Introduction 78 Current law 78 Other jurisdictions 81 ... · Guardianship and Management of...
Transcript of Introduction 78 Current law 78 Other jurisdictions 81 ... · Guardianship and Management of...
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6Chapter 6Principles of new laws
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CONTENTSIntroduction� 78
Current�law� 78
Other�jurisdictions� 81
Community�responses� 86
The�Commission’s�views�and�conclusions� 88
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6Chapter 6 Principles of new laws
INTROduCTION6.1 Modernlegislationoftenstartswithastatementofprinciples.Theseprinciplesserve
twobroadpurposes:theyprovideparliamentwithanopportunitytohighlightpoliciesthatthelegislationseekstoapplyandtheyprovideguidancetothosewhoexercisepowerunderthelegislation.
6.2 Becauseofthechallengesinbalancing,andsometimesprioritisingbetween,thefundamentalvaluesofautonomyandbeneficence,guardianshiplegislationshouldincludeprinciplesthatclearlyexplainthepoliciesimplementedbythelaw.Thoseprincipleswouldalsoguidepeople—suchastribunalmembers,thePublicAdvocate,StateTrustees,andguardiansandadministrators—whenapplyingthatlegislationandexercisingpoweroverthelivesofothers.
6.3 TheCommissionbelievesthattheexistingprinciplesinVictorianguardianshiplegislationshouldbemodernisedtoreflectthechangesdiscussedinChapters4and5.
6.4 Inthischapter,weconsidertheoverarchingprinciplesthatcouldbeincludedinnewguardianshiplegislation.InChapter7,weconsiderprinciplesinrelationtotheassessmentofdecision-makingcapacity,andinChapter17,weconsidermoredetaileddecision-makingprinciplestoguidesubstitutedecisionmakersinexercisingtheirpowers.
CuRRENT Law6.5 ThecoreprinciplesofthecurrentGuardianship and Administration Act 1986(Vic)
(G&AAct)canbefoundinthe‘Objects’section.The‘Purpose’oftheActmerelydescribestheAct’sprimarylegalfunction—theappointmentofguardiansandadministrators.1
ObjECTS Of ThE GuaRdIaNShIp aNd admINISTRaTION aCT 1986 (VIC)6.6 Section4describestheobjectsoftheG&AActas:
• toenabletheappointmentofaPublicAdvocate
• toenablethemakingofguardianshipandadministrationorders
• toensurepeoplewithadisabilityandrepresentedpersonsareinformedofandmakeuseoftheAct
• toprovidefortheappointmentofenduringguardians
• toprovideforconsenttospecialprocedures,medicalresearchproceduresandmedicalanddentaltreatmentonbehalfofpersonsincapableofgivingconsent
• toprovidefortheregistrationofinterstateguardianshipandadministrationorders.2
INTERpRETaTIVE pRINCIpLES6.7 Section4alsocontainsthreecoreprinciplesthatprovideaframeworkforusewhen
invokingandexercisingthesubstitutedecision-makingmechanismsestablishedintheAct.Theyarethat:
• Themeansthatareleast restrictiveofaperson’sfreedomofdecisionandactionasispossibleinthecircumstancesareadopted.
• Thebest interestsofapersonwithadisabilityarepromoted.
• Thewishesofapersonwithadisabilityare,whereverpossible,giveneffectto.3
1 Guardianship and Administration Act 1986 (Vic)s1.2 Ibids4(1).3 Ibids4(2).
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6.8 Theseprinciplesapplyto‘everyfunction,power,authority,discretion,jurisdictionanddutyconferredorimposed’bytheG&AAct.4However,theyarenotacomprehensivestatementoftheprinciplesthatunderpinthelegislationforothersemergefromsomeofthesubstantiveprovisionsintheAct.Theseinclude:
• thepreservationofexistingfamilyrelationships5
• theavoidanceofconflictsofinterests6
• encouragementofparticipationinthelifeofthecommunity7
• encouragementofthepersonbecomingcapableofmanagingtheiraffairs8
• advocacy9
• protectionfromabuse,neglectandexploitation.10
6.9 WhilethethreecoreprinciplesapplytoalldecisionsmadeundertheG&AAct,11inpracticetheyareappliedprimarilyintwocontexts:
• decisionsbytheVictorianCivilandAdministrativeTribunal(VCAT)aboutwhethertoappointasubstitutedecisionmaker
• theexerciseofpowersbyasubstitutedecisionmaker.
6.10 The‘leastrestrictive’principleismostcommonlyassociatedwiththedecisiontoappointasubstitutedecisionmaker,whilethe‘wishesoftheperson’andtheir‘bestinterests’areprimaryconsiderationswhenasubstitutedecisionmakerexercisestheirpowers.However,decisionmakersarerequiredtoapplyallthreeprinciplesineachofthesecircumstances.12
6.11 Inadditiontoconsideringthethreecoreprinciples,decisionmakersunderthecurrentActaresometimesrequiredtoapplyprinciplessetoutinotherpartsoftheAct.13ThismeansthatpeopleexercisingpowerundertheActcanberequiredtoconsidermanyseparate,butoverlapping,principlesinordertoactaccordingtolaw.
‘Least restrictive’ principle6.12 Theleastrestrictiveprincipleisakeyfeatureofmodernguardianshipregimes.14In
essence,itmeansthatifthereismorethanoneoptionavailableforthepersonwithimpairedcapacity,thedecisionmakershouldchoosetheonethatislessrestrictive.
4 Ibids4(2).5 Ibidss22(2)(c),23(2)(b).6 Ibidss23(1)(b),47(1)(c)(ii).7 Ibids28(2)(b).8 Ibidss28(2)(c),49(2)(a).9 Ibids28(2)(a).10 Ibids28(2)(d).11 TheapplicationoftheseprincipleswasconsideredindetailinthecaseofXYZ v State Trustees Ltd [2006]VSC444(22November2006)
[34–7],whereCavanoughJheldthatthematterssetoutins4(2)applytoeveryfunction,power,authority,discretion,jurisdictionanddutyconferredorimposedbytheAct.
12 XYZ v State Trustees Ltd [2006]VSC444(22November2006).13 Forexample,medicaldecisionsmustbemadeinthe‘bestinterests’ofthepatient,andthisinvolvestakingintoconsiderationavarietyof
legislativeconsiderationsoutlinedins38(1)oftheGuardianship and Administration Act 1986 (Vic),inadditiontotheoverarchingobjectsins4(2).
14 RobinCreyke,Who Can Decide? Legal Decision-Making for Others (DepartmentofHumanServicesandHealth,AgedandCommunityCareDivision(Commonwealth),1995)40–1;Minister’sCommitteeConsideringRightsandProtectiveLegislationforIntellectuallyHandicappedPersons,Report of the Minister’s Committee on Rights and Protective Legislation for Intellectually Handicapped Persons(1982)25;TerryCarneyandDavidTait,The Adult Guardianship Experiment: Tribunals and Popular Justice(FederationPress,1997)29;RobertMGordonandSimonNVerdun-Jones,Adult Guardianship Law in Canada(Carswell,1992)6-49–6-50;MarshallBKapp,‘LegalBasisofGuardianship’inGeorgeHZimnyandGeorgeTGrossberg(eds),Guardianship of the Elderly(SpringerPublishing,1998)16,22;QueenslandLawReformCommission,A Review of Queensland’s Guardianship Laws,ReportNo67(2010)vol1,40–1;AustralianLawReformCommission,Guardianship and Management of Property,ReportNo52(1989)[2.4].
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6Chapter 6 Principles of new laws6.13 AlthoughnotexplicitlystatedintheG&AAct,itisgenerallyacceptedthatthe‘least
restrictive’principlemeansthatbothguardianshipandadministrationshouldbeusedasalastresort,andlessformalarrangementsshouldbepreservedwheretheyareworkingsatisfactorily.15
6.14 Indeterminingwhetherthereisa‘need’toappointaguardianoranadministrator,16VCATmustconsider‘whethertheneedsoftheperson…couldbemetbyothermeanslessrestrictiveoftheperson’sfreedomofdecisionandaction’.17Forexample,VCATmightdecidethatexistinginformalfamilysupportarrangementsareworkingeffectivelyandnoformalorderisneeded.
6.15 IfVCATdecidestomakeaguardianshiporadministrationorder,thisordermustalsobe‘theleastrestrictiveofthatperson’sfreedomofdecisionandactionasispossibleinthecircumstances’.18Inpractice,thismeansthescopeoftheordershouldbelimitedtotheareaswhereformalsubstitutedecisionmakingisneeded.
‘best interests’ principle6.16 Actinginthebestinterestsofarepresentedpersonisthepredominantguiding
considerationforsubstitutedecisionmakerswhenexercisingtheirpowersundertheG&AAct.19
6.17 While‘bestinterests’isnotdefinedintheG&AAct,thelegislationprovidessomeguidanceaboutwhatitmeansforasubstitutedecisionmakertoactinthebestinterestsofaperson.Thisguidanceisdifferentforguardians20andadministrators,21anddifferentagainformedicaltreatmentdecisions22andmedicalresearchdecisions.23Inallthesecircumstances,theguidanceincludesarequirementtoconsiderthewishesoftheperson.
6.18 Whenappointingaguardianoradministrator,VCATmustalsobesatisfiedthattheappointmentisintheperson’sbestinterests,24andthattheappointedpersonwillactinthebestinterestsoftherepresentedperson.25
wishes of the person6.19 OneofthethreecoreprinciplesintheG&AActisthat‘thewishesofapersonwitha
disabilityarewhereverpossiblegiveneffectto’.26However,fulfillingaperson’swishesisjustoneofanumberofmattersthatasubstitutedecisionmakermustconsiderwhendecidingwhetheraproposeddecisionisinaperson’sbestinterests.
6.20 Inactinginthebestinterestsofaperson,guardiansandadministratorsarerequiredtoact‘inconsultationwiththerepresentedperson,takingintoaccountasfaraspossible,thewishesoftherepresentedperson’.27
15 ThiswascertainlytheintentionoftheCocksCommitteeReportthatledtotheG&AAct:seeMinister’sCommitteeonRightsandProtectiveLegislationforIntellectuallyHandicappedPersons,ParliamentofVictoria,Report of the Minister’s Committee on Rights and Protective Legislation for Intellectually Handicapped Persons(1982)19(‘Report of the Minister’s Committee’).
16 Guardianship and Administration Act 1986 (Vic)ss22(1)(c),46(1)(a)(iii).17 Ibidss22(2)(a),46(2)(a).18 Ibidss22(5),46(4).19 Guardiansandadministratorsmustactinthe‘bestinterests’oftherepresentedperson:ibidss28(1),49(1)).Similarly,indeterminingwhether
toconsenttomedicalordentaltreatment,the‘personresponsible’mustactinthe‘bestinterests’ofthepatient:ats42H(2).Seealso:ats38(1).
20 Guardianship and Administration Act 1986 (Vic)s28(2).21 Ibids49(2).22 Ibids38(1).23 Ibids42U(1).Thepersonresponsibleformedicalresearchdecisionsmustensurethatthemedicalresearchprocedure‘wouldnotbecontrary
tothebestinterestsofthepatient’:ats42S(3).24 Guardianship and Administration Act 1986 (Vic)ss22(3),46(3).25 Ibidss23(1)(a),47(1)(c)(i).26 Ibids4(2)(c).27 Ibidss28(2)(e),49(2)(b).
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6.21 Formedicaldecisionsandmedicalresearchdecisions,‘thewishesofthepatient,sofarastheycanbeascertained’mustbeconsideredindeterminingtheirbestinterests.28Whendecidingwhetherthereisaneedforaguardianoradministrator,andwhotheguardianoradministratorshouldbe,VCATmustconsider,amongotherthings,thewishesoftheperson‘sofarastheycanbeascertained’.29
OThER juRISdICTIONSCONVENTION ON ThE RIGhTS Of pERSONS wITh dISabILITIES6.22 Perhapsthemostsignificantinternationaldevelopmentintherightsofpeoplewith
impairedcapacityhasbeentheUnitedNationsConvention on the Rights of Persons with Disabilities(theConvention),whichwasratifiedbyAustraliaon17July2008.TheConventionprovidesanimportantframeworkforbuildingnewguardianshiplaws.
6.23 TheConvention’soverridingstatedpurposeisto‘promote,protectandensurethefullandequalenjoymentofallhumanrightsandfundamentalfreedomsbyallpersonswithdisabilities,andtopromoterespectfortheirinherentdignity’.30
6.24 TheConventionalsooutlinesitsgeneralprinciples,whichinclude:
• respectforaperson’sinherentdignity,individualautonomyincludingthefreedomtomaketheirownchoices,andindependence
• non-discrimination
• fullandeffectiveparticipationandinclusioninsociety
• respectfordifferenceandacceptanceofpeoplewithdisabilitiesaspartofhumandiversityandhumanity
• equalityofopportunity
• accessibility
• equalitybetweenmenandwomen
• respectfortheevolvingcapacitiesofchildrenwithdisabilitiesandrespectfortherightofchildrentopreservetheiridentities.31
6.25 TheConventionstronglyemphasisestheinherentdignityofpeoplewithdisabilities,andtheirrighttoparticipateinsocietyonanequalbasiswithothers.32
6.26 Article12oftheConventionhasdirectrelevancetoguardianshiplaws.Itrecognisestherightofpeoplewithdisabilitiestoberecognisedaspeoplebeforethelaw,theirrighttoenjoylegalcapacityonanequalbasiswithothers,andtheirrighttothesupportandassistancenecessaryforthemtoexercisetheirlegalcapacity.33Importantly,theConventionrequiresthatthissupport:
• respectstherights,willandpreferencesoftheperson
• isfreeofconflictofinterestandundueinfluence
28 Ibidss38(1)(a),42U(1)(a).29 Ibidss22(2)(ab),46(2)(b).Therelevanceofthewishesoftherepresentedpersontothecriteriaofwhetherthereisa‘need’foraguardian
oradministratorwasconsideredinXYZ v State Trustees Ltd [2006]VSC444(22November2006[34].InthiscaseCavanoughJfoundthatthegeneral‘object’ofgivingeffecttothewishesofthepersonwhereverpossiblewasrelevanttoaconsiderationofthe‘need’foranorder.In2006,theG&AActwasamendedtoexplicitlyrequireVCATtoconsiderthe‘wishesoftheperson…sofarastheycanbeascertained’inassessingtheneedforordersandwhoshouldbeappointed:seeGuardianship and Administration (Further Amendment) Act 2006(Vic)ss15(a),17(1).Determiningthe‘need’foraguardianoradministratorthereforerequiresVCATtoconsiderboththewishesofthepersonsofarastheycanbeascertained,andthebroaderrequirementthatVCATgiveeffecttothosewisheswhereverpossible:seeXYZ (Guardianship)[2007]VCAT1196(29June2007)[79](DeputyPresidentBillings).
30 Convention on the Rights of Persons with Disabilities,openedforsignature30March2007,999UNTS3(enteredintoforce3May2008)art1(‘Convention on the Rights of Persons with Disabilities’).
31 Ibidart3.32 See,eg,ibidarts1,3,9,12,19.33 Convention on the Rights of Persons with Disabilitiesarts12(1)–(3).
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6Chapter 6 Principles of new laws• isproportionalandtailoredtotheperson’scircumstances
• appliesfortheshortesttimepossible
• issubjecttoregularreviewbyacompetent,independentandimpartialauthority.34
6.27 Article12marksachangeinapproachtowardspeoplewithdecision-makingdisabilitiesbyplacinganobligationonstatestoprovideappropriatedecision-makingsupport.
6.28 Theconceptof‘participation’,whichisapracticalwayoffulfillingtheoverarchinggoalsofdignityandequality,isemphasisedthroughouttheConvention.35TheConventionrecognisesthat‘personswithdisabilitiescontinuetofacebarriersintheirparticipationasequalmembersofsocietyandviolationsoftheirhumanrightsinallpartsoftheworld’andobligesstatespartiestotakeactiontoensurethe‘fullandeffectiveparticipation’ofpeoplewithdisabilitiesinsociety.36
6.29 ThroughouttheCommission’sguardianshipreview,thegoalsandvaluesoftheConventionhavebeenwidelysupportedbystakeholdersinsubmissionsandconsultations.TheimportanceoftheConventionwasalsoendorsedbytheVictorianParliamentLawReformCommittee’srecentinquiryintopowersofattorney,37andrecentreviewsofguardianshiplawsinNewSouthWales38andQueensland.39
OThER auSTRaLIaN juRISdICTIONS6.30 Victoria’sG&AActwasoneoftheearliestmodernguardianshiplaws.EveryAustralian
stateandterritorynowhasguardianshiplawsthatarebroadlysimilartotheVictorianG&AAct.TheseActshavebeenintroducedoverthepastquartercentury,withtheQueenslandGuardianship and Administration Act 2000(Qld)themostrecent.
6.31 ThethreecoreprinciplesoftheG&AAct—‘bestinterests’,‘leastrestrictive’and‘wishes’—areincludedasoverarchingprinciplesinmostotherAustraliaguardianshiplaws.The‘bestinterests’principle,however,isnotacentralprincipleofguardianshiplawsinSouthAustraliaandQueensland,whichinsteademphasisetheuseofsubstitutedjudgment.40Thisapproachrequiresdecisionmakerstotrytodeterminethedecisiontheybelievethepersonwouldmakethemselvesinthecircumstances.
Queensland6.32 OfalltheAustralianjurisdictions,Queenslandhasthemostcomprehensivesetof
rightsandprinciplesinitsguardianshiplaws.Queensland’slawsincludeprinciplesandhumanrightsstatementsthatarenotfoundinotherguardianshiplaws.
6.33 TheprinciplesthatguidetheimplementationofQueensland’sguardianshiplawsarelargelyfoundinschedule1oftheAct,butarealsoexpressedthroughthestatedpurposeandacknowledgementsoftheAct.
6.34 SomeofthekeyprinciplescurrentlyexpressedinQueenslandguardianshiplawsinclude:
34 Ibidart12(4).35 Ibidarts1,3(c),5(3),9(1),12(3),29,30.36 Ibidpreamble(k),arts3(c),4.37 LawReformCommittee,ParliamentofVictoria,Inquiry into Powers of Attorney(2010)42(‘Inquiry into Powers of Attorney’).38 StandingCommitteeonSocialIssues,NSWLegislativeCouncil,Substitute Decision-making for People Lacking Capacity(2010)61–2.39 QueenslandLawReformCommission,A Review of Queensland’s Guardianship Laws,ReportNo67(2010)vol1,33–149(‘A Review of
Queensland’s Guardianship Laws’).40 Theterm‘bestinterests’doesnotappearasacoreprincipleinSouthAustralianandQueenslandguardianshiplaws,otherthaninthecontext
ofmedicaldecisionmaking.However,theselawsdorequiredecisionsandactionstobeconsistentwiththe‘propercareandprotectionoftheperson’:seeGuardianship and Administration Act 2000(Qld)sch1pt1cl7(5);Guardianship and Administration Act 1993 (SA)s5(d).TheACTreferstothe‘interests’oftheperson,whicharedefinedins5AoftheGuardianship and Management of Property Act 1991(ACT).
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• apresumptionofcapacity41
• therightofalladultstoequalityofhumanrights42
• recognitionofthedignityandindividualvalueofadults43
• therightofanadulttobevaluedasamemberofsociety,encouragingtheadulttoperformvaluedsocialroles,andencouragingtheadulttoparticipateincommunitylife44
• encouragementofself-reliance45
• maintainingexistingsupportiverelationships46
• maintainingculturalenvironmentsandvalues47
• theimportanceofactinginawaythatisappropriatetotheadult’scharacteristicsandneeds48
• arighttoconfidentiality.49
6.35 Queenslandalsoemphasisestheimportanceofthefollowingmattersinrelationtodecisionmaking:
• anadult’srighttoparticipateindecisionsthataffecttheadult’slife50
• preservingtheadult’srighttomakedecisionstothegreatestpossibleextent,includingprovidingthemwithanynecessarysupportandaccesstoinformationtoenablethemtoparticipateindecisionsaffectingtheir’life51
• theuseofsubstitutedjudgmentwhereappropriate52
• actingconsistentlywiththepropercareandprotectionoftheadult.53
Queensland Law Reform Commission6.36 In2010,theQueenslandLawReformCommissionreleasedanextensivefinalreportof
itsreviewofQueensland’sguardianshiplaws.54ThisreportrecommendedamendmentstotheprinciplesofQueensland’sguardianshiplawstobringtheminlinewiththeConvention,andtomakethemmorelogicalandeasiertoapply.55
6.37 Theserecommendationsincluded:
• providingadditionalguidanceaboutthecontentofthehumanrightsandfundamentalfreedomsofadults—inlinewiththeConvention’sgeneralprinciples56
• thecreationofanewprincipleof‘maximisinganadult’sparticipationindecisionmaking’57
41 Guardianship and Administration Act 2000(Qld)sch1pt1cl1.42 Ibidsch1pt1cl2.43 Ibidsch1pt1cl3.44 Ibidsch1pt1cls4,5.45 Ibidsch1pt1cl6.46 Ibidsch1pt1cl8.47 Ibidsch1pt1cl9.48 Ibidsch1pt1cl10.49 Ibidpt1cl11.50 Ibidsch1pt1cl7(1).51 Ibidsch1pt1cls2,3(a).52 Ibidsch1pt1cl7(4).53 Ibidsch1pt1cl7(5).54 A Review of Queensland’s Guardianship Laws,aboven39,vol1.55 Ibidvol1,62.56 Ibidvol1,70–74.57 Ibidvol1,105–6.
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6Chapter 6 Principles of new laws• removingthe‘appropriatetocircumstances’principleonthebasisthatitdoesnot
addsignificantlytotheotherprinciples.58
6.38 TheQueenslandGovernmentsupportedmostoftheCommission’srecommendations.59
6.39 OneofthemostsignificantrecommendationswastoamendtheguidancefordecisionmakingundertheAct.60TheQueenslandLawReformCommissionprovidedamajorityandminorityviewabouthowthelawshouldchange,andtheQueenslandGovernmenthasindicatedsupportfortheminorityview.Thisviewemphasisestherecognitionofanadult’srighttomaketheirowndecisionsiftheyareabletodosoorcanbesupportedtodoso,andtheuseoftheprincipleof‘substitutedjudgment’asthebasisfordecisionmakingwherethisisnotpossible.61WediscusstheQueenslandLawReformCommission’sproposalinmoredetailinChapter17,whereweconsidertheprinciplesthatshouldguidesubstitutedecisionmakers.
6.40 TheCommissionbelievesthatboththecurrentgeneralprinciplesofQueensland’sguardianshiplegislationandtherecentrecommendationsoftheQueenslandLawReformCommissionrepresentimportantdevelopmentsintheevolutionofmodernguardianshiplaws.TheCommissionhasdrawnsignificantlyuponthesedevelopmentsinthecreationofitsownsetofrecommendationsforguardianshipprinciples.
OThER VICTORIaN LawS
Charter of human Rights and Responsibilities6.41 VictoriaisoneoftwoAustralianjurisdictionswithacharterofrights.62TheCharter of
Human Rights and Responsibilities Act 2006(Vic)(theCharter)cameintofulloperationon1January2008.63TheChartergivesstatutoryrecognitionto20civilandpoliticalrightsandfreedomsprimarilyderivedfromtheInternational Covenant on Civil and Political Rights.64ThepurposeoftheCharter,discussedindetailinChapter4,istoprotectandpromotethehumanrightsofallpeopleinVictoria.65TheCharterprovidesthatlegislationistobedevelopedandinterpretedcompatiblywithhumanrights.66
disability act6.42 TheDisability Act 2006 (Vic) providesacomprehensivesetofprinciplesthatapplyto
theprovisionofservicestopeoplewithdisabilitiesinVictoria,otherthandisabilitiesrelatedsolelytomentalillnessorageing.InChapter4,wediscussthedevelopmentoftheDisabilityActinVictoriainmoredetail.
6.43 ThecoreprinciplesintheDisabilityActemphasisethatpeoplewithdisabilitieshavethesamerightsandresponsibilitiesasothermembersofthecommunityto:
(a) respectfortheirhumanworthanddignityasindividuals
(b) livefreefromabuse,neglectorexploitation
58 Ibidvol1,118–122.59 QueenslandDepartmentofJusticeandAttorneyGeneral,Queensland Government Initial Response to the Queensland Law Reform
Commission’s Report: A Review of Queensland’s Guardianship Laws(2011)7–15(‘Queensland Government Initial Response to the Queensland Law Reform Commission’s Report’).
60 A Review of Queensland’s Guardianship Laws,aboven39,vol1,74–106.ThisrecommendationcontainedamajorityandminorityviewoftheCommissioners.
61 A Review of Queensland’s Guardianship Laws,aboven39,74–106;Queensland Government Initial Response to the Queensland Law Reform Commission’s Report,aboven59,12–14.
62 TheotheristheAustralianCapitalTerritory:seeHuman Rights Act 2004(ACT).63 Charter of Human Rights and Responsibilities Act 2006(Vic)s2.64 International Covenant on Civil and Political Rights,openedforsignature16December1966,999UNTS171(enteredintoforce23March
1976);ExplanatoryMemorandum,CharterofHumanRightsandResponsibilitiesBill2006(Vic)1.65 Charter of Human Rights and Responsibilities Act 2006 (Vic)s1.‘Person’isdefinedins3(1)tomeanahumanbeing,and‘child’meansa
personundertheageof18years.66 Charter of Human Rights and Responsibilities Act 2006(Vic)pt3.
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(c) realisetheirindividualcapacityforphysical,social,emotionalandintellectualdevelopment
(d) exercisecontrolovertheirownlives
(e) participateactivelyinthedecisionsthataffecttheirlives,andhaveinformationandsupportwherenecessary,toenablethistooccur
(f) accessinformationandcommunicateinamannerappropriatetotheircommunicationandculturalneeds
(g) accessservicesthatsupporttheirqualityoflife.67
6.44 TheDisabilityActalsoincludesimportantprinciplesaboutdevelopingserviceplansforpeoplewithdisabilities.68Theseprinciplescomplementtheprinciplesinguardianshiplaws.69
Victorian parliament Law Reform Committee Inquiry into powers of attorney6.45 TheVictorianParliamentLawReformCommittee’sreviewofenduringpowersof
attorney(financial)andenduringpowersofguardianshipconsideredthe‘foundingprinciples’thatshouldgovernallaspectsofanew‘PowersofAttorneyAct’,aswellasmorespecificprinciplesinrelationtocapacityanddecisionmaking.Thisreportwastheresultofextensivestakeholderconsultation,andtheCommissionseekstobuildupontheLawReformCommittee’sideasinthecontextofguardianshiplaws.
6.46 TheCommitteearguedthattheConventionshouldbecentraltonewpowersofattorneylegislation.Itrecommendedtwofoundationalprinciples.Thesearethatpeoplemustexercisetheirpowersandfunctionsinrelationtoapersonwithimpairedcapacity:
• inawaythatisasleastrestrictiveoftheperson’sfreedomofdecisionandactionasispossibleinthecircumstances
• sothatthepersonisprovidedwithappropriatesupporttoallowthemtoexercisetheirlegalcapacitytothemaximumextentpossible.70
6.47 TheCommitteerecommendedalegislativepresumptionofcapacity,aswellastheinclusionofdefinitionsofcapacityandincapacity.71
6.48 Inrelationtodecisionmakingbypeopleappointedunderpowersofattorney,theCommitteerecommendedthat:
• Thestartingpointforanydecisionmakingshouldbetheperson’sstatedwishes.
• Peopleshouldbeencouragedtoparticipateindecisionmaking,evenwhentheyhaveimpaireddecision-makingcapacity.
• Representativesmustactinawaythatpromotesthepersonalandsocialwellbeingoftheperson.72
6.49 Guidancearoundthe‘personalandsocialwellbeingoftheperson’shouldincludematterssuchas:
• recognisingtheperson’sroleasavaluedmemberofsociety
67 Disability Act 2006 (Vic)s5.68 Ibids52(2).69 RobinCreyke,Who Can Decide? Legal Decision-making for Others(DepartmentofHumanServicesandHealth,AgedandCommunityCare
Division(Commonwealth),1995)44–5.70 Inquiry into Powers of Attorney,aboven37,41–2.71 Ibid109–113.72 Ibid172–4.
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6Chapter 6 Principles of new laws• takingintoaccounttheperson’sexistingsupportiverelationships,valuesand
culturalandlinguisticenvironment
• recognisingtheperson’srighttoconfidentialityofinformation.73
COmmuNITy RESpONSES6.50 WhilethecoreprinciplesoftheG&AActhaveservedVictoriawelloverthepast26
years,theCommissionbelievesthattheyshouldbemodernised.Intheconsultationpaper,theCommissionproposedanewdraftstatementofpurposeandnewdraftprinciples.
6.51 ThoseproposalsweredrawnfromdevelopmentsinAustralia,inothercomparablejurisdictions,andininternationalhumanrights,togetherwithproposalsandresponsesfromthecommunity.
dRafT puRpOSE6.52 TheCommissionproposedthefollowingpurposefornewguardianshiplaws:
ThepurposeofthisActistoprotectandpromotethedignityandhumanrightsofpeoplewithimpaireddecision-makingcapacity.Tothisend,theActestablishesmechanismstosupportandassistpeopletoparticipateindecisionsthataffecttheirlives,realisetheirrightsandprotecttheirinherentdignity.
6.53 Manyorganisationssupportedthedraftpurpose.74Therewerealsosomesuggestionsabouthowitcouldbeimproved.
6.54 Someresponsessuggestedthattheproposedpurposedoesnotmakeitsufficientlyclearthatguardianshiplawsauthorisesubstitutedecisionmaking.75
dRafT pRINCIpLES6.55 ManypeopleandorganisationsrespondedtotheCommission’snewdraftprinciples
whichwere:
Alladultshaveaninherenthumandignitywhichmustatalltimesberespectedandupheld.
Alladultsareentitledtothesamebasichumanrights,andshouldbeempoweredtoexercisethoserightswhereverpossible.
Alladultsarepresumedtohavetheabilitytomakedecisionsthataffecttheirlivesunlessthisisshownnottobethecase.
Theassessmentofanadult’sdecision-makingcapacitymusttakeintoaccountthefollowing:
– Capacityisspecifictoeachdecisiontobemade.
– Impaireddecision-makingcapacitymaybetemporaryorpermanentandcanfluctuateovertime.
Whereapersonisfoundtobeunabletomakeadecision,anydecisionmadeontheirbehalfshould,asfaraspossible,bethedecisionthatthedecisionmakerbelievesthepersonwouldhavemadeiftheywereableto.
Alladults,regardlessoftheirabilitytomakedecisions,havewishesandpreferencesthatcanandshouldinformdecisionsmadeintheirlives.
73 Ibid174.74 SubmissionsCP24(AutismVictoria),CP29(STARVictoria),CP46(VictorianCoalitionofABIServiceProviders),CP59(CarersVictoria),CP
65(CouncilontheAgeingVictoria),CP70(StateTrusteesLimited),CP71(SeniorsRightsVictoria),CP73(VictoriaLegalAid),CP77(LawInstituteofVictoria)andCP78(MentalHealthLegalCentre).
75 ConsultationwithJulianGardner(29March2011);SubmissionsCP27(CatholicArchdioceseofMelbourne)andCP67(TrusteeCorporationsAssociationofAustralia).
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Alladultsareentitledtothesupportnecessaryforthemtomakeorparticipateindecisionsaffectingtheirlives.
Alladultsareentitledtotakereasonablerisksandmakechoicesthatotherpeoplemightdisagreewith.
Alladultshavetherighttocommunicateinanywaythatallowsthemtounderstandandbeunderstood.
Alladultsareentitledtoliveinsafetyandsecurityandtobeprotectedfromabuse,neglectandexploitation.
Anylimitationsontheabilityofadultstomakedecisionsthataffecttheirlivesmustbejustified,reasonableandproportionate.
6.56 Amajorityofsubmissionssupportedtheproposedprinciplesfully76orinpart.77Therewerealsomanysuggestionsabouthowtheseprinciplescouldbeimproved.
6.57 ThePublicAdvocatesuggestedthatthegeneralprinciplesshoulddescribethecentralpurposesofguardianshiplawsmorebroadly,andthatsomeoftheproposeddecision-makingprinciplescouldbedealtwithseparately.78
6.58 ScopeandtheCentrefortheAdvancementofLawandMentalHealtharguedthattheprinciplesshouldgivemoreprominencetotheprincipleofsupporteddecisionmaking.79
6.59 TheVictorianEqualOpportunityandHumanRightsCommissionsuggestedthattheprinciplesforguardianshiplawsshouldbemorecloselyalignedwiththeConventionandtheCharter,andcitedtheQueenslandLawReformCommission’sproposals—whichattempttoincorporatesomeofthelanguageandprinciplesoftheConvention—asausefulmodelforVictoria.80
6.60 DisabilityDiscriminationLegalServiceandtheFederationofCommunityLegalCentresproposedthattheprinciplesspecificallyrefertotherightscontainedintheConvention.81
6.61 ActionforMoreIndependence&DignityinAccommodationwasparticularlyconcernedthatprinciplesofguardianshiplawsrecognisearoleforadvocacy,independentoftheroleofsubstitutedecisionmakers.82
6.62 AnitaSmith,PresidentoftheTasmanianGuardianshipandAdministrationBoardandChairoftheAustralianGuardianshipandAdministrationCouncil,feltthattheexistingprinciplesofguardianshiplawsstruckaneffectivebalance,andwarnedthataddingtoomanyprinciplescouldunderminetheireffectiveness.83
6.63 TheCatholicArchdioceseofMelbourneandtheAustralianChristianLobbyarguedthattheCommission’sproposedprinciplesreflectedstronglyindividualisticvalues,ratherthanamorecommunity-basedunderstandingofdisability,whichtheyfavoured.84
76 SubmissionsCP22(Alzheimer’sAustraliaVic),CP29(STARVictoria),CP57(AgedCareAssessmentServiceinVictoria),CP61(DisabilityServicesCommissioner),CP71(SeniorsRightsVictoria),CP75(FederationofCommunityLegalCentres(Victoria))andCP78(MentalHealthLegalCentre).
77 SubmissionsCP45(ScopeVic),CP46(VictorianCoalitionofABIServiceProviders),CP67(TrusteeCorporationsAssociationofAustralia),CP70(StateTrusteesLimited),CP73(VictoriaLegalAid)andCP77(LawInstituteofVictoria).
78 SubmissionCP19(OfficeofthePublicAdvocate).79 SubmissionsCP45(ScopeVic)andCP48(CentrefortheAdvancementofLawandMentalHealth—MonashUniversity).80 SubmissionCP66(VictorianEqualOpportunityandHumanRightsCommission).81 SubmissionsCP56(DisabilityDiscriminationLegalService),CP75(FederationofCommunityLegalCentres(Victoria)).82 SubmissionCP21(ActionforMoreIndependence&DignityinAccommodation).83 ConsultationwithAnitaSmith(21February2011).84 SubmissionCP27(CatholicArchdioceseofMelbourne)andCP31(AustralianChristianLobby).
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6Chapter 6 Principles of new laws
Inclusion of additional principles6.64 Intheconsultationpaper,theCommissionaskediftwofurtherprinciplesshouldbe
includedinlegislation:
• Recognitionofcultureandreligion.
• Recognitionoftheroleoffamilies,friendsandcaringrelationships.
6.65 Theinclusionofboththeseprincipleswasgenerallysupportedinconsultationsandsubmissions.85
6.66 TheMentalHealthLegalCentrearguedagainstspecificreferencetofamilies,carersorsupportiverelationships,outofconcernthatthismayascriberightstothesepeoplebeyondtheperson’swishes.86
ThE COmmISSION’S VIEwS aNd CONCLuSIONS6.67 TheCommissionbelievesthattheprinciplesunderpinningguardianshiplawsneed
tobemodernised.Theyshouldbeablendofexistingprinciplesthatremainrelevantandnewprinciples—perhapsmostclearlyarticulatedintheConvention—thatreflectcontemporaryvaluesconcerningpeoplewithimpaireddecision-makingability.TherearefourpartstotheCommission’srecommendednewlegislativeprinciples:
• astatementofpurpose
• generalprinciplesthatincludeapresumptionofcapacity
• capacityassessmentprinciples(discussedinChapter7)
• decision-makingprinciplesforsubstitutedecisionmakers(discussedinChapter17).
6.68 TheCommissionhasmadeseveralchangestotheprinciplesitproposedintheconsultationpaperinlightofcommunityresponses.
puRpOSE Of LawS6.69 TheCommissionbelievesthatanewstatementofpurposeshoulddescribethegoals
ofthelegislation.Whilethevaluesofthedraftpurposeoutlinedintheconsultationpaperwerelargelysupportedinsubmissions,theCommissionacceptstheobservationthattheproposedpurposeshouldrefertotheongoinguseofsubstitutedecisionmaking,aswellpromotingtheuseofsupporteddecisionmakingwherepossible.
6.70 ConsistentwithsimilarpurposeprovisionsinotherVictorianlegislation,theCommissionbelievestheproposedpurposecouldmorefullyoutlinethekeygoalsofguardianshiplaws,namely:
• supportingandassistingpeopletomaketheirowndecisionswherepossible
• appointingsubstitutedecisionmakersforpeoplewhoareunabletomaketheirowndecisionswithsupport,andguidingthosesubstitutedecisionmakersinexercisingtheirpowers
• ensuringthatsupportandsubstitutedecision-makingarrangementsestablishedunderguardianshiplawsareappropriatetothespecificcircumstancesoftheperson,andremainappropriateovertime
• safeguardingagainsttheabuse,neglectandexploitationofpeoplewithimpaireddecision-makingability.
85 Foreg,SubmissionsCP24(AutismVictoria),CP32(EthnicCommunities’CouncilofVictoria),CP59(CarersVictoria)andCP73(VictoriaLegalAid).
86 SubmissionCP78(MentalHealthLegalCentre).
89
6.71 WhilethedraftingofthepurposeofnewlawswillultimatelybeamatterfortheOfficeofChiefParliamentaryCounselandtheVictorianParliament,theCommissionhasproposedanamendedpurposefornewguardianshiplaws.
RECOmmENdaTIONA new purpose
20. ThepurposeofthisActistoprotectandpromotethedignityandhumanrightsofpeoplewithimpaireddecision-makingability.Tothisend,theActestablishesmechanismsto:
(a) supportandassistpeopletomake,participatein,orimplementdecisionsthataffecttheirlives
(b) appointandguidesubstitutedecisionmakers
(c) ensuretheongoingappropriatenessofsupportandsubstitutedecision-makingarrangements
(d) safeguardagainsttheabuse,neglectandexploitationofpeoplewithimpaireddecision-makingability.
New general principles6.72 TheCommissionbelievesthatnewprinciplesshouldclearlyexplainthevaluesupon
whichthelawisbasedandguidetheinterpretationofguardianshiplaws.TheseincludeprinciplesthatareatthecoreoftheConvention,suchas:
• Respectforthedignityofallpeople.87
• Recognitionthatpeoplewithimpairedcapacityhavethesamerightsandfreedomsasothermembersofthecommunity.88
• Supportfortheprincipleofsupporteddecisionmaking.89
6.73 IntheconsultationpapertheCommissionproposedanumberofgeneralprinciplestoguidenewguardianshiplaws.Theyincluded:
• Aclearrestatementoftherightofallpeopletoapresumptionofcapacity.
• Arecognitionoftheimportanceoftherightofpeoplewithimpaireddecision-makingabilitytotakereasonablerisks.
• Anacknowledgementoftheimportanceofpeoplebeingabletoparticipateinthelifeofthecommunityonanequalbasis.
• Arightforpeopletocommunicateinawaytheycanunderstand,andwhichallowsthemtobeunderstoodbyothers.
• Arightforpeopletoliveinsafetyandsecurity,andtobeprotectedfromabuse,neglectandexploitation.
• Aguidingprinciplethatanylimitationsplacedonaperson’sabilitytomaketheirowndecisionsshouldbereasonable,justifiedandproportionate.
87 Convention on the Rights of Persons with Disabilitiesart3.88 Ibidarts3,5.89 Ibidart12.
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6Chapter 6 Principles of new laws6.74 Asseveralsubmissionspointedout,theremaybeconflictbetweensomeofthese
principlesattimes.Forexample,whatsomepeoplemightperceiveasa‘reasonablerisk’forapersonwithimpaireddecision-makingability,othersmightseeasabusiveorneglectfulbehaviour.
6.75 Whileprinciplesalonecannoteasilyresolvealldifficultdecisionsthatneedtomadeunderguardianshiplaws,theydoprovideanaccessiblesetofvaluestoguidethosedecisions.
6.76 TheCommissionhasrefinedthedraftprinciplesintheconsultationpaper.Inlinewithcommunityresponses,theCommissionrecommendsthreeimportantchanges:
• TheprinciplesshouldexplicitlyacknowledgetherightsoutlinedintheCharterofHumanRightsandResponsibilitiesandtheConvention on the Rights of Persons with Disabilities.
• Theprinciplesshouldacknowledgetheimportanceofrespectforaperson’sculturalandlinguisticcircumstances,andtheirvaluesandbeliefs.
• Theprinciplesshouldacknowledgetheimportanceofsupportiverelationshipsinthelifeoftheperson.
6.77 Further,theCommissionbelievesthatratherthanbeingcastasapplyingto‘alladults’,theapplicationoftheprinciplesshouldbemorespecificallytargetedtopeoplewith‘impaireddecision-makingability’,asthesearethepeoplewhoserightsandinterestsaredirectlyaffectedbyguardianshiplaws.
6.78 TheCommissionbelievesthatforeaseofuse,principlesconcerningtheassessmentofcapacityandtheprocessofsubstitutedecisionmakingshouldbedealtwithseparatelyinnewguardianshiplaws.
Recognition of the Charter and the Convention6.79 ThehumanrightsprotectionsintheConventionandtheCharterareofparticular
importancetopeoplewithimpaireddecision-makingabilitybecauseoftheiremphasisuponequalityandparticipation.
6.80 TheCharter,whichhasbeeninoperationsince2008,hasbeenutilisedtoprotecttherightsofpeoplewithimpairedcapacityinanumberofcases.90
6.81 TheConventionwasratifiedbyAustraliaon17July2008andon21August2009AustraliaratifiedtheOptionalProtocol,whichallowsindividualcitizenstomakeacomplaintaboutviolationsoftheConvention.
6.82 WhileboththeConventionandtheCharteralreadyformpartoftheframeworkofhumanrightsprotectionsinVictoria,theCommissionbelievesthereissignificantvalueinrecognisingtheseinstrumentsaslegitimatesourcesofinterpretationofVictorianguardianshiplaws.
Respect for cultural and linguistic circumstances, and values and beliefs6.83 Thisprinciple,whichisexplicitlyrecognisedinguardianshiplawsinNewSouthWales,
WesternAustralia,andQueensland,91wasstronglysupportedintheCommission’sconsultations.Aconsistentthemethatemergedwastheneedforlawstobesufficientlyflexibletopreserveandupholdthediverseculturalvaluesandpracticesofpeoplewithimpaireddecision-makingability.92
90 See,eg,Kracke v Mental Health Review Board[2009]VCAT646;PJB v Melbourne Health[2011]VSC327.91 Guardianship Act 1987(NSW)s4(e);Guardianship and Administration Act 1990(WA)ss51(2)(h),70(2)(h);Guardianship and Administration
Act 2000(Qld)sch1pt1cl9.92 Foreg,roundtableswithmembersofMigrantcommunities(inpartnershipwithSpectrumMigrantResourceCentre)(19May2011)and
TurkishandVietnamesegroups(inpartnershipwithAdvocacyDisabilityEthnicityCommunity)(10May2011);SubmissionCP32(EthnicCommunities’CouncilofVictoria).
91
6.84 RespectforculturalandlinguisticidentityandvaluesformsanimportantprotectionintheCharter93andtheConvention.94Forthesereasons,theCommissionbelievesthereisvalueinprinciplesofguardianshiplawsspecificallyrecognisingtheculturalandlinguisticcircumstancesandvaluesofpeoplewithimpaireddecision-makingability.
Recognition of supportive relationships6.85 Theroleofsupportiverelationshipsinthelivesofpeoplewithimpairedcapacity—
includingfamily,friends,advocates,andotherrelationshipsofimportancetotheperson—wasconsistentlyemphasisedinconsultationsandsubmissions.Anumberofgroupsarguedthattheproposedgeneralprinciplesdidnotadequatelyaddresstheroleofcaringfamiliesinthelivesofpeoplewithimpaireddecision-makingability.95ActionforMoreIndependence&DignityinAccommodationarguedthattheroleofadvocateswasnotgivenadequaterecognition.96
6.86 Supportiverelationships—and,inparticular,supportivefamilyrelationships—areacrucialpartofthelivesofmostpeoplewithimpaireddecision-makingability.Astheuseofguardianshiplawsoftenaffectstheserelationships,itisappropriatethatpeopleexercisingpowerunderguardianshiplawsconsidertheimpactoftheirdecisionsuponthem.
6.87 TheG&AActalreadyexplicitlyacknowledgessupportiverelationships.Forexample,VCATisrequiredtoconsider‘thedesirabilityofpreservingexistingfamilyrelationships’inrelationtoappointmentsofguardians.97TheCommission’srecommendationseekstoensureagreateremphasisisplacedonsupportiverelationshipswhenmakingalldecisionsundertheAct.
6.88 TheCommissionhaschosenthebroadterm‘supportiverelationships’,ratherthanreferringto‘family’or‘carers’.Thisisnotintendedtoexcludefamilyorcarers,butrecognisesthatsomepeoplemayhaveimportantnon-familyrelationshipsthatshouldbeconsideredandrecognised.Theuseoftheterm‘supportive’seekstoexcludearequirementtorecogniserelationshipsthathavebrokendownandaredamagingtheperson.
Application of principles—‘people with impaired decision-making ability’6.89 TheCommission’sdraftgeneralprincipleswereexpressedtoapplyto‘alladults’.The
Commissionnowbelievesthatitissimplerandmoreeffectivetoapplytheprinciplesto‘peoplewithimpaireddecision-makingability’.
6.90 Onereasonforthechangeinemphasisisthattheprinciplesmaynolongerapplyonlytopeopleovertheageof18,astheCommissionisrecommendinginChapter22thatguardiansandadministratorsshouldbeabletobeappointedforpeopleaged16yearsorolder.
6.91 TheCommissionalsobelievesthatthefocusoftheprinciplesshouldbeonthegroupofpeopletheActseekstoassist:peoplewithimpaireddecision-makingability.Describingthepeopleactuallyaffectedbytheprinciplesismorelogical,andprovidescontextfortheparticularvaluesthelawseekstoprotect.98
93 Charter of Human Rights and Responsibilities Act 2006(Vic)s19.94 Convention on the Rights of Persons with Disabilitiesart30.95 Roundtableswithmetropolitancarers(inpartnershipwithCarersVictoria)(24March2011),carersinHastings(inpartnershipwithCarers
Victoria)(29March2011),carers,advocatesandserviceprovidersinBendigo(inpartnershipwithRegionalInformation&AdvocacyCouncil)(30March2011);SubmissionsCP29(STARVictoria)andCP59(CarersVictoria).
96 SubmissionCP21(ActionforMoreIndependence&DignityinAccommodation).97 Guardianship and Administration Act 1986(Vic)ss22(2)(c),23(2)(b).98 ThoughtheActisprimarilyconcernedwithpeoplewithimpaireddecision-makingability,italsoestablishesthePublicAdvocatewhoserolein
protectingandpromotingtherightsofpeoplewithadisabilityisnotlimitedsolelytopeoplewhosedecision-makingabilityisimpaired.TheproposedprinciplesofnewguardianshiplawsarenotintendedtolimitthePublicAdvocate’srole.
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6Chapter 6 Principles of new laws6.92 Thisnarrowingofthescopeoftheapplicationofprinciplesalsorequiresthatthe
presumptionofcapacityprecedetheotherprinciples.WhiletheCommissiondoesnotintendthepresumptionofcapacitytoapplytoallchildren,itmayhaveapplicationforyoungpeopleundertheageof18whoareabletosatisfytheGillick‘matureminor’testendorsedbytheHighCourtinMarion’s case.99
‘Best interests’ should no longer be part of the general principles6.93 Asforeshadowedintheconsultationpaper,theCommissiondoesnotbelievethat
‘bestinterests’shouldcontinuetobeageneralprinciplegoverningtheapplicationofallaspectsofguardianshiplaws.
6.94 InChapter17,theCommissionrecommendsthatthephrase‘bestinterestsoftheperson’shouldbereplacedwiththe‘promotionofthepersonalandsocialwellbeingoftheperson’asaguidingprincipleforsubstitutedecisionmaking.ThePublicAdvocate,amongothers,proposedthischange.Whilethe‘bestinterests’principleinmodernguardianshiplawsencompassesaconsiderationoftheperson’swishes,100thePublicAdvocatehasargued:
Incommonusage,‘bestinterests’hascometobeassociatednegativelywithpaternalismwhichitselfisperceivednegativelyasbeingantitheticaltoindividualrights.WhilstthismaybeamisinterpretationoftheAct,itcreatesaproblemincommunityunderstandingandacceptanceofthelegislation.101
6.95 Theconceptof‘bestinterests’hasbeenjudiciallycriticisedforbeingunclearandreliantuponanoutcomebasedonthevaluesofthepersonapplyingthetest.102Ithasalsobeencriticisedonthebasisthatithaspaternalisticconnotationsbecauseitisatestappliedwhenmakingdecisionsforchildren.103
6.96 Whilethepromotionofthe‘personalandsocialwellbeing’ofapersonremainsanimportantprinciplefortheexerciseofvariousfunctionsandpowersunderguardianshiplaws,theCommissionbelievesthatthisprinciplealsodoesnotsitcomfortablywithinastatementofgeneralprinciples.Thisisbecauseitisaprinciplethathasprimaryapplicationinrelationtosubstitutedecisionmaking.
Limitations should be justified, reasonable and proportionate6.97 The‘leastrestrictive’principlehasbeenanimportantfeatureofguardianshiplaws,
bothinAustraliaandoverseas.104Inpractice,thisprinciplehastheeffectthat:
• substitutedecisionmakingisconsideredalastresort,andinformalarrangementsarepreferred105
• substitutedecision-makingordersshouldbelimitedtotheareaswheredecisionsareactuallyneeded.106
99 SeeGillick v West Norfolk AHA [1986]AC112;Department of Health and Community Services (NT) v JWB (Marion’s case)(1992)175CLR218.
100 Guardianship and Administration Act 1986(Vic)ss28(2)(e),49(2)(b).101 BarbaraCarter,Principles and Values in Victorian Guardianship Legislation(OfficeofthePublicAdvocate(Victoria),2009)14.102 Department of Health and Community Services (NT) v JWB (Marion’s case) (1992)175CLR218,270–1(BrennanJ).103 EilionoirFlynn,‘ASocio-LegalAnalysisofAdvocacyforPeoplewithDisabilities-CompetingConceptsof‘BestInterests’andEmpowermentin
LegislationandPolicyonStatutoryAdvocacyServices’(2010)32(1)Journal of Social Welfare & Family Law23,33.104 See,eg,Guardianship Act 1987(NSW)s4(b);Guardianship and Administration Act 2000(Qld)sch1,cl7(3)(c);Guardianship and
Administration Act 1993(SA)s5(d);Mental Capacity Act 2005(UK)s1(6);Adult Guardianship and Trusteeship ActSA2008,cA-4.2,s2(c).105 Report of the Minister’s Committee, aboven15,75.106 Forexample,inVictoriatheappointmentofalimited,ratherthanplenaryguardianisthenorm.
93
6.98 Insomeplaces,the‘leastrestrictive’principlealsorequiresthatformalappointments,shortoffullsubstitutedecision-makingappointments,shouldbemade.107WediscusstheseappointmentsmoreinChapters8and9,whichdealwithsupportedandco-decisionmaking.
6.99 TheCommissionbelievesthattheprincipleofpreservingandpromotingaperson’sfreedomofdecisionandactionisacrucialone.However,theCommissionconsidersthatthecurrentformulationofthisprincipletendstoreinforcethenotionthatsubstitutedecisionmakingisalwaysa‘restrictive’measure.Whiletheappointmentofasubstitutedecisionmakercanrestrictaperson’sautonomy,itmayalsoallowthepersontoachievethingsthatwouldotherwisenothavebeenpossiblewithoutsomeonewithcapacitymakingdecisionsorgivingauthorisationsontheirbehalf.
6.100 TheCommissionbelievesthatamoremodernandbalancedformulationofthisprincipleisthatrestrictionsonanindividual’sabilitytomakedecisionsshouldbe‘justified,reasonableandproportionate’.
6.101 TheCommissionacknowledgesthattheproposedprincipleswouldsignificantlyincreasethenumberofinterpretativeprinciplesgoverningguardianshiplawswhencomparedtothecurrentthreecoreprinciplesintheG&AAct.Althoughthereareclearbenefitsinlistingabroadarrayofimportantconsiderations,anoverlylonglistofconsiderationscanbecometooonerousforusersofthelaw.
107 Section2(c)oftheAdult Guardianship and Trusteeship ActSA2008,cA-4.2inAlbertaforexample,requiresthat‘whereanadultrequiresassistancetomakeadecisionordoesnothavethecapacitytomakeadecision,theadult’sautonomymustbepreservedbyensuringthattheleastrestrictiveandleastintrusiveformofassistedorsubstitutedecision-makingthatislikelytobeeffectiveisprovided.’
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6Chapter 6 Principles of new laws
RECOmmENdaTIONNew general principles
21. Newguardianshiplegislationshouldcontaingeneralprinciples.Thoseprinciplesshouldincludewordstothefollowingeffect:
ItistheintentionofParliamentthatthefollowinggeneralprinciplesshouldguideinterpretationoftheActandshouldbeconsideredbyanypersonorbodywhenmakinganydecisionortakinganyactionundertheAct:
Allpeoplearepresumedtohavecapacitytomakedecisionsthataffecttheirlivesunlessthisisshownnottobethecase.
Peoplewithimpaireddecision-makingability:
(a) havehumandignitywhichmustatalltimesberespectedandupheld
(b) havethesamehumanrightsandfundamentalfreedomsasothermembersofthecommunity,includingthosesetoutintheConvention on the Rights of Persons with DisabilitiesandtheCharter of Human Rights and Responsibilities Act 2006(Vic)
(c) shouldbeprovidedwiththesupportnecessaryforthemtomake,participateinandimplementdecisionsthataffecttheirlives
(d) havewishesandpreferencesthatshouldinformdecisionsmadeintheirlives
(e) areentitledtotakereasonablerisksandmakechoicesthatotherpeoplemightdisagreewith
(f) shouldbeabletoparticipateinthelifeofthecommunityonanequalbasiswithothers
(g) shouldbeabletocommunicateinanywaythatallowsthemtounderstandandbeunderstood
(h) havetherighttoliveinsafetyandsecurityandtobeprotectedfromabuse,neglectandexploitation
(i) shouldhavesupportiverelationshipsintheirliferecognisedandrespectedbyothers
(j) shouldhavetheirculturalandlinguisticcircumstancesrecognisedandrespectedbyothers.
Anylimitationsontherightsandfreedomsofapersonwithimpaireddecision-makingabilitytomaketheirowndecisionsmustbejustified,reasonableandproportionate.