16 Time for application for provision
(1) In this section, prescribed period in respect of an application in relation to a deceased person, means:
(a) where the Court has, in an order made under section 17, specified a period in relation to the application - that period, or
(b) in any other case - the period of 18 months after the death of the deceased person.
(2) An order under section 7 shall not be made unless the application for the order is made within the prescribed period in respect of that application or within such further period as the Court may, having regard to all the circumstances of the case but subject to subsection (3), by order, allow.
(3) The Court may not make an order under subsection (2) allowing an application in relation to a deceased person to be made after the end of the prescribed period unless:
(a) the parties to the proceedings concerned have consented to the application being made after the end of that period, or
(b) sufficient cause is shown for the application not having been made within that period.
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- The effect of the section is to confer on the court a discretion to extend time, having regard to all the circumstances of the case, but only if sufficient cause is shown for the application not having been made within the 18 months period. An applicant for such an extension must demonstrate that there was sufficient cause for not having made the application within time - that is to say, within the 18 months period. So much is mandatory. This requires some explanation for the failure to make the application during that period. Once sufficient cause is shown for not making the application within that period, the discretion is enlivened. It is not a jurisdictional prerequisite that sufficient cause be shown for any further delay after the expiry of the 18 months period; however, any such further delay and the reasons for it are plainly part of "all the circumstances of the case", to which the court must have regard in exercising the discretion. Other discretionary considerations include whether the extension of time would occasion prejudice to any beneficiary under the will; whether there is any unconscionable conduct on the part of the applicant (which is essentially concerned with deliberate decisions not to make an application, upon which an executor or a beneficiary has acted to their detriment); and the strength of the applicants case for relief under the Act. [2] A mere change of mind on the part of an eligible person, who has decided not to make a claim - even if that change of mind is triggered by the success of a claim of another eligible person, or by another eligible person bringing a claim - is ordinarily not sufficient cause for granting an extension of time. [3]
- The period of 18 months from the date of the deceased's death within which an application ought to have been made expired on 23 December 2007; the plaintiff's application was not commenced until 11 September 2013.
- Thus the first question is whether sufficient cause is shown for the application not having been made within the 18 months period. In my judgment, the plaintiff has shown sufficient cause for the application not having been made within the 18 months period. Not only was she not aware of her rights at the expiration of that period (although she became aware of them not long thereafter), but more significantly, she was then the sole beneficiary of the defendant's will, a trustee of his superannuation fund, held his power of attorney, and had a legitimate expectation, based on the death-bed conversation and the defendant's subsequent actions, that she would in due course be the beneficiary of his estate. There was then no other apparent claim on his testamentary bounty. In those circumstances, it was entirely reasonable for her not to make a claim on the deceased's estate, anticipating that she would in due course be provided for by the defendant, and recognising the primacy of the deceased's obligation to him during his lifetime.
- Having surmounted that hurdle, the plaintiff must also persuade the court that the discretion to extend time should be exercised in her favour, having regard to all the circumstances. Those circumstances relevantly include that in February 2008, the defendant was expressing some reluctance to give the guarantee she needed if she were to purchase the childcare business. Having ascertained that she was out of time, she obtained advice from Turner Freeman, and she decided in the circumstances not to make a claim, for reasons that included avoiding damaging her delicate relationship with the defendant. Thereafter, the defendant - unaware that she had been contemplating making a claim - gave the guarantee she needed, thereby conferring on her a very substantial benefit and exposing himself and his assets to considerable risk. It cannot be conceived that he would voluntarily have done so had he known that there would be a family provision claim, and in my view there is no doubt that the plaintiff's then decision not to make a claim was influenced by her judgment that if she did so, he would not give the guarantee she wanted. This is the type of "unconscionable conduct" to which the cases refer, and counts as a significant discretionary factor against extending time.
- Next, following the estrangement in which the plaintiff's resentment of the defendant's relationship with Rebecca appears to have been a major contributing factor, the defendant married Rebecca in May 2009, and in July, removed the plaintiff as trustee of the Superfund and his power of attorney. From this point at least, it must have been apparent that whatever expectation the plaintiff had previously had of inheritance from the defendant was no longer realistic. The circumstances that had amounted to sufficient cause for not applying earlier ceased to exist from this point.
- In that context, in July 2009, she received advice from Turnbull Hill. While it is correct that much of the letter was rather formulaic, it drew attention, in the context of the time limits, to the need to obtain advice "as soon as possible" after the death. Then, in August 2009, she was advised by Turner Freeman that she might have "reasonable prospects in succeeding in a claim under the FPA", that the time in which she could make a claim had expired; that in "exceptional circumstances" it was possible for the Court to extend the time; that she would need to establish that there were "factors warranting" her bringing a claim because the defendant was not her "biological father", and she would need to pass "that further threshold test"; and to engage in some sort of mediated settlement rather than engage in expensive litigation. While in some respects that advice was misconceived, those aspects did bear on the importance of acting expeditiously. In October 2009, the defendant by solicitors firmly rejected her invitation to negotiate, and indicated that any claim would be opposed. In December 2009, having been advised by Turner Freeman that her prospects were not good, and that any action should be taken as soon as possible, she decided that the risks outweighed the benefits, and decided not to claim.
- Had proceedings been commenced promptly after July 2009, a case for an extension could well have been made on the basis that failure to claim earlier was sufficiently explained by the plaintiff's legitimate expectation of inheritance in due course from the defendant, and its later falsification. But - even if one does not hold the plaintiff responsible for the delay in obtaining counsel's advice - the period from June 2009 to April 2011 is not adequately explained. She received advice and made a considered decision in late 2009 not to make a claim, and the advice included the importance of acting quickly if action was to be taken. It was submitted for the plaintiff that she was not advised that time was of the essence in respect of commencing proceedings for an extension of time after the 18 months period had expired, but she was at least twice advised of the need to act expeditiously, and in any event it should be self-evident that this was as much if not more the case after time had expired than before. It was also submitted that she was without sufficient funds to instruct solicitors, but her financial position has not materially improved; she was as able then as now to find solicitors who might act for her without requiring upfront payment, and she and her husband in late 2009 sold their home and purchased a new one in the husband's name alone. She was receiving about $1,000 a week (before tax) from the childcare business, and in addition her husband was earning about $1,500 per week gross from his employment. While this is by no means a high income, I am unpersuaded that she was in a position where with reasonable efforts she could not have found lawyers to act for her, as she later did.
- In truth, all that has happened since late 2009 is that she has changed her mind about making a claim. Moreover, particularly in a case that was already out of time, it is difficult to see why her solicitors would await counsel's advice - let alone for 18 months - before at least instituting proceedings for the purpose of minimising any further delay.
- During this period, on the other hand, the defendant changed his position by selling Corang Avenue, creating the term deposit, and purchasing his current place of residence. While this may not have resulted in prejudice in the sense of material disadvantage - as the term deposit represents proceeds which would otherwise have been caught by his guarantee, and he has effectively substituted one residence for another - nonetheless, having clearly rejected the plaintiff's claim in October 2009, he has proceeded to arrange his life and affairs in the absence of a claim. A pension from the Superfund provides his main source of income. Meantime, his own health has deteriorated.
- In my view, although there was sufficient cause for the plaintiff's failure to commence proceedings within time, and her not doing so at least until July 2009 is adequately explained, the combination of her informed decision in February 2008 not to make a claim, in circumstances where she knew she was already out of time - a decision which was calculated to maximise the prospects that the defendant would agree to provide the childcare centre guarantee, which she desired and he duly provided, which he would not likely have done had he been apprised that she was contemplating a claim - and the absence of satisfactory explanation for her failure to institute proceedings by the end of 2009, after her claim had been rebuffed and when she had advice of the importance of acting promptly and made a considered decision not to do so, tell against an exercise in her favour of the discretion to extend time up to 11 September 2013. Together, these matters persuade me that the discretion to extend time should not be exercised in favour of the plaintiff.
- This conclusion is reinforced by the circumstance that the plaintiff can only succeed if she obtains a designating order; such order can be made in the circumstances of this case only if there are "special circumstances" within s 28(5); and that establishing "special circumstances" requires something more than is required merely to secure an extension of time within which to commence proceedings.