Additionalobservations-Ahrcdraftreport

ADDITIONALOBSERVATIONS-AHRCDRAFTREPORT

1.GENERALCONCERNSWITHMETHODOLOGY

TheAustralianHumanRightsCommission(theCommission)hasprovidedthe DepartmentofImmigrationandBorderProtection(Department)withathreeweekperiod(comprising14businessdays)torespondtothepreliminaryviewofthefactsraisedinthedraftInquiry report. DespitethisoffertoprovidetheDepartmentwithsufficienttimetocommentonthedraftreportfromafactual perspective,acommitmentmaderepeatedlybytheCommissionduringthecourseoftheInquiry,

thebriefperiodoftimeofferedforthereviewhasprovedcompletelyinadequategiventhenatureofthereportthathasbeensubmitted.

TheDepartmentisconcernedwiththerelianceonanonymousandde-identifiedquotationsascrediblesupportingevidencethroughoutthereport. Whileitistheprerogativeoftheindividualsconcernedtoremainanonymous,theDepartmentisconcernedbythe Commission'schoicetopublishthesede-identifiedquotationssoextensively,and itsapparentchoicetorelyontheseasevidencetosupportitsfindings.

Inlightofthelimitationsidentifiedabove,theDepartmentoffersthefollowingthematicexamplesofthetypesofissuesithaswiththereport,inlieuofcounteringeachandeveryunsubstantiatedclaimthathasbeen made,whichwouldrequiresomeconsiderabletimeandwhichdoesnotappeartobejustifiablebasedonthescantlegitimateevidencepresentedinthedraft.

Example 1- Claims not affording procedural fairness right of reply: One such example appears on page 78 of the report, where an anonymous allegation is made, as follows, "...if youdon't calm down, we will get the police dogs onto you." No evidence is provided to support this claim. In pointof fact, there are no police dogs on Christmas Island and they have never been contemplated. Such allegations should be raised as formal, individual complaints, affording a right of reply and the opportunity to appropriately investigate, rather than tarnishing the reputation of individuals and service providers without evidence to back up such claims. There are many similar claims made regarding misconduct of individuals, which also provide insufficient detail or context in order to allow proper investigation. The Department notes that as early as March 2014, the Commission had been formally requested to put any substantive evidence of misconduct directly to the Secretary.

The Department notes that no such evidence has been advanced for the duration of the Inquiry and suggests that, given the role and standing of the Commission, it is irresponsible to advance such claims without having first sought to have their veracity investigated.

Example 2-Untestedclaimsandsubjectiveobservations: Atthe fourthpublichearingoftheInquiryheldinCanberraon22August2014,theAHRCPresidentstatedthatthereare'armed

guards'atImmigrationDetentionFacilitiesinAustralia. WhiletheDepartmenthasrefutedthisclaimonmultipleoccasionsandhasseparatelywrittento thePresidentrequestingthatthisstatementbewithdrawnorevidenceofferedinsupport,nosuchevidencehasbeenadvanced.TheDepartment hasprofound concernsthatmanysimilarclaimshavebeenmadeandaccepted,withoutsupportingevidence,throughoutthereport.

Example3-Overreliance onthe Commission'sownexperts:Thedraftreportmakesextensivereferenceto,andgivesdisproportionateweightto,theopinionsandsubmissionsofthemedical consultantsthatwereengagedbytheCommissiontoattendthesitevisits.Withoutseekingtoquestiontheintentionsandgoodstandingofthesehighlyqualifiedmedicalprofessionalsandacademics,theDepartmentnotesthattheirobservationshave oftenbeenmadeonthebasisofcursoryobservationsmadeduringonlybriefvisitstoalternativeplaces ofdetention. As theCommissionnotes,theydidnotconductindividualclinicalassessmentsandnordidtheyengageinahealthclinician/patient relationshipwiththechildrenindetention. TheDepartmentnotesthatmorerigoroustestingoftheseobservationswouldberequiredinordertoeffectivelylinktheseobservationalstatementstofindingsofbreachesofinternationallaw.

TheDepartmentfurthernotesthattheCommissionhasnotaffordedsimilarweighttotheevidenceprovidedbythehealthservicesprovider(withsomenotableexceptionswheretheevidencesupportsthepositiontakenbytheCommission).Thehealthservicesproviderworksdirectlywiththeindividualsinquestionanditsevidenceshouldbeaffordeddueconsideration.TheCommissionhasbeenaffordedmultipleopportunitiestomeetwiththehealthservicesprovideratitscorporateheadquartersandtospeakwithseniorspecialistsinvolvedinthedeliveryofservicesonsite.Ithasbeenprovidedwithextensivedataonpresentationsofillnessand treatmentandhasbeenprovidedwithanopeninvitationtoseekfurtherinformationandadvice.

Forexample,onpage75ofthedraftreport,ProfessorElliottstatesthatduringabriefvisittoChristmasIsland,"Wewitnessedmanychildrenwithrespiratoryinfection(includingbronchiolitisininfants,probablyduetorespiratorysyncytialvirus)andtherehadbeenoutbreaksofgastroenteritis.Werepeatedlyheardtherefrain'mykidsarealwayssick'. ...Asthmaiscommoninchildhoodandwasafrequent diagnosisinthecamps. Thisisnot surprisingasrespiratory infectionisthemostcommonreason for exacerbationofasthma. Parentsexpressedconcernthat...theonsetofasthmamayrelatetotheenvironment." [Thisisthefullquoteasprovidedinthedraftreport.TheeditingisdonebytheCommission.]TheDepartmentnotesthatitshealthservicesproviderhaspreparedananalysisofpresentationstoGPsbyminorsonChristmasIslandbasedonthecontemporaneoushealthrecords. ItfoundthatthereasonsforconsultationdidnotdiffersignificantlyfromthoseintheAustraliancommunity,exceptingalowerrateofpresentationsforrespiratoryillnesses.ThesefigureshavealreadybeenprovidedtotheCommission.Thehealthservicesprovidernotesthatwhileviralillnessesdoappearattimes,thereareveryfewrespiratoryconditionsorrespiratory infectionsrequiringantibioticsatanytime. Asat15October2014,threechildrenundertheageof16haveasthma,outofagroupof107.

Example4-LittleornoweightaffordedtopolicyandprocedureoftheDepartmentanditscontractedservicesproviders:WhiletheDepartmenthasrequestedthatappropriatestepsbetakentoprotectoperationallyandcommerciallysensitivedocumentsprovidedtotheCommissionforthepurposesoftheInquiry,theDepartmentisconcernedtonotethatlittleweightor considerationappearstohavebeenaffordedtotheextensivepolicyandproceduraldocumentationprovidedinsupportofits managementofhealth, careandwelfareforfamiliesandchildreninimmigrationdetention. Inthecourseofmakingitspreliminaryfindings,theCommissionappearstohaveplacedverylittleemphasisontheroleofdomesticlaw,policyandpracticeinaddressingtheneedsofadults,familiesandchildreninimmigrationdetention. Nordoesitappearthatthe

CommissionhasmadeanyrealattempttodescribehowthevariouspoliciesandpracticesoftheDepartmentanditsserviceproviderscontributetothecareandwellbeingof familiesandchildren.

Onesuchexampleappearsonpage81ofthedraftreportwhichstatesthatfood,recreationandthecultureofdetentionfacilitiesisdeterminedbythedetentionservicesproviderstaffandthatparents'autonomyislimitedbythis. Infact,theserviceprovider'spolicyspecifiesthatfoodandrecreationplans aredevelopedandinformedbyinformationgatheredthroughthedevelopmentofindividualmanagementplansbothatinductionandonaregularbasis (within14days)asperSercopolicyand Contract.ThisisfurtheraugmentedthroughDetaineeConsultativeCommitteesandrequestsandfeedbackprocesses.Thedetentionservicesprovideralsoengagesaqualifieddieticiantoassistwithfoodplanning.

Further,thedetentionservicesproviderhasarangeofpolicyframeworksandproceduresdesignedtopromotehealth andwellbeingincludingtheHealthyCentreFrameworkandtheSercoCareModel,whichunderpinSerco'scompassionateapproachtomanagingtheimmigrationdetentionnetworkonbehalfoftheDepartment. Thesearebasedoninternationalbest-practiceprinciplesinrelationtochildwelfareandsafety.

Example5-DismissalofevidenceprovidedtotheCommission:Onesuchexampleoccursonpage120ofthedraftreport,wheretheCommissionreportsthat"itisdifficulttoconfirmtheactualavailabilityofchildmentalhealthspecialistsandservicesonChristmasIsland,thoughallindicationssuggestthatanyprovisionfromJuly2013toMarch2014wasintermittent." TheDepartmentisconcernedtonotethatwrittenadviceprovidedtotheCommissionfromInternationalHealthandMedicalServices(IHMS)on19September2014doesnotappeartohavebeenappropriatelyacknowledgedinthereport,whichstates:

StaffonChristmasIslandwithexpertiseinchildandadolescent health

Asyouhaveseen,thehealthcareateachsiteisprovidedbyamultidisciplinaryteamofdoctors,registerednurses,mentalhealthnurses,psychologists, counsellorsandvisitingspecialists.Asat17August 2014,therewere66IHMShealthprofessionals onChristmasIsland,includingsevengeneralpractitioners. OnChristmasIsland,therehasbeenaparticularemphasisonincludingstaffwhohaveformalqualificationsandexperienceinprovidingcareforchildrenandadolescents.

WehavereviewedourrecordsofstaffdeploymentstoChristmasIslandfortheperiod 1July2013to31July2014. OneachdaytherehavebeenbothregisterednursesandmentalhealthnursesworkingwithIHMSonChristmasIslandwhohaveformalqualificationsinchildandadolescenthealth. Therehavealsobeenpsychologists withformalqualificationsinchildandadolescenthealthworkingonChristmasIslandfor366ofthe396daysofthisperiod. ChildandadolescentpsychiatristshavevisitedinFebruaryandJuly2014andwillcontinuetovisitonascheduledbasisinadditiontothemonthlyvisitsbythepsychiatrist. Ourstaffarealsoabletospeakwithchildandadolescentpsychiatristsworkinginpublicorprivatepracticeforadviceonparticularcasesonanas-needsbasisandweusetelehealthasnecessaryforconsultations,asisthenormalpracticeinremoteAustralia.

TotheextentthattheCommissionisnotpreparedtoaccepttheexpressadviceof theDepartmentanditsserviceproviders,thisshouldberaiseddirectlywiththeDepartment.

Example6-Generalisationsandlackofafullcontext:Thereportappearstoberichwithunsubstantiatedgeneralisations.Onesuchexampleappearsonpage36ofthedraftreport,whereitstates"ithasbecomecommonpracticeinAustraliatoholdpeopleforindefiniteperiods."Inadditiontobeinginaccurate,thisdisregardstheDepartment'sCommunityStatusResolutionapproach,whichworkstoresolveimmigrationstatuspriortotheuseofdetention,andtheworkbytheDepartmentwithintheonshorecompliancecohorts.

Example7-Misleadinguseofquotations: Foroneexampleofthis,seepage65,whereananonymousdetaineeisquotedas saying,"Theygaveherantidepressantseventhoughsheispregnant. Thentheysaid,‘justgobackthenifyoudon'tlikeit"'[nofootnote]. Despite theCommissionhavingarangeofconsultantmedicalspecialistsengagedforthepurposesofthe

Inquiry,nocommentisaddedtoclarifythatwomenwhoarepregnantcan,dependingonthecircumstances,beprescribedantidepressants.

Example 8-ExpectationsthattheDepartmentmustrefuteclaimsmade:TheDepartmentisparticularlyconcernedbytheselectivepresentationofinformationinthereport. ItappearsthattheCommissionhasadvancedaprosecutorialcasewiththeexpectationthatitisuptotheDepartment tothenfindevidencetorefutetheclaimsmadebytheCommission.Thisisunacceptable.TheDepartmentisofthe viewthattheCommissionisobligedtoinvestigateandtestthefactsofitsclaims,priortoadvancingtheminpublication. Whereinformationiscontestable,oropento

interpretation,itistheresponsibilityoftheCommission,astheinquiringagency,toconsider,evaluateandpresentabalancedviewoftheissue.

One suchexampleappears atpage69ofthedraftreport,wheretheCommissionreproducesinformationithadrequestedfromthedepartmentregardingthenumberofnewmotherswhowere diagnosedwithamentalillnesses.TheCommissionthenstatesthisconstitutesamental illnessrateofapproximately14per centamongstnewmothersindetention. TheCommissionoffersnoinformationregardingtheprevalenceofmentalillnessintheAustraliancommunitybywayofcontext.ThefollowingexamplesregardingthewiderAustraliancommunityputthisobservationintosomefurthercontext(andtheDepartmentwouldexpecttheCommissiontopresentthis typeofadditionalandrelevantcontext):

-Datafrom the2010AustralianNationalInfantFeedingSurveyshowedthatoneinfivemothersofchildrenaged24monthsorlesshadbeendiagnosedwithdepression. Morethanhalf ofthesemothersreported thattheirdiagnoseddepression wasperinatal (thatis,thedepressionwasdiagnosedfrompregnancyuntilthechild'sfirstbirthday). Further,ofallthecasesofdiagnoseddepression,just overoneinfive werediagnosedfor thefirst timeduringtheperinatalperiod oftheinfantselectedforthe2010survey.1

-Perinataldepressionreferstodepressionthatoccursduringpregnancyorthepostnatalperiod andaffects15-20percentofwomeninAustralia.Thechildbearingyears,especiallythefirstfew weeksafter childbirth,arethepeakperiodfor theonsetofdepression inwomen.Perinataldepression varieswithrespecttosymptoms,timingofonset,causes,riskfactors,severityandduration.Itcanalsovaryintheneedforprofessional assessmentandthetypeoftreatment.2

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-AnewstudybyMurdochChildren'sResearchInstitutehasfound almostoneinsixmotherswithyoung infantswhoattendedanemergencydepartment sufferedfrom post-nataldepression,andmanymothershadn'tbeenpreviouslyscreenedfor thecondition.Researchers attheInstitutescreened 200mothersinthechildren'semergencydepartment atTheRoyalChildren'sHospitalandfound theincidenceofpostnataldepressionwas16%;morethandoublethereported7.6%prevalence rate.Researchersalsofound thatmorethanhalf(58%)ofmothershadn'tbeenscreenedattheirmaternalhealthnurseorGPforpostnataldepression.3

2.SPECIFICFEEDBACKANDTECHNICALCOMMENTS

TheDepartmentoffersthefollowingspecificfeedbackandtechnicalcomments.Again,thesedonotrepresentacomprehensiveanalysisofthetechnicalandfactualaccuracyofthereport.WhiletheDepartmenthaspreviouslyindicateditsinterestinreviewingthereportforfactualaccuracy,theamountofinformationrequiringverificationandthelimitedreferencestosourcesmakethisunfeasiblebecauseof thewaythatthereportiscurrentlydraftedandowing tothelimitedtimeaffordedforreviewofsuchalengthydocument. Nevertheless,theDepartmentoffersthefollowingobservations:

1. TheDepartmentnotesthatsomeofthephotos,proposedtobeincludedbytheCommissioninthefinalreport,clearlyidentifythefacesofchildren.TheDepartmentrequests thatthePresidenttake thenecessarystepstoprotecttheprivacyoftheseindividuals.

1. TheDepartmentnotesthatthetableprovidedonpage45,relatingtopersonswithcertainmentalhealthconditionsorimpairments,providesalevelofdetailthatmaynotaffordreasonableprivacytothosetowhichitmakesreference.TheDepartmentasksthatthePresidentconsiderexercisingher powersundertheAustralianHumanRightsCommissionAct1986regardingthepublicationofsuchmaterials.

1. TheDepartmentnotesthatsomeoftheinformationanddataprovidedbytheDepartmenthasbeenutilisedbytheCommissiontocreatetables andtoformthebasisfortheCommission'sownstatisticalanalysis. Owingtothecomplexnatureofdataandstatisticalreportingintheimmigrationdetentioncontext,itistheDepartment'spreferencethatstatisticalresponsesanddatasetsshouldonlybeusedtoanswertheoriginalquestion.TotheextentthattheCommissionelects tomodifytheseanswers,inpresentationorthroughfurtheranalysis,theDepartmentrespectfullyrequeststhattheCommission:

a.checksthatinallcaseswheredataisusedinthereportthattheappropriatecaveatsappliedtotheoriginaldataareincludedwiththedatawhenreproduced;

b.makesclearthatithasusedoriginalresponsesforaseparate(evenifrelated)purpose;

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c.wheredataisre-presentedinanewgraphicalformor wherefurtheranalysisisundertaken,thisisidentifiedassuch(eg-"GraphpreparedbyAHRCbasedonDIBPdata" or"AHRCanalysisofdataprovidedbyDIBP").

4.Therearesomespecificexampleswherethe Commissionhasattemptedtodeviseaparticularstatistic(suchas dateofarrival)basedonotherinformationprovided(includingdaysindetention)and thesemethodologiesarenot alwaysasstraightforwardastheyappear. Forexample,theDepartmentbelievesthatthecorrectfiguresinrelationto"ChartX:Childrendetainedasat31March2014bymonthofarrival(May2012toMarch2014)"onpage35-36shouldbe:

Ofthe883IMAchildrenindetentionat31March2014,442arrivedonor after19July2013whoaresubjecttotransfertoNauru.Ofthese,47wereunaccompaniedminorsat31March2014.

AND

*Doesnotinclude6childrenwhoarenotIMAs(egvisaoverstayers,illegalforeignfishersandcompliancecaseloads).

**BasedonPortArrivalDate,asrecordedinDIBPsystems,babiesbornindetentionhaveanarrivaldatebasedontheirmother.

5.TheDepartmentnotesthatthereappearstobecountingerrorsinthereport,(forexample,therehaspossiblybeendoublecountingofsixindividualsinthe'childreninmainlanddetention'totalatpage9),andencouragestheCommissiontoreviewitsnumbersmoregenerally.

6.Asmentionedelsewhereinthisresponse, theDepartmentnotesthatithasmaderepeated invitationsthroughthecourseoftheInquiry,bothinconversationandinwriting,toreceiveevidenceofanyallegationsregarding abreach ofthehumanrightsofindividualsinimmigrationdetentionorevidenceofmisconduct.TheDepartmentremainsopento,andwillinvestigateor refertotheappropriateauthoritiesforinvestigation,anysuchevidenceifpresented,inaccordance withestablishedprocedures.

7.Page35-TheDepartmentnotesthattheMinisterisnottheguardianof all unaccompaniedminors.

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ATTACHMENTA

8.Page67-TheDepartmentoffersthefollowingcorrectiontoinformationithadprovidedtheCommission.Thebabyinquestionpassedawayon15October2013.TheDepartmentnotesthatdateof1April2013providedinafootnotetoarequestforinformation(atSchedule2Item11)wasincorrect.

3. GENERALCONCERNSWITHFINDINGSINDOMESTICANDINTERNATIONALLAW

Itis theDepartment'sviewthatthedraftreportdoesnotprovidethelevelofdetailandlegalanalysisnecessary tomakethecase forhowtheCommonwealthhasbreachedanyorallofthearticleslistedagainstthosefindings. WhilethebodyofthereportdetailsissuesthattheCommissionhasfoundduringitsInquiry,itappearstolack furtheranalysisregardinghowthesefindingsdemonstrateabreachofinternationalordomesticlaw. ItistheDepartment'sobservationthatthisappliestothe analysisofmostoftheallegedbreachesofinternationallawinthedraftreport,forall thecohortsofchildrendiscussed,includingmothersandbabies;pre-schoolers;primaryschoolagedchildren;teenagers;unaccompaniedminorsand'childrenindefinitelydetained'.TheDepartmentremains opentoreceivingaclearerlinkbetween theevidencemadeavailabletotheCommission,theCommission'simpartialanalysisofthatevidencewithabroadercontext,andtheapplicationofthis,againstwhatinternationallawrequires.

WithrespecttofindingsthattheDepartmenthasbreachedArticle28(1)oftheConventionoftheRightsoftheChild,the DepartmentobservesthatthereappearstobenoacknowledgementbytheCommissionthatthisrightisprogressivelyrealisable,apointparticularlyrelevant whenviewedinthecontextofthesurgeinirregularmaritimearrivalsinmid-2013inparticular.Again,thelackofcontextappliedby theCommissioninmakingitsfindingsisofconsiderableconcerntotheDepartment,particularlyifthefinalreportistobepublishedandpresentedbytheCommissiontobearigorousandindependentinvestigationofimmigrationdetentionandevaluationof Australia'scompliancewithitslegalobligationsatdomesticandinternationallaw.

Atpages55and56,theCommissionindicatesthatthedecisioninPlaintiff54/2014vMinisterforImmigrationandBorderProtection(PlaintiffS4)representsachangeintheinterpretationofdomesticlawthatis"moreinlinewithaprohibitiononarbitrarydetention". However,the

departmentisoftheviewthatPlaintiffS4isconsistentwithpreviousHighCourtauthority(includingAl-KatebvGodwinOrs[2004]HCA37).PlaintiffS4isauthorityforthepropositionthatimmigrationdetentionisauthorisedwhilstitisforalegitimatemigrationpurpose,being to:removeortransferthedetainee;consideravisaapplicationmadeby thedetainee;orconsiderwhethertoallowthedetaineeto makeavalidvisa application(asinthecaseof PlaintiffS4).Theseprocessesmustbeundertaken'assoonasreasonablypracticable'.Whatperiodoftimeis'assoonasreasonablypracticable',willdependonthecircumstancesofeachcase.

Atpage61,theCommissionstatesthattheDepartment"recognisesthatithasa dutyofcaretoallpeopleinimmigrationdetention".TheDepartmentacceptsthatit owesadutyofcaretoindividualsinhelddetention(seeDepartmentofImmigrationandBorderProtection,Submission45,p13).Inall othercircumstances,whethera dutyofcareisowedwilldependuponan assessmentofanumberoffactors.