Consideration
27 The statutory scheme applicable to the Tribunal's task in Pt 5 of the Act was extensively analysed in Li 249 CLR 332. Hayne, Kiefel and Bell JJ pointed to a number of indicia within Pt 5 that were important to the consideration of the manner in which the Tribunal ought approach the exercise of its powers under s 363(1) of the Act, including, relevantly, its power to adjourn the review from time to time under s 363(1)(b).
28 Importantly s 357A(3) required the Tribunal, in applying Div 5 of Pt 5, to "act in a way that is fair and just". That may have been a supplementation of the more precatory words of s 353(2)(b) that required the Tribunal, in reviewing a decision, to act "according to substantial justice and the merits of the case". The Tribunal had to invite Mrs Pathak to appear before it to give evidence and present arguments relating to the issues arising in relation to the decision under review (s 360(1)). The Tribunal also had power to ask her to provide information or documents, as it did.
29 Hayne, Kiefel and Bell JJ discussed the constructions of ss 353, 357A, 360 and 363(1)(b) at some length in Li 249 CLR at 358-368 [51]-[80]. Their Honours said that the Tribunal is not under an obligation to afford every opportunity to an applicant for review to present his or her best possible case and to improve upon the evidence and that, in appropriate cases, the Tribunal can decide that "enough is enough". They said that the purpose of s 360(1) was to provide an applicant for review the opportunity to present evidence and arguments "relating to the issues arising in relation to the decision under review".
30 Those issues were clarified during the hearing by the calculation that the Tribunal made with Mrs Pathak of the amount she needed for financial support. Although it had invited her, on 17 April 2013, to provide "current" evidence that she satisfied, among other things, financial capacity requirements in Sch 5A, the Tribunal recognised in its reasons at [17] that that invitation "was predicated on [Mrs Pathak] having to meet the various requirements of cl 572.223, rather than cl 573.223, because at the time of the previously constituted Tribunal's decision in April 2013 [Mrs Pathak] had been enrolled in a diploma level course".
31 In other words, the Tribunal's own approach to the issues that would be presented for review at the hearing had been predicated on the basis of what was, by the time of the actual hearing, out of date or unresponsive material in that changed scenario. No doubt that is why, during the course of the hearing, the Tribunal had gone through calculating with Mrs Pathak what was necessary, and also why the level of guarantee provided by her cousin turned out to be inadequate.
32 In my opinion, the Tribunal's decision record revealed that the quantification of the precise amount that Mrs Pathak needed to satisfy the relevant requirements in Sch 5A was only fully appreciated by it and her during the course of the hearing. Whatever assistance she may have gained from her migration agent in preparing for the hearing, the Tribunal itself went through the calculation with her during her evidence. It then became apparent that there was an immediate disparity between what her cousin had recently provided by way of a reduced guarantee on 2 May 2013 and what Mrs Pathak was required to provide.
33 Moreover, the Tribunal at no point suggested that it did not accept or believe or had any doubts that Mrs Pathak would be able to obtain from her cousin the increased requisite guarantee amount of $94,600 that the now clarified requirement entailed. Nor was there any suggestion in the Tribunal's decision record that, having appreciated from the Tribunal's explanation to her of the inadequacy of the 12 April 2012 certificate, she needed to obtain financial documents for the three months before 1 December 2010. There was no apparent reason to consider that, had she had an opportunity to obtain those from her cousin, she could not have done so. Presumably, he had had some savings and documentation from which he had built up the approximately $150,000 in the 12 April 2012 certificate.
34 Given that the Tribunal took another 11 days after 10 May 2013, when it made its decision, to provide its reasons, it is difficult to see why the Tribunal needed to decide the review immediately rather than reserving its decision after hearing all the evidence and giving Mrs Pathak an opportunity, however brief, to do what she said she could do, namely, obtain the requisite financial information including a guarantee for the correct amount from her cousin. The Tribunal could still have prepared reasons had it granted her that time. It could still have made its decision promptly but it would have had a complete case from Mrs Pathak on matters that were easily remedied, and it would not have needed to have any further hearing.
35 Instead, the Tribunal proceeded to give its decision immediately, having refused to provide any adjournment to Mrs Pathak to obtain updated financial material, even though issues for the review had only been clarified during the course of the hearing. Of course, the Tribunal did not have to assume that Mrs Pathak would have been successful in obtaining all of the necessary outstanding financial information, although she was confident she would be able to have her cousin commit to the higher guarantee required of $94,600. Her cousin may or may not have been able to provide evidence of holding at least those funds for the three months prior to 1 December 2010.
36 But, the Tribunal determined the adjournment request on the basis that it "did not wish to falsely raise her expectation of a successful outcome by granting an extension of time to provide additional financial documentation". It said this was because its doubts had not been resolved. But, it never did resolve those doubts as to Mrs Pathak's genuineness as an applicant for entry and stay as a student.
37 The facts of the proceedings before Mortimer J appear to me to be different and do not provide assistance in the disposition of this matter. That is because the test for determining that the Tribunal's refusal of the adjournment was unreasonable is that in Li 249 CLR 332.
38 In my opinion, by having regard to those doubts, the Tribunal took into account an irrelevant consideration for the reasons given by Hayne, Kiefel and Bell JJ in the following passage in Li 249 CLR at 369 [84]-[85]:
There remains the possibility that the previous conduct of Ms Li influenced the Tribunal. It had continued to question her about the false information associated with her application despite her repeated admissions and the advice that the case she wished to put forward did not depend upon that information. If her prior conduct was influential, the Tribunal took into account an irrelevant consideration for the reason that Ms Li's conduct per se was not relevant to the visa criteria. The concern of the criteria is with the information relied upon to satisfy them, a point Ms Li's migration agent attempted to make to the Tribunal.
The Tribunal's error might be identified as giving too much weight to the fact that Ms Li had had some opportunity to present evidence and argument and insufficient weight to her need to present further evidence. It would not appear that the Tribunal had regard to the purposes for which the statutory discretion in s 363(1)(b) is provided in arriving at its decision. It is not possible to say which of these errors was made, but the result itself bespeaks error. In the circumstances of this case, it could not have been decided that the review should be brought to an end if all relevant and no irrelevant considerations were taken into account and regard was had to the scope and purpose of the statute. Because error must be inferred, it follows that the Tribunal did not discharge its function (of deciding whether to adjourn the review) according to law [Klein v Domus Pty Ltd (1963) 109 CLR 467 at 473]. The Tribunal did not conduct the review in the manner required by the Migration Act and consequently acted beyond its jurisdiction. (emphasis added)
39 If, on the merits of the review, Mrs Pathak were not a genuine applicant for entry and stay as a student, then the Tribunal would have been obliged so to find. Yet, it expressly refrained from making such a finding. Instead, it considered the question of whether to exercise its power to adjourn the review under s 363(1)(b), to allow Mrs Pathak to provide additional financial documents on three bases.
40 First, it appeared to be determined to give a decision immediately on the day of the hearing, as appeared from its invitation letter of 17 April 2013. And it remained fixed on doing so notwithstanding that as the hearing progressed, it became apparent that the pre-hearing preparation by the Tribunal and its identification of the issues in its letter of 17 April 2013 to Mrs Pathak and her advisors had occurred on an erroneous basis. The Tribunal's 17 April 2013 letter had emphasised the need for Mrs Pathak to provide current evidence, but as the Tribunal acknowledged at [17] of its decision that letter had been predicated on the wrong clause in the Regulations for her actual situation. And, it said at [33], immediately before adjourning briefly to allow Mrs Pathak and her husband to discuss what else they might wish to say:
The Tribunal indicated that [Mrs Pathak] had not given evidence in accordance with her Schedule 5A financial capacity requirements and the Tribunal was ready to make a decision. (emphasis added)
41 Secondly, the Tribunal refused the adjournment because it said that Mrs Pathak had known for a long time about the need to satisfy the Sch 5A financial capacity requirements. However, as was clear and understandable, given the Byzantine complexity of those requirements, the actual consequence of the requirements as they applied to her current circumstances only became apparent to both the Tribunal and her during the course of the hearing.
42 Thirdly, the Tribunal said it did not wish "to falsely raise her expectations of a successful outcome by granting an extension of time to provide additional financial information" based on its doubt, but not a finding, about whether she was a genuine applicant for entry and stay as a student.
43 The Tribunal's reasons demonstrated that although Mrs Pathak needed to satisfy the Sch 5A requirements $94,600, she and her cousin had proceeded before the hearing on the by now demonstrably erroneous premise that a guarantee of $65,000 would be sufficient. The Tribunal did not express any disbelief or doubt as to the truth of Mrs Pathak's statement to it that her cousin would provide the increased level of financial support if required and she could have him commit to that amount if need be. Moreover, he had had a very large sum on deposit as at 12 April 2012, but that was not the relevant date. His financial circumstances, as Mrs Pathak had said, had changed since then but the Tribunal made no finding that that had affected his expressed willingness or ability to support his cousin as she asserted. The Tribunal's 17 April 2013 letter told her emphatically that she had to have current evidence. It explained the problem with the 12 April 2012 certificate to her in the hearing and said that she needed to provide additional financial information based on the new calculation of $94,600 for the period of the three months before 1 December 2010.
44 On the basis of the evidence before the Tribunal, it could reasonably have expected Mrs Pathak to be able to collect an updated guarantee and the necessary financial information from her cousin promptly. If the absence of that material were then cured, the Tribunal could have considered the substantial justice and merits of the case and what was fair and just, as ss 353(2)(b) and 357A(3) required.
45 It was not relevant for the Tribunal to consider any unresolved "doubts" that it may have had on another essential criterion for the grant of the visa when deciding Mrs Pathak's request for an adjournment, so that she could obtain the additional financial information. The Tribunal used those unresolved doubts to refuse the adjournment to obtain the additional financial information and then decided the review on the basis that the financial requirements it had identified only on that day had not been met. As Hayne, Kiefel and Bell JJ said in Li 249 CLR at 369 [85], it is not possible to say which errors by the Tribunal were made but in any event "the result itself bespeaks error".
46 In my opinion, the Tribunal's refusal to allow Mrs Pathak a reasonable opportunity to supplement her financial documents, which need not have taken any particularly long period of time, or one beyond the 11 days taken by the Tribunal to deliver its written reasons, was based on an irrelevant consideration. It found that the potentially easily remediable deficiency in Mrs Pathak's financial documents was fatal to her application for review and, then, it found expressly that it was unnecessary for it to resolve the issue about the doubts that it said caused it to refuse her any adjournment at all to remedy that fatal point.
47 It is one thing to refuse an adjournment because the deficiency in evidence or material on one point would not be capable of changing another determinative deficiency in the applicant's evidence in the review. It is another to refrain from deciding a point, but to use unresolved "doubts" about it, to refuse an applicant an opportunity to cure a remediable but, if unremedied, fatal, deficiency in his or her case. The existence of "doubts" could not have been relevant to a decision to allow or refuse her a reasonable opportunity to supplement her financial documents, unless the Tribunal had decided that Mrs Pathak, in fact, was not a person who was a genuine applicant for entry and stay as a student. In other words, the adjournment could have been refused if the Tribunal had concluded that Ms Pathak was not such a genuine applicant.
48 There was no necessity, and certainly no explanation for the seemingly imperative necessity, for the Tribunal to make its decision on the day of the hearing in the circumstances where it did not express any disbelief or reject Mrs Pathak's evidence that her cousin would provide the support, as he apparently had done up to the moment of the dismissal of the application for review.
49 In my opinion, the Tribunal's refusal to exercise its power to adjourn was unreasonable. It failed to comply with its obligation to act in a way that was fair and just and by failing to give the applicants an opportunity to remedy the deficiency in the financial documents. The Tribunal could not reasonably have taken doubts about a matter on which it had not made a decision into account in refusing an adjournment so that Mrs Pathak had an opportunity to cure the actual defect in her evidence, that it gave as the reason for affirming the delegate's decision.