Discretion to refuse relief
37 The real issue is therefore whether the relief sought in respect of Professor Venville's decisions should be refused in the exercise of the Court's discretion, in circumstances where a process for appealing from her final decision exists and has been invoked by the applicant.
(a) In so far as those prayers for relief rely on the ADJR Act, a discretion is conferred expressly by s 10(2)(b)(ii) of that Act where "adequate provision" is made by another law under which the applicant can obtain review of the decision. However, that does not detract from the general discretion to grant such relief as is appropriate under s 16: see Kamha v Australian Prudential Regulation Authority [2005] FCAFC 248; 147 FCR 516 at [87] (Emmett, Allsop and Graham JJ).
(b) In so far as the relief is sought under s 39B of the Judiciary Act, the constitutional writs and related orders such as certiorari (formerly known as prerogative writs) have long been understood to be discretionary. The same is true of declaratory relief. One recognised basis for refusing relief is the availability of an alternative remedy: see eg Kamha at [87]; Hill v Green [1999] NSWCA 477; 48 NSWLR 161 at [163] (Fitzgerald JA).
38 Section 10(2)(b)(ii) of the ADJR Act reflects a sound policy which the courts generally apply. Where an administrative decision can be reviewed on its merits by an independent body, taking into account all of the relevant issues, it is usually (but not always) preferable for that review to be undertaken rather than engaging in judicial review of the primary decision. This is an aspect of the discretion to refuse relief which can be, and for obvious reasons often is, addressed before a final hearing on the relevant prayers for relief rather than at the end of the case.
39 The statute that now governs the conduct of appeals in cases such as the present one is the Appeals Rule 2023 (Cth) (the 2023 Rule), which was registered and came into effect on 6 July 2023. Section 32(1) of the 2023 Rule provides that s 26 of the Australian National University (Legislation) Statute 2023 (Cth) (Legislation Statute) applies to the repeal of the Appeals Rule, and s 33 provides that the provisions in Division 7.2 of the 2023 Rule are additional to, and do not limit, s 26 of the Legislation Statute. Section 26(3) and (4) of the Legislation Statute preserve the legal effect of things done or in force under legislation that is repealed. Section 26(2) provides that the repealed legislation is taken to have been amended, rather than repealed, by the repealing legislation. Where matters of procedure are involved, I take this to mean that the new legislation applies to a process that is in train at the time of the repeal. However, it is not necessary to state a final view on this matter because there is no material difference between the relevant provisions of the Appeals Rule and the 2023 Rule.
40 The following points are apparent from the 2023 Rule.
(a) If an application for review is valid, the Registrar must refer it to an Appeals Committee (s 11).
(b) The Appeals Committee can receive material that was not before the original decision maker. It has power to review that material at a preliminary stage and, if it is considered to be cogent, relevant or substantial, refer the decision back to the original decision maker (s 14).
(c) Material on which the Committee intends to rely must be provided to the student before the hearing (if there is one) (s 15).
(d) The Committee has a discretion whether to hold an oral hearing (s 17).
(e) The Committee may inform itself on any relevant matter in the way it considers appropriate, must take into account any submissions made by the student, and is bound by the rules of procedural fairness but not the rules of evidence (s 19(1)).
(f) The student (s 20) and the Registrar (s 19(2)) may appear before the Committee, call and question witnesses and make oral or written submissions. The Registrar may appear through an advocate. The student may have a support person present who, with the approval of the Committee, may act as an advocate.
(g) The Committee has the usual decision making powers of a merits review Tribunal. It may confirm, vary or set aside the original decision and may substitute its own decision (s 23(1)). The decision as varied, or a new decision substituted by the Tribunal, must be one that the original decision maker could have made (s 23(3)). The decision of the Committee must be given to the student and the Registrar in writing.
41 Assuming the correctness of the reasoning in McGary, I would hold that the Appeals Committee provides a form of genuine merits review that is capable of dealing properly with the points the applicant would wish to make concerning the adequacy of the evidence against him. This, together with the fact that the applicant had chosen to invoke the Appeals Committee process, would dictate a conclusion that the remaining prayers for relief should be dismissed in the exercise of the Court's discretion.
42 However, I do not think the University can properly maintain a submission that the Appeals Committee will provide genuine merits review of the decisions made by Professor Venville while also seeking to overturn the decision in McGary. Based on the oral submissions in reply made on 30 August 2024 concerning the potential implications of an appeal, I understand the University's position to be that the applicant's case will probably be considered by an Appeals Committee consistently with the reasoning in McGary, because the process will likely be completed before the University's appeal is decided. If this were suggested as a complete solution to the present issue, it would be unprincipled. If a public body such as the University wishes to rely on a submission concerning the nature of a decision making process established by statute, such a submission should be based on what that body contends is the true state of the law; not on the temporary and convenient acceptance of a position that the body elsewhere contends is wrong.
43 The position of the University on this point is also unsatisfactory for other reasons.
(a) The Court can only guess how long the appeal in McGary might take to hear and decide, and how long the Appeals Committee in the present case might take to come to a decision if the matter is returned to it. While it appears likely that the applicant could obtain a decision from an Appeals Committee before the determination of the appeal in McGary, that is not guaranteed.
(b) Different views have been taken as to what an administrator should do in the face of a single judge decision that the administrator regards as misstating the law. Although the Court in Federal Commissioner of Taxation v Indooroopilly Children Services (Qld) Pty Ltd [2007] FCAFC 16 at [3]-[7] (Allsop J, Stone and Edmonds JJ agreeing) strongly criticised what seemed to be a practice by the Australian Taxation Office of administering legislation inconsistently with the law as expounded in some single judge decisions, the view has sometimes been taken that it is not improper for a government agency to adhere to its preferred understanding while taking steps to clarify the status of contrary authority (eg by an appeal from the relevant judgment or a test case): see, eg, K Walker, "When Can a Court's Decision be Ignored?" (2023) 46 Melbourne University Law Review 572 at 588-592. The University is a statutory entity but not an executive agency. It is impossible to know what advice will be given to the Appeals Committee (and what view it will take) in the face of the reasoning in McGary and the University's appeal from that decision.
(c) The University's (apparent) position also does not deal with the possibility that, if its appeal succeeds, a party with a sufficient interest could seek judicial review of any decision that the Appeals Committee might have made in the meantime on the footing that McGary correctly states the law.
44 For these reasons, I do not accept the University's submission that the remaining prayers for relief should be refused in the exercise of discretion. On the basis that the decision of the Appeals Committee is to be set aside, and therefore has no legal effect, the issues raised by these prayers for relief are live issues between the parties which the Court must determine.