Introduction 78 Current law 78 Other jurisdictions 81 ... · Guardianship and Management of...

77

6Chapter 6Principles of new laws

77

CONTENTSIntroduction� 78

Current�law� 78

Other�jurisdictions� 81

Community�responses� 86

The�Commission’s�views�and�conclusions� 88

Victorian Law Reform Commission – Guardianship: Final Report 2478

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).

79

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].

Victorian Law Reform Commission – Guardianship: Final Report 2480

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).

81

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).

Victorian Law Reform Commission – Guardianship: Final Report 2482

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).

83

• 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.

Victorian Law Reform Commission – Guardianship: Final Report 2484

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.

85

(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.

Victorian Law Reform Commission – Guardianship: Final Report 2486

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).

87

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).

Victorian Law Reform Commission – Guardianship: Final Report 2488

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.

Victorian Law Reform Commission – Guardianship: Final Report 2490

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.

Victorian Law Reform Commission – Guardianship: Final Report 2492

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.’

Victorian Law Reform Commission – Guardianship: Final Report 2494

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.