JA v Commonwealth (Department of Defence)€¦ · JA v Commonwealth (Department of Defence) •...
Transcript of JA v Commonwealth (Department of Defence)€¦ · JA v Commonwealth (Department of Defence) •...
JA v Commonwealth(Department of Defence)
[2014] AusHRC 72
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ISSN 1837-1183
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JA v Commonwealth (Department of Defence)
Report into arrest, detention, treatment in detention, interference with privacy and attacks on reputation
[2014] AusHRC 72
Australian Human Rights Commission 2014
iv
1 Introduction 3
2 Summaryoffindingsandrecommendations 32.1 Summaryoffindings 3
3 Summaryofrecommendations 4
4 ThecomplaintbyMrJA 44.1 Background 44.2 Findingsoffact 5
5 TheCommission’shumanrightsinquiry andcomplaintsfunction 55.1 Humanrightsrelevanttothiscomplaint 6
6 Detention 66.1 Wasthedetentionlawful? 66.2 Wasthedetentionarbitrary? 7
7 Righttobeinformedofreasonforarrest 8
8 Treatmentindetention 88.1 Solitaryconfinement 88.2 Lightincell 98.3 Adequacyofclothing,bedding,andheating 98.4 Contactwiththeoutsideworld 10
9 Interferencewithprivacyandattackon reputationandhonour 12
10 Findingsandrecommendations 1210.1Powertomakerecommendations 1210.2Considerationofcompensation 1310.3Recommendationthatcompensationbepaid 14
11 Apology 15
12 Defence’sresponsestomyconclusions andrecommendations 15
Contents
JA v Commonwealth (Department of Defence) • [2014] AusHRC 72 • 1
Australian Human Rights Commission
Level3,175PittStreet,SydneyNSW2000 GPOBox5218,SydneyNSW2001Telephone:0292849600 Facsimile:0292849611 Website:www.humanrights.gov.au
May2014
SenatortheHon.GeorgeBrandisQC Attorney-General ParliamentHouse CanberraACT2600
DearAttorney
Ihavecompletedmyreportpursuanttos 11(1)(f)(ii)oftheAustralian Human Rights Commission Act 1986(Cth)(AHRCAct)intoacomplaintmadebyMrJAagainsttheCommonwealthofAustralia–DepartmentofDefence(Defence).
Thecomplaintraisedissuesunderarticles9(1),9(2),7,10(1)and17(1)oftheInternationalCovenantonCivilandPoliticalRights(ICCPR).
Followingmyinquiry,IfoundthatMrJA’sdetentionwasnotlawfulinthathewasnotdetainedinaccordancewiththeprocedureestablishedbytheDefence Force Discipline Act 1982(Cth)(DFDA).IalsofoundthatMrJA’sdetentionwasarbitrarybecauseitwasnotnecessaryandnotproportionatetoDefence’slegitimateaimofapplyingmilitarydisciplineinaccordancewiththeDFDA.Asaresult,Ifoundthathisdetentionwasinbreachofarticle9(1)oftheICCPR.
InrelationtoeachoftheothercomplaintsraisedbyMrJA,IhaveeitherfoundthattherewasnotanactorpracticeoftheCommonwealththatwasinconsistentwithorcontrarytothearticlesoftheICCPRthathecomplainsabout,orIdecidednottoinquireintothecomplaintsonthebasisthattheyweremisconceived,lackinginsubstance,orcouldbemoreeffectivelyorconvenientlydealtwithbyanotherstatutoryauthority.
Byletterdated6January2014thelegalrepresentativeforDefenceprovidedaresponsetomyfindingsandrecommendations.AspartofthisresponseDefencehasconfirmedthatithasamendeditsprocedurestoensurethatmembersoftheDefenceForceswhoarechargedinaccordancewiths 95(2)oftheDFDAarechargedbyaproperofficerauthorisedinwriting.I have setouttheresponseinitsentiretyinpart12ofmyreport.
Pleasefindenclosedacopyofmyreport.
Yourssincerely
GillianTriggsPresident AustralianHumanRightsCommission
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JA v Commonwealth (Department of Defence) • [2014] AusHRC 72 • 3
1 Introduction1. ThisisareportsettingoutthefindingsoftheAustralianHumanRightsCommissionandthereasons
forthosefindingsfollowinganinquirybytheCommissionintoacomplaintlodgedbyMrJAthathistreatmentbytheCommonwealthofAustralia–DepartmentofDefence(Defence)involvedactsorpracticesinconsistentwithorcontrarytohumanrightswithinthemeaningoftheAustralian Human Rights Commission Act 1986(Cth)(AHRCAct).
2. MrJAhasaskedthathenotbereferredtobynameinthisreport.IconsiderthatthepreservationoftheanonymityofMrJAisnecessarytoprotecthisprivacy.Accordingly,Ihavegivenadirectionpursuanttosection14(2)oftheAHRCActand havereferredtohimthroughoutthereportasMrJA.
2 Summary of findings and recommendations
2.1 Summary of findings
(a) Arrest
3. IdonotfindthatMrJAwasnotinformedofthereasonsforhisarrestorthechargesagainsthimas requiredbyarticle9(2)oftheInternational Covenant on Civil and Political Rights(ICCPR).
(b) Detention
4. IfindthatMrJAwasnotdetainedinaccordancewiththeprocedureestablishedbytheDefence Force Discipline Act 1982(Cth)(DFDA)inbreachofarticle9(1)oftheICCPR.
5. IfindthatMrJA’sdetentionwasarbitrarywithinthemeaningofarticle9(1)oftheICCPR.MrJA’sdetentionwasnotnecessaryandnotproportionatetoDefence’slegitimateaimofapplyingmilitarydisciplineinaccordancewiththeDFDA.
(c) Treatment in detention
6. IdonotfindthatDefence’streatmentofMrJAwhilsthewasdetainedbreachedhisrightnottobesubjectedtotortureortocruel,inhumanordegradingtreatmentorpunishmentwithinthemeaningof article7oftheICCPR.
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7. IdonotfindthatDefence’streatmentofMrJAwhilsthewasdetainedbreachedhisrighttobetreatedwithhumanityandwithrespectfortheinherentdignityofthehumanpersonwithinthemeaningofarticle10(1)oftheICCPR.
(d) Interference with privacy, attacks on reputation
8. IhavedecidednottoinquireintoMrJA’sallegationsofbreachofarticle17(1)oftheICCPRpursuanttosections20(2)(c)(ii)and(vi)oftheAHRCAct.
9. IamoftheopinionthatMrJA’sallegationthatDefencearbitrarilyinterferedwithhisprivacycouldbemoreeffectivelyorconvenientlydealtwithbytheOfficeoftheAustralianInformationCommissioner(OAIC).IamoftheopinionthatMrJA’sallegationthatDefencehascommittedanunlawfulattackonhishonourandreputationislackinginsubstance.
3 Summary of recommendations10. InlightofmyfindingsregardingtheactsandpracticesofDefencethatwereinconsistentwith
Mr JA’s rights,Imakethefollowingrecommendations:
• thatDefencepayfinancialcompensationtoMrJAintheamountof$15 000tocompensatehimforbeingarbitrarilydetained;
• thatDefenceprovideaformalwrittenapologytoMrJAforthebreachofhishumanrightsidentifiedinthisreport.
4 The complaint by Mr JA4.1 Background11. Onorabout3December2008MrJAlodgedacomplaintwiththeCommission.
12. MrJAandDefencehavebothhadtheopportunitytoprovidesubmissionsinthismatter,includingtheopportunitytorespondtothepreliminaryviewoutlinedinformerPresidentBranson’sletterof28October2011whichsetouttheactsorpracticesraisedbythecomplaintwhichappearedtobeinconsistentwithorcontrarytohumanrights.Inotethattherehavebeenseveralattemptstoresolvethematterbyconciliation.
13. MyfunctionininvestigatingcomplaintsofbreachesofhumanrightsisnottodeterminewhetherDefencehasactedconsistentlywithAustralianlaw,butwhetherDefencehasactedconsistentlywiththehumanrightsdefinedandprotectedbytheICCPR.
14. ItfollowsthatthecontentandscopeoftherightsprotectedbytheICCPRshouldbeinterpretedandunderstoodbyreferencetothetextoftherelevantarticlesoftheinternationalinstrumentsandbyinternationaljurisprudenceabouttheirinterpretation.
2 Summary of findings and recommendations
JA v Commonwealth (Department of Defence) • [2014] AusHRC 72 • 5
4.2 Findings of fact15. Iconsiderthatthecomplaintarosefromthefollowingfactualcircumstances.
16. MrJAjoinedtheRoyalAustralianNavyon2April2007.HewasbasedatHMASCerberusandatthetimeoftheeventsformingthebasisofthecomplainthewas18yearsold.
17. Onorabout14April2008MrJAwasabsentwithoutleave.On21April2008CaptainSheldonWilliams,CommandingOfficerofHMASCerberus,issuedawarrantforMrJA’sarrest.
18. Atabout11.00pmon1May2008MrJAwasarrestedbyVictoriaPoliceanddeliveredintothecustodyofCaptainWilliams.MrJAwasadmittedtotheCerberusUnitDetentionCentre(CUDC)atabout11.18pm.
19. Byinstrumentdated2May2008CaptainWilliamsorderedthatMrJAbeheldincustodyawaitingahearingortrialbyaservicetribunal.DefenceprovidedalogtotheCommissionthatindicatesthatMr JAwaschargedon2May2008bynavalPoliceOfficer(PO)Robinsonand/orWarrantOfficer(WO)Atkinsonwithonecountundersection24oftheDFDA(AbsenceWithoutLeave).
20. Atabout2.30amon3May2008MrJAwastakentoFrankstonHospital.
21. Afterapproximatelyonehouratthehospital,MrJAwasdischargedandwasthendetainedattheHealthCentreCerberus(HCC).MrJAwasdetainedattheHCCfrom3Mayuntiltheafternoonof7 May2008.
22. Atapproximately3.20 pmon7May2008MrJAwasreturnedtotheCUDC.
23. Byinstrumentdated7May2008MrJAwassuspendedfromduty.Atabout12.30pmon8May2008MrJAwasreleasedfromtheCUDC.
5 The Commission’s human rights inquiry and complaints function
24. Section11(1)(f)oftheAHRC ActprovidesthattheCommissionhasafunctiontoinquireintoanyactorpracticethatmaybeinconsistentwithorcontrarytoanyhumanright.1
25. Section3(1)oftheAHRCActdefines‘act’toincludeanactdonebyoronbehalfoftheCommonwealth.Section3(3)providesthatthereferenceto,orthedoingof,anactincludesthereferencetotherefusalorfailuretodoanact.
26. ThefunctionsoftheCommissionidentifiedinsection11(1)(f)oftheAHRCActareonlyengagedwhereanactcomplainedofisnotonerequiredbylawtobetaken.2
27. Byinstrumentdated2May2008CaptainWilliamsorderedthatMrJAbeheldincustodypendinghearingofchargesbySummaryAuthority.IamsatisfiedthatCaptainWilliams’decisiontodetainMr JAwasanactoftheCommonwealthwithinthemeaningoftheAHRCAct.
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5.1 Human rights relevant to this complaint28. Theexpression‘humanrights’isdefinedinsection3oftheAHRCActandincludestherightsand
freedomsrecognisedintheICCPR,whichissetoutinSchedule2totheAHRCAct.
29. ThearticlesoftheICCPRthatareofrelevancetothiscomplaintare:
• Article7(prohibitionontortureandcruel,inhumanordegradingtreatmentorpunishment);• Article9(1)(prohibitiononunlawfulorarbitrarydetention);• Article9(2)(righttobeinformedofreasonsforarrest);• Article10(1)(humanetreatmentofpeopledeprivedoftheirliberty);and• Article17(1)(prohibitiononunlawfulorarbitraryinterferencewithprivacyandunlawfulattacks onhonourandreputation).
6 Detention6.1 Was the detention lawful?30. MrJAclaimsthathisdetentionfromtheeveningof1May2008until8May2008wasunlawful.
31. ThepowertodetainMrJAarosefromsection95oftheDFDA.Section95oftheDFDArelevantlystates:
(2) Whereapersonhasbeendeliveredintothecustodyofacommandingofficer,thecommandingofficeroranofficerauthorized,inwriting,bythecommandingofficershall,unlessthepersonhasbeenarrestedinexecutionofawarrantundersection88,beforetheexpirationoftheperiodof24hoursafterthepersonhasbeendeliveredintothecustodyofthecommandingofficer,eitherchargethepersonwithaserviceoffenceorreleasethepersonfromcustody.
32. On1May2008MrJAwasarrestedbymembersofVictoriaPolicepursuanttoawarrantissuedundersection90oftheDFDAandwasdeliveredintothecustodyofCaptainWilliams,thecommandingofficerofHMASCerberus.
33. On2May2008MrJAwaspurportedlychargedwiththeserviceoffenceofAbsenceWithoutLeaveundersection24oftheDFDAbyeitherWOAtkinsonorPORobinson.NeitherWOAtkinsonorPORobinsonwasthecommandingofficeroranofficerauthorizedinwritingbythecommandingofficerwithinthemeaningofsection95(2)oftheDFDA.NeitherWOAtkinsonnorPORobinsonwere‘officers’withinthemeaningoftheDFDA.
34. DefencenotesthatWOAtkinsonandPORobinsonweremembersauthorisedtochargedefencememberswithserviceoffencesundersection87oftheDFDA.However,MrJAwasnotchargedundersection87oftheDFDA.
35. IfindthatMrJAwasnotproperlychargedwithaserviceoffencebecausehewasnotchargedbythecommandingofficeroranofficerauthorizedinwritingbythecommandingofficerinaccordancewithsection95(2)oftheDFDA.Accordingly,IfindMrJA’sdetentionfrom1May2008until8May2008wasnotinaccordancewiththeproceduresestablishedbylaw,namelytheDFDA,withinthemeaningofsection9(1)oftheICCPR.
5 The Commission’s human rights inquiry and complaints function
JA v Commonwealth (Department of Defence) • [2014] AusHRC 72 • 7
6.2 Was the detention arbitrary?36. MrJAalsoclaimsthathisdetentionwasarbitrary.DefencedeniesthatMrJA’sdetentionwas
arbitrary.DefencestatesthatMrJAwasdetainedbecausehehadabscondedfrombaseonanumberofoccasionsinthepastandDefencewasconcernedthatMrJAwouldnotremainonbasewhilstitpreparedforhearingthechargebroughtagainsthimandinvestigatedotherabsencerelatedpotentialcharges.DefencenotesthattheDFDAprovidesthatinmostcircumstances,ahearingbeforeaservicetribunalshallbeheldinthepresenceoftheaccusedperson.3
37. DefenceclaimsthatMrJA’sdetentionintheHCCfrom3May2008until7 May 2008wasreasonableandnotarbitrarybecausemedicalpractitionershadrecommendedthatMrJAremainunderclinicalobservationduringthistime.
38. DefenceclaimsthatMrJA’sdetentionfromtheafternoonof7May2008untiltheafternoonof8May2008wasnotarbitraryforanumberofreasons.ItclaimsMrJAwasreasonablyconsideredaflightriskifreleasedfromcustody,thatthreechargesagainsthimhadbeenfullypreparedandwerereadytobeheardandthatVictoriaPolicehadinformedDefencethatitintendedtoarrestMrJAon8May2008inrelationtocertainciviliancharges.DefencealsoclaimsthatMrJA’sdetentioninthisperiodwasnotarbitrarybecauseMrJAwasreturnedtotheCUDCfromtheHCClateintheafternoonof7 May2008anditwasthereforeunlikelythatthemilitarychargesagainstMrJAwouldbeabletobeheardonthatday.
39. Underinternationallaw,toavoidbeingarbitrary,detentionmustbenecessaryandproportionatetoa legitimateaimoftheCommonwealth.4
40. Iacceptthat,insomecircumstances,pre-trialdetentionmaybenecessarytoensurethepresenceofanaccusedattrial.However,DefencestatesthatittooknoactiontoprogressthemilitarychargesagainstMrJAfromthetimehewastakentoFrankstonhospitalintheearlyhoursof3May2008.
41. DefencestatesthatMrJAwasdetainedinFrankstonHospitalfrom3May2008until7May2008becausemedicalpractitionershadrecommendedthatheremainunderclinicalobservation.However,MrJAcouldhaveremainedunderclinicalobservationbuthavebeenreleasedfromdetention.
42. Further,Defenceadvisesthaton5May2008SeniorConstableFoxinformedWarrantOfficerAtkinsonthatVictoriaPoliceintendedtoarrestMrJAinrelationtocertainciviliancharges.TheinformationbeforemesuggeststhatDefencesuspendedanyactiontoprogressthemilitarychargesagainstMr JAwhenitwasadvisedthatMrJAwouldbechargedwithcivilianoffences.
43. ThereissomeinformationbeforemetosuggestthatDefenceintendedtoholdMrJAincustodyfora periodofeightdaysfromthetimethathewasfirstdetained.
44. NotestakenbySeniorConstableAndrewFoxofVictoriaPoliceon1May2008state:
S/TGaryAtkinson(warrantofficer)[JA]arrestedreAWOLFridaynotgoodfornavy.[JA]willbeincustodyfor7days.
45. NotestakenbySeniorConstableFoxon6MaystatethatMrJAwas:
DueforreleasefromnavyjailFri9th(orThurs8th)
46. Inotethatundersection95(5)oftheDFDA,eightdaysisthemaximumperiodoftimethatapersonmaybeheldincustodybeforethecommandingofficerisrequiredtoreportinwritingtoasuperiorofficerandtheDirectorofMilitaryProsecutions,hisorherreasonsforthedelayindealingwiththecharge.
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47. Forthereasonsoutlinedabove,IamsatisfiedthatMrJA’sdetentionwasarbitrarywithinthemeaningofsection9(1)oftheICCPRfromthemorningof3May2008whenhewastakentoFrankstonhospital.IamsatisfiedthatDefencetooknoactiontoprogressthehearingofthechargebroughtagainsthimfromthisdate.
7 Right to be informed of reason for arrest48. MrJAclaimsthathewasnotinformedofthereasonthathewasarrestedordetained.
49. Defencestatesthattothebestofitsknowledge,MrJAwasinformedbyVictoriaPoliceuponhisarrestthathewasbeingarrestedforthemilitaryoffenceofAbsenceWithoutLeave.Defencefurtherstatesthaton2May2008MrJAwaschargedwithAbsenceWithoutLeaveandwasservedtherelevantpaperwork.Defence’sclaimissupportedbythedetentionlogwhichindicatesthatat8.34on2May2008MrJAwaschargedwith‘s24AWOL’.Further,inhiscomplaintMrJAstates‘IwasarrestedonthegroundsofanallegedwarrantformyarrestforAWOL’.
50. Basedontheinformationbeforeme,IcannotbesatisfiedthatMrJAwasnottoldwhatoffencehehadbeenchargedwithandwhyhewasbeingdetained.Accordingly,IfindthattheexistenceoftheactorpracticethatisallegedtobecontrarytoMrJA’shumanrightshasnotbeenestablishedwithinthemeaningofsection29(3)(b)(i)oftheAHRCAct.
8 Treatment in detention51. MrJAmakesanumberofallegationsofbreachofarticles7and10oftheICCPRinrelationtohis
detentionintheCUDC.Eachoftheseallegationsisconsideredbelow.
52. TheUnitedNationsHumanRightsCommitteehasindicatedthatthethresholdforestablishingabreachofarticle7ishigherthanthethresholdforestablishingabreachofarticle10.5
53. Inhumantreatmentmustattainaminimumlevelofseveritytocomewithinthescopeofarticle10(1)oftheICCPR.Whethertreatmentbreachesarticle7orarticle10dependsonallthecircumstancesofthecase,suchasthenatureandcontextofthetreatment,itsduration,itsphysicalandmentaleffectsand,insomeinstances,thesex,age,stateofhealthorotherstatusofthevictim.6
8.1 Solitary confinement54. MrJAclaimsthathewasdetainedinsolitaryconfinementinaverysmallcellintheCUDC.
55. DefencedeniesthatMrJAwasdetainedinsolitaryconfinement.DefencestatesthatasMrJAwastheonlydetaineeintheCUDCattherelevanttime,hiscelldoorwouldhavebeenleftopenatalltimes,allowinghimaccesstothecourtyardarea.Insupportofitsclaim,DefencereferstothedetentionlogwhichindicatesthatwhenMrJAwasfirstassessedasthreateningself-harmlateontheeveningof2May2008,hewasfoundoutsidehiscellinthecourtyard.
56. Solitaryconfinementmustcontinueforaconsiderableperiodoftimebeforeitwillmeetthethresholdforabreachofarticle10andforalongerperiodbeforeitwillamounttoabreachofarticle 7.7 ItappearsthatMrJAwasdetainedinCUDCfrom11.18 pmon1 May 2008until2.35 amon3 May 2008(approximately27hours)andfrom3.20 pmon7 May2008until12.30 pmon8 May 2008(approximately21hours).
6 Detention
JA v Commonwealth (Department of Defence) • [2014] AusHRC 72 • 9
57. ThereisinsufficientinformationbeforemetosupportMrJA’sclaimthathewasheldinsolitaryconfinement.Inanyevent,evenifIweresatisfiedthatMrJAhadbeendetainedinsolitaryconfinement,Iamnotsatisfiedthatdetentionfortwonon-continuousperiodsof27and21hoursmeetsthelevelofseveritynecessaryforabreachofarticles7or10.Forthesereasons,IfindthattheexistenceoftheactthatisallegedtobecontrarytoMrJA’shumanrightshasnotbeenestablishedwithinthemeaningofsection29(3)(b)(i)oftheAHRCAct.
8.2 Light in cell58. MrJAclaimsthatthecellinCUDCinwhichhewasdetainedhadnonaturallightandtheartificial
lightinthecellwasconstantlyon.
59. DefencedeniesMrJA’sclaim.Defenceallegesthatnaturallightentersthecellsviaasmallskylightintheceilingofthecell.InsupportofitsclaimsDefencereferstotheADFDetentionCentreInspectionReportdated13November2008completedbytheDefencePoliceTrainingCentrewhichstatesthattheCUDCcells‘havegoodnaturalandartificiallightingandventilation’.DefencehasalsoprovidedacopyoftheADFMinimumIndividualCellrequirementswhichstatesthatcellsaretohave‘naturallighting(skytube,skylightorsimilar)’.Defenceclaimsthattheartificiallightinginthecellsisturnedonduringthedayandturnedoffatnight.
60. TheUnitedNationsHumanRightsCommitteehasinvitedStatesPartiestoindicateintheirreportstheextenttowhichtheyareapplyingtheStandardMinimumRules.8AtleastsomeoftheseprincipleshavebeendeterminedtobeminimumstandardsregardingtheconditionsofdetentionthatmustbeobservedregardlessofaStateParty’slevelofdevelopment.9Rule11relatestotheprovisionoflightingtoprisonersinareaswheredetainedpersonsarerequiredtoliveorwork.
61. MrJAwasnotrequiredtoliveorworkintheCUDCcellinwhichhewasdetained.Asnotedabove,hewasdetainedthereforapproximately27hourson1 Mayuntil3 May2008andthenapproximately21hourson7and8May2008.
62. ThereisnoinformationbeforetheCommission,asidefromMrJA’sassertion,tosupporthisclaimthattheCUDCcellinwhichhewasdetaineddidnothavenaturallight.Conversely,thereismaterialbeforetheCommissionwhichsuggeststhattheCUDCcellshaveadequatenaturalandartificiallight.
63. InrelationtoMrJA’sclaimthatthelightinhiscellwasleftonconstantly,itisunclearbaseduponthematerialbeforetheCommissionwhetherthisinfactoccurred.InotethatDefencedeniesthisallegationandclaimsthatthelightwasturnedoffatnight.Forthereasonsoutlinedabove,IfindthattheactorpracticethatisallegedtohavebreachedMrJA’shumanrightshasnotbeenestablishedwithinthemeaningofsection29(3)(b)(i)oftheAHRCAct.
8.3 Adequacy of clothing, bedding, and heating64. MrJAallegesthatwhenhewastakenintodetention,hiscivilianclothesweretakenawayfromhim
andhewasnotgivenadequatereplacementclothing.MrJAalsoclaimsthaton1or2May2008heaskedforanadditionalblanketandwasnotgivenone.MrJAalsoclaimsthatthecellhewasheldindidnothaveheatingandthathewasrequiredtosleeponaconcreteblock.
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65. DefenceagreesthatMrJAwasrequiredtochangeoutofhiscivilianclothes.DefencestatesthatMr JAwasgivenstandardissueoverallsandboots.DefenceagreesthatMrJAwasnotgivenanysocksbutstatesthatthisisbecausesockscanbeusedforself-harmandarenotaNavyissuerequirement.DefenceagreesthatMrJAwasnotgiventhermalunderwearandadvisesthatthermalunderwearisnotaNavyissueitem.
66. InrelationtoMrJA’sallegationaboutinadequatebedding,Defenceclaimsthatdetaineesareprovidedwithsheets,pillowsandtwoblanketsasstandardissue.ThedetentionlogindicatesthatMr JArequestedanextrablanketat11.29on2 May 2008andthathereceivedthisextrablanket.
67. InrelationtoMrJA’sallegationaboutalackofheatingintheCUDCcell,DefenceclaimsthattherewasaheaterinthecellanditwasoperationalatthetimethatMrJAwasinthecell.
68. InrelationtoMrJA’sclaimsaboutbeingrequiredtosleeponaconcreteblock,DefencestatesthatMrJAsleptonamattressthatwasplacedonaconcretemoulding.ThephotographsprovidedbyDefenceofthecellinwhichMrJAwasdetainedsupportsthatsuchbedsexistintheCUDCcellsasdoestheADFCentreInspectionReportsdated7December2007and13November2008.
69. TheSMRsrequirethatpersonsindetentionareprovidedwithappropriateclothingandbedding.10
70. InotethatMrJAstatesthathewascoldwhilstdetainedatCUDC.BasedonthematerialbeforetheCommission,itisunclearwhethertheheatingwasturnedoninthecellinwhichMrJAwasdetainedwhilehewasdetainedthere.
71. ThematerialbeforetheCommissionindicatesthatDefenceprovidedMrJAwithstandardnavyissueoveralls,beddingandthathewasgivenanextrablanketwhenheaskedforone.Basedontheinformationbeforeme,IfindthatanactorpracticethatiscontrarytoMrJA’shumanrightshasnotbeenestablishedwithinthemeaningofsection29(3)(b)(i)oftheAHRCAct.
8.4 Contact with the outside world72. MrJAclaimsthat:
• hewasnotadvisedthathecouldseeklegalrepresentation• hewasnotallowedtomakephonecalls• hewasnotallowedtoreceivevisitors• hisparentsweren’ttoldwherehewas.
73. DefencedeniesthatMrJAwasnotadvisedthathewasentitledtoseeklegalrepresentation.DefencestatesthatadviceabouttherighttolegalrepresentationisastandardpartofthepolicecautionprovidedtoindividualswhoarearrestedandVictoriaPolicewouldhaveadvisedMrJAthathewasentitledtoseeklegalrepresentation.
74. DefencealsoclaimsthatWOAtkinsonprovidedthisadvicetoMrJAaspartofthecautiongiventoMrJAwhenhewaschargedwithAbsenceWithoutLeaveon2May2008.ThedetentionlogindicatesthatMrJAwascautionedandchargedon2May2008andthatheunderstoodthecautionandcharge.WarrantOfficerAtkinsonstatesthatifMrJAhadaskedtoseealawyer,thisrequestwouldhavebeennotedinthedetentionlog.
75. Basedontheinformationbeforeme,IamnotsatisfiedthatMrJAwasnotinformedofhisrighttoseeklegalrepresentation.Accordingly,Ifindthattheexistenceofanactorpracticehasnotbeenestablishedwithinthemeaningofsection29(3)(b)(i)oftheAHRCAct.
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JA v Commonwealth (Department of Defence) • [2014] AusHRC 72 • 11
76. MrJAclaimsthathewasnotallowedtocontacthisfamilywhilsthewasdetainedbyDefence.Defenceagreesthaton6May2008MrJAwasrefusedpermissiontocallhissisterandthathismobilephonewasconfiscatedatthistime.DefencestatesthatMrJAmadenootherrequeststocontacthisfamily.
77. DefencenotesthattheCUDCStandingOrdersstate:
Telephonecallsareaprivilegeandaregrantedtoadetaineeasarewardfortheireffort.TheOIC[officerincharge]hasapprovedthatallSUA[service-memberunderarrest]...mayhaveafreelocalorSTDphonecallonadmissiontoinformarelativeorclosefriendoftheirlocationandpostaladdressofHMASCerberus.Itisconsideredtobeintheinterestsofdetaineesandbeneficialtorelativesandfriendstobeawareofthelocationofdetainees,toeliminateanxietyontheirpart.
78. Defencealsostatesthattheroutineforadmittingadetaineeincludesmakingadetaineeawareofhisorhercustodialprivileges,whichincludemakingtelephonecallstofamilyandfriends.DefenceclaimsthatasthestandardprocedureswerefollowedinrelationtoMrJA,hewouldhavebeenadvisedthathewasallowedtomakeaphonecall.
79. Thedetentionlogindicatesthaton5May2008MrJAwasfoundusinganunauthorisedmobilephone.DefenceclaimsthatinpatientrecordsfromtheHCCshowthaton7May2008MrJAhadatelephoneconversationwithhismotherandthatalsoon7May2008hisbrothercalledwhilsthewasatapsychiatristappointmentandamessagewasleftonMrJA’sbedaskinghimtoreturnhisbrother’scall.On8MayMrJAreceivedacallfromhisfather.
80. Inrelationtovisits,thedetentionlogindicatesthaton2May2008MrJAwasvisitedbyChaplainSykesintheCUDCandon4May2008MrJAreceivedtwoseparatevisitsfromfourunauthorisedvisitors.
81. IacceptthatDefenceplacedsomelimitationsonMrJA’sabilitytocontacttheoutsideworldduringtheeightdaysthathewasdetainedbyconfiscatinghismobilephoneandrefusinghimpermissiontotelephonehissister.However,theinformationbeforemesuggeststhatMrJAcouldhavemadeatelephonecalltoadvisehisfamilyofhiswhereaboutsifhewishedto.Further,MrJAhadcontactwithhisfamilytowardstheendofhisperiodofdetention.
82. IamnotsatisfiedthattherefusaltoallowMrJAtousehismobilephonereachedtheminimumlevelofseveritynecessarytoestablishabreachofarticle7or10oftheICCPR.Ifindthattheactorpracticeisnotinconsistentwithorcontrarytoahumanrightwithinthemeaningofsection29(3)(b)(ii)oftheAHRCAct.
83. DefenceagreesthatitdidnotinformMrJA’sfamilythathehadbeenadmittedtoFrankstonhospitalandtransferredtotheHCC.DefencesubmitsthatitwasundernoobligationtoinformMrJA’sfamilyofhisadmissiontohospitalandtheHCC.DefencestatesthatthehospitalandtheHCCarenot‘institutionsforthetreatmentofmentalaffections’andthatMrJAwasnotsufferingfroma‘mentalaffection’.DefencealsoclaimedthatitwouldhavebreachedthePrivacy Act 1988(Cth)(PrivacyAct)haditdisclosedMrJA’spersonalinformationtohisfamilywithouthisconsent.
84. TheSMRsprovideguidanceonthecontactthatindividualsshouldbeallowedtohavewiththeirfamily.Particularly,SMR44(1)providesthatadetainedperson’sfamilyshouldbeinformedifheistransferredto‘aninstitutionforthetreatmentofmentalaffections’.
85. IacceptthatneitherFrankstonHospitalnortheHCCare‘institutionsforthetreatmentofmentalaffections’.Further,itappearsthatMrJAwasnotincapacitatedsuchthathecouldnothaveinformedhisfamilyofhistransfertoFrankstonhospitalandtotheHCC.
12
86. Fromtheinformationbeforeme,IamnotsatisfiedthatDefence’sfailuretoinformhisfamilythathehadbeentransferredtoFrankstonhospitalandtheHCCreachedtheminimumlevelofseveritynecessarytoabreachofarticle7or10oftheICCPR.Ifindthattheactorpracticeisnotinconsistentwithorcontrarytoahumanrightwithinthemeaningofsection29(3)(b)(ii)oftheAHRCAct.
9 Interference with privacy and attack on reputation and honour
87. Byletterof12April2013MrJAindicatedthathewishedtoamendhiscomplaint.
88. MrJAclaimsthatDefencehasarbitrarilyinterferedwithhisprivacyandunlawfullyattackedhishonourinitsletterdated18April2012inresponsetoformerPresidentBranson’spreliminaryviewof theallegedbreachesofhumanrightsraisedbyMrJA.
89. IhaveacceptedthisallegationasanamendmenttoMrJA’scomplaint.
90. MrJAclaimedthatDefencearbitrarilyinterferedwithhisprivacybyprovidingmedicalinformationaboutMrJAtotheCommission.
91. IhavedecidednottoinquireintoMrJA’sallegationthatDefencearbitrarilyinterferedwithMrJA’sprivacypursuanttosection20(2)(c)(vi)oftheAHRCActasIamoftheopinionthatthesubjectmatterofthisallegationcouldbemoreeffectivelyorconvenientlydealtwithbytheOAIC.MrJAallegesabreachofthePrivacyAct.TheOAICisresponsibleforadministeringthePrivacyAct.
92. InotethattheICCPRprovidesprotectionagainstunlawfulattackstohonourandreputation.Defence’sresponsetoformerPresidentBranson’spreliminaryviewsetsoutthecircumstancesinwhichDefenceclaimsthatMrJAcametobetakentoFrankstonhospitalandtotheHCC.Defencehascommittednounlawfulactindoingso.Giventhis,IamsatisfiedthatthisallegationislackinginsubstanceandIhavedecidednottoinquireintoitpursuanttosection20(2)(c)(ii)oftheAHRCAct.
10 Findings and recommendations10.1 Power to make recommendations93. Where,afterconductinganinquiry,theCommissionfindsthatanactorpracticeengagedinbya
respondentisinconsistentwithorcontrarytoanyhumanright,theCommissionisrequiredtoservenoticeontherespondentsettingoutitsfindingsandreasonsforthosefindings.11TheCommissionmayincludeinthenoticeanyrecommendationforpreventingarepetitionoftheactoracontinuationofthepractice.12
94. TheCommissionmayalsorecommend:
• thepaymentofcompensationto,orinrespectof,apersonwhohassufferedlossordamage;and
• thetakingofotheractiontoremedyorreducethelossordamagesufferedbyaperson.13
8 Treatment in detention
JA v Commonwealth (Department of Defence) • [2014] AusHRC 72 • 13
10.2 Consideration of compensation95. Thereisnojudicialguidancedealingwiththeassessmentofrecommendationsforfinancial
compensationforbreachesofhumanrightsundertheAHRCAct.
96. However,inconsideringtheassessmentofarecommendationforcompensationundersection35oftheAHRCAct(relatingtodiscriminationmattersunderPartII,Division4oftheAHRCAct),theFederalCourthasindicatedthattortprinciplesfortheassessmentofdamagesshouldbeapplied.
97. Iamoftheviewthatthisistheappropriateapproachtotaketothepresentmatter.Forthisreason,so farasispossibleinthecaseofarecommendationforcompensation,theobjectshouldbetoplacetheinjuredpartyinthesamepositionasifthewronghadnotoccurred.
98. Notwithstandingthisimportantdistinction,thedamagesawardedinfalseimprisonmentprovideanappropriateguidefortheawardofcompensationforabreachofart9(1).Thisisbecausethedamagesthatareavailableinfalseimprisonmentmattersprovideanindicationofhowthecourtshaveconsidereditappropriatetocompensateforlossofliberty.
99. Theprincipalheadsofdamageforatortofthisnatureareinjurytoliberty(thelossoffreedomconsideredprimarilyfromanon-pecuniarystandpoint)andinjurytofeelings(theindignity,mentalsuffering,disgraceandhumiliation,withanyattendantlossofsocialstatus).14
100. IntherecentcaseofFernando v Commonwealth of Australia (No 5),15SiopisJconsideredthejudicialguidanceavailableonthequantumofdamagesforlossoflibertyforalongperiodarisingfromwrongfulimprisonment.SiopisJreferredtothecaseofNye v State of New South Wales:16
…theNye caseisusefulinonerespect,namely,thatthecourtwasrequiredtoconsiderthequantumofdamagestobeawardedtoMrNyeinrespectofhislossoflibertyforaperiodofsome16monthswhichhespentinLongBayGaol.Indoingso,consistentlywiththeapproachrecognizedbySpigelmanCJinRuddock (NSWCA),theCourtdidnotassessdamagesbyapplicationofadailyrate,butawardedMrNyethesumof$100,000ingeneraldamages.ItisalsorelevanttoobservethatinNye,thecourtreferredtothefactthatforaperiodoftimeduringhisdetentioninLongBayGaol,MrNyefearedforhislifeatthehandsof otherinmatesofthatgaol.17
101. SiopisJnotedthatfurtherguidanceonthequantumofdamagesforlossoflibertyforalongperiodarisingfromwrongfulimprisonmentcanbeobtainedfromthecaseofRuddock (NSWCA).18Inthatcaseatfirstinstance,19theNewSouthWalesDistrictCourtawardedtheplaintiff,MrTaylor,thesumof$116 000indamagesinrespectofwrongfulimprisonment,consequentuponhisdetentionfollowingthecancellationofhispermanentresidencyvisaoncharactergrounds.
102. MrTaylorwasdetainedfortwoseparateperiods.Thefirstwasfor161daysandthesecondwasfor155days.Inthatcase,becauseMrTaylor’sconvictionswereinrelationtosexualoffencesagainstchildren,MrTaylorwasdetainedinastateprisonundera‘strictprotection’regimeandnotinanimmigrationdetentioncentre.ThedetentionregimetowhichMrTaylorwassubjectedwasdescribedasa‘particularlyharshone’.
103. TheCourtalsotookintoaccountthefactthatMrTaylorhadalongcriminalrecordandthatthiswasnothisfirstexperienceofalossofliberty.Hewasalsoconsideredtobeapersonoflowreputewhowouldnothavefeltthedisgraceandhumiliationexperiencedbyapersonofgoodcharacterinsimilarcircumstances.20
14
104. Onappeal,intheNewSouthWalesCourtofAppeal,SpigelmanCJconsideredtheadequacyofthedamagesawardedtoMrTaylorandobservedthatthequantumofdamageswaslow,butnotsolowastoamounttoappellableerror.21SpigelmanCJalsoobservedthat:
Damagesforfalseimprisonmentcannotbecomputedonthebasisthatthereissomekindof applicabledailyrate.Asubstantialproportionoftheultimateawardmustbegivenforwhathasbeendescribedas“theinitialshockofbeingarrested”.(Thompson; Hsu v Commissioner of Police of the Metropolis [1998]QB498at515.)Asthetermofimprisonmentextendstheeffectuponthepersonfalselyimprisoneddoesprogressivelydiminish.22
105. AlthoughinFernando v Commonwealth of Australia (No 5),SiopisJultimatelyacceptedtheCommonwealth’sargumentthatMrFernandowasonlyentitledtonominaldamages,23HisHonourconsideredthesumofgeneraldamageshewouldhaveawardedinrespectofMrFernando’sclaimifhisfindingsinrespectoftheCommonwealth’sargumentonnominaldamageswerewrong.Mr Fernandowaswrongfullyimprisonedfor1,203daysinanimmigrationdetentioncentre.
106. SiopisJacceptedMrFernando’sevidencethathesufferedanxietyandstressduringhisdetentionand,also,thathewastreatedfordepressionduringandafterhisdetentionandtookthesefactorsintoaccountinassessingthequantumofdamages.
107. HisHonouralsonotedthatMrFernando’sevidencedidnotsuggestthatinimmigrationdetentionhewassubjectedtotheharsh‘strictprotection’regimetowhichMrTaylorwassubjectedinastateprison,northatMrFernandofearedforhislifeatthehandsofinmatesinthesamewaythatMr NyedidwhilsthewasdetainedatLongBayGaol.Takingallofthesefactorsintoaccount,SiopisJstatedthathewouldhaveawardedMrFernandoinrespectofhis1,203daysindetentionthesumof$265 000.24
10.3 Recommendation that compensation be paid108. IhavefoundthatMrJA’sdetentionwasnotinaccordancewiththerequirementsofsection95(2)of
theDFDAandwasarbitrary.
109. IconsiderthatMrJA’sdetentionwasarbitraryfromthetimethathewasplacedintheHCCintheearlyhoursof3May2008untilhisreleaseon8May2008becauseIamoftheviewthatDefencedidnotprogressthepreparationofthechargeandpotentialchargesagainstMrJAfromthistime.
110. MrJAallegesthatDefencehascommittedarangeofcriminaloffencesandcivilwrongs.IhaveconfinedmyconsiderationofcompensationtodeterminingtheamountappropriatetocompensateMrJAforDefence’sbreachofarticle9(1)oftheICCPRonly.
111. MrJAallegesthattheamountofcompensationawardedtohimshouldtakeintoaccountanamountrepresentingaggravatedandexemplarydamages.
112. IhavenotfoundthatDefencehasengagedinconductthatcouldgroundanawardofaggravatedorexemplarydamagesandmyrecommendationdoesnotreflectanallowanceforsuchconduct.
113. MrJAclaimsthathehassustainedapsychiatricinjuryasaresultofbeingdetainedbyDefencefrom1May2008to8May2008.However,therearenomedicalreportsbeforemethatevidencesuchaninjury.Notwithstandingthis,IacceptthatMrJAwouldhaveexperiencedsomedistressasaresultofhisdetention.
114. Assessingcompensationinsuchcircumstancesisdifficultandrequiresadegreeofjudgment.TakingintoaccounttheguidanceprovidedbythedecisionsreferredtoaboveIconsiderthatpaymentofcompensationintheamountof$15000isappropriate.
10 Findings and recommendations
JA v Commonwealth (Department of Defence) • [2014] AusHRC 72 • 15
11 Apology115. Inadditiontocompensation,IconsiderthatitisappropriatethatDefenceprovideaformalwritten
apologytoMrJAforthebreachofhishumanrightsidentifiedinthisreport.Apologiesareimportantremediesforbreachesofhumanrights.They,atleasttosomeextent,alleviatethesufferingofthosewhohavebeenwronged.25
12 Defence’s responses to my conclusions and recommendations
116. On12December2013,IprovidedanoticetoDefenceunders29(2)(a)oftheAHRCActsettingoutmyfindingsandrecommendationsinrelationtothecomplaintsdealtwithinthisreport.
117. Byletterdated6January2014,thelegalrepresentativesforDefenceprovidedthefollowingresponsetomyrecommendations.PartsofthisresponsehavebeenredactedattherequestofDefencebecausetheyrelatetosettlementdiscussionsbetweentheparties.
YouhaveinvitedtheDepartmentofDefence(Defence)toprovideyouwithinformationconcerningtheactionithastaken,oristaking,asaresultofthefindingsandrecommendationsoutlinedinthePresident’snoticeandthenatureofanysuchaction.
Changes to procedures
Weconfirmthat,duringthecourseofthismatter,DefencehasamendeditsprocedurestoensurethatmembersoftheDefenceForceswhoarechargedinaccordancewiths95(2)oftheDefence Force Discipline Act 1982(DFD Act)arechargedbyaproperofficerauthorisedinwriting.Arevisedformhasbeendevelopedforthispurpose.
WealsoconfirmthattheDirectorofMilitaryDisciplineLawhasreviewedtheexistingguidanceon Dealing with an arrested personintheAustralianDefenceForcesDiscipline Law Manual.
Theguidancehasbeenamendedtoprovideadditionalinformationandtomaketherequirementsofsub-section95(2)oftheDFDActclearer.
Therevisedguidanceandformhavebeenpublishedelectronically.TheDirectorofMilitaryDisciplineLawhasnotifiedServiceHeadquarterslawyers,ServiceCommandlawyersandtheMilitaryLawCentreoftheamendmentsthroughtheDirectorGeneralAustralianDefenceForceLegalServiceUpdate.
Asprovidedforunders95oftheDFDAct,itistheresponsibilityofCommandingOfficers,theDirectorofMilitaryProsecutionsandanyrelevant‘superior authority’tomonitorthecircumstancesbywhichamemberoftheDefenceForcesisdetained,andtoensurethatthememberisdealtwithwithoutdelayhavingregardtothecircumstancesofanindividualcase.
16
Compensation
DefencehassoughttoresolvethismatterwiththeassistanceoftheAustralianHumanRights Commission(AHRC)bywayofanagreedsettlement.…
Mr[JA]didnotacceptDefence’ssettlementoffer.
HavingregardtothefindingsandrecommendationsoutlinedtheinthePresident’snotice,DefencewouldalsoliketorestateitsofferofsettlementtoMr[JA].…
WenotetheCommonwealth’sobligationsconcerningthehandlingofmonetaryclaimsundertheLegal Services Directions 2005(LSDs),andinparticularthefollowingitemsofAppendix C:
(a) Item2,whichrequiresasettlementtobemadeonthebasisthatthereisatleasta meaningfulprospectofliabilitybeingestablished;and
(b)Item6,whichrequiresthatthetermsofasettlementinvolvingamonetarysumshouldordinarilyrequiretheclaimanttosignarelease.
Inordertosatisfytheserequirements,DefencerequiresMr[JA]toexecuteadeedofreleaseontermsconsistentwiththoseprovidedtoMr[JA]previously.
118. IreportaccordinglytotheAttorney-General.
ProfessorGillianTriggsPresidentAustralianHumanRightsCommission
May2014
12 Defence’s responses to my conclusions and recommendations
JA v Commonwealth (Department of Defence) • [2014] AusHRC 72 • 17
1 Section3(1)oftheAHRCActdefineshumanrightstoincludetherightsrecognisedbytheICCPR.2 SeeSecretary, Department of Defence v HREOC, Burgess & Ors(1997)78FCR208.3 Section139Defence Force Discipline Act 1982(Cth).4 Van Alphen v Netherlands CommunicationNo305/1988UNDocCCPR/C/39/D/305/1988,A v Australia Communication
No 560/1993UNDocCCPR/C/59/D/560/1993,C v AustraliaCommunicationNo900/1999UNDocCCPR/C/76/D/900/1999.5 MNowak,UN Covenant on Civil and Political Rights CCPR Commentary(2nded,2005)[247]-[248].6 Brough v AustraliaCommunicationNo1184/2003UNDocCCPR/C/86/D/1184/2003,Vuolanne v FinlandCommunication
No 265/1987UNDocCCPR/C/35/D/265/1987.7 MNowak,UN Covenant on Civil and Political Rights CCPR Commentary(2nded,2005)[245].8 UNHumanRightsCommittee,GeneralComment21(Replacesgeneralcomment9concerninghumanetreatmentofpersonsdeprived
ofliberty)(10April1992)at[5].9 UNHumanRightsCommittee,Mukong v Cameroon,CommunicationNo.458/1991,UNDocCCPR/C/51/458/1991(1994)at[9.3];
Potter v New Zealand,CommunicationNo.632/1995,UNDocCCPR/C/60/D/632/1995(1997)at[6.3].Seealso,UNHumanRightsCommittee,ConcludingObservationsontheUnitedStates,UNDocA/50/40(3October1995)at[285]and[299].
10 SeeforexampleSMRs17and19.11 AHRCActs29(2)(a).12 AHRCActs29(2)(b).13 AHRCActs29(2)(c).14 Cassell & Co Ltd v Broome(1972)AC1027,1124;Spautz v Butterworth & Anor(1996)41NSWLR1(ClarkeJA);Vignoli v Sydney
Harbour Casino[1999]NSWSC1113(22November1999),[87].15 [2013]FCA901.16 [2003]NSWSC1212.17 [2013]FCA901at[121].18 Ruddock v Taylor (2003)58NSWLR269.19 Taylor v Ruddock(unreported,18December2002,NSWDistrictCourt(MurrellDCJ)).20 Taylor v Ruddock(unreported,18December2002,NSWDistrictCourt(MurrellDCJ))[140].21 Ruddock v Taylor[2003]58NSWLR269,279.22 Ruddock v Taylor[2003]58NSWLR269,279.23 ThecourtawardednominaldamagesofonedollarfortheunlawfuldetentionofMrFernandobecauseasanon-citizen,oncehe
committedaseriouscrime,hewasalwaysliabletohavehisvisacancelled:Fernando v Commonwealth of Australia (No 5)[2013]FCA901[98]-[99].
24 Fernando v Commonwealth of Australia (No 5)[2013]FCA901[139].25 DShelton,Remedies in International Human Rights Law (2000)151.
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