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ENFORCEMENT 7Contents

7.1 Enforcement and the planning system ................................................................... 37.1.1 Why is enforcement important? .............................................................................. 37.1.2 Whenisenforcementactionappropriate? .............................................................. 37.1.3 Whatenforcementoptionsareavailable? .............................................................. 47.1.4 Whatadministrativearrangementsshouldaresponsibleauthoritymake? ............ 57.1.5 WhatistheroleoftheLocalGovernmentAct1989? .............................................. 57.1.6 Monitoringcomplianceandrespondingtocontraventions .................................... 67.1.7 SiteInspections ........................................................................................................ 77.1.8 Negotiatingcompliance ........................................................................................... 87.1.9 Officialwarnings ...................................................................................................... 9

7.2 Planninginfringementnotices .............................................................................. 107.2.1 Whenisaplanninginfringementnoticeappropriate? .......................................... 107.2.2 Whatmustaninfringementnoticeinclude? ......................................................... 107.2.3 Whatcananinfringementnoticerequire? ............................................................ 107.2.4 Whathappensifaninfringementnoticeisserved? .............................................. 107.2.5 Cananinfringementnoticebewithdrawn? .......................................................... 127.2.6 Whenmightwithdrawalofanoticebeappropriate? ............................................ 127.2.7 InternalReviews .................................................................................................... 127.2.8 Payingpenalties ..................................................................................................... 13

7.3 Enforcement orders ............................................................................................... 137.3.1 What is an enforcement order? ............................................................................. 137.3.2 Howisanenforcementordermade? .................................................................... 147.3.3 Optionsfortherespondenttoanenforcementorder........................................... 147.3.4 Objectionstoanapplicationforanenforcementorder ........................................ 147.3.5 Awardingcosts ....................................................................................................... 157.3.6 Interim enforcement orders .................................................................................. 167.3.7 Whathappensifanenforcementorderisnotcompliedwith? ............................. 16

7.4 ProsecutionforabreachoftheAct ...................................................................... 177.4.1 Theroleofprosecutioninplanningenforcement ................................................. 177.4.2 Whenisitappropriatetoprosecuteforanoffence? ............................................. 177.4.3 Procedureinprosecution ...................................................................................... 18

7.5 Injunctions ............................................................................................................. 197.5.1 Typesofinjunctionproceedings ............................................................................ 197.5.2 Section125injunctions ......................................................................................... 207.5.3 Generalcommonlawinjunctions .......................................................................... 20

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7.6 Cancellationandamendmentsofpermits............................................................ 207.6.1 Canapermitbecancelledoramended? ............................................................... 207.6.2 Whomayapplyforcancellationoramendment? ................................................. 217.6.3 Hearingandorder .................................................................................................. 217.6.4 Compensationobligations ..................................................................................... 22

7.7 Evidence ................................................................................................................. 227.7.1 Proofofformalmatters ......................................................................................... 227.7.2 Evidenceofothermatters ..................................................................................... 23

7.8 Brothels .................................................................................................................. 23

7.9 Usingotherlegislationforenforcement ............................................................... 24

7.10 Otherinformationsources .................................................................................... 24

7.11 Enforcement checklist ........................................................................................... 25

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ENFORCEMENT 77.1 Enforcement and the planning system

7.1.1 Why is enforcement important?

Planningschemesaredesignedtoregulatetheuseanddevelopmentoflandsothatitmeetsagreedcommunityobjectives.Aplanningschemeisalaw(technically,asubordinateinstrument)thatregulatesthewaylandcanbeusedanddeveloped.Aswithanyotherlaworregulation,planningschemesareonlyeffectiveiftheirrequirementsareenforced.

Theresponsibleauthorityisrequiredbylawtoefficientlyadministerandenforcetheplanningscheme.

Theresponsibleauthoritywilltypicallybethecouncilofthemunicipaldistricttowhichtheplanningschemeapplies.

Theobjectivesofenforcementareto:

• ensurecompliancewith

• avertorpreventthreatenedbreachesof

• stopexistingbreachesof,and

• punishforbreachesof

theplanningscheme,planningpermitsandtheirconditionsandagreementsmadeundersection173ofthePlanning and Environment Act 1987(theAct).

7.1.2 Whenisenforcementactionappropriate?

Anypersonwhousesordevelopslandincontraventionoforfailstocomplywithaplanningscheme,oraplanningpermit,oranagreementundersection173isguiltyofanoffence.

EnforcementshouldoccurwhenthereisaclearbreachoftheAct,aplanningscheme,permitconditionorsection173agreementandthebreachwarrantsenforcement,especiallyifitcausesdetrimenttothecommunity.Themainemphasisofenforcementshouldbeonobtainingcomplianceratherthanonprosecutingoffenders.Adoptingaconciliatoryapproachthroughaprocessofeducation,communicationandnegotiationwillmoreoftenprovideapositiveoutcome.Thevariousenforcementoptionsshouldbeviewedwiththisinmind.

PEA s. 14(a)

PEA s. 126

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7.1.3 Whatenforcementoptionsareavailable?

Dependingonthenatureandseriousnessoftheproblem,theresponsibleauthoritycandooneormoreofthefollowing:

• Preliminarynegotiation:Negotiateinformallywiththeallegedoffender.Theroleofenforcementoftenincludeseducatinganallegedoffenderwhomaynotbeconversantwithplanningconsiderationsandlaws.Thistypeofpositiveconciliationmayavoidtheneedforformalactionandshouldusuallybethefirststeptaken.

• Officialwarning:Issueanofficialwarningpursuanttothe Infringements Act 2006 whereaninfringementnoticeisconsideredexcessiveunderthecircumstances.

• Planninginfringementnotice:Issueaplanninginfringementnotice,whichprovidesamonetarypenaltyandprovidestheresponsibleauthoritywiththeoptiontorequireremedialaction.Thisisusuallyforlessseriousbreaches.

• Enforcementorder:MakeanapplicationtotheVictorianCivilandAdministrativeTribunal(VCAT)foranenforcementordertoachievecompliance.

• Interimenforcementorder:MakeanapplicationtoVCATforaninterimenforcementorderwherethereisaneedforimmediateaction.

• Prosecution:CommenceprosecutionproceedingsintheMagistrates’Court.Thismustbecommencedwithin12monthsoftheallegedoffence.Thistimelimitmeansthataresponsibleauthorityshouldnotcontinuenegotiationtosecurecomplianceifthereisariskthattheopportunitytoprosecutewillbecomeunavailable.ProsecutionintheMagistrates’Courtmaybeneededtofollowupnon-compliancewitheitheraninfringementnoticeoranenforcementorder.

• Courtinjunction:Seekaninjunctionfromacourtofcompetentjurisdiction(Supreme,CountyorMagistrates’Court)torestrainapersonfromcontraveninganenforcement order or interim enforcement order.

• Commonlawinjunction:Seekacommonlawinjunctionfromacourtofcompetentjurisdictiontorestrainapersonfromcontraveningalaw.

• Canceloramendapermit:MakeanapplicationtoVCATtocanceloramendapermit–forexampleforasubstantialfailuretocomplywiththeconditionsofapermit.

• Carryoutwork:Undertakeworktosecurecompliancewithanenforcementorderorinterimenforcementorderandrecoverthecostofdoingso.

THEENFORCEMENTSYSTEM-CorrectiveActionversusProsecutionTheenforcementsystemseparatesthefunctionsofVCAT(whichdealswiththeplanningissuesinrelationtoenforcementordersanddisputes)andthecourts(whichdealwithprosecutions).

Enforcementorderproceedingsaredesignedtopreventorstopexistingunlawfulplanningactivitiesandtoachievecompliance,reinstatementorremedialworks.Theyarenotdesignedtopunish.Onlyasection126prosecutionunderthePlanning and Environment Act 1987 willdothat.

IA 2006 s. 8

PEA s. 130

PEA s. 114

PEA s. 120

MCA 1989 s. 25, CPA s.7

PEA s. 125

PEA ss. 87, 88, 89

PEA s. 123

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Asection126prosecutionisdesignedtopunishforwhathasoccurredandprovideadeterrentagainstarecurrence.Itcannotdirectlyachieveacessationoftheactcomplainedof(orrectificationorreinstatement)unlessthepersonwhoisprosecutedvoluntarilydoesthisinanattempttolessenapenalty,oragreestodoitasaconditionofanybondimposedbywayofpenalty.

Itisthereforenecessarytochoosewhichoftheenforcementmechanismsisthemostappropriateinthecircumstances.Thischoicewillbeinfluencedbyconsideringanydifferencesinprocedureandstandardsofproof,thedelayinvolvedingettingtoafinalhearinganddecisionandwhatissoughttobeachievedbytheenforcement.

Inacriminalproceeding,forexampleaprosecutionintheMagistrates’Court,theoffencemustbeprovedbeyondareasonabledoubt.Inacivilproceeding,forexampleapplyingtoVCATtohaveaplanningpermitcancelled,theburdenofproofistoacivilstandardonthebalanceofprobabilities.

7.1.4 Whatadministrativearrangementsshouldaresponsibleauthoritymake?

Tomakeitsenforcementactioneffective,aresponsibleauthorityshouldconsidertraininganofficerinenforcementmethodsandskills.Appropriatedelegationsandauthorisationsshouldalsobeinplacetoenabletheofficertotakeanynecessaryaction,including:

• entrytopropertiestocarryoutandenforcetheAct,regulations,planningscheme,planningpermits,enforcementordersoragreementsmadeundersection173

• issuingplanninginfringementnotices

• applyingforenforcementordersandinterimenforcementorders

• applyingforthecancellationoramendmentofplanningpermits

• institutingproceedingsonbehalfofthecouncilunderanyAct,regulationorlocallaw.

7.1.5 What is the role of the LocalGovernmentAct1989?

Section224oftheLocal Government Act 1989allowsacounciltoappointanofficertobeauthorised‘forthepurposesoftheadministrationofanyAct,regulationsorlocallawswhichrelatetothefunctionsandpowersoftheCouncil’.

ThepowersofanofficerauthorisedundertheLocal Government Act 1989 are extensive.TheauthorisedofficermayenteranylandorbuildingatanyreasonabletimetocarryoutandenforcetheLocal Government Act 1989 oranyActwithoutnotice.

WhileanofficercouldbeauthorisedundertheprovisionsofboththeLocal Government Act 1989 and the Planning and Environment Act 1987,theofficershouldbecarefulnottoconfusethepowersanddutiesundereachAct.ItwouldbeunwiseforanofficerauthorisedundertheLocal Government Act 1989 to enter property usingprovisionsofthePlanning and Environment Act 1987unlessthatwastheonlyauthorisationrelevanttothecircumstances.AlthoughthereisaninconsistencybetweenthetwoActs,themorespecific(andrestrictive)provisionsofthePlanning and Environment Act 1987arelikelytoprevailinthesecircumstances.

PEA s. 126

PEA ss. 133, 134

PEA s. 130

PEA ss. 114, 120

PEA s. 87

LGA ss.224, 232

LGA s. 224(7)

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7.1.6 Monitoringcomplianceandrespondingtocontraventions

Regularchecksandinspectionscanbecarriedoutbyanauthorisedofficerofaresponsibleauthoritytoensurethattheuseordevelopmentoflanddoesnotcontraveneaplanningscheme,section173agreementorplanningpermit.However,duetotheextentofuseanddevelopmentactivitythatgoesonacrossamunicipality,mostresponsibleauthoritiesrelyonacomplaintallegingaplanningbreachtotriggeraninvestigation.Alessernumberofinvestigationsarecarriedoutasroutineinspectionstomonitorplanningschemecompliance.

Thecomplaintmayraisemattersthatrequirereferraltoothercouncilbranches,suchashealth,buildingorlocallawsoritmayfallunderthejurisdictionofotherauthoritiesoragencies,including:

• VictoriaPolice(forexample,wilfuldamage)

• DepartmentofJustice(forexample,prostitutionandliquorlicensing)

• EnvironmentProtectionAuthority(forexample,majorindustrialnoise/odour,contaminatedland)

• Serviceauthoritiesandproviders(forexample,infrastructuredamage)

• WorkCoverAuthority(unsafeworkingenvironment)

• DepartmentofImmigration(suspectedillegalimmigrantworkers).

Insomecircumstancesitmaybeappropriateforajointsiteinspectiontobeconducted.Thiswouldbeparticularlyrelevantwherethecauseofcomplaintfallsacrossmorethanonejurisdiction.

Wheretheownerofthelandisnottheoccupier,theinvestigatingofficermayconsideradvisingtheownerofthematteratthispreliminarystage.Thisgivestheownertheopportunitytoundertakemeasurestoresolvetheissueandmayresultinamoretimelyresolution.

AssemblingInformationIneachcase,theinvestigatingofficershouldstartwithadesktopauditandaninitialassessmenttoassemblerelevantfacts,including(asrelevant):

• zoneandoverlaysapplicabletothelandandrelevantprovisionsoftheplanningscheme

• occupancyandusehistory(particularlywhereexistinguserightsmaybeaconsideration)

• planningandbuildinghistory,includingplanningpermits,endorsedplansorsection173agreementsrelevanttotheland

• consultationwiththeplannerwhoprovidedanyadviceorassessedanyapplicationsrelevanttotheland(wherepossible)

• aerialandstreetphotography(bothcurrentandhistoric).

Thedesktopauditwillassisttheinvestigatingofficertoformaninitialviewonthenatureofthesuspectedbreach,basedoninformationfromtheinitialcomplaintandtheresearchconducted.

Eyewitnessaccountscanestablishwhenanoffencewascommitted.Intheabsenceofawitness,aerialphotography,physicalevidenceonthegroundandreceiptsorotherdocumentsmayprovideproofthatsomethinghappenedonaday,orbetweendates.

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7.1.7 SiteInspections

Followingadesktopaudit,aninitialinspectionofthelandwillhelpobtainfirsthandevidenceofacontravention.Anofficermustbeauthorisedtoentertheland.

ThefollowingpersonsareauthorisedtoenteranylandatanyreasonabletimetocarryoutandenforcetheAct,theregulations,aplanningscheme,apermitcondition,anenforcementorderoranagreementundersection173oftheActor,ifthepersonhasreasonablesuspicion,todeterminewhetheranyofthemhasbeenorisbeingcontravened:

• anauthorisedpersonoftheDepartmentofEnvironment,Land,WaterandPlanning

• anauthorisedofficeroftheresponsibleauthority

• anyotherpersonwhomtheMinisterauthorisestoassistanauthorisedofficeroftheMinistryorauthority.

Priortoenteringapropertyforenforcementpurposesanauthorisedofficerisrequiredtoeither:

• obtaintheoccupier’sconsent,or

• providetwodayspriornoticeifthelandisnotabrothel(specialentryprovisionsinthe Sex Work Act 1994 applytobrothels)or

• obtainawarrant.

AnauthorisedofficermayrequesttheassistanceoftheVictoriaPolicetogainentrytolandwhereanoccupierrefusestoallowentryfollowingtheprovisionoftwodaysnotice.

Theoptiontotakeoutawarrantmaybenecessarywhereentrytoapropertyisrequiredwithoutgivingtwodaysnoticeandtheoccupierrefusesconsent.AwarrantisobtainedfromtheMagistrates’Court.

Cautionshouldbeexercisedwhenenteringallconstructionsites.Theofficershouldseekoutanysiteofficeoron-siteconstructionsmanagerinthefirstinstancetoadviseofthereasonfortheinspection,toobtainconsent,andtoobtainahardhatandvestifnecessary.

Allevidencecompiledshouldbeassembledandrecordedmethodicallyandclearlybytheauthorisedofficertofacilitateafairandaccurateassessmentoftheallegedcontravention.Thisdocumentationandmaterialisimportantasitisthebasisonwhichanauthorisedofficerorresponsibleauthoritydecidesiffurthermonitoringorenforcementiswarranted.Itwouldalsobepartoftheresponsibleauthority’ssupportinginformationforanycasetheauthoritymaymakeinahearingbeforeVCATorduringthecourseoflegalproceedings.

Onenteringland,theActprovidesforevidencetobeobtainedthroughavarietyofmeans.Theinspectionrecordshoulddetailtheaddressofthelandandthemattersbeinginvestigated,togetherwith:

• timeanddateoftheinspection

• personsinattendance

• detailsofactivitiesordevelopmentnotedatthetimeoftheinspection

• namesofanypersonsinterviewed

PEA s. 133

PEA ss. 134(1)

PEA s. 136

MCA s. 75

PEA s. 135

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• detailsofanyinterviews

• photographs,measurements,sketches,recordingsandsamples,asrequired.

Insomeinstances,regularinspectionsofasitemayberequiredtomonitoractivitiesorchanges.Eachinspectionistoberecorded.

Whatifanauthorisedofficerisobstructedwhentryingtoinspectaproperty?Ifthebreachorelementsofthebreacharenotclearlyapparentfromoutsidetheland,theinvestigatingofficershouldrequestconsenttoenterthelandfromtheoccupier.Theofficershouldidentifyhimselforherselfbynameasanofficerofthecouncilandexplainthereasonfortheinspection.Itisgoodpracticefortheofficertoprovideabusinesscard.Formalidentification,suchasproofofauthorisation,awarrantornotice,shouldbemadeavailableifrequested.

Apersoninattendanceatapremisesunderinvestigationmaychoosetocooperatewiththeinvestigatingofficerandallowimmediateentrytotheproperty,butcaninsistonbeinggiventwocleardaysnotice-unlesstheofficerhasawarrantortheofficerbelievesonreasonablegroundsthepremisesisbeingusedforthepurposesofabrothel.

ItisanoffencetoobstructanauthorisedofficerfromtakingactioninaccordancewiththeAct,includingobtainingentrytolandtoconductaninspection.Apenaltyof60penaltyunitsappliestosuchanoffence.

PENALTYUNITSPenaltyunitsareusedtodefinetheamountpayableforfinesinrelationtooffencesunderVictorianActsandRegulations.Thevalueofapenaltyunitisseteachyearinaccordancewithsection6oftheMonetary Units Act 2004.FortheFinancialYearof2014-2015,thevalueis$147.61.

Therateforapenaltyunitisindexedeachfinancialyearsothatitisraisedinlinewithinflation.Anychangetothevalueofapenaltyunitoccurson1JulyeachyearandispublishedintheVictoriaGovernmentGazette.

7.1.8 Negotiatingcompliance

Forlessseriousorlessurgentbreachestheresponsibleauthoritymayconsidernegotiatingcompliancebywritingtotheallegedoffenderadvisingthemofthebreach.Thelettershouldexplain:

• thenatureofthebreach/complaint

• thefindingsoftheinvestigation

• whatneedstobedonetoachievecompliance

• specifictimeframestoachievecompliance

• ifanyreferralshavebeenmadetootherdepartmentsorexternalagencies

• detailsoftheenforcementoptionsavailabletotheresponsibleauthorityshouldcompliancenotbeachievedandassociatedpenaltyprovisions.

TheresponsibleauthoritymayalsoconsiderservinganofficialwarningundertheInfringements Act 2006 andincludethisintheletter.MoreinformationaboutOfficialWarningsisprovidedbelow.

Attheendoftheperiodspecifiedfortheachievementofcompliance,theenforcement

PEA ss. 134, 135, 137; MUA 2004 s.6; SWA 1994 s. 78

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officershouldconductasecondinspection.(Thismaybecarriedoutatanearlierdatewheretherespondenthascontactedcounciladvisingthatnecessaryactionshavebeentakentoobtaincompliance).

Wherecompliancehasnotbeenachievedatthetimeofthesecondinspection,thefollowingactionsmaybetaken:

• whereappropriate,discussthenon-compliancewiththeallegedoffenderand:

x negotiateanextendedtimeframefortheachievementofcompliance

x reaffirmotherenforcementconsequencesifcomplianceisnotachieved.

• providefurthercorrespondencetotheallegedoffenderdetailingthefailuretocomplywithinthespecifiedperiodandemphasisetobothownerandoccupierthatcontinuednon-complianceisevidenceofabreachwhichmayresultinfurtheractions,includingpunitivemeasuresandthepotentialforprosecution.Thecorrespondenceshouldprovideasecondopportunitytoachievecompliance,againprovidinganextendedtimeframeforcompliancetobeachieved.

Wherecomplianceisstillnotachievedandallattemptstonegotiatecompliancehavefailed,itmaybenecessarytoemployotherenforcementoptions.

7.1.9 Officialwarnings

Iftheresponsibleauthoritybelievesonreasonablegroundsapersonhascommittedanoffencebutinconsideringallthecircumstances,decidesaninfringementnoticeisnotappropriate,theycanserveanofficialwarninginwritinginaccordancewithsection8of the Infringements Act 2006(withprescribeddetailsoutlinedintheInfringements(ReportingandPrescribedDetailsandForms)Regulations2006.

Issuinganofficialwarningcanalsobeusedinnegotiatingcomplianceasdetailedabove.

Theprescribedformatofanofficialwarningdoesnotprovideforanyscopetodirectanoffendertorectifyabreach,toceaseanon-compliantuseand/ordevelopmentorshow-causewhytheresponsibleauthorityshouldnottakefurtheraction.Thesetypesofdirectionsshouldbespecifiedinacoveringletteraccompanyingtheofficialwarning.

Anofficialwarningdoesnotaffectthepoweroftheresponsibleauthorityto:

• commenceproceedingsagainstthepersonuponwhomtheofficialwarningwasserved

• serveaninfringementnotice

• takenofurtheraction

• takeanyotherenforcementactionprovidedforintheAct.

However,theresponsibleauthoritymustwithdrawanofficialwarningifitisgoingtocommenceproceedingsorserveaplanninginfringementnotice.

Anofficialwarningmaybewithdrawnatanytimewithinsixmonthsoftheservingoftheofficialwarning.

Anofficialwarningmustbewithdrawnbyservingawithdrawalofanofficialwarningonthepersononwhomtheofficialwarningwasserved.Awithdrawalofanofficialwarningmustbeinwritingandcontaintheprescribeddetails.

IA s. 8; I(RPD&F) Regs r. 6

IA s. 10

IA s. 11

I(RPD&F) Regs r. 7(2)

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7.2 Planninginfringementnotices

7.2.1 Whenisaplanninginfringementnoticeappropriate?

Planninginfringementnoticesprovideresponsibleauthoritieswithameansofdealingquicklyandmoreeasilywithsomelessseriousbreachesofplanningschemes,planningpermitsandagreements.Theyalsoprovideanowneroroccupieroflandwhohascommittedanoffenceameansofexpiatingthatoffence,withoutconvictionorafindingofguilt.

Ifanauthorisedofficerofaresponsibleauthorityhasreasontobelievethatapersonhascommittedanoffenceagainstsection126oftheAct,theofficercanserveaplanninginfringementnoticeontheallegedoffender.

7.2.2 Whatmustaninfringementnoticeinclude?

Undersection13oftheInfringements Act 2006aninfringementnoticemust:

• beinwritingandcontaintheprescribeddetails,includingtheinfringementpenalty(theprescribeddetailsarecontainedinregulation8oftheInfringements[ReportingandPrescribedDetailsandForms]Regulations2006)

• statethatthepersonisentitledtoelecttohavethematteroftheinfringementoffenceheardanddeterminedintheMagistrates’Court(additionalrequirementsalsoapplytoaninfringementnoticeservedonachild).

Inadditiontotheserequirements,thedetailsoftheadditionalsteps(ifany)requiredtoexpiatetheoffencemustbeincludedinaninfringementnotice.Anyformofinfringementnoticecanbeusedaslongasitincludestheprescribedinformation.

7.2.3 Whatcananinfringementnoticerequire?

Inadditiontorequiringthepaymentofaninfringementpenalty,additionalstepsthatcanberequiredunderaninfringementnoticetoexpiateanoffencemayinclude,butarenotlimitedto:

• stoppingthedevelopmentoruse

• modifyingthedevelopmentoruse

• removingthedevelopment

• preventingorminimisinganyadverseimpactsoftheuseordevelopmentthatconstitutedtheoffence

• enteringintoanagreementundersection173oftheAct

• anythingelserequiredtoremedythecontravention.

7.2.4 Whathappensifaninfringementnoticeisserved?

Apersonservedwithaninfringementnoticecaneither:

• choosetopaythepenaltyandtakeotherstepsrequiredbythenotice

• electtohavethematteroftheinfringementoffenceheardanddeterminedintheMagistrates’Court

• applytohavethedecisiontoservetheinfringementnoticeinternallyreviewedby

PEA s. 130

IA s. 13; I(RPD&F) Regs r. 8

PEA s. 130(2A)

PEA s. 130(4)

IA s. 16

IA s. 22; I(RPD&F) Regs r. 8(m)

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theresponsibleauthority(therequirementsforinternalreviewsiscontainedinDivision3oftheInfringements Act 2006)

• ignoretheinfringementnotice.

Ifaplanninginfringementnoticerequiresadditionalstepstobetakentoexpiateanoffenceandbeforetheendofthespecifiedremedyperiod,thepersonservedwiththenoticeinformstheresponsibleauthoritythatthosestepshavebeentaken,anauthorisedofficermust,withoutdelay,findoutwhetherornotthosestepshavebeentaken.Thatofficeristhenrequiredtoserveontheoffenderafurthernoticeconfirmingwhetherornottherequiredstepshavebeentaken.

Oncethepenaltyhasbeenpaidandanyrequiredadditionalstepstaken,theoffenderhas‘expiated’theoffenceandnofurtherproceedingscanbetaken.Itisthereforeimportantforanoticetostatepreciselywhatstepsareneeded,suchasstopping,modifyingorremovingthedevelopmentorusethatconstitutedtheoffence.

Ifthepersonbelievesthattheyhavenotcommittedanoffence,itisadvisablethattheycontacttheresponsibleauthoritytoclarifythesituationand,ifnecessary,obtainlegaladvice.However,ifthepersonrecognisesthatanoffencehasbeencommittedandthattherequirementsofthenoticeareareasonablewayofrectifyingthesituation,itiswisetopaythepenaltyandcomplywiththeotherrequirementsofthenotice.

Thefailuretopaytheinfringementpenaltybythedatespecifiedintheinfringementnoticemayresultinfurtherenforcementactionbeingtaken.

Aresponsibleauthorityproposingtouseplanninginfringementnoticeproceduresshouldnotethat:

• Servinganinfringementnoticegivesanallegedoffendertheopportunitytoexpiateanoffencebypayingthepenaltyandcarryingouttheotherrequirements.Anybodyreceivinganinfringementnoticecanchoosetoignoreit,althoughthisactioncouldresultinprosecutionbytheresponsibleauthorityandtheincurringoffurthercosts.However,unlikeotherinfringementoffences,aplanninginfringementoffenceisnota‘lodgeable’infringementoffenceundertheInfringements Act 2006.

ThismeansthatanyfailuretocomplywithaplanninginfringementnoticecannotbereferredtothePerincourtsystemforresolution.ItmustinsteadbeheardattheMagistrates’Courtbyprosecutingtheoriginaloffence(forabreachofsection126oftheAct)thatgaverisetotheissueoftheplanninginfringementnotice.Itisnotaprosecutionofanyfailuretocomplywiththeplanninginfringementnoticeitself.Anunsatisfiedplanninginfringementnoticedoesnotgenerateanewoffence,soitcannotbeprosecuted.

• Unlessthenoticeiswithdrawn,theresponsibleauthoritymustbepreparedtoprosecuteanoffenderthroughtheMagistrates’Courteverytimeapenaltyisnotpaidortherequiredadditionalstepsarenotcarriedout.Failuretoprosecutewillrenderinfringementnoticesanemptythreat.AninfringementnoticeshouldnotbeservedunlessthereisenoughevidenceabouttheoffencetotakethecasetocourtastheoffenderisentitledtohavethematteroftheinfringementoffenceheardanddeterminedintheMagistrates’Court.

• Ifaprosecutionfollowsaninfringementnotice,thecourtcannotforcetheoffendertocarryouttherequiredadditionalstepssetoutinthenotice.Iftheresponsibleauthoritywantstotryanddirectlyachievethecarryingoutoftheseadditionalsteps,itneedstoapplyforanenforcementorderatVCAT.

PEA s. 130 (5), (6)

IA s. 32

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• The12monthperiodallowedforcommencingaprosecutionrelatingtothesubjectmatterofaninfringementnoticeiscalculatedfromthetimeoftheoffence,ratherthanfromthediscoveryoftheoffenceorthedeadlineforacontravenedplanninginfringementnotice.

Formoreinformationontheinfringementnoticeprocess,refertotheInfringements Act 2006,theInfringements(ReportingandPrescribedDetailsandForms)Regulations2006andtheVictorianDepartmentofJusticewebsitewww.justice.vic.gov.au.

7.2.5 Cananinfringementnoticebewithdrawn?

Theresponsibleauthoritymaywithdrawaninfringementnoticebyservingawithdrawalnotice.Awithdrawalnoticecanbeservedwithin12monthsofthedatethattheoffencewascommitted,beingthe‘statuteoflimitations’foroffencesundertheActandthereforethetimepermittedforbringingaproceedingintheMagistrates’Court.

7.2.6 Whenmightwithdrawalofanoticebeappropriate?

Anoticecannotbewithdrawninsituationswheretherequiredstepshavebeentakenbytheoffenderandthepenaltyhasbeenpaid.

Withdrawalmaybeappropriateiftheallegedoffendercanconvincetheresponsibleauthoritythattherewasnooffence,orthattheywillrectifytheallegedoffenceifthenoticeiswithdrawn.

Withdrawinganoticemayalsobenecessaryiftheresponsibleauthorityrealises,afterservingit,thatthenoticewasaninappropriateactioninthecircumstances.Theauthoritymaydecidethatitwantspositiveactiontofixtheproblemandshouldhavesoughtanenforcementorder.Itmayrealisethattheevidenceavailablecouldnotleadtoafindingofguiltbythecourt.

Aresponsibleauthorityshould,whereverpossible,avoidhavingtowithdrawanotice.Ifthepointsabovearecarefullyconsideredbeforeanoticeisserved,aresponsibleauthorityshouldrarelyhavetowithdrawaninfringementnotice.

Awithdrawalnoticemustbeinwritingandcontaintheprescribeddetailsandstatethattheresponsibleauthorityintendstoproceedinrespectoftheinfringementoffenceby:

• continuingproceedingsandissuingasummons;or

• issuinganofficialwarning;or

• takingnofurtheraction;or

• takinganyotherspecifiedactionpermittedundertheInfringements Act 2006 or the Planning and Environment Act 1987i.e.commencingproceedingsintheMagistrates’CourtorapplyingforanenforcementorderatVCAT.

7.2.7 InternalReviews

Anallegedoffenderortheirrepresentativemayapplytotheresponsibleauthorityforreviewofthedecisiontoservetheinfringementnotice.

Thereviewmustbeundertakenbyanofficernotinvolvedintheissuingoftheinfringementnotice.Usuallythisisamoreseniorpersonintheagency.Reviewsmustbecompletedwithin90daysaftertheagencyreceivestheapplication.However,thiscanbeextendediftheagencyseeksadditionalinformationtoconsiderthematter.

CPA s.7

IA s. 18, CPA s.7

IA s. 18(4)

IA Act s. 19

IA Act s. 22

IA Act s. 24; I(RPD&F) Regs r.10

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Oncethedecisionismade,theagencymustprovidetheapplicantwithwrittenconfirmationofthedecisionwithin21days.

YoucanfindmoreinformationaboutinternalreviewsintheAttorney-General’sGuidelinestotheInfringements Act 2006availableontheDepartmentofJusticewebsite,www.justice.vic.gov.au.

7.2.8 Payingpenalties

Penaltiesaretobepaiddirectlytotheresponsibleauthority.Mostcouncilsprovideforpaymentsonline,overthephone,bypostorinperson.Contacttherelevantcounciltodeterminetheirpaymentmethodoptions.

Theresponsibleauthorityshouldbereadytotakefurtheractionpromptly(suchasservingapenaltyremindernotice,prosecutionorseekinganenforcementorder),ifapenaltyisnotpaidoranyrequiredadditionalstepsarenottakenbythedatespecified.

7.3 Enforcement orders

7.3.1 What is an enforcement order?

Anenforcementorderisintendedtopreventorstopunlawfulplanningactivityandtoachievereinstatement.Enforcementorderproceedingsarenotdesignedtopunishbywayofafinancialpenalty.Part6-Division2oftheActaddressesprosecutionwhichisdiscussedbelowinSection7.4ofthischapter.

Anyperson,includingaresponsibleauthority,mayapplytoVCATforanenforcementordertorectifyabreachofaplanningscheme,planningpermitorsection173agreement,ortoavoidthecommissionorcontinuanceofsuchabreach.

Itisimportantthatthesystemallowsanypersontoapplyforanenforcementorder,asitprovides:

• aformofsanctionagainstanauthoritythatisnotproperlyenforcingtheplanningscheme,(suchasifaresponsibleauthorityisreluctanttotakeactiononaparticularcaseorwhereitisitselfactingincontraventionofplanninglaws)

• protectiontoanauthorityfromunwarranteddemandsthatittakeenforcementaction,(thatmaynotbeappropriateorinthepublicinterest).

AnindividualcantakethematterdirectlytoVCATratherthanrelyingontheresponsibleauthority.

AresponsibleauthorityisabletoseekanenforcementorderthroughVCATatthesametimeasitprosecutesaplanningoffenceintheMagistrates’Court(andseekanappropriatepenalty).

Anyenforcementorderorinterimenforcementorderisbindingoneverysubsequentownerandoccupiertothesameextentasiftheorderhadbeenservedonthem,sothereisnoneedtoservenewnotices.

PEA ss. 129

IA s. 29

PEA s. 114

PEA s. 124

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7.3.2 Howisanenforcementordermade?

ApersonseekinganenforcementordermayapplytoVCATfortheorder.Anenforcementordercanbeissuedagainstanowner,occupieroranyotherpersonwhohasaninterestinthesubjectland,suchasadeveloper.

AnapplicationforanenforcementorderismadetoVCATusingtheApplicationforEnforcementOrderandInterimEnforcementOrderForm.AfeeispayableandVCATprovidesvariouslodgementoptions.TheformandVCAT’sPractice Note PNPE4 – Enforcement Orders and Interim Enforcement Orderswhichprovidesguidanceontheproceduretobefollowedinrelationtoenforcementorders,areavailableonVCAT’swebsite,www.vcat.vic.gov.au.

Whenapersonappliesforanenforcementorder,VCATwilldirecttheygivenoticeoftheirapplicationtotheresponsibleauthority,thepersonagainstwhomtheorderissought,theownerandtheoccupieroftheland,andanyotherpersonsthatmaybeaffectedbythegrantoftheenforcementorder.

VCATrequiresastricterstandardofevidenceintheseapplicationsthaninothertypesofappeals.Evidenceisnormallygivenonoathoraffirmationratherthanbyassertionorwrittensubmissions.Theapplicant’scaseneedstobeprovenonthebalanceofprobabilities–butthedegreeofproofrequiredmust reflectthegravityofthefactstobeproved.

7.3.3 Optionsfortherespondenttoanenforcementorder

Onbeingservedwithanapplication,apersonagainstwhomanorderissought(‘therespondent’)hastwooptions:

1. Contesttheapplication:ThisisdonebylodginganobjectionwithVCATunderschedule1,clause56oftheVictorian Civial and Administrative Act 1998.VCATmustthengivespecifiedpersonsareasonableopportunitytobeheardortomakewrittensubmissionsinrespectoftheapplication.

2. Takenoaction:Ifnootherobjectionsarelodgedfromotherrelevantparties,VCATmaydirectlymakeanorderundersection116ormayrejecttheapplication.TheordermaybeinthetermssetoutintheapplicationorindifferenttermsiftheTribunalthinksfit.

7.3.4 Objectionstoanapplicationforanenforcementorder

RelevantinterestedoraffectedpartiesmayobjecttothegrantofanenforcementorderbylodgingastatementwithVCATwithin14daysfromthedateofserviceoftheapplication.Thisincludesapersonagainstwhomanorderissought(forsituationswheretheymaybelievethereisnocontraventionoranorderoughtnottohavebeenmadeinthecircumstances).

AnobjectionmustbeinwritingandmustsetoutthegroundsformakingtheobjectionusingVCAT’sForm B - Statement of Grounds.ThisFormwillbeincludedwiththecopyofanyapplicationforenforcementorderthatisservedonrelevantparties.Acopyofanyobjectionmustalsobeservedontheapplicantandtheresponsibleauthority(ifnottheapplicant)withinthe14dayperiod.

IfVCATdoesnotreceiveanyobjectionstoanapplicationforanenforcementorder,itcanmakeanyorderitthinksfit(inaccordancewithsection119oftheAct–seebelow),oritcanrejecttheapplicationaltogether.

PEA s. 114

PEA s. 115

PEA s. 117

PEA s. 116

VCATA Sch. 1 Cl. 56

PEA s. 116

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IfVCATreceivesanobjectiontotheapplicationwithintheperiodspecifiedinthenotice,itmustgivethefollowingpersonsareasonableopportunitytobeheardortomakewrittensubmissionsinrespectoftheapplication:

• theresponsibleauthority

• anypersonagainstwhomtheenforcementorderissought

• theowneroftheland

• theoccupieroftheland

• theapplicantfortheenforcementorder

• anyotherpersonwhomitconsidersmaybeadverselyaffectedbytheenforcementorder

• anypersonwhomitconsidershasbeenormaybeadverselyaffectedbythecontravention.

VCATwilltypicallyscheduleahearingtoconsiderthematter.Allrelevantpartieswillbesentanoticeofthehearing.Iftheapplicant,respondentoranyotheraffectedpersondoesnotattendthehearingVCATmaymakeordersinthatperson’sabsence.

FollowingtheconsiderationofallrelevantmattersVCATmayrejecttheapplication,orissueanenforcementorderinaccordancewithsection119oftheActto:

• directapersontostopauseordevelopmentwithinaspecifiedtime

• directapersonnottostartauseordevelopment

• requirethatabuildingbemaintainedinaccordancewiththeorder

• directthatotherthingsbedonewithinaspecifiedperiodtorestoretheland:

x ascloselyaspossibletoitsconditionbeforethecontraventionoccurred;or

x tosomeotherspecifiedcondition;or

x tosomeotherconditionacceptabletotheresponsibleauthorityoraspecifiedagency,or

x otherwiseensurecompliancewiththeAct,scheme,conditionofplanningpermitorsection173agreement.

Acopyoftheordermustbeservedonallrelevantpersons.ThisisdonebyVCATorbyapartyspecifiedbyVCAT.

7.3.5 Awardingcosts

VCAT’sapproachtoawardingcostsinapplicationsforenforcementordersisdifferenttoitsapproachinothermatters.VCAThasawardedcostsinenforcementmattersmorecommonlythaninnormalplanningreviewsespeciallywhere,despiterequestsandwarnings,thereisa‘persistentandunjustified’failuretocomplywithplanningcontrols.

Althoughenforcementproceedingswarrantadifferentapproachtocoststhanthattakeninnormalplanningreviews,thesuccessfulpartyisnotentitledasamatterofcoursetobeingawardedcosts.Eachcasemustbeviewedonitsmerits.

PEA s. 117(1)

PEA s. 117(2), PEA s. 119

VCATA s. 116(2)

VCATA s. 109

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7.3.6 Interim enforcement orders

Wherecircumstancesrequiremoreimmediateaction,aresponsibleauthorityorpersonwhohasappliedtoVCATforanenforcementorderundersection114,mayalsoapplyforaninterimenforcementorder.

Theapplicationform,availablefromVCAT,allowsforanapplicationtobemadeforaninterimorderatthesametimeastheenforcementorder.ReferabovetoSection7.3.2ofthischapterforinformationabouttheformandprocedures.

Interimenforcementordersaresimilartointerlocutoryinjunctionsmadebycourts.Thepurposeoftheseproceedingsistopreservethestatusquountilthehearingandsubsequentdeterminationofthecase.

TheimportantdistinguishingfeatureofaninterimenforcementorderapplicationisthatitmaybeconsideredbyVCATwithoutnoticetoanyperson.Hencetheseapplicationscanensureapromptresponse.

BeforemakinganInterimenforcementorder,VCATmustconsider:

• theeffectofnotmakingtheinterimenforcementorder

• whethertheapplicantshouldgiveanyundertakingastodamages

• whetherornotitshouldhearanyotherpersonbeforetheinterimenforcementorder is made.

Othermatterswhichmaybeconsideredincludetheurgencyofthematterandwhetherirreparableharmwillbecausediftheorderisnotgranted.

IfVCATmakesaninterimenforcementorderwithoutnoticetoaperson,itmustgiveanyaffectedpersonanopportunitytobeheardwithinsevendaysaftermakingtheorder.

Theserviceofaninterimenforcementorderandthetypesofremedialmeasuresitmayrequirearesimilartothoseofanenforcementorder,andmayincludestoppingorpreventingcommencementofauseordevelopment.

VCAThasthepowertocanceloramendanenforcementorderorinterimenforcementorderatanytime.

TheActsmakespecificprovisionforpaymentofcompensationforlossordamageasaresultofproceedingswhichhavebeenbroughtvexatiouslyorfrivolously,orinordertosecureormaintainadirectorindirectcommercialadvantageforthepersonwhobroughttheproceedings.Thisshouldbeconsideredbeforeseekinganinterimenforcementorderwhichmaycausesignificantlosstoaffectedparties.

7.3.7 Whathappensifanenforcementorderisnotcompliedwith?

Aresponsibleauthorityhasastatutorydutytoenforceanyenforcementorderorinterim enforcement order.

Ifapersonhasnotcompliedwithanorder,theycanbeprosecutedintheMagistrates’Courtforthisoffence.Insuchaprosecution,itisnotnecessarytoprovetheschemeandcontrolsorthebreachofthem,onlythattheorderwasproperlymadeandhadnotbeencompliedwith.Toassistinobtainingcompliance,thepenaltiesforfailuretocomplywithanenforcementorderorinterimenforcementorderaresubstantial.TheyinvolvebothimprisonmentundertheVictorian Civil and Administrative Tribunal Act 1998(whichisnotapenaltyavailableforprosecutionundersection126oftheAct)andfines.

PEA s. 120(1); VCATA s. 68(3)

PEA s. 120(2)

PEA s. 120(3)

PEA s. 120(9)

PEA s. 120(4)

PEA ss. 120(10), 121

PEA s. 150(4); VCATA ss. 75(2), 78(1)

PEA s. 14

PEA s. 122(5); VCATA s. 133

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AnenforcementorderthathasbeencontravenedcanbefiledintheSupremeCourt.TheenforcementordereffectivelybecomesanorderoftheSupremeCourtandcanbeprosecutedaccordingly.

Furthermore,theresponsibleauthoritycancarryoutanyworkrequiredbyanenforcementorderorinterimenforcementorderthatwasnotcarriedoutwithinthespecifiedperiod.WiththeconsentofVCAT,anyotherpersonmayalsocarryouttheseworks.Thecostofcarryingouttheseworksisthenrecoverableasadebtfromthepersonindefault.

Anyresponsibleauthorityorotherpersoncontemplatingtakingsuchdirectactionshouldproceedwithgreatcautionandonlyonthebasisofwell-informedlegaladvice.

7.4 ProsecutionforabreachoftheAct

7.4.1 Theroleofprosecutioninplanningenforcement

ThestatutoryplanningsystemultimatelyreliesonthefactthatplanningschemesarepartofthelawofVictoriaandthatanypersonwhousesordevelopslandincontraventionof,orfailstocomplywithaplanningscheme,planningpermitorsection173agreement,oranenforcementorder,isguiltyofanoffence.Penaltiesapplyandarereferredtoinmoredetailbelow.

Prosecutionforabreachundersection126oftheActtakeplaceintheMagistrates’Court.Prosecutionforabreachofanenforcementorderorinterimenforcementorderundersection133oftheVCATAct,takesplaceintheSupremeCourt.Itisaformofcriminalproceedingandoffencesmustbeprovedonthesamestandardasanyothercriminalproceeding–thatis,beyondareasonabledoubt.

7.4.2 Whenisitappropriatetoprosecuteforanoffence?

Ifapersonhasnotcompliedwithaninfringementnotice,somefurtheractionmustbetaken.Itisnotanoffencetoignoreaninfringementnotice.However,apersonwhoignoresanoticedoesnotexpiatetheoffenceandsoremainsopentoprosecutionorotheractionrelatingtotheinfringementnotice.

Alternatively,theresponsibleauthoritymayconsiderthebreachtobesosignificant,orthatbecauseoftheriskoffuturebreaches,aninfringementnoticewouldbeinappropriateandprosecutionwouldbethemostappropriateactiontotakeinthefirstinstance.

Iftheresponsibleauthorityisconcernedaboutcontinuingunlawfuluseofland,prosecutionfortheoffencemaybethemostappropriateremedy.Apenaltyofupto1200penaltyunitsisprovided.Iftheoffencedoesnotstopwhenapersonisconvicted,afurtherpenaltyofupto60penaltyunitsperday,foraslongastheoffencecontinues,maybeapplied.Thecontinuingpenaltywillmostoftenmaketheoffenderceasetheoffendinguse.(SeeSection7.1.6ofthischapterforinformationaboutpenaltyunits).

Thisdoesnothelpverymuchiftheoffencewastocarryoutdevelopmentwhichhasbeencompleted,andtheresponsibleauthoritywishestoseethedevelopmentremovedormodifiedtocomply(oratleast,nearlycomply)withthescheme.Theoffencewastocarryitoutandprosecutiondoesnotprovideabasistosecureitsremovalorrequirerestorationworks.

VCATA s.122

PEA s. 123

PEA ss. 126, 127

PEA s. 127

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Insuchcases,itmaybemoreappropriatetoseekanenforcementordertodirectthatthedevelopmentberemovedormodified.Ifthisisnotcompliedwith,therewouldbeanongoingoffenceoffailingtocomplywiththeorder.However,rememberingthatbothprocessesmayhappensimultaneously,prosecutionmaystillbeappropriateiftheresponsibleauthorityconsidersthatthenatureoftheoffencemakesitappropriatethatthepersonbefinedand/orconvicted.

Eveniftheoffencerelatestoanallegedunauthoriseduse,itmaystillbepreferabletoseekanenforcementordertodirectthattheusecease,especiallyifthereisroomforsomedisputeastowhethertheuseinfactbreachestheplanningscheme.ThestandardofproofnecessaryatVCATisacivilstandard(balanceofprobabilities)whichislessthanthecriminalstandard(beyondareasonabledoubt)whichappliesintheMagistrates’Court.Additionally,VCATmaybebetterplacedthantheMagistrates’Courttoconsidertechnicalinterpretationmatters.Thereistheaddedconsiderationthat,ifVCATmakesanenforcementorder,anyfailuretocomplywiththatordercanbeseparatelyprosecutedintheMagistrates’Courtwithouttheneedtoseparatelyprovetheoriginalbreachoftheschemetocriminalstandards.

Section126isnottheonlyoffencesectionintheAct.Otheroffencesinclude:

• section137,whichcreatesanoffenceofobstructinganauthorisedpersonormemberofthepoliceforcetakingactionundersections133-136(powersofentry).Thepenaltyprovidedforinsection137is60penaltyunits.

• section169,whichcreatesanoffenceofbehavinginaninsultingorobstructivemanneratapanelhearing.Thepenaltyprovidedforinsection169is60penaltyunits.

(SeeSection7.1.7ofthischapterforinformationaboutpenaltyunits.)

7.4.3 Procedureinprosecution

ProsecutionnormallytakesplaceintheMagistrates’Courtwhichholdsjurisdictiontohearanddetermine(amongstotherthings)allsummaryoffences.Anoffenceunderthe Planning and Environment Act 1987 is a summaryoffence-anoffencethatcanbeheardbyamagistratesittingalone,ratherthanajudgeandjury.

TheActissilentonwhocanprosecuteforanoffence.Atleast,forthepurposesofsection126,itwouldbetheresponsibleauthorityanditsauthorisedofficer.Aswellasthepersonbreachingtheplanningcontrolbeingguiltyofasection126offence,theownerandtheoccupierofthelandarealsoguiltyofthatoffence.

Ifabodycorporate(alsoknownasacorporation)commitsanoffenceagainstaspecifiedprovisionoftheAct,anofficerofthebodycorporatealsocommitsanoffenceagainsttheprovisioniftheofficerfailedtoexerciseduediligencetopreventthecommissionoftheoffencebythebodycorporate.Thespecifiedprovisionsaresections48(2),93(3),126(1),126(2),126(3)and137.Section128(3)oftheActsetsoutthemattersacourtmayhaveregardtoindeterminingwhetheranofficerofabodycorporatefailedtoexerciseduediligence.Anofficerofabodycorporatemay:

• relyonadefencethatwouldbeavailabletothebodycorporateifitischargedwiththesameoffence,andindoingso,bearsthesameburdenofproofasthebodycorporate

• commitanoffencewhetherornotthebodycorporatehasbeenprosecutedfor,orfoundguiltyof,thatoffence.

PEA ss. 122(5)

MCA s. 25

PEA s. 128

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Ifanoffencehasbeenprosecutedbytheresponsibleauthority,anypenaltyispaidtotheresponsibleauthority.

Iftheprosecutionissuccessful,anorderforcostswillusuallybemadeagainstthedefendantinfavourofthepersonwhohasbroughtthecharge.However,ifthedefendantissuccessfulandtheprosecutionfails,thedefendantisnormallyentitledtoanorderforcosts.Thecosts,whichareusuallyorderedbyacourttobepaid,arecalledparty/partycostsanddonotprovideafullindemnityforthecostsincurredbyasuccessfulparty.

IncomparisontoseekinganenforcementorderatVCAT,prosecutingaplanningnon-complianceoffenceintheMagistrates’CourtismoredifficulttoprovebecauseithastobeprovenbeyondareasonabledoubtwhereasatVCATtheburdenofproofisthelowercivilstandard.Additionally,intheMagistrates’Courtthenormalrulesofevidenceapply,whereasVCATisnotboundbytherulesofevidence.

ItisbeyondthescopeofthisguidetogiveadviceonCourtprocedure.Ifprosecutioniscontemplated,legaladviceshouldbesought.Similarly,apersonwhoisbeingprosecutedundertheActneedstotakethematterseriouslyandobtainlegal(andpossiblyotherprofessional)assistance,becausethepenaltieswhichmaybeimposedaresignificant.

7.5 Injunctions

7.5.1 Typesofinjunctionproceedings

Aninjunctionisacourtorderthatrequiresapartytodoorrefrainfromdoingaspecificact.Apartythatfailstocomplywithaninjunctionfacespenaltiesandmayhavetopaydamagesoracceptsanctions.

Inplanning,therearetwowaysaninjunctioncanbeobtainedfromacourttorestrainnon-complyingactivities.TheActonlymentionsoneofthese.Section125allowsanapplicationtoacourtortheTribunalforaninjunctionrestraininganypersonfromcontraveninganenforcementorinterimenforcementorder.Theotheroptionisageneralcommonlawinjunction.

TheSupremeCourt,theCountyCourtandtheMagistrates’Court(subjecttosomelimitations)havepowertograntinjunctionsundersection125andofthegeneralcommonlawvariety.

TheTribunalalsohasthepowertograntaninjunctionappliedforundersection125.

Inadditiontoasection125injunction,aresponsibleauthorityhastheoptiontoseekageneralcommonlawinjunction.Thetwotypesofinjunctionarediscussedinmoredetailbelow.

PEA s. 129

VCATA s. 98(1)

SCA ss. 31, 33, 37; CCA s. 37; MCA s. 100

VCATA s. 123

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7.5.2 Section125injunctions

Asection125injunctionisusedtorestrainapersonfromcontraveninganenforcementorder or interim enforcement order.

TheActgivesaresponsibleauthorityoranyotherpersontherighttoapplyfortheinjunction.TheActavoidsthetechnicalargumentswhichgeneralcommonlawinjunctionsattractsuchaswhethertheinterventionorfiat(consent)oftheAttorney-Generalisnecessary.

Section125injunctionsmaybeappliedforwhetherornotproceedingshavebeeninstitutedforanoffenceagainsttheAct.However,theremustbeacontraventionofanexistingenforcementorderorinterimenforcementorder.

7.5.3 Generalcommonlawinjunctions

Thegeneralcommonlawinjunctionisan‘interlocutoryinjunction’whichisintendedtooperateandpreservethepresentstateofaffairsorstopsomeonefromdoingsomethinguntilafinalorpermanentinjunctionismadeafterafullhearingofthecase.

Aprimafaciecase(incommonlaw,evidencethatwouldbesufficienttoproveaparticularpropositionorfact,unlessrebutted)mustbemadeoutforaninterlocutoryinjunctionandthecourtmayrequireanundertakingastodamagesfromthepersonseekingtheinjunction.

Legaladviceshouldgenerallybesoughtbeforecommencingsuchactionandinpreparingtherequiredcourtdocuments.

Ifaninjunctionisbreached,thepersonindefaultcanbechargedwithcontemptofcourt.

InviewoftheavailabilityoftheenforcementorderandinjunctionmechanismatVCAT,itisunlikelythatapersonwouldseekageneralcommonlawinjunctionforaplanningenforcementmatter.

Injunctionproceedingsunderthegeneralcommonlawtorestrainabreachofthelaw(inthiscase,abreachoftheplanningcontrols)must,inmostcases,betakeneitherbytheAttorney-Generalpersonally,orbyapersonauthorisedtoactfortheAttorney-GeneralwiththeAttorney-General’sknowledgeandconsent.AresponsibleauthorityisusuallyregardedashavingasufficientpublicinterestnottorequiretheAttorney-General’sfiat,(consenttoactonhisorherbehalf)butadecisionaboutthisneedstobemadeonacase-by-casebasis.

7.6 Cancellationandamendmentsofpermits

7.6.1 Canapermitbecancelledoramended?

Whennon-compliancewithaplanningschemeinvolvesapermit,VCATmay,ifrequestedtodoso,canceloramendthepermit.

VCATmayonlydothiswhentherehasbeen:

• materialmis-statementorconcealmentoffactsintheoriginalpermitapplication;or

• asubstantialfailuretocomplywiththeconditionsofthepermit,or

PEA s. 125

PEA s. 87

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• amaterialmistakeinthegrantingofthepermit,or

• amaterialchangeofcircumstancessincethepermitwasgranted,or

• afailuretogivenoticeasrequiredbytheAct.

Cancellationisprobablytheultimatesanctionagainstthepersonwishingtouseordevelopthelandunderaplanningpermit.

7.6.2 Whomayapplyforcancellationoramendment?

TheresponsibleauthorityorspecifiedpersonscanapplytoVCATforanordercancellingoramendingapermit.

Anapplicationneedstobemadeassoonaspossible.VCATmayrefusetohearanapplicationunlessthepersonmakingithasdonesoassoonastheybecameawareofthefactssupportingtheapplication.

Further,VCATisunabletocanceloramendapermit(atleastinrelationtodevelopment)ifthedevelopmenthasalreadybeensubstantiallycarriedout,or,inrelationtoasubdivision,iftheplanofsubdivisionhasbeenregistered.

Thereisnoprescribedformofapplication,butVCAThasrecommendedoneinit’sPractice Note PNPE3 - Cancellation and Amendment of Permits and Stop Orders. Thepracticenotegivesguidanceastotheproceduretobefollowedinrelationtoapplicationsforthecancellationandamendmentofplanningpermits.TheformisavailableonVCAT’sformsandguideswebpageatwww.vcat.vic.gov.au.

Thereisprovisionforaninterimstopordertobemadependingthefinalhearingoftheapplication.Thisislikeaninterimenforcementorderandusuallyattractsanundertakingastodamages.SeeSection7.6.4ofthischapterformoredetails.

7.6.3 Hearing and order

Apersonseekingtoopposeanapplicationforcancellationoramendmentmustfilea‘statementofgrounds’withVCAT.VCAT’sForm B - Statement of Groundsshouldbeusedwhenfilingastatement.

TheActspecifieswhatVCATmusttakeintoaccountincomingtoitsdecision.Thesearesetoutinsection84B(2).

Theapproachtocostsinthesetypesofproceedingsismuchthesameasthatinenforcementorderproceedings.SeeSection7.3.5ofthischapter.

Ifanorderismadecancellingoramendingapermit,theresponsibleauthoritymustservenoticeofthatwithin7daysofreceivingVCAT’sdecision.Thenoticemustbegivento:

• theresponsibleauthority

• theownerandtheoccupierofthelandconcerned

• anypersonwhoaskedforthecancellationoramendmentofthepermit

• anyrelevantreferralauthority

• anyotherpersonwhoVCATconsidersmayhaveamaterialinterestintheoutcome.

PEA ss. 87(3), 89(1)

PEA ss. 88, 89(3), 91(5)

PEA s.93

VCATA Sch 1 Cl 56

PEA s. 90A

PEA s. 92; PE Regs r. 38, 39

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7.6.4 Compensationobligations

Whereastoporderismade,pendingahearingofarequesttocanceloramendapermitandVCATultimatelydecidesnottocanceloramendthepermit,anapplicantisliabletocompensatethepermitholderforanylossordamagesufferedasaresultofthe stop order.

Irrespectiveofwhetherastoporderismade,ifapermitiscancelledoramendedbyVCAT,aresponsibleauthorityisliableforextensivecompensationtothe(former)permitholder,unlessthereasonforcancellationoramendmentwasdueto:

• substantialnon-compliancewithapermitcondition,or

• materialmis-statementorconcealmentoffactsintheoriginalpermitapplication,or

• amaterialmistakeinthegrantingofthepermitthatarosebecauseofthepermitapplicant’sconduct.

7.7 Evidence

Oneoftheproblemswithenforcementproceedingsistoobtainevidencewhichisappropriate,relevant,sufficientandaccurateenoughtoshownon-compliancehasoccurredor,insomecases,isgoingtooccur.

Theevidencenecessaryforthesepurposesandtogainasuccessfuloutcomeisoftenquitecomplicated.

Basically,theevidenceneedstoprovetheexistenceoftheplanningcontrol,anyactivitycontrarytotheplanningcontrolandtheliabilityfacingthepersonwhoisthesubjectoftheproposedorexistingproceedings.

Apartfromtheevidencenecessarytoproveformalmatterssuchastheplanningcontrols,evidenceofothermattersisneeded.Thatevidencecanconsistofdirectobservations,photos,notes,admissionsandinformationgainedduringaninspection.Mereassertionsarenotenough.

VCATrequiresamorestringentstandardofevidenceinenforcementproceedingsandinpermitcancellationandamendmentproceedingsthaninothertypesofreviews.Evidenceisnormallygivenonoathoraffirmationratherthanbyassertionorwrittensubmissions.Theapplicant’scaseneedstobeprovenonthebalanceofprobabilities-butthedegreeofproofrequiredmustreflectthegravityofthefactstobeproved.

ThestandardofevidencerequiredatVCATisacivilstandard-‘onthebalanceofprobabilities’whichislessthanthecriminalstandard-‘beyondareasonabledoubt’whichappliesintheMagistrates’Court(relevantinplanningprosecutions).

7.7.1 Proofofformalmatters

Aspartofprovingtheingredientsoftheoffenceornon-compliance,itisfrequentlynecessarytoprovidedetailsofaplanningscheme,permit,section173agreement,ownershipandoccupationoftheland,thatthelandisinthemunicipaldistrictoftheresponsibleauthorityandothersimilarmatters.

PEA s. 93, 94(1), (4)

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Short-cutstotheproofofsuchmattersareprovidedbythelegislation,eitherdispensingwithproofofthemaltogetherorprovidingforcertificatestoconstituteconclusiveorprimafacieevidenceofthosematters.

Ifthepersonproceededagainstisnotahumanbeing(forexample,acorporation,whichisstillalegal‘person’),itisnecessarytoprovethatthepersonlegallyexists.Inthecaseofthecorporation,acompanysearchoftherelevantcorporationobtainedfromtheAustralianSecuritiesandInvestmentsCommission(orASIC)isgenerallysuchproof.

Sometimestherewillbeaquestionofwhetherexistinguserightsprotectaparticularactivity.Theproofofsuchrightsistheresponsibilityofthepersonseekingtotakeadvantageofthem.

Wherelegislationcontainsexceptions,provisos,exemptionsorqualifications,theburdenofprovingthattheyapplyinanyprosecutionistheresponsibilityoftheaccused.

7.7.2 Evidenceofothermatters

Becauseofthepassageoftimebetweenaneventoccurringandthegivingofevidenceinrelationtoit,proposedwitnesses(includingcomplainants)shouldmakerunningnotesofwhattheyobservedandexperienced.Thewitnessescanthenusethesenotestorefreshtheirmemorieswhengivingevidence.

Agreatdealofvaluableevidenceisusuallyobtainedintheformofadmissionsmadebythecontravenerwheninterviewedbyanofficeroftheresponsibleauthority.Thoseadmissionscanbeusedasevidenceagainstthecontravener.

Wherethepersonproceededagainstisabodycorporate,suchasacompany,careneedstobetakenthatthepersoninterviewedisapersonlegallycapableofspeakingandmakingadmissionsonbehalfofthecorporatebody.

Interviewsareusuallymorefruitfulwheretheofficerhasformalproofandotherrelevantdocumentstoshowtotheallegedcontravenerduringtheaskingofquestions.

Frequently,itisnecessaryforentrytobemadetoandaninspectionmadeofpremisestoascertainifnon-complianceexists.Valuableevidencecanalsobegatheredduringsuchavisit.Inthecaseofbrothels,theSex Work Act 1994givesspecialrightsofentry,discussedimmediatelybelow.

7.8 Brothels

A‘brothel’meansanypremisesmadeavailableforthepurposeofsexworkbyapersoncarryingonthebusinessofprovidingsexworkservicesatthebusiness’spremises.

The Sex Work Act 1994createsnumerousoffencesinrelationtotheoperationofbrothels.Onlysomeofthesestrictlyrelatetoplanninglaws.

Inadditiontothenormalenforcementmechanismsgenerallyavailable,theSex Work Act 1994hassomespecialmechanismsforbrothels.TheseincludethepowerforaMagistrates’Courttodeclarepremisestobeaproscribedbrothel,thus‘quarantiningthepremises’fromoccupationoruse.Breachofthedeclarationisanoffence.

PEA ss. 139 – 146; LGA s. 242

CPA s. 72

PEA ss. 135

SWA s. 3

SWA ss. 21A, 75

SWA ss. 80 – 85

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Thedeclarationapplicationismadebyamemberofthepoliceforceoranauthorisedofficeroftheresponsibleauthority,dependingonwhatgroundisreliedontosupporttheapplication.AuthorisationofacouncilofficerisnotprovidedundertheSex Work Act 1994.Insuchcircumstancescouncilwouldrelyupontheoverarchingauthorisationsetoutinsection232oftheLocal Government Act 1989.

OtherprovisionsoftheSex Work Act 1994 facilitateenforcementbyprovidingproceduralaidsnotfoundin,ormoreflexiblethanthosecontainedin,thePlanning and Environment Act 1987.

7.9 Usingotherlegislationforenforcement

AlanduserelatedoffencemaynotnecessarilybewithinthejurisdictionoftheAct.Alternativecoursesofactionunderotherlegislationmaysometimesbemoreappropriate.Otherlegislationthatmayberelevantincludes:

• the Heritage Act 1995(suchasfordemolitionofahistoricbuilding)–contactHeritageVictoria

• the Health Act 1958(suchasforunsanitarypremisesandnuisances)–contacttherelevantstatehealthdepartmentorthecouncil’shealthdepartment

• locallawsundertheLocal Government Act 1989(suchasforparkinginfringements)–contactthecouncil.Inmostcasesthesamecouncilwillalsobetheresponsibleauthorityfortheplanningscheme

• the Environment Protection Act 1970(suchasforexcessivenoiseanddisposalofwastes)–contacttheEnvironmentProtectionAuthorityorthecouncil,dependingonwhichbodyhasresponsibilityfortheparticularpartofthatAct

• the Sex Work Act 1994(forillegalbrothels)–contactthecouncilortheVictoriaPoliceForce.

Individualsmayalsobeabletobringcivilproceedingsinnuisancecasesifstatutoryremediesarenotavailable,orasanalternativetothem.Legaladviceshouldbesoughtinsuchcases.

7.10 Otherinformationsources

FurtherreadingandassistancecanbefoundontheVCATwebsite.ThePlanningandEnvironmentListpracticenotesareespeciallyhelpful(Refer:www.vcat.vic.gov.au).Inparticular:

• VCATPractice Note PNPE3 - Cancellation and Amendment of Permits and Stop Orders.

• VCATPractice Note PNPE4 - Enforcement Orders and Interim Enforcement Orders.

AnotherusefulsourceofotherinformationisLexisNexis’guidetoplanningandenvironmentlawinVictoria.

SWA s. 80(1)

SWA ss. 80(3A), 83, 85, 89

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ENFORCEMENT

7.11 Enforcement checklist

Delegationandauthorisation � Hasanofficerofaresponsibleauthoritybeenauthorisedordelegatedtoperformthenecessaryenforcementpowersandduties,suchassiteinspections?

Natureofoffence � Havethenatureandeffect(s)oftheallegedcontraventionbeenclarifiedforexample,activity,personresponsible,identityoftheland?

Appropriatemethodofenforcement � Whatmethodofenforcementisappropriateinthefirstinstanceforaparticularoffence:

• negotiation

• officialwarning

• planninginfringementnotice

• enforcement order

• interim enforcement order

• injunction

• prosecution

• cancellationoramendmentofapermit?

Othersmaybeneededsubsequently.

Enteringaproperty � Hastheconsentoftheoccupieroflandbeenobtainedtoenteraproperty?Alternatively,ifthepropertyisnotabrothel,hastwocleardaysnoticebeengiventotheoccupierorawarrantobtainedbeforeenteringaproperty?

Evidence � CansufficientdocumentaryandotherevidencebeobtainedtoupholdacontraventionoftheAct,planningscheme,planningpermitoragreement?

Compliance � Hasallevidenceandactionbeenreviewedtodeterminewhethercompliancehasbeenachievedorfurtherenforcementactionisrequired?

Paymentofpenalty � Hastheappropriatepenaltypaymentbeenreceived?