FAMILY LAW AMENDMENT (DE FACTO FINANCIAL MATTERS AND OTHER MEASURES) BILL 2008 Explanatory Memorandum
FAMILY LAW AMENDMENT (DE FACTO FINANCIAL MATTERS AND OTHER MEASURES) BILL 2008
2008
THE PARLIAMENT OF THE COMMONWEALTH OF AUSTRALIA
HOUSE OF REPRESENTATIVES
FAMILY LAW AMENDMENT (DE FACTO FINANCIAL MATTERS AND
OTHER MEASURES) BILL 2008
EXPLANATORY MEMORANDUM
(Circulated by authority of the Attorney-General,
the Honourable Robert McClelland MP)
TABLE OF CONTENTS
Page
General Outline 1
Financial Impact Statement 3
Consultation Statement 3
Notes on Items 4
Schedule 1 - Amendments relating to de facto financial matters 6
Schedule 2 - Consequential amendments relating to de facto financial matters 48
Schedule 3 - Amendments relating to financial agreements about marriage 56
Schedule 4 - Other measures 68
FAMILY LAW AMENDMENT (DE FACTO FINANCIAL MATTERS AND
OTHER MEASURES) BILL
GENERAL OUTLINE
The Family Law Amendment (De Facto Financial Matters and Other Measures) Bill
(the Bill) amends the Family Law Act 1975 (the Act) to provide for opposite-sex and
same-sex de facto couples to access the federal family law courts on property and
maintenance matters. The Bill also amends the Act to provide for amendments
relating to financial agreements between married couples and superannuation
splitting, and for an amendment to the Act providing for certificates given in relation
to family dispute resolution.
The Bill relies on referrals by States to the Commonwealth in accordance with
subsection 51(xxxvii) of the Constitution. For example, New South Wales has
enacted the Commonwealth Powers (De Facto Relationships) Act 2003, and Victoria,
Queensland and Tasmania have legislated in similar terms. These State referral Acts
are expected to come into effect on proclamation, which is expected to be timed with
proclamation of the commencement of the operative amendments in Schedule 1 to the
Bill.
The primary objective of the Bill is to extend the financial settlement regime under
the Act to parties to a de facto relationship. This is achieved by conferring
jurisdiction on certain courts in `de facto financial causes' involving parties to de
facto relationships, and providing a new Part VIIIAB of the Act (and amendments to
existing Parts VIIIAA and VIIIB) to allow the court to make orders in those
proceedings covered by the definition of `de facto financial cause'.
The Bill provides that a person is in a de facto relationship with another person if they
are not married or related to each other by family where, having regard to all the
circumstances of the relationship, they have a relationship as a couple living together
on a genuine domestic basis.
Presently, the financial arrangements between separated de facto couples are subject
to State and Territory law, and these laws vary between jurisdictions. The Bill will
offer de facto couples covered by the Bill a nationally consistent financial settlement
regime, to minimise jurisdictional disputes and uncertainties that sometimes impede
settlement of these matters under State and Territory law. The Bill will also offer
these de facto couples access to the family law system for determination of their
financial matters arising on relationship breakdown. The family law courts have
experience in relationship matters, and have procedures and dispute resolution
mechanisms more suited to handling family litigation. Also, the Bill will enable one
court exercising jurisdiction under the Act, such as the Family Court of Australia or
the Federal Magistrates Court, to deal in the one proceeding with both financial and
child-related matters arising between separated de facto couples.
The Bill creates a new `de facto financial cause' in subsection 4(1) of the Act. This
provides jurisdiction for de facto financial matters in all financial matters presently
available under the Act between parties to a marriage, such as proceedings for
distribution of property or financial resources, or for provision of maintenance
between parties to a de facto relationship, and proceedings involving third parties,
binding financial agreements, and related bankruptcy matters.
The Bill links the application of its provisions to `participating jurisdictions' by
requiring that a geographical nexus be established in relation to those jurisdictions in a
de facto financial matter brought under the provisions of the Bill. The Bill will apply
in the Territories by virtue of section 122 of the Constitution.
Where federal jurisdiction applies to de facto financial matters under the provisions of
the Bill in participating jurisdictions, State and Territory laws dealing with the same
subject matter are excluded. Detailed provisions dealing with the relationship
between the federal provisions and State and Territory laws are set out in new
section 90RC.
Schedule 1 to the Bill contains the operative amendments to the Act that extend its
operation to de facto financial matters. This occurs principally by insertion of new
Part VIIIAB, dealing with maintenance, declaration and alteration of property
interests (Division 2), orders and injunctions binding third parties (Division 3),
financial agreements (Division 4), proceeds of crime and forfeiture (Division 5), and
instruments not liable to duty (Division 6).
Under these amendments, the Act will apply to allow the court to make orders in
de facto financial matters if:
- the de facto relationship broke down after the commencement of the Act
- the conditions relating to length of relationship or other matters are met
- the application is brought within required time limits
- the geographical nexus with a `participating jurisdiction' is satisfied when the
application is made, if all States have not referred power, and
- the proceedings are not otherwise determined to be a matter for State and Territory
law by the effect of transitional provisions in Part 2 of Schedule 1 to the Bill.
Schedule 2 to the Bill contains consequential amendments to other related legislation.
Generally, these consequential amendments flow from the extension of the Act to
de facto financial matters, and therefore ensure that references to matrimonial
property settlements under the Act (such as `spouse' or `property proceedings' or
`Part VIII') extend also, where appropriate, to financial proceedings under the Act
between parties to a de facto relationship.
Schedule 3 to the Bill contains amendments relating to financial agreements between
married couples, separation declarations and superannuation splitting. It also amends
the definition of `matrimonial cause' to cover proceedings by third parties in relation
to binding financial agreements.
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Schedule 4 to the Bill contains an amendment to subsection 60I(8), to allow family
dispute resolution practitioners to give an additional certificate to parties who attend
family dispute resolution. It also makes a minor drafting correction to paragraph
330(4)(ba) of the Proceeds of Crime Act 2002.
FINANCIAL IMPACT STATEMENT
The Bill will confer additional jurisdiction on federal courts and the Government will
monitor, in consultation with the courts, the impact of the new jurisdiction created by
the Bill. Additional resources were provided to the courts in the 2007-08 Budget to
deal with the increased workload.
REGULATION IMPACT STATEMENT
The Office of Regulation Review has considered the proposed amendments and
determined that a Regulation Impact Statement is not required.
CONSULTATION STATEMENT
The scope of referred powers on de facto financial matters has been a matter of
consultation with the States and Territory Governments for several years. This
culminated in a decision at the November 2002 meeting of the Standing Committee of
Attorneys-General to proceed with Commonwealth implementation of references of
State powers in this area, with support from a majority of State and Territory
Governments.
Over the period November 2006 to March 2007, the Attorney-General's Department
undertook consultations on the amendments extending the operation of the Act to
de facto financial matters, with the States and Territories, the Family Court of
Australia, the Federal Magistrates Court of Australia, the Family Law Section of the
Law Council of Australia and the Family Law Council. Consultation on the Bill has
also been undertaken with affected Government agencies.
The Family Court of Australia and the Federal Magistrates Court of Australia were
consulted about the financial impact of additional workload generated by the proposed
amendments.
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NOTES ON ITEMS
Terms used in this Explanatory Memorandum
1. The following terms are used in this Explanatory Memorandum:
- `Act' refers to the Family Law Act 1975
- `Amendment Act' refers to the Family Law Amendment (De Facto Financial
Matters and Other Measures) Act 2008
- `Bill' refers to the Family Law Amendment (De Facto Financial Matters and
Other Measures) Bill 2008, and
- `State reference Acts' refers to the Acts passed by State Parliaments that refer
State powers to the Commonwealth in respect of financial matters arising on the
breakdown of de facto relationships, for example, the Commonwealth Powers
(De Facto Relationships) Act 2003 (NSW)
Clause 1 - Short title
2. Clause 1 provides for the Act to be cited as the Family Law Amendment (De Facto
Financial Matters and Other Measures) Act 2008.
Clause 2 - Commencement
3. Clause 2 provides for the commencement of the Amendment Act, and contains a
table which sets out when each of its provisions commences.
4. Item 1 of the table provides that the operative provisions of the Bill - clauses 1 to
3, which provide for the short title, the application of the schedules, and this
commencement provision - commence on the day on which the Bill receives
Royal Assent.
5. Items 2, 3 and 5 of the table provide that the amendments in Schedule 1 and the
amendments in Schedule 2 (other than the amendment at item 33 of Schedule 2)
commence on a day to be fixed by Proclamation. Item 7 of the table also provides
that the amendment at item 1 of Schedule 4 commences on a day to be fixed by
Proclamation. However, if any of those amendments do not commence within 6
months from the day on which the Bill receives Royal Assent, they will commence on
the first day after this period. This allows up to 6 months for Proclamation, ensuring
time for the public, practitioners and the courts to prepare for the changes. Schedule 1
contains the amendments to the Act and transitional provisions implementing the
State references of power in relation to de facto financial matters. Schedule 2
contains amendments to other federal legislation consequential on implementation of
the references. The amendment at item 1 of Schedule 4 deals with an additional
circumstance in which a family dispute resolution practitioner may give a certificate
to a person.
6. Item 4 of the table provides for the commencement of the amendment at item 33
of Schedule 2 to the Bill (containing an amendment to the First Home Saver Accounts
Act 2008) to commence on the later of the commencement of the First Home Saver
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Accounts Act 2008 or the commencement of the provisions covered by item 2 of the
table in clause 2.
7. Item 6 of the table provides that Schedule 3 of the Bill - providing for
amendments relating to financial agreements about marriage - commences on the day
on which the Bill receives Royal Assent.
8. Item 8 of the table provides for the commencement of the amendment at item 2 of
Schedule 4 to the Bill, being a minor drafting correction to paragraph 330(4)(ba) of
the Proceeds of Crime Act 2002 (the Proceeds Act), from the commencement of
section 330 of the Proceeds Act on 1 January 2003, in accordance with drafting
practice for rectifying technical errors of a statute law revision nature.
Clause 3 - Schedules
9. This clause provides that each Act that is specified in a Schedule to the Bill is
amended or repealed as set out in the applicable items in the Schedule.
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SCHEDULE 1 - AMENDMENTS RELATING TO DE FACTO FINANCIAL
MATTERS
Part 1 - Amendments
Item 1: Title
10. Item 1 amends the long title to the Act to reflect the extension of jurisdiction
under the Act to include financial matters arising out of the breakdown of de facto
relationships, as provided by the amendments in the Bill.
New and amended definitions and terminology
11. The Bill contains several new definitions, and amendments to existing definitions,
relating to de facto financial matters. These definitions support the new provisions
extending federal jurisdiction under the Act to financial matters arising on the
breakdown of de facto relationships. The Bill aims to replicate for parties to de facto
relationships the financial settlement regime under Parts VIII, Part VIIIAA, Part
VIIIA and Part VIIIB of the Act, consistently with the references of powers provided
by the State reference Acts. Therefore, the new and extended definitions are intended
to be aligned as far as possible with the existing definitions used in the Act, and to
depart only where necessary for consistency with the terminology used in the State
reference Acts.
Item 2: Subsection 4(1)
12. Item 2 inserts in subsection 4(1) a definition of `breakdown' in relation to a
de facto relationship, to clarify that this does not include death. This replicates the
definition of `breakdown' used in the State reference Acts.
Item 3: Subsection 4(1)
13. This item inserts in subsection 4(1) a definition of `de facto financial cause'.
The scope of proceedings covered by this term is intended to mirror the scope of
proceedings referred to in paragraphs (c), (caa), (ca), (cb), (eaa), (eab) and (f) of the
definition of `matrimonial cause', in order to cover all equivalent financial matters
presently justiciable in relation to parties to a marriage. This includes jurisdiction in
property and maintenance matters, in proceedings involving third parties, financial
agreements, and concurrent bankruptcy jurisdiction.
14. However, the definitions of `matrimonial cause' and `de facto financial cause'
differ in some respects, due to the different sources of Commonwealth power to
legislate for these matters. The Commonwealth power to legislate for marriage and
`matrimonial causes' is supported by paragraphs 51(xxi) and (xxii) of the
Constitution, whereas the power to legislate for de facto financial matters largely
relies on referrals by States to the Commonwealth in accordance with
paragraph 51(xxxvii) of the Constitution. Paragraphs (a) to (d) of the definition of
`de facto financial cause', therefore, limit the proceedings within each of those
paragraphs to proceedings taken once the relevant de facto relationship has broken
down.
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15. It should be noted that proceedings referred to in paragraph (e) of the definition of
`de facto financial cause', relating to a Part VIIIAB financial agreement made
between the parties to a de facto financial relationship agreement, may arise in
relation to a Part VIIIAB agreement in the period when the agreement is binding but
before the agreement comes into effect upon the breakdown of the parties'
relationship. Similarly, proceedings referred to in paragraph (f) of the definition of
`de facto financial cause' relating to third party proceedings to set aside a Part VIIIAB
financial agreement may be taken once the agreement is binding and before it comes
into effect upon the breakdown of the de facto relationship between the parties.
Item 4: Subsection 4(1)
16. This item inserts in subsection 4(1) a definition for `de facto property settlement
or maintenance proceedings', which is intended to replicate for de facto financial
matters the definition of `property settlement or spousal maintenance proceedings'
applicable to matrimonial financial matters.
Item 5: Subsection 4(1) (definition of de facto relationship)
17. This item repeals the definition of `de facto relationship' in subsection 4(1). The
definition of this term now refers to new section 4AA, inserted by item 21 of
Schedule 1 to the Bill. The previous definition of `de facto relationship' is modified
by new section 4AA only to clarify interpretation of that term for the purpose of new
de facto financial matters. In particular, new subsection 4AA(2) makes it clear that a
de facto relationship can exist even if one partner is legally married to someone else.
Item 6: Subsection 4(1)
18. This item inserts in subsection 4(1) a definition of `distribute', as the term is used
in relation to property and a Part VIIIAB agreement made between parties to a
de facto relationship. The term `distribute' is included in the new terms `de facto
financial cause', and `financial matters' in relation to property of the parties to a
de facto relationship, applying the same terminology as contained in the definition of
`financial matters' in the State reference Acts.
19. When used in relation to a Part VIIIAB financial agreement, paragraph (b) of the
definition of `distribute' provides that subsection 90UI(3) applies.
Subsection 90UI(3) clarifies that a provision in a Part VIIIAB financial agreement
that provides for continued ownership of property or financial resources by a party to
the agreement is a provision about distribution of the property or financial resources.
Item 7: Subsection 4(1) (definition of financial matters)
20. This item amends the definition of `financial matters' in subsection 4(1), by
expanding the term to apply to financial matters in relation to parties to a de facto
relationship. The definition provided for de facto financial matters in paragraph (b) is
necessarily aligned with the definition of this term in the State reference Acts,
reflecting the limits of Commonwealth power in relation to de facto financial matters.
Otherwise, it is intended to replicate the scope of financial matters defined in
paragraph (a) relating to parties to a marriage.
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Item 8: Subsection 4(1)
21. This item inserts in subsection 4(1) a definition of `non-referring State de facto
financial law', being a law of a State that is not a participating jurisdiction, and a law
that relates to financial matters relating to the parties to de facto relationships arising
out of the breakdown of those de facto relationships. The term is used in
section 90UE, which provides for the continued operation, under the Act, of financial
agreements made under such a law.
Item 9: Subsection 4(1)
22. This item inserts in subsection 4(1) a definition of `participating jurisdiction', by
reference to new subsection 90RA(1). Each referring State, and each Territory, is a
participating jurisdiction. Because the Commonwealth power to legislate for de facto
financial matters relies on powers referred by State Parliaments, the Bill will only
apply to the territorial limits of those `referring States', and does not apply in States
that have not referred powers over these matters. The Bill also inserts in subsection
4(1) a definition of the term `referring State', by reference to subsections 90RA(2),
(3), (4) and (5).
23. The Bill establishes the territorial limits of application of its provisions by
requiring that parties to proceedings in relation to de facto financial matters under the
Act establish a geographical connection to a `participating jurisdiction'. These
geographical requirements are found in:
- section 90RG (relating to proceedings under section 90RD for a declaration of
the existence of a de facto relationship)
- section 90SD (relating to proceedings under sections 90SE or 90SG for
maintenance of a party to a de facto relationship)
- section 90SK (relating to proceedings under section 90SL for a declaration of
property interests, or under section 90SM for alteration of property interests),
and
- section 90UA (relating to Part VIIIAB financial agreements made in
participating jurisdictions).
Item 10: Subsection 4(1)
24. This item inserts in subsection 4(1) a definition of `Part VIIIAB financial
agreement', to mean an agreement made under new sections 90UB, 90UC or 90UD,
or covered by section 90UE. Division 4 of Part VIIIAB sets out provisions about
financial agreements between parties to a de facto relationship on certain matters in
the event of the breakdown of the de facto relationship, and distinguishes agreements
made at various stages of the relationship - before the de facto relationship
(section 90UB), during the de facto relationship (section 90UC) or after the
breakdown of the de facto relationship (section 90UD). Section 90UE provides for
the continued operation, under the Act, of financial agreements made under a
non-referring State de facto financial law.
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Item 11: Subsection 4(1)
25. This item inserts in subsection 4(1) a definition of `Part VIIIAB proceedings'
(applicable to parties to a de facto relationship) in equivalent terms to the definition of
`Part VIII proceedings' (applicable to parties to a marriage).
26. The term is defined to mean proceedings under Part VIIIAB for orders with
respect to the maintenance of a party, or property of the parties to a de facto
relationship, or of either of them, or proceedings in relation to a Part VIIIAB financial
agreement, but does not include proceedings specified in the regulations for this
provision.
Item 12: Subsection 4(1)
27. This item inserts in subsection 4(1) a definition of `Part VIIIAB termination
agreement', by reference to new paragraph 90UL(1)(b). Paragraph 90UL(1)(b) allows
a Part VIIIAB financial agreement made between parties to a de facto relationship to
be terminated by the parties making a written agreement to that effect, and confirms
that such an agreement is a `Part VIIIAB termination agreement'.
Item 13: Subsection 4(1)
28. This item inserts in subsection 4(1) a definition of `party to a de facto
relationship', to clarify that this includes a party who is living or has lived in a
de facto relationship. `De facto relationship' is also defined in subsection 4(1), by
reference to new section 4AA.
Item 14: Subsection 4(1) (definition of property)
29. This item amends the definition of `property' in subsection 4(1), extending this
term to apply also to property of the parties to a de facto relationship or either of
them. The extended definition provided for parties to a de facto relationship is
identical to that already provided for parties to a marriage.
Item 15: Subsection 4(1) (definition of property settlement proceedings)
30. This item repeals the existing definition of `property settlement proceedings', and
substitutes a new definition applicable to parties to a marriage as well as parties to a
de facto relationship. The new definition replicates the previous definition applicable
to parties to a marriage, and extends that definition for de facto relationships.
Item 16: Subsection 4(1)
31. This item inserts in subsection 4(1) a definition of `referring State', by reference
to new subsections 90RA(2), (3), (4) and (5). The term `referring State' is contained
in the description of `participating jurisdiction', and its meaning is further explained,
in section 90RA.
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Item 17: Subsection 4(1)
32. This item inserts in subsection 4(1) a definition of `section 90RD declaration' by
reference to section 90RD, which provides for declarations about the existence of
de facto relationships and other related matters for the purpose of de facto
maintenance and property proceedings under sections 90SE, 90SG, 90SL or 90SM of
Part VIIIAB.
Item 18: Subsection 4(1) (definition of spouse party)
33. This item inserts in subsection 4(1) a definition of `spouse party'. Several of the
amendments in Part 1 of Schedule 3 to the Bill clarify that a financial agreement
under Part VIIIA of the Act, between parties to a marriage, can include another person
or persons as a party to the agreement. In relation to such an agreement, a `spouse
party' is defined to mean a party to the agreement who is a party to the contemplated
marriage (section 90B), marriage (section 90C) or former marriage (section 90D) to
which the agreement relates. Division 4 of Part VIIIAB of the Act makes provision in
similar terms for financial agreements under Part VIIIAB between parties to a de facto
relationship. In relation to a Part VIIIAB financial agreement, a `spouse party' is
defined to mean a party to the agreement who is a party to the contemplated de facto
relationship (section 90UB) or de facto relationship (section 90UC) to which the
agreement relates.
34. The definition will replace the definition of `spouse party' inserted by item 1 of
Schedule 3 of the Bill, which commences on the day the Amendment Act receives the
Royal Assent.
Item 19: Subsection 4(1) (definition of third party)
35. This item inserts in subsection 4(1) a definition of `third party' to mean, in
relation to a financial agreement or Part VIIIAB financial agreement, a party to the
agreement who is not a spouse party.
36. The definition will replace the definition of `third party' inserted by item 2 of
Schedule 3 of the Bill, which commences on the day the Amendment Act receives the
Royal Assent.
Item 20: After subsection 4(2)
37. This item inserts new subsection 4(2A), clarifying that a reference in the Act, the
standard Rules of Court or the related Federal Magistrates Rules to a de facto
relationship is not confined to an ongoing relationship, and includes a relationship that
has broken down.
Item 21: After section 4
38. This item inserts new section 4AA, which provides a new definition of `de facto
relationship' for the purposes of the Act. The new definition applies the pre-existing
definition in subsection 4(1) of the Act of a couple living together on a genuine
domestic basis although not legally married to each other. In addition, the new
definition:
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- encompasses both opposite-sex and same-sex de facto relationships, unlike the
previous definition which was confined to opposite-sex de facto relationships,
and
- is derived from the definition of the term in the State reference Acts.
39. As with the previous definition, paragraph 4AA(1)(a) provides as one of the
requirements for a de facto relationship that the persons in the relationship are not
legally married to each other.
40. Paragraph 4AA(1)(b) contains a requirement that the persons must not be related
by family, by reference to subsection 4AA(6). The new definition is derived from the
definition of the term in the State reference Acts, which does not include caring
relationships.
41. Paragraph 4AA(1)(c) requires that, having regard to all the circumstances of their
relationship, the persons have a relationship as a couple living together on a genuine
domestic basis.
42. Subsection 4AA(2) provides a list of circumstances for a court to consider in
determining whether a de facto relationship exists between two persons:
- the duration of the relationship
- the nature and extent of their common residence
- whether a sexual relationship exists
- the degree of financial dependence or interdependence, and any arrangements
for financial support, between them
- the ownership, use and acquisition of their property
- the degree of mutual commitment to a shared life
- whether the relationship is or was registered under a prescribed law of a State
or Territory as a prescribed kind of relationship
- the care and support of children, and
- the reputation and public aspects of the relationship.
43. Some State and Territory laws provide for registration of certain relationships that
are not marriages on Relationships Registers maintained by the relevant State or
Territory Registrar of Births, Deaths and Marriages. Subsection 4AA(2)(g) provides
that a court, in determining whether a de facto relationship exists between two
persons, may consider whether the relationship is or was registered under a prescribed
law of a State or Territory as a prescribed kind of relationship. The relationship must
be of a kind that has been prescribed, as some State Relationships Registers provide
for the registration of relationships that do not fall within the definition of `de facto
relationship' in the State reference Acts, for example caring relationships.
44. Subsection 4AA(3) provides that no particular finding in relation to any
circumstance listed in subsection 4AA(2) is to be regarded as necessary in deciding
whether the persons have a de facto relationship.
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45. The new definition encompasses both opposite-sex and same-sex de facto
relationships, as provided in subsection 4AA(5)(a).
46. New paragraph 4AA(5)(b) clarifies that a de facto relationship can exist even if
the man or the woman in the relationship is legally married to another person or in
another de facto relationship.
47. Subsection 4AA(6) provides that two persons are considered to be related by
family if:
- one is the child (including an adopted child) of the other
- one is another descendant of the other (even if the relationship between them is
traced through an adoptive parent), or
- they have a parent in common (who may be an adoptive parent of either or both
of them).
48. For the purposes of determining if two persons are related by family, a court is to
disregard whether an adoption is declared void or has ceased to have effect.
Item 22: After subsection 4A(1)
49. This item inserts new subsection 4A(1A) for the definition of paragraph (eab) of
the definition of `matrimonial cause' in subsection 4(1), relating to third party
proceedings to set aside a financial agreement made between parties to a marriage
under Part VIIIA. New subsection 4A(1A) provides that, for third party proceedings
to set aside such an agreement on the ground set out in paragraph 90K(1)(ab) of the
Act - inserted by item 50 of Schedule 1 to the Bill - proceedings between either or
both of the parties to the financial agreement (or the legal personal representative of
any such party who has died) and another person who is a party to a de facto
relationship with one of the parties to the financial agreement (or the legal personal
representative of that other person if he or she has died) are a `matrimonial cause'.
50. New subsection 4A(1A) is one of a number of amendments in the Bill that
recognise and respond to the potential for `overlapping' financial matters, involving a
common party to two different relationships which may both invoke jurisdiction under
the Act.
Item 23: After section 4A
51. This item inserts new section 4B for the definition of paragraph (f) of the
definition of `de facto financial cause' in subsection 4(1), relating to third party
proceedings to set aside a Part VIIIAB financial agreement. Section 4B is an
equivalent provision, for the definition of `de facto financial cause', to section 4A, of
the Act as amended by item 43 of Schedule 3 to the Bill, applicable to paragraph (eab)
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of the definition of `matrimonial cause', dealing with third party proceedings to set
aside a financial agreement made between parties to a marriage under Part VIIIA of
the Act.
52. Section 4B also has similar effect to new subsection 4A(1A) in relation to setting
aside of Part VIIIAB agreements, recognising the potential for proceedings involving
another person who is a party to a marriage or a de facto relationship with one of the
parties to the Part VIIIAB financial agreement.
53. Subsections 4B(1), (2) and (3) apply to third party proceedings to set aside a
Part VIIIAB financial agreement on grounds set out in new paragraphs 90UM(1)(b),
90UM(1)(c) and 90UM(1)(d) respectively. The effect of section 4B is that
proceedings between either or both of the parties to a Part VIIIAB agreement and
certain specified persons are a `de facto financial cause' for the purpose of
paragraph (f) of the definition of that term in subsection 4(1).
Item 24: Paragraph 10L(2)(a)
54. This item expands the definition of `section 13E arbitration' in
paragraph 10L(2)(a) to apply also to Part VIIIAB proceedings, other than proceedings
relating to a Part VIIIAB financial agreement.
Item 25: Subparagraph 10L(2)(b)(i)
55. This item expands the definition of `relevant property or financial arbitration' in
paragraph 10L(2)(b) to apply also to Part VIIIAB proceedings.
Item 26: Subsection 13E(1)
56. This item expands the range of proceedings that can be referred by a court for
arbitration under section 13E to include Part VIIIAB proceedings (other than
proceedings relating to a Part VIIIAB financial agreement). The heading to
section 13E is also changed to refer also to Part VIIIAB proceedings.
Items 27 and 28: At the end of paragraph 31(1)(a), and after paragraph 31(1)(a)
57. These items have the combined effect of inserting new paragraph 31(1)(aa) after
existing paragraph 31(1)(a). Section 31 lists the matters in respect of which original
jurisdiction is conferred on the Family Court of Australia under the Act.
New paragraph 31(1)(aa) adds to that list `matters arising under this Act in respect of
which de facto financial causes are instituted under [the] Act'.
Item 29: At the end of paragraph 31(1)(b)
58. This item is a drafting update - the amendment adds `and' to the end of
paragraph 31(1)(b), for consistency with modern drafting style.
Item 30: Subparagraph 37A(1)(f)(i)
59. This item amends the list of powers that may be delegated to Registrars under
subsection 37A(1) by inserting, in addition to powers in paragraph 37(1)(f)(i) in
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proceedings in relation to urgent child maintenance (section 66Q), urgent child
bearing expenses (67E), and urgent spousal maintenance (section 77), powers in
proceedings relating to urgent maintenance of a party to a de facto relationship
(section 90SG).
Item 31: Part V (heading)
60. This item replaces the current heading of Part V (`Jurisdiction in matrimonial
causes') with `Jurisdiction of courts', to reflect the expanded operation of Part V
under these amendments. Part V will now deal with jurisdiction conferred on courts
in both matrimonial and de facto financial causes, and will be split into three
Divisions:
- Division 1 headed `Jurisdiction in matrimonial causes', containing existing
section 39 (unamended in this Bill)
- Division 2 headed `Jurisdiction in de facto financial causes', containing new
sections 39A to 39G (as contained in item 33 of the Bill), and
- Division 3 headed `Other provisions', containing existing sections 40 to 47 (as
amended by items 34 to 38 of the Bill).
Item 32: Before section 39
61. This item creates a new Division in Part V, headed `Division 1 - Jurisdiction in
matrimonial causes'. Division 1 now contains pre-existing section 39, which is
unamended by the provisions of the Bill.
Item 33: After section 39
62. This item inserts in Part V of the Act a new Division 2, headed `Jurisdiction in
de facto financial causes', containing new sections 39A to 39G.
63. Sections 39A to 39G provide, for de facto financial causes, equivalent provisions
to sections 39 and 40 that confer jurisdiction on certain courts in respect of
matrimonial causes.
64. Section 39A provides that a de facto financial cause may be instituted under the
Act in certain courts. Subsection 39A(5) prevents a de facto financial cause that is
able to be instituted under the Act from being instituted otherwise than under the Act,
once new Part VIIIAB of the Act commences.
65. Section 39B provides that jurisdiction is conferred on the courts referred to in
section 39A in de facto financial causes instituted under the Act.
66. The courts conferred with jurisdiction in de facto financial causes are the Family
Court of Australia, the Federal Magistrates Court of Australia, the Supreme Court of
the Northern Territory, and courts of summary jurisdiction in a participating
jurisdiction. (`De facto financial cause' and `participating jurisdiction' are defined in
other provisions of the Bill).
14
67. As the notes to section 39B indicate, the exercise of jurisdiction conferred on
these courts under section 39B is subject to other provisions of Part V, including
section 40 (dealing with the Family Court's exercise of jurisdiction under the Act) and
section 40A (dealing with the exercise of the Federal Magistrates Court's jurisdiction
in certain States and Territories). The operation of jurisdiction in Territory courts is
noted to be subject to new sections 39C, 39D, 39E and 39F in respect of Territory
courts, and subject to sections 39D and 39E in respect of State courts of summary
jurisdiction.
68. Section 39F establishes a specific residential requirement for de facto financial
causes instituted in or transferred to a Territory court (such as the ACT Magistrates
Court): as in subsection 39(8) of the Act in relation to matrimonial causes, at least
one of the parties to the proceedings must be ordinarily resident in the Territory when
the proceedings are instituted in or transferred to the court.
69. This requirement would operate in addition to the geographical requirement set
out in sections 90RG, 90SD, 90SK and 90UA to establish that the parties to the
proceedings or those entering a Part VIIIAB financial agreement are connected to a
participating jurisdiction. In effect, if the geographical nexus in those provisions
applies and is established in relation to a participating jurisdiction other than a
Territory, and the proceedings are transferred to or are later instituted in a Territory
court in respect of that matter, section 39F would require that one of the parties to the
proceedings reside in the Territory for the Territory court to exercise jurisdiction
under the Act.
70. State courts in States that are not `participating jurisdictions' (as described in new
section 90RA inserted by the Bill) cannot exercise jurisdiction under the Bill. The
Family Court of Western Australia is not included as a court on which jurisdiction is
conferred under subsection 39B(1) in de facto financial causes, and while Western
Australia and South Australia are not referring States, their courts of summary
jurisdiction are not invested under subsection 39B(2) with federal jurisdiction in
de facto financial causes under the Act.
71. As provided for in sections 39A and 39B, it is possible for the Family Court of
Australia and the Federal Magistrates Court of Australia located and operating in a
non-participating jurisdiction to exercise jurisdiction in de facto financial causes
under the Act, but this would arise only in limited situations, where the case is linked
to a participating jurisdiction. This could happen, for example, where the
geographical requirements under section 90SD or 90SK are established in connection
with a participating jurisdiction, so that federal jurisdiction can apply, but the court
determines that the better venue for determination of the matter is in a federal court
having jurisdiction but being located in a non-referring State, perhaps because the
parties' child-related matters are pending in that court.
Items 34 and 35: Section 43, and at the end of section 43
72. Section 43 of the Act sets out principles that a court must have regard to when
exercising jurisdiction under the Act. These principles are broadly stated, including
the principle in paragraph 43(a) regarding the `need to preserve and protect the
institution of marriage as the union of a man and a woman to the exclusion of all
others voluntarily entered into for life'. The effect of items 34 and 35 is to add a new
15
subsection 43(2), providing that paragraph 43(1)(a) does not apply in relation to the
exercise of jurisdiction in relation to de facto financial causes by courts conferred with
that jurisdiction under Division 2 of Part V.
Related matters
73. The Bill expands the jurisdiction conferred on courts to deal with financial
matters arising on the breakdown of de facto relationships, in addition to its existing
jurisdiction in relation to matrimonial matters. In the practical operation of this
expanded jurisdiction, there are real possibilities of `overlap' in related matters, such
as where two or more financial matters arise under the Act between parties to a
marriage or parties to a de facto relationship, with one party in common. (This can
occur because proceedings may arise, or financial agreements may be entered into,
between parties to a de facto relationship or parties to a marriage before the financial
matters arising out of the breakdown of the previous marriage or previous de facto
relationship of one of those parties have been resolved).
74. The Bill includes a number of amendments to the Act, explained in this
Explanatory Memorandum, that are intended to provide the parties and the courts in
these circumstances with additional mechanisms to recognise and deal with related
proceedings, and the interests of parties in related matters, as follows:
- the court's powers to stay, dismiss and transfer `related' pending proceedings
between courts having jurisdiction under the Act will now apply to related
de facto financial proceedings: new subsections 45(1B) and (1C)
- when making a maintenance order or property settlement order between
parties to a marriage (under Part VIII) or parties to a de facto relationship
(under Part VIIIAB), the court is required to take into account the terms of any
order or declaration made or proposed to be made in related proceedings, and
the terms of any financial agreement that is binding on a party to the
proceedings: new paragraphs 75(2)(naa) and (q), and new paragraphs
90SF(3)(p) and (s)
- a person who is a party to a de facto relationship with one of the parties to
Part VIII proceedings, or a party to a marriage with a party in Part VIIIAB
proceedings, and who could apply for their own property settlement orders,
can be a third party to the Part VIII or Part VIIIAB proceedings, and join their
own application in those proceedings: new paragraphs 79(10)(aa) and
90SM(10)(b) and (d)
- a person who is a party to a financial agreement with a party to a marriage or a
party to a de facto relationship can be a third party to Part VIII or Part VIIIAB
proceedings: new paragraphs 79(10)(ab) and 90SM(10)(c) and (e)
- the Rules of Court may provide for notice to be given to third parties to
Part VIII or Part VIIIAB proceedings, including persons whose interests may
be affected by these related matters: new section 90SO, and
- a court can set aside a financial agreement made between parties to a marriage
under Part VIIIA or parties to a de facto relationship under Part VIIIAB if it is
16
made with the purpose of defrauding or defeating the interests of another
person in applying for a property order or declaration under Part VIII or
VIIIAB, or with reckless disregard for those interests: new
paragraphs 90K(1)(ab) and 90UM(1)(c) and (d).
Item 36: At the end of section 44
75. Subsection 44(5) provides that, subject to subsection (6), a party to a de facto
relationship may apply for an order under section 90SE (maintenance), 90SG (urgent
maintenance) or section 90SM (alteration of property interests), or for a declaration
under section 90SL (declaration of interests in property), only if the application is
made within 2 years after the end of the de facto relationship.
76. Subsection 44(6) allows the court discretion to grant leave for a party to apply
after the end of the period mentioned in subsection (5) if satisfied that hardship would
be caused to the party or a child if leave were not granted, or that an applicant for
maintenance orders would not be able to support himself or herself without an income
tested pension, allowance or benefit if leave were not granted. Paragraph 44(6)(a)
refers to a `child', which is broader than a `child of the de facto relationship' for the
purposes of the hardship test under that paragraph.
Item 37: Subsection 45(1A)
77. This item amends subsection 45(1A) to clarify a possible ambiguity in the
existing provision. The amendment inserts the words `under this Act', to make it
clear that proceedings relating to an application by the bankruptcy trustee of a
bankrupt party to a marriage under Division 4A of Part VI of the Bankruptcy Act 1966
are taken to be proceedings `under this Act' (that is, the Family Law Act 1975) in
relation to a marriage, for the purpose of subsection 45(1).
Item 38: After subsection 45(1A)
78. Under section 45, the court is already provided with procedural powers to stay,
dismiss or transfer proceedings in relation to the same marriage that are pending in
another court having jurisdiction under the Act. Subsection 45(1) allows a court
having jurisdiction under the Act, in pending proceedings instituted under the Act, to
stay or dismiss those proceedings if it appears to the court that other proceedings
instituted under the Act in relation to the same marriage or the same matter are
pending in another such court. Subsection 45(1A) extends the court's powers under
subsection 45(1) to apply to proceedings in which the bankruptcy trustee of a
bankrupt party to a marriage applies under section 139A of the Bankruptcy Act 1966
for an order under Division 4A of Part VI of that Act, as if they were proceedings in
relation to the marriage.
79. This item inserts new subsections 45(1B) and (1C) that will apply the court's
powers in subsection 45(1) to stay or dismiss related proceedings in the court to a
wider range of related matters. Subsection 45(1B) provides that a de facto financial
cause instituted in relation to a de facto relationship and bankruptcy proceedings
described in subsection 45(1A) are taken to be proceedings under this Act in relation
to the same matter.
17
80. Subsection 45(1C) has the same effect, allowing the court to regard certain
proceedings as relating to the same matter in order to exercise its power to stay or
dismiss the related matter under subsection 45(1). Under subsection 45(1C), a
matrimonial cause and a de facto financial cause, or a de facto financial cause and
another de facto financial cause, are taken to relate to the same matter, for the purpose
of subsection 45(1), if one of the parties to the subject marriage or de facto
relationship is the same.
Item 39: Subsection 69ZM(3)
81. Section 69ZM defines what is meant by `child-related proceedings' and sets out
the proceedings to which Division 12A of Part VII applies. Division 12A applies less
adversarial `child-related' processes for certain types of proceedings. Division 12A
applies to:
- proceedings wholly related to children under Part VII, or partly related to
children to the extent that they are proceedings under Part VII:
subsection 69ZM(1), and
- proceedings partly related to children under Part VII to the extent that they
are not proceedings under Part VII by consent: subsection 69ZM(2) .
82. Subsection 69ZM(3) provides that Division 12A also applies to other proceedings
between the parties that involve the court exercising jurisdiction under this Act, and
that arise from the breakdown of the parties' marital relationship, with the consent of
the parties.
83. This item extends subsection 69ZM(3) so that Division 12A applies, with the
consent of the parties, to a de facto financial cause.
Item 40: At the end of paragraphs 75(2)(a), (b), (c), (d), (e), (f), (g), (h), (j), (k), (l),
(m), and (n)
84. This item is a drafting update - the amendment adds `and' to the end of
paragraphs 75(2)(a) to (h), and (j) to (n), for consistency with modern drafting style.
Item 41: After paragraph 75(2)(n)
85. Subsection 75(2) contains a list of matters that the court must take into account
when exercising jurisdiction under section 74 (dealing with powers of the court in
spousal maintenance proceedings). By virtue of paragraph 79(4)(e), the court must
also take these matters into account, so far as they are relevant, when considering
what order the court should make under section 79 in property settlement proceedings
between parties to a marriage.
86. This item inserts in subsection 75(2) new paragraph (naa), which sets out a new
matter for the court to consider in determining section 74 spousal maintenance
proceedings and section 79 property settlement proceedings - namely, the terms of
any order or declaration made, or proposed to be made, under Part VIIIAB in relation
to a party to the marriage, or a person who is a party to a de facto relationship with a
18
party to the marriage, or the property of one of those persons or either of them, or
vested bankruptcy property in relation to any of those persons.
87. This provision is in similar terms to pre-existing paragraph 75(2)(n), which
recognises that an order or declaration that is made or proposed to be made in relation
to the parties' property, or vested bankruptcy property in relation to a bankrupt party,
may affect the court's consideration of spousal maintenance orders, and should be
taken into account in the exercise of the court's powers under section 74.
88. New paragraph 75(2)(naa) recognises that the additional jurisdiction now
conferred on the court in de facto financial matters opens up the prospect of orders or
declarations being made or proposed in related Part VIIIAB proceedings, involving
parties or property in common between the Part VIIIAB proceedings and proceedings
involving parties to a marriage under section 74 or 79, so that the outcome in these
related matters may affect the court's consideration of the spousal maintenance or
property settlement proceedings before it. (The Bill makes reciprocal provisions in
section 90SF that replicate the effect of paragraph 75(2)(naa) for consideration in
de facto maintenance and property settlement proceedings under Part VIIIAB.)
89. The reference in paragraph 75(2)(naa) to an order or declaration `proposed to be
made' would only extend to orders or declarations that are capable of being made
under the Act - that is, if the requirements for orders or declarations to be made under
Part VIIIAB can be satisfied, including time limits under subsections 44(5) and (6),
and geographical requirements under sections 90SD or 90SK.
Item 42: Paragraph 75(2)(p)
90. This item inserts the words `to the marriage' in paragraph 75(2)(p). This
paragraph requires the court to take into account in spousal maintenance proceedings,
and by reference under paragraph 79(4)(e), in property settlement proceedings, the
terms of any financial agreement that is binding on the parties. The effect of the
amendment is to ensure that this paragraph deals only with consideration of a
financial agreement that is binding on the parties to the marriage, and not any other
kind of agreement such as a Part VIIIAB financial agreement, which is dealt with in
new paragraph 75(2)(q).
Item 43: At the end of subsection 75(2)
91. This item inserts new paragraph 75(2)(q), providing a new matter for
consideration under section 75(2), and by reference under paragraph 79(4)(e), in
section 79 property settlement proceedings between parties to a marriage.
Paragraph 75(2)(q) requires consideration of the terms of any Part VIIIAB financial
agreement that is binding on a party to the marriage. This supplements the effect of
new paragraph 75(2)(naa) in relation to orders or declarations that are made or
proposed to be made under Part VIIIAB that must be taken into account in section 74
and 79 proceedings.
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Item 44: Subsection 79(10)
92. Subsection 79(10) specifies certain third parties who are entitled to become a
party to section 79 property settlement proceedings between parties to a marriage, as
being a creditor of a party to the proceedings, or any other person whose interests
would be affected by the making of the order. The amendment clarifies that
subsection 79(10) applies to proceedings in which an application is made for an order
under section 79 by a party to a marriage. That marriage is called the `subject
marriage' for reference in new paragraphs 79(10)(aa) and (ab), inserted by the
following item.
Item 45: After paragraph 79(10)(a)
93. This item inserts new paragraphs 79(10)(aa) and (ab), to include, as third parties
to section 79 proceedings between parties to a marriage, a party to a de facto
relationship with one of the parties to the marriage who could apply or who has
applied under Part VIIIAB for an order under section 90SM (alteration of property
interests) or a declaration of property interests under 90SL, and a person who is a
party to a binding Part VIIIAB financial agreement with a party to the marriage.
Item 46: After subsection 79(10A)
94. This item inserts new subsection 79(10B), providing that a person who becomes a
party to section 79 property settlement proceedings under paragraph 79(10)(aa) may
bring their own Part VIIIAB application in those proceedings under section 90SM for
an order altering property interests, or under section 90SL for a declaration of
property interests, in relation to the de facto relationship.
Item 47: At the end of section 79F
95. Section 79F provides that the Rules of Court may specify the circumstances in
which an applicant or a party to Part VIII proceedings is to notify a person who is not
a party to the proceedings of the application. This item adds a note to the end of
section 79F to clarify that this notice may be required to be given to persons whose
interests could be affected by an order under section 79 - for example, a person
referred to in paragraphs 79(10)(aa) or (ab), or who may have interests in relation to
the matter under Part VIIIAB.
Item 48: Subparagraph 83(2)(a)(i)
96. Subsection 83(2) sets out the matters of which the court must be satisfied before
making an order modifying a spousal maintenance order. Subparagraph 83(2)(a)(i)
allows the court to make a spousal modification order if it is satisfied that, since the
order was made or last varied, the circumstances of a person for whose benefit the
order was made have so changed as to justify the court making that order. The
amendment in this item clarifies that the change of circumstances includes the person
for whose benefit the order was made entering into a stable and continuing de facto
relationship.
97. The equivalent de facto maintenance modification provision, subsection 90SI(3)
under Part VIIIAB, repeats this ground, so that modification can be ordered if
20
circumstances have changed on account of the payee entering a stable and continuing
de facto relationship.
Item 49: After paragraph 90K(1)(aa)
98. Section 90K sets out the grounds on which the court can set aside a financial
agreement or a termination agreement made between parties to a marriage. This
amendment inserts a new ground in paragraph 90K(1)(ab) - that either party entered
into the agreement for the purpose of defrauding another person who is a party to a
de facto relationship with the defrauding party, or to defeat the interests of that other
person in relation to his or her possible or pending application for a property order or
declaration under Part VIIIAB.
99. This new ground is part of a number of provisions, discussed above under the
heading `Related matters', that are intended to recognise and preserve the interests of
persons that might be affected by orders or financial agreements in other related
matters. Similar provisions already exist in Part VIII to allow the courts to recognise
and preserve the interests of creditors, including the trustee in bankruptcy in relation
to a bankrupt party to a marriage, when making property orders or declarations under
that Part. Those provisions have been replicated for de facto financial matters in
various provisions under Part VIIIAB, and the Bill also introduces reciprocating
provisions in Parts VIII and VIIIAB that allow the court to deal with the interests of
parties in matters under each Part that are related by having a common party.
Item 50: After Part VIIIA
100. Item 50 inserts new Part VIIIAB in the Act that deals with financial
arrangements applicable to parties to a de facto relationship. Part VIIIAB contains six
Divisions:
- Division 1: Preliminary
- Division 2: Maintenance, declarations of property interests and alterations of
property interests
- Division 3: Orders and injunctions binding third parties
- Division 4: Financial agreements
- Division 5: Proceeds of crime and forfeiture
- Division 6: Instruments not liable to duty
Division 1 - Preliminary
101. Division 1 of new Part VIIIAB contains certain preliminary matters, divided into
three Subdivisions:
- Subdivision A: Meaning of key terms
- Subdivision B: Relationship with State and Territory laws
21
- Subdivision C: Declarations about existence of de facto relationships.
Subdivision A - Meaning of key terms
Section 90RA - Participating jurisdictions
102. Section 90RA explains the meaning of `participating jurisdictions' as used in the
Act to be each Territory, defined in subsection 4(1) of the Act, and each `referring
State', defined in subsection 90RA(2) to mean a State that has provided to the
Commonwealth a reference of powers over financial matters relating to the parties to
de facto relationships arising out of the breakdown of those relationships for the
purpose of paragraph 51(xxxvii) of the Constitution, to the extent that the
Commonwealth otherwise would not have those powers. The provision applies
equally to States that have not yet, but may, in the future, refer power to the
Commonwealth.
103. Subsection 90RA(3) excludes a State as a `referring State', and therefore as a
`participating jurisdiction', if the State has only referred to the Commonwealth a
limited class of matters referred to in paragraph (2)(a). As mentioned above, the
provision applies equally to States that have not yet, but may, in the future, refer
power to the Commonwealth. For example, if a State Parliament provided a reference
of powers to the Commonwealth for the purpose of paragraph 51(xxxvii) in respect of
superannuation matters only arising on the breakdown of de facto relationships, that
reference of powers would not be sufficient for that State to qualify as a `referring
State' and therefore as a `participating jurisdiction', for the purpose of the Act.
104. The Bill links the application of its provisions in relation to de facto financial
matters to `participating jurisdictions' by requiring that a geographical requirement be
satisfied for the court to make certain orders and declarations: these requirements are
set out in sections 90RG (in proceedings under section 90RD for a declaration of the
existence of a de facto relationship), 90SD (for proceedings under sections 90SE or
90SG for maintenance of a party to a de facto relationship), 90SK (for proceedings
under section 90SL for a declaration of property interests, or under section 90SM for
alteration of property interests), and 90UA (for the making of Part VIIIAB financial
agreements).
105. Subsections 90RA(4) and (5) provide that a State is a referring State even if a
State law provides that the reference of powers is to terminate in certain
circumstances. However, if the State's reference of powers terminates, then that State
ceases to be a referring State.
Section 90RB - Meaning of child of a de facto relationship
106. Section 90RB provides a definition of `child of a de facto relationship' for the
purpose of Part VIIIAB. The definition will not affect the operation of other parts of
the Act, for example the presumptions of parentage set out in Subdivision D of
Division 12 of Part VII.
107. This term is used in significant provisions in Part VIIIAB - for example in
section 90RD (as one of the matters about which the court can make a declaration in
proceedings under Division 2 or 4 of Part VIIIAB), in section 90SB (in determining
22
the length of the de facto relationship), and in section 90SF (as a matter relevant to an
order for the provision of maintenance of a party to a de facto relationship).
108. Subsection 90RB(1) provides that a `child of a de facto relationship' is:
- a child of whom each of the parties to the de facto relationship are the parents
- a child adopted by the parties to the de facto relationship or by either of them
with the consent of the other, or
- a child under subsection 60H(1) is a child of the parties to the de facto
relationship.
109. Subsection 90RB(2) provides that a child of a de facto relationship who is
adopted by a person who, before the adoption, is not a prescribed adopting parent,
ceases to be a child of that de facto relationship for the purposes of Part VIIIAB.
110. Subsection 60H(1) sets out the rules relating to parentage of a child born to a
woman as a result of an artificial conception procedure while the woman was married
to a man.
111. Subsection 90RB(3) provides that for the purposes of this section, subsection
60H(1) applies to parties to a de facto relationship who are of the same sex in a
corresponding way to the way in which it applies to parties to a de facto relationship
who are of different sexes. This provision extends the application of subsection
60H(1) to both opposite-sex and same-sex de facto couples.
Subdivision B - Relationship with State and Territory laws
Section 90RC - Relationship with State and Territory laws
112. Subdivision B contains section 90RC that deals with the relationship of the
de facto financial provisions in Parts VIIIAB, VIIIAA and VIIIB of the Act with State
and Territory laws. This is a critical provision that delineates the operation of federal
de facto financial provisions under the Act, and the continued operation of State and
Territory law where federal law does not apply. (Note that section 90RC deals with
the application of federal law in relation to State laws in the same field, not the
preservation of State laws that may continue to operate for particular State matters
after the commencement of the amendments in the Bill, by virtue of the transitional
provisions in Part 2 of Schedule 1 to the Bill).
113. The effect of section 90RC is to carve out an `exclusion zone' for the operation
of new federal de facto financial provisions, to the exclusion of State and Territory
laws dealing with or referring to those matters. Those areas of operation of State and
Territory laws excluded by federal law are necessarily confined to the scope of the
State referred powers, being in relation to financial matters arising out of the
breakdown of de facto relationships, and to the area dealt with under federal law. The
de facto financial provisions provided under federal law deal with:
- declarations of the existence of a de facto relationship and declarations of
property interests under Part VIIIAB
23
- orders under Part VIIIAB relating to the maintenance of a party to a de facto
relationship and property adjustment orders
- orders and injunctions in relation to third parties in Part VIIIAB proceedings
- Part VIIIAB financial agreements and proceedings relating to financial
agreements, and
- Part VIIIB superannuation provisions applicable to de facto relationships.
114. Subsection 90RC(2) describes the areas of law in which federal law operates to
override the application of State law. The effect of this is that State law will apply in
areas of law to which paragraphs 90RC(2)(a) and (b) do not apply, such as:
- laws dealing with financial matters arising out of the breakdown of some other
kind of relationship - for example, those applying to a close personal
relationship between 2 adult persons, one of whom provides the other with
domestic support and personal care (Property (Relationships) Act 1984
(NSW), section 5), or to a relationship that is not in fact a de facto relationship
within the meaning of section 4AA of the Family Law Act that has been
registered under a State law providing for relationship registration, such as the
Relationships Act 2003 (Tasmania), and
- laws not dealing with financial matters arising out of the breakdown of
de facto relationships, as described in subsection 90RC(2) - such as State or
Territory property laws that do not provide for the distribution of property
between de facto couples (for example, Real Property Act 1900 (NSW),
section 42, providing for the registered proprietor of an interest in land
recorded in the Register under that Act to hold the interest free from other
interests).
115. Subsections 90RC(3) to (5) set out the exceptions to the operation of subsection
90RC(2), where State and Territory law will continue to operate despite the operation
of federal law under the provisions of the Bill, as follows:
- laws of referring States dealing with financial provision, which permit orders
to be made in relation to de facto relationships in circumstances where a court
could not make an order under Division 2 of Part VIIIAB of the Act:
subsection 90RC(3) (reference to section 90SB)
- laws of non-participating States dealing with de facto financial provision, but
to which federal law does not apply because there is an insufficient link to a
participating jurisdiction: subsection 90RC(3) (references to sections 90SD
and 90SK)
- laws facilitating the operation of the Act - for example, State superannuation
laws acknowledging superannuation splitting under Part VIIIB of the Act:
subsection 90RC(4), and
- laws prescribed by a State or Territory for the purpose of subsection 90RC(5).
24
116. As mentioned, subsection 90RC(3) has the effect that State law will apply to a
de facto relationship if the geographical requirements under sections 90SD or 90SK
cannot be met for orders and declarations to be made about property or maintenance
in de facto financial matters under federal law. However, it is important to remember
that a geographical connection can be established under section 90UA for the
application of federal law in relation to a financial agreement made under the Act on
the basis of residence in a participating jurisdiction, which creates another situation
where federal law may apply to displace State law, even if the tests required under
section 90SD or 90SK are not satisfied. This means that:
- if the parties have made a Part VIIIAB financial agreement then federal law
applies to their de facto financial matters (as the parties would need to satisfy
the geographical requirement under section 90UA for the making of a
Part VIIIAB financial agreement, and thus attract federal law jurisdiction -
`Part VIIIAB financial agreement' here includes a State law agreement that is
taken to be a Part VIIIAB financial agreement)
- if the parties are unable to make a Part VIIIAB financial agreement because
the geographical requirements under section 90UA for making a Part VIIIAB
financial agreement cannot be met, then State law applies, and
- if the parties are able to meet the geographical requirement under
section 90UA for making a Part VIIIAB financial agreement, but have not
made such an agreement, then State law may apply unless and until the parties
make a Part VIIIAB financial agreement, when federal law applies to override
any previous State orders or financial agreements made in the
non-participating jurisdiction.
117. Subsection 90RC(5) provides an exception for the operation of the de facto
financial provisions in the Act to the effect that these provisions are not to apply to
exclude the operation of State or Territory law if the law is prescribed in regulations
made for the purpose of subsection (5). The purpose of these provisions is to offer a
mechanism, to be given effect by prescription in the regulations, that will identify any
State and Territory laws that should not be excluded by the de facto financial
provisions, and which have not otherwise been identified in subsection 90RC.
Subdivision C - Declarations about existence of de facto relationships
Section 90RD - Declarations about existence of de facto relationships
118. Section 90RD enables the court, where a claim is made in support of the
application that a de facto relationship existed between the applicant and another
person, to make a declaration about the existence of the de facto relationship. Such a
declaration may be made for the purpose of proceedings (called the `primary
proceedings') involving an application for a maintenance order under sections 90SE
or 90SG, or for an order for alteration of property interests under section 90SM, or for
a declaration of property interests under section 90SL.
25
119. A declaration of the existence of the de facto relationship may also declare
certain other matters relating to the existence of the relationship set out in
subsection 90RD(2). The term `parties to a de facto relationship', has various
applications under Part VIIIAB - for example, under section 90SE, a court can make
an order for the maintenance of one of the parties to a de facto relationship. The
existence of the relationship therefore operates as a threshold matter of fact for the
application of substantive provisions under Part VIIIAB.
120. The other matters, set out in subsection 90RD(2), which the court may also
declare as part of a section 90RD declaration, are also required to be satisfied before
the operative provisions of Part VIIIAB apply in relation to a de facto relationship.
As an example, to satisfy the requirements of section 90SB in relation to the length of
the parties' relationship, or the application of time limits under subsections 44(5) and
(6).
121. The aim of section 90RD is therefore to facilitate early determination of these
`gateway' issues that parties are required to establish in order to meet geographical
requirements set out in 90SD, time limits set out in subsections 44(5) and (6), and
generally for the application of Part VIIIAB.
Section 90RE - Effect of declarations
122. Section 90RE provides that a section 90RD declaration has effect as a
judgement of the court, and that for the purposes of the Act (other than Part VII
dealing with children) a section 90RD declaration has effect according to its terms.
Section 90RF - Applying for declarations
123. Section 90RF provides that a party to the primary proceedings may apply for a
section 90RD declaration. This allows for an application for a section 90RD
declaration to be brought by a party to the primary proceedings who is not a party to
the relevant de facto relationship, such as an affected third party, or the trustee in
bankruptcy in relation to a bankrupt party.
Section 90RG - Geographical requirement
124. Section 90RG imposes a geographical requirement in relation to section 90RD
applications - that one of the persons about whom the declaration is sought was
ordinarily resident in a participating jurisdiction when the primary proceedings
commenced. Sections 90SD and 90SK impose a geographical requirement for the
purpose of the primary proceedings.
Section 90RH - Setting aside declarations
125. Section 90RH allows for a person affected by a section 90RD declaration made
in primary proceedings to apply in those proceedings for a variation, or setting aside
of the section 90RD declaration, or setting aside and making of another section 90RD
declaration if new facts or circumstances arise.
26
Division 2 - Maintenance, declarations of property interests and alteration of property
interests
Subdivision A - Application of Division
Section 90SA - This Division does not apply to certain matters covered by binding
financial agreements
126. Subsection 90SA(1) provides that Division 2 of Part VIIIAB does not apply to
the maintenance, or property, or financial resources of the parties to a Part VIIIAB
financial agreement that applies to those matters. However, subsection 90SA(2)
provides that subsection (1) does not apply in certain circumstances, so that the
operation of Division 2 of Part VIIIAB is not excluded in relation to maintenance,
property or financial resources dealt with in a Part VIIIAB financial agreement.
Those circumstances are where there are proceedings between a party to a de facto
relationship and the bankruptcy trustee of a bankrupt party to the de facto relationship
in relation to the maintenance of the party to the relationship, or in relation to the
distribution, after the breakdown of the relationship, of any vested bankruptcy
property in relation to the bankrupt party. These provisions are intended to operate
similarly, for Division 2 of Part VIIIAB, to section 71A excluding the application of
Part VIII to certain matters covered by Part VIIIA binding financial agreements.
127. Subsection 90SA(3) confirms a party to a de facto relationship who is not bound
by the Part VIIIAB agreement is not prevented from bringing his or her own
application under Part VIIIAB. The example explains that a prior Part VIIIAB
financial agreement made between parties to one de facto relationship will not prevent
a party to a later de facto relationship (with a common party to the first relationship)
from applying for an order or declaration under Division 2 of Part VIIIAB in relation
to that second related de facto matter. In any such Division 2 proceedings for orders
for maintenance under section 90SE or alteration of property interests under section
90SM, a necessary consideration in the making of that order will be the terms of any
Part VIIIAB financial agreement that is binding on either or both of the parties to the
subject de facto relationship - see paragraph 90SF(3)(s).
Section 90SB - When this Division applies - length of relationship etc
128. Section 90SB creates a requirement that the court be satisfied, before making an
order under section 90SE (maintenance of a party to a de facto relationship), 90SG
(urgent maintenance) or 90SM (alteration of property interests), or a declaration of
property interests under section 90SL, that either:
- the relationship lasted for a period, or periods, totalling 2 years, or
- there is a child of the de facto relationship (defined in section 90RB), or
- the party to the de facto relationship who applies for the order or declaration
made substantial contributions of a kind mentioned in paragraph 90SM(4)(a),
(b) or (c) and serious injustice would result to that party if the order or
declaration was not made, or
27
- the de facto relationship is or was registered under a prescribed law of a State
or Territory.
129. This requirement does not arise in proceedings in relation to maintenance or
property of parties to a marriage under Part VIII, but is derived from equivalent
provisions operating under State law before the commencement of these provisions.
Section 90SC - This Division does not apply in relation to a de facto relationship if
the parties marry each other
130. Subsection 90SC(1) provides that Division 2 of Part VIIIAB ceases to apply in
relation to a de facto relationship if the parties to the de facto relationship later marry
each other. Upon marriage, Part VIII applies to the parties' financial affairs, and it is
appropriate to clarify that Part VIIIAB ceases to apply when Part VIII begins to apply,
except for the purpose of enforcement or variation to any previous exercise of Part
VIIIAB powers.
131. Subsection 90SC(2) provides for the continued operation of declarations, orders
or injunctions made in property settlement proceedings under Division 2 for the
purpose of enforcement, variation or setting aside, despite the operation of
subsection 90SC(1), and subsection 90SC(3) allows for a substituted order to be made
under Division 2 if the declaration, order or injunction is set aside. The provision
does not need to give continued effect to orders in relation to maintenance of a party
to a de facto relationship for enforcement or variation of those orders after the parties
marry each other, as those orders cease to have effect upon marriage of the party for
whose benefit the order was made - see section 90SJ.
Subdivision B - Maintenance
Section 90SD - Geographical requirement
132. Section 90SD establishes a geographical requirement of which the court must be
satisfied before making an order for maintenance or urgent maintenance in relation to
a de facto relationship. This is the same requirement imposed under section 90SK in
relation to orders and declarations about property, namely that:
- paragraph 90SD(1)(a): either or both of the parties to the de facto relationship
were ordinarily resident in a participating jurisdiction when the application for
the order was made, and
- paragraph 90SD(1)(b): either (i) both parties to the de facto relationship were
ordinarily resident during at least a third of the de facto relationship, or (ii) the
applicant for the order made substantial contributions, in relation to the
de facto relationship, of a kind mentioned in paragraph 90SM(4)(a), (b) or (c).
133. The residence or contribution described in paragraph 90SD(1)(b) must be in a
State that is a participating jurisdiction when the application was made, however it is
not necessary that the State was a participating jurisdiction during the de facto
relationship. This allows for residence or contributions to be accumulated for the
purpose of paragraph 90SD(1)(b) in a State that referred powers to qualify as a
28
participating jurisdiction after commencement of the Bill but before the maintenance
application was made under Subdivision C of Division 2 of Part VIIIAB.
134. Subsection 90SD(3) provides that the geographical requirement in paragraph
90SD(1)(b) will not apply from a date fixed by Proclamation. This will enable, once
all States have referred power to the Commonwealth over financial matters relating to
the parties to de facto relationships arising from the breakdown of those relationships,
the geographical requirement in section 90SD to be limited in relation to new
applications for a spouse maintenance order to the ordinary residence of one or both
of the parties to the relationship when the application for the order is made. The
requirement in paragraph 90SD(1)(b) will revive if, following the giving to the
Commonwealth of those references, one State terminates its reference.
Section 90SE - Power of court in maintenance proceedings
135. Section 90SE provides that, after the breakdown of a de facto relationship, the
court can make such order as it considers proper for the maintenance of one of the
parties to the de facto relationship in accordance with Division 2. This largely
replicates the effect of section 74 in relation to parties to a marriage under Part VIII,
including provisions in subsections 90SE(2) to (8) dealing with the interaction of
family law and bankruptcy proceedings and the role of the bankruptcy trustee as a
party to maintenance proceedings.
136. A significant difference in the operation of section 74 and section 90SE is that
section 90SE de facto maintenance orders can only be made after the breakdown of a
de facto relationship, and in accordance with other requirements that must be
established for the operation of Division 2, including section 90SB and subsection
44(5) and (6) requirements. De facto maintenance orders can only be made after the
breakdown of the relationship due to the terms of referred powers, relating to de facto
financial matters arising on the breakdown of the relationship.
Section 90SF - Matters to be taken into consideration in relation to maintenance
137. Section 90SF provides for the principle that courts must apply in exercising
jurisdiction to make an order under section 90SE for the maintenance of a party to a
de facto relationship which has broken down.
138. The principle, set out in subsection 90SF(1), is that a party to a de facto
relationship must maintain the other party to the relationship only to the extent he or
she is reasonably able to do so. Also, this is only if that other party is unable to
support himself or herself adequately by reason of having the care and control of a
child of the relationship under 18 years, his or her age or physical or mental
incapacity for appropriate gainful employment or for any other adequate reason.
139. In applying the principle, courts must take into account the matters set out in
subsection 90SF(3). These matters replicate, for de facto spouse maintenance
proceedings, the matters which courts are required under subsection 75(2) to take into
account in proceedings for the maintenance of a party to a marriage. Paragraphs
90SF(3)(o), (p) and (s) are replicated in equivalent amendments to subsection 75(2),
explained above, to require consideration of the terms of orders or declarations that
are made or proposed to be made under Part VIIIAB or Part VIII. Also to be
29
considered are the terms of any Part VIIIAB financial agreement that is binding on
one of the parties to the subject relationship, as a mechanism for recognising and
preserving the interests of other parties in related matters.
140. The reference in paragraph 90SF(3)(o) to an order or declaration `proposed to be
made' under Part VIIIAB would only extend to orders or declarations that are capable
of being made under that Part - that is, if the requirements for orders or declarations
under that Part can be satisfied, including time limits under subsection 44(5), and
geographical requirements under sections 90SD or 90SK.
Section 90SG - Urgent maintenance cases
141. Section 90SG provides for the court, in proceedings with respect to the
maintenance of a party to a de facto relationship in accordance with Division 1 of
Part VIIIAB, to order payment of urgent maintenance, pending the disposal of the
substantive maintenance proceedings. The note is a reminder that the geographical
requirements in section 90SD, and other requirements in section 90SB, must be
satisfied for the court to make an order under section 90SG for urgent maintenance.
Section 90SH - Specification in orders of payments etc. for maintenance purposes
142. Section 90SH requires that an order requiring the payment of a lump sum or
transfer of property for the maintenance of a party to the relationship must specify that
it is an order to which section 90SH applies, and the proportion of the payment or
transfer attributable to that maintenance.
Section 90SI - Modification of maintenance orders
143. Section 90SI provides for modification of de facto spouse maintenance orders.
Subsection 90SI(3) sets out the matters of which the court must be satisfied before
making an order modifying the original maintenance order. These matters are
currently required to be taken into account by courts before making an order for the
modification of an order for the maintenance of a party to a marriage.
144. Subparagraph 90SI(3)(a)(i) allows for modification of a de facto maintenance
order if the court is satisfied that the payee's circumstances have changed, including
the person entering into a stable and continuing de facto relationship. A similar
ground for modification of spousal maintenance orders is introduced by an
amendment to subsection 83(2), explained above.
Section 90SJ - Cessation of maintenance orders
145. Section 90SJ provides for cessation of maintenance orders made under
Division 2 of Part VIIIAB, if the payer or the payee dies, or if the payee marries
(unless the court otherwise orders in special circumstances). Subsection 90SJ(2) is
broadly worded, and would include the situation where the payee and the payer later
marry each other, which would cease the operation of the de facto maintenance order.
30
Subdivision C - Declarations and alterations of property interests
146. Subdivision C contains provisions enabling the court to make a declaration of
property interests and orders altering the property interests of parties to de facto
relationships.
Section 90SK - Geographical requirement
147. Section 90SK establishes a geographical requirement of which the court must be
satisfied before making an order or declaration about property in relation to a de facto
relationship. This is the same requirement imposed under section 90SD in relation to
orders for maintenance or urgent maintenance, namely that:
- paragraph 90SK(1)(a): either or both of the parties to the de facto relationship
were ordinarily resident in a participating jurisdiction when the application for
the order was made, and
- paragraph 90SK(1)(b): either (i) both parties to the de facto relationship were
ordinarily resident during at least a third of the de facto relationship, or (ii) the
applicant for the order made substantial contributions, in relation to the
de facto relationship, of a kind mentioned in paragraph 90SM(4)(a), (b) or (c).
148. The residence or contribution described in paragraph 90SK(1)(b) must be in a
State that is a participating jurisdiction when the application was made, however it is
not necessary that the State was a participating jurisdiction during the de facto
relationship. This allows for residence or contributions to be accumulated for the
purpose of paragraph 90SK(1)(b) in a State that referred powers to qualify as a
participating jurisdiction after commencement of the Bill but before the application
for an order or declaration was made under sections 90SM or 90SL.
149. Subsection 90SK(3) provides that the geographical requirement in paragraph
90SK(1)(b) will not apply from a date fixed by Proclamation. This will enable, once
all States have referred power to the Commonwealth over financial matters relating to
the parties to de facto relationships arising from the breakdown of those relationships,
the geographical requirement in section 90SK to be limited in relation to new
applications for an order declaring or altering property interests to the ordinary
residence of one or both of the parties to the relationship when the application for the
order is made. The requirement in paragraph 90SK(1)(b) will revive if, following the
giving to the Commonwealth of those references, one State terminates its reference.
Section 90SL - Declaration of interests in property
150. Section 90SL allows the court to declare the title or rights, if any, that a party
has in respect of property. The requirements (geographical, length of relationship etc)
in sections 90SK and 90SB must be satisfied before a declaration can be made under
this section.
Section 90SM - Alteration of property interests
151. Section 90SM provides for orders to be made, in proceedings after the
breakdown of a de facto relationship, as the court considers appropriate including an
order for a settlement of property in substitution for any interest in the property.
31
Subsection 90SM(4) sets out the factors that the court must take into account when
considering what property settlement order should be made under section 90SM, if
any.
152. The powers of the court under section 90SM also extend to making orders
altering the interests of the bankruptcy trustee in relation to vested bankruptcy
property, and orders requiring one or both of the parties to the de facto relationship or
the bankruptcy trustee to make a settlement or transfer of property for the benefit for
the benefit of either or both of the parties to a de facto relationship, or a child of the
relationship. Subsections 90SM(15) to (20) provide for the joining of related pending
proceedings by the trustee in bankruptcy and the trustee of a personal insolvency
agreement to the relevant section 90SM proceedings between the parties to the de
facto relationship.
153. Subsection 90SM(10) deals with persons who are entitled to become a party to
section 90SM property proceedings in relation to a de facto relationship. An
equivalent amendment is made to subsection 79(10) as explained above. Subsection
90SM(1) and the amendment to subsection 79(1) form part of the range of provisions
introduced by the Bill dealing with related matters.
154. Subsection 90SM(10) and amended subsection 79(10) allow for third party
involvement in de facto property proceedings by a person who is a creditor of a party
to the proceedings, and a party to another related de facto relationship or a related
marriage who may have affected interests that are actionable under Part VIIIAB or
Part VIII in their own right. Subsections 90SM(12) and (13) provide that a third party
in these circumstances may apply in the proceedings in their own right for an order
under section 90SM or a declaration under section 90SL, or equivalent orders or
declarations under sections 79 and 78 respectively, in relation to the de facto
relationship or marriage to which they are a party.
Section 90SN - Varying and setting aside orders altering property interests
155. Section 90SN allows for a person affected by a section 90SM order to apply for
variation or setting aside of that order. The court must be satisfied that one of a
number of specified grounds is established. The grounds are ones that apply under
section 79A to set aside an order under section 79 of the Act with respect to the
property of parties to a marriage.
Subdivision D - Notification of Application
156. This Subdivision sets out procedural matters that may be provided for in the
Rules of Court to require:
- notice by an applicant for an order, or a party to proceedings for an order,
under Division 2, to be given to a third party, or the bankruptcy trustee, or the
trustee of a personal insolvency agreement of the application: section 90SO
- notice by a bankrupt party to proceedings, or debtor subject to a personal
insolvency agreement who becomes a party to proceedings under section
90SE, 90SL, 90SM or 90SN to be given to the bankruptcy trustee: section
90SP
32
- notice by a party to a de facto relationship that has broken down who is a party
to proceedings for an order under Division 2, to be given to the court about a
party becoming a bankrupt or subject to a personal insolvency agreement, or
of the institution of proceedings under the Bankruptcy Act 1966:
subsections 90SQ(1) to (3)
- notice by the bankruptcy trustee of a bankrupt party to a de facto relationship
that has broken down to be given to the court of the trustee applying under
section 139A of the Bankruptcy Act 1966 for an order under Division 4A of
Part VI of that Act: subsection 90SQ(4), and
- notice by the bankruptcy trustee of a bankrupt party to a de facto relationship
to be given to a non-bankrupt de facto party of an application under section
139A of the Bankruptcy Act 1966 for an order under Division 4A of Part VI of
that Act in relation to an entity, if the bankruptcy trustee is aware that the
de facto relationship has broken down: section 90SR.
157. Sections 90SO to 90SR in Subdivision D of Division 2 of Part VIIIAB replicate,
for de facto property proceedings, the effect of section 79F to 79J in Part VIII
applicable to matrimonial property matters. Section 90SO, as with section 79F, will
apply to allow Rules of Court to provide for notice of property proceedings to be
given to persons whose interests may be affected by the outcome of those proceedings
in a related de facto relationship.
Subdivision E - Court powers
Section 90SS - General powers of court
158. Section 90SS sets out the powers of the court when making orders under
Division 2, in similar terms to the powers of the court under Part VIII in relation to
matrimonial matters. By application to Division 2, these powers apply to proceedings
for orders in relation to de facto maintenance and property, and for declarations of
property interests.
159. Subsections 114(3) to (7) of the Act provide supplementary injunctive powers to
a court exercising jurisdiction in proceedings other than proceedings between parties
to a marriage for an order in circumstances arising out of the marital relationship. The
effect of new subsections 90SS(5) to (11) is to replicate those section 114 injunctive
powers in section 90SS specifically for de facto financial proceedings under
Division 2. It also includes them in the range of powers available to the court when
making orders under that Division, without limiting the scope of other powers
available to the court under subsection 90SS(1).
Section 90ST - Duty of court to end financial relations
Section 90ST provides that in proceedings under Division 2, other than urgent
maintenance proceedings under section 90SL, the court must as far as practicable
make such orders as will finally determine the financial relationships between the
parties to the de facto relationship and avoid further proceedings between them.
33
Division 3 - Orders and injunctions binding third parties
160. Section 90TA provides for Part VIIIAA of the Act (the provisions of which
enable a court to bind persons other than a party to a marriage to give effect to
property settlements between parties to a marriage) to have, with necessary
modifications, an extended operation in relation to orders and injunctions, or
proceedings for orders or injunctions, under Division 2 of new Part VIIIAB relating to
the maintenance or property of parties to a de facto relationship.
Division 4 - Financial agreements
161. Division 4 of Part VIIIAB provides for binding financial agreements (Part
VIIIAB financial agreements) between parties to a de facto relationship.
162. A Part VIIIAB financial agreement can only deal with matters after the de facto
relationship to which the agreement relates has broken down (as confined by the
specific terms of referred State powers).
163. To qualify as a Part VIIIAB financial agreement made under section 90UB,
90UC or 90UD, the parties to the de facto relationship must meet the geographical
requirement under section 90UA that they be ordinarily resident in a participating
jurisdiction when they make the agreement.
164. Division 4 provides for agreements between parties to a de facto relationship
that qualify as a `Part VIIIAB financial agreement' to bind them. Division 2 of Part
VIIIAB interacts with Division 4, by excluding the operation of Division 2 in relation
to the matters dealt with in a `Part VIIIAB financial agreement' (see subsection
90SA(1), subject to subsection 90SA(2) in relation to vested bankruptcy property).
165. The agreements that can be recognised as a Part VIIIAB financial agreement
under Division 4 are agreements made about financial arrangements in the event of
the breakdown of a de facto relationship:
- under section 90UB, before a de facto relationship, dealing with how all or any
of the property or financial resources of either of them at the time when the
agreement is made, or at a later time and during the relationship, is to be
distributed, or dealing with the maintenance of either of them,
- under section 90UC, during a de facto relationship, dealing with how all or
any of the property or financial resources of either or both of them at the time
when the agreement is made, or at a later time and during the relationship, is to
be distributed, or dealing with the maintenance of either of them,
- under section 90UD, after the breakdown of a de facto relationship, dealing
with how all or any of the property or financial resources that either or both of
them had or acquired during the relationship is to be distributed, or dealing
with the maintenance of either of them, and
- under section 90UE, an agreement made under a non-referring State de facto
financial law that is taken to be a Part VIIIAB financial agreement in
circumstances set out in section 90UE, dealing with how all or any of the
34
property or financial resources that either or both of them had or acquired
during the relationship is to be distributed, or dealing with the maintenance of
either of them.
166. A Part VIIIAB financial agreement can include another person or persons as a
party to the agreement.
167. A Part VIIIAB financial agreement is binding when it is made, if made in
compliance with section 90UJ. The agreement will not, however, have force or effect
for the purposes of the Act, to the extent that it deals with the property or financial
resources of the spouse parties, unless a section 90UF separation declaration is made.
Section 90UE - Agreements made in non-referring States that become Part VIIIAB
financial agreements
168. Section 90UE makes special provision for the recognition of certain written
financial agreements made under State law in a non-referring State as if they were
Part VIIIAB financial agreements, if the parties to them can later meet the section
90UA geographical requirement during the life of the agreement and after
commencement of Part VIIIAB. This recognition is given to those agreements that
prevent a court making an order with respect to the matters covered by the agreement,
or that is inconsistent with the terms of the agreement. For this purpose the power the
court has to vary or set aside an agreement, or any one or more of its terms, is to be
disregarded. (There are equivalent transitional provisions in Part 2 of Schedule 1 that
recognise financial agreements made under the laws of a participating jurisdiction,
that deal with equivalent subject matter to Part VIIIAB financial agreements, as if
they were Part VIIIAB financial agreements).
Section 90UF - Need for separation declaration for certain provisions of financial
agreement to take effect
169. Section 90UF replicates the anti-avoidance effect of section 90DA in relation to
Part VIIIA financial agreements that was inserted by the Family Law Amendment
Act 2005 (No. 20/2005). The aim of the provision is to ensure that agreements
providing for post-separation arrangements concerning the property or financial
resources of the spouse parties to the agreement that are recognised as having effect
under the Act are genuine arrangements, and are not used to defeat the interests of
creditors. Section 90UF sets out specific requirements for the making of a separation
declaration for the agreement to have force and effect.
Section 90UG - Whether and when certain other provisions of financial agreements
take effect
170. Section 90UG provides that a binding Part VIIIAB financial agreement, to the
extent to which it provides for matters incidental or ancillary to how the property or
financial resources of the spouse parties are to be dealt with, is of no force or effect
unless or until the de facto relationship between the spouse parties breaks down.
35
Section 90UH - Requirements with respect to provisions in financial agreements
relating to the maintenance of a party or a child or children
171. Section 90UH provides that provisions of Part VIIIAB financial agreements that
relate to the maintenance of a party to the agreement or a child or children are void
unless they specify certain matters to identify the amount, or the value of the portion
of property, attributable to maintenance. Subsection 90UH(2) provides that
subsection (1) does not apply in relation to a section 90UE financial agreement, made
originally under State law in a non-referring State, that is later regarded as a
Part VIIIAB financial agreement.
Section 90UI - Certain provisions in financial agreements
172. Section 90UI provides an exception to the exclusion by a Part VIIIAB financial
agreement of the operation of provisions relating to maintenance of a party to a
de facto relationship. The exclusion operates if the party's circumstances when the
agreement came into effect would leave the party unable to adequately support
himself or herself without social security support.
Section 90UJ - When financial agreements are binding
173. Section 90UJ provides that a Part VIIIAB financial agreement is binding on the
parties to the agreement if:
- it is signed by all the parties
- certain procedural requirements are complied with, to ensure that the parties
entered into the agreement with independent legal advice, and that evidence of
that advice was contained in a certificate annexed to the agreement
- that the agreement has not been terminated and has not been set aside by a
court, and
- after it is signed, the original agreement is given to one of the spouse parties
and a copy is given to each other party.
174. Subsection 90UJ(2) provides that a Part VIIIAB financial agreement covered by
section 90UE is binding on the parties to the agreement if and only if the agreement
has not been terminated or set aside by a court. State laws applying to the making of
de facto financial agreements in substitution for justiciable remedies in relation to
maintenance and property adjustment have varying degrees of procedural
requirements that do not readily align with the formalities required under section
90UJ. Paragraph 90UM(1)(k) and subsection 90UM(5) allow a court in certain
circumstances to set aside a Part VIIIAB financial agreement covered by section
90UE if the procedural requirements under which it was made are not similar to those
under section 90UJ. The Bill, in this regard, aims to apply federal law as widely as
possible, consistent with the scope of the powers referred by States. The Bill also
attempts to maintain any reasonable expectation by parties to agreements made
outside the scope of federal law that their agreement will continue to be binding, even
if federal law later applies to regulate the legal effect of their agreements.
36
175. Subsection 90UJ(3) provides that a Part VIIIAB financial agreement ceases to
be binding if, after the making of the agreement, the parties to the agreement marry
each other. This is consistent with the effect of new section 90SC, that Division 2
ceases to apply in relation to a de facto relationship if the parties marry each other.
Parts VIII and VIIIA apply to the parties from the time they are married, with
different effect in some respects, and so it is appropriate that the parties' financial
matters be entirely and clearly governed by Part VIII and VIIIA.
176. Part VIIIA allows for the making of binding financial agreements made in
anticipation of marriage, and during and after marriage, with wider effect than the
Part VIIIAB financial agreements. It should be noted that Part VIIIA agreements can
be made in respect of arrangements for maintenance of a party to the marriage during
the marriage, while Part VIIIAB financial agreements are confined to dealing with
financial arrangements in the event of breakdown of the relationship.
Section 90UK - Effect of death of party to financial agreement
177. Section 90UK, dealing with the effect of death of a party to a Part VIIIAB
financial agreement, has similar effect to section 90H of Part VIIIA.
Section 90UL - Termination of financial agreement
178. Section 90UL, dealing with termination of a Part VIIIAB financial agreement,
has similar effect to section 90J of Part VIIIA.
Section 90UM - Circumstances in which court may set aside a financial agreement or
termination agreement
179. Section 90UM provides for the setting aside of Part VIIIAB financial
agreements and termination agreements. With one exception, the grounds for setting
aside a Part VIIIAB agreement are ones that apply under section 90K to set aside a
financial agreement or a termination agreement between parties to a marriage.
180. Section 90UM also provides one significant additional ground, as set out in
paragraph 90UM(1)(k) and subsection 90UM(5), specific for Part VIIIAB financial
agreements covered by section 90UE. This allows the court to set aside a
Part VIIIAB financial agreement covered by section 90UE if the agreement was not
compliant with procedural requirements similar to those set out in section 90UJ. It
must also be unjust and inequitable, having regard to how the agreement deals with
the parties' financial arrangements, if the court does not set the agreement aside.
Section 90UN - Validity, enforceability and effect of financial agreements and
termination agreements
181. Section 90UN replicates section 90KA in providing that the principles of law
and equity applicable in determining the validity, enforceability and effect of
contracts and purported contracts apply to determining whether a Part VIIIAB
financial agreement is valid, enforceable or effective.
37
Division 5 - Proceeds of crime and forfeiture
182. Division 5 of Part VIIIAB contains sections 90VA to 90VD, which replicate the
proceeds of crime and forfeiture provisions of Part VIII, with necessary modifications,
to apply to applications under Division 2 of new Part VIIIAB relating to the
maintenance or property of parties to a de facto relationship. Section 90VA contains,
in subsections 90VA(2) and (4) respectively, two criminal offences that now apply to
parties to de facto property settlement or maintenance proceedings under Part VIIIAB,
replicating similar offence provisions of Part VIII.
Division 6 - Instruments not liable to duty
Section 90WA - Certain instruments not liable to duty
183. Subsection 90WA(1) will provide exemption from duty or charge under State or
Territory, or Commonwealth law that applies only in relation to a Territory, for a deed
or other instrument executed under an order made under Division 2 of the Act. Also
exempted are Part VIIIAB financial agreements, Part VIIIAB termination agreements,
and deeds or other instruments executed under an order or financial agreement made
under Division 4.
184. Provisions relating to `relevant maintenance agreements' as mentioned in the
equivalent provision for married property arrangements, section 90 of the Act, have
not been replicated here as registration and approval of maintenance agreements were
repealed in 2000, and no such agreements will be made under the new de facto
financial matter provisions.
185. Paragraphs 90(1)(b) and (c) and subsections 90(2) and (3) of the Act will remain
unchanged, however, as they may apply to existing (very old) registered maintenance
agreements.
186. The exemption will not, under subsection 90WA(2), apply to a liability to pay
duty or charge in relation to a financial agreement made under the law of a
non-referring State that becomes a Part VIIIAB financial agreement under
section 90UE. This will be the case, provided the liability arose before the parties
acquired a geographic link with a participating jurisdiction.
187. Subsection 90WA(3) will override State and Territory laws which provide that
an instrument on which duty or charge has not been paid is not available for use in
law or equity for any purpose and may not be given in evidence in a court.
Item 51: Section 90MA
188. Section 90MA sets out the object of Part VIIIB of the Act. This item, as part of
the extension of the application of Part VIIIB to superannuation interests held by a
party to a de facto relationship, inserts the words `the parties to a de facto
relationship' in section 90MA to provide that the object of Part VIIIB is to allow
certain payments in respect of a superannuation interest to be allocated between the
parties to a marriage or the parties to a de facto relationship.
38
Items 52 and 53: Section 90MC, and at the end of section 90MC
189. Items 52 and 53 insert new subsection 90MC(2) to provide that a superannuation
interest is to be treated as property for the purposes of paragraph (c) of the definition
of `de facto financial cause' inserted by item 3 of Schedule 1 to the Bill. Under new
Division 2 of Part V, inserted by item 33 of Schedule 1 to the Bill, de facto financial
causes may be instituted in the Family Court of Australia, the Federal Magistrates
Court, the Supreme Court of the Northern Territory and courts of summary
jurisdiction of a participating jurisdiction. The effect of new subsection 90MC(2) is
that proceedings dealing with a superannuation interest of a party to a de facto
relationship will be able to be instituted in those courts.
Item 54: Section 90MD (definition of declaration time)
190. Sections 90MI and MP of the Act require that a separation declaration be made
before a superannuation agreement splitting or flagging a superannuation interest is
served on the trustee of a superannuation fund. A separation declaration need only be
signed by one of the parties to the agreement, and it is possible that both parties may
sign separate declarations. Item 54 amends the definition of `declaration time' in
section 90MD to clarify that there is a unique declaration time for each separation
declaration.
Item 55: Section 90MD (definition of spouse)
191. This item, as part of the extension of the application of Part VIIIB to
superannuation interests held by a party to a de facto relationship, inserts the words
`the parties to a de facto relationship' in the definition of `spouse' in section 90MD.
Item 56: Section 90MD (definition of superannuation agreement)
192. Like the position in relation to superannuation agreements between parties to a
marriage, a superannuation agreement between parties to a de facto relationship will
form part of a more general financial agreement, dealing with the distribution of
property on the breakdown of the relationship.
193. New section 90MHA, inserted by item 59 of Schedule 1 to the Bill, and
replicating a provision in similar terms (section 90MH) applying in relation to
superannuation agreements between parties to a marriage, will provide that:
- a Part VIIIAB financial agreement between parties to a de facto relationship
may include an agreement that deals with superannuation interests of either or
both of the parties to the agreement as if those interests were property, and
- the provisions of that Part VIIIAB financial agreement that deal with
superannuation interests is a superannuation agreement for the purposes of
Part VIIIB.
194. Item 56 amends the definition of `superannuation agreement' in section 90MD
to provide that a superannuation agreement has, in addition to the meaning given by
section 90MH (which is the meaning that the term has when the agreement is between
parties to a marriage), the meaning given by section 90MHA.
39
Items 57 and 58: After subsection 90MG(1), and subsection 90MG(2)
195. As part of the extension of the application of Part VIIIB to superannuation
interests held by a party to a de facto relationship, these items insert:
- new subsection 90MG(1A) to provide that a Part VIIIAB financial agreement,
between parties to a de facto relationship, is in force at any time that it is
binding on the parties in accordance with section 90UJ (in new Division 4 of
Part VIIIAB, inserted by item 50 of Schedule 1 of the Bill), and
- the words `or relevant Part VIIIAB financial agreement' in subsection
90MG(2), to provide that a superannuation agreement is in force at any time
when the relevant Part VIIIAB financial agreement is in force.
Item 59: After 90MH
196. This item, as part of the extension of the application of Part VIIIB to
superannuation interests held by a party to a de facto relationship, inserts new section
90MHA.
197. Like the position in relation to superannuation agreements between parties to a
marriage, a superannuation agreement between parties to a de facto relationship will
form part of a more general financial agreement, dealing with the distribution of
property on the breakdown of the relationship.
198. New section 90MHA provides, replicating a provision in similar terms (section
90MH) applying in relation to superannuation agreements between parties to a
marriage, that:
- a Part VIIIAB financial agreement may include an agreement that deals with
superannuation interests of either or both of the parties to the agreement as if
those interests were property
- the provisions of that Part VIIIAB financial agreement that deal with
superannuation interests is a superannuation agreement for the purposes of
Part VIIIB
- a superannuation agreement will have effect only in accordance with Part
VIIIB and, in particular, will not be able to be enforced under the provisions
of Part VIIIAB relating to financial agreements between parties to a de facto
relationship
- a superannuation agreement that is included in a financial agreement made in
contemplation of a de facto relationship will have no effect until the parties
enter into that relationship, and
- a superannuation interest of a party to a Part VIIIAB financial agreement is
treated as having been acquired at the time when that party first becomes a
member of the eligible superannuation plan in respect of that interest.
40
Item 60: Before paragraph 90MJ(1)(e)
199. This item inserts new paragraph 90MJ(1)(db) to ensure that, where a
superannuation agreement or a flag lifting agreement relates to a de facto relationship,
a split pursuant to subsection 90MJ(3) of a future payment in respect of a
superannuation interest to which the agreement relates only operates if the de facto
relationship is broken down at the time that the agreement commences to operate. A
flag lifting agreement is defined in section 90MN of the Family Law Act as an
agreement the spouses may make at any time when a payment flag is operating on a
superannuation interest.
Item 61: Subsection 90MK(2) (paragraph (a) of the definition of service time)
200. This item replaces paragraph (a) of the definition of `service time' in subsection
90MK(2) with new paragraphs (a) and (aa) to reflect that a superannuation agreement
may be made between parties to a de facto relationship.
Items 62 and 63: Section 90MM, and at the end of section 90MM
201. Items 62 and 63 insert new subsection 90MM(2) to provide that, if a court sets
aside a Part VIIIAB financial agreement between parties to a de facto relationship
providing that a superannuation interest is to be subject to a payment flag, the court
may also make an order terminating the flag.
Item 64: Subsection 90MN(4)
202. This item inserts new subparagraph 90MN(4)(b) to provide that a court may set
aside a flag lifting agreement or a termination agreement on a ground (other the one
set out in paragraph 90UM(1)(i)) on which it is able to set aside a Part VIIIAB
financial agreement between parties to a de facto relationship.
203. A flag lifting agreement is one made by parties to an earlier superannuation
agreement, providing that a superannuation interest is to be subject to a payment flag,
that the flag is to cease to operate.
204. A termination agreement is one made by parties to a financial agreement, which
can include a payment flag, that terminates that agreement.
205. The ground set out in paragraph 90UM(1)(i) provides that a court may set aside
a financial agreement where there is no reasonable likelihood that a payment flag
operating under Part VIIIB on a superannuation interest covered by the agreement
will be terminated by a flag lifting agreement. That ground is predicated on there
being a payment flag in operation, which there will not be if it has been terminated by
the flag lifting agreement or the termination agreement.
Item 65: At the end of subsection 90MN(5)
206. This item, as part of the extension of the application of Part VIIIB to
superannuation interests held by a party to a de facto relationship, inserts the words
`or Part VIIIAB financial agreement' at the end of subsection 90MN(5). This
provides that an order setting aside a flag lifting agreement also operates to set aside
the related Part VIIIAB financial agreement between parties to a de facto relationship.
41
Item 66: At the end of section 90MN
207. This item inserts new subsection 90MN(7) to provide that an order under section
90UM setting aside a Part VIIIAB financial agreement also operates to set aside the
related flag lifting agreement.
Item 67: Subsection 90MO(1)
208. This item, as part of the extension of the application of Part VIIIB to
superannuation interests held by a party to a de facto relationship, inserts a reference
to section 90SM, the provision in new Part VIIIAB (being inserted by item 50 of
Schedule 1 to the Bill) providing for the alteration of property interests, in
section 90MO.
209. Including the reference will prohibit courts from making an order under section
90SM with respect to a superannuation interest if it is covered by a superannuation
agreement that is in force. It also covers where a payment flag is operating on the
interest or the interest has been earlier split under an agreement and entitlements
under that split have been waived.
Items 68 to 71: After subsection 90MP(2), subsection 90MP(5), subsection
90MP(6), and at the end of section 90MP
210. Section 90MP sets out the requirements for separation declarations that are
required to accompany superannuation agreements when they are served on
superannuation fund trustees. Items 68 to 70 confine the existing requirements to
spouses who are married. Item 71 inserts new subsections 90MP(7) to (11) to
replicate those requirements for parties to a de facto relationship.
211. Different requirements relating to the content of a declaration apply depending
on whether section 90MQ applies to the declaration. Section 90MQ applies to the
declaration if the party whose interest is being split by the agreement has
superannuation interests totalling more than the low rate cap amount for the financial
year in which the declaration was signed. For the 2007-2008 income year, that
amount is $140,000. Concessional tax arrangements apply below that amount.
Items 72 to 75: Subsection 90MS(1), subsection 90MS(1) (note 1), at the end of
subsection 90MS(1), and subsection 90MS(2)
212. Section 90MS provides for courts, in proceedings under section 79 of the Act for
the alteration of the interests of parties to a marriage in their property, to make orders,
in accordance with Part VIIIB, in relation to superannuation interests of the parties.
213. As part of the extension of the application of Part VIIIB to superannuation
interests held by a party to a de facto relationship, items 72 and 75 insert references in
section 90MS to new section 90SM, which provides for the alteration of property
interests of parties to such a relationship. Item 73 makes a consequential change to a
note below section 90MS. Item 74 inserts a further note below section 90MS to draw
attention to limits to the type of orders that can be made under section 90SM, and the
circumstances in which they can be made.
42
Item 76: Subsection 90MV(1)
214. As part of the extension of the application of Part VIIIB to superannuation
interests held by a party to a de facto relationship, this item insert references to new
section 90SM in subsection 90MV(1). Subsection 90MV(1) enables a court, in
proceedings under section 79 of the Act for the alteration of the interests of parties to
a marriage in their property, to make an order terminating a payment split.
Items 77 and 78: Subsection 90MX(3) (example), and at the end of subsection
90MX(3)
215. These items insert an additional example below section 90MX, setting out how
Part VIIIB would apply to a splittable payment of $100 payable in respect of an
interest that is subject to three payment splits in respect of a member spouse's
marriage and earlier de facto relationships.
Item 79: Subsection 105(2A)
216. Subsection 105(2A) makes it clear that the requirement in subsection 105(2),
that a court cannot hear enforcement proceedings in relation to a decree of another
court without the decree being registered in the court hearing the proceedings, does
not prevent the court making an order enforcing a financial agreement between parties
to a marriage.
217. Such an agreement can, under paragraph 90KA(c), be enforced as if it were an
order of a court.
218. This item inserts in subsection 105(2A) a reference to paragraph 90UN(c), the
equivalent provision in Part VIIIAB to paragraph 90KA(c), to make it clear that
subsection 105(2) does not prevent the court making an order enforcing a Part VIIIAB
financial agreement between parties to a de facto relationship.
Items 80 and 81: Paragraph 106B(1A)(a), and paragraph 106B(1B)(a)
219. Subsections 106B(1A) and (1B) enable courts to set aside or restrain the making
of an instrument or disposition made by:
- a bankrupt party to a marriage, or
- a party to a marriage who is a debtor subject to a personal insolvency
agreement,
to defeat an existing or anticipated order in proceedings under the Act.
220. This item inserts the words `, or a party to a de facto relationship,' in each of
paragraphs 106B(1A)(a) and (1B)(a) to enable courts to set aside those instruments or
dispositions where they are made by a bankrupt party to a de facto relationship, or a
such a party who is a debtor subject to a personal insolvency agreement.
43
Item 82: Subsection 106B(4A)
221. Subsection 106B(4A) provides that in addition to the powers the court has under
section 106B, the court may also exercise the general powers of court provided under
subsection 80(1) in relation to orders under Part VIII. These powers include orders
requiring:
- payments of lump sums or period sums, which may be wholly or partly
secured as the court directs
- a specified transfer or settlement of property be made by way of maintenance
for a party to a marriage
- the execution of any necessary deed or instrument
- the appointment or removal of trustees, or
- payments direct to a party to the marriage, to a trustee or to a public authority
for the benefit of a party to the marriage.
222. This item inserts into subsection 106B(4A) a reference to subsection 90SS(1)
which provides an equivalent provision to subsection 80(1) in relation to orders under
Part VIIIAB.
Item 83: At the end of subsection 107(1)
223. This item amends section 107, by inserting the words `or de facto financial
cause' at the end of subsection 107(1), so that section 107 prevents a person from
being imprisoned or otherwise placed in custody for contravention of an order for the
payment of money made in a de facto financial cause. Subsection 107(1) currently
prevents a person from being punished in that way for contravention of such an order
made in a matrimonial cause.
Item 84: Section 112AA (paragraph (b) of the definition of order under this Act)
224. This item amends paragraph (b) of the definition of `order under this Act' in
section 112AA, which defines terms used in the provisions of Part XIIIA. Part XIIIA
enables sanctions to be imposed for failure to comply with orders made under the Act
other than those relating to children.
225. Paragraph (b) currently includes an injunction granted under section 114 of the
Act, except so far as it relates to the protection of a child, within the definition.
Section 114 enables injunctions to be granted in proceedings for an order in
circumstances arising out of a marital relationship.
226. The item amends paragraph (b) to also include an injunction granted under new
section 90ST, except so far as it relates to the protection of a child, within the
definition of the term. New section 90SS enables an injunction to be granted in
proceedings under new Part VIIIAB between parties to a de facto relationship.
44
Part 2 - Transitional provisions
227. Part 2 of Schedule 1 to the Bill contains transitional provisions relating to the
application of the amendments made by the Bill to de facto relationships to which
State or Territory laws currently apply.
Division 1 - Introduction
Item 85: Interpretation
228. This item sets out definitions of terms for the purpose of Part 2 of Schedule 1, in
particular: `commencement', `earlier participating jurisdiction', `later participating
jurisdiction', `new Act', `Part VIIIB', `preserved law' and `transition time'.
Division 2 - New Act does not apply to de facto relationships breaking down before
commencement
Item 86: De facto relationships that broke down before commencement
229. This item provides that Parts VIIIAB and VIIIB of the new Act, containing
provisions relating to de facto financial matters, do not extend to a de facto
relationship that broke down before commencement of new Part VIIIAB.
Division 3 - De facto relationships linked to earlier participating jurisdictions
230. Division 3 of Part 2 of Schedule 1 to the Bill provides for the application of
federal law under the amendments made by the Bill in relation to certain agreements
made in a State or Territory that are participating jurisdictions at commencement of
new Part VIIIAB.
Item 87: Pre-commencement agreements - made in contemplation of de facto
relationships
231. This item provides that federal law under the amendments made by the Bill will
apply to certain written financial agreements made before commencement of new Part
VIIIAB under the law of a State or Territory that is a participating jurisdiction at that
commencement, as if they were Part VIIIAB financial agreements.
232. Federal law under the amendments made by the Bill will so apply to those
agreements that prevent a State or Territory court making an order that is inconsistent
with the terms of the agreement. For this purpose the power that a State or Territory
court has to vary or set aside the agreement, or any one or more of its provisions, is to
be disregarded.
233. These agreements will be able to be enforced or, where the parties agree,
terminated, under Part VIIIAB of the Family Law Act 1975 as if they were agreements
made under that Part. A court will also, where a ground for doing so exists, be able to
set these agreements aside. Where an agreement was made under a law of a State or
Territory without complying with procedural requirements similar to those set out in
section 90UJ applying for Part VIIIAB financial agreements, the agreement can be set
45
aside on the additional ground set out in paragraph 90UM(1)(k) and subsection
90UM(5), explained above.
234. This item covers agreements made before commencement of new Part VIIIAB
in a participating jurisdiction, while agreements made before or after that
commencement in a non-referring State are addressed in section 90UE of the Act.
Those agreements will continue to be governed by State law unless they are
transformed into Part VIIIAB financial agreements under section 90UE, by the parties
acquiring a geographical nexus with a participating jurisdiction. Agreements made in
contemplation of a de facto relationship before or after commencement of new Part
VIIIAB in a non-referring State that subsequently becomes a participating jurisdiction
are covered by item 91.
Item 88: Pre-commencement agreements - made during de facto relationships
235. This item replicates the effect of item 87 for agreements, made in contemplation
of a de facto relationship before commencement of new Part VIIIAB under the law of
a State or Territory that is a participating jurisdiction at that commencement, for
written financial agreements made during de facto relationships. Agreements made
during a de facto relationship before or after commencement of new Part VIIIAB in a
non-referring State that subsequently becomes a participating jurisdiction are covered
by item 92.
Division 4 - De facto relationships linked to later participating jurisdictions
236. Division 4 of Part 2 of Schedule 1 to the Bill provides for the application of the
amendments made by the Bill to de facto relationships to which the law of a State that
is not a participating jurisdiction at commencement of new Part VIIAB applies, where
the State subsequently becomes a participating jurisdiction. Such a State will become
a participating jurisdiction following its referral of power to the Parliament of the
Commonwealth of financial matters relating to parties to de facto relationships arising
out of the breakdown of those relationships.
Item 89: When this Division applies
237. This item provides for the application of Division 4 of Part 2 of Schedule 1 to
the Bill where a State becomes a participating jurisdiction after the commencement of
new Part VIIIAB.
Item 90: De facto relationships that break down before transition time for a later
participating jurisdiction
238. This item provides that Parts VIIIAB and VIIIB of the new Act, containing
provisions relating to de facto financial matters, do not extend to a de facto
relationship that broke down before the State becomes a participating jurisdiction.
Item 91: Pre-transition time agreements - made in contemplation of de facto
relationships
239. This item provides that federal law under the amendments made by the Bill will
apply, after a State becomes a participating jurisdiction, to certain written financial
46
agreements made under a law of the State before that time, as if they were Part
VIIIAB financial agreements.
240. Federal law under the amendments in the Bill will so apply to those agreements
that prevent a State court making an order with respect to the matters covered by the
agreement, or that is inconsistent with the terms of the agreement. For this purpose
the power that a State court has to vary or set aside the agreement, or any one or more
of its provisions, is to be disregarded.
241. These agreements will be able to be enforced or, where the parties agree,
terminated, under Part VIIIAB of the Family Law Act 1975 as if they were agreements
made under that Part. A court will also, where a ground for doing so exists, be able to
set these agreements aside. Where an agreement was made under the law of a State
that becomes a participating jurisdiction without complying with procedural
requirements similar to those set out in section 90UI applying for Part VIIIAB
financial agreements, the agreement can be set aside on the additional ground set out
in paragraph 90UM(1)(k) and subsection 90UM(5), explained above.
Item 92: Pre-transition time agreements - made during de facto relationships
242. This item replicates the effect of item 91 for agreements, made in contemplation
of a de facto relationship under the law of a State that becomes a participating
jurisdiction after commencement of new Part VIIIAB, for written financial
agreements made during de facto relationships.
Division 5 - Application of new Act to transitioning agreements
Item 93: Application of new Act to agreements covered by this Part
243. This item sets out how the amendments under the Act apply or do not apply to
agreements made under a State or Territory law and covered by items 87, 88, 91 or
92.
244. Subitem 93(2) confirms that, despite any State or Territory law, a failure to
discharge a liability covered by paragraph (g) of subitem 1 - that is, a liability to pay
duty or charge in relation to the agreement if the liability arises before commencement
- has no effect for the purposes of the Act. In particular, the failure does not effect
whether the agreement may be presented as evidence in a court for the purposes of the
new Act. This addresses the situation where the law of the State or Territory operates
to link the fact of the making of an agreement under that law with a liability to pay
stamp duty or other charges on the agreement. Subitem 93(2) makes it clear that a
State or Territory law operating in such a way to the agreement does not have any
effect under federal law in a State or Territory that is a participating jurisdiction at the
commencement of new Part VIIIAB, or from the time any State subsequently
becomes a participating jurisdiction.
47
SCHEDULE 2 - CONSEQUENTIAL AMENDMENTS RELATING TO
DE FACTO FINANCIAL MATTERS
A New Tax System (Family Assistance) Act 1999
Item 1: Subparagraph 19(2)(c)(iii)
245. This item inserts the words `, a financial agreement (within the meaning of the
Family Law Act 1975), a Part VIIIAB financial agreement (within the meaning of that
Act)' in subparagraph 19(2)(c)(iii) of the A New Tax System (Family Assistance) Act
1999. This amendment ensures that a consistent approach to the treatment of sources
of maintenance is made to all financial agreements made under the Family Law Act
for the purpose of the A New Tax System (Family Assistance) Act.
Item 2: Subparagraph 20A(10)(b)(iii) of Schedule 1
246. This item inserts the words `, or Part VIIIAB financial agreement,' in
subparagraph 20A(10)(b)(iii) of Schedule 1 to the A New Tax System (Family
Assistance) Act 1999. This will ensure that financial agreements between parties to a
de facto relationship made under new Part VIIIAB are included in the definition of a
`maintenance liability' for the purposes of determining the annualised amount of
maintenance income of a person under that Act.
Item 3: Subparagraph 24(3)(a)(iii) of Schedule 1
247. This item inserts the words `, or Part VIIIAB financial agreement,' in
subparagraph 24(3)(a)(iii) of Schedule 1 to the A New Tax System (Family Assistance)
Act 1999 to include a reference, in section 24 of that Act, to financial agreements
between parties to a de facto relationship made under new Part VIIIAB. Section 24 of
the A New Tax System (Family Assistance) Act apportions, for the purposes of that
Act, capitalised maintenance income, received by a person, over the period for which
it was received.
Bankruptcy Act 1966
Item 4: Subsection 5(1) (definition of maintenance agreement)
248. This item inserts the words `, or Part VIIIAB financial agreement,' into the
definition of `maintenance agreement' in subsection 5(1) of the Bankruptcy Act 1966.
This amendment extends the definition of maintenance agreement to make it clear that
financial agreements between parties to a de facto relationship made under
Part VIIIAB of the Family Law Act 1975 are not maintenance agreements under the
Bankruptcy Act.
Item 5, 6 and 7: After Subsection 35(1), subsection 35(2), and at the end of
section 35
249. These items insert new subsection 35(1A) in the Bankruptcy Act 1966. Where:
48
- a party to a de facto relationship is bankrupt, and
- the trustee of the bankrupt's estate is a party either to property settlement
proceedings under the Family Law Act 1975 in relation to the relationship or
to proceedings for the maintenance of the other party to the relationship, or
has applied to set aside or vary a property settlement order under that Act
new subsection 35(1A) will confer jurisdiction on the Family Court of Australia in
any matter connected with or arising out of the bankruptcy of the bankrupt party to the
de facto relationship.
250. Item 5 mirrors the existing provisions in subsection 35(1) of the
Bankruptcy Act 1966 providing the Family Court of Australia with concurrent
bankruptcy and family law jurisdiction where a party to a marriage is bankrupt.
Items 8 and 9: Subsection 35B(1), after subsection 35B(1)
251. Section 35B of the Bankruptcy Act 1966 confers the concurrent bankruptcy and
family law jurisdiction that the Family Court of Australia has on the Family Court of
Western Australia. The effect of these items is to limit that conferral on the Family
Court of Western Australia to concurrent bankruptcy and family law jurisdiction
where a party to a marriage is bankrupt. Western Australia has not referred powers on
financial matters relating to parties to a de facto relationship in the terms referred by
the several other States.
Item 10: Paragraph 40(1)(o)
252. This item amends paragraph 40(1)(o) of the Bankruptcy Act 1966 to provide that
a debtor commits an act of bankruptcy when he or she becomes insolvent as a result
of one or more transfers of property in accordance with a Part VIIIAB financial
agreement (within the meaning of the Family Law Act 1975).
Item 11: Section 59A
253. This item inserts a reference to new Part VIIIAB of the Family Law Act 1975
into section 59A of the Bankruptcy Act 1966 which provides that sections 58 and 59
of that Act, which deal with the vesting of property upon bankruptcy, or upon a
second or subsequent bankruptcy, have effect subject to an order under Part VIII of
the Family Law Act. The effect of this item is to provide that sections 58 and 59 of
the Bankruptcy Act also have effect subject to an order under new Part VIIIAB of the
Family Law Act.
Item 12: Paragraph 116(2)(q)
254. This item amends paragraph 116(2)(q) of the Bankruptcy Act 1966 to clarify that
property that a trustee of a bankrupt estate is required to transfer under an order under
Part VIII of the Family Law Act 1975 to a former spouse of the bankrupt after the
dissolution of their marriage is not property that is divisible amongst the creditors of
the bankrupt.
49
Item 13: At the end of subsection 116(2)
255. This item inserts new paragraph 116(2)(r) to provide that, any property that,
under an order under Part VIIIAB of the Family Law Act 1975, a trustee of a bankrupt
estate is required to transfer to a former de facto spouse of the bankrupt, is not
property that can be divisible amongst creditors of the bankrupt. This section
replicates existing provisions for parties to a de facto relationship.
Item 14: Paragraph 120(5)(e)
256. This item amends paragraph 120(5)(e) of the Bankruptcy Act 1966 to clarify that
a grant of a right of residence, by a person who later becomes bankrupt, to his or her
former spouse following the dissolution of their marriage, in property transferred to
that former spouse has no value as consideration, for the purposes of determining
whether it is void against the trustee of the bankrupt's estate as an undervalued
transaction, unless the transfer relates to a property settlement or agreement under the
Family Law Act 1975.
Item 15: At the end of subsection 120(5)
257. This item replicates, for parties to a de facto relationship, existing
paragraph 120(5)(e) of the Bankruptcy Act 1966. The effect of paragraph 120(5)(e) is
explained in the immediately preceding paragraph.
Item 16: Paragraph 121(6)(e)
258. This item amends paragraph 121(6)(e) of the Bankruptcy Act 1966 to clarify that
a grant of a right of residence, by a person who later becomes bankrupt, to his or her
former spouse following the dissolution of their marriage, in property transferred to
that former spouse has no value as consideration, for the purposes of determining
whether it is void against the trustee of the bankrupt's estate as one to defeat creditors,
unless the transfer relates to a property settlement or agreement under the Family Law
Act 1975.
Item 17: At the end of subsection 121(6)
259. This item replicates, for parties to a de facto relationship, existing
paragraph 121(6)(e) of the Bankruptcy Act 196. The effect of paragraph 121(6)(e) is
explained in the immediately preceding paragraph.
Item 18: Subsection 140(11)
260. This item amends subsection 140(11) of the Bankruptcy Act 1966 to provide that
the provisions of section 140 of that Act, relating to declaration and distribution of
dividends of the estate of a bankrupt amongst the bankrupt's creditors, have effect
subject to an order under new section 90SS made in proceedings under new
Part VIIIAB between parties to a de facto relationship.
261. Those provisions currently have effect subject to an order under section 114 of
the Family Law Act 1975 which deals with interlocutory injunctions.
50
Child Support (Assessment) Act 1989
Item 19: At the end of subsection 84(5)
262. This item inserts the words `a Part VIIIAB financial agreement (within the
meaning of that Act)' in subsection 84(5) of the Child Support (Assessment) Act 1989
so that it is clear that a child support agreement under that Act and a financial
agreement between parties to a de facto relationship made under Part VIIIAB of the
Family Law Act 1975 can be included in the one document.
Items 20 and 21: Paragraph 152(1)(b), and subsection 152(1)
263. These items extend the operation of section 152 of the Child Support
(Assessment) Act 1989 to include financial agreements between parties to a de facto
relationship made under Part VIIIAB of the Family Law Act 1975. Section 152 of the
Child Support (Assessment) Act ceases the effect of a court order, maintenance
agreement or financial agreement under which child support is payable, at the time
child support becomes payable under an administrative assessment under that Act.
Child Support (Registration and Collection) Act 1988
Item 22: Subsection 4(1) (at the end of subparagraph (a)(i) of the definition of
collection agency maintenance liability)
264. This item inserts the word `or', for consistency with modern drafting style, at the
end of subparagraph (a)(i) of the definition of `collection agency maintenance
liability' in subsection 4(1) of the Child Support (Registration and Collection) Act
1988.
Item 23: Subsection 4(1) (after subparagraph (a)(iii) of the definition of collection
agency maintenance liability)
265. This item inserts new subparagraph (a)(iv) in the definition of `collection agency
maintenance liability' in subsection 4(1) of the Child Support (Registration and
Collection) Act 1988 to include within that definition a liability of a party to a de facto
relationship to pay a periodic amount for the maintenance of the other party to the
relationship.
Item 24 and 25: Subsection 4(1) (definition of maintenance agreement)
266. These items extend the definition of a `maintenance agreement' contained in
subsection 4(1) of the Child Support (Registration and Collection) Act 1988 to
include agreements in writing that make provision in relation to the maintenance of a
party to a de facto relationship, including a financial agreement between parties to a
de facto relationship made under Part VIIIAB of the Family Law Act 1975.
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Item 26: Subsection 4(1)
267. This item inserts a definition of `party to a de facto relationship' in subsection
4(1) of the Child Support (Registration and Collection) Act 1988 having the same
meaning as in the Family Law Act 1975.
Item 27: Subsection 4(1) (after paragraph (d) of the definition of terminating
event)
268. This item inserts new paragraph (daa) in the definition of `terminating event' in
subsection 4(1) of the Child Support (Registration and Collection) Act 1988 to
provide that where an enforceable maintenance liability under that Act relates to the
maintenance of a party to a de facto relationship, the subsequent marriage of the
person is a terminating event unless otherwise specified in the relevant court order,
maintenance agreement or by force of law. New paragraph (da) replicates, for parties
to a de facto relationship, existing paragraph (d) of the definition .
Items 28 and 29: Section 18, at the end of section 18
269. These items replicate, for parties to a de facto relationship, existing section 18 of
the Child Support (Registration and Collection) Act 1988 which provides when a
liability is a registrable maintenance liability.
Item 30: At the end of subparagraph 112 (1)(b)(ii)
270. This item adds the word `or' at the end of subparagraph 112(1)(b)(ii), to connect
this subparagraph with new subparagraph 112(1)(b)(iii) inserted in the next item.
Item 31: After subparagraph 112(1)(b)(ii)
271. This item extends the operation of section 112 of the Child Support
(Registration and Collection) Act 1988 to parties to a de facto relationship by
inserting new subparagraph 112(1)(b)(iii) that replicates, for those parties, existing
subparagraph 112(1)(b)(ii). Section 112 requires that where, under the Family Law
Act 1975 or the law of a State or Territory, an order is made by, or registered in a
court, or a maintenance agreement is registered in or approved by a court and the
order or agreement makes provision for:
- the maintenance of a child; or
- the maintenance by a party to a marriage of the other party to a marriage; or
- the maintenance by a party to a de facto relationship of the other party to the
relationship
the registrar or other responsible officer of the court send a sealed copy of the order or
agreement to the Child Support Registrar within 28 days.
52
Federal Magistrates Act 1999
Item 32: Subparagraph 102(2)(l)(i)
272. This item amends subparagraph 102(2)(l)(i) of the Federal Magistrates Act 1999
to enable a Registrar of the Federal Magistrates Court to exercise the power of the
Court to make an urgent de facto spouse maintenance order under proposed new
section 90SG. Section 102 of the Federal Magistrates Act provides for a range of
powers of the Federal Magistrates Court to be exercised by a Registrar of the Court,
including the power under section 77 of the Family Law Act 1975 to make an urgent
spouse maintenance order.
First Home Saver Accounts Act 2008
Item 33: Section 18 (at the end of the definition of family law obligation)
273. This item will amend the definition of `family law obligation' in section 18 of
the First Home Saver Accounts Act 2008 (the FHSA Act). A first home saver account
will be able to be split by an order made under section 79 or section 90SM or in
accordance with a financial agreement made between parties to a marriage under Part
VIIIA of that Act. Generally, a first home saver account can only be split to a first
home saver account or a superannuation account held by a person to whom the
account holder is or has been married, or with whom the account holder has been in a
de facto relationship.
274. The effect of the amendment made by this item to the definition of `family law
obligation' in FHSA Act section 18 is to provide that a first home saver account will
be able to split in accordance with a financial agreement made between parties to a
de facto relationship under Part VIIIAB of the Family Law Act.
Income Tax Assessment Act 1997
Items 34 to 37: After paragraph 126-5(1)(d), subsection 126-5(3A), after
paragraph 126-15(1)(d), and subsection 126-15(5)
275. These items insert new paragraphs 126-5(1)(da) and 126-15(1)(da) in the
Income Tax Assessment Act 1997 (ITAA 1997), and amend ITAA 1997 subsections
126-5(3A) and 126-15(5). The amendments extend the capital gains tax (CGT)
marriage breakdown roll-over provided under ITAA 1997 Subdivision 126-A, now
applying for transfers of assets under a binding written agreement made between
parties to a de facto relationship under certain State or Territory laws, to transfer of
assets under:
- an agreement made between such parties under Part VIIIAB of the Family
Law Act 1975 that is binding under section 90UJ of that Act, and
- a corresponding written agreement that is binding under corresponding foreign
laws.
53
Items 38 to 41: Paragraph 126-140(2A)(h), paragraph 126-140(2B)(b), paragraph
126-140(2B)(c), and after paragraph 126-140(2B)(d)
276. These items insert new paragraphs 126-140(2B)(da) in the Income Tax
Assessment Act 1997 (ITAA 1997), and amend ITAA 1997 paragraphs
126-140(2B)(b) and (c). The amendments extend the capital gains tax (CGT)
marriage breakdown roll-over provided under ITAA 1997 Subdivision 126-D. ITAA
1997 Subdivision 126-D roll-over now applies for the transfer of an asset reflecting
the personal interest of a party to a de facto relationship in a small superannuation
fund from that fund to another complying superannuation fund in accordance with a
court order or a binding written agreement under certain State or Territory laws. The
amendments will extend that roll-over to the transfer of an asset of that character
between those funds in accordance with:
- a court order made under section 90SM of the Family Law Act 1975 (or under
subsection 90AE(2) or AF(2) of that Act as modified by section 90TA of that
Act), and
- an agreement made between the parties to the de facto relationship under Part
VIIIAB of the Family Law Act that is binding because of section 90UJ of that
Act.
Proceeds of Crime Act 2002
Items 42 and 43: After subparagraph 330(4)(ba)(i) and
subparagraph 330(4)(ba)(ii)
277. These items insert new subparagraph 330(4)(ba)(ia) and insert the words `, or
Part VIIIAB financial agreement,' in subparagraph 330(4)(ba)(ii) of the Proceeds of
Crime Act 2002 to exclude property distributed in accordance with:
- an order under the Family Law Act 1975 with respect to the property of the
parties to a de facto relationship, or
- a financial agreement between parties to a de facto relationship made under
Part VIIIAB of that Act
from being proceeds of or instruments of an offence, and subject to forfeiture under
the Proceeds of Crime Act, when six years has elapsed since that distribution.
Social Security Act 1991
Items 44 to 47: Subparagraphs 9A(2)(h)(iva), 9B(2)(h)(iva), 9BA(2)(f)(vi), and
paragraph 9C(b)
278. These items omit the word `spouse' and insert the word `partner' in
subparagraphs 9A(2)(h)(iva), 9B(2)(h)(iva), 9BA(2)(f)(vi), and paragraph 9C(b) of
the Social Security Act 1991.
54
Veterans' Entitlements Act 1986
Items 48 to 51: Subparagraph 5JA(2)(h)(iva), 5JB(2)(h)(iva), 5JBA(2)(f)(vi), and
paragraph 5JC(b)
279. These items omit the word `spouse' and insert the word `partner' in
subparagraphs 5JA(2)(h)(iva), 5JB(2)(h)(iva) and 5JBA(2)(f)(vi) of the Veterans'
Entitlements Act 1986.
Item 52: Subparagraph 51(3)(a)(ia)
280. This item inserts the words `, or Part VIIIAB financial agreements within the
meaning of' in subparagraph 51(3)(a)(ia) of the Veterans' Entitlements Act 1986 to
include a reference to financial agreements made between parties to a de facto
relationship under Part VIIIAB of the Family Law Act 1975 in section 51 of the
Veterans' Entitlements Act. Section 51 of the Veterans' Entitlements Act apportions,
for the purposes of that Act, capitalised maintenance income received by a person
over the period of time it was received.
55
SCHEDULE 3 - AMENDMENTS RELATING TO FINANCIAL
AGREEMENTS ABOUT MARRIAGE
Part 1 - Clarifying that other persons can be parties
Family Law Act 1975
281. A binding financial agreement enables persons intending to marry and married
couples to provide in writing for how property will be distributed between them on
marriage breakdown, and can be made to give effect to a property settlement on
separation or divorce.
282. The amendments in Part 1 of Schedule 3 clarify that:
- binding financial agreements between spouses can include another person (a
third party) as a party to the agreement, and
- a binding financial agreement can make provision on other matters beyond
those incidental or ancillary to property settlement or maintenance issues
between the spouses.
283. Financial agreements can be made in contemplation of a marriage, during a
marriage, or after a divorce order is made.
284. The amendments address issues that occasionally arise when the financial affairs
of married couples are intermingled with other family members, including where
family assets are held within a corporate or tax structure.
285. It is intended that a third party should only be able to be a party to a binding
financial agreement to the extent that the agreement provides for:
- how the property or financial resources of the spouses is to be dealt with in the
event of marriage breakdown, or
- the maintenance of one of them after that time.
Item 1 Subsection 4(1) (definition of spouse party)
286. This item inserts in subsection 4(1) a definition for `spouse party', being a party
to the marriage who is also a party to the financial agreement.
Item 2: Subsection 4(1) (definition of third party)
287. This item inserts in subsection 4(1) a definition for `third party', being a party to
the financial agreement who is not a spouse party.
Item 3: Paragraph 90B(1)(aa)
288. Section 90B deals with financial agreements made before marriage.
Subsection 90B(1) sets out the requirements for such agreements, including that at the
time of the making of the agreement, no other agreement is in force between the
56
parties with respect to any of those matters, whether made before marriage under this
section, during marriage under section 90C, or after a divorce order is made under
section 90D.
289. This item clarifies that at the time of the making of an agreement under
subsection 90B, there is to be no other agreement in force between the spouse parties
with respect to any of those matters, whether made before marriage under this section,
during marriage under section 90C, or after a divorce order is made under
section 90D.
Item 4: At the end of Subsection 90B(1)
290. This item clarifies that financial agreements made before marriage can include
persons other than a spouse party (a third party) as a party to the agreement.
Item 5: Subsection 90B(2)
291. Subsection 90B(2) provides that the matters that may be included in financial
agreements made before marriage are matters relating to:
- how all or any of the property or financial resources of the parties is to be dealt
with in the event of the breakdown of the marriage, and
- spouse maintenance for either of them during the marriage, or after divorce, or
both during the marriage and after divorce.
292. This item amends subsection 90B(2) to clarify that the property or financial
resources dealt with in the financial agreement is to be the property or financial
resources of the spouse parties.
Item 6: Subsections 90B(3) and (4):
293. Subsection 90B(3) provides that a financial agreement made before marriage
under subsection 90B(1) may contain matters incidental or ancillary to:
- how all or any of the property or financial resources of the parties is to be dealt
with in the event of the breakdown of the marriage, and
- spouse maintenance for either of them during the marriage, or after divorce, or
both during the marriage and after divorce.
294. This item extends the operation of subsection 90B(3) so that a financial
agreement made under subsection 90B(1) is able to contain matters other than those
incidental or ancillary to those mentioned in subsection 90B(2).
295. Subsection 90B(4) provides that a later financial agreement may terminate a
previous financial agreement made under subsection 90B(1) between the same parties.
This item also clarifies that under subsection 90B(4), a later financial agreement may
terminate a previous financial agreement made under subsection 90B(1) only if all the
parties to the previous agreement, including any party who is not a spouse party, are
parties to the new agreement.
57
Item 7: Paragraph 90C(1)(aa)
296. Section 90C deals with financial agreements made during marriage.
Subsection 90C(1) sets out the requirements for such agreements, including that at the
time of the making of the agreement, no other agreement is in force between the
parties with respect to any of those matters, whether made before marriage under
section 90B, during marriage under this section, or after a divorce order is made under
section 90D.
297. This item clarifies that at the time of the making of an agreement under
subsection 90C, there is to be no other agreement in force between the spouse parties
with respect to any of those matters, whether made before marriage under
section 90B, during marriage under this section, or after a divorce order is made under
section 90D.
Item 8: At the end of subsection 90C(1)
298. This item clarifies that a financial agreement made during marriage can include
other persons (third parties) to the agreement.
Item 9: Subsection 90C(2)
299. Subsection 90C(2) provides that the matters that may be included in financial
agreements made during marriage are matters relating to:
- how all or any of the property or financial resources of the parties is to be dealt
with in the event of the breakdown of the marriage, and
- spouse maintenance for either of them during the marriage, or after divorce, or
both during the marriage and after divorce.
300. This item amends subsection 90C(2) to clarify that the property or financial
resources dealt with in the financial agreement is to be the property or financial
resources of the spouse parties.
Item 10: Subsections 90C(3) and(4)
301. Subsection 90C(3) provides that a financial agreement made during marriage
under subsection 90C(1) may contain matters incidental or ancillary to:
- how all or any of the property or financial resources of the parties is to be dealt
with in the event of the breakdown of the marriage, and
- spouse maintenance for either of them during the marriage, or after divorce, or
both during the marriage and after divorce.
302. This item extends the operation of subsection 90C(3) so that a financial
agreement made under subsection 90C(1) is able to contain matters other than those
incidental or ancillary to those mentioned in subsection 90C(2).
303. Subsection 90C(4) provides that a later financial agreement may terminate a
previous financial agreement made under subsection 90C(1) between the same parties.
58
This item also clarifies that under subsection 90C(4), a later financial agreement may
terminate a previous financial agreement made under subsection 90C(1) only if all the
parties to the previous agreement, including any party who is not a spouse party, are
parties to the new agreement.
Item 11: Paragraph 90D(1)(aa)
304. Section 90D deals with financial agreements made after a divorce order is made.
Subsection 90D(1) sets out the requirements for such agreements, including that at the
time of the making of the agreement, no other agreement is in force between the
parties with respect to any of those matters, whether made before marriage under
section 90B, during marriage under section 90C, or after a divorce order is made
under this section.
305. This item clarifies that at the time of the making of an agreement under
subsection 90D, there is to be no other agreement in force between the spouse parties
with respect to any of those matters, whether made before marriage under
section 90B, during marriage under section 90C, or after a divorce order is made
under this section.
Item 12: Subsection 90D(1)
306. This item clarifies that a financial agreement made after a divorce order can
include other persons (third parties) to the agreement.
Item 13: Subsection 90D(2)
307. This item inserts the term `spouse parties', which is defined as a party to the
marriage who is also a party to the financial agreement.
308. Subsection 90D(2) provides that the matters that may be included in financial
agreements made after divorce are matters relating to:
- how all or any of the property or financial resources of the parties is to be dealt
with, and
- spouse maintenance for either of them.
309. This item amends subsection 90D(2) to clarify that the property or financial
resources dealt with in the financial agreement is to be the property or financial
resources of the spouse parties.
Item 14: Subsections 90D(3) and (4)
310. Subsection 90D(3) provides that a financial agreement made after divorce under
subsection 90D(1) may contain matters incidental or ancillary to:
- how all or any of the property or financial resources of the parties is to be dealt
with, and
- spouse maintenance for either of them.
59
311. This item extends the operation of subsection 90D(3) so that a financial
agreement made under subsection 90D(1) is able to contain matters other than those
incidental or ancillary to those mentioned in subsection 90D(2).
312. Subsection 90D(4) provides that a later financial agreement may terminate a
previous financial agreement made under subsection 90D(1) between the same
parties. This item also clarifies that under subsection 90D(4), a later financial
agreement may terminate a previous financial agreement made under
subsection 90D(1) only if all the parties to the previous agreement, including any
party who is not a spouse party, are parties to the new agreement.
Item 15: Subsections 90DA(3) and (4)
313. Subsection 90DA(1) provides that a financial agreement between two people is
of no force or effect until a separation declaration is made. Subsection 90DA(2) states
that a separation declaration is a written declaration that complies with
subsections 90DA(3) and 90DA(4).
314. Subsection 90DA(3) requires a separation declaration to be signed by at least
one of the parties to the financial agreement.
315. This item amends subsection 90DA(3) to clarify that the declaration must be
signed by one or both of the spouse parties.
316. Subsection 90DA(4) requires a separation declaration to state that the parties
have separated and are living separately and apart at the declaration time and, in the
opinion of the parties making the declaration, there is no reasonable likelihood of
cohabitation being resumed.
317. This item amends subsection 90DA(4) to clarify that the requirement relates to
spouse parties.
Item 16: Subsection 90DA(5) (definition of declaration time)
318. Subsection 90DA(5) defines the term `declaration time' for the purpose of
section 90DA to mean the time when the declaration was signed by a party to the
financial agreement (or last signed by a party to the agreement, if both parties to the
agreement have signed).
319. This item clarifies that the spouse parties must sign the declaration.
Item 17: After section 90DA
320. This item inserts new section 90DB to provide that a binding financial
agreement, to the extent to which it provides for a party to the agreement who is not a
spouse party to contribute to the maintenance of a spouse party during the marriage to
which the agreement relates, is of no force of effect. Any such agreement for a person
to contribute to the maintenance of a spouse party during marriage must be contained
in a separate agreement enforceable in a court of general jurisdiction.
321. New section 90DB also provides that a binding financial agreement, to extent to
which it provides for a matter beyond those incidental or ancillary to how the property
60
or financial resources of the spouse parties are dealt with on marriage breakdown or
the maintenance of the spouse parties, is of no force or effect unless or until the
marriage between the spouse parties breaks down.
Item 18: Section 90E
322. Section 90E provides that provisions of a financial agreement that relate to the
maintenance of a party to the agreement or a child or children are void unless they
specify certain matters to identify the amount, or the value of the portion of property,
attributable to maintenance.
323. This item clarifies that section 90E applies to provisions of a financial
agreement that relate to a spouse party to the agreement.
Item 19: Subsection 90F(2)
324. Subsection 90F(2) clarifies that a financial agreement providing for property or
financial resources of a party to the agreement to continue in the ownership of that
party is a financial agreement for the purposes of Part VIIIA of the Act.
325. This item clarifies that subsection 90F(2) applies where the financial agreement
contains a provision of that kind in relation to property or financial resources of a
spouse party to the agreement.
Item 20: Paragraph 90G(1)(a)
326. Section 90G provides for the requirements that need to be satisfied before a
financial agreement is binding on the parties to the agreement.
327. This item, by omitting `both' and substituting `all' in paragraph 90G(1)(a),
clarifies that an agreement must be signed or lawfully executed by all the parties to
the agreement.
Item 21: Paragraph 90G(1)(b)
328. Section 90G provides for the requirements that need to be satisfied before a
financial agreement is binding on the parties to the agreement.
329. This item, by omitting "`party' (first occurring)" in paragraph 90G(1)(b) and
substituting `spouse party', clarifies that the requirement to obtain legal advice prior
to signing a binding financial agreement applies only to spouse parties to the
agreement. A third party is treated differently from a spouse party to the agreement
because the requirement to obtain prior legal advice is not necessary for any third
party who, through signing a binding financial agreement, does not lose any existing
rights under the Family Law Act 1975.
Item 22: Paragraph 90G(1)(e)
330. Section 90G provides for the requirements that need to be satisfied before a
financial agreement is binding on the parties to the agreement.
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331. This item recasts paragraph 90G(1)(e) to require that the original of the financial
agreement must be given to one of the spouse parties and a copy given to each of the
other parties to the agreement.
Item 23: Paragraph 90J(2)(a)
332. Section 90J deals with the termination of financial agreements, reflecting a
policy that it is desirable, where the parties deal with all their property and financial
resources in a binding financial agreement, for courts under the Family Law Act 1975
to consider one agreement. Where new arrangements are subsequently negotiated,
parties are required to terminate all prior binding financial agreements, alleviating the
need for courts to go through a succession of documents to determine whether
Part VIII applies to the property or financial resources of parties to a marriage (see
section 71A). An agreement terminating a binding financial agreement is a
termination agreement. Subsection 90J(2) provides for the requirements that need to
be satisfied before a termination agreement is binding on the parties to the agreement.
333. This item amends paragraph 90J(2)(a) so that the provision requires a
termination agreement to be signed or lawfully executed by all of the parties to the
agreement.
Item 24: Paragraph 90J(2)(b)
334. This item, by omitting "`party' (first occurring)" in paragraph 90J(2)(b) and
substituting `spouse party', clarifies that the requirement to obtain legal advice prior
to signing a termination agreement applies only to spouse parties to the agreement.
Item 25: Paragraph 90J(2)(e)
335. This item recasts paragraph 90J(2)(e) to require that the original of the
termination agreement must be given to one of the spouse parties and a copy given to
each of the other parties to the agreement.
Item 26: Paragraph 90K(1)(aa)
336. Section 90K provides for the grounds on which a court may set aside a binding
financial agreement or a termination agreement. One such ground is where either
party to the agreement entered into the agreement for the purpose of defrauding or
defeating a creditor of the party.
337. This item amends paragraph 90K(1)(aa), so that the ground is available where
the agreement was entered into for the purpose of defrauding or defeating a creditor of
any party to the agreement.
Item 27: Subsection 90MH(1)
338. Subsection 90MH(1) provides that a financial agreement may include an
agreement that deals with the superannuation interests of either or both of the parties
to the agreement.
339. This item limits subsection 90MH(1) to superannuation interests of either or
both of the spouse parties to the agreement.
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Item 28: Subsection 90MH(4)
340. Subsection 90MH(4) provides that a superannuation agreement included in a
financial agreement made before marriage by persons contemplating marriage has no
effect until the parties marry.
341. This item clarifies that subsection 90MH(4) applies to spouse parties to the
financial agreement.
Item 29: Subsection 90MH(5)
342. Subsection 90MH(5) provides that for the purpose of applying particular
provisions in Part VIIIA of the Act to Part VIIIB of the Act, a superannuation interest
of a party to a financial agreement is treated as having been acquired at the time when
the party first became a member of the relevant eligible superannuation plan.
343. This item clarifies that subsection 90MH(5) applies to a superannuation interest
held by a spouse party to a financial agreement.
Part 2 - Separation declarations
Family Law Act 1975
344. The amendments to Part 2 of Schedule 3 make a number of amendments in
relation to separation declarations under Part VIIIA and Part VIIIB of the Act where
the parties to a financial agreement have divorced or the spouse to which the
declaration was made has died.
Item 30: Subsection 90DA(1)
345. Section 90DA sets out the requirements for the making of a separation
declaration under Part VIIIA of the Act before certain provisions of a financial
agreement can take effect.
346. This item, in new subsection 90DA(1A), clarifies that a separation declaration is
not necessary for the binding financial agreement to have force or effect if the spouse
parties divorce, or either or both of them die. The item also recasts subsection
90DA(1) to reflect that a person other than a spouse party to a financial agreement can
be a party to the agreement.
Item 31: Subsection 90DA(2)
347. This item amends subsection 90DA(2) to enable a separation declaration made
under Part VIIIA of the Act to be incorporated into a financial agreement. A financial
agreement may be made during the marriage to which it relates but after its
breakdown.
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Item 32: Section 90MD (at the end of the definition of declaration time)
348. The definition of `declaration time' in section 90MD provides that the term
means the time when the separation declaration was signed by a spouse (or last signed
by a spouse, if both spouses have signed). This item adds a note beneath the
definition of `declaration time' to clarify that where a spouse has died, the separation
declaration may be signed by the spouse's legal personal representative.
Items 33, 34 and 35: Section 90MI, paragraph 90MI(a), and at the end of section
90MI
349. These items amend paragraph 90MI(a) and insert new subsection 90MI(2),
consequential on the amendment to subsection 90DA(2) enabling a separation
declaration to be incorporated into a superannuation agreement.
Item 36: After paragraph 90MJ(1)(d)
350. Section 90MJ deals with payment splits under superannuation agreements or
flag lifting agreements. A flag lifting agreement is defined in section 90MN of the
Act as an agreement the spouses may make at any time when a payment flag is
operating on a superannuation interest.
351. Consequential on the insertion of new subsection 90MZG(4), explained below
in relation to item 41 of Schedule 3 to the Bill, it is necessary to remove the
possibility that a superannuation agreement might be used to split superannuation
where the spouse's marriage had not in fact broken down before the spouse died.
352. This item inserts new paragraph 90MJ(1)(da) to ensure that, where a
superannuation agreement or a flag lifting agreement relates to a marriage, a split
pursuant to subsection 90MJ(3) of a future payment in respect of a superannuation
interest to which the agreement relates only operates if the marriage is broken down at
the time the agreement commences to operate.
Item 37: Subsection 90MP(1)
353. This item amends subsection 90MP(1) to enable a separation declaration made
under Part VIIIB of the Act to be incorporated into a superannuation agreement. A
superannuation agreement may be included in a financial agreement made during the
marriage to which it relates but after its breakdown.
Item 38: At the end of subsection 90MP(2)
354. This item amends subsection 90MP(2) to clarify that where a spouse has died,
the separation declaration may be signed by the spouse's legal personal
representative.
Item 39: After subsection 90MP(4)
355. This item inserts new subsection 90MP(4A) to amend the requirements for
separation declarations to allow for a situation where one or both of the spouses has
died.
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356. Paragraph 90MP(4A)(a) requires that where section 90MQ applies to the
separation declaration, the separation declaration must state that at the most recent
time when both spouses were alive:
- the spouses were married, but
- the spouses were separated and had lived separately and apart for a continuous
period of at least 12 months immediately before that time.
357. Paragraph 90MP(4A)(b) requires that where section 90MQ does not apply to the
separation declaration, the separation declaration must state that at the most recent
time when both spouses were alive, the spouses were married but separated.
Item 40: Subsection 90MQ(1)
358. Section 90MQ applies where the `total withdrawal value' is more than the
member spouse's `low rate cap amount' (determined in accordance with the Income
Tax Assessment Act 1997). For the 2007-2008 income year, that amount is $140,000.
The term `total withdrawal value' is defined in regulation 20 of the Family Law
(Superannuation) Regulations 2001 to mean the amount determined by adding
together the withdrawal benefits for each superannuation interest the member spouse
has in any eligible superannuation plan at that time. This item amends subsection
90MQ(1) consequential on new subsection 90MP(4A) inserted by item 39 of
Schedule 3 to the Bill.
Item 41: At the end of section 90MZG
359. Subsection 90MZG(1) provides that a person is guilty of an offence if he or she
makes a false or misleading statement in a superannuation declaration. This item
inserts new subsection 90MZG(4) having the effect that a person is not guilty of that
offence if the spouse to which the declaration relates died before the declaration was
made. Where that spouse has died, the declaration might be made by the deceased
spouse's legal personal representative. In those circumstances, criminal sanctions for
the making of a statement in the declaration are inappropriate given that the legal
personal representative will have no first hand knowledge of the state of the spouse's
marriage before he or she died.
Part 3 - Matrimonial causes
Family Law Act 1975
360. The amendments in Part 3 of Schedule 3 make provision in relation to the
jurisdiction of courts exercising jurisdiction under the Act in relation to financial
agreements.
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Item 42: Subsection 4(1) (paragraph (eaa) of the definition of matrimonial cause)
361. This item makes an amendment to paragraph (eaa) of the definition of
`matrimonial cause' in subsection 4(1) of the Act, the effect of which is that courts
can deal with matrimonial causes which are proceedings between any combination of
the parties to the agreement and the legal personal representatives of a party to the
agreement who has died. Under subsection 90H of the Act, a binding financial
agreement continues despite the death of a party to the agreement, and operates in
favour of, and is binding on, the legal personal representative of that deceased party.
Items 43 and 44: Paragraphs 4A(1)(a) and (b), and subsection 4A(2) (definition
of creditor)
362. This item makes amendments to section 4A of the Act, which provides for the
meaning of the term `third party proceedings' for the purpose of paragraph (eab) of
the definition of `matrimonial cause' in subsection 4(1) of the Act. Paragraph (eab) of
that definition provides that courts can deal with third party proceedings to set aside a
financial agreement. Third party proceedings are defined to mean proceedings
between particular persons or bodies to set aside a financial agreement on the ground
set out in paragraph 90K(1)(aa) of the Act. Paragraph 90K(1)(aa), as amended by
item 26 of Schedule 3 to the Bill, enables a financial agreement to be set aside where
a party to the agreement entered into the agreement for the purpose of defrauding or
defeating a creditor of the party. The particular persons or bodies between whom the
third party proceedings must be taken are one or both of the parties to the agreement
and a creditor or government agency acting in the interests of a creditor.
363. Item 43 extends the meaning of the term `third party proceedings' so that it also
includes proceedings between any combination of the parties to the agreement and the
legal personal representatives of a party to the agreement who has died and, in
addition to a creditor or a government body acting in the interests of a creditor, the
legal personal representative of a creditor who has died.
364. Item 44 extends the meaning of the term `creditor' for the purpose of the
meaning of the term `third party proceedings' so that it includes the legal personal
representative of any person who has died.
Part 4 - Other amendments
Family Law Act 1975
Item 45: Subsection 90F(2)
365. This item amends existing subsection 90F(2) of the Family Law Act 1975 to
ensure that it applies to all financial agreements that can be made under Part VIIIA,
correcting a technical omission of reference in the existing provision to agreements
made before marriage under subsection 90B(1).
366. The new provision that replicates section 90F for Part VIIIAB agreements,
subsection 90UH(3), also applies to the equivalent of subsection 90B(1) financial
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agreements - agreements made before the de facto relationship, under
subsection 90UB(1).
Item 46: Paragraph 90MU(1)(b)
367. This item amends paragraph 90MU(1)(b) to adjust the notification requirement
relating to splittable payments that become payable in respect of a superannuation
interest has been flagged by a court order to bring it into line with the requirement,
under subsection 90ML(5), relating to those payments when a superannuation interest
has been flagged by a superannuation agreement.
368. Currently, section 90MU requires the relevant superannuation fund trustee to
notify the court which made the flagging order of the next occasion when a splittable
payment becomes payable in respect of a superannuation interest it has flagged. Under
subsection 90ML(5), the relevant fund trustee is required to notify the spouse parties
in relation to splittable payments that become payable in respect of a superannuation
interest which has been flagged by a superannuation agreement. Where a
superannuation interest has been flagged by a court order, the court which made the
order may no longer have current contact details for the spouse parties, which are
more likely to be held by the fund.
369. Reflecting the requirement when a superannuation interest is flagged by a
superannuation agreement, the amendment made by this item will, when the
superannuation interest has been flagged by a court order, require the fund trustee to
notify the spouse parties.
Items 47 and 48: Subsection 90MZB(8) (after paragraph (a) of the definition of
eligible person), subsection 90MZB(8) (after paragraph (b) of the definition of
eligible person)
370. Section 90MZB provides for procedures permitting an `eligible person' to make
an application to a superannuation fund trustee for information about a superannuation
interest in the fund. An `eligible person' is defined, under subsection 90MZB(8) to
mean, in relation to a superannuation interest of a member of a superannuation fund,
the member, his or her former spouse, or a person intending to enter into a
superannuation agreement with the member.
371. These items amend subsection 90MZB(8) to include, as an `eligible person', the
legal personal representative of a member, or the spouse of a member, who has died.
372. Most of the information required, under Division 7.2 of the Family Law
(Superannuation) Regulations 2001, to be provided by a fund trustee in response to an
application, relates to the value of the superannuation interest. When property
settlement negotiations have led to court proceedings, and one of the spouses then
dies, the proceedings can be continued by or against the legal personal representative
of the spouse who has died. While information about the value of the spouse's
superannuation interest will have been earlier obtained, updating valuation
information will generally be required if the proceedings go to trial.
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SCHEDULE 4 - OTHER MEASURES
Family Law Act 1975
Item 1: At the end of subsection 60I(8)
373. This item inserts a new paragraph in subsection 60I(8)(d) of the Family Law Act
1975 to add an additional circumstance in which a family dispute resolution
practitioner may give a certificate to a person which can be filed with an application
to a court to hear an application for an order under Part VII of the Act as required
under subsection 60I(7).
374. The additional certificate is required to cover the situation where a family
dispute resolution practitioner becomes aware during the course of the family dispute
resolution that it would be inappropriate to continue the family dispute resolution due
to factors prescribed in the Family Law Regulations 1984. These are envisaged as
including:
- the history of violence (if any) among the parties
- the likely safety of the parties
- the equality of the bargaining power among the parties
- the risk that a child may suffer abuse
- the emotional, psychological and physical health of the parties, and
- any other matter that the family dispute resolution practitioner considers
relevant to the continuation of the family dispute resolution.
375. The certificate currently provided for in paragraph 60I(8)(aa) of the Act is
insufficient for this purpose as it only enables the issue of a certificate on these
grounds on the basis of the intake and assessment process that occurs prior to the
conduct of family dispute resolution.
Proceeds of Crime Act 2002
Item 2: Paragraph 330(4)(ba)
376. This item makes a drafting correction to the opening words of
paragraph 330(4)(ba) of the Proceeds of Crime Act 2002, to correct a grammatical
error in the original version of that Act. The commencement provisions in the table
set out in clause 2 of the Bill apply this amendment from the commencement of that
Act, in accordance with drafting practice for rectifying technical errors of a statute
law revision nature.
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