Assessment of further applications
14.9 When the Proper Officer decides to refer a matter for further assessment, the Proper Officer shall determine how the application is to proceed in accordance with the provisions of Chapter 9 and, in particular, determine an appropriate Medical Assessor or Assessors to conduct the further medical assessment …."
15 Otherwise, I confirm the analysis of the overall operation of MACA, which I set out in Graham Kelly v Motor Accidents Authority of New South Wales and Anor [2006] NSWSC 1444; (2006) 46 MVR 553 at [9]-[15]. As to the function and procedure for medical assessments, I confirm my view, expressed in Garcia v Motor Accidents Authority of New South Wales [2009] NSWSC 1056; (2009) 54 MVR 102 at [8] and [13].
16 Plainly, the outcome of a medical assessment is crucial to each disputant. It determines whether an injury is causally linked to a particular motor vehicle accident and, most relevantly for present purposes, the level of whole person impairment caused by the accident. That assessment will determine whether, if at all, a claimant is entitled to damages for non-economic loss. The determination of the assessment is a matter that fundamentally affects the rights of both the claimant before the Authority and any insurance company who may be respondent to such claim.
17 I turn then to the construction of s 62 of MACA. It is not suggested, nor could it be, that there has been a reference for further assessment by a court or claims assessor such as to enliven the provisions of s 62(1)(b). In this case, the third defendant relies upon a reference under and pursuant to the provisions of s 62(1)(a). The subsection is in unusual terms.
18 The preamble in s 62(1) provides that a matter "may be referred" on a further occasion and then, by paragraph (a) thereof, provides that the reference may be effected by any party to the medical dispute, but only on the grounds of the deterioration of the injury or additional relevant information about the injury. As a consequence of that drafting technique, while the preamble to s 62(1) of MACA is seemingly in permissive (or facultative) terms, it is permissive of a party, relevantly, being able to refer a matter for further assessment, but only on limited grounds.
19 Thus, while the word "may" would ordinarily involve a discretion, in this case, the "discretion" to refer is reposed in the party and, once validly exercised, there is a requirement that the Authority undertake the assessment: see Re Coldham; Ex Parte Brideson [1989] HCA 2; (1989) 166 CLR 338 at 347-348.
20 MACA does not expressly require, or contemplate, a decision of the Authority, or any officer thereof, that the conditions precedent to the referral by a party have been met, assuming, for present purposes (but to be discussed later in these reasons), that the criteria in s 62(1)(a) and s 62(1A) of MACA are "conditions precedent". For relevant purposes, it is sufficient to note that both a claimant before the Authority and a respondent (including a relevant insurance company) are each parties to the medical dispute.
21 The terms of MACA contemplate that, subject to the satisfaction of one or more of the criteria in s 62(1)(a) of MACA, such a party is entitled, itself, to refer the matter for further assessment, without an intervening decision of the Authority or any officer thereof. There is the further condition imposed by s 62(1A) of MACA that the deterioration of the injury and/or the additional information must be material.
22 As such, there is a seeming inconsistency between the provisions of the Guidelines and the legislative provisions allowing a party, without decision of the Authority, to refer the matter for further assessment. This tension was the subject of comment by Davies J in De Gelder v Motor Accidents Authority of NSW [2009] NSWSC 1173 at [33]-[37].
Role of the Proper Officer
23 The provisions of s 60(2) and s 62(1B) of MACA require the referral for medical assessment (either initially or a further assessment) to be by referral to the Authority and for the Authority, through a designated staff member, to refer the matter to one or more medical assessors. For all practical purposes, there seems little or no difference in the operation of s 60(2) and s 62(1B) of MACA, even though they are worded slightly differently. The foregoing is not to suggest that the designated member of staff (referred to as the Proper Officer of the Authority, for the purpose of s 62(1B) of MACA) is the same person who would refer the matter on behalf of the Authority for the purpose of s 60(2) of MACA.
24 However, the referral to the Proper Officer is an administrative step designed to ensure that the reference by a party to the medical dispute, on the one hand, or a court or claims assessor, on the other hand, is programmed, in a listing or calendar sense, into the work of the Authority.
25 The role of the Proper Officer is to arrange the further medical assessment under s 62, which further medical assessment has, pursuant to MACA, already been referred. That role was described by Hoeben J as a function that is purely administrative, rather than judicial: Goodman v The Motor Accidents Authority of NSW and Anor [2009] NSWSC 875; (2009) 53 MVR 420. His Honour was there concerned with an argument that the Proper Officer was required to give reasons for the decision purportedly made under s 60(2) of MACA.
26 I accept, with great respect, the description by Hoeben J of the role of the Proper Officer, described above. The role contemplated by MACA for the Proper Officer (either under s 60 or under s 62) is a procedural role not an administrative or jurisdictional gateway through which the parties are required to pass. In particular, s 62(1B) of MACA deals with a reference, not only by the parties to the medical dispute, but also by a court or claims assessor. A reference by a court or claims assessor requires no precondition. Yet the task of the Proper Officer is identical, regardless of the source of the reference.
27 It is necessary, then, to deal with the tension between that role contemplated by MACA, and the terms of the Guidelines.
28 Earlier in these reasons for judgment, the Court recited the relevant parts of Chapter 14 of the Guidelines, relating to further assessment and review applications and, particularly, the terms relating to the role of the Proper Officer. There are a number of aspects of Chapter 14 of the Guidelines that are seemingly inconsistent with the functions of the Proper Officer (and the parties to a medical dispute) under s 62 of MACA. For example, clause 14.1 of the Guidelines refers to "an application … for further assessment". The parties to a medical dispute do not apply for a further assessment, they directly refer the matter for further assessment. Nevertheless, the Guidelines, appropriately, require such a referral to be in a prescribed form with the accompanying information that is required. It is unnecessary to deal with the terms of clause 14.2 of the Guidelines, but clauses 14.3, 14.4, 14.5, 14.6 and 14.7 are predicated on the basis that the parties apply to the Proper Officer for a reference for a further assessment and the Proper Officer decides whether a reference shall occur.
29 As earlier stated, the terms of MACA require the Proper Officer to undertake a procedural task equivalent to, in effect, the listing of the further assessment before a medical assessor. The Proper Officer is not given, by the terms of MACA, a decision-making jurisdiction as to whether the referral for a further medical assessment has been validly made, or, whether the conditions in s 62(1)(a) and s 62(1A) of the MACA have been satisfied. The foregoing does not require a result that the Proper Officer has no function to determine, or examine, the conditions in s 62(1)(a) and s 62(1A) of MACA.
30 A Proper Officer, being an officer of the Authority with an administrative function required by the terms of MACA, is required to be satisfied, before referring a matter for further medical assessment, that the terms of MACA have been properly invoked. But such a determination does not determine, authoritatively or otherwise, in a manner that binds the parties to the medical dispute (or a court or claims assessor), the validity of the referral by the party.
31 It is unnecessary to discuss any other aspect of the Guidelines and any seeming or arguable contradiction between the terms of the Guidelines and the terms of MACA. It is sufficient, for relevant purposes, for the Court to determine that it is permissible for the Guidelines to establish a procedure whereby the Proper Officer determines whether MACA requires a reference by the Proper Officer to a medical assessor. That is a determination as to whether the Proper Officer is required to perform the functions under s 60(2) and/or s 62(1B) of MACA.
Certiorari issued to the Proper Officer
32 In the amended summons, the plaintiff seeks the issue of an order in the nature of certiorari, removing the decision of the Proper Officer of 9 March 2009. Some texts have suggested that a statutory provision (in this case, a reference for re-assessment) coming into effect in certain circumstances cannot operate unless someone decides that those circumstances exist: M Aronson, B Dyer, M Groves, Judicial Review of Administrative Action, 4th ed (2009) Lawbook Co at 69-70. This statement seems to be based upon the judgment of the Full Court of the Federal Court of Australia in Australian Postal Corporation v Forgie [2003] FCAFC 223; (2003) 130 FCR 279 ("Forgie"). I will return to the judgment of the Federal Court in Forgie.
33 Classically, in determining whether a writ of certiorari (or orders in the nature thereof) will issue against a person or body, the courts apply the "Atkin dictum", being the passage from the judgment of Atkin LJ (as he then was) in R v Electricity Commissioners [1924] 1 KB 171 at 205, in which his Lordship said:
"Wherever any body of persons having legal authority to determine questions affecting the rights of subjects, and having the duty to act judicially, act in excess of their legal authority they are subject to the controlling jurisdiction of the King's Bench Division exercised in these writs."
34 The foregoing passage was a reference not only to the writ of certiorari, but also to the writ of prohibition. Further, the issue of certiorari is not confined to circumstances where a body acts in excess of its legal authority. Certiorari will issue for any error of law on the face of the record. Certiorari is here used to include an order in the nature of certiorari, pursuant to the terms of s 69 of the Supreme Court Act 1970. While it is not relevant at this stage of the proceedings, I reiterate that orders under s 69 of the Supreme Court Act will issue for an error of law on the face of the record, which term includes the reasons for judgment (see s 69(4) of the Supreme Court Act), but the error must be in the ultimate determination of the court or tribunal and only if that determination has been made on the basis of the error alleged (s 69(3) of the Supreme Court Act).
35 The overall effect of s 62 of MACA is that a party to the medical dispute (ignoring as irrelevant, for present purposes, a referral by a court or claims assessor) refers a matter for further medical assessment. The party does not make an application for a referral. In somewhat unusual terms, s 62(1B) of MACA specifies that the reference for further medical assessment is "by referral to" the Proper Officer. The statutory task of the Proper Officer is not to dismiss an application (cf Guidelines clause 14.7), but the Proper Officer is entitled to decide for herself or himself whether there has been a referral, i.e. whether the statutory conditions for a referral have been satisfied.
36 The effect of such a decision determines whether the Proper Officer will, thereafter, list what purports to be the referral of a matter for further medical assessment before a medical assessor. Such a decision does not require the Proper Officer to act judicially. The Proper Officer is not, as Hoeben J made clear in Goodman, supra, required to issue reasons for decision (at least pursuant to the statute), is not required (by the statute) to apply the rules of procedural fairness, and is performing a purely procedural task. That procedural task is required by the Act, if there has been a valid referral for a further medical assessment and the determination of whether the statutory requirements have been satisfied is a decision only for the purpose of ascertaining whether the statute requires the Proper Officer to preform that procedural task.
37 The mere fact, if it be the fact, that a task is purely administrative in nature does not preclude the issue of certiorari in an appropriate case. Thus, a determination by way of recommendation that is a procedural step antecedent to the ultimate decision may give rise, if appropriate error is disclosed, to the issue of prerogative writ. Examples abound of such circumstances and have included Royal Commissions, recommendations to Ministers and the like. The test for the issue of the writ is not whether the act that is challenged is administrative in nature, but whether the body or person that performs the challenged act is required to act judicially.
38 The approach taken by the Full Court of the Federal Court (Black CJ, Merkel and Stone JJ) in Forgie, supra, was that where the government, or an instrumentality thereof, is liable, if certain circumstances exist, but is not liable if other circumstances exist, then there is a necessary implication that a decision or determination must be made by a person with authority to make it: see Forgie, supra, at [9], [10] and [43]. That principle, with which I do not cavil, is based upon the proposition that the liability of the Commonwealth, or in that case Comcare, dependent, as it was, on particular circumstances, must require the Commonwealth or that instrumentality to make a decision. The Federal Court was there concerned with whether a decision had been made, which was amenable to a review under the Administrative Decisions (Judicial Review) Act 1977 (Cth).
39 However, in the present situation, liability is not sheeted home to government, but to a respondent (or its insurer) and liability depends upon the medical assessment, not the reference for a further medical assessment. Moreover, it is the parties to the medical dispute that are given the capacity to refer the matter for further medical assessment. In those circumstances, the rationale in Forgie is inapplicable.
40 Many examples exist of non-self-executing decisions (and/or recommendations) that have been held to be amenable to prerogative relief: see Ainsworth v Criminal Justice Commission [1992] HCA 10; (1992) 175 CLR 564; (1992) 66 ALJR 271; Mahon v Air New Zealand [1984] AC 808; Police Integrity Commission v Shaw [2006] NSWCA 165; (2006) 66 NSWLR 446.
41 On the view that I have taken of the role of the Proper Officer, the Proper Officer is not required to act judicially, is required to take a purely procedural step and does not, of herself or himself, make a decision that affects the rights of any of the parties. The procedural decision to organise a further medical assessment (or to refuse to organise such an assessment) is not effective to alter the rights of the parties, which are granted, or not granted, by the MACA, not the decision of the Proper Officer. The rights of the parties are conferred by the provisions of s 62(1) and s 62(1A) of MACA and not otherwise. And, subject to the later comments in these reasons, those rights would be enforceable, regardless of the "decision" of the Proper Officer.
42 The foregoing does not mean, as previously stated, that the Proper Officer is incapable of making a decision. As the previous analyses of MACA make clear, the process undertaken, through medical assessment and claims assessment, is intended to be informal. A decision of the kind seemingly required by the Guidelines may be accepted by each of the parties, even if initially disputed, because an independent person has considered the issues that exist between the parties. However, the legal rights of the parties are not dependent upon that decision.
43 In short, for the foregoing reasons, I find that certiorari will not issue in relation to the decision of the Proper Officer of this kind and, in particular, the decision of the Proper Officer, of 9 March 2009, is not amenable to certiorari, or orders in the nature thereof. That finding does not finalise the proceedings and does not determine whether orders, other than certiorari, might issue that determine the rights of the parties. Such a conclusion depends upon whether the conditions imposed by MACA on a referral for a further medical assessment are "jurisdictional facts".
Jurisdictional facts
44 In some respects the term "jurisdictional fact" is a misnomer. The most useful definition is that of the High Court in Gedeon v Commissioner of the New South Wales Crime Commission [2008] HCA 43; (2008) 236 CLR 120 at 139. There, the High Court (Gummow, Kirby, Hayne, Heydon, Crennan and Kiefel JJ) said:
"[43] The expression 'jurisdictional fact' was used somewhat loosely in the course of submissions. Generally the expression is used to identify a criterion the satisfaction of which enlivens the exercise of the statutory power or discretion in question. If the criterion be not satisfied then the decision purportedly made in exercise of the power or discretion will have been made without the necessary statutory authority required of the decision maker."
45 The expression has been used for many years and was used to include "constitutional facts", i.e. those criteria the existence of which enlivened legislative power: see for example the determination by the High Court, over many years, of the existence of "an industrial dispute extending beyond the limits of any one State" in considering the jurisdiction of the federal arbitral body.
46 But the criteria which requires satisfaction to enliven the exercise of statutory power is not necessarily confined to "a fact". It may often be a mixed question of fact and law. The fact may be the existence of an opinion of a particular decision-maker or some other person: see for example Corporation of the City of Enfield v Development Assessment Commission [2000] HCA 5; (2000) 199 CLR 135.
47 Thus in City of Enfield, supra, (at [28]) the High Court referred to the term "jurisdictional fact" as one "often used to identify that criterion, satisfaction of which enlivens the power of the decision-maker to exercise a discretion. Used here, it identifies a criterion, satisfaction of which mandates a particular outcome." In that case, the criterion requiring satisfaction was the consent of both the Minister and the Council: City of Enfield, supra, at [28] (per Gleeson CJ, Gummow, Kirby and Hayne JJ).
48 The determination of whether a circumstance or fact is "jurisdictional" depends upon the construction of the statute. In turn, that depends upon a determination as to whether the legislature intended that the absence or presence of the objective criterion will or will not invalidate action under the statute. This was one of the fundamental issues that the High Court discussed in Project Blue Sky v Australian Broadcasting Authority [1998] HCA 28; (1998) 194 CLR 355. The issue was discussed by the Court of Appeal in Timbarra Protection Coalition Inc v Ross Mining NL & Ors [1999] NSWCA 8; (1999) 46 NSWLR 55. In dealing with issues arising under the Environmental Planning and Assessment Act 1979, his Honour Chief Justice Spigelman (with whom Mason P and Meagher JA concurred) said:
"[37] The issue of jurisdictional fact turns, and turns only, on the proper construction of the Statute. (See e.g. Ex parte Redgrave; Re Bennett (1946) 46 SR (NSW) 122, 125). The Parliament can make any fact a jurisdictional fact, in the relevant sense: that it must exist in fact ('objectivity') and that the legislature intends that the absence or presence of the fact will invalidate action under the statute ('essentiality'). ( Project Blue Sky Inc v Australian Broadcasting Authority [1998] HCA 28 at [91]- [93]).