HCCH - Proceedings of the Twenty-First Session (2007) - Child support (Part 2)

Actes et documents de la Vingt et unième session Proceedings of the Twenty-First SessionConférence de La Haye de droit international privé Hague Conference on Private International Law Actes et documents de la Vingt et unième session 5 au 23 novembre 2007 Proceedings of the Twenty-First Session 5 to 23 November 2007 Tome I (Partie/Part 2) Obligations alimentaires Child support Édités par le Bureau Permanent Publiés par la HCCH/La Haye/2020 Edited by the Permanent Bureau Published by HCCH/The Hague/2020ISBN Partie/Part 1 978-94-90265-97-7 ISBN Partie/Part 2 978-94-90265-98-4 Printed on acid-free paper. © 2020 HCCH Hague Conference on Private International Law Churchillplein 6B 2517 JW The Hague | Netherlands fax: +31 (0)70 360 4867 <www.hcch.net> All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, microfilming, recording or otherwise, without written permission from the Permanent Bureau of the Hague Conference on Private International Law.Note Notice II-5 Vingt et unième session Twenty-First Session

Actes Acts Note du Bureau Permanent

Notice by the Permanent Bureau

Conformément à une pratique qui a pris naissance lors de la Session extraordinaire de 1966, les interventions ont été résumées dans la langue, anglaise ou française, utilisée par les orateurs. Étant donné que les travaux de la Première commission ont été ouverts à tous les délégués à la Session diplomatique, aucune liste des membres de cette Com-mission n’est établie (voir le tome III, Matières diverses, pour la liste intégrale des participants à la Session diploma-tique).

Les Documents de travail sont également reproduits dans la langue utilisée par leur auteur, le Bureau Permanent ne pouvant assurer la traduction des documents produits par les délégations. Sont toutefois diffusés dans les deux langues les documents produits par le Président et les co-Rapporteurs, le Secrétariat et les Comités de rédaction.

In accordance with a practice begun during the Extraordi-nary Session of 1966, the speakers’ remarks have been sum-marised in the languages they employed, respectively Eng-lish or French. Since the work of the First Commission was open to all delegates to the Diplomatic Session, a list of Com-mission members has not been drawn up (see Tome III, Miscellaneous matters, for the complete list of Diplomatic Session participants). Working Documents are also reproduced in the languages employed by their authors, since the Permanent Bureau has no translation service. However, documents emanating from the Chair, the co-Reporters, the Secretariat or the Drafting Committees have been distributed in both languages.Documents de travail de la Première commission Working Documents of the First CommissionII-8 Doc.trav./Work.Docs Nos 1-8 Doc.trav./Work.Docs Nos 1-8 Documents de travail Nos 1 à 8

Working Documents Nos 1 to 8

Distribués le jeudi 8 novembre 2007 Distributed on Thursday 8 November 2007

No 1 – Proposal of the delegation of China Article 3(c) (c) “legal assistance” means the assistance provided for under the law of the requested State which is necessary to enable applicants to know and assert their rights and to ensure that applications are fully and effectively dealt with in accordance with the law of the requested State, such as legal advice, assistance in bringing a case before an author-ity, legal representation and exemption from costs of pro-ceedings; Rationale The proposal is to ensure that full respect is given to the law of the requested State so that legal assistance refers to that provided by the law of the requested State and such assistance will also be provided in accordance with the law of the requested State.

Rationale The proposal is to ensure that full respect is given to the law of the requested State so that legal assistance refers to that provided by the law of the requested State and such assistance will also be provided in accordance with the law of the requested State. No 2 – Proposal of the delegation of the European Com-munity Option 2 Article 14 Effective access to procedures […] 3 The requested State shall not be obliged to provide such free legal assistance if and to the extent that the pro-cedures of that State or other mechanisms enable the appli-cant to make the case without the need for such assistance, and the Central Authority provides such services as are necessary free of charge. […] 5 No security, bond or deposit, however described, shall be required to guarantee the payment of costs and expenses in proceedings under the Convention from persons – (a) by reason only of their foreign nationality or of their not being domiciled or resident in the State in which pro-ceedings are brought, or (b) applying for recognition and enforcement. Article 14 bis Free legal assistance for child support ap-plications […] 2 Notwithstanding paragraph 1, the requested State may, in relation to applications other than under Article 10(1)(a) and (b) and Article 17(4) – Article 33 Public bodies as applicants 1 For the purposes of applications under Article 10(1)(a) and (b) and Article 17(4), “creditor” includes a public body acting in place of an individual to whom maintenance is owed or one to which reimbursement is owed for benefits provided in lieu of maintenance. [Paragraphs 2 to 4 unchanged.] 5 Public bodies as applicants shall benefit from the same services or legal assistance as those set out in Article 14. No 3 – Proposal of the delegation of Argentina Article 4 Designation of Central Authorities

[Paragraphs 2 to 4 unchanged.] 5 Public bodies as applicants shall benefit from the same services or legal assistance as those set out in Article 14. No 3 – Proposal of the delegation of Argentina Article 4 Designation of Central Authorities 2 Federal States, States with more than one system of law or States having autonomous territorial units shall be free to appoint more than one Central Authority and shall specify the territorial or personal extent of their functions. Where a State has appointed more than one Central Author-ity, it shall designate the Central Authority to which any communication may be addressed for transmission to the appropriate Central Authority within that State. This provi-sion shall not apply to territories that are the subject of a sovereignty dispute recognised by the United Nations. No 4 – Proposal of the delegations of Argentina, Brazil, Chile, Ecuador, Mexico and Peru and of the Dominican Republic, Guatemala and El Salvador Article 3 Definitions For the purposes of this Convention – […] (c) “legal assistance” means the assistance necessary to enable applicants to know and assert their rights and to ensure that applications are fully and effectively dealt with in the requested State. This includes assistance such as le-gal advice, assistance in bringing a case before an author-ity, legal representation and exemption from costs of genet-ic testing when this is necessary and from costs of pro-ceedings; Article 8 Central Authority costs 1 Each Central Authority shall bear its own costs in applying this Convention. 2 Central Authorities may not impose any charge on an applicant for the provision of their services under the Con-vention save for exceptional costs or expenses arising from a request for a specific measure under Article 7. Article 14 Effective access to procedures […] 5 No security, bond or deposit, however described, shall be required to guarantee the payment of costs and expenses in proceedings brought [by the creditor] under the Conven-tion.Doc.trav./Work.Docs Nos 1-8 Doc.trav./Work.Docs Nos 1-8 II-9

Article 14 bis Free legal assistance for child support applications 1 The requested State shall provide free legal assistance in respect of all applications by the creditor under Chapter III concerning maintenance obligations arising from a parent-child relationship towards a child under the age of 21 or a disabled person. 2(a), (b) and (c): deleted. Article 14 ter Applications not qualifying under Article 14 bis In the case of an application not qualifying for free legal assistance under Article 14 bis – (a) the provision of free legal assistance may be made subject to a means or a merits test; (b) an applicant who in the State of origin has benefited from free legal assistance, shall be entitled, in any proceed-ings for recognition or enforcement, to benefit, at least to the same extent, from free legal assistance as provided for by the law of the State addressed under the same circum-stances. No 5 – Proposal of the delegations of China, Japan and the Russian Federation Article 14 Effective access to procedures 1 The requested State shall provide applicants with ef-fective access to procedures, including enforcement and ap-peal procedures, arising from applications under Chapter III or direct applications. 2 To provide such effective access, the requested State shall provide free legal assistance in accordance with the provisions in this Article unless the procedures of that State enable the applicant to make the case without the need for such assistance, and the Central Authority provides such services as are necessary free of charge. 3 Entitlements to free legal assistance shall not be less than those available in equivalent domestic cases. 4 No security, bond or deposit, however described, shall be required to guarantee the payment of costs and expenses in proceedings under the Convention. 5 The requested State shall provide the most favourable legal assistance provided for by the law of the requested State in respect of all applications under Chapter III con-cerning maintenance obligations arising from a parent-child relationship towards a child.

6 A Contracting State may declare in accordance with Article 58 that it will provide free legal assistance in appli-cations or exemptions from costs or expenses concerning child support on the basis of the assessment of the child’s means only, or without any means test at all. 7 A Contracting State may declare in accordance with Article 58 that it will provide free legal assistance on the basis of reciprocity with any other Contracting State that makes the same declaration. 8 This Article shall also apply to a public body which has provided benefits in lieu of maintenance and is eligible to reimbursement in the State of origin.

Rationale: It is important that effective access to procedures should be provided for both applications under Chapter III and direct applications. There is no sound justification to discriminate applicants making direct applications and to deny them effective access to procedures.

The idea is to ensure that foreign applicants will enjoy the same treatment as domestic applicants and the most favour-able legal assistance provided for by the law of the request-ed State will also be available to foreign applicants in child support cases. The declaration mechanism will allow States with similar levels of economic development to provide free legal as-sistance on the basis of reciprocity. A State which has the resources and capability may also declare that it will assess the means of a child only or it will dispense with the means test. This should provide sufficient flexibility for States that are willing to go further than providing national treatment for legal assistance while States that are not so ready will not be denied the benefits of the Convention because of the overwhelming financial burden imposed. Such States may at a later stage make a declaration to extend the free legal assistance when they have reached a sufficient level of economic development or have reformed their legal aid sys-tem. The proposal would also facilitate application of the Article to a public body by limiting the burden to provide free legal assistance. This proposal is a compromise combining some of the best features under Option 1 and Option 2 and would be more acceptable to a wider range of States which have diverse legal traditions and varied legal aid regimes in light of dif-ferent levels of economic development. No 6 – Proposal of the delegation of New Zealand Article 3 Definitions For the purposes of this Convention – […]

No 6 – Proposal of the delegation of New Zealand Article 3 Definitions For the purposes of this Convention – […] (c) “legal assistance” means the assistance necessary to enable applicants to know and assert their rights and to ensure that applications are fully and effectively dealt with in the requested State. [The methods of assuring that such assistance is provided may include This includes assistance such as legal advice, assistance in bringing a case before an authority, legal representation and exemption from costs of proceedings;] No 7 – Proposal of the delegation of Australia Article 20(8) 8 A challenge or an appeal by a respondent may also be founded on the fulfilment of the debt if to the extent that the recognition and enforcement was only applied for in respect of relates to payments that fell due in the past.

New text would read: 8 A challenge or an appeal by a respondent may also be founded on the fulfilment of the debt to the extent that the recognition and enforcement relates to payments that fell due in the past.II-10 Doc.trav./Work.Docs Nos 1-8 Doc.trav./Work.Docs Nos 9-15

No 8 – Proposal of the delegation of the Russian Federa-tion Article 2 Scope Option 1 1 The Convention shall apply to maintenance obliga-tions arising from a parent-child relationship towards a child under the age of 18. 2 A Contracting State may declare in accordance with Article 58 that it will extend the application of the whole or any part of the Convention to any maintenance obligation arising from a family relationship, marriage or affinity, to spousal support with the exception of Chapters II and III, or to maintenance obligations arising from a parent-child rela-tionship towards a child under the age of 21. Option 2 1 This Convention shall apply to maintenance obliga-tions arising from a parent-child relationship towards a child. 2 A Contracting State may declare in accordance with Article 58 that it will extend the application of the whole or any part of the Convention to any maintenance obligation arising from a family relationship, marriage or affinity, to spousal support with the exception of Chapters II and III. […] Article 3 Definitions […]

2 A Contracting State may declare in accordance with Article 58 that it will extend the application of the whole or any part of the Convention to any maintenance obligation arising from a family relationship, marriage or affinity, to spousal support with the exception of Chapters II and III. […] Article 3 Definitions […] (e) “child” meansi) every human being below the age of 18 years un-less under the law applicable to the child, majority is attained earlier or, ii) an incapacitated person beyond the age indicated in sub-paragraph (i) of this Article who is unable to support himself and who has the right to main-tenance obligations from his parents under the law of the Contracting State of his residence. Option 3 1 This Convention shall apply to maintenance obliga-tions arising from a parent-child relationship towards a child under the age of 21, and with the exception of Chap-ters II and III to spousal support. A Contracting State may make a reservation, in ac-cordance with Article 57, and limit the application of this Convention to maintenance obligations arising from a par-ent-child relationship towards a child under the age of 18. [Paragraphs 2 to 4 unchanged.] Article 57 Reservations 1 Any Contracting state may, not later than at the time of ratification, acceptance, approval or accession, or at the time of making a declaration in terms of Article 56(1), make one or more reservations provided for in Article 2(1). […] Documents de travail Nos 9 à 15

Working Documents Nos 9 to 15

Distribués le vendredi 9 novembre 2007 Distributed on Friday 9 November 2007

No 9 – Proposal of the delegations of Australia, Canada and New Zealand and of the Commonwealth Secretariat Article 27 Reciprocal arrangements involving the use of provisional and confirmation orders Add a new paragraph (d): (d) Article 15 shall not prevent proceedings for the mod-ification of the decision being commenced in either State.

Article 27 Reciprocal arrangements involving the use of provisional and confirmation orders Add a new paragraph (d): (d) Article 15 shall not prevent proceedings for the mod-ification of the decision being commenced in either State. It is also suggested, as a matter of drafting, that the head-ing to Article 27 should read: “Decisions produced by the use of provisional and confirmation orders”. No 10 – Proposition de la délégation du Canada – Pro-posal of the delegation of Canada Article 34 Demandes présentées directement aux auto-rités compétentes 1 La présente Convention n’exclut pas la possibilité de recourir à de telles procédures lorsqu’elles sont disponibles en vertu du droit interne d’un État contractant autorisant une personne (un demandeur) à saisir directement une auto-rité compétente de cet État dans une matière régie par cette Convention, y compris, sous réserve de l’article 15, en vue de l’obtention ou de la modification d’une décision en ma-tière d’aliments. 2 Toutefois, lL’article 14(5) et (6) et les dispositions des chapitres V, VI et VII s’appliquent aux demandes de recon-naissance et d’exécution présentées directement à une au-torité compétente d’un État contractant. Justification pour les changements proposés : L’art. 34(1) : Dans des États fédéraux comme le Canada, l’utilisation du terme « national » dans la version anglaise n’est pas appropriée étant donné la division de pouvoirs législatifs. Le changement proposé est également nécessaire pour des fins de concordance avec le texte français. L’art. 34(2) : Nous proposons de supprimer le terme « tou-tefois » car les paragraphes premier et 2 traitent de ques-tions différentes. Tel que mentionné dans nos commen-taires, nous suggérons également de supprimer la référence à l’article 14(5).

Doc.trav./Work.Docs Nos 9-15 Doc.trav./Work.Docs Nos 9-15 II-11 Article 34 Direct requests to competent authorities 1 This Convention does not exclude the possibility of recourse to such procedures as may be available under the internal law of a Contracting State allowing a person (an applicant) to seize directly a competent authority of that State in a matter governed by this Convention including, subject to Article 15, for the purpose of having a mainte-nance decision established or modified. 2 However, Article 14(5) and (6) and the provisions of Chapters V, VI and VII shall apply in relation to a request for recognition and enforcement made directly to a compe-tent authority in a Contracting State.

Rationale for proposed changes: Art. 34(1): In federal States such as Canada, the term “na-tional” in the English version of the text would not be ap-propriate given the constitutional division of legislative authority. The proposed change is also needed so that there is consistency with the French language text.

Art. 34(2): We propose removing the term “however” be-cause paragraphs 1 and 2 deal with separate matters. As mentioned in our comments, we also suggest deleting refer-ence to Article 14(5). No 11 – Proposal of the delegation of Switzerland Article 20 Procedure on an application for recognition and enforcement 1 […] 2 Subject to Article 6(2)(d), wWhere an application for recognition and enforcement of a decision has been made through Central Authorities in accordance with Chapter III, the requested Central Authority shall promptly either – […] No 12 – Proposal of the delegation of the International Bar Association Article 34 Direct requests to competent authorities 1 This Convention does not exclude the possibility of recourse to such procedures as may be available under the national law of a Contracting State allowing a person (an applicant) creditor, debtor or public body to seize directly a competent authority of that State in a matter governed by this Convention. including, subject to Article 15, for the purpose of having a maintenance decision established or modified.

2 However, Article 14(5) and (6)1 and the provisions of Chapters IV, V, VI and VII and Articles 40, 41(1) and (2) and 43 shall apply in relation to a request for recognition and enforcement made directly to a competent authority in a Contracting State. Article 9 Application through Central Authorities 1 An application under this Chapter shall be made through the Central Authority of the Contracting State in which the applicant resides to the Central Authority of the requested State. For the purpose of this provision, residence excludes mere presence.

1 This reference is to Option 1 of Art. 14. Should Option 2 be preferred, the reference would be to “Art.s 14(5) and 14 ter (b)”. 2 Notwithstanding Article 9(1), a Contracting State may agree with another Contracting State to establish proce-dures to permit a party in the requesting State to make an application directly to the Central Authority of the request-ed State. Rationale Article 34 establishes the right of an applicant in the re-questing State to make a direct request to the competent authority in the requested State. It is the understanding of the IBA that a party may make a direct request sua sponte or with the assistance of privately retained counsel. The IBA recommends that the Convention should not provide that a party making a direct request with or without private coun-sel must receive free legal assistance from the requested State. Whether legal assistance is provided is subject to the national law of the State involved. A party in need of free legal assistance should make an application through the Central Authority system. The amendment also adds Arti-cles 40 (recovery of costs from an unsuccessful party), 41(1) and (2) (language requirements), and 43 (non-unified legal systems) to also apply to a direct request. Article 9 provides that a party must make his application to the Central Authority in the Contracting State in which he or she resides. The IBA suggests that a more flexible ap-proach would allow two Contracting States to agree to per-mit an applicant to apply directly to the Central Authority in the requested State. In some cases and for some States this may save time, costs and the occasional confusion of overlapping systems.

The IBA further recommends that throughout the instrument the term “direct request” be used when referring to the ac-tion of a party in the requesting State directly seeking relief from a competent authority in the requested State, and that the term “direct application” be used when referring to the action of a party in the requesting State who applies direct-ly to the Central Authority in the requested State. No 13 – Proposal of the delegation of Switzerland Article 20 Procedure on an application for recognition and enforcement New paragraph 6 bis: 6 bis During the time specified for an appeal / challenge according to the preceding paragraph and until any such appeal / challenge has been determined, no measures of en-forcement may be taken other than protective measures against the property of the defendant. [The decision author-ising enforcement shall carry with it the power to proceed to any such protective measures.] No 14 – Proposition de la délégation de la Chine – Pro-posal of the delegation of China Article 20 Procédure pour une demande de reconnais-sance et d’exécution Nouveau paragraphe 8 bis : Une contestation ou un appel conformément aux para-graphes 7 ou 8 aura comme effet l’interruption ou la sus-pension de la procédure sous cet article. II-12 Doc.trav./Work.Docs Nos 9-15 Doc.trav./Work.Docs Nos 16-20 Article 20 Procedure on an application for recognition and enforcement New paragraph 8 bis: A challenge or appeal under paragraphs 7 or 8 shall have the effect of suspending or staying the procedure under this Article. No 15 – Proposition de la Communauté européenne – Proposal of the European Community Article 7 Requête de mesures spécifiques

New paragraph 8 bis: A challenge or appeal under paragraphs 7 or 8 shall have the effect of suspending or staying the procedure under this Article. No 15 – Proposition de la Communauté européenne – Proposal of the European Community Article 7 Requête de mesures spécifiques 1 Une Autorité centrale peut, sur requête motivée, deman-der à une autre Autorité centrale qu’elle prenne des me-sures spécifiques appropriées en vertu de l’article 6(2)(b), (c), [(g), (h), (i) et (j)] lorsque aucune demande en applica-tion de l’article 10 n’est pendante. L’Autorité centrale re-quise prend les mesures appropriées si elle les considère nécessaires afin d’aider un demandeur potentiel [à faire une demande prévue à l’article 10 ou] à déterminer si une telle demande doit être introduite. Article 45 Coordination avec les instruments et accords complémentaires Nouveau paragraphe 1 bis : 1 bis La présente Convention ne déroge pas à la Conven-tion de La Haye du 15 novembre 1965 relative à la signifi-cation et la notification à l’étranger des actes judiciaires et extrajudiciaires en matière civile ou commerciale ni à la Convention de La Haye du 18 mars 1970 sur l’obtention des preuves à l’étranger en matière civile ou commerciale pour les États contractants qui sont Parties à l’une ou l’autre de ces Conventions. Article 7 Requests for specific measures 1 A Central Authority may make a request, supported by reasons, to another Central Authority to take appropriate specific measures under Article 6(2)(b), (c), [(g), (h), (i) and (j)] when no application under Article 10 is pending. The requested Central Authority shall take such measures as are appropriate if satisfied that they are necessary to assist a potential applicant [in making an application under Article 10 or] in determining whether such an application should be initiated.

Article 45 Co-ordination of instruments and supplemen-tary agreements New paragraph 1 bis: 1 bis This Convention does not affect the Hague Con-vention of 15 November 1965 on the Service Abroad of Judicial and Extrajudicial Documents in Civil or Commer-cial Matters and the Hague Convention of 18 March 1970 on the Taking of Evidence Abroad in Civil or Commercial Matters for Contracting States that are Parties to either of these Conventions. Documents de travail Nos 16 à 20

Working Documents Nos 16 to 20

Distribués le samedi 10 novembre 2007 Distributed on Saturday 10 November 2007

No 16 – Proposal of the delegation of Australia Article 20 New paragraph 6 bis: During the time specified for an appeal / challenge accord-ing to the preceding paragraph and until any such appeal / challenge has been determined, the respondent shall be en-titled to seek a suspension or stay of enforcement measures. No 17 – Proposition de la délégation du Canada – Pro-posal of the delegation of Canada Article 20 Procédure pour une demande de reconnais-sance et d’exécution Nouveau paragraphe 6 bis : 6 bis Une contestation ou un appel ne suspend pas l’exé-cution de la décision. L’exécution peut toutefois être sus-pendue pour un temps et à des conditions déterminées, s’il est démontré qu’il en résulterait un préjudice grave pour le débiteur. Article 20 Procedure on an application for recognition and enforcement New paragraph 6 bis: 6 bis A challenge or an appeal does not suspend the en-forcement of the decision. The enforcement may however be suspended for a time and on conditions determined, if it is shown that serious prejudice to the debtor would likely result. No 18 – Proposition de la délégation du Canada – Pro-posal of the delegation of Canada Amendement au titre anglais de la Convention / Amend-ment to the English title of the Convention:

No 18 – Proposition de la délégation du Canada – Pro-posal of the delegation of Canada Amendement au titre anglais de la Convention / Amend-ment to the English title of the Convention:

CONVENTION ON THE INTERNATIONAL RECOVERY OF CHILD

SUPPORT AND MAINTENANCE FOR OTHER FAMILY MEMBERS Justification : 1) Ce titre décrit plus adéquatement l’objet de la Con-vention. 2) Il assure la conformité avec le titre français.Doc.trav./Work.Docs Nos 16-20 Doc.trav./Work.Docs Nos 16-20 II-13

Rationale: 1) This title better describes the subject-matter of the Convention. 2) It ensures uniformity with the French title.

No 19 – Proposal of the delegation of Switzerland Article 21 Documents 1 […] (b) a document stating that the decision is enforceable in the State of origin and, in the case of a decision by an ad-ministrative authority, a document stating that the re-quirements of Article 16(3) are met; New paragraph 1 bis: 1 bis A Contracting State may by declaration to the Per-manent Bureau state that the decisions of its administrative authorities meet the requirements of Article 16(3). No 20 – Proposition de la délégation de la Communauté européenne – Proposal of the delegation of the Euro-pean Community Article 3 Définitions Nouveau paragraphe (e) : (e) « acte authentique » désigne : (i) un acte en matière d’obligations alimentaires dressé ou enregistré formellement en tant qu’acte authentique et dont l’authenticité : – porte sur la signature et le contenu de l’acte, et – a été établie par une autorité publique ou toute autre autorité habilitée à ce faire par l’État con-tractant d’origine ; ou

– porte sur la signature et le contenu de l’acte, et – a été établie par une autorité publique ou toute autre autorité habilitée à ce faire par l’État con-tractant d’origine ; ou (ii) une convention en matière d’obligations alimen-taires conclue avec des autorités administratives ou authentifiée par celles-ci. Article 16 Champ d’application du chapitre [4 Ce chapitre s’applique aussi aux actes authentiques et accords privés en matière d’obligations alimentaires, con-formément à l’article 26.] [Article 2