The Act puts the NSW Carers Charter into law, requires public and human‑service agencies to promote awareness of the Charter, consult carers when making relevant policies, and (for human‑service agencies) report compliance in annual reports. It creates a Minister‑appointed Carers Advisory Council to advise government, but expressly does not create private legal rights or causes of action. It mainly affects public sector and human‑service agencies’ administration and budgeting; it recognises carers’ role while leaving enforcement to policy and executive discretion.
This Act (Carers (Recognition) Act 2010) establishes a statutory carers charter, prescribes limited obligations for public sector agencies and human service agencies to have regard to that charter, creates an advisory body (the Carers Advisory Council) and sets out machinery for reporting, regulation-making and review. The Act does not create private legal causes of action or alter judicial or administrative review rights (see s 6; s 7; s 8; s 10-12; s 9).
Mechanically the Act does four things:
It adopts the NSW Carers Charter as a schedule to the Act and requires public sector agencies to promote awareness of the Charter among their staff and agents (s 6; s 7(1)).
It imposes consultation and HR-policy duties on public sector agencies where policies impact carers, requiring agencies to consult “such carers or bodies representing carers as the agency considers appropriate” and to develop internal human resources policies with “due regard” to the Charter where those policies significantly affect staff who are carers (s 7(2)-(3)).
It places stronger obligations on human service agencies: they must take “all reasonable steps” to reflect the Charter’s principles in agency action and staff conduct, and must prepare a report on compliance for each 12‑month reporting period to be included in the agency’s annual report (s 8(1)-(2); definition of reporting period in s 4).
It establishes a Ministerially appointed Carers Advisory Council, requires the Minister to appoint a majority of members who are carers and allows the Minister to set terms, remuneration and procedures for the Council (s 10-12).
The Act provides that nothing in it confers new legal rights or gives rise to civil causes of action, and it does not affect the validity of judicial or administrative acts or give grounds for review (s 9(1)-(2)). The Governor may make regulations to give effect to the Act (s 13). A transitional provision excludes reporting periods already commenced before commencement from the reporting obligation (s 14). The Minister must review the Act within five years of assent and table a report within 12 months after the end of that five‑year period (s 15).
Current sections
Direct links to the current provisions in Carers (Recognition) Act 2010.
(b) a local health district or statutory health corporation (within the meaning of the Health Services Act 1997),
(c) the NSW Police Force,
(d) a NSW Government agency or other authority of the State,
(e) a local council,
(f) a State owned corporation,
(g) any other person or body that is prescribed by the regulations for the purposes of this definition.
reporting period, for a human service agency, means a period of 12 months to which an annual report of the agency relates.
s 4: Am 2010 No 97, Sch 2.2; 2011 No 4, Sch 2.2.
5
Meaning of “carer”
5 Meaning of “carer”
5 Meaning of “carer”
(1) For the purposes of this Act, a person is a carer if the person is an individual who provides ongoing personal care, support and assistance to any other individual who needs it because that other individual:
(b) has a medical condition (including a terminal or chronic illness), or
(c) has a mental illness, or
(d) is frail and aged.
(2) Despite subsection (1), a person is not a carer for the purposes of this Act in respect of care, support and assistance that the person provides:
(a) under a contract of service or a contract for the provision of services, or
(b) in the course of doing voluntary work for a charitable, welfare or community organisation, or
(c) as part of the requirements of a course of education or training.
(3) To avoid doubt, a person is not a carer of another person for the purposes of this Act merely because the person:
(a) is the spouse or de facto partner of the person, or
(b) is the parent, guardian, child or other relative of the other person, or
(c) lives with the other person.
s 5: Am 2014 No 41, Sch 5.1.
Part 2
NSW Carers Charter
Part 2 NSW Carers Charter
Part 2 NSW Carers Charter
6
Charter for recognition of carers
6 Charter for recognition of carers
6 Charter for recognition of carers
The NSW Carers Charter is set out in Schedule 1.
7
Obligations of public sector agencies
7 Obligations of public sector agencies
7 Obligations of public sector agencies
(1) A public sector agency must take all reasonable steps to ensure that the members of staff and agents of the agency have an awareness and understanding of the NSW Carers Charter.
(2) A public sector agency must consult with such carers or bodies representing carers as the agency considers appropriate when developing policies that impact on carers.
(3) A public sector agency’s internal human resources policies, so far as they may significantly affect the role of a member of staff of the agency as a carer, are to be developed having due regard to the NSW Carers Charter.
s 7: Am 2017 No 22, Sch 1.3 [1].
8
Additional obligations of human service agencies
8 Additional obligations of human service agencies
8 Additional obligations of human service agencies
(1) A human service agency must take all reasonable steps to ensure that the agency, and the members of staff and agents of the agency, take action to reflect the principles of the NSW Carers Charter.
(2) A human service agency must prepare a report on its compliance with this Act in each reporting period. The report must be included in the agency’s annual report for the reporting period.
9
Legal rights not affected
9 Legal rights not affected
9 Legal rights not affected
(1) Nothing in this Act gives rise to, or can be taken into account in, any civil cause of action, and without limiting the generality of the foregoing, nothing in this Act:
(a) operates to create in any person any legal rights not in existence before the enactment of this Act, or
(b) affects the validity, or provides grounds for review, of any judicial or administrative act or omission.
(2) If a public sector agency is required by another law to consider particular matters, or to comply with particular requirements, in the exercise of its functions, nothing in this Act is to be taken to require the agency to act inconsistently with that law.
Part 3
Carers Advisory Council
Part 3 Carers Advisory Council
Part 3 Carers Advisory Council
10
Establishment of Carers Advisory Council
10 Establishment of Carers Advisory Council
10 Establishment of Carers Advisory Council
There is established by this Act a Carers Advisory Council.
11
Membership and procedure of Carers Advisory Council
11 Membership and procedure of Carers Advisory Council
11 Membership and procedure of Carers Advisory Council
(1) The Carers Advisory Council is to consist of persons appointed as members by the Minister who, in the opinion of the Minister, have relevant knowledge of and experience in matters relevant to carers (the appointed members).
(1A) Of the appointed members of the Council, 1 is to be appointed as Chair of the Council and 1 is to be appointed as Deputy Chair of the Council.
(2) The Minister is to ensure when appointing members to the Carers Advisory Council that the majority of members on the Council are persons who the Minister considers are carers.
(3) (Repealed)
(4) Subject to this section, the Minister may determine the term of office and remuneration of members and the procedure of the Carers Advisory Council, including the procedure for the appointment of deputies of members and ex-officio members.
Note—
Certain incidental powers to remove members are implied in the powers of appointment in this section (see section 47 of the Interpretation Act 1987).
s 11: Am 2017 No 22, Sch 1.3 [2]–[6].
12
Functions of Carers Advisory Council
12 Functions of Carers Advisory Council
12 Functions of Carers Advisory Council
The Carers Advisory Council has the following functions:
(a) to advance the interests of carers,
(b) to review and make recommendations to the Minister on any legislative or policy proposal, or any other matter, relating to carers referred to the Carers Advisory Council by the Minister,
(c) to carry out such other functions relating to carers as may be directed by the Minister.
Part 4
Miscellaneous
Part 4 Miscellaneous
Part 4 Miscellaneous
13
Regulations
13 Regulations
13 Regulations
(1) The Governor may make regulations, not inconsistent with this Act, for or with respect to any matter that by this Act is required or permitted to be prescribed or that is necessary or convenient to be prescribed for carrying out or giving effect to this Act.
(2) The regulations may contain provisions of a savings or transitional nature consequent on the enactment of this Act.
14
Transitional provision
14 Transitional provision
14 Transitional provision
Section 8 (2) does not apply to a reporting period of a human service agency that commenced before the commencement of this Act.
15
Review of Act
15 Review of Act
15 Review of Act
(1) The Minister is to review this Act to determine whether the policy objectives of the Act remain valid and whether the terms of the Act remain appropriate for securing those objectives.
(2) The review is to be undertaken as soon as possible after the period of 5 years from the date of assent to this Act.
(3) A report on the outcome of the review is to be tabled in each House of Parliament within 12 months after the end of the period of 5 years.
Schedule 1
NSW Carers Charter
Schedule 1 NSW Carers Charter
Schedule 1 NSW Carers Charter
(Section 6)
sch 1: Subst 2017 No 22, Sch 1.3 [7].
Source text
Sourced from legislation.nsw.gov.au, CC BY 4.0.
Part 1 Preliminary
Part 1 Preliminary
Part 1 Preliminary
1 Name of Act
1 Name of Act
1 Name of Act
This Act is the Carers (Recognition) Act 2010.
2 Commencement
2 Commencement
2 Commencement
This Act commences on the date of assent to this Act.
3 Objects of Act
3 Objects of Act
3 Objects of Act
The objects of this Act are:
(a) to enact a Carers Charter to recognise the role and contribution of carers to our community and to the people they care for, and
(b) to increase the awareness of the valuable contribution that carers make to our community.
4 Definitions
4 Definitions
4 Definitions
In this Act:
carer—see section 5.
exercise a function includes perform a duty.
function includes a power, authority or duty.
human service agency means a public sector agency that provides services directed at carers or persons being cared for by carers.
NSW Carers Charter means the Charter set out in Schedule 1.
parent, of another person, includes a person who has been allocated parental responsibility or has care responsibility for the other person under the Children and Young Persons (Care and Protection) Act 1998.
public sector agency means any of the following:
(a) a Division of the Government Service,
(b) a local health district or statutory health corporation (within the meaning of the Health Services Act 1997),
(c) the NSW Police Force,
(d) a NSW Government agency or other authority of the State,
(e) a local council,
(f) a State owned corporation,
(g) any other person or body that is prescribed by the regulations for the purposes of this definition.
reporting period, for a human service agency, means a period of 12 months to which an annual report of the agency relates.
The NSW Carers Charter itself sets out recognition principles about carers’ contribution, health and well‑being, diversity and partnership in care (Schedule 1, clauses 1-4). The Act therefore operates primarily as recognition and administrative architecture rather than as a rights‑conferring regulatory regime.
Main concepts
The Act hinges on several defined and recurring concepts that shape duties and implementation.
Carer: The statutory definition is central. A “carer” is an individual who provides ongoing personal care, support and assistance to another individual because that other person is a person with disability, has a medical condition (including terminal or chronic illness), has a mental illness, or is frail and aged (s 5(1)). Exclusions apply: care provided under employment contracts, in the course of voluntary work for charitable/welfare/community organisations, or as part of education or training, is not captured (s 5(2)). The Act also states that being a spouse, parent, guardian, child, other relative or co‑resident alone does not make a person a carer for the purposes of the Act (s 5(3)). The definition therefore delineates who is and is not within the Act’s recognition and the obligations that flow from it.
NSW Carers Charter: The Charter is set out in Schedule 1 (s 6). Its provisions articulate non‑binding principles: carers’ contribution, carers’ health and well‑being, carers’ diversity and needs, and carers as partners in care (Schedule 1, cl 1-4). The Charter establishes expectations about treatment and policy design, but the Act does not convert those Charter statements into enforceable individual rights (see s 9).
Public sector agency and human service agency: “Public sector agency” is a defined category covering a broad list (Division of the Government Service; local health districts and statutory health corporations; NSW Police Force; NSW Government agencies; local councils; State owned corporations; and other persons or bodies prescribed by regulation) (s 4). “Human service agency” is defined as a public sector agency that provides services directed at carers or persons being cared for by carers (s 4). The Act therefore distinguishes between general public sector agencies,subject to awareness, consultation and HR policy duties (s 7),and human service agencies,subject to obligations to reflect Charter principles and to report on compliance (s 8).
“All reasonable steps” and “due regard”: These phrases appear as the standard of conduct imposed on agencies. Public sector agencies must take “all reasonable steps” to ensure staff awareness of the Charter (s 7(1)); human service agencies must “take all reasonable steps” to ensure action reflects Charter principles (s 8(1)). Public sector agencies must develop HR policies “having due regard” to the Charter where those policies significantly affect staff who are carers (s 7(3)). The Act does not define these standards, leaving agencies to interpret them in practice.
Carers Advisory Council: The Act establishes a Ministerially appointed advisory body, with the Minister selecting members “who, in the opinion of the Minister, have relevant knowledge of and experience in matters relevant to carers” and ensuring a majority of members are carers (s 11(1)-(2)). The Council’s functions are confined to advancing carers’ interests, reviewing and making recommendations on referrals from the Minister, and other ministerial directions (s 12).
Reporting and review: Human service agencies have a statutory reporting obligation on compliance with the Act for each 12‑month reporting period, to be included in the agency’s annual report (s 8(2); definition of reporting period in s 4). The Minister must review the Act within five years and table a report within 12 months after the period’s end (s 15).
These concepts structure who must act, what constitutes compliance, and what institutional mechanisms exist for advice and accountability. The Act is conceptually an administrative recognition statute: it prescribes awareness, consultation and reporting duties rather than private rights or regulatory sanctions.
Who it affects
Primary direct obligations fall on public sector agencies and, more intensively, on human service agencies as defined in s 4. The Act’s definition of “public sector agency” is broad and enumerates categories: Divisions of the Government Service; local health districts and statutory health corporations; NSW Police Force; NSW Government agencies and other State authorities; local councils; State owned corporations; and “[a]ny other person or body that is prescribed by the regulations” (s 4). That list means most state entities that deliver public services are captured and that the regulations can expand the class.
Human service agencies are a subset of public sector agencies, those that provide services directed at carers or persons being cared for by carers (s 4). Human service agencies therefore bear the additional obligation to reflect Charter principles in action and to report on compliance (s 8(1)-(2)).
Staff and agents of public sector and human service agencies are affected indirectly: agencies must “take all reasonable steps” to ensure that members of staff and agents have awareness and understanding of the Charter (s 7(1)) and that they “take action to reflect the principles” in the case of human service agencies (s 8(1)). That translates into operational impacts on induction, training, policy guidance, and service delivery practices.
Carers and bodies representing carers are affected in two ways. First, the Charter recognises carers and sets out principles the Legislature expects agencies to have regard to (Schedule 1). Second, agencies are required to consult “such carers or bodies representing carers as the agency considers appropriate” when developing policies that impact carers (s 7(2)). The effect is to create a statutory expectation of engagement, but not a right to compel consultation or to rely on the Charter in legal proceedings (s 9).
The Minister and the executive branch are affected institutionally. The Minister appoints the Carers Advisory Council members, must ensure the majority of appointed members are carers, and can determine terms, remuneration and procedures for the Council (s 11(1)-(4)). The Minister also carries the duty to review the Act within five years and table the review report (s 15).
Third parties,private sector employers, non‑government organisations providing services under contract,are not directly regulated by the Act unless they are a public sector agency or a body prescribed by regulation as such (s 4). The Act explicitly excludes care provided under a contract of service, voluntary work for charitable/welfare/community organisations, or as part of education/training from its definition of carer (s 5(2)), which narrows the Act’s reach to informal/unpaid carers in the private sphere and public sector staff.
Finally, the Act affects the administrative practices of agencies that must include compliance reporting in annual reports. That implies resource allocation to monitoring and documenting compliance for human service agencies (s 8(2)).
In short, the Act places duties on State sector entities and produces expectations for how they engage with carers, but it does not create enforceable private rights against those entities.
Key duties and rights
The Act’s operative duties are administrative and informational; it creates no new private legal rights.
Duties on public sector agencies
Awareness and understanding: A public sector agency must take all reasonable steps to ensure agency staff and agents have awareness and understanding of the NSW Carers Charter (s 7(1)). This is a proactive obligation aimed at internal capability and culture building.
Consultation in policy development: When developing policies that impact carers, a public sector agency must consult “such carers or bodies representing carers as the agency considers appropriate” (s 7(2)). The statutory language confers discretion to agencies as to whom and how to consult.
HR policy development: Internal human resources policies that may significantly affect a staff member’s role as a carer must be developed “having due regard to the NSW Carers Charter” (s 7(3)). The duty is to have regard to the Charter when relevant HR matters arise.
Duties on human service agencies
Reflect Charter principles: A human service agency must take “all reasonable steps” to ensure the agency and its staff and agents take action to reflect the principles of the NSW Carers Charter (s 8(1)). This is broader and operational; it covers both agency policies and individual staff action.
Reporting: A human service agency must prepare a report on its compliance with the Act for each reporting period (12 months) and include that report in the agency’s annual report for the period (s 8(2); definition of reporting period in s 4). The obligation creates a routine transparency mechanism.
Carers Advisory Council
Functions: The Council’s functions are advisory and advocacy oriented: advance interests of carers; review and make recommendations to the Minister on matters referred by the Minister; and carry out other functions directed by the Minister (s 12). The Council does not have decision‑making powers.
Limits on rights and remedies
No legal rights or causes of action: The Act expressly states that nothing in it gives rise to, or can be taken into account in, any civil cause of action; it does not create legal rights not already in existence before the Act; and it does not affect the validity of judicial or administrative acts or provide grounds for review (s 9(1)(a)-(b)). This clause confines the Act to administrative recognition and prevents litigants invoking it directly to generate remedies.
Primacy of other statutory duties: If a public sector agency is required by another law to consider particular matters or to comply with specific requirements in the exercise of its functions, nothing in this Act is to be taken to require the agency to act inconsistently with that other law (s 9(2)). This preserves pre‑existing statutory frameworks and avoids direct conflict.
Regulatory and governance powers
Regulations: The Governor may make regulations “not inconsistent with this Act” for matters required or permitted to be prescribed, including savings or transitional provisions (s 13). The regulations may expand or clarify the administrative machinery but must not contradict the Act.
Ministerial discretion over Council: The Minister determines membership, term, remuneration and procedures for the Carers Advisory Council, subject to the majority carers requirement (s 11(1A)-(4)). This concentrates appointment and administrative control in the Minister’s hands.
The net effect is that agencies have to take demonstrable administrative steps,training, consultation, HR policy design, reporting,but individual carers do not acquire statutory enforcement rights through the Act because of s 9.
Penalties and enforcement
The Act does not create express civil, administrative or criminal penalties for non‑compliance. It is primarily a statutory statement of recognition and administrative expectations. Two features are central:
Absence of private enforcement
Section 9(1) expressly provides that nothing in the Act gives rise to, or can be taken into account in, any civil cause of action, and that the Act does not create legal rights not already in existence or provide grounds for review of judicial or administrative acts or omissions. That clause removes the Act as a direct basis for litigation or civil remedies. Practically, an aggrieved carer cannot rely on this Act alone to found a legal claim against an agency for breach of the Charter or the administrative obligations set out in the Act.
Administrative enforcement mechanisms
Reporting obligation: Human service agencies must prepare a compliance report each reporting period and include it in the agency’s annual report (s 8(2)). The primary enforcement lever is therefore administrative transparency and parliamentary oversight, not coercive sanctions. Publication in annual reports creates potential political and reputational consequences for non‑compliance, but the Act does not prescribe fines, injunctions or suspension for breaches.
Ministerial oversight: The Minister appoints the Carers Advisory Council and controls its remit (s 11-12). The Council is a conduit for advice and for raising compliance issues to the Minister. The Minister is also required to review the operation of the Act within five years and table a report (s 15), an accountability mechanism that can identify systemic non‑compliance and prompt executive or legislative follow‑up.
Regulatory power but not immediate sanctioning instruments
The Governor may make regulations to give effect to the Act and for matters necessary to carrying out the Act’s purposes (s 13). Regulations could in principle set out procedural requirements, reporting formats, or prescribe bodies as public sector agencies (s 4). However, the Act itself does not confer express power to impose pecuniary penalties on agencies for failing to comply with the duties in s 7 or s 8, nor does it create specific enforcement processes.
Transitional and review safeguards
Transitional provision s 14 excludes pre‑commencement reporting periods from the reporting obligation, reducing immediate retrospective exposure for agencies when the Act commences. The statutory five‑year review (s 15) is a mechanism to assess whether the Act’s non‑enforceable architecture is effective or needs amendment, but it is not an enforcement remedy.
In practice, enforcement will depend on administrative levers: compliance reporting, public disclosure, ministerial attention, and possible regulatory instruments made under s 13. The Act deliberately limits legal enforceability by excluding creation of private rights or causes of action (s 9).
How it interacts with other laws
The Act explicitly sets out its relationship to other statutory duties and leaves several interactions to administrative practice.
Non‑interference with other statutory duties
Section 9(2) provides that if a public sector agency is required by another law to consider particular matters or comply with specific requirements in the exercise of its functions, nothing in this Act is to be taken to require the agency to act inconsistently with that other law. That clause preserves the primacy of other statutory frameworks where they impose duties, or specify procedures and decision‑making criteria. The effect is hierarchical: the Act overlays recognition and procedural expectations but does not displace or alter pre‑existing legal obligations.
Definitions referencing other Acts
Several defined terms cross‑refer to other Acts. For example, the definition of “carer” imports the meaning of “person with disability” from the Disability Inclusion Act 2014 in s 5(1)(a) (as set out in s 5); “parent” includes a person allocated parental responsibility under the Children and Young Persons (Care and Protection) Act 1998 (s 4). The definition of “public sector agency” includes categories defined in or by other legislation, such as local health districts and statutory health corporations under the Health Services Act 1997 (s 4). These references indicate the Act is intended to work with, and rely on, existing statutory categories and definitions.
Regulations can expand definitions and duties
Section 4 allows the regulations to prescribe “any other person or body” as a public sector agency for the purposes of that definition. Section 13 permits regulations for any matter required or permitted to be prescribed or necessary to give effect to the Act. Therefore, interactions with other legislation can be shaped by regulations, which could extend the Act’s reach in ways consistent with the Act’s text but still subordinate to other statutory duties where conflicts exist (s 9(2)).
Limits on legal enforceability vis‑à‑vis other remedies
Section 9(1) states the Act does not give rise to civil causes of action and does not create legal rights not previously existing. That limits the Act’s use as a standalone legal instrument in litigation. Where carers or others seek remedies, they would need to rely on other legislation or administrative law grounds, not the recognition or procedural expectations in this Act.
Interaction with administrative accountability
The reporting obligation for human service agencies (s 8(2)) dovetails with existing requirements to produce annual reports. That creates an interface between this Act’s compliance reporting and established public reporting regimes; agencies will incorporate compliance reporting into the suite of statutory reporting obligations imposed by other laws.
Ministerial and executive discretion
The Act gives governance interaction points with executive decisions. The Minister appoints the Carers Advisory Council and determines its procedures and remuneration (s 11), and the Minister refers matters to the Council (s 12). This creates an administrative channel for interaction between the Act’s advisory mechanisms and other policy or legislative proposals.
In sum, the Act is designed to sit alongside existing legislative frameworks: it references and relies on definitions in other statutes, it preserves the primacy of other statutory duties (s 9(2)), and it envisages regulatory instruments to refine its operation (s 13). It does not, however, create an independent statutory enforcement regime that would displace other legal routes for redress.
Amendment history
The source text contains limited amendment annotations. Where amendments are recorded in the text provided, they indicate targeted changes to particular sections.
Section 4 (Definitions): The marginal note records amendments: “s 4: Am 2010 No 97, Sch 2.2; 2011 No 4, Sch 2.2.” That indicates the definitions provision was amended in two subsequent instruments shortly after enactment. The Act as presented incorporates those amendments into the current consolidated text.
Sections 5 (Meaning of “carer”) and 11 (Membership and procedure of Carers Advisory Council): Each bears amendment annotations.
Section 5 includes “s 5: Am 2014 No 41, Sch 5.1,” indicating the carer definition was amended in 2014.
Section 11 includes “s 11: Am 2017 No 22, Sch 1.3 [2]-[6],” and elsewhere s 7 and the schedule note “sch 1: Subst 2017 No 22, Sch 1.3 [7]” and s 7 “s 7: Am 2017 No 22, Sch 1.3 [1].” These notes indicate a substantive statutory update in 2017 altering the Charter and certain agency obligations or Council membership provisions.
Schedule 1 (NSW Carers Charter) carries the annotation “sch 1: Subst 2017 No 22, Sch 1.3 [7],” signifying the Charter was substituted in 2017. That means the present language of the Charter reflects the 2017 substitution.
The Act provides for regulations (s 13) and a statutory review (s 15), and the amendment annotations suggest the Act has been the subject of incremental amendments post‑enactment to refine definitions, the Charter, and Council arrangements. The source does not include dates of all amendments beyond the compact annotation lines; it does not set out the content of the earlier versions of provisions. The annotations are the only internal history provided in the source.
No schedules or provisions cited in the source suggest automatic sunset clauses or frequent staged amendments. The review obligation in s 15 triggers a parliamentary report mechanism after five years, which is itself a prompt for potential legislative amendment; the source sets the review timetable (s 15(2)-(3)) but does not record outcomes of any required reviews.
Practitioners should note the amendment annotations in the Act text indicate refinement over time, particularly in 2014 and 2017, and should monitor regulation‑making powers under s 13 for further subordinate instruments. The Act’s structure,charter schedule, duties on agencies, advisory council, reporting and review,is the stable framework subject to amendment by primary legislation or subordinate regulations.
Litigation history
The Act as provided contains no case citations, and it has an express provision limiting litigation use of the Act. Two points from the source determine litigation relevance.
Statutory bar on civil causes of action
Section 9(1) explicitly states that nothing in the Act gives rise to, or can be taken into account in, any civil cause of action, and that the Act does not operate to create legal rights not in existence before enactment. That wording removes the Act as a direct basis for private litigation or for asserting substantive legal rights against agencies based on the Charter or the administrative duties in the Act. Consequently, this Act is not a typical source of private legal claims.
No internal references to judicial decisions
The text contains no references to judicial interpretation, precedent, or litigation arising from the Act’s provisions. Schedule 1 and the substantive provisions are framed as administrative duties and principles rather than as legal standards to be adjudicated.
Implications for litigation risk and judicial review
Because the Act does not create new private rights or causes of action, litigants seeking remedies regarding treatment by public sector agencies will generally need to rely on other statutes, common law duties, contractual rights, or administrative law principles rather than invoking breaches of this Act itself (cf. s 9(1)). The Act’s reporting and advisory mechanisms could nonetheless produce administrative records or policy statements that are relevant evidence in unrelated litigation, but the Act itself is not a standalone claim source.
Absence of statutory enforcement provisions
The Act does not provide for civil penalties, criminal offences, or formal administrative sanctions. Consequently, there is no statutory enforcement pathway for courts to apply under this Act itself. Any court involvement would arise from other legal grounds.
Given the explicit statutory restriction and the lack of case references in the text, the Act’s litigation footprint in the source is minimal: it functions as administrative recognition and policy architecture rather than a litigation vehicle. Practitioners should therefore focus on other legal instruments if litigation or judicial review is contemplated in relation to carers’ treatment or agency decisions.
Gotchas
Several practical and interpretative traps arise directly from the Act’s wording and structure; these are matters that agencies, advisers and carers should note.
“Carer” exclusions narrow coverage (s 5)
The definition of “carer” excludes persons providing care under a contract of service, persons engaged in voluntary work for charitable, welfare or community organisations, and persons providing care as part of education or training (s 5(2)). Those exclusions mean that paid employees, volunteers in organisational roles, and students or trainees are outside the Act’s recognition even if they provide substantial care. Conversely, informal unpaid carers fall within the Act’s ambit subject to the substantive qualification in s 5(1). Also, s 5(3) clarifies that household or familial status alone (spouse, parent, child, relative, or co‑residence) does not automatically qualify someone as a carer under the Act. Agencies that design engagement or support programs should not assume familial status equates to statutory carer recognition without assessing the actual provision of ongoing personal care as defined.
“All reasonable steps” and “due regard” undefined (s 7(1); s 7(3); s 8(1))
The Act repeatedly requires agencies to take “all reasonable steps” and have “due regard.” These are open‑ended standards and the Act does not supply guidance, benchmarks, or examples. That creates uncertainty about the quantum of effort required for compliance and exposes agencies to differing internal interpretations. Documentation of steps taken will be important since the reporting duty (s 8(2)) invites scrutiny. Practitioners should design compliance evidence streams rather than rely on any fixed checklist in the Act.
Consultation discretion (s 7(2))
The requirement that agencies “consult with such carers or bodies representing carers as the agency considers appropriate” gives agencies wide discretion about who to consult and how. There is no statutory right for any particular carer or group to be consulted. The practical implication is that an agency can satisfy the letter of the duty while still excluding some stakeholders, so agencies should consider transparent selection criteria for consultees to manage reputational and political risk.
Reporting timing trap (s 4; s 8(2); s 14)
The reporting period is defined as the 12 months to which an agency’s annual report relates (s 4). Section 8(2) requires a compliance report to be included in each annual report, but s 14 provides that s 8(2) does not apply to a reporting period that commenced before the Act’s commencement. That transitional carve‑out is easy to overlook: agencies whose reporting periods straddle commencement should ensure they understand which reporting periods are captured and maintain records accordingly.
No private enforcement (s 9(1))
Because s 9(1) excludes the creation of legal rights and causes of action, carers cannot rely on the Act as a statutory basis to challenge agency decisions. This is a common source of misunderstanding where advocates expect the Charter to be immediately enforceable. The Act establishes expectations and reporting duties, but not litigable rights.
Ministerial discretion over the Council (s 11)
The Minister appoints Council members, determines terms, and sets remuneration and procedures (s 11(4)), albeit with a requirement that the majority of appointed members be carers (s 11(2)). The Act also notes implied powers to remove members consistent with the Interpretation Act 1987. Practically, the Ministerial discretion centralises control over the Council’s composition and remit; stakeholders seeking influence should engage with the Ministerial appointment process and referral mechanisms.
Regulations can change reach (s 4; s 13)
The regulations may prescribe “any other person or body” as a public sector agency (s 4) and may contain provisions necessary to carry out the Act (s 13). This means subordinate instruments could expand the class of bodies subject to duties or impose procedural details. Relying on the current text alone without monitoring regulations is a potential pitfall.
Charter is aspirational, not prescriptive (Schedule 1; s 9)
The Schedule sets out principles and expectations (Schedule 1, cl 1-4), but the Act’s express non‑enforceability means the Charter is an aspirational instrument. Where agencies and advocates conflate Charter language with enforceable obligations, there is a risk of misdirected legal advice or unrealistic expectations.
Ambiguity about who pays for compliance
The Act requires agencies to take steps (training, consultation, reporting) but does not supply funding or specify resource allocation. Agencies must absorb costs within existing budgets unless new appropriation is provided. That raises operational questions about where costs will be borne and how resource trade‑offs are to be made.
Documentary burden and evidence
Because compliance is largely administrative and report‑based, agencies will need to establish recordkeeping protocols to show they took “all reasonable steps” and engaged consultees appropriately. Failure to document steps can create accountability and reputational issues despite there being no private right of action under the Act.
These “gotchas” arise directly from the Act’s text and structure. They highlight areas where implementers and advisers should focus attention: definitions and exclusions, standards without benchmarks, ministerial discretion, transitional timing, the non‑enforceable nature of the Charter, regulatory watchfulness, and resource allocation.
How to comply
Compliance under this Act is administrative and documentation‑focused. Below are concrete, source‑grounded steps an affected agency should take, mapped to the statutory requirements.
For public sector agencies (s 7)
Awareness and training program: Design and implement an induction and periodic training module to ensure staff and agents are aware of the NSW Carers Charter, consistent with the duty to “take all reasonable steps” to ensure awareness and understanding (s 7(1)). Keep attendance logs, training materials, and evaluation records as documentary evidence of the steps taken.
Consultation procedures for policy development: Establish clear internal procedures specifying how carers and representative bodies will be identified and consulted when developing policies impacting carers (s 7(2)). Because the duty uses the phrase “as the agency considers appropriate,” document the selection rationale and records of invitations, submissions, and responses. Maintain a register of consultees and minutes of consultation meetings.
HR policy governance: Review internal human resources policies to identify those that may “significantly affect the role of a member of staff of the agency as a carer” and update the drafting and approval process so that HR policy changes consider the Charter (s 7(3)). Embed a policy impact statement template that records how “due regard” to the Charter was considered in the decision.
Record retention: Keep a compliance file for each policy development and HR policy revision, with evidence of consultation, decision rationale, and training or communications rolled out to staff.
For human service agencies (s 8)
Operationalise “reflecting the Charter principles”: Map the Charter principles (Schedule 1, cl 1-4) against agency functions,assessment, intake, service planning, case management, referrals,and identify specific practice changes or guidance notes that align staff action with Charter principles (s 8(1)). For each change, produce an implementation plan, training schedule and monitoring metrics.
Compliance reporting: Prepare a compliance report for each 12‑month reporting period (definition in s 4) and include it in the agency’s annual report (s 8(2)). The report should summarise steps taken, consultations held, training delivered, outcomes measured, and any systemic issues identified. For transitional periods, note s 14: if the reporting period commenced before the Act’s commencement, s 8(2) does not apply, but maintain records for subsequent periods.
Performance indicators: Define measurable indicators for “all reasonable steps” tailored to agency size and resources,numbers trained, policies reviewed, consultation events, uptake of referrals for carers,and track progress. This will assist in producing credible compliance reports.
Cross‑agency and Ministerial engagement (s 11-12)
Engage with the Carers Advisory Council and Ministerial processes: Where appropriate, submit proposals or evidence to the Council when the Minister refers matters (s 12). Agencies should prepare policy briefs, stakeholder engagement summaries and data to inform Council recommendations and to record participation.
Appointment awareness: For those seeking Council membership or to influence its advice, understand that the Minister appoints members and ensures a majority are carers (s 11(1)-(2)); applications for appointment or nominations should emphasise relevant knowledge and carer status where applicable.
Regulatory and legal constraints (s 9; s 13)
Respect other statutory duties: When implementing Charter‑aligned policies, ensure actions do not conflict with duties imposed by other laws. Section 9(2) preserves an agency’s obligation to comply with other legislative requirements.
Monitor regulations: Track any regulations made under s 13 that could alter definitions, expand the types of public sector agencies, or impose procedural requirements. Implement changes required by such regulations in a timely manner.
Documentation and transparency
Evidence bundle: Maintain a standing evidence bundle for audits and reporting comprising training records, consultation minutes, HR policy impact statements, implementation plans, and the annual compliance report narrative and data.
Public accountability: Because human service agency compliance reports must be included in annual reports, prepare the compliance narrative with an eye to public transparency and parliamentary oversight. Anticipate and address likely queries about consultation breadth, how carers were selected, and concrete outcomes.
Resource planning
Budget for compliance: Allocate resources for training, consultation activities, monitoring and reporting as part of routine budget cycles. The Act does not allocate funding, so costs must be managed within existing or newly negotiated allocations.
Risk management: Identify risks arising from interpretive uncertainty (e.g. what steps constitute “reasonable”) and create internal governance checkpoints to approve policy changes with legal and operational sign‑off.
Practical checklist
Audit current HR and service delivery policies for impacts on carers.
Draft and implement an awareness/induction module for the Charter.
Establish a consultation protocol, including selection criteria and record templates.
Produce measurable indicators and data collection methods for compliance reporting.
Prepare the first compliance narrative for inclusion in the next annual report, observing transitional rules (s 14).
Monitor Ministerial referrals and engage with the Carers Advisory Council with substantive briefs.
Maintain documentary evidence to demonstrate “all reasonable steps” and “due regard.”
These steps are grounded in the Act’s operative provisions (s 7-8; s 11-12; s 13; s 14) and align with the Act’s emphasis on administrative action, awareness raising and reporting rather than litigation or sanction. Documentation and transparent procedures will be the primary means of demonstrating compliance.
(1) For the purposes of this Act, a person is a carer if the person is an individual who provides ongoing personal care, support and assistance to any other individual who needs it because that other individual:
(a) is a person with disability within the meaning of the Disability Inclusion Act 2014, or
(b) has a medical condition (including a terminal or chronic illness), or
(c) has a mental illness, or
(d) is frail and aged.
(2) Despite subsection (1), a person is not a carer for the purposes of this Act in respect of care, support and assistance that the person provides:
(a) under a contract of service or a contract for the provision of services, or
(b) in the course of doing voluntary work for a charitable, welfare or community organisation, or
(c) as part of the requirements of a course of education or training.
(3) To avoid doubt, a person is not a carer of another person for the purposes of this Act merely because the person:
(a) is the spouse or de facto partner of the person, or
(b) is the parent, guardian, child or other relative of the other person, or
(c) lives with the other person.
s 5: Am 2014 No 41, Sch 5.1.
Part 2 NSW Carers Charter
Part 2 NSW Carers Charter
Part 2 NSW Carers Charter
6 Charter for recognition of carers
6 Charter for recognition of carers
6 Charter for recognition of carers
The NSW Carers Charter is set out in Schedule 1.
7 Obligations of public sector agencies
7 Obligations of public sector agencies
7 Obligations of public sector agencies
(1) A public sector agency must take all reasonable steps to ensure that the members of staff and agents of the agency have an awareness and understanding of the NSW Carers Charter.
(2) A public sector agency must consult with such carers or bodies representing carers as the agency considers appropriate when developing policies that impact on carers.
(3) A public sector agency’s internal human resources policies, so far as they may significantly affect the role of a member of staff of the agency as a carer, are to be developed having due regard to the NSW Carers Charter.
s 7: Am 2017 No 22, Sch 1.3 [1].
8 Additional obligations of human service agencies
8 Additional obligations of human service agencies
8 Additional obligations of human service agencies
(1) A human service agency must take all reasonable steps to ensure that the agency, and the members of staff and agents of the agency, take action to reflect the principles of the NSW Carers Charter.
(2) A human service agency must prepare a report on its compliance with this Act in each reporting period. The report must be included in the agency’s annual report for the reporting period.
9 Legal rights not affected
9 Legal rights not affected
9 Legal rights not affected
(1) Nothing in this Act gives rise to, or can be taken into account in, any civil cause of action, and without limiting the generality of the foregoing, nothing in this Act:
(a) operates to create in any person any legal rights not in existence before the enactment of this Act, or
(b) affects the validity, or provides grounds for review, of any judicial or administrative act or omission.
(2) If a public sector agency is required by another law to consider particular matters, or to comply with particular requirements, in the exercise of its functions, nothing in this Act is to be taken to require the agency to act inconsistently with that law.
Part 3 Carers Advisory Council
Part 3 Carers Advisory Council
Part 3 Carers Advisory Council
10 Establishment of Carers Advisory Council
10 Establishment of Carers Advisory Council
10 Establishment of Carers Advisory Council
There is established by this Act a Carers Advisory Council.
11 Membership and procedure of Carers Advisory Council
11 Membership and procedure of Carers Advisory Council
11 Membership and procedure of Carers Advisory Council
(1) The Carers Advisory Council is to consist of persons appointed as members by the Minister who, in the opinion of the Minister, have relevant knowledge of and experience in matters relevant to carers (the appointed members).
(1A) Of the appointed members of the Council, 1 is to be appointed as Chair of the Council and 1 is to be appointed as Deputy Chair of the Council.
(2) The Minister is to ensure when appointing members to the Carers Advisory Council that the majority of members on the Council are persons who the Minister considers are carers.
(3) (Repealed)
(4) Subject to this section, the Minister may determine the term of office and remuneration of members and the procedure of the Carers Advisory Council, including the procedure for the appointment of deputies of members and ex-officio members.
Note—
Certain incidental powers to remove members are implied in the powers of appointment in this section (see section 47 of the Interpretation Act 1987).
s 11: Am 2017 No 22, Sch 1.3 [2]–[6].
12 Functions of Carers Advisory Council
12 Functions of Carers Advisory Council
12 Functions of Carers Advisory Council
The Carers Advisory Council has the following functions:
(a) to advance the interests of carers,
(b) to review and make recommendations to the Minister on any legislative or policy proposal, or any other matter, relating to carers referred to the Carers Advisory Council by the Minister,
(c) to carry out such other functions relating to carers as may be directed by the Minister.
Part 4 Miscellaneous
Part 4 Miscellaneous
Part 4 Miscellaneous
13 Regulations
13 Regulations
13 Regulations
(1) The Governor may make regulations, not inconsistent with this Act, for or with respect to any matter that by this Act is required or permitted to be prescribed or that is necessary or convenient to be prescribed for carrying out or giving effect to this Act.
(2) The regulations may contain provisions of a savings or transitional nature consequent on the enactment of this Act.
14 Transitional provision
14 Transitional provision
14 Transitional provision
Section 8 (2) does not apply to a reporting period of a human service agency that commenced before the commencement of this Act.
15 Review of Act
15 Review of Act
15 Review of Act
(1) The Minister is to review this Act to determine whether the policy objectives of the Act remain valid and whether the terms of the Act remain appropriate for securing those objectives.
(2) The review is to be undertaken as soon as possible after the period of 5 years from the date of assent to this Act.
(3) A report on the outcome of the review is to be tabled in each House of Parliament within 12 months after the end of the period of 5 years.
Schedule 1 NSW Carers Charter
Schedule 1 NSW Carers Charter
Schedule 1 NSW Carers Charter
(Section 6)
sch 1: Subst 2017 No 22, Sch 1.3 [7].
1 Carers make a valuable contribution to the community
1 Carers make a valuable contribution to the community
1 Carers make a valuable contribution to the community
(a) NSW recognises the valuable social and economic contribution that carers make to the community.
(b) Carers should have the same rights, choices and opportunities as other Australians.
(c) Carers’ unique knowledge and experience should be acknowledged and recognised.
(d) The relationship between carers and the people they care for should be respected.
2 Carers’ health and well-being is important
2 Carers’ health and well-being is important
2 Carers’ health and well-being is important
(a) Carers should be supported to enjoy optimum health and well-being and to participate in family, social and community life, employment and education.
(b) Carers should be supported to balance their caring role with other roles, such as work and education.
3 Carers are diverse and have individual needs within and beyond their caring role
3 Carers are diverse and have individual needs within and beyond their caring role
3 Carers are diverse and have individual needs within and beyond their caring role
(a) The diverse needs of carers should be acknowledged and recognised in policy, programs and service delivery, taking into consideration culture and language, age, disability, religion, socio-economic status, place of residence, gender identity and sexual orientation.
(b) Aboriginal and Torres Strait Islander values, heritage and concepts of caring should be respected and valued.
(c) The additional challenges faced by carers who live in rural and remote areas should be acknowledged and recognised.
(d) Children and young people who are carers should be supported to reach their full potential.
4 Carers are partners in care
4 Carers are partners in care
4 Carers are partners in care
(a) The choices, views and needs of carers and of the people they care for should be taken into account in the assessment, planning, delivery and review of services provided to the people they care for.
(b) Carers should be referred to, and assisted to access, appropriate supports and services.
(c) Support for carers should be timely, responsive, appropriate and accessible.