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CHILD CARE AMENDMENT BILL 2000

                                    1
                          Child Care Amendment


  CHILD CARE AMENDMENT BILL 2000


                  EXPLANATORY NOTES


GENERAL OUTLINE

Objective of the Bill
  The objective of the Bill is to amend the Child Care Act 1991 to establish
minimum safeguards for children being cared for in independent
home-based care, commonly known as `back yard' care, in order to
promote and protect the safety of children while supporting the right of
parents to choose from a broad range of child care services.
   The achieve this, the Bill sets standards in relation to persons who care
for children in the carer's home for fee or reward, in circumstances where
the carer is not a relative of the child and is not operating as part of a
licensed child care scheme. The standards will be monitored by complaint.
  The standards are:
    ·    a limit on the number of children a carer can provide care for. A
         carer may provide care for a maximum of six children under the
         age of 12 years, of whom up to 4 (including the carer's own
         children) may be under 6 years. This number is lower than the
         number of children able to be cared for in licensed Family Day
         Care schemes, which allow up to 7 children, 4 of whom (again
         including the carer's own children) can be under six years of age;
         and
     ·    a requirement for persons providing this type of care to be 18
          years or over.
  In addition, a person will be disqualified from providing independent
home-based care if the person:
    ·    has a conviction for a disqualifying offence or has been issued
         with a prohibition notice; or
     ·    resides with a disqualified person.

 


 

2 Child Care Amendment The Bill specifies those sexual and violent offences and certain offences under the repealed Children's Services Act 1965 that are disqualifying offences. Families, Youth and Community Care Queensland will be provided with the authority to obtain information about convictions and charges for disqualifying offences. The limit on numbers of children able to be cared for in independent home-based care takes account of the existing limits on: · Family Day Care under the existing child care legislation; · National Standards for Family Day Care (maximum of 7 children, only 4 of whom can be below compulsory school-age); · Limits on Family Day Care in other States and Territories (which is most consistently set at a maximum of 7 children under the age of 12). The limit of 4 children below compulsory school age maintains consistency with other home-based care standards (ie. Family Day Care), yet enables a reasonable number of children to be cared for in independent home-based care. Family Day Care carers are currently limited to caring for a maximum of 2 children who are less than one year of age. This restriction has resulted in disruption to families of multiple births, and it is intended that this issue be rectified in the new Act. It is therefore not proposed to include this restriction in the amendment. Another advantage of setting the maximum amount of children able to be cared for to no more than 6 children under 12 years of age is that it is comparable with limits set in other States in Australia. Reasons for the Bill The Bill will amend the Child Care Act 1991 to establish minimum standards for the care of children in an independent care provider's home for fee or reward. This will effect the inclusion of the previously unregulated independent home-based care sector into the legislative framework for child care in Queensland. Under section 3 of the Child Care Act 1991, "child care" means the provision of care of a child of a prescribed type, on a regular basis, and does not include care in the child's home or education as defined in the Education (General Provisions) Act 1989.

 


 

3 Child Care Amendment The prescribed types of child care are kindergartens, limited hours care centres, long day care centres and occasional care centres and Family Day Care schemes. All of these types of care must be licensed. The types of care that are not licensed or regulated by the present child care legislation include preschool, adjunct care, school age care and informal care. Informal care can occur in a number of situations, including: · care provided in the child's own home (for example, a nanny or a babysitter); · care provided to the child by a relative of the child; or · independent home-based care (as defined in new section 73A). Increased child care fees have resulted in many families leaving `formal' (prescribed) child care services; reducing their use of child care; or leaving the workforce. Information provided by the Health Insurance Commission indicates a growth in the number of Queenslanders registering under the Child Care Cash Rebate Scheme as independent home-based carers. As independent home-based care providers are not required to comply with any standards or regulation to be eligible for this registration, the safety of children in this type of care is of concern to Government. Sections of the child care industry have raised a number of concerns that children are being cared for in situations that are potentially unsafe either due to the number of children in this type of care. The Bill establishes minimum standards aimed at promoting and protecting the rights of children and preventing dangerous care situations from occurring. Alternatives to this Bill The objective of the Bill could also be achieved by registering or licensing independent home-base care. All States and Territories in Australia, except Queensland, regulate this type of care. Some jurisdictions set standards for this type of care while others license it. Monitoring and enforcement procedures across the country are mostly reactive and reliant upon receiving a complaint. Generally, it is an offence to advertise and/or conduct an `illegal' (ie. unlicensed) child care service. A range of penalties may apply, including warnings, fines and ultimately, prohibition.

 


 

4 Child Care Amendment Three different models were considered in relation to the regulation of independent home-based care--the "Licensing Model", the "Registration Model" and the "Limited Numbers Model". The "Licensing Model" would license all persons providing care to children. Under this model, even if the person was caring for one child (who was not their own child), then they would be deemed to be a child care service and would be required to be licensed. The carer would have to comply with all requirements for child care services under the legislation. Licensing usually involves setting quality standards, an initial inspection and ongoing monitoring, and is a highly resource intensive process. Under the "Registration Model", a carer could provide care in their own home to a prescribed number of children, and would need to apply to the Chief Executive for registration as a carer. This approval could be subject to conditions imposed by the Chief Executive. This process would require complex administrative systems to ensure compliance. Under the "Limited Numbers Model", the carer could provide care in their own home without being licensed or registered for up to a prescribed number of children. It is proposed that carers would be required to take out appropriate public liability insurance, and would be prohibited from caring for children if they had a specified criminal history. Compliance would be based on self-disclosure by the carer, and monitoring would be reactive and dependent upon complaints made to the Department. The "Licensing" and "Registration" models have significant resource implications for the Government. They represent a high level of interference by Government in activities carried out in people's homes. In contrast, the "Limited Numbers Model" is a less resource intensive option. This approach would implement a higher level of regulation than presently exists under the Child Care Act 1991. It represents minimal interference by Government in people's home and in families' decisions in relation to child care arrangements. As well as this, it would be comparable with regulatory systems already in place in Victoria, South Australia, the Australian Capital Territory and the Northern Territory. It is for these reasons that the Bill is to implement the "Limited Numbers" model as an interim measure while a longer term review of the regulatory framework is being undertaken.

 


 

5 Child Care Amendment Administrative cost to Government The implementation of this Bill will be achieved within resources. A communication strategy including print advertisements and information sheets for parents and carers is planned and costs will be met from existing resources. Consistency with Fundamental Legislative Principles While the Bill is generally consistent with the fundamental legislative principles of the Legislative Standards Act 1992, the following clauses raise fundamental legislative principle issues. Under section 4(2)(a) of the Legislative Standards Act 1992, legislation must have sufficient regard to the rights and liberties of individuals. A primary aspect of the Bill is the ability of the Chief Executive Officer to prohibit persons from providing this form of care. Such a prohibition is to be based on the consideration of relevant criminal history of either the carer or a person residing in the carer's home. The relevant provisions are new sections 73G (Criminal history checks) and 73H (Disqualification of person charged with disqualifying offences) and the amendment to section 75 of the Act effected by clause 7 of the Bill. Disqualifying offences are defined in section 73A and are: · offences against the Criminal Code, part 4 or 5; · offences against section 69(1) or (1A) of the repealed Children's Services Act 1965; or · offences against a law outside Queensland that, if committed in Queensland would fall within the first two categories. The effect of section 73G is that an authorised person may ask someone (a carer or an adult ordinarily residing with a carer--called the respondent for the purposes of this section) to consent to a criminal history check to be performed on that person. This request will occur in the context that an authorised person knows or reasonably suspects that independent home-based care is provided at this home. The authorised person is required to warn the respondent that if they do not consent to the criminal history check, then the authorised person must give the respondent a prohibition notice (subsections 3 and 4 of s73G). The section also provides that if circumstances change (eg if consent to a check is later given by the

 


 

6 Child Care Amendment respondent) the chief executive must cancel the prohibition notice. The effect of new section 73H is to provide a framework for the chief executive's decision whether to disqualify a person from providing independent home-based care if they do not have convictions for a disqualifying offence. This section is triggered where the person does not have a conviction for a disqualifying offence but has, at any time, been charged with a disqualifying offence. The section (in subsection 3) provides that in making a decision to prohibit a person, the chief executive must have regard to: · the number of charges in the person's criminal history; · for each charge: - the seriousness of the offence and its relevance to the provision of independent home-based care, - when the offences were alleged to have been committed, - the result of the charge--whether the person was convicted, found guilty, acquitted, whether the prosecution process ended in another way or has not ended. Additionally, subsection 4 establishes that, before a prohibition notice is given, the chief executive must give the person a written notice. This notice must state the information obtained relating to each disqualifying offence and invite the person to respond (within a stated time--at least 7 days) to the chief executive about the information or the person's suitability to provide independent home-based care. The chief executive must also consider any response received from the person within the stated time. Clause 7 of the Bill amends section 75 of the Act (Disclosure of criminal history). The primary amendment to section 75 concerns the type of information that may be obtained for persons who consent to a criminal history check. New subsection 2A provides that, for a person who has consented to a criminal history check, the criminal history includes: · each charge made against the person for a disqualifying offence; · the result of the charge--whether the person was convicted, found guilty, acquitted, whether the prosecution process ended in another way or has not ended; and · the date and a brief description of the circumstances of each charge or conviction for a disqualifying offence.

 


 

7 Child Care Amendment It may be suggested that the provision of an extensive criminal history will impact on the rights and liberties of an individual, as the history may include information that has not been tested by a Court and may not be true. A concern may also be raised about the proposal to prohibit a person from providing independent home based care if the person, or an adult residing with the person, refuses to give consent to the supply of relevant criminal history information. It is considered that these provisions are appropriate and strike a balance between the carer's rights and the paramount consideration of the Department's need to protect children. Given the maintained community interest in issues of protection of children, it is considered appropriate to ensure this criminal history information is available to the department when monitoring independent home-based care. The Child Care Act 1991 contains provisions to safeguard the interests of affected individuals. For example, if the Chief Executive makes a decision prohibiting a person from providing care of children, then the person concerned may appeal to a children's services appeal tribunal established under the Children's Commission and Children's Services Appeals Tribunals Act 1996. This is effected by the amendment to section 41 of the Act (Application for review of chief executive's decisions) to create a new ground of appeal for this category of care. The new ground of appeal is against a decision to issue a prohibition notice under section 73H (Disqualification of person charged with disqualifying offences). Consultation Families, Youth and Community Care Queensland has conducted targeted consultation on an exposure draft of the Bill with Peak organisations across the child care sector including: · the Child Care Forum; · Family Day Care; · Queensland Professional Child Care Centres Association, Child Care Industry Association of Queensland; · The Local Government Association of Queensland; · Child Care National Association; · Diversity in Child Care, Queensland; and

 


 

8 Child Care Amendment · Child Care Queensland. In particular, the Child Care Forum, established in February 1999, has played an important part in informing the development and implementation of the Queensland Child Care Strategic Plan 2000--2005. The Forum will play a key role in the development of the new regulatory framework which is a key component of this plan. The Forum has focused on independent home-based care during the development of the Bill. This targeted consultation has built on feedback obtained from earlier comprehensive consultation with service providers and peak organisations, which included consideration of the issue of independent home-based care. Government The following government agencies have been consulted: · Department of Justice and Attorney-General; · Department of Communication and Information, Local Government and Planning; · Queensland Police Service; · Department of Aboriginal and Torres Strait Islander Policy and Development; and · Queensland Treasury. NOTES ON PROVISIONS Clause 1 provides that the short title of the Bill is the Child Care Amendment Bill 2000. Clause 2 states that the Act amends the Child Care Act 1991 (the Act). Clause 3 provides for a new definition of independent home-based care to be referred to in section 3 of the Act. Section 3 will refer to section 73A, which contains the text of the definition. Clause 4 inserts an additional objective into section 4 of the Act to establish minimum safeguards for the provision of independent home-based care.

 


 

9 Child Care Amendment Clause 5 inserts an additional ground for applying for review of a decision by the chief executive officer. This new ground will enable a person prohibited from providing independent home-based care under (new) section 73H of the Act to apply for review of that decision under s41. Clause 6 inserts a new part 8A into the Act. This new part establishes the legislative standards persons must meet if providing this type of care and comprises 3 divisions: 1--Preliminary 2--Restrictions applying to independent home-based care 3--Monitoring and disqualifications and inserts new sections 73A to 82A. Section 73A inserts definitions for part 8A. Carer is defined as a person providing care in the course of an independent home-based care service (also defined in section 73A). A disqualified person is defined as a person who is prohibited from providing independent home based care to children, because the person has a conviction for a disqualifying offence or has in force a prohibition notice. A disqualifyingoffence is an offence under parts 4 and 5 of the Criminal Code and also an offence under section 69(1) and (1A) of the Children's Services Act 1965. A guardian of a child is defined as: · a person recognised in law as having all duties, powers, responsibilities and authority that by law, a parent would have in relation to their child; · a person who has custody or guardianship of the child under a court order; · a carer of the child under the Child Protection Act 1999; · a person entitled to care and custody of a child under the Adoption of Children Act 1964. Home is defined as meaning residential premises. Independent home-based care is defined as care in the course of an independent home-based care service, and excludes care by a relative or

 


 

10 Child Care Amendment guardian (also defined in section 73A) of the child and care in the child's own home--defined to mean residential premises. This definition is intended to capture residential premises, even if the carer does not live in the home on a full time basis (e.g. if the home is rented solely for the purpose of providing independent home-based care) This term is intended to reflect that the care is provided by a person in the person's home and is not part of a licensed or approved scheme, for example Family Day Care. Independent home-based care service is defined as an operation conducted regularly, providing care for one or more children in a home (definition of independent home-based care precludes the child's home), for reward. The definition provides the following exclusions: · Licensed child care operation under the Child Care Act 1991; · An operation principally conducted for another purpose, namely instruction in a particular activity eg music lessons, dance, and sport. This provision is designed to ensure that `care' before and after the instruction is not affected, where the primary focus is the instruction of the child; · Licensed care service under the Child Protection Act 1999 . Parent is defined inclusively to encompass: · a spouse or de facto spouse of a parent of the child; · for an Aboriginal child, a person who under Aboriginal tradition is regarded as a parent of the child; · for a Torres Strait Islander child, as person who under Island custom is regarded as a parent of the child. A prohibition notice is a notice given to a person under division 3 of (new) part 8A. The purpose of including a provision to disqualify persons from providing independent home based care is to protect the safety and well being of children cared for in independent home based care settings. This provision clearly defines the grounds on which a person is disqualified from providing independent home-based care, that is if the person has a conviction for a disqualifying offence or has a prohibition notice in force. An example of a disqualified person is a person who has a conviction

 


 

11 Child Care Amendment under Part 4 or 5 of the Criminal Code. Relative is defined by setting out four categories of persons who are included in the definition. 1. parents, grandparents, great grandparents, brothers, sisters, uncles, aunts, nieces, nephews and cousins are relatives for the purposes of the Bill; 2. persons, who under Aboriginal tradition are regarded as a relative mentioned in paragraph 1; 3. persons, who under Torres Strait Island custom, are regarded as a relative mentioned in paragraph 1; and 4. for a child with a parent who is not a natural parent, persons who would be relatives under paragraph 1 if that parent was a natural parent are also included in the definition. Division 2--Restrictions applying to independent home-based care Section 73B creates an offence for providing independent home-based care if you are a disqualified person. This offence is punishable by a maximum of 100 penalty units for a person with a conviction for a disqualifying offence or for whom a prohibition notice is given under section 73G or 73H and otherwise by a maximum of 50 penalty units (ie. where a prohibition notice has resulted from a breach of a section in division 3 apart from 73G or 73H). Section 73C provides that it is an offence to provide independent home-based care where another person who ordinarily resides in the home of the carer is a disqualified person, and the carer knows or ought reasonably to know that the resident is a disqualified person. This section also provides for a penalty structure as for section 73B. Section 73D provides that a person may not conduct an independent home-based care service if they are a child. This offence also applies to a situation where a person employs a carer who is a child. The maximum penalty for this offence is 50 penalty units. Sub-section 2 of section 73D provides a defence to an offence against (1) where the person sighted reasonable evidence that the relevant carer was an adult. The purpose of this defence is to limit the offence to:

 


 

12 Child Care Amendment · persons providing independent home-based care while they are still a child; and · persons knowingly employing children to care for other children. Section 73E sets limits on the number of children who may be cared for in an independent home-based care service. Subsection 1 clarifies that section 73E applies to persons providing independent home-based care. Subsection 2 provides that a person may not care (at one time) for more than 6 children under the age of 12 years or more than 4 children under the age of six years. This limitation is designed to ensure that a maximum of 6 children under the age of 12 years may be cared for by an independent home-based carer, of whom up to 4 may be under the age of six years. Subsection 2 also provides that caring for children outside this limit is punishable by a maximum of 100 penalty units. Subsection (3)(a) provides that when counting the number of children for subsection 2, the carer's own children who are at least 6 years are not included in the total children. However, subsection (3)(b) provides that in determining the number of children under the age of six years [for the purposes of subsection (2)] all children that person is caring for are included, even if the care provided to some of the children is not independent home-based care. This provision is designed to include the carer's own children in the total number of children under six years, so that there will never be more than 4 children in this age group being cared for at the one time. This provision is also designed to capture situations where some children are being provided with independent home-based care (in accordance with the definition in section 73A) while others are being provided with, for example, free care by the same carer. A number of examples are set out following section 73E designed to illustrate how the limitation on the number of children being cared for operate in various fact situations. Section 73F provides that persons must not provide independent home-based care unless the carer has public liability insurance for at least $5million in force for the care. The maximum penalty for this provision is 40 penalty units.

 


 

13 Child Care Amendment Division 3--Monitoring and disqualifications Section 73G provides that authorised persons may ask someone (the respondent) to give consent to a criminal history check if the authorised person knows or reasonably suspects that the respondent is providing independent home-based care or that the respondent ordinarily resides with a person providing independent home-based care. The purpose of this provision is to obtain consent for a criminal history check from persons providing independent home-based and adults ordinarily resident with the carer. Subsection 2 provides that the consent must be given by completing and signing the prescribed form. Subsection 3 provides that an authorised person must warn the respondent that if they do not give consent, the authorised person must give the respondent a prohibition notice. Subsection 4 provides that if the respondent refuses to give the consent, the authorised person must give the respondent a prohibition notice. Subsection 5 provides that the chief executive must cancel the prohibition notice if: · the respondent later gives consent to a criminal history check; · the chief executive learns when doing the criminal history check that the respondent has no disqualifying offences in their criminal history; and · the chief executive does not decide to disqualify the respondent under section 73H. Section 73H provides that the chief executive may obtain information about charges for disqualifying offences. The section applies if the chief executive conducts a criminal history check following consent by the respondent and the person does not have a conviction for a disqualifying offence but has been charged with a disqualifying offence. This provision links with the amendment to section 75 Disclosure of criminal history. Subsection 2 provides that the chief executive may give the person a prohibition notice if satisfied that it is an exceptional case in which it would not be in the best interests of children for the person to be allowed to

 


 

14 Child Care Amendment provide independent home-based care. The chief executive must have regard to a number of factors. These factors are set out in subsection 3 and relate to: · the number of charges; · the seriousness of the offences to which the charges relate (including relevance to independent home-based care); · when the offences were alleged to have been committed; and · whether the person was acquitted of the charges. Subsection 4 provides that the chief executive must give a written notice and consider any submission received from the person (within the stated time), before the chief executive decides to issue a prohibition notice based on information obtained under this section. This notice must include the information about the person's criminal history relating to each disqualifying offence and must invite the person to make a submission about the information or about the person's suitability to provide independent home-based care. Subsection 5 provides that the time given for the person to respond to the chief executive's notice must be reasonable and at least 7 days after the notice is given. Section 73I establishes powers and responsibilities of authorised persons in relation to checking that carers have obtained and maintained public liability insurance, as required by section 73F. Subsection 1 provides that if the authorised person knows (or reasonably suspects) that a person (the respondent) is providing independent home-based care, then the authorised person may ask the respondent to produce within a stated time (at least 2 business days) an insurance compliance document. Insurance compliance document is defined in subsection 5 to mean a document evidencing that there is a policy of public liability insurance as required by section 73F, in force for the care. Subsection 2 provides that when making the request the authorised person must warn the respondent that if the respondent does not comply with the request the authorised person may give the respondent a prohibition notice. Subsection 3 provides that if the respondent fails to comply with the request under subsection 1, the authorised person must give the respondent

 


 

15 Child Care Amendment a prohibition notice. Subsection 4 provides that the chief executive must cancel the prohibition notice under subsection 3, where the respondent later complies with the request. Subsection 5 (as outlined above) defines insurance compliance document, for the purposes of independent home-based care, to be a document evidencing there is a policy of public liability insurance as required by section 73F, in force for the care. Section 73J sets out procedures to be followed by authorised persons when a prohibition notice is given to a person. This section links with section 73B and 73C, which provide that, independent home-based care may not be provided by a disqualified person or in a home where a disqualified person is ordinarily resident. In this situation, section 73J applies where one of the adults resident in the home is a disqualified person, and the authorised person knows (or reasonably suspects) that independent home-based care is provided in the home. The section describes the disqualified person as the "first person" and all other adults resident in the home are described as the "second person". (This applies no matter which adult is providing the care, as section 73C prohibits care where a disqualified person is ordinarily resident). Subsection 2 provides that the authorised person may notify the second person that the first person is disqualified. This provision will operate so that all other adults in the residence are notified that a disqualified person resides on the premises. Subsection 3 establishes procedures for where there is a change in circumstances. This provision establishes that if the first person stops being a disqualified person (e.g. if the first person later provides consent to a criminal history check) then the authorised person must notify the second person (i.e. all other adults in the disqualified person's home) as soon as practicable. This requirement operates unless after reasonable inquiries, the authorised person can not locate the second person. Section 73K provides for checks on the age of carers. Subsection 1 provides that the section applies where an authorised person reasonably suspects that an independent home-based care service is being conducted in contravention of section 73D and someone (the respondent) is providing this care when they are not an adult.

 


 

16 Child Care Amendment Subsection 2 provides that the authorised person may require the respondent to state their age and if the age stated is reasonably suspected by the authorised person to be false, the authorised person may require the respondent to provide evidence of age within a stated time. Subsection 3 provides that when making a requirement under subsection 2, the authorised person must give a warning that if the respondent fails to comply with the requirement, the authorised person must give the respondent a prohibition notice. Subsection 4 provides that if the respondent fails to comply with the requirement the authorised person must give the respondent a prohibition notice. Subsection 5 provides that if the respondent later complies with the requirement (eg by providing evidence of the respondent's age), the chief executive must cancel the prohibition notice given because of the failure to comply and must notify the respondent of this cancellation. Section 75 of the Act is amended by clause 7 of the Bill. Section 75 provides for the information which must be disclosed by the Commissioner of the Police Service upon request by the chief executive. Subclause 1 provides that a criminal history check may be requested for a person who has consented to a criminal history check. Subclauses 3 adds to the current section 75 to provide for criminal history information to be provided by the commissioner of the police service for independent home-based carers. A new subsection (2A) is inserted into section 75, to provide that where a person has consented to a criminal history check (a category which only applies to independent home-based care), the criminal history of the person includes each charge for a disqualifying offence made against the person, whether the person was convicted, found guilty or the prosecution ended in another way (or is ongoing) and the date and a brief description of the circumstances of each conviction or charge for a disqualifying offence. This provision is designed to ensure that the chief executive is provided with all information in order to make a decision under section 73H. Subclause 4 provides that a new subsection 4 should be inserted into section 75 of the Act for this section, reference to a disqualifying offence has the same meaning as in section 73A.

 


 

17 Child Care Amendment Clause 8 of the Bill inserts a new section 82A to set standards in relation to false or misleading advertising of independent home-based care. Subsection 1 provides that the section applies if a person advertises that they provide (or are willing to provide) care for children or if a person holds themselves out as providing care for children and the care is not child care provided under a licence. Subsection 2 provides that in any advertisement or holding out the person must not make a false or misleading statement about the extent to which or the way in which the person is registered or approved by a government entity to provide the care. Government entity is defined in subsection 3. The maximum penalty for offences under this section is 40 penalty units. Subsection 3 provides a definition of government entity for the purposes of the section. Government entity is defined to mean the State or the Commonwealth or a department of government of the State or Commonwealth. The Schedule to the Bill contains minor amendments to the Act, to reflect current drafting practice. Amendment 1 removes a redundant definition. Amendment 2 changes a provision in accordance with current drafting practice. Amendments 3, 4 and 7 update penalties in accordance with current drafting practice. Amendments 5 and 6 correct outdated references. Amendment 8 changes a section heading in accordance with current drafting practice. © The State of Queensland 2000

 


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