History of Legislation
4The Family Law Amendment (De Facto Financial Matters and Other Measures) Act 2008 (Cth) (" the Amendment Act ") came into effect on 1 March 2009. The Amendment Act inserted Part VIIIAB "Financial Matters Relating to De Facto Relationships" into the Family Law Act 1975 (Cth). This Part gives effect to agreements made between certain States of the Commonwealth, including New South Wales, to refer financial matters arising out of the breakdown of de facto relationships to the Commonwealth under the Constitution. The Amendment Act provides a mechanism for all the referred matters arising out of the breakdown of a de facto relationship to be brought by parties in the Family Court of Australia. The new Part VIIIAB of the Family Law Act provides the Family Court of Australia with broader discretionary powers with respect to the property and financial matters of parties to de facto relationships than exists under Property (Relationships) Act 1984, s 20. Some of these differences are briefly identified below. But the scope of these differences is of less relevance in the present application than the threshold question of whether Part VIIIAB applies in relation to Mr Davies and Ms Richardson's de facto relationship.
5The application of the new Part VIIIAB of the Family Law Act to de facto relationships is regulated by transitional provisions in the Amendment Act : Amendment Act , Schedule 1, Part 2. Item 86 of these transitional provisions relevantly provides:
"86. De facto relationships that broke down before commencement
(1) Subject to item 86A, Parts VIIIAB and VIIIB, and subsection 114(2A), of the new Act do not apply to a de facto relationship that broke down before commencement.
(2) To avoid doubt, section 90RC of the new Act does not exclude the operation of any State or Territory law in relation to the de facto relationship."
6"Commencement" is defined as meaning the commencement of Schedule 1 of the Amendment Act : cf Amendment Act , Schedule 1, Item 85. Schedule 1 commenced on 1 March 2009: Amendment Act , s 2(1).
7Item 86 is made subject to Item 86A. But Item 86A relates to the situation of parties to a relationship that admittedly broke down before commencement on 1 March 2009, where those parties choose in writing to have Part VIIIAB and other parts of the Family Law Act apply in relation to their de facto relationship: Item 86A. Mr Davies and Ms Richardson have not agreed in this case to have Family Law Act , Part VIIIAB apply to their de facto relationship. Item 86A has no application here. The Amendment Act does not define what the expression "broke down before commencement" means in 86(1). The Amendment Act adds to the Family Law Act a definition, in relation to "breakdown" that "(b) in relation to a de facto relationship by reason of death". But apart from this exclusion, the Amendment Act does not otherwise add to the ordinary meaning of the word. This is so even though the exercise of the Family Court of Australia's powers under Part VIIIAB are predicated upon the Court acting, "after the breakdown" of a de facto relationship.
8The meaning of "broke down before commencement" is clear enough. The Macquarie Dictionary relevantly defines break down as "to collapse" or "to cease to function". And the Shorter Oxford Dictionary defines "break down" as "the act of breaking and falling down; a collapse". As this case illustrates, relationships tend to decline over time. But the question whether a de facto relationship "broke down" before 1 March 2009 is really one of whether the de facto relationship had come to an end. That in my view can be determined readily by looking at the circumstances that the Court is required to examine under Property (Relationships) Act 1984, s 4 to determine whether or not a relationship exists on 1 March 2009. If the Court can determine under Property (Relationships) Act , s 4(2) that two persons are in a de facto relationship, then that conclusion is incompatible with the relationship having broken down. If the Court can no longer infer that two persons; who were once in a de facto relationship that satisfied the statutory criteria in Property (Relationships) Act , s 4(2), are still in such a relationship, then it is an apt use of language to say that their relationship has "broken down".
9In my view, the present task for the Court is to determine whether as at 1 March 2009 Mr Davies and Ms Richardson's relationship had ended, such that the relationship no longer qualified as a de facto relationship under Property (Relationships) Act , s 4. This approach is consistent with that adopted by Slack FM in Vine v Carney [2009] FMCA Fam 1017 [18] with which I respectfully agree.
10His Honour there said of the term "break down" in Schedule 1, Item 86:
"I consider though that the term breakdown in the context of the Act and having regard to the referral of powers by participating States, should be interpreted such that the Court, before exercising power under the Act, should be satisfied, according to the requisite standard of proof (the balance of probabilities), that the de facto relationship had broken down to the point that it had failed and had ended."
11A number of authorities discuss how the Court should approach the analysis of whether a de facto relationship continues to exist or has ended upon separation. These authorities show that the task can involve somewhat different analysis than that applicable when inferring the existence of a de facto relationship in the first place. These authorities are discussed below.
12But first it is useful to examine more closely the relevant provisions of the Amendment Act . The principally relevant sections that the Amendment Act introduced into the Family Law Act are as follows.
13Section 4AA(1) of the Family Law Act defines a de facto relationship in terms that closely parallel the requirements for such a relationship in the Property (Relationships) Act :
"Meaning of de facto relationship
(1) A person is in a de facto relationship with another person if:
(a) the persons are not legally married to each other; and
(b) the persons are not related by family (see subsection (6)); and
(c) having regard to all the circumstances of their relationship, they have a relationship as a couple living together on a genuine domestic basis. Paragraph (c) has effect subject to subsection (5). Working out if persons have a relationship as a couple.
(2) Those circumstances may include any or all of the following:
(a) the duration of the relationship;
(b) the nature and extent of their common residence;
(c) whether a sexual relationship exists;
(d) the degree of financial dependence or interdependence, and any arrangements for financial support, between them;
(e) the ownership, use and acquisition of their property;
(f) the degree of mutual commitment to a shared life;
(g) whether the relationship is or was registered under a prescribed law of a State or Territory as a prescribed kind of relationship;
(h) the care and support of children;
(i) the reputation and public aspects of the relationship."
14The possible relevant circumstances in section 4AA(2) differ from those in Property (Relationships) Act , s 4(2) only in one respect, which is not of great weight in the present case. Instead of paragraph 4AA(2)(g), Property (Relationships) Act , s 4 lists "the performance of household duties". Mr Davies and Ms Richardson's relationship was not registered under a prescribed law. The appropriate definition of a de facto relationship to which the Court must look to determine whether a de facto relationship has broken down is that under the Property (Relationships) Act . But in this case, as will be seen below, the result does not depend on whether special regard is had to the circumstances of the performance or otherwise of household duties.
15The Courts' powers under the Family Law Act to adjust the property of parties of a de facto relationship that breaks down after 1 March 2009 are wider than those that apply under the Property (Relationships) Act . Specifically under the new Part VIIIAB the Family Court of Australia has for example jurisdiction to take into account the future needs and any anticipated changes in the financial circumstances of the parties, powers not available under the Property (Relationships) Act . Some of these special features are set out in sections 90SL, 90SM(4) and (4) and 90SF(4).
16Section 90SL refers to declarations in relation to the rights and title of de facto partners after the breakdown of the de facto relationship:
"Declaration of interests in property
(1) In proceedings between the parties to a de facto relationship:
(a) after the breakdown of the de facto relationship; and
(b) with respect to existing title or rights in respect of property;
the court may declare the title or rights, if any, that a party has in respect of the property.
(2) If a court makes a declaration under subsection (1), it may make consequential orders to give effect to the declaration, including orders as to sale or partition and interim or permanent orders as to possession."
17Section 90SM(4) and (5) refers to the adjustment of interests in property between de facto partners where there has been a break down of the relationship:
"(4) In considering what order (if any) should be made under this section in property settlement proceedings, the court must take into account:
(a) the financial contribution made directly or indirectly by or on behalf of a party to the de facto relationship, or a child of the de facto relationship:
(i) to the acquisition, conservation or improvement of any of the property of the parties to the de facto relationship or either of them; or
(ii) otherwise in relation to any of that lastmentioned property; whether or not that lastmentioned property has, since the making of the contribution, ceased to be the property of the parties to the de facto relationship or either of them; and
(b) the contribution (other than a financial contribution) made directly or indirectly by or on behalf of a party to the de facto relationship, or a child of the de facto relationship:
(i) to the acquisition, conservation or improvement of any of the property of the parties to the de facto relationship or either of them; or
(ii) otherwise in relation to any of that lastmentioned property; whether or not that lastmentioned property has, since the making of the contribution, ceased to be the property of the parties to the de facto relationship or either of them; and
(c) the contribution made by a party to the de facto relationship to the welfare of the family constituted by the parties to the de facto relationship and any children of the de facto relationship, including any contribution made in the capacity of homemaker or parent; and
(d) the effect of any proposed order upon the earning capacity of either party to the de facto relationship; and
(e) the matters referred to in subsection 90SF(3) so far as they are relevant; and
(f) any other order made under this Act affecting a party to the de facto relationship or a child of the de facto relationship; and
(g) any child support under the Child Support (Assessment) Act 1989 that a party to the de facto relationship has provided, is to provide, or might be liable to provide in the future, for a child of the de facto relationship.
(5) Without limiting the power of any court to grant an adjournment in proceedings under this Act, if, in property settlement proceedings in relation to the parties to a de facto relationship, a court is of the opinion:
(a) that there is likely to be a significant change in the financial circumstances of the parties to the de facto relationship or either of them and that, having regard to the time when that change is likely to take place, it is reasonable to adjourn the proceedings; and
(b) that an order that the court could make with respect to:
(i) the property of the parties to the de facto relationship or either of them; or
(ii) the vested bankruptcy property in relation to a bankrupt de facto party to the de facto relationship;
if that significant change in financial circumstances occurs is more likely to do justice as between the parties to the de facto relationship than an order that the court could make immediately with respect to:
(iii) the property of the parties to the de facto relationship or either of them; or
(iv) the vested bankruptcy property in relation to a bankrupt party to the de facto relationship;
the court may, if so requested by either party to the de facto relationship or the relevant bankruptcy trustee (if any), adjourn the proceedings until such time, before the expiration of a period specified by the court, as that party to the de facto relationship or the relevant bankruptcy trustee, as the case may be, applies for the proceedings to be determined, but nothing in this subsection requires the court to adjourn any proceedings in any particular circumstances."
18Section 90SF(3) requires the Court to consider the future needs of the parties following the breakdown of a relationship. It relevantly provides:
"(3) The matters to be so taken into account are:
(a) the age and state of health of each of the parties to the de facto relationship (the subject de facto relationship ); and
(b) the income, property and financial resources of each of the parties and the physical and mental capacity of each of them for appropriate gainful employment; and
(c) whether either party has the care or control of a child of the de facto relationship who has not attained the age of 18 years; and
(d) commitments of each of the parties that are necessary to enable the party to support:
(i) himself or herself; and
(ii) a child or another person that the party has a duty to maintain; and
(e) the responsibilities of either party to support any other person; and
(f) subject to subsection (4), the eligibility of either party for a pension, allowance or benefit under:
(i) any law of the Commonwealth, of a State or Territory or of another country; or
(ii) any superannuation fund or scheme, whether the fund or scheme was established, or operates, within or outside Australia; and the rate of any such pension, allowance or benefit being paid to either party; and
(g) a standard of living that in all the circumstances is reasonable; and
(h) the extent to which the payment of maintenance to the party whose maintenance is under consideration would increase the earning capacity of that party by enabling that party to undertake a course of education or training or to establish himself or herself in a business or otherwise to obtain an adequate income; and
(i) the effect of any proposed order on the ability of a creditor of a party to recover the creditor's debt, so far as that effect is relevant; and
(j) the extent to which the party whose maintenance is under consideration has contributed to the income, earning capacity, property and financial resources of the other party; and
(k) the duration of the de facto relationship and the extent to which it has affected the earning capacity of the party whose maintenance is under consideration; and
(l) the need to protect a party who wishes to continue that party's role as a parent; and
(m) if either party is cohabiting with another person--the financial circumstances relating to the cohabitation; and
(n) the terms of any order made or proposed to be made under section 90SM in relation to:
(i) the property of the parties; or
(ii) vested bankruptcy property in relation to a bankrupt party; and
(o) the terms of any order or declaration made, or proposed to be made, under this Part in relation to:
(i) a party to the subject de facto relationship (in relation to another de facto relationship); or
(ii) a person who is a party to another de facto relationship with a party to the subject de facto relationship; or
(iii) the property of a person covered by subparagraph (i) and of a person covered by subparagraph (ii), or of either of them; or
(iv) vested bankruptcy property in relation to a person covered by subparagraph (i) or (ii); and
(p) the terms of any order or declaration made, or proposed to be made, under Part VIII in relation to:
(i) a party to the subject de facto relationship; or
(ii) a person who is a party to a marriage with a party to the subject de facto relationship; or
(iii) the property of a person covered by subparagraph (i) and of a person covered by subparagraph (ii), or of either of them; or
(iv) vested bankruptcy property in relation to a person covered by subparagraph (i) or (ii); and
(q) any child support under the Child Support (Assessment) Act 1989 that a party to the subject de facto relationship has provided, is to provide, or might be liable to provide in the future, for a child of the subject de facto relationship; and
(r) any fact or circumstance which, in the opinion of the court, the justice of the case requires to be taken into account; and
(s) the terms of any Part VIIIAB financial agreement that is binding on either or both of the parties to the subject de facto relationship; and the terms of any financial agreement that is binding on a party to the subject de facto relationship."
19Prior to the Amendment Act couples in de facto relationships were required to apply to the Local Court or the Supreme Court in New South Wales for determination of the division of property and payment of maintenance upon the breakdown of their relationships. But they had to apply to the Family Court of Australia for determination of child custody disputes. The Amendment Act is the legislative product of an agreement between the Commonwealth, States and Territories under the Constitution to refer the necessary powers to the Commonwealth to bring all family law issues associated with the breakdown of a de facto relationship into the federal family law regime. The Amendment Act was intended to simplify proceedings for parties involved in the breakdown of a de facto relationship. This was partly to reduce the need for couples to expend costs in litigating in two court systems. An incidental effect is said to be the reduction of the administrative burden on both the federal and state court systems.
20Part VIIIAB, s 90 RC of the Family Law Act gave the Family Court of Australia exclusive jurisdiction to hear and determine disputes between de facto couples whose relationship broke down after 1 March 2009:
" (1) De facto financial provisions In this section:
de facto financial provisions means the following provisions:
(a) this Part;
(b) Part VIIIAA (as applied by section 90TA);
(c) Part VIIIB, to the extent to which it relates to a superannuation interest to be allocated between the parties to a de facto relationship;
(d) subsection 114(2A).
(2) State and Territory laws do not apply to financial matters Parliament intends that the de facto financial provisions are to apply to the exclusion of any law of a State or Territory to the extent that the law:
(a) deals with financial matters relating to the parties to de facto relationships arising out of the breakdown of those de facto relationships; and
(b) deals with those matters by referring expressly to de facto relationships (regardless of how the State or Territory law describes those relationships)."
21But as Amendment Act , Schedule 1, Item 86(2) provides, s 90RC does not exclude the operation of State laws, which continue to operate with respect to de facto relationships not captured by the new Part VIIIAB.
22My findings in this judgment as to whether there was a relationship on 1 March 2009 will decide whether this Court has jurisdiction to determine this matter or whether the Family Court of Australia has jurisdiction under Family Law Act , Part VIIIAB.
23In their motions for determination of this separate question under UCPR , r 28.2 the parties have formulated the question at issue in slightly different ways; the defendant, Ms Richardson, as "Did the parties finally separate on , before or after 1 March 2009?"; and Mr Davies as "What was the date of the break down of the de facto relationship between the plaintiff and the defendant?" From my earlier analysis of the applicable legislation I do not think that either formulation is entirely apt. The appropriate question is that raised by Amendment Act , Schedule 1, Item 86 "Did the plaintiff's and the defendant's de facto relationship break down before the commencement of the Family Law Amendment (De Facto Financial Matters and Other Measures) Act 2008 on 1 March 2009". For the reasons set out below, in my view, that question should be answered in the affirmative. The parties should include this formulation of the question in their short minutes of order giving effect to these reasons.