbecompulsorytoregisteranyinstructionaloradvancedirectivesintheshortterm.Itshouldbepossible,however,toincludesuchadocumentontheregistervoluntarily.

16.103 Therearesignificantdifferencesbetweenpersonalappointmentsandinstructionaloradvancedirectives.Forexample,oftenathirdpartysuchasamedicalpractitionerorbankwillneedtoknowwithconsiderablecertaintywhethertheyshouldaccepttheauthorityclaimedbyapersonalguardianorfinancialadministratortomakeaveryimportantdecisionforapersonwhoisunabletomaketheirowndecision.Thereispotentialforgreatconflict—andfortheinterestsofthepersonwhoisunabletomaketheirowndecisiontobejeopardised—ifquestionsofdecision-makingauthoritycannotberesolvedquicklyanddecisively.Thispotentialforconflictdoesnotarisewhendealingwithinstructionaloradvancedirectivesbecausethereisnopersonpurportingtohavetheauthoritytomakedecisionsforapersonwhoisunabletodoso.

16.104 TheCommissionurgestheAttorney-GeneraltokeepthismatterunderreviewwiththeassistanceofthePublicAdvocate.Itwouldbeadvisabletore-considermandatoryregistrationofinstructionalhealthcaredirectivesiftherewereevidenceofsignificantdisputesabouttheexistenceoreffectofthesedocuments.

RECOmmENdaTIONSCompulsory registration of personal appointments

261.ItshouldbecompulsorytoregisterthepersonalappointmentsreferredtoinRecommendation259.VCATshouldberequiredtoinformtheholderoftheregisterofallrelevantappointmentsthatitmakesundernewguardianshiplaws.Itshouldnotbecompulsorytoregisteraninstructionaloradvancedirectivebutitshouldbepermissibletodoso.

Effect of actions taken under an unregistered appointment

262.Anyactperformedunderapersonalappointmentshouldhavenolegaleffectunlessthedocumentisregistered.VCATshouldbepermittedtoorderthatlegaleffectbegiventoanyactiontakenbyapersonactingonthereasonablebeliefthatanappointmenthadbeenvalidlymadeandregistered.

ThE REgISTRaTION pROCESS

who should hold the register?16.105 TheCommissionagreeswiththeParliamentaryCommittee’srecommendationthat

theVictorianRegistrarofBirths,DeathsandMarriagesshouldmaintaintheproposedregister.117

114 Ibid37–40.115 Ibid38.116 Ibid40.117 SeeRecommendations69and73:Inquiry into Powers of Attorney,aboven48,238,248.TheGovernmentResponsetothisinquirynoted

furtherconsiderationofbothrecommendations.TheGovernmentalsonoteditwouldconsidertheoutcomesoftheCommission’sreview:Government Response to the Parliament of Victoria Law Reform Committee Inquiry into Powers of Attorney Report,aboven3,2,31–2.


16Chapter 16 A new registration scheme16.106 TheVictorianRegistryofBirths,DeathsandMarriages,whichwasestablishedin1853,

performsanumberofrecord-keepingfunctionsunderVictorianandCommonwealthlegislation.118TheRegistrarreportstotheSecretaryoftheDepartmentofJustice.119

16.107 TheRegistrar’sfunctionsincluderecordingandprovidingcertificatesforallbirths,adoptions,marriagesanddeathsoccurringinthestateofVictoria;registeringdomesticandcaringrelationshipsforpeoplewhoordinarilyresideinVictoria;andregisteringchangesofnameforpeoplewhowerebornorresideinVictoria.120

16.108 TheCommissionbelievesthatthetaskofestablishingandmaintainingtheproposedonlineregistersitswellwiththeRegistrar’sexistingfunctionsandcapability.TheRegistrarhasthefacilitiesandexpertisetoassumeresponsibilityforthistask.TheRegistraralsohastheexistingcapacitytomaintaindocumentsthatcontainsensitiveprivateinformationandexperiencedealingwiththeNationalProofofIdentityFramework,whichwillbeimportantwhendevisingprocedurestosafeguardagainstfraud.

16.109 NeitherVCATnorthePublicAdvocatehasthenecessaryfacilitiesorexpertisetohosttheregister.WhileStateTrusteeshassomeexpertiseinthisarea,itsstatusasacommercialorganisationthatcompeteswithprivateenterpriseinsomefieldswouldmakeitverydifficultforittoassumethispublicresponsibility.

RECOmmENdaTIONThe holder of the register

263.TheRegistrarofBirths,DeathsandMarriagesshouldberesponsibleformaintainingtheRegisterofAppointmentsandDirectives.

Registration time limits16.110 TheCommissionbelievesthatthelawshouldencouragepeopletoregisterapersonal

appointmentshortlyaftertheymakeit.Thiswillensurethatrelevantpeopleareawareofitsexistencewhenitisrequired.Manyappointmentswouldbelostifregistrationwereonlyrequiredwhentheprincipalhadlostcapacity.Compulsoryregistrationatthetimethedocumentismadewouldalsohelptoguardagainstfraudbecausetheprincipalwouldreceiveformalnotificationthatanappointmenthasbeenregistered.

16.111 TheCommissionnotesthattheParliamentaryCommitteesuggestedthatregistrationshouldoccurwithin60daysofexecutingthedocument.TheCommissionrecommendsthatregistrationwithin90daysofexecutionisappropriate.

16.112 Thereshouldbeaneffectivemechanismtodealwithcasesofhardshipwhenanappointmenthasnotbeenregisteredwithintime.VCATshouldhaveadiscretionarypowertopermitregistrationatanytimeifitbelievesthatexceptionalcircumstancesjustifywaivingthe90daytimelimituponregistration.VCATshouldalsohaveapowertopermitregistrationatanytimeif:

118 TheStateandCommonwealthActsandRegulationsareasfollows:Births, Deaths and Marriages Registration Act 1996(Vic);Births,DeathsandMarriagesRegistrationRegulations2008(Vic);Adoption Act 1984(Vic);Marriage Act 1961(Cth);MarriageRegulations1963(Cth);Coroners Act 2008(Vic);Relationships Act 2008(Vic);Relationships(Fees)Regulations2009(Vic);Assisted Reproductive Treatment Act2008(Vic);Information Privacy Act 2000(Vic);Charter of Human Rights and Responsibilities Act 2006(Vic);Freedom of Information Act 1982(Vic);Status of Children Act 1974(Vic).SeeVictorianRegistryofBirths,DeathsandMarriages,About us <http://online.justice.vic.gov.au/CA2574F700805DE7/page/About+us?OpenDocument&1=70-About+us~&2=~&3=~>.

119 DepartmentofJustice(Victoria),Department of Justice – Organisational Chart(13December2011),1<http://www.justice.vic.gov.au/home/about+us/our+organisation/departmental+structure/justice+-+doj+organisational+chart+%28pdf%29>.

120 VictorianRegistryofBirths,DeathsandMarriages,About us <http://online.justice.vic.gov.au/CA2574F700805DE7/page/About+us?OpenDocument&1=70-About+us~&2=~&3=~>.

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• adocumenthasnotbeenregisteredbecauseitfailedtocomplywithstatutoryrequirements,suchasthoseconcernedwithwitnessing,and

• theprincipalnolongerhascapacitytomakeanappointment,and

• VCATfindsthatthedocumentisaproperrecordofthewishesofaprincipalwithcapacityatthetimeitwasmade.

Inthesecircumstances,VCATshouldalsohavethepowertomakeanyotherappointmentororderitcouldmakeunderguardianshiplegislationwhichwouldgiveeffecttothewishesoftheprincipal.

RECOmmENdaTIONSRegistration time limits

264.Adocumentappointingapersonasanenduringpersonalguardian,asanenduringfinancialadministrator,orasasupporterforpersonalorfinancialmattersmustberegisteredwithin90daysofbeingmadeinordertobevalidunlessVCATdeterminesthatthereareexceptionalcircumstancesthatjustifyregistrationbeyondthistimelimit.

Unregistered appointments

265.Whenapersonalappointmentisnotregisteredwithin90daysofbeingmade,orwhenadocumentpresentedforregistrationisnotregisteredbecauseitwasnotmadeinaccordancewiththerelevantstatutoryrequirementsandtheprincipalnolongerhasthecapacitytomaketheappointmentinquestion,VCATmay:

(a) orderthatthedocumentberegisteredifitbelievesthatthedocumentisaproperrecordofthewishesofaprincipalwithcapacityatthetimeitwasmade

(b) makeanyotherorderunderguardianshiplegislationwhichitbelieveswouldgiveeffecttothewishesoftheprincipal.

procedures at the time of registration16.113 TheRegistrarofBirths,DeathsandMarriagesshouldberequiredtocheckeach

personalappointmentbeforeacceptingitforregistrationtodeterminewhetheritappearstohavebeenvalidlymade.TheprocessesinvolvedinfilingdocumentsandcheckingidentityareoperationalmattersthatshouldbedeterminedbytheRegistrarfollowingconsultationwithstakeholdergroupssuchasthoserepresentedontheCommission’sRegistryWorkingGroup.

16.114 TheRegistrarshouldhavethepowertoreturnanydocumentsforcorrectionortorefusetoacceptadocumentforregistration.ItshouldbepossibleforVCATtoreviewthemeritsofanydecisionsofthisnature.

16.115 TheCommissionbelievesthattheRegistrarshouldberequiredtotakethefollowingstepswhenapersonalappointmentisacceptedforregistration:

• includetheappointmentintheonlineregister

• givetheprincipalaregistrationcertificatethatcontainsthenamesoftherelevantpartiesandthenatureoftheappointment

• givetheprincipalapasswordorPINwhichenablestheprincipaltoviewtheappointmentintheonlineregister

• givetherepresentativeapasswordorPINwhichenablestherepresentativetoviewtheappointmentintheonlineregister.


16Chapter 16 A new registration scheme16.116 Therequirementtoprovidetheprincipalwithacertificatemirrorsexistingpractices

whenbirths,deathsandmarriagesareregistered.Itshouldassistthosepeoplewhowantadocumentandwhoarenotcomfortablewithonlinefacilities.TheVictorianRegistryofBirths,DeathsandMarriagesadvisedtheCommissionthatitispossibletovalidatecurrentcertificatesthroughavalidationservice(CertValid)thatisopenonlytosubscriberorganisations.121

16.117 TheproposedpasswordorPINwouldenabletheprincipalandthepersonappointedastheirrepresentativetocheckthetermsoftheappointmentatanystagewithoutrecoursetothedocumentandwouldalsopermitthemtoallowathirdpartytoviewanddownloadacopyoftheappointment.

RECOmmENdaTIONSChecking the validity of documents

266.TheRegistrarofBirths,DeathsandMarriagesmustdeterminewhetheranypersonalappointmentappearstohavebeenvalidlymadeinaccordancewiththerelevantstatutoryrequirementsbeforeacceptingitforregistration.TheRegistrarmayreturnthedocumentforcorrectionormayrefusetoregisteritifitdoesnotappeartohavebeenvalidlymade.ItshouldbepossibleforanyinterestedpersontoseekreviewinVCATofthemeritsofanydecisionbytheRegistrartorefusetoacceptadocumentforregistrationintheregister.

Procedures at the time of registration

267.UponacceptingapersonalappointmentforregistrationtheRegistrarofBirths,DeathsandMarriagesmust:

(a) includetheappointmentintheonlineregister

(b) givetheprincipalaregistrationcertificatethatcontainsthenamesoftherelevantpartiesandthenatureoftheappointment

(c) givetheprincipalapasswordorPINwhichenablestheprincipaltoviewtheappointmentintheonlineregister

(d) givetherepresentativeapasswordorPINwhichenablestherepresentativetoviewtheappointmentintheonlineregister.

fees16.118 Therewaswidespreadsupportforalow-costsystemthatencouragespeopleto

makeandregisterpersonalappointments.TheCommissiondoesnotbelievethata‘userpays’systemisappropriateinVictoriabecausefeesofthemagnitudeofthosechargedinEnglandandWaleswoulddiscouragepeoplefromusingthesystemandwouldultimatelyleadtogreaterpublicexpensebecauseoftheneedformoretribunalappointments.

16.119 TheCommissionbelievesthatevennominalfeesarelikelytodiscouragepeoplefrommakingandregisteringpersonalappointments.TheCommissionbelieves,however,thatpeoplewhowishtoalterthetermsofanappointmentorchangeanappointmentregularlyshouldpayafeewhendoingso.Itwouldseemappropriatetodirectthatafeeispayablewhenapersonseekstoregistermorethanonepersonalappointmentinanycategoryduringacalendaryearortovarythetermsofanappointmentmorethanonceinanycalendaryear.TheRegistrarshouldhavethepowertowaivethefeeinexceptionalcircumstances.

121 ConsultationwithVictorianRegistryofBirths,DeathsandMarriages(16February2011).

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RECOmmENdaTIONFees

268.Thereshouldbenofeeforregisteringapersonalappointment.Thereshouldbeafeepayable,subjecttowaiver,whenapersonseekstoregistermorethanonepersonalappointmentinanycategoryduringacalendaryear.

Variation and revocation16.120 Itshouldbepossibleforaprincipalwithcapacitytovaryorrevokeapersonal

appointmentatanytime.Itseemsappropriatethattheprocessesforthesestepsaresimilartothoserequiredwhenfirstmakinganappointment.

16.121 TheprincipalshouldbeabletofileadocumentwiththeRegistrarvaryingorrevokingaregisteredappointment.TheRegistrarshouldberequiredtoindicateontheregisterwhetheranappointmenthasbeenrevokedorvaried.Thatrevocationorvariationshouldbeeffectivefromthetimeofregistration.

16.122 Itshouldalsobepossiblefortheholderofanappointmenttoresignatanytimewhiletheprincipalhascapacity.TheholderoftheappointmentshouldberequiredtofileadocumentwiththeRegistrarandtheresignationshouldbeeffectivefromthetimeofregistration.Thissimpleprocessisnotappropriatewhentheprincipalnolongerhascapacitytomakeanotherappointment.TheCommissiondealswiththisissueinChapter10.

RECOmmENdaTIONSRevocation by the principal

269.Aprincipal(withcapacity)mayrevokeorvaryapersonalappointmentatanytimebyfilinganappropriatenoticewiththeRegistrar.ApersonalappointmentisrevokedfromthedateandtimeatwhichtheRegistrarincludesanoteontheregisterthattheappointmenthasbeenrevoked.

Resignation and revocation by the representative

270.ArepresentativemayresignandtherebyrevokeapersonalappointmentatanytimewhentheprincipalhascapacitybyfilinganoticeofresignationwiththeRegistrar.ApersonalappointmentisrevokedfromthedateandtimeatwhichtheRegistrarincludesanoteontheregisterthattheappointmenthasbeenrevoked.

Notice of activation16.123 InChapter10,theCommissionrecommendsthatitshouldbepossibleforaprincipal

toappointanenduringfinancialadministratorwithpowersthatcommenceupontheprincipal’sincapacityoratsomeothertime.TheCommissionalsorecommendsthatitshouldonlybepossibleforaprincipaltoappointanenduringpersonalguardianwithpowersthatcommenceupontheprincipal’sincapacity.

16.124 Inorderfortheregistertobeausefultoolforthirdpartiesseekinginformationaboutaperson’sauthoritytomakedecisionsforaprincipal,itisimperativethatitcontaininformationabouttheactivationoftheappointment.TherepresentativeshouldberequiredtonotifytheRegistrarwhentheyhaveactivatedpowersthatcommenceupontheprincipal’sincapacity.TheRegistrarshouldthenincludeanotetothiseffectontheregister.


16Chapter 16 A new registration scheme16.125 Inviewofthefactthattherecanoftenbeaneedforquickdecisionstobemadewhen

apersonlosescapacity,theprocessofnotifyingtheRegistrarthatthepowershavebeenactivatedandofincludingthisinformationontheregistershouldoperateasquicklyaspossible.WhilethisprocessisanoperationalmatterfortheRegistrar,theCommissionbelievesthatonlinenotificationshouldbepossible.

16.126 Therearelikelytobechallengesinpracticeinthosecaseswhereaperson’scapacitytomaketheirowndecisionsfluctuates.ItwillbenecessarytoallowtherepresentativetogivetheRegistrarnoticewhenthepowersareactivatedordeactivated.Whilethisstepisanappropriateresponsetothefactaperson’scapacitytomakedecisionscanchange,constantactivationanddeactivationofthepowersofasubstitutedecisionmakerwillproveverydifficultforsomeinstitutions.

16.127 IncaseswherepowersareactivatedanddeactivatedregularlyitmightbeappropriatefortheRegistrartohavethepowertoreferthemattertoVCATorthePublicAdvocateforinvestigation.

RECOmmENdaTIONSCommencement upon incapacity of the principal

271.Ifthepowersofarepresentativecommencewhentheprincipallackscapacitytomakedecisions,therepresentativemustadvisetheRegistrarwhentheyreasonablybelievethattheprincipallackscapacitytomakedecisionsandtherepresentativeproposestocommenceusingtheirpowers.Itshouldbepossiblefortherepresentativetomakethisnotificationonlineinordertorespondtosituationsinwhichquicknoticeisrequired.

272.TheRegistrarmustincludeanoteontheregisterwhenadvisedthatarepresentativehascommencedusingtheirpowersandnotifytheprincipalthattheappointmenthasbeenactivated.

Effect of registration16.128 Asdiscussedearlier,someoftheprimarybenefitsofestablishingaregisterareto

enablethosedealingwithapersonwithimpaireddecision-makingabilitytodiscoverwhetheranotherpersonhasbeenappointedtomakedecisionsforthatperson(ortoassistthemwhendoingso),toknowtheextentofthatperson’sauthority,andtocheckwhethertheappointmentisvalidandcurrent.

16.129 Atpresent,thirdpartiesdeterminewhethertheyarewillingtoaccepttheauthorityofarepresentativetomakedecisionsforaprincipalbecausethereisnoregisterofpersonalappointmentsorcertificationbyapublicofficialabouttheauthenticityofanappointment.ThirdpartiesalsodecidewhethertheyarepreparedtoaccepttheauthorityofaguardianoradministratorappointedbyVCATtomakedecisionsforarepresentedperson.AstheCommissionpointsoutinChapter5,guardiansandadministratorssometimeshavetroubleinpracticebecausesomepeoplewillnotaccepttheirauthoritytomakebindingdecisionsforanotherperson.

16.130 Itwillbenecessaryfornewguardianshiplegislationtodescribetheeffectofregistrationsothatthirdpartieswillbeawareoftheconsequencesofrelyinguponanentryintheregister.TheCommissionbelievesthattheexistenceofaregistercannotabsolvethirdpartiesoftheresponsibilitytobesatisfiedoftheidentityofthepeoplewithwhomtheyaredealingandofthelegitimacyoftheappointmentinquestion.

16.131 Itisappropriate,however,todeclarelegislativelythataregisteredappointmentispresumptiveevidencethattheprincipalreferredtointhedocumenthasappointed

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thepersonreferredtointhedocumentastheirrepresentativewithauthoritytoexercisethepowersinrelationtotheirpersonalorfinancialaffairsinthecircumstancesdescribedinthedocument.Otherwise,aregisteredappointmentshouldoperateaccordingtoitsterms.

16.132 Itisalsoappropriatetodeclareinnewguardianshiplegislationthatapersonalappointmentiseffectiveuntilitisrevokedbytheprincipal,byorderofVCAT,byanoccurrencereferredtointhedocument,byresignationoftherepresentative,orbythedeathoftheprincipal.

16.133 ItshouldbepossibleforapersonholdingapersonalappointmentoranyotherpersonwithaninterestintheaffairsoftheprincipaltoapplytoVCATfordirectionsabouttheextentofthatperson’spowersorabouthowthosepowersshouldbeexercised.

RECOmmENdaTIONSEffect of registration

273.Aregisteredpersonalappointmentispresumptiveevidencethattheprincipalreferredtointhedocumenthasappointedthepersonreferredtointhedocumentastheirrepresentativewithauthoritytoexercisethepowersinrelationtotheirpersonalorfinancialaffairsinthecircumstancesdescribedinthedocument.Aregisteredpersonalappointmentoperatesaccordingtoitstermsandiseffectiveuntilitisrevokedbytheprincipal,byorderofVCAT,byanoccurrencereferredtointhedocument,byresignationoftherepresentative,orbythedeathoftheprincipal.

Guidance about powers

274.ApersonholdingapersonalappointmentoranyotherpersonwithaninterestintheaffairsoftheprincipalmayapplytoVCATfordirectionsabouttheextentofthatperson’spowersorabouthowthosepowersshouldbeexercised.

aCCESS TO ThE REgISTER16.134 TheCommissionbelievesthattheregistershouldnotbeopentothepublicforsearch

atanytime.ThereisnopublicinterestinallowinganymemberofthecommunitytodiscoverwhetheronepersonhasappointedanothertomakedecisionsfortheminparticularcircumstancesorwhetherVCAThasappointedasubstitutedecisionmakerforaperson.

16.135 Accesstotheregistershouldbelimitedtothosepeopleandorganisationsthatneedtoknowwhetheronepersonhastheauthoritytomakedecisionsforanotherortoassistthemwhendoingso.Accesscanbelimitedtothosewhoneedtoknowinformationthatiskeptontheregisterbylicensingregularusersandbydecidingwhetheraccessshouldbegrantedonacase-by-casebasisfornon-regularusers.

16.136 Accesstotheregistershouldalsobelayered—peopleshouldbegivenaccesstotheamountofinformationtheyneedtoknowinorderforthemtoconducttheirdealingswithapersonwithimpaireddecision-makingability.Theamountofinformationaregularuserneedsisamatterfornegotiationwiththeofficialwhoissueslicencestoaccesstheregister.Theregistershouldoperateinsuchawaythatitgeneratesanelectronicrecordwheneverlicensedregularusersaccessanypartoftheregister.Inordertodiscouragepeoplefromtrawlingtheregister,itshouldbeanoffenceforalicensedregularusertoaccessanypartoftheregisterthattheydonothavealegitimateinterestinviewing.


16Chapter 16 A new registration scheme16.137 TheCommissionbelievesthatthe‘gatekeeper’functionofauthorisingaccesstothe

registerisbestperformedbythePublicAdvocatebecauseofherexpertiseinthewayinwhichpeoplewithimpaireddecision-makingabilityinteractwiththerestofthecommunity.The‘gatekeeper’wouldberequiredtolicenseregularusersanddecidethetermsoftheiraccess.The‘gatekeeper’wouldalsoconsiderapplicationsbynon-regularusersforaccesstotheregister.Fromtimetotime,businessesandotherswillhavealegitimateinterestinfindingoutwhetherapersonwithwhomtheyaredealinghassomeformofdecision-makingassistance.The‘gatekeeper’wouldberequiredtodetermineeachapplicationonitsmeritsandallowalevelofaccessthatwasappropriateinthecircumstancesordisallowtheapplicationiftherewerenodemonstratedneedtohaveaccesstoinformationontheregister.

16.138 Manyorganisationsandgroupsofpeopleoftenneedtoknowwhetheraparticularpersonhassomeformofdecision-makingassistance.Theseincludehospitals;medicalpractitioners;banksandotherfinancialinstitutions;theAgedCareAssessmentServiceinVictoria(ACAS);theRoyalDistrictNursingService;VictoriaPolice;AmbulanceVictoria;StateTrusteesandothertrusteecompanies;CommonwealthauthoritiessuchasMedicareandCentrelink;insurancecompanies;nursinghomes;andlegalpractitioners.Thislistisnotexhaustive,itmerelyseekstoillustratethemanydifferentpeopleandorganisationsthatarelikelytoberegularusersoftheonlineregister.

16.139 Regularusersshouldreceiveanannualrenewablelicencetoviewdesignatedpartsoftheregister,andshouldpayanannuallicencefee.Thecostsofoperatingtheregistercouldbemetinpartbytheproposedlicencefees.Becausetheregisterwillbeofconsiderablebenefittolargeorganisationssuchasbanksandhospitalsitseemsappropriatethattheypayforthisservice.

16.140 Theprincipalandhisorherrepresentativeshouldbeabletoviewthatpartoftheregisterthatconcernstheprincipal’sappointmentatanytime.Theyshouldalsobepermittedtoallowanythirdpersontoviewanddownloadthatpartoftheregister.AccesswouldbegainedbyuseofapasswordorPINallocatedtotheprincipalandtherepresentativeatthetimeofregistration.

RECOmmENdaTIONSAccess to the register

275.Onlyauthorisedpeopleandorganisationsshouldhaveaccesstotheregister.Itshouldbepossibleforpeopleauthorisedtoaccesstheregistertoviewonlinethosepartsoftheregistertheyarepermittedtoviewatanytime.OnlytheRegistrarofBirths,DeathsandMarriagesandthePublicAdvocateshouldbeauthorisedtohaveaccesstotheentireregister.

Access to the register by the principal and the representative

276.Theprincipalandtheirrepresentativeshouldbeabletoviewatanytimethatpartoftheregisterthatconcernstheprincipal’sappointmentoftherepresentativeandbothshouldbepermittedtoallowanythirdpersontoviewanddownloadthatpartoftheregister.

Public Advocate to authorise regular users

277.ThePublicAdvocateshouldbepermittedtoauthorisepeopleandorganisationsthatsatisfyherthattheywillberegular,appropriateandresponsibleusersoftheregistertohaveonlineaccesstothosepartsoftheregisterthatthePublicAdvocatebelievestheyshouldbeentitledtoviewanddownload.

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Annual licence and access fee

278.Regularusersshouldreceiveanannualrenewablelicencetoviewdesignatedpartsoftheregisterandtheyshouldpayanannuallicencefee.

Access to the register by regular users

279.LicensedregularusersshouldhaveaccesstothosepartsoftheregisterandtoalevelofdetailconcerningparticularpersonalappointmentsthatthePublicAdvocateconsiderstheyhavealegitimateinterestinviewing.Theregistershouldoperateinsuchawaythatitgeneratesanelectronicrecordwheneverlicensedregularusersaccessanypartoftheregister.Itshouldbeanoffenceforalicensedregularusertoaccessanypartoftheregisterthattheydonothavealegitimateinterestinviewing.

Public Advocate to authorise other users

280.ThePublicAdvocatemaygrantanypersonauthoritytoviewanypartoftheregisterifthePublicAdvocateissatisfiedthatthepersonhasalegitimateinterestinviewingthatpartoftheregister.Thereshouldbeafeetoviewtheregisterinthesecircumstances.

Transitional arrangements16.141 Itwillbenecessarytodeviseextensivetransitionalarrangementstodealwiththe

registrationandstatusofpersonalappointmentsmadepriortotheestablishmentoftheregister.Again,theCommissionurgestheAttorney-GeneraltoseekadvicefromtheRegistryWorkingGroupabouteffectivetransitionalarrangements.

16.142 Whileexistingappointmentsshouldcontinuetooperateaccordingtotheirterms,stepsshouldbetakentoregisterthemwheneverpossiblewithinareasonableperiod.Itwillbenecessarytoauthorisetheholderofanyexistingappointmenttoregisterthatdocument.Thisauthorisationcouldbegivenbydeeminganyexistingappointmenttoincludeapowertoregisterthedocument.

16.143 Itisanarbitraryexercisetodetermineaperiodwithinwhichexistingappointmentsshouldberegisteredinordertoremainvalid.TheCommissionsuggeststhataperiodoffiveyearsisappropriate.

16.144 InChapter10theCommissionrecommendedthattheregistrationofapersonalappointmentshouldrevokepreviousappointmentsmadeundertheG&AAct.However,itwasnotedthattheappointmentofanagentundertheMedical Treatment Act 1988(Vic)shouldsurvivetheregistrationofanappointmentofanenduringpersonalguardianundernewguardianshiplegislationunlesstheenduringpersonalguardianisgivenmedicaltreatmentdecision-makingpowers,includingthepowertocompletearefusaloftreatmentcertificate.

RECOmmENdaTIONSTransitional arrangements—earlier appointments

281.Personalappointmentsmadepriortotheintroductionofthenewguardianshiplegislationshouldcontinuetooperateaccordingtotheirterms.

282.Existingpersonalappointmentsshouldbedeemedtoincludeapowerthattheyberegisteredonthenewregister.

283.Existingpersonalappointmentsmustberegisteredwithinfiveyearsofthecommencementdateofnewguardianshiplegislationinordertobevalid.

Introduction 350 Current law 351 Community responses 353 ... · Chapter 16 A new registration...

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