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1.
Discussion and conclusions
2.
I start from a position on which I think that most people would be in agreement: that a complaint of disability discrimination by a student against an institution that exists to provide courses in Higher Education is a serious matter. It is serious both from the point of view of the student claiming to be a victim and from the point of view of the institution as the alleged perpetrator. The outcome of the complaint and the proper procedure for achieving it are significant and sensitive for both sides.
3.
Ms Maxwell's essential complaint under all three of Mr Jones's headings is that the OIA should have made a positive statement of a finding of disability discrimination in its Final Decision on her complaint against the University. It is common ground that, under the Higher Education Act 2004, complaints of disability discrimination are eligible complaints that may be made to the OIA and reviewed by it. However, the operation of the Student Complaints Scheme by the OIA in disability discrimination cases can only be properly understood when read against the legal background of Part 4 of the 1995 Act, which was in force at the relevant time and provided for the bringing of legal proceedings against Further and Higher Education Institutions for unlawful disability discrimination. (The discrimination legislation is now contained in the Equality Act 2010). Although Part 4 did not prevent the making of an application for judicial review, or the making of a complaint under the complaints scheme, the essence of the disability discrimination legislation is that proceedings for unlawful discrimination are for breach of statutory duty and are brought as civil proceedings in the county court subject to the provisions of the legislation.
4.
That legislation contained the customary provisions about enforcement, such as time limits and remedies, and also special procedural provisions, such as the requirement for the appointment of assessors, unless the judge considers that there is no good reason for exercising that power. In addition the Civil Procedure Rules apply to the conduct of the proceedings: the machinery of pleadings, disclosure of documents, the giving of oral evidence tested by cross examination, public hearings and reporting and reasoned public judgments subject to rights of appeal to the higher courts, and the making of costs orders.
5.
As explained above, the practice and procedures for the review and resolution of a wide range of student complaints under the independent scheme operated free of charge and largely as an inquisitorial on a confidential basis by the OIA under the 2004 Act, is quite different from civil proceedings. Its informal inquisitorial methods, which are normally conducted on paper without cross examination and possibly leading to the making of recommendations in its Final Decision, mean that the outcome is not the product of a rigorous adversarial judicial process dealing with the proof of contested facts, with the application of the legislation to proven facts, with establishing legal rights and obligations and with awarding legal remedies, such as damages and declarations. The issue for the OIA in this matter was not to decide whether Ms Maxwell was in fact the victim of disability discrimination or whether the University is liable to her for such discrimination. The OIA's task was to review Ms Maxwell's complaint, which included a complaint of discrimination, to see whether the University's decision was reasonable in all the circumstances and was justified and, if so, to what extent, and what recommendations should be made to the University.
6.
In my judgment, the courts are not entitled to impose on the informal complaints review procedure of the OIA a requirement that it should have to adjudicate on issues, such as whether or not there has been disability discrimination. Adjudication of that issue usually involves making decisions on contested questions of fact and law, which require the more stringent and structured procedures of civil litigation for their proper determination.
7.
Ms Maxwell had a number of options. She chose to use the OIA as the primary route for her complaint. She has secured a favourable response in the form of the recommendations in the OIA's Final Decision. If she is dissatisfied with that outcome, because there has been no positive adjudication on whether or not there has been disability discrimination against her by the University, her remedy is to resurrect the county court proceedings, which have been stayed by consent for the last 5 years. Her remedy is not in judicial review proceedings mounted on the basis that the OIA has erred in law in not making such an adjudication which it was not obliged to make. It is contrary to the whole spirit of a scheme established for the free and informal handling of students' complaints that the outcomes under it should replicate judicial determinations, which continue to be available in civil proceedings in the ordinary courts, for which the OIA is not and was never intended to be a substitute.
8.
The matter can be tested in this way. Suppose that, following the informal procedure of the scheme as it has, the OIA had in fact made a positive adjudication that there had been no disability discrimination by the University against Ms Maxwell. I doubt whether Ms Maxwell would have found that an acceptable result, if it had been reached by the OIA without hearing any evidence from her or without hearing and having an opportunity to challenge the evidence given on behalf of the University and having had disclosure of documents from them and without the benefit of an elaborately reasoned judgment from the OIA setting out their findings of facts and their conclusions of law.
9.
In a sentence what Ms Maxwell is seeking to do by these proceedings is for the courts to turn the OIA into something that it is not i.e. a court of law. As Mr Grodzinski pithily put it on behalf of the OIA, the heart of Ms Maxwell's case is that the OIA "should, in effect, act as a surrogate of the county court." The various ground of appeal are all variants of the same theme.
10.
If the approach advocated by Mr Jones were correct, it is difficult to see what point there would be in having a scheme, which was established under the 2004 Act not as another court of law or tribunal, but as a more user friendly and affordable alternative procedure for airing students' complaints and grievances. The judicialisation of the OIA so that it has to perform the same fact-finding functions and to make the same decisions on liability as the ordinary courts and tribunals would not be in the interests of students generally.
11.
Recent years have seen the growth of alternative processes of inexpensive dispute resolution: they are not intended to be fully judicial, or to be operated in accordance with civil law trial procedures, or to be dependent on what is fast becoming a luxury of legal advice and representation. The new processes have the advantage of being able to produce outcomes that are more flexible, constructive and acceptable to both sides than the all-or-nothing results of unaffordable contests in courts of law.
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people in power... it's inevitable, but it can be taken into account and planned for by the complaintant.Reply 49
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