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Victoria's hotel quarantine inquiry has been unable to identify a single individual responsible for the fatal decision to use private security guards in the program.
The state's second wave of coronavirus, which resulted in more than 18,000 new infections and 800 deaths, can be traced back to security guards working at the Rydges on Swanston and Stamford Plaza hotels in May and June.
In the inquiry's final report, tabled in parliament on Monday, retired judge Jennifer Coate concludes the decision to hire private security guards was "not made by an 'individual'".
Rather, she argues there were people "with influence" who contributed to an "understanding being reached that private security would be used".