Slevin (Migration)
[2023] AATA 4607
•14 December 2023
Slevin (Migration) [2023] AATA 4607 (14 December 2023)
DECISION RECORD
DIVISION:Migration & Refugee Division
APPLICANT: Mr Aidan Slevin
REPRESENTATIVE: Mr Adeel Khan
CASE NUMBER: 2300103
HOME AFFAIRS REFERENCE(S): BCC2021/107953
MEMBER:David Barker
DATE:14 December 2023
PLACE OF DECISION: Sydney
DECISION:The Tribunal remits the application for a Student (Temporary) (Class TU) visa for reconsideration, with the direction that the applicant meets the following criteria for a Subclass 500 (Student) visa:
·Public Interest Criterion 4020 for the purposes of cl 500.217 of Schedule 2 to the Regulations
Statement made on 14 December 2023 at 8:30am
CATCHWORDS
MIGRATION – Student (Temporary) (Class TU) visa – Subclass 500 (Student) – false or misleading information in previous visa application – employment history – more than 12 months ago – criminal history – Notification of incorrect answers form – do not have the purposely untrue, deceptive and dishonest character – decision under review remittedLEGISLATION
Migration Act 1958 (Cth), ss 65, 349
Migration Regulations 1994 (Cth), Schedule 2, cl 500.217; Schedule 4, PIC 4020CASES
Arora v MIBP [2016] FCAFC 35
Batra v MIAC [2013] FCA 274
Trivedi v MIBP [2014] FCAFC 42Any references appearing in square brackets indicate that information has been omitted from this decision pursuant to section 378 of the Migration Act 1958 and replaced with generic information.
STATEMENT OF DECISION AND REASONS
APPLICATION FOR REVIEW
This is an application for review of a decision made by a delegate of the Minister for Home Affairs on 15 December 2022 to refuse to grant the applicant a Student (Temporary) (Class TU) visa under s 65 of the Migration Act 1958 (Cth) (the Act).
The applicant applied for the visa on 12 January 2021. The delegate refused to grant the visa on the basis that the applicant did not satisfy the requirements of cl 500.217 of Schedule 2 to the Migration Regulations 1994 (Cth) (the Regulations) because the delegate determined that there was evidence before the Minister that the applicant had provided, or caused to be provided, a bogus document or false or misleading information in relation to this visa application and therefore the applicant did not meet Public Interest Criterion (PIC) 4020, subclause 4020(1). The delegate also determined there were no compelling circumstances affecting the interests of Australia, or compassionate or compelling circumstances that affect the interests of an Australian citizen, an Australian permanent resident or an eligible New Zealand citizen, which would justify the waiver the PIC 4020 (1) requirements.
The applicant appeared before the Tribunal on 16 November 2023 to give evidence and present arguments.
The applicant was represented in relation to the review.
For the following reasons, the Tribunal has concluded that the matter should be remitted for reconsideration.
BACKGROUND
The applicant is a national of Ireland and is 32 years of age. He was granted a Subclass 417 Working Holiday visa (Working Holiday visa) on 12 June 2019 and first arrived in Australia in January 2020. This Working Holiday visa allowed the applicant to stay in Australia for a 12-month period from the date of his first arrival in Australia.
The applicant applied for a further Working Holiday visa on 21 November 2020 and then withdrew that application on 30 December 2020.
The applicant subsequently applied for the Subclass 500 Student visa (Student visa) which is the focus of the current review on 12 January 2021. The visa application was refused on 16 November 2021 as the delegate considering the application at that time was not satisfied the applicant met cl 500.212 of the Regulations, which pertain to genuine temporary entrant requirements associated with Student visas.
The applicant sought a merits review of the visa refusal decision and on 8 December 2022 the Tribunal, differently constituted, remitted the application for the visa for reconsideration, with the direction that the applicant meets cl. 500.212(a) of Schedule 2 to the Regulations.
Upon reconsidering the Student visa application, the delegate, on 15 December 2022, refused the application as they were not satisfied that cl 500.217 was met, as they determined PIC 4020(1) was not met.
The decision record of the delegate, a copy of which was provided with the review application, indicates that in association with the Student visa application the applicant had, on 6 July 2021, provided their curriculum vitae (CV) to the Department which listed the following employment history:
·Good Food Shop 2007 to 2012
·Teleperformance Newry 2012 to 2014
·Professional Work Placement in Northern Ireland Housing Executive September 2015 to August 2016
·Grounded Bistro 2016 to 2017
·Church Lane Bistro 2018 to January 2019
·Tuath Housing Association January 2019 to December 2019
·Topknot Carpentry & Joinery July 2020 to December 2020
·Woodworx Joinery February 2021 to Present
The delegate indicated that Departmental records show in the Working Holiday visa application lodged on 21 November 2020, the applicant declared that they were employed at Lincara Pty Ltd from 16 March 2020 to 5 July 2020. Departmental investigation to verify the employment claim with Lincara Pty Ltd indicated that the employment claim was not genuine and raised concern the applicant may have given, or caused to be given, in relation to the Working Holiday visa application, information that is false or misleading in a material particular.
The Department sent the applicant’s migration agent a natural justice letter on 7 July 2021, giving the applicant a 28-day period to respond to that letter. The letter invited him to comment on unfavourable information which did not support his application. Namely, that his declaration that he was employed at Lincara Pty Ltd from 16 March 2020 to 5 July 2020 was information that is false or misleading in a material particular.
On 28 July 2021 the applicant lodged a Notification of incorrect answers form with the Department, notifying incorrect information as follows:
Give details of the incorrect information: Incorrect information in relation to character declaration, On my Student application it shows No for previous criminal convictions, I have provided all information of previous criminal convictions in my Year 1 working holiday Visa application. I went through an Agency called Studybird to help with lodging and completing my application for a Student visa, I had told the agent that helped me about my convictions at the time and thought this was all taken care of and the necessary information had been provided. I have received a s57 natural justice request to comment on my Genuine Temporary Entrant statement and have noticed when preparing to reply that the details were not correct on my application. I wish to declare that this is incorrect and that I do in fact have convictions from my country of birth (Ireland) all of which have been previously disclosed in working holiday visa year 1 application, as I have disclosed this information in my previous working holiday visa I would gain nothing from keeping this information undisclosed on my Student visa application. I have been up front and honest about my previous convictions prior to this and in no way have I intended to provide false or misleading information and hope that this will be taken into consideration heavily when a decision is being made on these change of details. I have asked the agent in question why this wasn't disclosed when he was given all the relevant information and he said it was a simple mistake on his behalf.
Give details of the correct information: I know under PIC 4020(1) legislation that
misinformation is a serious issue, for this reason I have come forward to you hat in hand
to address this and try to rectify the situation as soon as possible, I wish to make it clear
that I have in no way knowingly tried to affect the interests of the Australian government
or Australian people, i would have absolutely nothing to gain from not providing this
information. I honestly thought that all the relevant information had and was given. I
was naive in thinking that a service I paid substantially for would provide the information
correctly, I take blame in this also as I should have been less trusting and more
vigilant and checked the application over heavily before submission. Please take
into consideration that I have come forward and declared this issue myself and have
not tried to evade this issue and I am trying to be as upfront and honest as possible
here. Please also take into consideration that a 3 year ban if these detail changes are
deemed unacceptable will have huge impact and consequence on me being able to
complete my studies and further progress and gain a high quality education within
Australia. Thank you for your time and consideration if you wish to speak further on any
issues or details please feel free to contact me on email: [email address redacted] or
phone: [mobile number redacted]Reason why incorrect information was provided: Agency I used to apply for a Student
visa did not disclose information of previous convictions from Ireland, I had given all
relevant information to Studybird (agency I used) and these where no disclosed in
my application, I have disclosed all this information on my working holiday visa year 1
application I have only noticed this mistake now, i wish to declare this before I am seen
as guilty of providing false information knowingly which is not the case. See above for
more details regarding this issue, contact details provided above feel free to contact me
anytime for any information you may need, thank you for your time and consideration.Based on their consideration of the issues, the delegate found that the applicant had provided information that was false or misleading in a material particular. Accordingly, the delegate concluded that the applicant did not meet the criteria in PIC 4020(1).
The delegate noted no information had been submitted by the applicant indicating he was seeking a waiver of PIC 4020(1). Accordingly, the delegate was not satisfied that there were compelling circumstances affecting the interests of Australia, or compassionate or compelling circumstances affecting the interests of an Australian citizen, Australian permanent resident, or an eligible New Zealand citizen that justify the granting of the visa.
The delegate found that the applicant did not meet the criteria in PIC 4020 and therefore did not satisfy cl.500.217 for the grant of the visa.
Prior to the hearing, the applicant provided the Tribunal with further documents including:
·Evidence of his identity;
·Documentation relevant to current visa application and Department refusal decision;
·Documentation relevant to Working Holiday visa application lodged 21 November 2020 and subsequently withdrawn 30 December 2020;
·Copy of email, dated 25 September 2023, to applicant from the Investigations area at Australian Border Force (ABF).
·Support letters
The s 376 certificate
On 12 September 2023, the Tribunal contacted the Department and requested further detail pertaining the investigations conducted by the Department leading to their finding that information provided by the applicant regarding claimed employment with Lincara Pty Ltd was false and misleading. The Department provided the requested information and also, on 20 September 2023 issued a Certificate under s 376 of the Act, stating that the release of documents from the Department file specified in the certificate would be contrary to the public interests because it would disclose lawful methods for preventing, detecting and investigating breaches or evasions of the law which would or be likely to prejudice the effectiveness of those methods.
Submissions were invited from the applicant and representative at hearing regarding the validity of the s 376 certificate, with no concerns as to validity of the certificate being raised by either the applicant, or their representative.
The Tribunal considers the s 376 certificate to be valid and deemed it appropriate to provide the applicant with the gist of information in documents covered by the certificate, namely that they contained details as to how it was verified that the applicant had not worked on a farm owned by Lincara Pty Ltd. The Tribunal perceived no necessity to put this particular of information to the applicant under the provisions of s 359A of the Act, as this finding is not contested by the applicant and is both discussed in the delegate’s decision record and conceded by the applicant at hearing and in submissions filed in support of the review application.
CONSIDERATION OF CLAIMS AND EVIDENCE
The issue in this review is whether the visa applicant meets Public Interest Criterion 4020 (PIC 4020) as required by cl 500.217 for the grant of the visa. Broadly speaking, this requires that:
·there is no evidence that the applicant has given, or caused to be given, to the Minister, an officer, the Tribunal, a relevant assessing authority, or Medical officer of the Commonwealth, a bogus document or information that is false or misleading in a material particular in relation to the application for the visa or a visa that the applicant held in the 12 months before the application was made: PIC 4020(1); and
·the applicant and each member of the family unit has not been refused a visa because of a failure to satisfy PIC 4020(1) during the period starting 3 years before the application was made and ending when the visa is granted or refused, unless the applicant was under 18 at the time the application for the refused visa was made: PIC 4020(2) and (2AA); and
·the applicant satisfies the Minister as to his or her identity: PIC 4020(2A); and
·neither the applicant nor any family unit member has been refused a visa because of a failure to satisfy PIC 4020(2A) during the period starting 10 years before the application was made and ending when the visa is granted or refused, unless the applicant was under 18 at the time the application for the refused visa was made: PIC 4020(2B) and (2BA).
The requirements in PIC 4020(1) and (2) can be waived if there are certain compelling or compassionate reasons justifying the granting of the visa: PIC 4020(4). However, this waiver does not apply to the identity requirements in PIC 4020(2A) and (2B). PIC 4020 is extracted in the attachment to this decision.
Has the applicant given, or caused to be given a bogus document, or information that is false or misleading in material particular?
The term ‘information that is false or misleading in a material particular’ is defined in PIC 4020(5) and the term ‘bogus document’ is defined in s 5(1) of the Act (see the attachment to this decision). In contrast to the definition of ‘information that is false or misleading in a material particular’ in PIC 4020(5), the reference in the definition of bogus document to a document that was obtained because of a ‘false or misleading’ statement has no requirement that it be relevant to a criterion for the grant of the visa: Arora v MIBP [2016] FCAFC 35; Batra v MIAC [2013] FCA 274.
The requirement in PIC 4020(1) not to provide a bogus document, or false or misleading information, applies whether or not the Minister became aware of the bogus document or information that is false or misleading in a material particular because of information given by the applicant: PIC 4020(3). It also applies whether or not the document or information was provided by the applicant knowingly or unwittingly.
While PIC 4020 refers to information that is false, in the sense of purposely untrue, it is not necessary for the Minister (or the Tribunal on review) to conclude that the applicant was aware the information was purposely untrue in order for PIC 4020 to be engaged. However, an element of fraud or deception by some person is necessary to attract the operation of the provision: Trivedi v MIBP [2014] FCAFC 42.
The Tribunal has considered the oral evidence provided at hearing by the applicant and oral submissions from his representative, along with documents in the Department and Tribunal files.
The Tribunal is satisfied that the applicant gave evidence at hearing in a straightforward manner and did not seek to minimise, or mispresent the circumstances whereby there were incorrect responses provided on the application for the student visa, lodged in January 2021 or the withdrawn Working Holiday visa application. The Tribunal has formed the view that whilst he has a somewhat lackadaisical approach to migration requirements, information provided by the applicant in support of his claims can be regarded as reliable and given weight accordingly.
Information on visa applications pertaining to the applicant’s employment history
In this matter there is no suggestion the information regarding the applicant’s employment history which was provided in association with the application for a Student visa lodged on 12 January 2021 was incorrect, false or misleading. Notably, the employment history provided in association with the Student visa application makes no claim that the applicant has held employment at any time with Lincara Pty Ltd. The Tribunal accepts the employment history detailed in the Student visa lodged on 12 January 2021 is accurate.
The applicant concedes that information entered on to an application for a Working Holiday visa lodged with the Department on 21 November 2020 was incorrect and false. The incorrect and false information was that the applicant had been employed at Lincara Pty Ltd from 16 March 2020 to 5 July 2020, thereby meeting a requirement for grant of a Working Holiday visa. In his evidence at hearing the applicant gave clear evidence that was during the relevant period in 2020 working for a carpentry firm in Sydney.
However, the false and misleading information, regarding claimed employment in a non-metropolitan regional location with Lincara Pty Ltd, provided in association with that visa application does not enliven the provisions of PIC 4020 as that application for a Working holiday visa was withdrawn on 30 December 2020. It is a matter of common sense that there was no claim in the Working Holiday visa application lodged in June 2019 that the applicant was employed by Lincara Pty Ltd in the relevant 2020 period.
The visa held by the applicant during the 12-month period prior to when he applied for the Student visa was the initial Working Holiday visa on which he travelled to Australia. It follows therefore, that the false and misleading claim that the applicant was from 16 March 2020 to 5 July 2020 employed by Lincara Pty Ltd was not provided to the Department of Home Affairs in relation to the application for the Student visa or a visa that the applicant held in the 12 months before the application for the Student visa was made.
Information on visa applications regarding the applicant’s criminal history
In this matter the applicant, by way of the Notification of incorrect answers form he lodged with the Department on 28 July 2021, brought to the attention of the Department incorrect information which had been entered onto his January 2021 Student visa application form. He notified that the incorrect answers were in the Character declarations section to the question as to whether he had ever been charged with any offence in any country (including any conviction which is now removed from official records). On this form the applicant indicated the ‘No’ response to this question was incorrect and explained that he had however provided the correct response and information about previous convictions in his home country in the initial Working Holiday visa application lodged with the Department in June 2019.
At hearing the applicant gave evidence that he has relied on assistance from agents in all visa applications he has lodged in relation to his travel to or temporary stay in Australia. He explained that he gave the agent from “Studybird”, who assisted with the Student visa application, all of his information and assumed they would provide accurate and correct information on the Student visa application. The applicant contends that he at no time attempted to mislead the Department or misrepresent his past circumstances.
As to how he engaged the agent from Studybird to assist him with the Student visa application, the applicant gave evidence at hearing that he heard about the agency by word of mouth through a Facebook group ‘Irish around Sydney’ and that he did not think too much about the application beyond giving the agent the information about his identity, visa history, study interests and the fees charged for the application. The applicant gave evidence that he had approached the second Working Holiday visa the same way. He heard about the agent who he engaged to assist him by word of mouth and upon giving him requested details about his background and migration history and the fees for the application, left it to the agent.
The applicant conceded that it was difficult for him to now justify why he did not pay closer attention to the visa applications. He told the Tribunal that he regrets that he did not, but that as he had properly disclosed his criminal history to the Department in his initial Working Holiday visa application, he did not give that factor a second thought until receiving the natural justice letter which highlighted the PIC 4020 issue. When he received that letter he sought more effective representation, which uncovered the incorrect information about his previous convictions provided on the second Working Holiday and Student visa applications, which the applicant then brought to the attention of the Department.
The tender bundle filed with the Tribunal in association with the review application contains a copy of the withdrawn Working Holiday visa application. The Tribunal has reviewed this application and confirmed that incorrect information was provided on this application in a similar manner as was provided on the Student visa application.
In order to test the applicant’s claims at hearing, the Tribunal requested and has received from the Department a copy of the June 2019 Working Holiday visa application in order to ascertain if his claim to have in that application answered the question about past criminal convictions accurately. In this form, which was electronically generated at 7:59:34 AEST) on 10 April 2019, the Response ‘Yes’ is given to the question ‘Has the applicant ever been charged with any offence in any country (including any conviction which is now removed from official records)’. In the following section ‘If Yes, please provide details’ the following details are provided ‘Count 1 Possess Class A Ctld Drug Intent Supply contrary to Section 5(3) of the Misuse of Drugs Act 1971 Count 3 Possess Class B Ctld Drug Intent Supply contrary to Section 5(3) of the Misuse of Drugs Act 1971 Sentence served was 90 hours and 2 years’ probation’
Further to these responses on the Working Holiday visa application and in association with the initial Working Holiday visa application, the Department was also provided with a copy of correspondence from the Northern Ireland Police Service which documented the criminal record which was detailed by the applicant in that visa application. This correspondence also documents the applicant’s successful completion of all aspects of the sentence imposed on the applicant as a result of his convictions.
On the basis of the evidence before it, the Tribunal finds the applicant applied for a Subclass 500 student visa, on 12 January 2021, which contained an incorrect response in relation to a question as to whether he had ever been charged with any offence in any country (including any conviction which is now removed from official records). The incorrect response was providing “No” as his response to this question on the application form. The Tribunal also finds that incorrect declaration was made by the applicant on the visa application form, when he declared that he had read and understood the information provided in the visa application; and that he had provided complete and correct information in every detail on the visa application form and on any attachments to it.
In considering whether the incorrect response and declarations on the visa application form is information that is false, in the sense of purposely untrue, I am not persuaded this is the case in the circumstances of this matter. There are circumstances where a failure to adequately check and ensure details are correct on a visa application can constitute wilful indifference. However, the Tribunal does not consider that to be a fair or reasonable way to contextualise the applicant’s actions in this case. In forming this view the Tribunal has placed weight on the full disclosure of the applicant’s criminal history when applying for his initial Working Holiday visa and of his taking the initiative to bring to the attention of the Department the incorrect answers with respect to this factor on the January 2021 Student visa application.
The Tribunal is of the view that in the circumstances of this case, the incorrect response and declaration on the Student visa application do not have the purposely untrue, deceptive and dishonest character to be regarded as false and misleading. The Tribunal acknowledges that the information, going as it does to character and other considerations relevant to assessment of eligibility for a visa. However, in this case, the Tribunal is not satisfied the applicant set out to intentionally misrepresent his circumstances. The Tribunal finds that there is therefore no evidence that the applicant has given, or caused to be given, to the Minister or an officer, ‘information that is false or misleading in a material particular’ in relation to the application for a Subclass 500 student visa, dated 12 January 2021. The Tribunal is satisfied the incorrect response to the question of ‘has the applicant ever been charged ever been charged with any offence in any country (including any conviction which is now removed from official records.’ was not intended to deceive in any way. The Tribunal finds that the applicant therefore did not provide false or misleading information to the Department.
The Tribunal has considered whether the visa application form submitted by the applicant on 4 March 2019 could be regarded as a ‘bogus document’, as defined in s 5(1). In considering this issue the Tribunal is not persuaded the visa application is a document that: purports to have been, but was not, issued in respect of the person, or is counterfeit or has been altered by a person who does not have authority to do so, or was obtained because of a false or misleading statement, whether or not made knowingly. The Tribunal is satisfied that the visa application is not therefore a bogus document.
Therefore, the applicant meets PIC 4020(1).
Has a visa previously been refused on the basis of a failure to satisfy PIC 4020(1)?
PIC 4020(2) requires the Tribunal to be satisfied that the applicant and each member of the family unit have not been refused a visa because of a failure to satisfy PIC 4020(1) in the period commencing 3 years before the application was made and ending when the visa is granted or refused. This requirement does not apply to a person who was under 18 at the time the application for the refused visa was made: PIC 4020(2AA).
There is no evidence before the Tribunal to demonstrate that the applicant or any member of his family unit (as defined in reg 1.12) have been refused a visa in the relevant period because of a failure to satisfy PIC 4020(1).
Therefore, PIC 4020(2) is met.
Has the applicant satisfied the identity requirements?
PIC 4020(2A) requires an applicant satisfy the Tribunal as to his or her identity. There is no evidence before the Tribunal to suggest that there is an issue with the applicant’s identity. Therefore, the applicant meets PIC 4020(2A).
Has a visa previously been refused on the basis of a failure to satisfy PIC 4020(2A)?
PIC 4020(2B) requires that neither the applicant nor any family unit member have been refused a visa because of a failure to satisfy the identity requirements in PIC 4020(2A) during the period starting 10 years before the application was made and ending when the visa is granted or refused. This requirement does not apply to a person who was under 18 at the time the application for the refused visa was made: PIC 4020(2BA).
There is no evidence the applicant or any member of the family unit (as defined in r.1.12) have been refused a visa in the relevant period because of a failure to satisfy cl.4020(2A).
Therefore cl.4020(2B) is met.
On the basis of the above, the applicant does satisfy PIC 4020 for the purposes of cl.500.217.
DECISION
The Tribunal remits the application for a Student (Temporary) (Class TU) visa for reconsideration, with the direction that the applicant meets the following criteria for a Subclass 500 (Student) visa:
·Public Interest Criterion 4020 for the purposes of cl 500.217 of Schedule 2 to the Regulations
David Barker
MemberATTACHMENT
Migration Regulations 1994
Schedule 4
4020(1) There is no evidence before the Minister that the applicant has given, or caused to be given, to the Minister, an officer, the Tribunal during the review of a Part 5 reviewable decision, a relevant assessing authority or a Medical Officer of the Commonwealth, a bogus document or information that is false or misleading in a material particular in relation to:
(a)the application for the visa; or
(b)a visa that the applicant held in the period of 12 months before the application was made.
(2)The Minister is satisfied that during the period:
(a)starting 3 years before the application was made; and
(b)ending when the Minister makes a decision to grant or refuse to grant the visa;
the applicant and each member of the family unit of the applicant has not been refused a visa because of a failure to satisfy the criteria in subclause (1).
(2AA)However, subclause (2) does not apply to the applicant if, at the time the application for the refused visa was made, the applicant was under 18.
(2A)The applicant satisfies the Minister as to the applicant’s identity.
(2B)The Minister is satisfied that during the period:
(a)starting 10 years before the application was made; and
(b)ending when the Minister makes a decision to grant or refuse to grant the visa;
neither the applicant, nor any member of the family unit of the applicant, has been refused a visa because of a failure to satisfy the criteria in subclause (2A).
(2BA)However, subclause (2B) does not apply to the applicant if, at the time the application for the refused visa was made, the applicant was under 18.
(3)To avoid doubt, subclauses (1) and (2) apply whether or not the Minister became aware of the bogus document or information that is false or misleading in a material particular because of information given by the applicant.
(4)The Minister may waive the requirements of any or all of paragraphs (1)(a) or (b) and subclause (2) if satisfied that:
(a)compelling circumstances that affect the interests of Australia; or
(b)compassionate or compelling circumstances that affect the interests of an Australian citizen, an Australian permanent resident or an eligible New Zealand citizen;
justify the granting of the visa.
(5)In this clause:
information that is false or misleading in a material particular means information that is:
(a)false or misleading at the time it is given; and
(b)relevant to any of the criteria the Minister may consider when making a decision on an application, whether or not the decision is made because of that information.
…
Migration Act 1958
s 5 Interpretation
(1) In this Act, unless contrary intention appears:
…
bogus document, in relation to a person, means a document that the Minister reasonably suspects is a document that:
(a)purports to have been, but was not, issued in respect of the person; or
(b)is counterfeit or has been altered by a person who does not have authority to do so; or
(c)was obtained because of a false or misleading statement, whether or not made knowingly.
…
Key Legal Topics
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Immigration
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Administrative Law
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Judicial Review
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Procedural Fairness
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Natural Justice
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